COASTAL MANAGEMENT IN RUSSIA
EUCC has compiled country files on Integrated Coastal
Management (ICM) for all coastal states of Europe and
Central Asia. Summaries for all countries will become
available in August.
This page provides a preliminary summary on the following
items for Russia:
- Spatial planning
- Environment
- Nature Conservation
- Sectoral Development
- Framework for Development of ICZM
- National Achievements in the Field of ICZM
- Problems and Constraints for the Development of ICZM
1. Spatial
Planning
1.1 Legislation and Regulations
- Rules of the Protection of the Coastal Areas (1984) determine the marine zone of 2 km off the upper observed water level, in which activities that may have a negative impact on the marine water quality and coastal communities are restricted. [28]
- Law on Specially Protected Natural Areas (1995) forbids almost all economic activities in the 100-m offshore zone.
- Land-use Code (1996)
- Sanitary Rules and Norms in the Protection of the Coastal Marine Areas from Pollution in the Area of Water Use by Population state that the border of the land areas adjacent to the protected marine areas is determined as protected area of 2 km inland from the upper observed water level.
1.2 Administrative Competencies
The Russian Federation State Committee for Land Policy (Goscomzem of Russia) provides an inter-industrial co-ordination of the activity in the field of land relations and functional regulation in this sphere as well, including maintenance of state land cadastre, cadastral land valuation, land management and state inspection on land protection and land use. No further information received. [29]
1.3 Coastal Policy
The Russian Strategy of Coastal Zone Exploitation
still has to be adopted. No further information
received.
2. Environment
2.1 Legislation and Regulations
- Environmental Protection Act (1992)
- Water Code (1995)
- Law on State Environment Expert Commission (1995)
- Law on Ecological Impact Assessment
- Sanitary Rules and Norms in the Protection of the Coastal Marine Areas from Pollution in the Area of Water Use by Population
- Presidential Decree On the Concept of the Transition of the RF Towards Sustainable Development (1996)
2.2 Administrative Competencies [30]
Ministry of Environmental Protection and Natural Resources (MEPNR) is responsible for implementation of environmental policy. The Department of Natural Resource Use and Environmental Protection of the Central Administration of the Russian Federation co-ordinates decision-making of other executive federal bodies. [31] The Ministry of Melioration and Water Management, Ministry of Health and the Ministry of Fisheries approve rules determined to protect surface waters from pollution. Also involved in the work on environmental bills is the Committee on Ecology and the Committee on Natural Resources and Nature Use work. Territorial branches of the MEPNR have been created in the oblasts, krays and local administrations, which are allowed to determine guidelines for local environmental protection and to elaborate environmental programmes in their area.
2.3 Environmental Policy
The environmental policy aims at using ICZM as major tool
for sustainable development in the coastal zone, developing
and approving legal instruments specific for coastal zones
and ICZM as well as gradually improving and adapting the
present institutional arrangement in coastal zones, securing
horizontal and vertical integration of planning, the
decision making process and management and giving a certain
priority when defining the national policy of international
co-operation. [32] In 1994,
the Basic Guidelines on the State Strategy of
Environmental Activities were approved at the highest
level. In the Conceptof Transition of the Russian
Federation to Sustainable Development (1996)
organisation of ICZM among the priority fields of
international co-operation in order to address interstate
regional problems of the Caspian Sea area. Russiaís
National Action Plan on the Environment mentions the
Volga-Northern Caspian Region in particular, as an area in
urgent need of environmental rehabilitation measures.
Furthermore, the Plan envisaged the Federal Target
Programme for 1996 - 2000 to solve environmental,
economic and social problems stemming from the rising level
of the Caspian Sea (the ëCaspianí
Programme).
3. Nature
Conservation
3.1 Legislation and Regulations
- Rules of the Protection of the Coastal Areas (1984)
- Rules of Protection and Harvest of the Marine Mammals (1986)
- Law on the Protection of the Environment (1991)
- Act on State Management Institutions Commissioned on the Protection of Natural Environment (1992)
- Environment Protection Act (1992)
- Law on Specially Protected Natural Areas (1995) forbids almost any kinds of economic activities in the 100-m offshore zone.
- Law On the Wildlife (1995)
- Law on Fauna (1995)
- Law on Flora (1995)
- Water Code (1995)
- Law on the Continental Shelf of RF (1996)
- Land-use Code (1996)
- Forest Code (1996)
- Various resolutions such as the Resolution On Approval of the Regulation of the Protecting Water Areas in the Water Bodies and their Protecting Near-shore Zones (1996) (development of the Water Code), Resolution On the Red Book of the Russian Federation (1996), Resolution On Approval of the Regulation of the Implementation of the State Control Over the Management and Protection of the Water Bodies (1997) and the Resolution On the Implementation of the Decree of the President of the RF from 29.08.97 On the Measures on the Ensuring of the Protection of the Marine Biological Resources and the State control in this Sphere (1998).
3.2 Administrative Competencies
The Ministry of Environmental Protection and Natural Resources (MEPNR) with e.g. its Directorate for Protection of Biological Resources and Department for Management of Wilderness Areas is responsible for nature protection. The Department of Natural Resource Use and Environmental Protection of the Central Administration of the Russian Federation co-ordinates decision-making of other executive federal bodies on nature protection. [33] Regional government authorities can make their own decisions with regard to the establishment of regional protected areas, or make a request to the Federal Government to establish state nature reserves - Zapovedniks and Zakazniks - or National Parks. At present the federal government has the authority to reduce or eliminate a protected area with regional status for the construction of federal roads, pipelines, harbours or military bases. Zapovedniks and Zakazniks are administrated by the State Committee for Environmental Protection of RF (Goskomekologiya). The Federal Department of Protected Areas of the Committee supervises the administration of each Zapovednik and its Director. It is very common for federal Zakazniks to be placed under the Regional Committee for Environmental Protection. The administration and staff of National Parks work under the control of the National Board of the Federal Forest Service. Nature Parks are governed by regional authorities and usually administrated by the Regional Board for Environmental Protection, a corresponding body or by the Regional Board of Tourism. [34]
3.3 System of Protected Areas
Protected areas can have the status of Federal Protected
Areas or Regional Protected Areas. Categories used for
designation of protected areas are Zapovedniks, national
parks, Zakazniks, nature parks and nature monuments.
Zapovedniks are strictly protected areas where nature
protection is the dominant form of land use. National
parks are designated for both recreation and nature
protection, tourism is allowed. Zakazniks are
state-owned areas where partial limitations on land use are
introduced to preserve natural ecosystems. Nature
Parks are intended for use in environmental,
recreational, educational, scientific and cultural
activities. Nature monuments are designated to
protect objects of special interest. The Red Data Book gives
fixed nature protection status to each species. Among the
most vulnerable areas on the Caspian Russian coast are
wetlands in the lower Volga delta. Parts of Astrakhan State
Biosphere Reserve and State Reserve are located on the
Russian coast. Since 1975, part of the Caspian Sea water
body north to the mouth of the Sulak River has the status of
reserve area. The Samur State Nature Park has also been
established.
4. Sectoral
Development
4.1 Coastal Defence
In 1993-1995 activities were started under the project "Complex of Urgent Measures for the Prevention of Flooding of Towns, Human Settlements, Productive and Non-productive Facilities, Agricultural Lands and other Valuable Lands in the Coastal Zone of the Caspian Sea" to minimise damage caused by the Caspian level rise. Actual allocations were low, and the project was not fully implemented. In spite of this, in the Republic of Kalmykia dykes totalling 25 km have been constructed, work has started on protective structures totalling 36 km in the Republic of Daghestan, (only 20 to 60 % were completed) and in the Astrakhan Oblast construction of bank-stabilisation structures and flood control dykes totalling 7.3 km is under way. [35] In 1996 the Plan of Priority Measures on Protection of Population and Prevention of Flooding of Economic and other Facilities in the Caspian Coastal Zone in 1996-1997 was approved. However, a shortage of funding led to the suspension of the construction of a number of facilities. The draft Federal Target Programme on Addressing Social, Economic and Environmental Problems caused by the Caspian Sea Level (the ëCaspianí Programme) also aims at protection of damage from the Caspian Sea rise. Recent relative stabilisation of the Caspian Sea level has resulted in considerable adjustment of priorities in the activities and the amounts of funding.
4.2 Recreation and Tourism
In terms of recreation the Russian coast of the Caspian is developed unevenly. The main recreational loads are characteristic of the Daghestan coast. Deterioration of the Caspian water quality has impact on the state of coastal tourist bases, resorts and sanatoria, as well as their prospects.
4.3 Fisheries and Aquaculture
The Caspian basin has extremely large importance with regard to fishery. It is connected with commercial catch of sturgeons, salmon and small fishes, herring and sprat. On a state level, main responsibility concerning agriculture lies with the Ministry of Fisheries and the State Fisheries Inspection. Normative documents have been created to limit harvest and protect fish resources. Preservation of fish resources in the Caspian Sea basin is carried out by two departments for the protection, reproduction of fish resources and fishery regulation: ëSevcasprybvod" (areas of the Northern Caspian, adjacent to the Astrakhan Oblast and Kalmykia) and "Zapcasprybvod" (areas adjacent to the coast of Daghestan). The functions of securing preservation of water biological resources in the Caspian Sea were entrusted to the Federal Frontier Service of Russia in order to increase the efficiency of fish resources preservation. Currently a crisis in fisheries is visible.
4.5 Transport and Energy
Russia holds the world's largest natural gas reserves, the second largest coal reserves, and the eighth largest oil reserves. Russia is also the world's second largest energy consumer, and is the world's largest exporter of natural gas and second largest exporter of energy and petroleum in the world. The Ministry of Fuel and Energy oversees the energy sector. [36] After three years of resistance, Russia has signalled that it may stop opposing U.S.-backed plans for a Caspian Sea oil pipeline to Turkey and end its objections to offshore projects with Azerbaijan. [37] The Azerbaijan host government agreement for the Baku-Tbilisi-Ceyhan oil pipeline project was signed at the beginning of May, providing the green light for a project that will deliver large amounts of Caspian oil to the world market. [38] Kazakhstan is in talks with GAO Gazprom, Russiaís natural gas monopoly, on gas transportation projects in the former Soviet republic. [39]
4.6 Harbours and Shipping
Seaports in the Caspian region include the one in Makhachkala (Republic of Daghestan) and Astrakhan (Astrakhan Oblast). One of the most important strategic projects being implemented in the Astrakhan Oblast is the construction of a new seaport near the Olya settlement. No further information received.
4.7 Industry
Russia's economic turnaround has been driven in large part by increases in its industrial production, which was about 6% higher during the first 8 months of 1999 compared to the same period a year earlier. [40] In the Caspian, only the Astrakhan Oblast may be regarded as urban area with predominantly industrial type of economy. Major industries include complex for extraction and treatment of gas condensate and production of sulphur, machine building and metal works, woodworking, pulp and paper industry, light industry, food industry, chemical industry and river and marine transport. The share of the Republic of Daghestan in the total volume of industrial production of Russia only made up 0.09% in 1996. Industries include machine building, metal works, food industry, light industry, chemical industry and the production of construction materials. Oil and gas extraction is also developed. The Kalmuck Republic vast area is still one of the most economically undeveloped parts of the Russian Federation, even though it possesses significant natural resources. The Republicís share in the total volume of industrial production of Russia were 0.03% in 1996, sectors of industry include machine-building and metal works, light and food industry. [41]
4.8 Agriculture
Agriculture is the leading economic sector with various
specialisation such as vegetable growing, melon production,
meat and milk cattle breeding and sheep breeding. Residual
amounts of fertilisers, pesticides and insecticides are
carried by runoff and underground waters into surface water
bodies and into the Caspian Sea, causing significant
contamination. Predominantly agrarian type of economy can be
found in Kalmykia and Daghestan in particular.
5. Framework for the Development of
ICZM
The conventions ratified by the Russian Federation (relevant to the Caspian Sea Area) are:
- UNCLOS or United Nations Convention on the Law of the Sea (1997)
- Ramsar Convention on Wetlands of International Importance especially as Waterfowl Habitat (1977 into force)
- MARPOL or International Convention for the Prevention of Pollution from Ships
- Bern Convention on the Preservation of the European Wildlife and Natural Habitats
- Bonn Convention on the Conservation of Migratory Species of Wild and Natural Habitats
- Convention on the Ecological Impact Assessment in the Transboundary Context
- Rio de Janeiro Convention on Biodiversity
Preservation (1995)
Implemented by means of the Environmental Protection Law - Helsinki convention on the Protection and Usage of the Transboundary Watersheds and International lakes (1992)
- UN/ECE Convention on the Protection and Use of Transboundary Watercourses and International Lakes (1993, acceptance). Such water bodies include the Ural and Samur Rivers.
- Basel Convention on the control of Transboundary Movements of Hazardous Wastes and Their Disposal (1995)
Currently a Framework Convention for the Protection of
the Marine Environment of the Caspian Sea is under
preparation. It has been declared that international laws
and agreements signed by the RF have priority in cases where
there is contradiction between them and national
legislation. Different aspects of interstate environmental
co-operation are dealt with in the draft agreements proposed
by the Caspian states (since 1992) related to the formation
of a common mechanism for regional co-operation,
determination of the legal status of the Caspian Sea,
conservation and use of biological resources etc. On October
1995 Roskomvod (Ministry of Natural Resources) prepared the
draft Agreement on co-operation in the field of studies of
water conditions and protection of the Caspian coastal zone.
The provisions of the Concept of Transition of the
Russian Federation to Sustainable Development envisage,
in particular, continued efforts in areas of international
activities of Russia in the field of environmental
protection in solving interstate regional environmental
problems.
6. National Achievements in the
Field of ICZM
- The education and training in the sphere of ICZM are developing in the Russian Federation. Advanced training of experts and managers in the field ICZM.
- Environmental Impact Assessment is being paid great attention in all sectors of development.
- The National Co-ordination Council on the GEF Project was established in 1993.
- Proposals on ICZM Pilot Projects, submitted in 1995.
- Significant experience related to the development of integrated approach to management of the coastal zone of the Caspian Sea in the form of Target Federal Programmes have been accumulated.
- Elaboration of the Federal ICZM Programme, 1996.
- Preparation of the National Report on ICZM, 1996.
- Definition, consideration and approval of coastal zone boundaries.
- The use of a GIS database for ICZM.
- The right of information on e.g. physical planning, for improved public awareness has been declared, and the right of public participation in the management of protected areas has been guaranteed. [42]
- The Russian Federation supports in every way the idea of treating the Caspian Sea as a geographically and environmentally integrated system, advocates co-ordinated activities of the Caspian states in the sphere of environmental co-operation serving paramount national interests and the objective of their sustainable development. [43]
7. Problems and Constraints for the
Development of ICZM
- Absence of ICZM institutions and a general lack in development of ICZM methods.
- A lack of juridical base on federal and local level. Acting legislation does not clearly identify competence and responsibilities of bodies of executive power of Federation subjects and local authorities in terms of management of coastal zone and coastal resources.
- Insufficiency of the legal framework with reference to the needs and specialities of sustainable development and ICZM in coastal zones.
- Poor funding due to socio-economic problems related to transition to a market economy.
- Absence of integration of sectoral development in coastal management.
- Insufficient practical experience in the implementation of the ICZM process, plans and projects.
- Insufficient public awareness.
- Absence of or weak public participation in the decision making process in coastal zones.