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The Portuguese National Strategy for Integrated

Coastal Zone Management as a spatial planning

instrument to climate change adaptation in the

Minho River Estuary (Portugal NW-Coastal Zone)

Rute Pinto * , Filomena Cardoso Martins

Department

of

Environment

and

Planning,

University

of

Aveiro,

University

Campus

of

Santiago,

3810-193

Aveiro,

Portugal

1.

Introduction

Climate

change

and

sea

level

rise

are

unequivocal

(IPCC,

2007c).

Coastal

zones

in

Europe

are

centres

of

population

and

economic activity and are inhabited by diverse ecosystems, in

particular wetland ecosystems. Projected climate change,

including

sea

level

rise

and

associated

changes

in

frequency

and/or

intensity

of

storm

surges

and

erosion,

threaten

human

and natural systems at the coasts in various ways. Manage-

ment of the coastal zones needs to consider the multiple

functions of many coastal areas, which is increasingly

occurring

through

Integrated

Coastal

Zone

Management

(ICZM)

(EEA,

2012). The

planning

system

is

a

key

public

policy

to anticipate and prevent adverse impacts of climate change

and to take advantage of any opportunities it might bring, thus

spatial

planning

has

a

anticipatory

role

on

a

robust

adaptation

to

climate

change

(Wilson,

2006). In

this

context,

the

national

e nv i ro n me nt a l s c ie n ce & p o li c y 3 3 ( 2 01 3 ) 7 6 –9 6

a r t i c l e i n f o

Article history:

Received 10 December 2012

Received in revised form

10 April 2013

Accepted 11 April 2013

Published on line 11 June 2013

Keywords:

Climate change

Adaptation

Integrated Coastal Zone

Management

Spatial planning

Estuary

a b s t r a c t

Climate change is one of the greatest threats to coastal zones. Integrated Coastal Zone

Management (ICZM) considers the interaction between socioeconomic activities and envi-

ronmental requirements to natural resources use in those coastal zones. It must now

include measures to climate change adaptation,particularly directed to themost vulnerable

areas such as estuaries, thus constituting a key component of spatial planning. This study

aims to: (i) evaluate the integration of the concern of climate change adaptation in the

Portuguese National Strategy for ICZM (PNSICZM), while a important spatial planning

instrument at national level; and (ii) realize how this integration influences the manage-

ment of the potential impacts of climate change at local level, in a temperate estuary,namely the Minho River Estuary (MRE) (located in NW-Portugal coastal zone). We verified

that the PNSICZM integrates, both directly and indirectly, the concern of climate change

adaptation. The PNSICZM highlights the need of climate change issue be integrated in

coastal management and delivers a set of measures contributing to the effort of climate

change adaptation and its guidelines must be included in the Spatial Planning Instruments

(SPI) at regional and local level. In this context, the SPI covering the MRE must be adjusted to

the PNSICZM guidelines in order to promote a planned adaptation of this estuary and of its

adjacent coastal zone to the potential impacts of climate change.

# 2013 Elsevier Ltd. All rights reserved.

* Corresponding author. Tel.: +351 234 370 349; fax: +351 234 370 309.E-mail addresses: [email protected],

[email protected] (R. Pinto).

Available online at www.sciencedirect.com

journal homepage: www.elsevier.com/locate/envsci

1462-9011/$ – see front matter# 2013 Elsevier Ltd. All rights reserved.

http://dx.doi.org/10.1016/j.envsci.2013.04.005


2/21

planning

systems

need

to

be

reviewed

to

upgrade

the

general

efficacy of public response to climate change, because the

national planning level is responsible to lay out detailed

guidelines and regulations as guidance for spatial planning

practice (Bajec, 2011).

The Portuguese National Strategy for Integrated

Coastal

Zone

Management

(PNSICZM), while

a

Spatial

Planning Instrument (SPI) at national level, can make animportant contribution to prepare the adaptation of the

Minho River Estuary (MRE) for the potential impacts of

climate change, through

the integration,

or

by

mainstream-

ing

(Klein et

al.,

2005), of

its guidelines

on

climate

change

adaptation in the SPI, at regional and local level, which

cover this estuary.

1.1.

Climate

change

and

coastal

zones

Coasts

will

be

exposed

to

increasing

risks,

with

a

very

high

confidence, in the over coming decades, due to climate change

and associated sea level rise, according to the Intergovern-

mental Panel on Climate Change (IPCC) (IPCC, 2007b).Anticipated

climate-related

changes

by

2100

include

(IPCC,

2007b): an accelerated rise in sea level of up to 0.6 m or more; a

further rise in sea surface temperatures by up to 3 8C; an

intensification

of

tropical

and

extra-tropical

cyclones;

larger

extreme

waves

and

storm

surges;

altered

precipitation/run-

off;

and

ocean

acidification.

These

phenomena

will

vary

considerably

at

regional

and

local

scales,

but

the

impacts

are

virtually certain to be overwhelmingly negative.

Coastal zones are the most densely populated areas on

Earth,

where

23%

of

the

world’s

population

lives

both

within

100

km

distance

of

the

coast

and


3/21

1.3.

The

Portuguese

National

Strategy

for

ICZM

The Continental Portugal (Iberian Peninsula, SW-Europe)

coastline extends over 900 km and is morphologically diverse,

presenting geomorphological features that include, among

others, extensive sandy shores backed by dunes, rocky coasts

with

low

and

high

cliffs,

pocket

beaches,

bays,

estuaries,

lagoons and barrier islands. The Portuguese coast comprises itin three main types: (i) sandy shores; (ii) cliffed coasts; and (iii)

low-lying rocky shores (Ferreira et al., 2008). It is highly

attractive

for

the

concentration

of

economic

activities

and

population,

mainly

along

the

estuaries,

which

are

considered

highly vulnerable to sea level rise (Ferreira et al., 2008), being

particularly exposed to storm surges, coastline erosion and

floods

(EC,

2009;

ENGIZC,

2009).

The first integrated vulnerability assessment of the

impacts

of

climate

change

in

Continental

Portugal,

based

on

Global

and

European

climatic

models

and

on

Portuguese

climatic and sea level data, projects to 2100 the (Santos and

Miranda, 2006): increase in maximum summer temperature

estimated at 3 8C in the coastal zones and above 7 8C in theinterior,

accompanied

by

a

major

increase

in

the

frequency

and intensity of heatwaves; reduction in precipitation over

Continental Portugal, predicted by almost all models, within

the

range

of

20–40%

of

its

current

values,

but

due

to

increases

in

the

number

of

intense

precipitation

days

(above

10

mm/

day1)

can

occur

an

increase

of

precipitation

during

winter;

and

rise

in

sea

level

(which

has

rose

in

Continental

Portugal

about 0.15 m during the 20th century) of up to 1 m, similar to

the maximum proposed by the IPCC (IPCC, 2001) in worst case

scenario

(IPCC

scenarios

give

a

global

mean

sea

level

rise

of

0.09–0.88

m

by

2100).

The main potential impacts of climate change in the

Portuguese coastal zones can be the permanent inundation of wetlands and low-lying lands, accelerated erosion, freshwater

shortage,

natural

trend

for

upward

and

landward

displace-

ment of estuaries and coastal lagoons and potential loss of

ecosystems (Ferreira et al., 2008; EC, 2009). These resulting

impacts of climate change are the greatest challenge that

arises in the medium/long term to ICZM in Portugal, forcing

the adoption and implementation of adaptation measures in

various

sectors

because

climate

change

is

a

cross-sectoral

issue

and

a

cross-cutting

theme

of

all

decision-making

processes on strategies and development policies.

In Portugal, the spatial planning policy is based on a

Territorial

Management

System

(TMS)

which

is

organized

within a framework of coordinated interaction at three levels(LBPOTU, 1998):

i) National: defines the strategic framework for national

planning, setting guidelines to be considered in regional

and

local

planning;

ii)

Regional:

defines

the

strategic

framework

for

regional

planning in close coordination with economic and social

development national policies, establishing the directives

to

the

local

planning;

iii)

Local:

defines,

in

accordance

with

the

guidelines

of

national and regional levels and with their own strategic

development options, the land use regime and its

programming.

The

TMS

concretizes

the

coordinated

interaction

of

its

various

levels

through

a

coherent

and

rational

set

of

SPI

also

designated

as

Spatial

Management

Instruments

(SMI).

These

SMI

establish

the

options

to

national

territorial

development

and organization, programme or embody policies of economic

and social development with territorial incidence. They also

constitute

a

supplementary

means

of

the

Government

intervention in pursuing the objectives of national interestwith spatial repercussions or in defining the land use regime

(LBPOTU, 1998). According to the different functions that they

perform,

SMI

integrate:

i) Territorial development instruments (TDI) which are

diverse and organized at national level – policies (laws),

strategies,

plans

and

programmes,

and

at

regional

level

–

regional spatial planning plans and intermunicipal spatial

planning

plans;

ii)

Territorial

planning

instruments

(TPI)

which

are

organized

at local level – municipal spatial planning plans including

municipal master plans, urbanization plans and detail

plans;iii)

Sectoral

policy

instruments

(ScPI)

which

are

organized

at

national level – sectoral plans;

iv) Special nature instruments (SNI) which are organized at

national

level

–

special

spatial

planning

plans

of

protected

areas,

coastal

zones,

public

water

reservoirs

and

estuaries,

however

these

plans

have

territorial

intervention

areas

with

incidence

at

regional

and

local

level.

The PNSICZM is a SMI of national level, namely a TDI, and

has

strategic

nature,

constituting

an

important

spatial

planning

instrument.

In

this

context,

it

is

important

to

emphasize that the PNSICZM establishes a strategic frame-

work to integrated and participatory management of thecoastal zones to ensure sustainability conditions for its

development,

reaffirming

the

purposes

conferred

by

the

current international Conventions, European Community

guidelines and national legal framework, and integrating

the provisions of the official documents of reference, among

which stand out at level:

i)

International:

the

United

Nations

Convention

on

the

Law

of

the

Sea

(UNCLOS)

signed

on

1982

in

Montego

Bay

(UN,

1982), which defined, among other important aspects in

the framework of international law of the sea, the concepts

of

maritime

areas

to

consider

in

ICZM;

the

United

Nations

Convention on Biological Diversity (UNCBD) signed on 1992in Rio de Janeiro (UN, 1992), which sought the conservation

of biological diversity and encompasses all aspects: genes

and genomes, species and communities, habitats and

ecosystems; the Convention for the Protection of the

Marine

Environment

of

the

North-East

Atlantic

(OSPAR

Convention)

signed

on

1992

in

Paris

(OSPAR

Commission,

1992), which aimed to guide the international cooperation

in the protection of the marine environment and apply the

ecosystemic

approach

to

the

management

of

human

activities.

These

conventions

are

the

main

multilateral

international agreements that frame ICZM in Portugal.

However, another important convention, corresponding to

a bilateral international agreement, established with

e nv i ro n me n ta l s c ie nc e & p ol ic y 3 3 ( 2 01 3 ) 7 6 –9 678


4/21

neighbouring

Spain,

also

can

intervene

in

the

Portuguese

ICZM, particularly in the case of the MRE, while a cross-

border river and estuary, namely the Convention on

Cooperation for the Protection and Sustainable Use of

Water Basins Hydrographical Luso-Spanish (Albufeira

Convention) signed on 1998 in Albufeira (CA, 1999), which

defined

the

cooperation

framework

between

Portugal

and

Spain to protect surface water and groundwater and theaquatic and terrestrial ecosystems which depend directly

on them, and for the sustainable use of water resources of

the

international

river

basins,

including

the

Minho

River.

To

monitor

and

propose

solutions

related

to

matters

covered by this convention, and other international

conventions concluded between Portugal and Spain, and

implement

the

cooperation

policy

between

Portugal

and

Spain was established, in 2007, the Interministerial

Commission

on

the

Limits

and

Luso-Spanish

River

Basins

(CILBHLE,

2007). Although

the

cooperation

framework

be

established, yet there is no action or SMI jointly between

Portugal and Spain to the Minho River basin nor to the MRE,

therefore should be promoted the cooperation in ICZMframework

of

the

cross-border

territory.

This

cross-border

cooperation between Portugal and Spain must take into

account the need for climate change adaptation because,

as

referred

by

the

EEA

(2012),

many

impacts

of

climate

change

and

adaptation

measures

have

cross-border

dimensions.

It

is

by

the

recognition

of

the

importance

of

this

cooperation

framework

that

the

PNSICZM

established,

as one of its transversal objectives, the international

cooperation development through mechanisms of coop-

eration

between

states

and

regions

on

ICZM;

ii)

European:

the

Recommendation

2002/413/EC

of

the

Euro-

pean Parliament and of the Council of 30 May 2002 (EPC,

2002), which defined the general principles and options forICZM in Europe and described the steps that the Member

States

should

take

to

develop

national

strategies

for

ICZM

and involve all coastal stakeholders. Regarding coopera-

tion, recommended that Member States should encourage,

enter into or maintain dialogue and implement existing

conventions with neighbouring countries to establish

mechanisms for a better coordination of responses to

cross-border

issues.

The

PNSICZM

was

developed

accord-

ing

to

this

Recommendation

2002/413/EC

guidelines.

However, there are many others Community Sectoral

Policies that are not directly oriented to the coastal zones

but

which

are

very

relevant

to

the

sustainable

develop-

ment of these areas. Among these policies stand out: theDirective 2000/60/EC of the European Parliament and of the

Council of 23 October 2000 – Water Framework Directive

(EPC, 2000), which established the framework for the

protection of inland surface waters, transitional waters,

coastal

waters

and

groundwater

and

to

ensure

that

all

Community

waters

achieve

a

good

quality

status,

having

strong links with spatial planning and requiring the

consideration of integrated performances between these

sectors

–

water

management

and

spatial

planning.

This

Directive

has

caused

major

changes

in

those

sectors,

adopting the Hydrographical Region as the main unit for

water management and planning based on the watershed

and, according to Veloso-Gomes (2011), the creation of new

Regional

Water

Authorities

(by

Hydrographical

Region)

has

strong implications on ICZM; the Directive 2007/60/EC of

the European Parliament and of the Council of 23 October

2007 – Flood Risk Management Directive (EPC, 2007), which

established the framework for the assessment and

management of flood risks, aiming at the reduction of

the

adverse

consequences

for

human

health,

the

environ-

ment, cultural heritage and economic activity associatedwith floods in the Community. It is applied to flood areas

along rivers as well as in estuarine and coastal zones and

determined

the

elaboration

of

flood

risk

maps

which

are

very

important

for

those

rivers,

estuaries

and

coastal

zones. This Directive also set that when an international

river basin district, or unit of management, falls entirely

within

the

Community

Member

States

shall

ensure

coordination with the aim of producing one single

International

Flood

Risk

Management

Plan,

or

a

set

of

Flood

Risk

Management

Plans

coordinated

at

the

level

of

the international river basin district; the Directive 2008/56/

EC of the European Parliament and of the Council of 17 June

2008 – Marine Strategy Framework Directive (EPC, 2008),which

established

the

framework

for

community

action

in

the field of marine environmental policy. It should also be

referred the Community Cohesion Policy, which provides

the

framework

for

the

financing

of

a

wide

range

of

projects

and

investments

with

the

objective

of

stimulating

eco-

nomic

growth

in

the

Member

States

and

its

regions

and

is

based

on

the

Structural

Funds

and

Cohesion

Funds.

Under

this policy was launched, in 2000, the INTERREG III

Program, funded by the European Regional Development

Fund,

which

is

particularly

important

for

the

implemen-

tation

of

joint

strategies

and

development

programmes

for

cross-border cooperation between border regions neigh-

bouring in order to develop the economic and socialcooperation. This Programme can be used, in the context

of

the

MRE,

between

Portugal

and

Spain

to

prepare

it

for

the impacts of climate change, whereas the management

of risks arising from climate change is among the priorities

of the Territorial Agenda of the European Union;

iii) National: the National Program of the Spatial Planning

Policy (PNPOT, 2007), which constitutes the spatial

planning

framework

to

national

territory

and

has

identi-

fied,

as

a

priority,

the

implementation

of

a

planning

and

ICZM policy, including terrestrial and aquatic components,

as well as the implementation of a sustainable policy to

climate

change

through

the

elaboration

of

adaptation

plans and the integration of adaptation measures toclimate change in the SMI.

The PNSICZM intervention area are all the Portuguese

coastal zones, translating the strategic options with relevance

to

territorial

development

and

organization,

establishing

the

generic

guidelines

for

spatial

planning

(terrestrial

and

aquatic

components) and consolidating the reference framework for

the SMI in coastal zones (ENGIZC, 2009). Thus, the integration

of

the

concern

of

climate

change

adaptation

in

the

PNSICZM

is

essential

as

a

framework

to

the

SMI

covering

the

MRE.

In

this

scope, this study aims to: (i) evaluate the integration of the

concern of climate change adaptation in an important SMI at

national level, the PNSICZM; and (ii) realize how this

e nv i ro nm e nt a l s c ie n ce & p o li c y 3 3 ( 2 01 3 ) 7 6 –9 6 79


5/21

integration

influences

the

management

of

the

potential

impacts of climate change at local level in the MRE.

2.

Materials

and

methods

2.1.

Study

area

The MRE, and its adjacent coastal zone, forms the NW border

between Portugal and Spain (Iberian Peninsula, Europe) and

has

about

40

km

of

length,

as

far

as

the

influence

of

tides

extends

and

a

maximum

width

of

2

km

near

the

river

mouth

(Alves, 1996). Administratively is covered by three Portuguese

Municipalities, namely: Valença, Vila Nova de Cerveira and

Caminha

(Fig.

1).

The MRE gathers wetland habitats of high ecological

importance

including

estuarine

waters,

mud and

sand

banks,

marshes,

riparian

forests,

reed

beds

and

rushes.

The

great

diversity of these habitats, coupled with the predominantly

Atlantic climate, with some Mediterranean influence, creates

favourable conditions to the occurrence of diverse birdcommunities.

The

high

productivity

of

the

MRE

makes

it

a

refuge place for nursery and feeding of marine fish species,

migratory and freshwater and for other types of species

essential

to

ecosystem

functioning

(ICNB,

2008).

Due

to

its

high

ecological

value

and

relatively

low

human

intervention,

the

MRE

in

the

Portuguese

estuarine

side

it

is

included

in

the

Natura

2000

Network

(ICNB,

2008) as

(Fig.

2):

(i)

Littoral North Site of Community Importance (SCI); (ii) Minho

River Site of Community Importance (SIC); and (iii) Estuary of

the

Minho

and

Coura

Rivers

Special

Protected

Area

(SPA).

However,

the

entire

MRE,

even

the

estuarine

Spanish

side,

is

covered by this same protection statute of Natura 2000

Network, as can be confirmed in the Natura 2000 Viewer(http://natura2000.eea.europa.eu/#). This protection network

seeks

to

maintain

and

protect

habitats

and

biodiversity

from

threats and impacts, including those related with climate

change (Sousa et al., 2005, 2008; ICNB, 2008).

The

landscape

along

the

MRE

margins

is

a

mosaic

composed by dispersed settlements, alternating with areas

of irrigated agriculture and forestry. The highest population

density of the Portuguese Minho River basin it is located at the

MRE because there are good accessibilities for social and

economic activities. The economic activities are mainly

connected

to

the

secondary

and

tertiary

sectors

(e.g.

con-

struction, commerce, manufacturing industry, services, tour-ism), although agriculture and professional fishery have some

expression (INAG, 2001; INE, 2001). These activities and land

uses

are

regulated

by

a

set

of

SMI

(Tables

A.1–A.3

in

Appendix

A),

which

determine

the

eco-socio-economic

development

of

the MRE.

Considering the climate and sea level projections for

Portugal

Continental

by

2100

(IPCC,

2000,

2001;

Santos

and

Miranda, 2006; IPCC, 2007a, 2007b, 2007c) and the character-

istics

and

vulnerability

of

the

Portuguese

coastal

zones

(Santos

and

Miranda,

2006;

Andrade

et

al.,

2007;

Ferreira

et

al.,

2008;

Coelho et al., 2009) as also the estuary specificities (Alves, 1996;

INAG, 2001; INE, 2001; Sousa et al., 2005, 2008; ICNB, 2008), the

MRE can be particularly vulnerable and experience somepotential

eco-socio-economic

impacts

of

climate

change

(Table A.4 in Appendix A) to which the SMI should be prepared.

2.2.

Methodology

The

methodology

used

in

this

work

was

based

on

the

research,

collection

and

analysis

of

official

documents

on

the

Portu-

guese climate change, coastal zones and spatial planning

policies, namely through a detailed analysis of the PNSICZM

(Resolution

of

the

Council

of

Ministers

No.

82/09,

of

8

September

2009)

(ENGIZC,

2009). This

analysis

was

carried

out following two criteria: (a) identification of actions

(indicators/targets) associated with the concern of climatechange adaptation, through actions with a direct reference to

climate

change

and

actions

with

indirect

(implied)

reference

to

climate change; and (b) identification of actions with direct

implications on SMI. This analysis allowed to evaluate the

Fig. 1 – Geographic location of the Minho River Estuary (Portugal NW-Coastal Zone).



6/21

integration

of

the

concern

of

climate

change

adaptation

in

the

PNSICZM

and

also

to

realize

how

this

integration

influences

the

management

of

the

potential

impacts

of

climate

change

in

the MRE.

3.

Results

The PNSICZM establishes a strategic framework to global,integrated and participatory management of the coastal

zones.

It

aims

to

ensure

the

appropriate

articulation

and

coordination of policies and instruments that guarantee the

sustainable development of coastal zones in a long-term

vision (20 years), until 2029. Its implementation intends to

achieve a coastal zone sustainable and harmoniously devel-

oped, supported on knowledge and managed under a

comprehensive

model

that

integrates

policies,

instruments

and

institutions

and

ensures

the

participation

of

different

stakeholders.

In the PNSICZM it is recognized and emphasized the need

to

integrate

climate

change

issue

into

the

coastal

manage-

ment in order to incorporate measures and sector-specificguidelines to climate change adaptation. In this sense, in its

values, principles, strategic options and objectives (Table A.5

in Appendix A) is present, indirectly (in an implied way), the

concern related with the need to prepare for the potential

impacts

of

climate

change.

The

PNSICZM

objectives

are

supported

by

20

measures,

which are based in a set of indicators to verify its realization

and that correspond to the targets that must be achieved.

These

measures

are

of

the

following

four

types:

(i) Regulatory

and

management;

(ii)

Thematic

–

environmental

values,

security,

planning, competitiveness, knowledge; (iii) Monitoring; and (iv)

Participation. They have three priority levels, corresponding to

the time for concretization: (i) Priority 1: short term (mainly in

the

first

three

years);

(ii)

Priority

2:

short

and

medium/long

term

(mainly

between

the

fourth

and

the

seventh

year);

and

(iii)

Priority

3:

medium/long

term

(mainly

between

the

fourth

and

the twenty-ninth year). The leader entity(ies) responsible for

the implementation of each measure and others entities

involved

are

identified

in

the

PNSICZM.

The

entities

involved

in

the

various

measures

should

ensure

the

technical

and

financial resources for its implementation.

We verified that climate change appears clearly framedboth in the thematic objectives as well as in the transversal

objectives,

being

consubstantiated

in

12

out

of

its

20

measures

(i.e. in 60% of the measures) of the PNSICZM. In these

measures were identified actions (indicators/targets) associ-

ated with the concern of climate change adaptation with

direct reference to climate change, indirect (implied) reference

to climate change and direct implications on SMI (Table A.6 in

Appendix

A).

4. Discussion

4.1. Integration of the concern of climate changeadaptation

in

the

Portuguese

National

Strategy

for

ICZM

In the PNSICZM the concern of climate change adaptation it is

integrated and, in this scope, preventive as well as preparatory

measures

are

listed,

especially

through

spatial

planning,

under

a

governance

framework

based

on

institutional

cooperation and co-responsibility. It should be noted that

the major concern, in the climate change context, is the

prevention

and

management

of

natural

risks,

particularly

in

the

most

vulnerable

areas,

such

as

estuaries.

Over

half

of

the

measures are exactly motivated by this concern as mentioned

previously presenting actions (indicators/targets) whose im-

plementation must be based on the PNSICZM models, namely:

Fig.

2

–

Natura

2000

Network

in

the

Minho

River

Estuary

in

Portugal.



7/21

i)

The

Planning

model

based

on

the

articulation

of

socioeco-

nomic and ecological dynamics in resource use and risks

management, by applying – the scientific knowledge into

coastal spatial planning and through the scientific evalua-

tion of the different impacts of climate change on coastal

ecosystems; the ecosystemic approach, prospective and

preventive

in

ICZM;

the

‘‘coastal

good’’

(‘‘bem

litoral’’)

concept through the integration of prevention andprecaution principles into the SMI; the ‘‘buffer zone’’

concept through its integration as a spatial planning

principle

into

the

SMI

associated

to

a

non

aedificandi

status,

being

an

essential

safeguard

mechanism

to

risk

situations

and in the most vulnerable stretches of the coastal zone;

and guidelines that will frame the revision or development

of

other

SMI

in

the

coastal

zone;

ii) The Institutional model based on the articulation of

competencies,

co-responsibility

and

institutional

cooper-

ation,

by

applying

–

the

institutional

co-responsibility

around a national coordinating entity under a new

institutional framework for ICZM; and the implementation

of institutional cooperation at different levels of Gover-nance

(national,

regional

and

local)

and

with

neighbouring

regions, in particular with the Spanish bordering regions;

iii) The Governance model based on strengthening of the

Government

role

in

regulation,

financing

and

manage-

ment

of

the

coastal

zone

and

on

public-private

coopera-

tion,

through

the

convergence

of

interests

around

partnerships

for

coastal

management

by

applying

–

the

co-responsibilization in sharing risks which must be

applied to ensure the involvement and participation of

local

communities

and

other

local

actors

through

the

access

to

information

and

intervention

in

SMI

processes

of

formulation, implementation, evaluation and revision.

4.2.

Implications

for

the

management

of

the

potential

impacts

of

climate

change

in

the

Minho

River

Estuary

The timeframe to apply measures (according to the priority

levels), entities responsible for its implementation and

funding sources are all well defined in the PNSICZM,

supporting the implementation of the models mentioned

previously.

The

implementation

of

the

PNSICZM

will

have

implications

in the management of the potential impacts of climate

change, both through actions to be implemented by the SMI

as

well

as

on

entities

articulation,

cooperation

and

actions.

It

is

mainly based on spatial planning that many decisions, withimpact on territory and society adaptive capacity to climate

change, can be taken, maximizing their effectiveness (ENAAC,

2010). The determinations of spatial planning may affect the

territory vulnerability and resilience and can play an antici-

patory

role

towards

the

adaptation

to

climate

change

(Bulkeley,

2006;

Wilson,

2006). Thus,

adaptation

measures

through spatial planning will be much more efficient

(Schmidt-Thomé, 2006) and effective (Chatterjee et al., 2008)

as

more

decision-makers

consider

them

in

the

decision-

making

processes.

The MRE, due to its biogeophysical and socioeconomic

characteristics, represents an area of complex territorial

management, being covered by several SMI, from different

levels,

reflecting

the

diversity

of

entities

with

competences

in

their management and also the complex institutional articu-

lation. The concern of climate change adaptation and the

PNSICZM set of measures to climate change with direct

implications on SMI should be reflected territorially at the

local level of the MRE through spatial planning. This means

that

the

SMI

covering

the

MRE,

both

in

aquatic

and

terrestrial

components, and the entities responsible with competenceson the implementation of those SMI, must integrate and

consider the PNSICZM guidelines (Table A.7 in Appendix A)

based

on

their

models

mentioned

previously:

i) Under the planning model – it is essential the integration of

the

PNSICZM

guidelines

into

the

SMI

covering

the

MRE.

In

this scope, the Coastal Zone Management Plan Caminha to

Espinho

(POOC-Norte)

(national

level),

the

Regional

Terri-

torial

Management

Plan

of

North

(PROT-Norte)

(regional

level) and the Municipal Spatial Planning Plans of Valença,

Vila Nova de Cerveira and Caminha (local level) should

integrate, as a form of adaptation to climate change, theprevention

and

precaution

principles

and

the

non

aedifi-

candi ‘‘buffer zone’’ principle, taking an ecosystemic,

prospective and preventive approach. Thus, the Coastal

Zone

Management

Plan

Caminha

to

Espinho,

which

is

under

revision,

will

integrate

the

PNSICZM

guidelines

as

mentioned

in

the

diploma

of

2009

which

determined

its

revision

process.

The

Regional

Territorial

Management

Plan of North should include these guidelines in its next

revision, despite it still being under approval is not possible

to

integrate

the

PNSICZM

guidelines

right

now

because

public

consultation

already

occurred

and

their

results

were published. The Municipal Spatial Planning Plans

(including Municipal Master Plan, Urbanization Plan andDetail Plan) of Valença, Vila Nova de Cerveira and Caminha

does

not

integrate

yet

the

PNSICZM

guidelines

because

they are older than the PNSICZM, however these SMI must

harmonize with the SMI of superior level, therefore in its

next revisions will be shaped by both the PNSICZM

guidelines and the Coastal Zone Management Plan

Caminha to Espinho provisions;

ii)

Under

the

institutional

model

–

it

is

expected

a

better

coordination

between

the

different

main

entities

at

different levels, being especially important the articulation

of the following institutions at three levels: (1) National –

General

Direction

for

Spatial

Planning

and

Urban

Devel-

opment, whose competences were integrated into thecurrent General Direction for Territory; Water Institute,

whose competences were integrated into the current

Portuguese Environment Agency; National Maritime Au-

thority; and National Authority by Civil Protection; (2)

Regional

–

Coordination

Commission

and

Regional

Devel-

opment

of

North;

Hydrographical

Region

Administration

of North, whose competences were integrated into the

current Portuguese Environment Agency; Caminha Port

Captaincy;

and

Viana

do

Castelo

District

Command

of

Relief

Operations;

and

(3)

Local

–

Municipalities

of

Valença,

Vila Nova de Cerveira and Caminha. It is also important the

transboundary institutional articulation between the

various municipalities and the harbour authorities from



8/21

Portugal

and

Spain

and

through

the

Interministerial

Commission on the Limits and Luso-Spanish River Basins;

iii) Under the governance model – it is necessary the develop-

ment of public–private partnerships based on the stake-

holders’ involvement and co-responsibilization in sharing

risks. To this purpose can be used an existent action tool,

the

Territorial

Action

Programme

(TAP)

(DGOTDU,

2010),

which is a contractual nature instrument to makecompromises between interests manifested over the

territory and to create more favourable conditions for

desirable

convergence

and

coordination

of

public

and

private

performances

on

urban

and

territorial

develop-

ment.

5.

Conclusions

Coastal

zones,

due

to

their

sensitivity,

are

priority

areas

to

climate change adaptation. In this scope, spatial planning has

a determinant role because allows early action, which is more

cost-effective than responding to changes as they happen orretrospectively.

In the PNSICZM the concern of climate change adaptation

appears, directly and indirectly, reflected in more than 50% of

their

measures

that

should

be

integrated

into

the

SMI

of

the

coastal

zones.

Thus,

the

national

policy

framework

to

integrate

the

adaptation

to

climate

change

in

the

Portuguese

ICZM

through

spatial

planning

is

prepared.

As the PNSICZM is a SMI of strategic nature sets guidelines

to climate change adaptation in the SMI at regional and local

level.

Thus,

the

concern

of

climate

change

adaptation

and

the

set

of

measures

to

climate

change

with

direct

implications

on

the SMI of the PNSICZM have direct implications on the SMI

covering the MRE which must integrate its guidelines in orderto prepare as well as possible the estuary for the potential

impacts

of

climate

change.

For

this

purpose,

it

is

particularly

important, under the measure M11 of the PNSICZM, the

elaboration of the orientation guide for the Municipal Spatial

Planning Plans, which should be made in the first three years

of the Strategy implementation, because this guide will be

helpful

to

support

the

integration

of

adaptation

measures

in

the Municipal Spatial Planning Plans at local level. The entities

with local competences are in a privileged position to identify

the vulnerabilities of their territories and to define adaptation

actions to climate change as well as to integrate climate

change adaptation into the SMI at local level which, due to

their

regulatory

nature

and

because

they

bind

public

and

private entities, are the main SMI to make a proactive andintegrated management, including all sectors, of the potential

impacts of climate change and a cost-effective planned

adaptation.

However,

this

will

be

a

gradual

process

dependent

on

the

SMI

revision

cycles

but

it

is

likely

the

most

directed

way

to put in practice several adaptation measures that will allow

annul or significantly reduce the damage risk and maximize

the

benefits

from

climate

change

(ENAAC,

2010). At

the

same

time, to improve the contribute of spatial planning to climate

change

adaptation

in

the

MRE

will

be

important

a

better

coordination

between

the

different

main

national

institutions

at different levels and also a better articulation and coopera-

tion with the bordering Spanish regions, for example through

the elaboration of transboundary SMI. All these are funda-mental

requirements

to

promote

and

improve

climate

change

adaptation in order to prepare for the potential impacts of

climate change a valuable ecosystem such as the MRE. Thus,

the

PNSICZM

models

provide

an

essential

framework

for

climate

change

adaptation

in

the

MRE

through

spatial

planning.

Acknowledgement

Rute

Pinto

was

supported

by

a

PhD

grant

from

the

Portuguese

Foundation for Science and Technology – FCT (SFRH/BD/

33389/2008).

Appendix

A

See Tables A.1–A.7.



9/21

Table

A.1

–

Main

SMI covering

the

Minho

River

Estuary

at

national

level.

Territorialmanagementsystem (TMS)components

Spatialmanagementinstruments(SMI)

types

Level

National

Policies (Laws),

Strategies,Plans and

Programmes

Territorial

DevelopmentInstruments

(TDI)

Environment Law (1987)

Spatial Planning

Policy

Coastal Zones

Policy

Climate Change

Policy

Others Policies

Spatial Planning

and Urban

Planning

Law (1998)

National Strategy

for Integrated

Coastal Zone

Management

(2009)

National Programme

to Climate Change

(2004, 2006, 2008)

National Plan of Environment

Policy (1995)

Forest Policy Law (1996)

National Road Plan (1998)

National Action Program to

Combat Desertification (1999, 2011)

Hunt Law (1999)

Albufeira Convention (1999, 2008)National Strategy for Nature

Conservation and Biodiversity (2001)

National Plan of Water (2002)

NationalProgramme for the Efficient Use

of Water (2005)

Ownership of Water Resources Law

(2005)

Water Law (2005)

Strategic Plan of the North Region (2006)

Legal Regime

of SMI (1999)

National Plan of Forest Fire Defense

(2006)

National Strategy for Forestry (2006)

National Strategy for Sea (2006)

National Strategic Plan for Fishery (2007)

National Strategy

for Adaptation to

Climate Change

(2010)

Strategic Plan for Solid Waste (2007)

Strategic Plan for Water Supply and

Sewerage (2007)

NationalStrategy Plan for Tourism (2007)

National Strategy for Agro-Livestock and

Agro-Industrial Waste (2007)

National Programme

of the Spatial

Planning Policy (2007)

National Strategy for Sustainable

Development (2007)

National Strategic Plan for Rural

Development (2008)

Inland Fisheries Law (2008)

Polis Programme – Integrated Operations

of Renewal and Valuation of the Littoral

North Coastal Zone (2008)

National Action Plan for Environment

and Health (2008)

National Strategy for Energy (2005, 2010)

National Plan of Maritime Port (under

preparation)

National Strategic Reference Framework

(2007)

Thematic Operational Programme for

the Enhancement Planning (2007)

Regional Operational Programme of the

North (2007)

Others



10/21

Table

A.1

( Continued )


Spatialmanagementinstruments(SMI) types

Level

National

Territorial Planning I

nstruments (TPI)

–

Sectoral Policy

Instruments (ScPI)

Maritime Spatial Planning Plan (2008) (under approval)

Special Nature

Instruments (SNI)

–

Table A.2 – Main SMI covering the Minho River Estuary at regional level.

Territorialmanagementsystem

(TMS)components

Spatial

managementinstruments (SMI) types

Level

Regional

Policies (Laws),

Strategies,Plans and

Programmes

Territorial Development

Instruments (TDI)

Regional Territorial Management Plan of North (2006) (under approval)

Territorial Planning

Instruments (TPI)

–

Sectoral Policy

Instruments (ScPI)

Minho River Basin Plan (2001)

Sectoral Plan of Ecological

Network Natura 2000 (2008)

Estuary of the Minho and Coura Rivers

Special Protected Area (SPA) (1999)

Minho River Site of Community

Importance (SCI) (1997)

Littoral North Site of Community

Importance (SCI) (2000)

Regional Plan for Forestry Planning of Alto Minho (2007)

Hydrographical Regions of North Management Plans – Basins Management

Plan of the Minho-Lima Hydrographical Region (2005, 2009, 2009, 2013)

Floods Risks Management Plans (international or national) (under preparation)

Special Nature

Instruments (SNI)

Coastal Zone Management Plan Caminha to Espinho (1999, 2005, 2007, 2009) (under

revision)

Spatial Planning Plan of the Minho River Estuary (under preparation)

Table

A.3

–

Main

SMI

covering

the

Minho

River

Estuary

at

local

level.


Spatial managementinstruments (SMI) types

Level

Local

Policies (Laws),

Strategies,

Plans and

Programmes

Territorial Development

Instruments (TDI)

–

Territorial Planning

Instruments (TPI)

Municipal Spatial Planning Plans (including Municipal Master Plan, Urbanization

Plan and Detail Plan) of Valença (2010)Municipal Spatial Planning Plans (including Municipal Master Plan, Urbanization

Plan and Detail Plan) of Vila Nova de Cerveira (1995) (under revision)

Municipal Spatial Planning Plans (including Municipal Master Plan, Urbanization

Plan and Detail Plan) of Caminha (1995) (under revision)

National Agricultural Reserve of Valença (2010)

National Agricultural Reserve of Vila Nova de Cerveira (1995) (under revision)

National Agricultural Reserve of Vila Nova de Cerveira (1995) (under revision)

National Ecologic Reserve of Valença (2010)

National Ecologic Reserve of Vila Nova de Cerveira (1995) (under revision)

National Ecologic Reserve of Vila Nova de Cerveira (1995) (under revision)

Rail Public Domain (2003)

Hydric Public Domain (2005, 2005, 2007)

Adjacent Zones: Zones Threatened by Sea and Zones Threatened by Floods

(2005, 2005)

Buffer Zone (2006, 2007, 2009) (under definition)



11/21

Table

A.3

( Continued )


Spatial

managementinstruments (SMI) types

Level

Local

Sectoral Policy

Instruments (ScPI)

Forest Management Plan of the National Forest of Camarido (2009, 2009)

International Regulation for Preventing Collisions at Sea (1972)Regulation of the Hunt in the Waters and Margins of the International Section of

the Minho River (1994, 2012)

Regulation of the Jurisdiction Space of the Caminha Port Captaincy (2002, 2011)

Regulation of the Pleasure Shipping (2004)

Regulation of the Fishing in the Minho River (2008, 2009)

Special Nature

Instruments (SNI)

–

Table

A.4

–

Main

potential

eco-socio-economic

impacts

of

climate

change

in

the

Minho

River

Estuary.

Climate

drivers

Potential

eco-socio-economic

impacts

Air temperature increase of up to 5 8C (by 2100) - Water temperature increase

- Changes in levels of dissolved oxygen and

biochemical processes

- Changes in both direction and power of waves

- Storm surges increase and changes in direction,

strength, frequency, duration and intensity

- Shortening of return period of more intense

storm surges

- Difficulty in drainage at the mouth increasing floods

Precipitation decrease, in general, of up to 50 mm in winter and 50–100 mm in the

other seasons. However, due to increases in the number of intense precipitation

days (above 10 mm/day) can occur an increase of precipitation during

winter (by 2100)

- Salinity incursions/intrusions increase

- Deposition of sediments along coast will probably

be lower than the current deposition

- Acceleration of coastline erosion with increased

coastal erosion- Shoreline retreat

- Changes in weather patterns with the increase

of extreme events frequency and intensity such

as floods and heat waves

- Shortest return period of floods

- Flash flood increase in low lying areas

- Freshwater shortage due to prolonged and more

intense periods of droughts

- Changes in hydrological patterns (rainfall, runoff,

flow, turbidity and aquifers recharge)

- Enlargement of silting (with a significant reduction

of exported materials to the coast and the entry

of larger volumes of sands transported by littoral

drift with possible reduction of coastal

sedimentary traffic)- Increase of loss of intertidal and marsh zones

- Loss or displacement of habitats/ecosystems

(inland migration of beaches and wetlands)

Sea level rise of up to 1 m (by 2100) - Changes in species and communities

distribution, composition and structure

- Invasive species increase

- Loss of land and changes in land uses

- Changes in socioeconomic infrastructures

- Direct loss of economic, ecological, cultural

and livelihood values through the loss of

land, infrastructures and coastal habitats



12/21

Table A.5 – Values, principles, strategic options and objectives of the Portuguese National Strategy for ICZM.Values Identity

Sustainability

Planning

Security

Principles Sustainability and intergenerational solidarity

Cohesion and social equity

Prevention and precaution

Systemic approach

Technical and scientific knowledge

Subsidiarity

Participation

Co-responsibilization

Operationality

Strategic options Planning model Socioeconomic and ecological dynamics articulation in resEcosystemic approach

Institutional model Skills articulation – Co-responsibilization institutional aro

Governance model Public-private cooperation, which focuses on convergenc

coastal zone management including a figure of users asso

Objectives Thematic Conserve and enhance the resources and the natural her

Anticipate, prevent and manage situations of risk and imp

origin

Promote the sustainable development of economic activit

specific resources from coastal zone

Improve the scientific knowledge on systems, ecosystems

Transversal Develop the international cooperation

Strengthen and promote the institutional articulation and

Develop mechanisms and monitoring and observation ne

Promote information and public participation


13/21

Table A.6 – Measures including actions associated with the concern of climate change adaptation of the Portuguese National Strat

Measure Measuretype

Referenceto climate

change

Directimplications

on SMI

Actions (indicators/targets) associatedwith the concern for climate

change adaptation

Priority level Le

M01 Strengthen and

promote a specific

normative

framework for

coastal zonemanagement

Regulatory and

Management

Direct Yes - Institution of the governance model

- Application of the ‘‘coastal good’’ concept and

integration of prevention and precaution

principles into the SMI namely in: Regional

Spatial Planning Plans, Municipal SpatialPlanning Plans and Special Spatial Planning

Plans

- Development of a Sectoral Plan for the Coastal

Zone which will identify options and guidelines

that will frame the elaboration or revision of

the SMI in the coastal zone, considering climate

change and its impacts

- Priority 1 –

short term – first

2 years of the

strategy

implementation

- W

Po

En

M02 Stimulate and

effecting the

coastal zone

management

mechanisms

Regulatory and

Management

Indirect Yes - Introduction of co-responsibility and sharing

risks principles – Hydric domain regulation

through Hydric Public Domain Associations

- Priority 1 –

short term - first

3–5 years of the

Strategy

implementation

- W

Po

En

- H

Re

Ad

Po

En

M05 Ensure the

implementation of

the intervention

priority program of

coastal zone

recovery

Thematic:

Environmental

values

Indirect Yes - Creation of the necessary mechanisms for

monitoring, evaluation and reprogramming of

the Coastal Zone Spatial Planning Plans, taking

into account the need of these plans integrate

new interventions corresponding to risk

situations for people and goods

- Realization of new interventions in risk

situations and in areas to value that require an

complex institutional articulation or that

integrate broader areas of the coastal zone (e.g.

‘‘ buffer zone’’ spaces, estuaries and lagoons)

Priority 2 – short/

medium/long

term depending

on the action

- W

Po

En

- N

Co

Bi


14/21


15/21


16/21

M20 Develop a

information and

awareness

program on co astal

zone

Participation Indirect Yes - Promote information campaigns about the

potentialities, vulnerabilities and coastal zone

evolution

- Priority 1 –

short/medium/

long term

depending on the

action

-

P

E

-

R

A

P

E

-

C

B


17/21

Table

A.7

–

Measures

including

actions

with

direct

implications

on

SMI and

on

SMI

of

the

Minho

River

Estuary

and

onmain entities with competences on its SMI.

Measure

Measuretype

Implications

on

SMI

Implications

on

SMI

and

mainentities with competences on the SMI

of

the

Minho

River

Estuary

M01 Strengthen and

promote a specific

normative framework for

coastal zone

management

Regulatory and

Management

- Introduction the concept of the

coastal zone as a ‘‘coastal good’’

through defining a ‘‘buffer zone’’and integrating the prevention

and precaution principles into

the SMI

- Introduction of the Sectoral Plan

for the Coastal Zone guidelines into

the SMI

- Regional Territorial Management Plan of

North

- Coastal Zone Management PlanCaminha to Espinho

- Municipal Spatial Planning Plans

(including Municipal Master Plan,

Urbanization Plan and Detail Plan) of

Valença, Vila Nova de Cerveira and

Caminha

- Coordination Commission and Regional

Development of North

- Hydrographical Region Administration

of North/Portuguese Environment Agency

- Caminha Port Captaincy

- Municipalities of Valença, Vila Nova de

Cerveira and Caminha

M02 Stimulate andeffecting the

coastal zone

management

mechanisms

Regulatory andManagement

- Introduction of the co-responsibility and sharing risks

principles in Hydric Public

Domain

- Hydric Public Domain




M05 Ensure the

implementation of

the intervention

priority program of

coastal zone

recovery

Thematic:

Environmental

values

-Revision of the Coastal Zone

Spatial Planning Plans

- Coastal Zone Management Plan

Caminha to Espinho

- Hydrographical Region Administrationof North/Portuguese Environment Agency

M07 Identify and

characterize the

risk and vulnerable

areas and typify

safeguard

mechanism

Thematic:

Security

- Integration of the concept of

coastal zone as a ‘‘buffer zone’’

with a non aedificandi status into

the SMI


North - Coastal Zone Management Plan

Caminha to Espinho - Municipal Spatial

Planning Plans (including Municipal

Master Plan, Urbanization Plan and

Detail Plan) of Valença, Vila Nova de









M08 (Re)assess the need

of ‘‘hard’’ coastal

defence through

the application of

multi-criteria

models

Thematic:

Security

- Integration of the results from

multi-criteria analysis of the

coastal defences constructions

into the SMI

- Coastal Zone Management Plan

Caminha to Espinho





Caminha








18/21

Table

A.7

( Continued )

Measure

Measuretype

Implications

on

SMI

Implications

on

SMI

and

mainentities with competences on the SMI

of the Minho River Estuary

M09 Incorporate in

contingency plans

the specific risks of

coastal zone

Thematic:

Security

- Integration the specific risks of

the coastal zone in contingency

plans (Risk Management Plans,

Emergency Plans and EmergencyResponse Plans)

- Floods District Special Plan of Viana do

Castelo

- Civil Protection Municipal Emergency

Plan of Valença, Vila Nova de Cerveiraand Caminha

- Civil Protection District Emergency Plan

of Viana do Castelo

- Viana do Castelo District Command of

Relief Operations


of North/PortugueseEnvironment Agency




M10 Undertake the

inventory of the

Hydric Domain and

assess the legality

of the Maritime

Public Domain

occupations

Thematic:

Planning

- Identification of the illegal uses

and occupations in the Maritime

Public Domain

- Hydric Public Domain




of North/Portuguese Environment

Agency


- Littoral North Polis Society



- Private Entities

M11 Integrate into the

spatialmanagement

instruments

framework the

ICZM issue

Thematic:

Planning

- Introduction of the ICZM and

‘‘buffer zone’’ into the SMI- Introduction of the guidelines

from Sectoral Plan for the Coastal

Zone into the SMI

- Introduction of the guidelines

from Regional Spatial Planning

Plans into Municipal Spatial

Planning Plans


North- Coastal Zone Management Plan

Caminha to Espinho





Caminha





Agency




M15 Creating a

knowledge

platform of R&D

for the coastal zone

Thematic:

Knowledge

- Introduction of the scientific

knowledge in the coastal spatial

planning through their inclusion

into the SMI by providing

scientific information





Agency - Caminha Port Captaincy



M16 Ensuring adequate

technical training

to the requirements

of ICZM

Thematic:

Knowledge

- Introduction of the scientific

knowledge in the coastal spatial

planning through training on

coastal zone issues the municipal

technicians, decision-makers on

spatial planning and general

population










19/21

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