Coastal area development – situation and its evaluation 1. Conception of development

Development is an aggregate of processes that has no singular defi nition.

It is often associated with economic indicators, and its placement is signifi cant. Demand for real estate in the coastal area is high (State …, 2006).

By itself, it cannot be viewed as a development indicator, but can be interpreted as an aspect of territorial distribution of real estate speculations.

Local municipalities, wishing to attract more taxpayers, aim to increase the area of construction, thus causing construction volumes to be likened to development. In the long run, such narrow interpretation of development causes a number of undesirable consequences for territorial development (Pārskats …, 2009).

Development can also be understood more widely by taking in regard social, psychological and environmental indicators. Here we shall focus on specifi c problems of coastal municipalities and their refl ection in the planning documents.

4.2. European data scale

In EU level documents, development analysis is based on available or comparable data. In this case the data do not always adequately describe

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local or regional characteristics. Building-covered areas in the European Environment Agency are viewed according to CORINE data at the NUTS3 level (The changing …, 2006) However, here it must be noted that such a view can only provide a superfi cial comparison, as it does not offer a decoding for the land utilization of smaller territories (less than 5 km²).

The peculiarity of Latvia is that it has many small villages and country estate clusters.

Analysis of coastal dynamics does not always refl ect the real situation;

for instance, in the 2006 overview by the European Environment Agency, as related in the EUROSION database, the greatest part of Latvian coastal area has been depicted as an accumulation shore (The changing …, 2006), which, according to KALME project research, is basically an erosion shore (G. Eberhards, J. Lapinskis, 2007). The given length of coastal line is also imprecise, which in Latvia’s case differs by 148 km (actual 645 km are given as 497), which causes doubts as to the applicability of such data.

4.3. Structuring of coastal area territories

Territorial structuring is used to implement different policies in separate territories. Although natural conditions of coastal areas are not much different from place to place, the role of separate coastal territories in development processes varies. It is determined by placement of economic activities, environmental differences, as well as the direction and volume of processes.

In the document of Baltic Sea spatial planning – VASAB 2010 PLUS Programme of Action – separate coastal territories have been outlined for which different action is necessary. The coastal zone of Riga Gulf is described as an unregulated construction area, Riga vicinity – as a dynamically growing area, whereas the greatest part of Latvian territory is defi ned as a dune and beach territory with a small proportion of protection territories.

(VASAB …) This again is only partly true, because in the coastal area protection zones incorporate as much as 45% of the entire seashore length (Statement …, 2006). There are also a number of protection biotopes.

In Latvia, coastal area structuring for the needs of planning has been carried out as a practical applications and suggestions for territorial planning. For sustainable development in management of the Baltic Sea and Riga Gulf coastal area, spatial priorities are suggested as an option – priorities would be based on specially protected territories, protection zones, functionality of settlements, construction, land utilization and natural resources. (Priekšlikumi …, 2009) Within the life-nature project

“Protection and management of coastal habitats in Latvia”, functional zoning of the coastal area was carried out in the interest of nature protection (Protection …, 2006).

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Below, suggestions for coastal territory classifi cation have been listed, according to planning necessities (Table 2).

Table 2. Criteria of coastal territory classifi cation

Criterion Example Spatial localization

Attraction of the place Interpretation depends on goal

Land utilization type

The above criteria have been given as an example, on the basis of which territories with different sets of characteristics can be defi ned. Such territories need different planning solutions. Criteria may be changed depending on territorial placement and planning goals, and they may overlap.

4.4. Development or a “development bubble”

In the case of Latvia, no development planning supervision system has been formed that would analyze the changes in specifi c target territories (Rīgas …, 2008). As a temporary alternative for analyzing development processes, we may use indirect proof, such as analyzing municipal territory planning that “reacts” to development pressures and provides for corresponding land utilization (for construction or infrastructure). Such tendencies are especially pronounced in Riga vicinity and decrease in the

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periphery. Comparatively high indicators can also be observed near other coastal cities (Fig. 3).

Changes in population numbers of coastal municipalities over the last 10 years have shown a pronounced increase in Riga vicinity, a relative stability in other coastal cities and a decrease in the periphery.

Figure 3. Change in population numbers in coastal municipalities, 1998–2009 (%) Source: Calculation from Latvian Population register data (Latvian…).

In Latvia, planning evaluation has not been done in the development context. There are a number of methodical solutions, data obtained by which may be mutually incomparable. The problem is posed by the chosen unit of comparative analysis – it may be a border of land estate, a backyard, or the allowed size of parcel division in construction legislation acts.

However, even such approaches may be insuffi cient, if territories vacant from buildings have to be considered, such as parks, protection territories, beaches. Approaches may differ depending on the purpose and users of data. Such an approach is more characteristic of development potential.

When analyzing the provisional population number of construction areas in relation to increases in population in coastal villages and cities, it must be concluded that, in effectual territorial planning, the scheduled size of construction territories considerably exceed the ability to cover the area with buildings. For example, in the city of Ainaži 32% of the city territory has been scheduled for new construction. Considering the sizes

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of parcels and the average size of inhabitants – 3 persons – can be predicted in 12 years period a population increase of 3000, which exceed current population 2 times. In the last 10 years, the population has decreased by 19%. (Latvian …) A similar situation is observable in other populated coastal areas as well, where population sizes are increasing.

Meanwhile, in direct vicinity of Riga, building construction is invading agricultural territories and partly the forest zone (Rīgas …, 2008).

4.5. Values and development

Evaluation of development depends on socially accepted norms of values.

In Latvia, the social value of a coastal territory is characterized as an environment with little signs of intervention, scenery of coastal dune forests, sand beaches. An important aspect is the accessibility of these values to the public. (Latvijas …, 2008) Often social values, territorial planning and practice could be compared to a three-horse carriage, where each horse is trying to run in a different direction.

The coastal area is not to be unequivocally interpreted – space is mentally indefi nite. On the other hand, coastal processes have a clear geographical localization. Coastal processes take place in a very limited territory within a few hundred meters, and most building intentions are localized in a territory along the sea shore within a few meters from the waterline, which is evidenced by perspective land utilization in territorial planning.

Such localization is either naturally defi ned, or a result of a “sorting out”

of spatial uncertainties by the use of territorial zoning and borders.

The validity issue of legally defi ned borders has been topical ever since these borders have been approved. The requirements in the Protection Zone Law are regularly being changed, which proves the nonconformity of political practice with socially accepted values. Inner zoning boundaries of the coastal area in territorial plans also vary, tending to direct

“development” towards the seashore.

Planning of land utilization and practical utilization are two opposites – development versus protection. The territorial limitations of NATURA are exceedingly strict, but at the same time, too mild regarding areas outside these territories. Thus coastal areas become fragmented – economic activity is squeezed out of NATURA territories, but outside those territories, maximum abandonment of limitations is sought (Pārskats …, 2009).

Validity of zoning may be evaluated from the point of view of zoning border defi niteness and provisions that infl uence development. In 2008, an analysis of coastal dune protection zones was carried out, and it was found that often the area has been defi ned mechanically, without regard to biotope boundaries. The methodically “ideal” protection zone proposal essentially differs from existing practice. Such discrepancies are clearly

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caused by a lack of methodology, which makes for varying interpretations in planning (Piekrastes …, 2008).

Limiting the economic activity to 5 km from the shore has little effectiveness in populated areas, as land utilization limitations generally affect only forest areas. The lack of strictly defi ned criteria causes a reduction of limited areas to 150–300 m. On this background, a question arises of the practicability of such a measure.

Protection zones are one of the most widely disputed planning issues in Latvia. In the website of one among the leading Latvian daily papers,

“Diena”, there are 898 articles on the problems associated with protection zones (Portal...). A protection zone tends to limit development, and it exists within sectoral defi ned limitations. For an illustration, the greatest limitations are faced by NATURA territories in coastal dune protection zones, where economic activity is practically prohibited, but the least – in limited economic activity zones in agricultural territories.

4.6. Changes and tendencies

In the years of independence of Latvia, along with a decrease in population and economic activity, the scale of building construction has increased in coastal territories, while the environment load has been focused in specifi c territories, and in other areas access to the sea has become more diffi cult, which is against social values (Pārskats …, 2009). This is partly a result of the state planning policy. There is a need for unifi ed criteria in defi ning settlements (villages) and their boundaries.

On the other hand, this has been brought about by the provisions in Protection Zone Law in regard to the width and limitations of the protection zone. A reduced protection zone inside villages and cities allows for approaching the seashore. This in turn gives rise to a tendency to defi ne unreasonably large village territories, merging construction areas and planning the expansion of villages along the seashore.

Planning and development programmes do not serve as instruments for development. Until 2006, most municipalities still had not passed their territorial plans. Now only one coastal municipality fails to provide an effectual plan. Evaluating the correspondence of local planning to the regional planning, main discrepancies are related to the distribution of population, sceneries, and the preservation and development of local identity (Pārskats …, 2009). Planning in this case serves not a means for coordinating long-term interests, but rather as a method of legitimating short-term local interests. The existing planning system has not helped realize the main goal – to fi nd that method which would ensure a mutual cooperation of the various documents and development instruments.

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As a result of climate changes, the frequency of violent storms increases along with coastline erosion processes. Although present forecasts refl ect no great threat for the coastal infrastructure in the following decades, it must not be forgotten that the situation may rapidly change (Piekrastes …, 2008). In Latvia there is no unifi ed system of monitoring coastal processes, prognosticating risks and planning protection measures.

In coastal municipalities, there is a strong need for the development of infrastructure objects, which would organize fl ows of population, prevent degradation of environment and serve as a basis for territorial development.

The development of such infrastructure has partly been hindered by strict limitations in the protection zones.

The sea aquatorium is still underestimated as the space for various economic, cultural, or ecologic development potentials. There are a lack of normative regulations, scientifi cally commercial research and state fi nancial support for the development of sea aquatorium projects.

However, the most relevant factor of change is the economic situation of the state, which defi nes the income level and regulates market demand.

Starting from 2007, a decrease in economic activity is observable, which is especially pronounced in 2008–2009. Economic crisis has had an impact also on the pace of construction projects, purchase of new housing etc., which in the nearest future may affect the planning situation in the coastal areas.

There is a tendency to soften the requirements in Protection Zone Law on the grounds of development process support. Such an approach is justifi able only in the presence of strict state supervision of construction processes.

4.7. Integrated Coastal Zone Management or other solutions As a solution for regulating the complex development of coastal areas in the European Union, the Integrated Coastal Zone Management (ICZM) is provided, which includes the mutual interaction of sea and land, the human dimension in coastal processes, and the integration of various sectors and participants in order to avoid confl icts that may result in undesirable development processes (Recommendation …, 2002). The recommendations are not of a binding character.

In Latvia, there is no unifi ed integrated management mechanism of the coastal area. In Latvian report regarding implementation of EU recommendation 2002/413/EC, legislation acts and planning policy documents with impact on coastal area development and management have been listed (Statement …, 2006). At the same time it must be noted that these documents are not specifi cally aimed at complex coastal area development.

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In Latvia there has been no specifi c development policy for coastal areas.

The existing policy goals and documents are related to environment protection. There have been a number of projects in Latvia that focus on preparing suggestions for integrated development and its supervision, but their further practical implementation has been limited.

Considering the existing practice, there is a need to develop a coastal area development document of a national level, which had force of law and corresponding implementation and supervision instruments.