This page provides a summary on the following items:

1. The coastal zone
1.1 Description of the coastal zone
1.2 Definition of the coastal zone
1.3 Setback lines policy
2. Coastal Management
2.1 Authority
2.2 Policy
2.3 Legislation
3. Spatial Planning in the Coastal Zone
4. Coastal and Marine Environmental Policy
4.1 Policy
4.2 Legislation
4.3 Programmes
4.4 Environmental co-operation
5. Coastal and Marine Nature Conservation Policy
5.1 Policy
5.2 Legislation
5.3 Programmes
6. Economic Developments, Important Sectors and Trends
6.1 Recreation and tourism
6.2 Coastal defence
7. The Current State of Integrated Coastal Zone Management
7.1 Legal framework
7.2 Completed projects
7.3 Ongoing projects
7.4 Evaluation
8. NGOs and Other Private Stakeholders
9. References

1. The coastal zone

1.1 Description of the coastal zone
The coast of Finland is bounded by the northern gulfs of the Baltic Sea: the Gulf of Finland and the Gulf of Bothnia in north-south direction. The total length of the Finnish coast is 46,062 km which includes all islands and archipelagos. The Finnish shore areas have considerable value and the coast differs significantly from other coasts of the Baltic Sea e.g. the Gulf of Finland contains an archipelago comprised of thousands of islands and small, rocky islets. The principal archipelagos are the Åland Islands and the archipelago of Turku and are unique within the Baltic. Finland’s shores also show substantial geological variation and are rich in biological diversity and productivity.

Rocky shores make up almost 42% of the total. The islands of the outer archipelago of the Gulf of Finland and south western Finland have almost entirely rocky shores while farther to the north rocky shores occur only sporadically. Till shores are as extensive as rocky shores and are mostly found on the coast of the Gulf of Bothnia. The largest continuous area of till shore is at the archipelago of the Quark. Gravel and sand shores occur on the southern and south western coasts. Silt, clay and marsh shores, which account for more than 10% of all shores on the Finnish coast, are most typical of the inner parts of the coastal zone. About one third of the shore zone has been developed.

1.2 Definition of the coastal zone
Finland has no formal national definition of the coastal zone. The width of the coastal zone is determined case by case, usually at municipality level. According to the guidelines of the Ministry of the Environment, it should be in general around 100 m landward from the mean water line but the width can vary between 50 and 200 m.

1.3 Setback lines policy
There is no definitive setback line policy in Finnish law. Guidelines issued by the Ministry of Environment stipulate that development should be controlled by a planning requirement on a 100 m strip along the coastline, which can be increased to 200 m. The local Master Plan determines how near to the shore development can take place. This can include building closer than 100m to the sea.

2. Coastal Management

2.1 Authority
In Finland, there is no single authority for coastal zone management and planning. The Ministry of Environment is responsible for national environmental policy and issues related to marine environment protection in general. The Finnish Maritime Administration, which belongs to the administration of the Ministry of Transport and Communications, is the responsible body for matters related to shipping and the Finnish Environment Institute is responsible for combating oil and chemical spills. Furthermore, the Ministry of Agriculture and Forestry is responsible for all water resources. The Advisory Board undertakes co-ordination for the Marine Environment which works in connection with the Ministry of the Environment to find common understanding in marine environment matters. Planning control is decentralised and in most cases undertaken at municipality level following the tradition of local autonomy. There are approximately 100 coastal municipalities.

2.2 Policy
The Ministry of the Environment prepares non-binding national strategies such as the Finland 2017 Vision of the Spatial Structure, the Land Use and the National Environment Policy Programme 2005 and special programmes of forests, shoreline management, national parks, nature reserves, cultural heritage etc.

In Finland, there is a traditional privilege not based on legislation, which guarantees the common right of access to nature to the public, the so-called Everyman’s Right. The concept of Everyman's Right gives everyone the basic right to roam freely in the countryside, without needing to obtain permission, no matter who owns or occupies the land. It includes the right to go on undeveloped shores by the sea and to use water areas for bathing, boating and fishing. Fishing rights, however, are limited. Everyone is obliged not to harm the environment or disturb other people's privacy

2.3 Legislation
In Finland, there is no overall national legislation specifically for coastal zone planning. On the national level, the Land Use Department of the Ministry of the Environment is responsible for the legislation and guidelines for an integrated approach to spatial planning and the management of land resources as well as environmental protection. Therefore, the ministry has an important role in the national co-ordination and guidance of land use planning.

A new Land Use and Building Act came into force on 1 January 2000. The main aims of the new act are to create a sustainable basis for the development of communities, to improve public participation in area development, to delegate decision-making to local authorities and to improve building quality. Planning and building in coastal areas follows the guidelines laid down in 1997 legislation.

In 1997, the new Nature Conservation Act came into force. The aim of this act is to protect endangered plants and animals and some valuable habitat types. The shore is not considered a protected environment in Finland so the law does not prevent building in the shore zone. The overall guidance of land use and the siting of various activities take place locally by means of master plans. The introduction of a provision into the Building Act states that building in the shore zone requires a land use plan drawn up by a local authority. This was meant to ensure sustainable use of the shore areas. For this reason the main instruments used for land use planning of shorelines are the “shoreline master plans”.

3. Spatial Planning in the Coastal Zone

The extent of the Finnish coastal zone and the abundance of islands means that Finland has an exceptionally long shoreline. The feature that has brought about most changes in the coastal landscape of Finland is the rapid increase in the number of holiday houses. As a result of the attraction of the sea these houses tended to be built as close as possible to the shoreline. However, they have sprung up along the coast without any real land use planning. The shores that are most ideal in terms of their landscape and natural environment have now been occupied. The authorities and available instruments for spatial planning are shown in Table 1.

Table 1. The responsible authorities and available instruments for spatial planning.

4. Coastal and Marine Environmental Policy

4.1 Policy
Finland has been a member of HELCOM since the signing of the first convention in 1974, since when a great deal has been accomplished. A great effort has been made for the conservation of natural sites. In 1994, HELCOM adopted a recommendation on the protection of the coastal zone. It requires the states, outside urbanised areas and existing settlements, to establish a generally protected coastal strip extending 100-300 m from the coastline both landwards and seawards. HELCOM has also adopted a recommendation aiming at establishing a network of protected coastal and marine areas and another at preserving natural coastal dynamics. Close monitoring and researching have also been taking place to test water quality and observe the health of the marine flora and fauna.

4.2 Legislation
In 1961, the Water Act was passed in Finland and it has been revised several times since. According to this Act, permission is required to build constructions or to discharge wastewater which may cause a decrease in natural resources or damage to the natural landscape, have harmful effects on fish or change water biology. Applications for permits are processed individually and permits are granted on terms laid down separately case by case. The permit authorities are the regional Environmental Permit Offices whose decisions can be appealed to Administrative Courts and, in certain circumstances, the local environmental authorities. During the past few years, Finland has harmonised its legislation on water protection in accordance with that of the EU.

4.3 Programmes
Eutrophication is the most urgent problem in the protection of Finnish waters. In marine areas, eutrophication is worst in the Gulf of Finland. The high incidences of blue green algae in the Baltic Sea in the summer of 1997 were an indication that the waters are slowly becoming more eutrophic. In March 1998, the Finnish government decided upon a Decision-in-Principle on goals of the Water Protection Programme to 2005. The main goals of the programme are reduction and prevention of eutrophication which are fundamental in the planning and supervision of water protection and the related decision-making. The general goal of water protection is to prevent further deterioration in the state of the Baltic Sea and inland waters caused by human activities and to improve the condition of those watercourses that have already been contaminated.

4.4 Environmental co-operation
In the environmental sector there are many multilateral conventions, agreements and programmes, which, in addition to the impact on each country’s internal policies, impact on the forms, priorities and trends of co-operation with neighbouring countries. Co-operation in the environmental sector has been a priority, ever since the beginning of neighbouring area co-operation of the Ministry. The main focus of projects has been on the air and water protection as well as waste management. Other key priorities include promotion of nature conservation, preservation of biological diversity and the sustainable use of natural resources.

The co-operation in the environmental sector is based on bilateral agreements and protocols that have been concluded between Finland and the Russian Federation, Estonia, Latvia, Lithuania and Poland, as well as on the Council of State Decision on making grants to promote action to protect the environment in neighbouring areas.

The strategic objectives of the Ministry of the Environment in neighbouring areas are expressed as follows:

During the 1990’s the pollutant loads entering the Baltic Sea have been reduced. The main reason has been the reduction of economic activity in Russia and other neighbouring countries. The construction -and reconstruction- of a large number of municipal wastewater treatment plants has also had a significant positive impact on the Baltic Sea. The biggest point source reduction in the catchment area of the Gulf of Finland was achieved by the installation of the biological treatment plant in Tallinn; a project in which Finland’s environmental co-operation played an important role.

According to the Ministry of the Environment, enrichment of nutrients (eutrophication) still remains the major problem in the Baltic Sea calling for additional abatement measures to be taken in many locations. As the state of the Gulf of Finland is still unsatisfactory and St. Petersburg and the surrounding region is responsible for most of the loading, environmental co-operation resources should to a large extent be directed at St. Petersburg in the near future.

5. Coastal and Marine Nature Conservation Policy

5.1 Policy
In August 1998, the Finnish government proposed to the EU Commission the inclusion of a total of 1,458 sites into the Natura 2000 Network. The total area of these sites is approximately 12 per cent of Finland’s area cover. The areas proposed for Natura 2000 mainly consist of existing conservation areas, wilderness areas and sites covered by protection programmes.

5.2 Legislation
The aim of the new Nature Conservation Act (1996) is to preserve the diversity of nature in Finland. The Act considerably extends the range of measures available for nature conservation. Sensitive areas can now be protected temporarily as well as being designated as permanent nature reserves. Other options include specific management and protection agreements for certain areas, legislation to help preserve certain protected species and areas of their habitat, habitat protection as such, and the designation of areas of valuable landscapes for protection. There are currently about ten conservation programmes still being implemented in Finland such as schemes to protect herb-rich woodlands, wetlands rich in bird life and old-growth forests. The Act also introduces new tools for the protection of valuable landscapes even in areas where human activity is minimal.

The new Act (1996) was drawn up to meet the latest conservation needs and Finland’s obligations under the EU Bird and Habitats Directives. The Nature Conservation Decree (1997) lists protected species, threatened species, species needing special protection and species which need strict protection according to the EU Habitats Directive.

5.3 Programmes
In 1990, a Shore Protection Programme was established with the aim of creating a network of protected areas. The areas included are to be maintained in a natural state without exploitation in the form of construction, building of summerhouses etc. Public access in accordance with the principle of Everymans Right will normally be allowed. These areas are intended to be either purchased by the state, required by the state in exchange or protected by agreement with the owner. Landowners are to be compensated. About 2,6 % of the coastline will be protected through this programme.

6. Economic Developments, Important Sectors and Trends

6.1 Recreation and tourism
The Ministry of Trade and Industry is responsible for co-ordination and implementation of tourism policies in Finland and for international co-operation. Under the Ministry of Trade and Industry the Finnish Tourist Board has been established. The Board is responsible for the general promotion of tourism in, and to, Finland and also of the domestic tourist industry. In spring 1996, the Ministry published the "Tourism Strategy of Finland to the Year 2000". According to the strategy the aim of Finnish tourism policy is to develop the tourism industry and its effects on employment at the same time protecting the important values of nature and the environment.

1999 was a successful year for tourism in Finland. In spite of an air controllers' strike during the ski season and a sharp drop in the number of Russian tourists, the industry recorded a 2% growth. If the 28% fall in Russian tourists is excluded, foreign tourism increased by about 7%. The number of German tourists turned upward after a lengthy decline.

6.2 Coastal defence
Because of the absence of any significant tide, a relative sea level decline and moderate wave climate, coastal defence is not an issue in Finland.

7. The Current State of Integrated Coastal Zone Management

7.1 Legal framework
The Ministry of the Environment, Land Use Department, is the responsible body for integrated coastal zone management and sustainable development. The Advisory Board undertakes co-ordination for the Marine Environment which works in connection with the Ministry of the Environment to find common understanding in marine environment matters. The Council of State nominates members of the Board for a period of three years. The Board gives advice to the authorities in matters related to marine environment, mostly in the context of international co-operation. The Board has members from some Ministries, Central Associations for different sectors and nature protection organisations of relevance to marine protection matters. In the past it had stronger influence in decision-making but nowadays its role is mostly informative.

7.2 Completed projects
Coastal Planning on the Gulf of Finland
The project, one of the EU Demonstration Programmes on ICZM, comprised several municipalities, regional councils, and also the Uusimaa and Southeast Finland Regional Environment Centres drawing up master plans for their coastal zones. The master plans were to follow the new Nature Conservation Act, the new Forest Act and the new rules about planning and building in coastal areas in the Building Act and in the Water Act. At this moment, the master plans have already been approved in each municipality and the administrative processes (final ratification and/or appeals) are ongoing. During the implementation, several goals were achieved: the municipalities succeeded in encouraging the participation of the inhabitants and landowners in the planning; solutions were found for some difficult conflicts and progress in integrating environmental impact assessment was made. Co-operation between municipalities helped them find new solutions to the problems and support each other in the ICZM process. The project team also co-operated with the main regional authorities and with other interest groups (e.g. local schools). Problems of sustainable development in coastal zones were discussed with some European countries. The co-operation with planning bodies in Sweden and Estonia was not as useful as expected because of the differences in their legal systems and their different problems.

7.3 Ongoing projects
3+3 Local Agenda
This project is part of a wider co-operation between three regions in Finland and three regions in Estonia. The participating Finnish counties are Itä-Uusimaa, Kymenlaakso and Päijät-Häme. The 3+3 Local Agenda project supports regional development in the Eastern Gulf of Finland and maintenance and protection of environment according to the principles of sustainable development. It provides tools for developing the local and regional level co-operation, extension of knowledge and know-how, and exchange of information and experiences between the partner regions. The aim of the project is to initiate a long-lasting practical level co-operation, to create a network that would be viable and self-sustainable after conclusion of the project. The project creates possibilities for exchanging experiences and know-how in land use planning and management, and for adjusting the regional plans into a larger geographical context. Common themes are also to be found in developing the archipelago and coastal areas.

DALO-project incorporating “Tourism and Environment”
The DALO-project is an ecologically acceptable method and demonstration for controlled, progressive use of the shore zone. The aim is to present decision-makers with proposals for concrete measures for planning and investment and other efforts that will contribute to positive development in the Bothnian Arc region. The project is to create long-term networks for regional co-operation, encourage vital agreements for development and new project ideas. It represents a totally new planning method. The project also includes development of ecologically acceptable methods for controlled and progressive use of shore zones.

The aim of the sub-project “Tourism and Environment” is to investigate conditions for sustainable development of the region’s tourism industry by making the best possible use of natural and cultural environments like destinations for tourism and to market the region as a whole. The objective is to create vital, long-term co-operation between the tourism sector and environmental protection authorities.

Kaspnet
The project is focused on co-operation in a wide area in Northern Europe, called Karelia-Atlantic Spatial Development Network (KASPNET). The project will establish and support a long lasting networking on spatial planning in this Development Zone, engaging a very large number of partners which to some extent already are co-operating in the region. One of the participants in Finland is Ostrobothnia. Subjects that are being covered are, for example, analysis of the conditions and development potential in the area, thematic studies, and development of a spatial planning strategy for the area. One of the priority areas is environmental dimensions, tourism and coastal zones. By treating the coastal and island areas in Norway, Sweden, Finland and the Republic of Karelia in parallel studies, there are chances to achieve a common knowledge based on both the differences and the similarities.

Archibal
The aim of the project is to develop methods and tools for nature conservation authorities to assess, steer and participate in developing the increasing tourism in Baltic archipelagos. The project calls for more consultative and detailed methods for co-operation between authorities, local society and the tourist business. Indicators for sustainable tourism will be developed.

BEST project
This is focused on Sustainable Tourism Development from the seven larger islands' (B7) Bornholm - Denmark, Gotland - Sweden, Hiiumaa - Estonia, Saaremaa - Estonia, Rügen - Germany, Åland - Finland and Öland - Sweden. The approach is clearly cross-sectoral and related to the core of the measure “integrated management of coastal zone and island”. The B7 islands have been co-operating since 1998 and this project is determined as a key element in their common strategy and the action programme. It is related to the Baltic 21 action programme. The project enhances knowledge and exchange of experiences between the islands, trying to create a common long lasting network for co-operation on sustainable tourism development with links to tourism organisations, NGOs and research institutions.

SUSWAT
The focus of the SUSWAT project is on the water supply in relation to environmental protection and sustainability. It enhances knowledge exchange between the B7 about planning and management of the water supply. The aim is to start up demonstration of new solutions related to management and planning of sustainable water supply. There is a clear linkage to the BEST project. The project is considered as a key element in the B7 common strategy and action programme of the BEST project.

7.4 Evaluation
According to the delegates of Finland at the PROCOAST seminar, in south east Finland, despite development of 46% of the coastline – the highest in the country - the natural state of the coast is still good. However, diffuse pollution supply, especially nutrient supply by agriculture, fish farms and sewage plants, is increasing. The industrial pressure on the environment is remarkable although industrial plants have improved their wastewater treatment remarkably. Moreover, the delegates stated that the authorities pay attention to the environment but the realisation of activities to improve the environmental state often suffers from low budgets and a lack of sectoral integration. The planning instruments in Finland are considered to be sufficient but there is, at least partly, an increasing lack of personnel.

8. NGOs and Other Private Stakeholders

Birdlife Finland
An organisation of 28 Finnish bird societies. It aims to promote bird watching, bird research and protection of birds, their habitats and biological diversity. Birdlife Finland had not taken part in ICZM projects.

Bothnian Arc
Focuses on regional development issues.

Coalition Clean Baltic (CCB)
The first environmental NGO-network established in the Baltic Sea Region, established in 1990. Today it has 25 member organisations in all 9 countries bordering the Baltic Sea. The main goal of CCB is the protection and improvement of the Baltic Sea environment and natural resources. It is gathering, producing and distributing information about environmental problems in the Baltic Sea Area.

The Finnish Association for Nature Conservation
Aims at the conservation of flora, fauna and natural areas and they are involved in ecological planning for cities and the countryside.

The Finnish Society for Nature and Environment
A national organisation which produces campaigns on air and water pollution, environmental education, island and wetland ecosystems, protected areas and national parks, energy and sustainable development.

The Nature League
A youth organisation concerned with environmental protection.

WorldWide Fund for Nature (WWF) Finland
A national affiliate organisation of WWF. It is concerned with the organisation of conservation projects with government and municipal authorities, universities, research bodies and other conservation organisations.

9. References

BothnianArc Internet: http://www.bothnianarc.net

Granö O, Roto M & Laurila L (1999) Environment and land use in the shore zone of the Coast of Finland. Publ. University of Turku.

Finnish Ministry of the Environment. Internet: http://www.vyh.fi

Finnish Ministry of the Environment, “The built environment in Finland. Land Use, Housing and Building”. Internet: http://www.vyh.fi

Finnish Ministry of Foreign Affairs, Evaluation of the environmental co-operation between Finland and North-West Russia, Estonia, Latvia, Lithuania and Poland. Internet: http://www.vyh.fi

Karelian Atlantic Spatial Development Network. Internet: http://www.y.lst.se/kaspnet/

Maaninen, A, 2000. DALO project presentation for the BA web pages. Internet: http://www.bothnianarc.net/

Nyström, R. Co-operation of actors-Integration of planning and actions. The case of the Gulf of Finland, one of the EU Demonstration Programmes on Integrated Coastal Zone Management-projects. Uusimaa Regional Environment Center, Helsinki, Finland.

PROCOAST, proceedings of the interregional Seminar on the Harmonisation of Uses and Interests in the Baltic Sea Coastal Zones. Eckernförde, Germany, September 2000.

Regional Council of Itä-Uusimaa. Internet: http://www.ita-uusimaa.fi/3plus3/esiten.htm

© Copyright: EUCC, 2002