INTEGRATED SEASCAPE MANAGEMENT
Marine Spatial Planning
for a Resilient and Inclusive
Blue Economy
Volume 1 Key Considerations to Formulate and Implement Marine Spatial Planning
Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning ii
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Attribution—Please cite the work as follows
“World Bank. 2022. Marine Spatial Planning for a Resilience
and Inclusive Blue Economy.
Lead Authors
Jacqueline Alder, and Juliana Castaño-Isaza
Technical contributors
Simone Lee, Francisco Alpizar, Roger Madrigal,
Anam Basnet, Anders Jansen, Johanne Nordby Fremstad.
Cover images credits
World Bank and Estudio Relativo.
All queries on rights and licenses, including subsidiary rights, should be addressed to World Bank Publications, The World
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Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning iii
Acknowledgements
The Guidance Note “Marine Spatial Planning for Special thanks are extended to Glenn Marie Lange,
a Resilience and Inclusive Blue Economy” , is the and Aradhna Mathur for providing technical inputs
result of a World Bank’s Advisory Services and on economics, and safeguards, respectively.
Analytics (ASA) product, led by Juliana Castaño-
Isaza, and funded by PROFISH 3, under the The development of this Global Analytical
PROBLUE Umbrella 2.0 Multi-Donor Trust Fund. Product benefited from technical contributions
This Guidance Note has two volumes: Volume 1, provided by peer reviewers including, Idriss Deffry
Key Considerations to Formulate and Implement (Environmental Specialist); Ambroise Brenier
Marine Spatial Planning , and Volume 2, Integrating (Natural Resources Management Senior Specialist);
Cross-Cutting Themes into Marine Spatial Planning. Sachiko Kondo (Environmental Specialist), Stefanie
Onder (Environmental Senior Economist), Juan Jose
The team especially wishes to thank PROBLUE for Miranda (Environmental Senior Economist),
financing this product, and for the guidance and Peter Kristensen (Lead Environmental Specialist),
leadership provided by World Bank staff including Giovanni Ruta (Lead Environmental Economist),
Juergen Voegele (Vice President for Sustainable Luis Diego Herrera (Environmental Economist),
Development) Christian A. Peter (Acting Global and Boris van Zanten (Disaster Risk Management
Director, and Global Unit Practice Manager for Specialist). This effort also benefited from
Environment, Natural Resources and the Blue inputs from Chantal Rigaud (PROBLUE External
Economy Global Practice), Charlotte de Fontaubert Communications Officer), and John Burgess
(PROBLUE Program Manager), and Sylvia Michele (Consultant).
Diez (PROBLUE Pillar 4 Manager, and Senior Natural
Resources Management Specialist). Finally, the team would like to express gratitude
to Pablo Porta, Natalia Fernández Abarca, y
The team would like to recognize the support Laura Hidalgo from Estudio Relativo, for translating
and guidance provided by the members of the complex scientific data into clear illustrations
Marine Spatial Planning Steering Group including and infographics.
Jessie F. McComb (Tourism Senior Specialist),
Mark Leybourne (Offshore Wind Energy Senior
Specialist), Lori Anna Conzo (Biodiversity Lead, IFC),
Brenden Jongman (Disaster Risk Management
Senior Specialist), Andrew Losos (Maritime Transport
Senior Specialist), Nagaraja Rao Harshadeep (Data
and Disruptive Technologies Global Lead), and
Julien Million (Fisheries Senior Specialist).
Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning iv
Contents
Abbreviations vi
E.S. Executive Summary vii
1. Marine Spatial
Planning
Introduction 1
2. Marine Spatial
Planning
Why a Guidance Note? 5
3. Marine Spatial
Planning
Entry Points 13
4. Marine Spatial
Planning
Making the Case 18
3. 1 Introduction 13 4. 1 Introduction 18
3.2 Country or Local Office Role 16 4.2 Addressing Country
Concerns 19
3.3 Economic Entry Points 16
4.3 Making the Economic Case 20
4.4 Making the Social Case 23
5. Marine Spatial
Planning Enabling
Conditions for Effective 28
4.5 Funding for Making
the Case 27
5. 1 Introduction 28
5.2 Legal Frameworks 31
5.3 Institutional Frameworks 33
5.4 Financial Resources 36
5.5 World Bank Investment
Considerations 37
Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning v
6. Marine Spatial
Planning Formulating
Marine Spatial Plans 39
7. Marine Spatial
Planning Integrating
Sectors 64
6. 1 Introduction 39 7. 1 Introduction 64
6.2 MSP Planning in 7.2 Fisheries 65
World Bank Operations 42
7.3 Aquaculture 67
6.3 Goal and Objective Setting 48
7.4 Tourism 68
6.4 Stakeholder Engagement 54
7.5 Offshore Renewable Energy 71
6.5 Data and Tools 55
7.6 Land Use 75
6.6 World Bank Investment
Considerations in Plan 7.7 Marine Transport 77
Formulation 58
7.8 The Private Sector in
6.7 Regulatory Instruments and Plan Formulation 80
Institutional and Financial
Arrangements 59
8.
6.8 Delivering Public Goods
Marine Spatial
and Services 60
Planning Implementing
6.9 Natural Capital Accounting Marine Spatial Plans 82
in Drafting an MSP Plan 61
8. 1 Introduction 82
6.10 Nature-Based Solutions 63
8.2 Lessons Learned –
Challenges
and Constraints 85
8.3 Implementation Model 87
8.4 Capacity Building for
Implementation 91
8.5 Compliance and
Enforcement 93
8.6 Education and Awareness 94
8.7 Data and Tools
for Implementation 94
8.8 World Bank Investment
Considerations 95
References 102
Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning vi
Abbreviations
ASA Advisory Services and Analytics ICZM Integrated Coastal Zone Management
BES Biodiversity and Ecosystem Services KP Knowledge Product
BETF Bank Executed Trust Funds LDC Least Developed Country
CBD Convention on Biological Diversity LMIC Lower Middle-Income Country
CAT-DDO Catastrophe-Deferred Drawdown Option MDTF Multi-Donor Trust Fund
CCAP Climate Change Action Plan MPA Marine Protected Area
CIF Climate Investment Fund MSP Marine Spatial Planning
CO2 Carbon Dioxide NBS Nature-Based Solution
CPF Country Partnership Framework NCA National Capital Accounting
CMU Country Management Unit NDC Nationally Determined Contribution
DFO Department of Fisheries and Oceans NRM Natural Resources Management
(Canada) OECS Organization of Eastern Caribbean States
DPL Development Policy Loan ODA Overseas Development Assistance
DPO Development Policy Operations PDO Project Development Objective
EAFM Ecosystem Approach to Fishery PER Public Expenditure Review
Management PforR Program-for-Results
EEZ Exclusive Economic Zone RETF Recipient Executed Trust Fund
ESF Environmental and Social Framework RF Results Framework
ESMAP Energy Sector Management Assistance SCD Systematic Country Diagnostic
Program SEA Strategic Environmental Assessment
ESS Environmental and Social Standards SGBV Sexual and Gender-Based Violence
EU European Union SIDS Small Island Developing State
FSAT Fisheries Sector Assessment Toolkit SMART Specific, Measurable, Achievable, Relevant,
GAP Gender Action Plan and Time-Bound indicators
GEF Global Environment Facility TEEB The Economics of Ecosystems and
GIS Geographic Information System Biodiversity
GHG Greenhouse Gas TEK Traditional Ecological Knowledge
GRID Green Resilient and Inclusive Development ToC Theory of Change
GW Gigawatts UNESCO United Nations Educational, Scientific, and
Ha Hectare Cultural Organization
HLP High Level Panel for a Sustainable Ocean UNESCO-IOC United Nations Educational, Scientific,
Economy and Cultural Organization – International
IAD Institutional Analysis and Development Oceanographic Commission
IBRD International Bank for Reconstruction and UMIC Upper Middle-Income Country
Development US$ United States Dollar
ICP Implementation and Coordination Plan VMS Vessel Monitoring System
IDA International Development Association
IFC International Finance Corporation
InVEST Integrated Valuation of Environmental
Services and Tradeoffs
IPF Investment Project Financing
IPP Independent Private Producers
Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Integrating Cross-Cutting Themes into Marine Spatial Planning vii
E.S. Executive
Summary
Advancing the Blue Economy for the World Bank
and Its Clients
The World Bank defines the Blue Economy as the sustainable and
integrated development of economic sectors in healthy oceans. It is
a framework to realize the Sustainable Development Goals (SDGs),
address climate change, protect biodiversity, and promote shared
prosperity for all. Marine spatial planning (MSP) provides a needed
comprehensive and integrated investment framework for the
public and private sectors by dealing with upstream environmental
and social issues and by giving certainty to investors to access
areas and resources. The World Bank and many of its client
countries are increasingly interested in using MSP to develop their
marine sectors and are adding it to their investment portfolios.
However, among staff and clients there is limited understanding
of the process and how to use it as an investment framework.
This guidance note seeks to close these knowledge gaps.
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MSP for Green Resilient and Inclusive Development (GRID)
Marine spatial planning can help public and private marine
sectors should contribute to green and inclusive development
(GRID). MSP has special utility in targeting financial and technical
support to governments and the private sector and providing the
financial and social rational for investing in the Blue Economy.
MSP primarily identifies integrated investment opportunities.
The World Bank is well placed to help clients take advantage
of MSP investment opportunities in pursuing recovery from
COVID (and other economic or climate shocks) and in the
general development of marine sectors. The World Bank has a
range of tools for both public and private investments: financing
instruments, convening services, and technical expertise. MSP can
in turn support the World Bank, clients, and partners in tracking
SDG progress, ensuring that safeguards are met, and reaching
corporate, climate, biodiversity, and gender goals (See Volume 2
for further details).
MSP: Guiding Blue Economy Investing
This guidance note examines the most productive ways to
integrate MSP into World Bank projects and operations, and helps
client countries invest in MSP. MSP is a process, not necessarily
linear, and with cross-cutting considerations at each step. The key
steps are: (1) making the case, (2) creating the enabling conditions,
(3) formulating the plan, and (4) implementing the plan (Figure 1).
.
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Figure 1. The MSP Process
Marine Spatial Planning Process Adjustments
MAKING
ENABLING PLANNING IMPLEMENTATION
CONDITIONS
THE CASE
REVIEW
Economic/ Regulatory Define Goals & Various Studies Investments
Social Benefits Objectives and Analyses
• Sectoral
• Ecosystem
• Socio-economic
Entry Points Institutional Define Study Coordination &
Prepare and
Area Integration
Endorse the
Plan
Trade-offs,
Modelling,
Conflict Analysis
Ecological Funding Compile Data Monitoring &
Evaluation
Cross-Cutting Considerations: gender, climate change, biodiversity
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Entry points can enable discussions on the benefits of MSP.
Benefits go beyond an increase in wealth. They can include
enhanced climate resilience, biodiversity, and reduction of
pollution. MSP entails a major shift from managing marine
resources on a sector-by-sector basis to taking an integrated
approach. This requires changes in the distribution of government
financial and human resources. Governments may see the
changes as too costly, while the private sector may feel MSP is
too high of an investment risk. Addressing these concerns up
front can create entry points to explore MSP investments that will
advance a Blue Economy.
Making the economic and social case for MSP is the next step
once an entry point is established. A good understanding of the
economics underpinning the allocation of resources and space
is a prerequisite for securing sustainable finance for MSP and
its implementation. De-risking and leveraging sector-specific
portfolios through integration is another powerful argument.
Addressing issues and conflicts upstream of investments
also makes the case, by giving investors some certainty that
their projects won’t be delayed by environmental and social
challenges. The social case for MSP usually focuses on effective
and efficient delivery of public goods and services, most of which
are ecosystem services or newly created jobs. Although making
the case for an MSP investment in not typically part of a World
Bank project, the Bank can help in this crucial task by providing
analytical and advisory services, or external funding from sources
such as the Global Environment Facility.
Establishing enabling conditions may provide the first major
opportunity for the World Bank to support and invest in MSP.
The Bank’s extensive experience in investment and institution-
strengthening can work well to help clients establish enabling
conditions, particularly in legal, institutional, and financial
capacities. By creating clear legal frameworks, this work builds
certainty for investors who seek predictable decision making. It is
important also to have a single agency in charge of MSP, equipped
with a clear mandate for overall coordination, management,
implementation, compliance, and monitoring. The Bank has a
range of tools that can support establishment of these and other
enabling conditions, such as investment project financing and
development policy operations.
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Formulating a marine spatial plan is a critical step for the
development of a future investment portfolio for the World Bank.
Planning identifies public and private sector investment
opportunities across existing and emerging sectors by allocating
marine space and establishing rules for sectors to operate within
it. Experience of the past ten years-plus suggests that MSP
success depends on a consultative process that engages all
stakeholders, including marginalized and vulnerable communities
at national and local levels. This dialogue should cover areas of
use and address conflicts between users, including conservation.
It can also explore climate change needs and social goals such
as gender and transparency. A good plan will integrate sectors
and find the right balance among existing and future uses. This
may require innovative approaches such as co-location of uses,
which in turn can attract investments that might otherwise be
missing. The World Bank’s capacities in providing institutional
strengthening, convening, and technical assistance can help
produce a well formulated plan that all stakeholders support.
As author Stephen Keague notes, “Proper planning and
preparation prevents poor performance.”
Implementation is the step where the investment portfolio
envisioned in the plan is realized. Transformational change such
as establishing specific use areas takes effect at this stage.
Yet despite the enormous potential benefits, the number of
plans that are actually implemented is quite low compared to
the number of plans that are devised. Many factors, including
financing shortfalls, constrain implementation. But one of the
most important is lack of attention during plan formulation to
the challenges that will come with implementation. These issues
must be considered in detail beforehand. Plan implementation is
often more effective when it has a schedule that is aligned with
specific sector needs and guides stakeholders and investors.
The Bank has a key role to play in making sure that planned
investments go forward. It can help by providing access to its
range of financing options for activities and investments, by
helping to mobilize other public and private sources of finance,
and by offering technical advice.
This document, Volume 1, focuses on the MSP process. Important
considerations that arise when sectors interact with each other
are examined in Volume 2: Integrating Cross-Cutting Themes
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into Marine Spatial Planning. They include monitoring and
evaluation of project progress and data, tools to better inform
MSP, stakeholder engagement, gender biodiversity, and climate
change. Giving these proper attention will help ensure that
the World Bank’s safeguards are met and that MSP projects
contribute to reaching Bank goals.
Implications for the World Bank
MSP is gaining interest globally as a mechanism to guide countries
in investing in the Blue Economy. This presents opportunities for
the World Bank to support client countries throughout the MSP
process. There are multiple ways that the World Bank can reduce
risks and strengthen investment effectiveness to achieve social,
ecological, and economic benefits.
The Bank can help make the case by supporting analytical work
that formulates and strengthens arguments for MSP. The Bank’s
guidance note Applying Economic Analysis to Marine Spatial
Planning can show how to use available tools to make the
economic case for implementation.
The Bank can foster understanding of enabling conditions,
including existing regulatory, institutional, and economic
conditions, and what needs to be added to ensure MSP is a
worthwhile investment.
During plan formulation, the Bank can support studies such
as feasibility studies and strategic environmental and social
assessments to reduce risks and strengthen certainty. It can help
with capacity-building programs to enable agencies to manage
specific investments including innovative financing mechanisms
such as Blue Bonds.
For implementation, the World Bank can consider what
investments will help see marine spatial plans through to
operation. This may include additional public and private
investments, action plans, M&E, and coordination and integration.
Other areas in which the Bank can help include governance,
institutional arrangements, marine resource management, sector
integration, data collection, and information systems.
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Recommendations
Many lessons learned and best practices emerged from reviews
and analyses. The following summarizes these lessons and
practices into a set of recommendations for World Bank teams
and client governments to consider during the MSP process.
Entry Points
Inform and engage the country and local offices.
Country or local offices along with technical staff from each
sector can provide local context for overall decision making
for MSP and for the relevant sectors. Sections 2 and 4,
Context and Making the Case, provide additional information
on the benefits of MSP.
Making the Case
Use economic tools, where possible, to support and make
the case for MSP.
This may require improving data collection systems for
effective analyses. The Applying Economic Analysis to Marine
Spatial Planning guidance note can help in making the
needed arguments.
Enabling Conditions
Conduct a legislative review.
The review should examine (1) possible duplication of
MSP activities with sector activities and between sectors,
(2) gaps that may hinder MSP planning and implementation,
(3) opportunities for synergies with the MSP process and
between sectors, and (4) implementation measures which
may not be in MSP regulatory frameworks.
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Ensure MSP and sector legislation facilitate
stakeholder engagement.
Stakeholder Engagement (Section 9), Gender Equality and
Women’s Empowerment (Section 11), and the annex Gender
and Marginalized Groups provide guidance on engaging
stakeholders at national and local levels, especially for
present and future marginalized or vulnerable groups.
Appropriate legislative or policy frameworks can facilitate
effective engagement.
Provide the MSP process with policies for data collection,
sharing, and access.
Use the best available information that is open and
transparent, and that does not impinge upon the privacy and
commercial proprietary rights of the owners of the data to
promote evidence-based discussion, consensus building,
and decisions.
Formulating the Plan
Perform strategic environmental assessment (SEA).
Consider conducting a SEA to better understand and
integrate socio-economic and environmental needs in marine
spatial policies, sector decision-making, and MSP planning
and implementation.
Engage stakeholders.
Engaging all stakeholders in drafting the plan helps to
keep them informed of timelines and progress in meeting
the timelines. Communicate with them consistently and
frequently. For details, see the Stakeholder Engagement
section and the Gender Equality and Women’s
Empowerment section.
Set clear goals and objectives.
Clearly defined goals and objectives will facilitate formulating
SMART indicators to measure progress. The Monitoring and
Evaluation section provides further information on indicators.
Review legal and institutional frameworks.
Review MSP and sector legal and institutional frameworks
and relevant sector plans to ensure sectors can implement
MSP interventions.
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Link marine spatial plan to land and coastal plans.
Consider broader planning initiatives such as land use and
coastal planning for synergies and complementarity with the
marine spatial plan.
Formulate data use guidelines.
Have clear and publicly accessible guidelines on data used in
the MSP process. Data and Geospatial Support (Section 10)
contains specific information on data guidelines.
Use scenarios.
Consider using scenarios (modelled or narrative) and trade-
off tools to look at future situations. Sources of data and tools
for the scenarios may be found in the MSP Data and Tools
Annex as well as the World Bank Open Data platform.
Implementing the Plan
Consider implementation early in the MSP process.
Early consideration allows stakeholders to identify and resolve
administrative, political, and technical challenges sooner
rather than later. This also generates stakeholder support,
including government agencies with the mandate and
resources to implement MSP measures.
Ensure that enabling conditions for MSP implementation are
in place.
The key conditions for effective implementation include
stakeholder engagement and partnerships. See the
Stakeholder Engagement and Gender Equality and
Women’s Empowerment sections and the annex Gender
and Disadvantaged Groups for further discussion), legal
frameworks for plan compliance, financing and human
resources, and available tools and data in line with MSP
managers capacities or measures to build capacity.
Use a step-by-step approach to implementation.
This approach focuses on establishing the key structures
to coordinate the proposed activities and to maintain
the support of stakeholders, including political support.
An implementation framework either drafted in parallel
with plan formulation or soon after the plan is endorsed
can identify actions to take to realize the plan and
manage expectations.
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Build capacity to implement.
It is important to build capacity among the members
of the disparate groups that are leading or supporting
plan implementation. Efforts may include managing
committees and meetings, resource mobilization, and
compliance. Implementation (Section 8) outlines the range of
capacities needed.
Explore innovative financing.
Emerging new financing instruments (Making the Case,
Section 4) such as Blue Bonds may help close funding gaps. In
addition, World Bank financial instruments or the embedding
of MSP into broader country investment programs (including
sector-specific ones) may effectively provide resources for
plan implementation.
Develop complimentary compliance and
education programs.
These programs should help each other maximize awareness
and understanding of the marine spatial plans and their
provisions, including access to resources and allowed uses.
Align monitoring and evaluation activities with
plan implementation.
This will help fill information gaps that are hampering
decision making. Section 14 provides guidance on monitoring
and evaluation.
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Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning 1
1.
Marine Spatial Planning
Introduction
The Blue Economy, first promoted at Rio+20 in 2012 and again at
the first UN Oceans Conference, continues to gain momentum
as the main approach to sustainable use of marine resources.
The World Bank defines the Blue Economy as the sustainable and
integrated development of economic sectors in a healthy ocean.
Among countries and communities, however, the Blue Economy
can have different meanings, with different approaches taken to
move toward more integrated ways of managing the ocean. One
key approach is marine spatial planning (MSP), which can be seen
as a roadmap of the actions and investments needed and a means
to monitor progress in developing a sustainable Blue Economy
and meeting specific national and international obligations.
Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning
VOL . 1 2 CH. ES 1 2 3 4 5 6 7 8 MSP INTRODUCTION 2
The World Bank has many financial and technical tools to support
clients in reaching their Blue Economy goals. Marine spatial
planning is one of the most effective. It can also help countries
achieve GRID and the integrated ocean plans devised under the
Ocean High Level Panel for Sustainable Ocean Economy (HLP). It
has use too in integrating sector plans and area-based measures
(Winther et al. 2020). Marine spatial planning can bring new
perspectives and ways of doing business for the Bank and client
countries that have a Blue Economy agenda. When MSP is used
with an economic lens, as in this note, it can help client countries
make the case and tap into the Blue Economy.
UNESCO-IOC defines MSP as “a public process of analyzing
and allocating the spatial and temporal distribution of human
activities in marine areas to achieve ecological, economic, and
social objectives that have been specified through a political
process” (Ehler and Douvere 2009). The MSP concept emerged in
response to a need to implement ecosystem-based management
and incorporate values of the ocean not normally captured in a
management plan or planning process for a common property
resource. Over the last two decades, MSP has risen in prominence
as a tool to manage ocean resources and contribute to the
Sustainable Development Goals. More recently it has formed the
foundation of Sustainable Ocean Plans (Winther et al. 2020) to
support transitioning to a Blue Economy.
There are over 100 documented cases of MSP globally, at varying
scales (regional to subnational) and stages of completion. Few
have been fully implemented, however, and those are primarily
in high-income countries such as Australia, the United States,
Canada, New Zealand, and European Union nations. However,
interest is increasing in MSP among World Bank client countries
and regions, with planning efforts proceeding in the Eastern
Caribbean States, Mozambique, Vietnam, and Indonesia, among
others. These MSP cases have many similar characteristics:
ecosystem-based, spatially focused, integrated across sectors,
and with participatory processes that are transparent, adaptive,
and inclusive.
MSP can have multiple objectives (multi-sector, conservation,
shared prosperity) or just a few (conservation and poverty
reduction). But in each case, integration is a key attribute.
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MSP’s objectives often mirror the objectives of Blue Economy
strategies, especially when they encompass ocean sectors and
public goods and services. Coastal states can best integrate
sectors by establishing trade-offs—exploring which oceanic
sector to prioritize based on accurate valuation of marine and
coastal ecosystems and the services they render. None of these
trade-offs are possible without a rigorous MSP approach. Finally,
in determining priorities, MSP enables managers to plan for
sustainable natural resources management, including adapting
to climate change, while securing investments benefiting people
and local economies.
As an approach, MSP is similar to the decades-old integrated
coastal management (ICZM). But some MSP proponents argue
that ICZM planning is narrower, focusing only on a narrow strip
of coast and not extending far into the EEZ. The MSP process1
uses the same principles as many other forms of spatial planning,
such as landscape planning. These often proceed under the gaze
of agencies that have the mandate to plan or of stakeholders
that have interests in the affected area, especially present and
future marginalized or vulnerable groups. However, these forms
of planning provide little guidance on upstream actions such as
making the economic and social (e.g. gender) case and supporting
citizen engagement, climate change mitigation, and biodiversity,
all important concerns in the transition to a Blue Economy.
The World Bank Group’s portfolio related to the ocean exceeded
US$9 billion as of June 2021. This level of investment highlights
the importance of having a suite of tools and approaches to
ensure that these investments are truly transformational for
clients. This portfolio provides a unique opportunity to place
MSP at the heart of the World Bank Group’s Blue Economy
campaign by drawing on its (1) knowledge capacity to create and
share knowledge among client countries and the international
community, (2) convening power to connect public and private
sectors, civil society, and academia and forge partnerships that
work toward a more inclusive and sustainable Blue Economy,
and (3) financial and advisory and analytical instruments to
help client countries develop and implement marine spatial
1 The UNESCO “Step-by-Step” Guide gives a detailed description of the planning
process (Ehler and Douve 2009).
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plans that respond to societal (i.e. vulnerable communities and
gender), economic (i.e. efficiency and shared prosperity), and
environmental (i.e. biodiversity and ecosystem services loss and
climate change) challenges. MSP also provides the Bank with a
tool to sustainably use marine resources and mobilize coastal
communities to Build Back Better to recover from the COVID-19
pandemic and other shocks. The World Bank and clients can use
this tool in recovery programs to leverage sustainable marine
sector work in an integrated way and to help Country Offices
and Global Practices to increase marine investments across their
portfolios. MSP can also be a framework for the International
Finance Corporation (IFC) to increase private sector investment in
marine sectors.
This guidance note encompasses the full marine spatial planning
(MSP) process, from making the case to implementing the plan,
including monitoring and evaluation. The note targets Blue
Economy projects that have MSP as part of their project portfolio
or that intend to include it. In a common marine area, sectors
such as fisheries, offshore renewable energy, shipping and ports,
and urban development need certainty for access to areas and
resources. MSP balances competing interests and addresses
major environmental and social issues upstream to reduce
some initial private and public investment costs and promote
long-term sustainability.
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2.
Marine Spatial Planning
Why a
Guidance
Note?
There are two key reasons for this guidance note: (1) to improve
World Bank technical and operational teams’ understanding of
the benefits of MSP to the World Bank and its clients, and (2) to
provide guidance on specific World Bank considerations including
opportunities for investments throughout the planning processes
of identifying entry points, making the case, and formulating
and implementing a plan including monitoring and evaluation.
This will ultimately help clients transitioning to a Blue Economy to
employ MSP and integrated ocean plans as described by the HLP
(Winther et al. 2020).
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McKinney Capital (2013) identified 12 key benefits of MSP
across economic, social and environmental considerations.
Many of these, listed below, apply to the Bank or lead to
additional benefits.
$
Economic
1 Creation of greater certainty in the private sector when it
plans new investments, often with a 30-year time frame;
improvement of transparency in permitting and other
decision making; and possible creation of opportunities for
partnerships with the World Bank.
3 Reduction of conflicts among incompatible uses and between
uses and nature, which provides more conducive conditions
for World Bank investments because much of the upstream
safeguards work has been done.
Ecological
4 Identification of areas of biological or ecological importance
and networks of marine protected areas, or buffer zones using
nature-based solutions.
5 Incorporation of biodiversity and ecosystem services
objectives at the heart of MSP and management.
8 Reduction of cumulative impacts of human uses on
marine ecosystems.
Social
9 Improvement of community and citizen participation.
10 Identification of potential impacts of decisions on the
allocation of ocean space for certain uses (or non-uses) for
coastal communities and economies.
12 Identification and preservation of social, cultural, and spiritual
values related to ocean use.
Together, these benefits can help the World Bank and its clients
achieve their biodiversity commitments and gender targets,
support climate change mitigation, build climate change
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resilience, better involve vulnerable groups in investments, and
ensure that projects comply with the Environmental and Social
Framework (ESF) guidelines.
To realize these benefits and move towards a Blue Economy, the
World Bank will need to scale up and expand the use of MSP in its
investment portfolio. Several resources are available that provide
detailed guidance on how to carry out an MSP process, such
as the UNESCO/European Commission Guide (UNESCO-IOC/
European Commission 2021) and the Step-by-Step Guide
(Ehler and Douvere 2009). Much of the focus of these guides is
on planning rather than implementing. They primarily targets
government officers and NGOs and more recently industry (World
Ocean Council 2016), to help them participate in or manage the
different steps of the MSP process more effectively. Key areas for
the World Bank are:
• Governance, with guidance documents covering the need
for a clear legal basis for conducting MSP; engagement of
stakeholders at national and local levels, especially present
and future marginalized or vulnerable groups; defining
of planning boundaries; and the role of zoning in the
governance of marine areas (O’Connor and Oehler 2020).
• Institutions that should take part in the various steps of
the MSP process and what their roles or terms of reference
might be (Collie et al. 2013).
• Objective setting, with considerable guidance on noting
the hierarchy of goal and scope of potential objectives,
including multiple objectives (Ehler and Douvere 2009).
• Engagement of stakeholders from diverse areas of interest
throughout the planning and implementation steps
(Twomey and O’Mahony 2019).
• The scope and scale of data used and the issues around
data access, sharing, and confidentiality, and the range
of tools that can support decision making in the planning
process (Beck et al. 2009).
• Conservation planning in MSP, which can help in meeting
national and global biodiversity objectives (Ntona
and Morgera 2018).
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• Monitoring of the plan, which is critical for understanding
its effectiveness, capturing lessons learned, and revising
the plan and implementation as monitoring detects
changes in conditions, such as climate (Ehler 2014).
Though the information presented in these guides gives
considerable help to World Bank clients in the planning and
implementation processes (Figure 2.1), it does not fully meet the
needs of World Bank staff, especially in realizing benefits specific
to the Bank. The current guidance note capitalizes on the World
Bank’s convening power, as well as its financial and technical
capacity across sectors, and identifies gaps in effective World
Bank engagement in MSP, as summarized below:
• Making the case based on the economic and social
benefits when formulating and implementing a marine
spatial plan, including economic growth, jobs, wealth,
climate change, resilience, and shared prosperity, and
using natural capital accounting to help make the case.
The OECD highlights the importance of making the
economic case for MSP (OECD 2020). But there are no
examples of economic analysis actually being used to
do this. One related case is an EU study that looked at
integrated coastal zone management (ICZM) through
explicit communication of added value of ICZM (Steijen
et al. 2012). A new note, Applying Economic Analysis
to Marine Spatial Planning , is available to help fill this
knowledge gap and to complement this guidance note.
• When an MSP cuts across different ocean sectors,
issues, or opportunities, these can be the entry point for
discussions with governments. There are lessons learned
that in some cases, offshore renewable energy can be a
driver of MSP, as seen in Estonia (Tafon et al. 2019), while
in other areas conservation has been a driver (Smith et al.
2019). Sectors such as tourism can also be entry points.
In some countries, the Blue Economy approach itself
is a driver for MSP. This is demonstrated in the Eastern
Caribbean States (Organization of the Eastern Caribbean
States 2020). There, the World Bank’s Blue Economy
Development Framework (BEDF) supports development
of Blue Economy roadmaps and informs MSP at the
country and regional levels. BEDFs have been drafted for
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VOL . 1 2 CH. ES 1 2 3 4 5 6 7 8 MSP WHY A GUIDANCE NOTE? 9
Central America, Jamaica, Mozambique, and Vietnam.
Revealing the benefits of MSP for governments can include
de-risking investments by accounting for environmental
and social benefits and avoiding or mitigating impacts. In
some situations, MSP can help countries prioritize actions
and approaches, as well as incorporate exposure and
vulnerability. Other benefits include investment certainty
through access to marine areas, resource rents, reduced
conflicts, lower management and transaction costs, and
improved resource management. Fortunately, the World
Bank already has or is developing through PROBLUE
and other multi-donor trust funds (MDTF) the needed
tools to estimate these benefits and the cost of inaction.
An MSP can also help countries meet their biodiversity,
conservation, ecosystem restoration, and climate
change commitments, and other environmental and
social standards.
• Few tools are available for assessing the enabling
conditions for developing countries, particularly least
developed countries (LDCs), low middle-income countries
(LMICs), and small island developing states (SIDS), and
sometimes for upper middle-income countries (UMICs).
Existing guidance that highlights the long-term success
of any marine spatial plan relies on the country having the
legislative, institutional, and financial resources in place for
planning and implementation. A review of lessons learned
shows that without a firm legal basis, or a mandated
institution to lead or coordinate, the MSP process will
falter and jeopardize plan implementation. Similarly, in
cases where funding is insufficient or not available at all,
planning or implementation will fail, sometimes both.
Existing guidance does not cover how to assess these
enabling conditions. Access to the tools to do this is key if
World Bank teams are to determine the state of enabling
conditions and ably guide the scope and scale of needed
investments. Subsequent sections discuss in further detail
World Bank tools that are available for this work.
• Much of the guidance on stakeholder engagement
recognizes the need to engage the private sector, but
there is little information on how to do this effectively
and there are few examples or case studies of successful
private sector engagement. The increasing use of MSP
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is generating more information on the role of the private
sector, especially in emerging sectors. This guidance
note will help fill this gap by capturing existing guidance,
lessons learned, and best practices.
• Incorporating climate change in World Bank projects so
that MSP will help countries mitigate (i.e. offshore clean
energy) and adapt (i.e. nature-based solutions) to climate
change impacts would contribute to the World Bank’s
climate co-benefits and other climate change targets.
• Integrating biodiversity and ecosystem services in World
Bank projects will maximize environmental enhancement,
job creation, economic growth, and resilience in the face
of the post-COVID recovery era, and the UN decade on
ecosystem restoration.
• Including gender and other vulnerable groups will improve
MSP, address climate change, environmental degradation,
and other risks (e.g. natural disasters) and assure that any
MSP is equitable. This will let these groups participate and
benefit fully, strengthen the plan and its implementation,
and help the World Bank achieve its gender goals in
ocean sectors.
• Implementing marine spatial plans can be opportunities
to bring to bear the World Bank’s financial instruments
and links to IFC and other public-private partnerships,
which can be critical for the long-term success of any MSP.
MSP is also a strategic instrument for mobilizing marine
sectors for Green Resilient and Inclusive Development
(GRID). Smooth implementation is vital for ensuring an
effective transition from a plan to on-the-water action and
for monitoring to capture lessons learned from the client’s
perspective and the Bank’s. Integrating across sectors is
a key benefit of MSP. However, guidance on how to realize
that integration is often lacking.
• In this realm, M&E is key to informing best practices,
adaptive management, and iterations of MSPs. M&E is also
crucial for determining whether innovations are successful
and contribute to MSP objectives.
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This guidance note attempts to fill these gaps by focusing on
key steps in MSP relevant to the World Bank. The document is
thus structured into six sections that analyze the major steps for
designing and implementing marine spatial plans (Figure 2.1):
1 2 3
Making the case by identifying Reviewing enabling conditions Formulating a plan that includes
entry points and informing on of the key factors for the success goals and objectives and
the economic and social benefits of an MSP, including legal and integrating marine sectors into
that marine planning generates institutional frameworks marine spatial plans
4 5 6
Implementing the MSP, including Evaluating cross-cutting Recommending future actions
monitoring and evaluation. considerations such as gender, and best practices to strengthen
climate change, biodiversity, and the World Bank’s MSP
ecosystem services investments for GRID.
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Figure 2.1. Key Steps in Marine Spatial Planning in the World Bank
Marine Spatial Planning Process Adjustments
MAKING
ENABLING PLANNING IMPLEMENTATION
CONDITIONS
THE CASE
REVIEW
Economic/ Regulatory Define Goals & Various Studies Investments
Social Benefits Objectives and Analyses
• Sectoral
• Ecosystem
• Socio-economic
Entry Points Institutional Define Study Coordination &
Prepare and
Area Integration
Endorse the
Plan
Trade-offs,
Modelling,
Conflict Analysis
Ecological Funding Compile Data Monitoring &
Evaluation
Cross-Cutting Considerations: gender, climate change, biodiversity
Source: Caldow 2015.
Each section focuses on the specific needs of the World Bank
to undertake the needed actions and directs users to additional
resources for broad or generic actions and considerations
where appropriate.
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Marine Spatial Planning for a Resilient and Inclusive Blue Economy: Key Considerations to Formulate and Implement Marine Spatial Planning 13
3.
Marine Spatial Planning
Entry Points
3.1
Introduction
Marine spatial planning is increasing globally (Frazão Santos et
al. 2019). Yet there remains considerable scope for introducing
MSP in developing countries (Figure 3.1). This is especially true
where a Blue Economy is contributing to a country’s sustainable
development. MSP brings a major shift from managing marine
resources and areas on a sector basis to an integrated approach
across sectors. It considers climate change and biodiversity.
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This shift often requires changes in the distribution of government
financial and human resources to coordinate various sectors.
Governments may perceive the changes as too costly, while
the private sector may feel MSP has too much investment risk.
Resistance may also come from individual ministries that perceive
a loss in power and resources. There is still the need for sector
management, however. Indeed, balancing each sector’s needs in
a limited space with finite resources is a key MSP function. Task
team leaders can address these and other perceptions by finding
the entry points with clients as well as obtaining key information
to make the case for MSP.
Figure 3.1. Distribution of MSP initiatives
MSP approved for the MSP approved only for
MSP underway No MSP
entire national space specific areas within
the national space
Source: Frazão Santos et al. 2019.
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VOL . 1 2 CH. ES 1 2 3 4 5 6 7 8 MSP ENTRY POINTS 15
Writing a marine spatial plan often begins after much research
and lobbying by various stakeholders. In some cases, finding the
entry point to make the case can be a precursor to starting MSP
(Figure 3.2). That is the focus of this section of the guide.
Figure 3.2: Making the Case for MSP
Marine Spatial Planning Process Adjustments
MAKING
ENABLING PLANNING IMPLEMENTATION
CONDITIONS
THE CASE
REVIEW
Economic/ Regulatory Define Goals & Various Studies Investments
Social Benefits Objectives and Analyses
• Sectoral
• Ecosystem
• Socio-economic
Entry Points Institutional Define Study Coordination &
Prepare and
Area Integration
Endorse the
Plan
Trade-offs,
Modelling,
Conflict Analysis
Ecological Funding Compile Data Monitoring &
Evaluation
Cross-Cutting Considerations: gender, climate change, biodiversity
Source: Caldow 2015.
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3.2
Country or
Local Office Role
The entry point for initiating an MSP dialogue with clients
depends on factors unique to the country at hand. Along with
technical staff from each sector, the country or local office can
provide specific information, including the local context for overall
MSP decision making and the relevant sectors. A diagnostic
overview of existing information on the key marine sectors can
help identify entry points. The goal is to understand how to
increase the value or benefits to the sectors using a marine spatial
plan. These benefits can be more than increased wealth. They can
include climate resilience, improved biodiversity, and lower
pollution. This information can also advance understanding of the
losses that may result from inaction—from not using MSP. Overall,
understanding the pathways or mechanisms will help inform
clients on how MSP can be an efficient and effective tool to realize
these benefits.
3.3
Economic Entry Points
There are economic tools and concepts that can support
identifying key entry points for MSP, which in turn can support
advancing the Blue Economy (Table 3.1).
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Table 3.1: Economic Tools and Concepts for Identifying Entry Points for MSP
Key Economic Economic Tools What it tells you Data Sources
Question(s) & Concepts
• What is the value of the marine • Make non- • Highlights the importance of the ocean • Standard system of national
sector currently and given market valuation as an engine of economic growth and accounts (SNA)
potential growth – what is assessments. development: contribution to GDP, • Disaggregated data by sector
the value of that growth? Is it •
Identify externalities social outcomes. • Economic reports/studies for
sustainable? using a systemic • Emphasizes that oceans are more the area of intervention
• How is this value distributed? approach to MSP, than fish stocks: untapped wealth and • Global datasets on social,
• Is the business-as-usual with particular multiple ES. ecological, and economic
relationship with the ocean focus on land-sea • Shows the importance of traditional indicators
sustainable? interactions. sectors and business opportunities for
• What is the potential for the •
Create an impact emergent sectors.
MSP to improve climate change pathway to identify • Changes needed in business-as-usual
mitigation and adaptation mechanism affecting relationship with oceans for sustainable
outcomes? the achievement development growth.
• What is the potential to of MSP goals, and
improve biodiversity and leverage points
ecosystem services’ outcomes? and associated
interventions.
•
Identify key
economic actors.
Source: Applying Economic Analysis to Marine Spatial Planning.
Analyses of this information will help point out sectors that have
the greatest potential for increased value and benefits. They can
be the entry point, forming the basis of a discussion with clients
and helping make the case for MSP (Figure 3.2). The entry point
may be a single sector, multiple sectors, or the Blue Economy
concept overall.
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4.
Marine Spatial Planning
Making the Case
4.1
Introduction
Many countries made commitments at the first UN Oceans
Conference to advance the Blue Economy and to use MSP
to achieve this objective. Increasingly, World Bank clients are
approaching the Bank for assistance in the two endeavors.
In these situations, the entry point for making the case and further
development of marine spatial plans is clear. For other clients and
countries, establishment of the entry points must happen before
making the case and is the first key step to initiating the MSP.
This is the focus of this section (Figure 3.2).
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4.2
Addressing Country
Concerns
The key argument to clients for using MSP is its strategic value
in de-risking and leveraging sector-specific portfolios. An
MSP can resolve conflict issues and environmental and social
development concerns well upstream from major public and
private investments. In an MSP process, stakeholder engagement
at national and local levels and especially for present and future
marginalized or vulnerable groups assures that all voices are
heard. Stakeholders are engaged from the beginning of a process
that brings to light conflicts over access to marine resources
and the need for biodiversity conservation (Biodiversity and
Ecosystem Services Section 13) and building climate resilience
(Climate-Informed MSP Section 12). The MSP process uses a
range of tools to address conflicts. It finds a balance between
stakeholder needs while ensuring sustainable use of marine
resources and the wide distribution of benefits. This upstream
MSP work includes analyzing multiple sectors together to
prepare for downstream investments in existing and emerging
sectors. An endorsed marine spatial plan deals up front with
most potential conflicts and the main environmental and social
issues and allocates areas for sector-specific development.
The plan gives private investors and public sector agencies a
welcome degree of certainty for access to resources and for
infrastructure investments.
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4.3
Making the Economic
Case
Making the economic case is a powerful argument for clients
to invest in the MSP process and plan implementation, as was
seen recently in Georgia (Box 4.1). Indeed, a solid understanding
of the economics underpinning the allocation of resources is a
prerequisite for sustainable finance for MSP and implementation.
An economic case highlights the tangible and quantifiable
benefits, demonstrates the effectiveness of MSP to improve
economic and environmental outcomes, enhances transparency
and accounting for how marine ecosystems benefit human well-
being, and increases financial flows into marine spatial plans and
their implementation.
Box 4.1:
Making the Case for MSP in Georgia
The World Bank recognized that tourism in Georgia had in the sector is also vulnerable to climate change and
remained a development priority for years even as governments environmental degradation.
changed. The importance of this sector is clear – it is one of the
biggest employers in the country, creates considerable and This was the entry point for the World Bank to discuss the Blue
steadily increasing revenue for the government, and is a big Economy and use of MSP to realize the country’s aspirations
area of investment both domestic and foreign. The World Bank in tourism and other fields. The coastal and marine areas of
used tourism to demonstrate to Georgian decision-makers how Georgia also host other economic activities such as agriculture,
MSP could increase the economic return from tourism while shipping and ports, and oil transit terminals. Marine areas also
improving the sustainability of the sector over the long term. have specific sites of conservation, which, if well managed,
could be used for low-impact tourism. The risks of one sector
Georgia’s tourism industry is vulnerable – the short coastline undermining the economic success of another was pointed
and small marine area are the focus of high numbers of out, along with the role of MSP in avoiding that risk. Georgia is
tourists year-round, and the demand is growing. Growth reducing this risk by formulating a marine spatial plan.
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There are gaps to close in making a compelling economic case:
GAP 1: Trade-offs between competing uses are seldom subjected
to an economic analysis as part of MSP design. The distributive
impacts on key stakeholders (e.g. income, gender, and indigenous
groups and migrants) are not properly accounted for.
GAP 2: The value of externalities is not properly accounted in the
MSP process. Negative externalities, especially those generated
in decisions about coastal land, are not explicitly included in MSP,
though they have welfare implications for vulnerable groups
of society (e.g. small-scale fishers or tourism entrepreneurs). In
addition, positive externalities are typically undervalued, leading
to underinvestment in ocean natural capital.
GAP 3: Long-term consequences, risk, and uncertainty are an
intrinsic component of MSP design and implementation, yet there
is insufficient scenario analysis and risk assessment.
GAP 4: MSP implementation often has inadequate monitoring
and evaluation.
GAP 5: Decision makers may lack behavioral insights to
understand compliance with MSP regulations and perverse
incentives.
GAP 6: Innovative financial mechanisms to encourage
transformation of traditional sectors and emergence of new ones
are often in short supply.
For this step of MSP, there are economic tools that can support
making the case (Table 4.1).
The World Bank note “Applying Economic Analysis to Marine
Spatial Planning” provides a detailed discussion of these gaps and
the economic instruments that can close them to strengthen the
economic case for MSP.
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Table 4.1: Economic Tools and Concepts for Making the Case for MSP
Key Economic Economic Tools What it tells you Data Sources
Question(s) & Concepts
• Do the proposed MSP • Identify potential • How to determine the societal and • Costs of proposed
investments offer benefits that win-win situations private desirability of intended interventions (e.g. budget for
exceed the implementation and inevitable trade- investments and regulations. enforcing MPAs, monitoring
costs? offs and analyze them • How to build business cases to booster systems to deter illegal
• Who will be the winners using cost-benefit MSP finance. fishing)
and losers? analysis from a social • The best spatial and temporal allocation • Ecological and social data to
• What is the cost of inaction? perspective with of resources, with attention to the estimate baseline scenarios
• What are the most important prices that reflect existing economic tradeoffs, as well as • Characterization of
trade-offs in economic terms? both private and environmental and social goals. beneficiaries (e.g. economic
• What are the business external costs, and • How to Increase engagement of activities), avoided costs on
opportunities offered by MSP? discount future costs stakeholders through a transparent potentially damaged civil
• What are the economic and benefits using a decision-making based on robust infrastructure
benefits for government and social discount rate. economic data. • Living Standards
society from MSP investments? • Account for all • How to help identify vulnerable groups Measurement Studies
sources of value, affected negatively by planning
including indirect scenarios and to propose options to
values, intrinsic mitigate these impacts.
values, and social
goals that go beyond
pure efficiency
concern.
• Analyze the
distributive impact
of alternative MSP
designs to identify
who benefits and who
bears the cost under
alternative scenarios.
• Complement with
qualitative insights
and participatory
assessments.
• Conduct cost-
effectiveness
analyses.
Source: Applying Economic Analysis to Marine Spatial Planning.
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4.4
Making the Social Case
Marine spatial planning can help deliver effectively and efficiently
a range of public goods and services, most of which qualify as
ecosystem services. The major ecosystem services—provisioning,
regulating, and cultural (Böhnke-Henrichs et al. 2013) –are
accounted for in a marine spatial plan that integrates the
various sectors and includes key elements such as biodiversity
conservation and climate change resilience. Other elements such
as zoning, regulations, and policies within a marine plan enable
the delivery of public goods and services (Table 4.2). The table
below is not an exhaustive list of ecosystem services, but gives an
indication of those that might apply to a marine spatial plan.
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Table 4.2: Key Elements of a Marine Spatial Plan to Support Public Goods and Services Delivery
Key Elements in MSP
Goods / Service Zoning Regulation Permit Policy
Provisioning
Food Security
Ports/landings
Shipping Lanes
Genetic/Medicinal Resources
Renewable Energy
Regulating
Climate Change
Erosion Control
Cultural
Recreation
Heritage
Educational
Supporting
Biological Diversity Maintenance
Source: Kay and Alder 2005; Böhnke-Henrichs et al. 2013.
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Provisioning services , such as access to fishing for small-scale
fishers, construction of ports and landing facilities, and allocation
of space for shipping routes and wind turbines, are often best
accomplished through zoning and regulations. Many sectors
which are geographically focused already have regulatory
frameworks and permitting or licensing systems and are used to
complement the zoning plan (Box 4.2). Legislative or regulatory
reforms are often made early in implementation when regulations
are missing. Generally, regulations are the most appropriate
mechanisms to ensure regulating services , which include climate
change, mitigation and adaptation, and erosion control. Zoning
is less effective for these services because climate change and
erosion are geographically widespread. Including provisions
in each zone is expensive and less effective than plan-wide
regulations or policies, especially if they already exist. Where they
are lacking, there is a need for new instruments either within the
sector or within the MSP. Recreation, heritage, and education
are site- or geographically-focused, resulting in these cultural
services often being delivered through zoning mechanisms.
Biological diversity maintenance, which is a cross-cutting support
service for the above three services, encompasses all elements
of a marine spatial plan. All the above instruments are used to
preserve biodiversity.
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Box 4.2:
Belize Coastal Plan Based on Ecosystem Services
Belize, with the second-longest unbroken reef system in the In 2010, work began on an ecosystem-based plan intended to
world, is renowned for its marine tourism. The tourism sector sustainably develop coastal resources for the current and future
drives construction of new coastal developments, airports, benefit of all Belizeans. The planning process used Integrated
urban areas, and cruise ship ports. The coastal ecosystems Valuation of Environmental Services and Tradeoffs (InVEST)
also support a number of commercial, recreational, and to formulate a management plan that was scientifically and
subsistence fisheries. economically sound. Ecosystem service modeling and mapping
were employed to identify the location, extent, and intensity of
human activities that could be adjusted to improve ecosystem
service outcomes (Figure 4.1).
Figure 4.1. Informed Management Scenario in Belize that Blends Conservation Goals with Current and Future Development Needs
and Marine Uses
Aquaculture Fishing
Marine Marine
transportation recreation
Coastal Agricultural
development run-off
Oil
exploration Dredging
Source: Rosenthal et al. 2013.
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4.5
$
Funding for Making
the Case
Funding for upstream analytical work may come from sources
such as non-government programs, impact investments, and
government grants. Bank sources include trust funds such as
PROBLUE or resources as an Analytics and Advisory Service (ASA)
at the country or regional level. Other possible sources include
Investment Project Financing (IPFs), GEF, Green Climate Fund,
partnerships with other institutions, and international donors.
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5.
Marine Spatial Planning
Enabling
Conditions for
Effective MSP
5.1
Introduction
Marine spatial planning is a process made up of several
actions and elements (e.g. objectives, resources, zoning plan)
that together result in an effective management plan. When
key elements—the enabling conditions—are present, they
can facilitate plan formulation and effective implementation
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(Erickson, Caldwell, and Koehn 2014). Establishing the enabling
conditions for MSP can also support the enabling conditions
for a Blue Economy. For example, regulatory changes that help
MSP may also facilitate other Blue Economy actions. It is not
necessary that all enabling conditions be in place to begin plan
formulation. Some can be established during plan formulation or
implementation (Figure 5.1).
Figure 5.1. Enabling Conditions in the Context of MSP
Marine Spatial Planning Process Adjustments
MAKING
ENABLING PLANNING IMPLEMENTATION
CONDITIONS
THE CASE
REVIEW
Economic/ Regulatory Define Goals & Various Studies Investments
Social Benefits Objectives and Analyses
• Sectoral
• Ecosystem
• Socio-economic
Entry Points Institutional Coordination &
Define Study
Prepare and Integration
Area
Endorse the
Plan
Trade-offs,
Modelling,
Conflict Analysis
Ecological Funding Monitoring &
Compile Data
Evaluation
Cross-Cutting Considerations: gender, climate change, biodiversity
Source: Caldow 2015.
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Reviews and studies of MSP have highlighted what the authors
consider to be the key enabling conditions (Table 5.1). The five
that are highlighted in the table are the most relevant for
the World Bank.
Table 5.1: MSP Enabling Conditions identified in Each Study or Tool Kit (Shaded Rows Indicate Most
Frequently Identified Enabling Conditions)
Enabling Condition Convention Erickson et al UNESCO-IOC/ UN Environment FSAT Tool
on Biological (2014) European (2018)
Diversity (2014) Commission
(2021)
Legal
Framework
Public Sector
Institutional Functional Review;
Framework Functional Role
Matrix
Political
Engagement
Stakeholder
Stakeholder
Mapping:NetMap
Participation
Public Expenditure
Financial
Review
Resources
Survey of Public
Human
Employees
Capacity
Firm
Deadlines
Trust
Good Data
& Tools
Source: CBD 2014; Erikson et al. 2017; UNESCO-IOC/European Commission 2021; UN Environment 2018.
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This section looks at legal and institutional frameworks and
financial enabling conditions, while the cross-cutting sections in
Volume 2 examine stakeholder engagement (Section 9) and data
and tools (Section 10). The previous section, Making the Case,
discusses social enabling conditions and political support. There
are also tools in the Fisheries Sector Assessment Toolkit (FSAT)
that can help World Bank staff evaluate some of these enabling
conditions (Table 5.1).
If one or more of these enabling conditions are not present,
the investment may still advance. However, early interventions
and investments can establish or strengthen these conditions by
the time project approval occurs, to ensure a solid foundation for
MSP planning and implementation.
5.2
Legal Frameworks
An effective legal framework for MSP should accomplish as many
of the following elements as possible (Erickson et al. 2014):
1 Clarify and mandate the roles of appropriate institutions
and jurisdictions to plan, implement, enforce, and monitor a
marine spatial plan.
2 Articulate an enforceable accountability mechanism to
ensure appointed parties meet their legal mandates.
3 Unite the common goals, priorities, and objectives of the
marine spatial plan to give a clear rationale for the MSP process.
4 Specify the use of best available and emerging scientific
information to guide and inform plan formulation and
subsequent revisions.
5 Identify mechanisms for conflict reduction and resolution,
decision grievances, and management coordination.
A clear legal mandate can also specify the scope and scale of plans
and planning processes, time frames for planning to take place, and
the duration of a plan. Legal frameworks often facilitate formation
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of other enabling conditions such as stakeholder engagement.
They can also identify and secure the funding mechanism needed
for development and implementation of the plan (Table 5.1).
A legal review is suggested early in the MSP process to determine
the legal basis for undertaking the process and to identify key
sectors and their legal frameworks that can assist in planning and
implementation (Box 5.1). The legal review can also help inform
work on the valuation of marine resources and sectors (see Making
the Case, Section 4) and highlight the challenges to private sector
investments (Box 5.2). If clients already have regulatory frameworks
for MSP, the above checklist can inform the review of the legislation
and regulations. If no regulatory framework exists, there is a
need to support development or strengthening of the regulatory
framework as an early project activity. Publications such as
Planning Legislation for Implementation: A Guide for Legal Drafters
(O’Connor and Oehler 2020) provide detailed help on drafting the
appropriate legal instruments for effective marine spatial planning.
Box 5.1:
South Africa: Operation Phakisa
South Africa’s Operation Phakisa, established in 2014, included oceans as
part of the country’s national development plan to 2030. The Operation also
committed to undertake MSP to ensure sustainable marine use and provide
guidance on trade-offs between competing users (Republic of South Africa
2014). However, the government could not advance MSP until a legislative
framework was created (Findlay 2018), which happened in 2019.
The Marine Spatial Planning Act 16 of 2018 provides for:
• a framework for marine spatial planning in South Africa.
• the development of marine spatial plans.
• institutional arrangements for implementing marine spatial plans and
governance of the use of the ocean by multiple sectors.
• other related matters.
The Cabinet has designated the Department of Environmental Affairs (DEA)
as the coordinating department for MSP in South Africa. A National Working
Group comprises representatives from government departments and will
develop and implement marine spatial plans (South Africa 2019). Details of the
Marine Spatial Planning Act can be found at https://www.gov.za/documents/
marine-spatial-planning-act-16-2018-6-may-2019-0000-0
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Box 5.2:
Facilitating Offshore Renewable Energy in the Seychelles
Opening up electricity generation, including offshore wind turbines, in the
Seychelles to Independent Private Producers (IPPs) required an amendment
of the electricity market regulations (Ministry of Home Affairs, Environment,
Transport, and Energy 2011). In 2010, the government established the
Seychelles Energy Commission, which manages IPPS and removed tariff
regulations on all imports of renewable energy technology (Seychelles Energy
Commission 2014). These changes facilitated the construction of an offshore
wind farm with an installed capacity of 6 MW. Operated by a private company,
the facility supplies 2,100 households with electricity and avoids 5,845 tons of
CO2 emissions per annum (IRENA 2016).
5.3
Institutional Frameworks
In MSP, the institutional component encompasses the human
behavior and relationships that exist in the marine community,
which comprises government, non-government, and academic
institutions. These institutions have different mandates and
different responsibilities. Without a coherent plan, it is impossible
to coordinate or manage all of them (Yatim et al. 2018). Therefore,
an effective MSP process and plan needs to lay out who handles
what aspects of managing ocean use, including existing and
emerging sectors. It is also important too to establish which
agency has the mandate for overall coordination, management,
implementation, and monitoring of MSP.
Some client countries may already have mandated an institution
to coordinate and manage the MSP process. Or the legal
framework for MSP may provide for the needed institution. In
other situations, however, there may be a need to identify the
institution. Tools such as Public Sector Functional Review and
Functional Role Matrix (Table 5.1) can help in this task. Other
tools, such as the Institutional Analysis and Development (IAD)
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Frameworks (Table 5.2), may aid in understanding connections
among institutions in order to propose a lead agency for MSP
and identify other agencies that should participate in the
process (Yatim et al. 2018). The institutional review should not
exclude the private sector, especially representative industry
groups and financial or investment institutions. These are key
to implementation.
Table 5.2. Institutional Analysis and Development (IAD) Rules with Explanations
Rules Explanation
Set of positions or roles, which are held by different types of participants in an
Position Rules
action situation.
Specify how the actors are chosen to enter or leave these positions, thus influencing the
Boundary Rules
number, attributes, and resources of the participants.
Specify what actions assigned to an actor in a position are allowed, obliged, and prohibited.
Choice Rules
In this way, these rules directly determine responsibilities, rights, and freedom.
Determine how decisions are made in an action situation. Specifies who will be involved
Aggregation Rules in the choice and how much each actor’s decision could contribute to the transformation
function from actions to intermediate or final outcomes.
Specify the potential outcomes that can be affected and, working backward, the actions
Scope Rules
linked to specific outcomes.
Specify what information is available to each position; these rules affect the channels of
Information Rules
communication among the participants.
Affect the benefits and costs that will be assigned to particular combinations of actions and
Payoff Rules
outcomes, and they establish the incentives and deterrents for action.
Source: Yatim et al. 2018.
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The institutional review may also consider the capacity of each
institution to participate in each step of the MSP process. Having
legal and institutional frameworks in place is key to effective MSP.
Otherwise, important risks emerge (Box 5.3). These include lack
of ownership of the marine spatial plan, lack of implementation
once the planning ends, and sub-optimal decision making for
sustainable use of marine resources.
Box 5.3:
Institutional and Legal Analyses of 3 Atlantic Tropical Countries
Brazil Senegal Cape Verde
Interministerial Commission Ministry of Fisheries and Ministry o Maritime Economy,
(CIRM) responsible for the Maritime Economy Directorate General for
Institutional coordination of maritime Maritime Economy (DGEM)
Framework polices and MSP. Includes with a mandate to develop
(main 13 ministries and the navy MSP
institution) headed by the President of
Republic with mandate to
develop MSP legal basis.
Legal and political base Political base grounded on Legal and political base
grounds on maritime policies maritime policies with a grounds on maritime policies
with a sectorial approach sectorial approach. Spatial and blue economy with an
Legal
including ICZM and maritime planning legal framework intersectoral approach. Spatial
framework
conservation. including MPAs. No decision or planning legal framework
mandate attributed to develop include ICZM and MPAs.
MSP.
25 October 2007 25 October 1984 10 August 1987
UNCLOS
ratification
Source: Guerreiro et al. 2021.
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5.4
Financial Resources
Financing of some aspects of MSP, including enabling conditions,
may be possible using instruments such as investment projects,
impact investments, specific budget allocations and grants from
government departments, and assistance from nongovernment
sources. Some countries may want to consider World Bank
instruments such as ASAs, development policy operations (DPOs),
and IPFs. Many countries will need to invest public funds to
complete the MSP process, especially implementation of the plan.
One tool for identifying possible public sector funds is a Public
Expenditure Review 2, which yields details and insights into how
government allocates funds to various marine-related programs
and agencies. Reliable financial information is important to the
design of the MSP process and to inform interventions, especially
public investments, as part of implementation of the plan.
Private sector financing is also important in putting enabling
conditions for MSP in place. Instruments such as blue bonds,
impact investing, and insurance schemes can contribute. However,
enabling conditions for financial instruments are context-specific
and require decisive support from various government entities.
Moreover, to access investment in traditional and emergent
sectors in the Blue Economy, the conditions need to be permanent.
Reports from Friends of Ocean Action (Friends of Ocean Action
2020) and the High Level Panel for a Sustainable Ocean Economy
(Sumaila et al. 2020) provide a comprehensive description of
the enabling conditions for financing the transition towards a
sustainable Blue Economy. The main elements of these reports are
illustrated in Figure 5.2. The World Bank note Applying Economic
Analysis to Marine Spatial Planning summarizes these elements.
2 Public Expenditure Review Guidance Note:
https://documents1.worldbank.org/curated/en/789491639977748921/pdf/Blue-
Public-Expenditure-Review-Guidance-Note.pdf
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Figure 5.2. Enabling Conditions for MSP Finance
Marine Spatial Planning
Finance
Redirecting Universal
perverse subsidies framework
Risk Data &
mitigation Knowledge
Appropriate
environmental policies
Source: Sumaila et al. 2020, Ocean Fox Advisory, and Friends of Ocean Action 2020.
$ 5.5
World Bank Investment
Considerations
Understanding the status of enabling conditions (Table 5.1) is of
prime importance to the World Bank. It is vital to grasp economic
conditions at the start and what will need to be put in place before
or during planning. There are tools and concepts that can sharpen
understanding of current and future economic conditions at the
MSP enabling step (Table 5.3).
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Table 5.3: Economic Tools and Concept for MSP Enabling Conditions
Key Economic Economic Tools What it tells you Minimum Data Needs
Question(s) & Concepts
• What type of property rights • Make accessible and • Provides information on the transaction • Public and private sources of
needs to be created and efficient insurance costs for implementing MSP. funding for marine activities
enforced? products part of the • Creates enabling conditions for • Institutional arrangements
• What is the cost of enforcing MSP design itself redirecting governmental funding and and technical and human
property rights? whenever risk cannot attracting private investors to sustain capacity
• How to increase investors´ be addressed by the transformation of traditional • Regulatory information on
confidence in Blue Economy other means at a sectors and the emergence of new public services
projects by mitigating risks? viable cost. ones. Traditional governmental sources
• Are there perverse subsidies • Deploy blended of funding are likely insufficient for
promoting unsustainable capital alternatives implementing all ambitious activities
practices? if they can make embedded in most MSP processes.
• Is public expenditure investments in
insufficient to achieve MSP high-risk emerging
goals? industries more
• Do opportunities to generate attractive for the
public revenues or to correct private sector.
negative externalities via fees • Use existing tools
or taxes exist? (e.g. a Public
Expenditure
Review) to diagnose
and increase
the efficiency of
governmental
expenditures.
Source: Applying Economic Analysis to Marine Spatial Planning.
As noted above, if these conditions already exist or are established
early in the MSP process, the likelihood of transformational
change is higher. There is the added benefit of reducing risks
for private investments mobilized by the IFC. This ensures that
the World Bank’s and clients’ investments in marine sectors
will be more successful for GRID and contribute to improved
prosperity for coastal communities. Effective investments will
also enable clients to meet biodiversity and climate change
commitments and improve gender outcomes in their sustainable
development initiatives.
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6.
Marine Spatial Planning
Formulating
Marine Spatial
Plans
6.1
Introduction
The previous sections have provided guidance on identifying entry
points, making the case, and ensuring that enabling conditions
are in place for writing and implementing a marine spatial plan
(Figure 6.1). Planning can also support delivering Blue Economy
objectives in one or more sectors. Potential Blue Economy
investments may also be identified during plan formulation.
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Figure 6.1: Planning Activities in MSP
Marine Spatial Planning Process Adjustments
MAKING
ENABLING PLANNING IMPLEMENTATION
CONDITIONS
THE CASE
REVIEW
Economic/ Regulatory Define Goals & Various Studies Investments
Social Benefits Objectives and Analyses
• Sectoral
• Ecosystem
• Socio-economic
Entry Points Institutional Coordination &
Define Study
Prepare and Integration
Area
Endorse the
Plan
Trade-offs,
Modelling,
Conflict Analysis
Ecological Funding Monitoring &
Compile Data
Evaluation
Cross-Cutting Considerations: gender, climate change, biodiversity
Source: Caldow 2015.
Digital platforms such as https://www.openchannels.org and
publications such as the UNESCO Step-by-Step Approach
(UNESCO-IOC/European Commission 2021) are often cited by
people working on MSP projects as comprehensively detailing
the steps to produce a marine spatial plan. Planning approaches
follow the general rational model for spatial planning used in other
sectors, such as regional and urban planning (Buhl-Mortensen et
al. 2017) and integrated coastal zone planning (Figure 6.2). Rather
than providing detailed descriptions from other publications for
each step in developing a plan, this section will focus on good
practices and lessons learned in planning and their relevance in
World Bank operations, especially for investments.
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Figure 6.2: Rational Planning Process
Problem Goal and Alternative Plan Implementation Evaluation
Identification Objectives Strategies
Estimated Impact
Source: Alexander 1998.
This guidance note targets World Bank staff and clients involved
in MSP. It assumes they are familiar with the World Bank’s Project
Management Cycle, including the results framework, monitoring
and evaluation, and relevant terminology. Readers can refer to
these platforms and publications for detailed descriptions of
each step of the MSP process, links to data, specific tools, best
practices, and other resources. For further information on the
World Bank’s Project Management Cycle, see the World Bank
Project Website3.
3 https://www.worldbank.org/en/projects-operations/products-and-services/
brief/projectcycle
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Formulating the plan, identifying the problems, setting goals
and objectives, and analyzing existing and future alternatives
require effective stakeholder engagement at national and local
levels, especially for present and future marginalized or vulnerable
groups. It also needs sound data, information, and tools. It is worth
re-iterating a statement from the Secretariat of the Convention
on Biological Diversity and the Scientific and Technical
Advisory Panel 2012:
Strategic goals, that define needs to
achieve the vision of marine spatial
planning, are somewhat more general
than objectives in MSP processes.
The most effective plans are those
developed in response to very clearly
stated, very specific objectives, derived
to the maximum extent possible from
stakeholders through participatory
planning. Measurable success
occurs when objectives have metrics
associated with them, with agreed upon
indicators and targets.
Section 14 of this note, Monitoring and Evaluation, provides
information on indicators.
1 2 6.2
MSP Planning in
4 3 World Bank Operations
The guidance mentioned above provide detailed descriptions of
the actions needed in these steps. Volume 2 of the current note
provides more detail on stakeholder engagement (Section 9), data
and tools (Section 10), and monitoring and evaluation (Section 14)
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that are specific to World Bank operations. Problem identification,
goal setting, and analysis of current and future conditions are
usually not part of World Bank operations. But they are of interest
since the Bank can provide information, especially economic,
on current and future situations from its various data portals.
The Bank can also deliver technical assistance in using certain
tools to analyze current situations and alternative futures.
The planning process is the most advanced stage that many MSP
projects have reached. Planning experience and lessons learned
are therefore richer compared to implementation (Figure 6.3).
A review of more than 15 peer-reviewed articles spanning the
years 2008 to 2020 revealed several lessons for plan formulation.
An important one is to conduct an early strategic environment
assessment (SEA 4) before beginning plan formulation, as
demonstrated in Portugal (Frazão Santos et al. 2015) and the
Caribbean (Jessamy 2018). The assessment can improve the
socio-economic and environmental requirements of the process
even before planning starts. These improvements can strengthen
baseline information, decision making, and proposed solutions
and development scenarios (H. Calado et al. 2010). Many of the
documented experiences and lessons learned in these articles
concern regulatory and institutional frameworks, goal and
objective setting, stakeholder engagement, and data and tools.
4 Further detailed guidance for SEA is available at https://www.oecd.org/
environment/environment-development/37353858.pdf
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Figure 6.3: Number of Countries at Different Steps of Marine Spatial Planning in 2017
Preplanning
Africa
Analysis for planning
Asia
MAIN PHASE OF MSP
1 2
Plan development Americas
1 2
Plan completion Europe
4 3
2
Oceania
1
Approval
4 3
Middle East
Implementation
Revision
0 5 10 15 20 25 30 35
NUMBER OF COUNTRIES/TERRITORIES
Source: Frazão Santos et al. 2019.
Box 6.1:
Missing a Clear Legal Many of the lessons learned over the last 10-plus years underline
Framework: Challenges
that a well-defined legal or regulatory framework and process are
in Indonesia
key to keeping MSP moving forward. Experiences from developing
countries such as Indonesia (UN Environment 2018) and high-
The Ministry of Marine Affairs and
income countries such as Canada (Flannery and Ó Cinnéide 2012)
Fisheries administered spatial planning
in Indonesia until 2015. There was little demonstrated that without clear legal frameworks, ministries and
legislative guidance on stakeholder the private sector are reluctant to engage in integrated planning
engagement and the associated
and implementation (Boxes 6.1 and 6.2). This reluctance confirms
permit system. This resulted in ad hoc
engagement of stakeholders, especially that the institutional framework needs to facilitate inter-agency
other ministries, creating long delays coordination (Soriani et al. 2015).
in plan endorsement and reluctance
to implement plans. MSP legislation
revisions in 2017 provided more
structure and guidance. This included
provisions for public participation
and guidance on how to collect
data, identify zones, and implement
the plan (UN Environment 2018).
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Box 6.2:
Incomplete Legal Framework Impedes Implementation:
Scotian Shelf (Canada)
Canada’s Ocean Act of 1997 mandates the Department of Fisheries and
Oceans (DFO) to develop and implement integrated ocean management
plans. However, the act does not mandate DFO to regulate related activities.
Rather, it expects other regulatory authorities to support implementation by
ensuring decision making is consistent with plan objectives and strategies.
A key lesson is the need for policy measures that oblige participants in
MSP processes to implement the plans. Another lesson is the need for lead
agencies to have the appropriate regulatory competencies (Flannery and
Ó Cinnéide 2012).
Policy integration consists of making strategic and administrative
decisions aimed at solving complex problems, which is distinct
from policy coordination and coherence (Cejudo and Michel
2017). Vince and Day (2020) provide a framework for effective
integration in MSP using 12 principles (Table 6.1) and note that
emphasis on different principles of the framework will vary with
the conditions and needs of each planning area and process.
The authors, however, considered integrative capacity as the
key principle for successful integration in MSP. They describe
integrative capacity this way: “institutions and government
agencies have the policy coordination and policy capacity to
be integrated, anticipate policy demands and develop effective
solutions.” According to Cejudo and Michel (2017), integrative
capacity occurs on three levels: (1) capacity is limited, (2) capacity
exists to design and modify the operation, including reallocating
responsibilities and resources and (3) power exists to use and
change existing instruments.
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Table 6.1: Principles for Effective Integration
Consideration Description
1. Cross-sectoral MSP needs to be cross-sectoral and specified: Cross-sectoral coordination requires an open and
consultation between all the multiple sectors, which can bring innovative solutions to issues and
increase the exchange of knowledge.
2. Cross-cultural Free, prior, and informed consent is needed for recognized rights-holders and others with tenure
or traditional use relationships within or next to the planning area, before taking any planning or
management actions. When traditional knowledge and Indigenous perspectives integrate with
Western science, both can contribute substantially to the latest scientific understanding.
3. Intra-agency There is a need for effective integration (‘the left hand knowing what the right hand is doing’ )
(within relevant agencies) especially for very large government agencies. This leads to increased coordination/cooperation,
improved service, greater efficiency, less duplication, and lower costs.
4. Intra-governmental Calibration meetings with all potential management agencies can clarify management mandate
(between-agencies within same of each agency.
government)
5. Cross-jurisdictional/ inter-governmental Cross jurisdictional and inter-governmental relationships can contribute to integrative
success in MSP.
6. Inter-generational Integrated policies need to consider that decisions made today will have consequences for future
generations, e.g. the continued depletion of natural resources that continues today, will probably
be a burden for future generations.
7. Cross disciplinary/ interdisciplinary There is a need for people to work together, integrating knowledge and methods from different
disciplines, using a real synthesis of approaches. Integrative or socially inclusive approaches are
more complex but are more pragmatic and therefore likely to be more effective.
8. Broad scale Managing entire ecosystems, seascapes and ocean corridors requires integration and can
lead to resilience. This is accomplished by protecting a wide range of habitat types that are
geographically widespread.
9. Social capital There is a need to understand the ecosystem in an economic and social context, while promoting
sustainable use, and internalizing costs and benefits. Resilient communities can strategically use
their social networks to gain access to resources beyond the community.
10. Include place-based values Integrating the cultural and spiritual values, and the raw materials that are the foundation of
humanity’s well-being, provides important links to wider social issues.
11. Consider cumulative impacts Cumulative impacts include direct impacts, indirect impacts, and consequential impacts.
Understanding cumulative effects improves the information on the degree of pressure or impact
that is sustainable and will meet conservation objectives.
12. Integrative capacity Institutions and government agencies have the policy coordination and policy capacity to be
integrated, anticipate policy demands and develop effective solutions.
Source: Vince and Day 2020.
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Comprehensive guidelines for formulating the needed regulatory
framework are offered in the recent publication Designing Marine
Spatial Planning Legislation for Implementation: A Guide for Legal
Drafters (O’Connor and Oehler 2020). It lays out details of a potential
structure for MSP legislation and how to specify the planning area,
activities, zones, stakeholder engagement, financing, enforcement,
and compliance, among other issues (Figure 6.4). Similarly, the
report Policy Options for a Bermuda Nearshore Marine Spatial
Planning Process is a comprehensive discussion on relevant legal and
institutional frameworks options for the government (Porter 2016). The
study suggested the government consider two main policy options
for development of a marine spatial plan in Bermuda. Option 1 was
an interdepartmental approach and without enacting new legislation
and potentially a first step towards MSP. Option 2 was legislative and
would build on Bermuda’s existing planning framework, assigning
overall authority for MSP to the Department of Planning (Option 2A)
or to the Department of Environment and Natural Resources
(Option 2B). Both are in the Ministry of the Environment. The study
also suggested amendments to key Bermuda legal frameworks
(e.g. protected species, maritime cultural heritage, energy. and
aquaculture) to better support MSP implementation (Porter 2016).
Figure 6.4: Example of Structure and Scope of Potential MSP Legislation (part 1)
Part 1. Part 2. Part 3. Part 4.
Preliminary Institutional & Marine Spatial Public
Administrative Planning Participation
& Access to
Information
Short Title Government Coordination Plan Elements & Criteria What Information is
Definitions (Interpretation) & Administration Zones Public?
Scope of the Law Marine Advisory Body) Plan Adoption, Ensuring Access to
(Application) Traditional Institutions Modification, & Revocation Information
Objectives All Ocean Areas & Uses Responding to &
Guiding/Interpretive Plan Duration & Periodic Incorporating Public Input
Principles Review
Ocean Policy Binding Effect of Plan
Relationship of Plan to
Other Laws
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Figure 6.4: Example of Structure and Scope of Potential MSP Legislation (part 2)
COAST GUARD
Part 5. Part 6. Part 7. Part 8.
Sustainable Enforcement & Miscellaneous Traditional
Financing Compliance Rights &
Management
Short Title Regulations
Definitions (Interpretation) Data & Monitoring
Scope of the Law Conflict Resolution
(Application) Regional & International
Objectives Harmonization
Guiding/Interpretive Grandfathering of
Principles Existing Activities
Ocean Policy Repealers & Savings Clauses
Binding the Crown
Schedules
Source: O’Connor and Oehler 2020.
6.3
Goal and Objective
Setting
Integrated plans should address multiple objectives. Therefore
they need to be clear, consider social and cultural factors (Beck
et al. 2009, Flower et al. 2020), and be positioned strategically
to ensure they resonate with stakeholders to instill long-term
planning and implementation support (McCann et al. 2014).
Objectives can include multi-sectoral coordination or integration
as illustrated in Mozambique (Box 6.3). Goals and objectives
should also consider the socio-political factor. Failure to do so can
derail the planning process, as seen in Portugal’s first attempt
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at MSP (Box 6.4). Grasping the socioeconomic considerations
also facilitates a better understanding of the planning area,
which helps to define goals and objectives (UNESCO-IOC/
European Commission 2021).
Box 6.3:
Mozambique’s Multi-Sector Coordination Objectives as Part of Its Marine Spatial Plan
Mozambique’s proposed marine spatial plan includes a specific development of emerging industries such as offshore energy.
objective for multisectoral coordination (Table 6.2). The plan At the same time, local governments and communities can
leverages the role of the national government in facilitating benefit from the development of marine sectors.
Table 6.2: Strategic Objectives of the Mozambique Marine Spatial Plan
Strategic Objective
SO I.3 Take advantage of central government approaches and strategies for local development and support of
Multisectoral NGOs and emerging industries in the sea (focus on energy) to establish new marine conservation areas and
Coordination increase efficient protection of existing and other coastal and deep sea habitats and to minimize conflicts
between users in coastal communities and other activities that exploit resources in the same region,
valuing and promoting traditional activities (agriculture and fishing), small and medium scale industries and
access to local energy resources for the development of activities in urban and industrial district coastlines.
Specific Responsible
Target Actions Indicator Time
Objectives Actors
Develop Establish new Establish MTA. Increment of 2022-2040
alternative and dynamics of use of new marine MIMAIP, MICULTUR, Programs, projects,
complementary coastal space and conservation areas Bodies of and interventions
activities that maritime representation of diversified in support
contribute to State provincials, to local development
local protection District Governments,
of existing coastal Municipalities, CSO
habitats and
deep-sea areas
to minimize
conflicts between
users in coastal
communities and
other activities
that of intensively
exploit resources
in the same region.
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Box 6.3 (Cont.):
Specific Responsible
Target Actions Indicator Time
Objectives Actors
Establish MTA. 2022-2026
Programs and MIMAIP, Bodies of
Projects oriented representation of
towards increasing provincial states,
habitat protection District Governments,
efficiency in Municipalities, CSO
coastal and deep-
sea areas
Promote MIMAIP. 2022-2040
traditional MADER, Organs of
agriculture and representation of
fishing activities provincial states,
to strengthen food District Governments,
security Municipalities, CSO
Promote, in MIREME. 2022-2040
coastal districts, MIC, MIMAIP, Organs
the use of energy of representation
resources for the of provincial states,
development of District Governments,
activities small Municipalities
and medium urban
industrial scale
Source: Minstério do Mar, Águas Interiores e Pescas (MIMAIP) Mozambique 2021.
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Box 6.4:
Portugal’s MSP Struggles
In 2012 the government of Portugal changed course on MSP after four years
of work by an inter-ministerial commission to develop the first national MSP
initiative. The marine spatial plan was acknowledged only as a “baseline
study” and the start of a process to establish an MSP framework law. That law
was passed in 2014, but to date there is no marine spatial plan for all or part
of Portugal’s EEZ. The politically based changes in the MSP process in 2012
led to several problems. These include delay of the entire planning process,
lack of credibility of responsible entities, disengagement of stakeholders, and
ultimately, absence of essential MSP management actions and marine spatial
plans (Santos Frazão 2016).
Well-defined goals and objectives also lead to effective
indicators to measure success, as noted above (Secretariat of
the Convention on Biological Diversity and the Scientific and
Technical Advisory Panel 2012). The UNESCO-IOC/European
Commission (2021) guide described a goal as a statement of
general direction or broad aspirations, a high-level statement
of the desired outcome (Table 6.2). They also note that MSP
objectives, described as a statement of desired outcomes or
observable behavioral changes representing the achievement
of a goal (See Monitoring and Evaluation Section 14), should
be specific, measurable, achievable, relevant, and time-bound
(SMART). In addition, an objective may have more than one
outcome. For example, in Table 6.3, the objective “implement a
representative system of marine protected areas (MPA) by 2012”
may have an outcome of a specified area of mangrove habitat
gazetted as a MPA by 2010 and another outcome may be another
area of seagrass gazetted as MPA by 2011. Consequently, each
outcome will have its own SMART indicator such as area of
mangrove declared MPA.
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Table 6.3: Examples of Goal and Objective Statements
Goal Statements Objective Statements
Conserve or protect marine resources Protect 90% of essential habitat for diving birds by 2012
Conserve ecological structure—at all levels of biological Ensure that adequate marine space is available to produce 25% of
organization— to maintain biodiversity and natural resilience of the energy needs from offshore sources by the year 2020
marine area
Protect ecologically valuable areas Ensure that a minimum of 10% of marine space is available for
offshore aquaculture by 2015
Restore degraded areas Implement a representative system of marine protected areas
(MPA) by 2012
Ensure sustainability of economic uses of marine space Reduce the time required to make decisions on marine
construction permits by 50% by 2010
Promote appropriate uses of marine space
Reduce and resolve conflicts among current and future human
Source: Ehler and Douvere 2009.
It is easier to set and manage user expectations when participants
agree on and set clear goals and objectives using transparent
communications early on (Smythe and McCann 2018) and avoid
misunderstandings (Almodovar et al. 2014). In addition, clear
and measurable objectives integrated across sectors explicitly
allow process participants to consider sector plans and related
objectives (Box 6.5) and adjacent plans such as land use plans and
catchment plans (Ehler 2008). Early recognition of the strategic
plans of different stakeholders and sectors and management
bodies is also essential. This provides the adaptive capacity
needed for management actions (Buhl-Mortensen et al. 2017).
When drafting goals and objectives, participants should also
consider potential negative impacts and the range of trade-offs
needed to minimize them (Beck et al. 2009).
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Box 6.5:
Belize ICZM Vision, Objectives, and Indicator
The Belize ICZM integrates multiple marine sectors, including One of these four visions includes a marine sector through a
fisheries, aquaculture, tourism, and marine traffic, into set of “Actions” (objectives). The plan’s Monitoring Protocol
four visions: for Periodic Evaluation of Implementation and Coordination
Plan (ICP) reflects the visions and objectives. These are
1. Encouraging sustainable coastal resource use. clear, providing at least one measurable indicator for each
2. Supporting integrated development planning. objective. Table 6.4 below illustrates clear objectives with linked
3. Building alliances to benefit Belizeans. measurable indicators for marine traffic in Belize’s Integrated
4. Adapting to climate change. Coastal Zone Management Plan.
Table 6.4: Marine Traffic Objectives of Belize’s Coastal Zone Management Plan and Indicators
Actions Required (Objective) Indicator/Target(s) Metric(s)
1. Develop a national policy on marine • National Policy developed by June 2018 • Number of consultations held
transportation in support of the • Prepare and submit Cabinet Paper by • Number of stakeholders consulted
Informed Management zoning scheme September 2018 • Number of recommendations and
to minimize user-conflicts suggestions to develop policy
• Date by when Cabinet Paper is
submitted
2. Develop and implement a national • National Policy developed by June 2018 • Number of consultations held
policy and supporting standards for the • Prepare and submit Cabinet Paper by • Number of stakeholders consulted
safe transport of hazardous chemicals September 2018 • Number of recommendations and
in the sea suggestions to develop policy
• Date by when Cabinet Paper is
submitted
3. Conduct hydrographic surveys/ • Develop proposed methodology, • Bathymetric profile of sea floor in
mapping of the seabed to better inform timeline, and implementation plan for meters
marine transportation routes. hydrographic mapping by June 2017 • Number of channels
• Develop MOU with at least two (2) • Number of shoals
competent hydrographic agencies • Direction and strength of current
to implement proposal by December patterns in feet per second
2017, and initiate implementation by • Number of partnerships
March 2018 • Number of charts updated
• Update navigational charts by
March 2019
4. Update navigational charts for Belize to • At least three (3) new navigational • Number of new charts produced
improve boating safety. charts produced by March 2019
Source: Coastal Zone Management Authority and Institute (CZMAI) 2016.
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6.4
1 2
Stakeholder Engagement
Almost every article in the 15 lesson-learned publications on
MSP highlight stakeholder engagement as a key to acceptance
and adoption of marine spatial plans (Convention on Biological
Diversity 2014, Winther et al. 2020, Frazão Santos et al. 2018).
Many other papers that discuss MSP processes recognize
that a sustainable plan requires a high level of stakeholder
understanding and support (Buhl-Mortensen et al. 2017). Given
the importance of stakeholder engagement, the cross-cutting
sections of this note, including Stakeholder Engagement
(Section 9), provide detailed lessons learned and best practices
for stakeholders. Gender Equality and Women’s Empowerment
(Section 11) discusses engagement with vulnerable groups.
The following are major lessons learned in reviewing various articles
related to stakeholder engagement, including the private sector.
Early and continuous stakeholder engagement engenders trust and
a sense of ownership of the planning process and plan, improving
the likelihood of long-term success (Ehler 2008). Interaction
with key stakeholders at every step of the process is crucial. It
ensures transparency and supports a more effective approach
towards adaptive management (Buhl-Mortensen et al. 2017). Also,
when scientists and practitioners work together, they can better
understand the critical role that ecosystems play in development
goals (Arkema and Ruckelshaus 2017). Smythe and McCann
(2018) note that in the United States it was more effective to use
both formal and informal methods for stakeholder engagement
and to build on existing relationships where possible. Informally
engaging stakeholders and building strong working relationships
often result in plan commitment and legitimacy (Anon. 2016) but
these outcomes take time (Almodovar et al. 2014). Approaches for
stakeholder engagement need to meet the needs of participants,
especially for indigenous groups (McCann et al. 2014), and local
cultural norms, as demonstrated in the Mediterranean and Black
Sea areas (Soriani et al. 2015). Documenting stakeholder and expert
perspectives also built political will in Barbuda (Johnson et al. 2020).
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6.5
Data and Tools
The likelihood of long-term sustainability of a marine spatial plan is
higher if it uses robust and reliable evidence. This evidence results
from a combination of best available data used with the relevant
tools for management choices (Flynn et al. 2020). Decision making
improves when there is a common system for information and
storage with transparent access. Data need continuous updating
and improving (Beck et al. 2009, Almodovar et al. 2014, Johnson
et al. 2020). Efficient and effective data systems also need criteria
for data acceptance and protocols for data exchanges.
The Barbuda MSP planning process collected 67 GIS layers,
but used only five of them extensively. This suggests that while
extensive data sets are ideal, some data are more useful than
others (Johnson et al. 2020). Integrating the human dimension
based on a sound socio-economic information base is also
important for planning and decision making, as detailed in Data
and Geospatial Support, Section 10 (Ehler 2008). Winther et al.
(2020) found that social networks for data sharing and capacity
building accelerated integration. Easy and transparent access
to relevant tools such as decision support tools also improves
planning and decision making (McCann et al. 2014).
Other planning lessons and experiences:
• Planners should create comprehensive and flexible
planning frameworks so that participants have a good
perspective on the context of the plan and the goal,
objectives, and activities.
• Retro-fitting climate change adaptation into MSP after the
plan is completed is difficult and resource-intensive.
• Providing training upgrades for those leading and taking
part in MSP will create a better understanding of the
process and ultimately more effective plans.
• Building a broad MSP leadership base can sustain
engagement and support for the process (Anon. 2016).
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• The institutional framework should facilitate inter-agency
coordination to strengthen the needed integration
(Soriani et al. 2015).
• Communicating the value of MSP increases participants’
commitment to the plan and builds their capacity
to participate effectively in the planning process
(McCann et al. 2014).
This last point reinforces the need to make the economic case
for MSP. Information on ocean accounting, including TEEB5 for
oceans and coasts studies, and the socio-economic benefits of
MPAs and NBS is key to decision making.6 It is also important to
communicate the values of marine resources and their services,
and where possible to include economic information in other
tools (e.g. scenarios) and approaches (e.g. adaptive management).
Better communication results in better informed discussions,
trade-offs, and decisions.
In planning, economic studies and information enable
stakeholders to use various tools to find the balance between
uses, as well as meeting conservation and climate change
objectives. They also enable stakeholders to ask key questions:
• What is the best spatial and temporal allocation of marine
scarce resources?
• How are actors in the marine space likely to react to the
new regulations?
• Where and how to expand protected areas to maximize
ecological and economic outcomes?
• What are the likely distributive impacts (e.g. on income,
gender, migration) of alternative MSP designs?
• How to address land-sea interactions?
A range of tools and concepts is available to help answer these
questions. They require an understanding of when to use the
tools, the information the analysis provides, and the minimum
data needs (Table 6.5).
5 The Economics of Ecosystems and Biodiversity (TEEB). See UNEP 2013.
6 See World Bank note Applying Economic Analysis to Marine Spatial Planning for
detailed discussions.
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Table 6.5: Economic Tools and Concepts for MSP
Key Question Tools and What it tells you Data Sources
Concepts
• What is the best spatial and • Economic valuation of • Provides information on the best Multiple sources based on
temporal allocation of marine externalities, a key tool spatial and temporal allocation the industries included in the
scarce resources? to design policies that of resources with attention to the planning process. For instance,
• What are the most likely internalize negative or existing economic tradeoffs. for the tourism industry: yearly
reactions of actors in the positive externalities. • Determines the types of incentives number of tourists, tourism
marine space to the new • Probabilistic risk needed for motivating higher contribution to gross regional
regulations? assessment, aiding compliance of regulations. domestic product (GRDP), jobs
• Where and how should cost-benefit analysis, • Provides feasible strategies to linked to tourism disaggregated
protected areas be expanded including sensitivity deal with negative externalities by age and gender, expenditure
to maximize ecological and analysis, switching such as plastic pollution and on food and lodging, pollutant
economic outcomes? values, and simulation contamination by agrochemicals discharge from tourists, social
• What are the likely distributive techniques. (e.g. direct regulation, market- and ecological data relevant to
impacts (e.g. income, gender, • Participatory scenario based). These strategies include the tourism trade.
migration) of alternative MSP analysis that allows a welfare implications of such
designs? better understanding externalities on vulnerable groups,
• How should land-sea of uncertainty by such as small-scale fishers or
interactions be addressed? stakeholders in an tourism entrepreneurs.
• How can climate change events MSP process.
be predicted, mitigated, and • Cost-effectiveness,
adapted to? measuring impact
evaluation analysis.
• Scenario analysis
using InVEST, ARIES,
or similar spatial tools.
• Behavioral economics
methods to anticipate
perverse incentives.
• Bio-economic
models to capture the
interrelation between
productive and
extractive sectors and
the condition of the
resource.
Source: Applying Economic Analysis to Marine Spatial Planning.
The World Bank note Applying Economic Analysis to Marine
Spatial Planning provides comprehensive guidance on tools and
approaches for marine spatial planning.
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$
6.6
World Bank Investment
Considerations in Plan
Formulation
If you fail to plan, you are planning
to fail.
Benjamin Franklin
Because MSP can be an effective tool in helping clients transition
to a Blue Economy, the World Bank is increasing its investments
in this approach. A successful Blue Economy transition is best
guided by a plan. A good plan does not guarantee successful
implementation, but a poor plan will certainly threaten a
plan’s success. For the World Bank and its clients, success
includes planning for and realizing investments to support plan
implementation. The World Bank client leads and prepares the
plan and its implementation. However, ensuring success implies
that the Bank may need to give particular attention to elements
in plan formulation that significantly influence plan outcomes.
Where possible, these elements need to be aligned with the
World Bank’s ESF, including provisions for handling grievances.
The previous section discussed the enabling conditions for
effective MSP, including regulatory and institutional frameworks,
capacity, financing, and other issues. In planning, the World Bank
may closely consider some of those conditions.
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$ 6.7
Regulatory Instruments
and Institutional and
Financial Arrangements
Regulations and institutional arrangements may be considered
in the design and formulation of marine spatial plans to ensure
that integration of sector plans or actions in implementing plans
is practical (see the earlier World Bank Operations discussion).
The previous section on Enabling Conditions discussed the need
to have legislation in place to draft and implement a plan and
to ensure one or more appropriate institutions have mandate(s)
to coordinate and lead the MSP process, as well as enabling
conditions for financing MSP. The Enabling Conditions section
pointed to actions and tools to help assess institutions and
legislation, such as the Public Sector Review7 and legislation
appraisals. If these tools are used, the results can help inform
discussions and decision making. The World Bank’s PROBLUE
Program has a suite of fisheries assessment tools (FSAT) that may
apply, with or without modifications, to specific MSP programs,
such as:
• Fisheries Functional Role Matrix
• Blue Public Expenditure Review
• Survey of Public Employees
• Public Sector Functional Review
• Stakeholder Mapping
• Local Economy-Wide Impact Evaluation
• Impact Evaluation
7 See https://documents.worldbank.org/en/publication/documents-reports/
documentdetail/789491639977748921/blue-public-expenditure-review-
guidance-note for the Public Expenditure Review and the Blue Economy
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Similarly, plan formulation should ensure that the enabling
conditions for financing MSP are in place as much as possible
during plan formulation (see Section 5 and the World Bank note
Applying Economic Analysis to Marine Spatial Planning).
In drafting plans, participants should consider the legal
frameworks of the sectors and related institutional mandates.
This ensures that relevant agencies can implement any proposed
MSP interventions or investments. Successful planning requires
that the agency has the legal basis, the institutional mandate, and
the capacity for the job. If the sector legislation or institutional
mandate is lacking but is key to effective implementation of the
plan, then actions to strengthen these conditions need to be part
of the suite of interventions prior to investing in sector activities.
Otherwise, the plan risks not meeting its objectives.
6.8
Delivering Public Goods
and Services
There are multiple demands (e.g. fishing, transport, tourism,
energy) for marine resources and space to provide a range of
market-based goods and services. In addition, marine ecosystems
through MSP can support delivery of non-market services,
which have no direct monetary value, such as biodiversity and
ecosystem services, and climate change resilience. These services
are usually not valued in the private sector, leaving the public
sector to manage them (Ehler 2020). A key public sector task is
ensuring the conservation of these non-market services while
maintaining the resources for market-based goods and services.
Demand for access to marine resources and space often exceeds
supply. In most sectors, such as fisheries and shipping, systems
are in place that allocate access and manage use of resources.
However, a system that balances access and use across all the
different sectors while maintaining public goods and services
is often lacking. Drafting a marine spatial plan is therefore a key
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process to finding this balance. The World Bank can assist clients
with this process (Ehler 2020).
The Bank has a comparative advantage in balancing non-
market- and market-based marine goods and services. This is
accomplished by helping clients maintain these goods and
services through regulatory and policy support, environmental and
social compliance standards, technical assistance to clients, and
potential financing instruments and partnerships with the private
sector. The Bank can also help by assessing the economic value of
marine goods and services to inform decision making. Assistance
may include support in data gathering; analysis; facilitating
(ex-ante and ex-post) stakeholder engagement; capacity building;
convening partners and stakeholders; facilitating workshops or
dialogues to apply models and approaches to resolve conflicts;
and exploring trade-offs under different development scenarios
within and across sectors. Section 10, Data and Geospatial
Support, of this guidance note describes the scope and nature of
MSP data and the relevant tools.
6.9
Natural Capital
Accounting in Drafting
an MSP Plan
A national capital accounting (NCA) framework, specifically an
ocean accounting framework, can allow MSP to reach its full
potential (Figure 6.5). It provides a way to organize and standardize
information, and to support the formation and evaluation of plans
(Gacutan et al. 2022). In an MSP context, requests often arise for
information on the contribution to the economy of a particular
sector (e.g. wind energy) or a given resource (e.g. the marine
space). In particular, an ocean accounting framework provides a
standardized, systematic method for measuring MSP outcomes
over time.
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Figure 6.5. Conceptual Links between Ocean Accounting and Marine Spatial Planning
Marine
Ocean Policy Spatial
Accounting targets
Data
Planning demand
Informs
Informs
Policy
relevant Plan scope
indicators
Revise
Data demand
Informs
Structured Plan
Ocean data formulation
Data sharing Data sharing
consultation)
(e.g. Stakeholder
Other data
Evaluate
progress Plan
towards implementation
targets
Source: Gacutan et al. 2022.
Ocean accounts can provide huge amounts of data that policy
makers can use to justify developing planning schemes such as
MSP, as well as for executing and monitoring those schemes.
Ocean accounting must be seen as a tool that accounts for
the real contribution of oceans to economies and conserves
the ecosystems that keep oceans healthy while ensuring
sustainability. The World Bank note Applying Economic Analysis
to Marine Spatial Planning provides a more detailed description of
Ocean Accounting.
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6.10
Nature-Based Solutions
A key benefit of MSP is the protection and enhancement of
biodiversity and ecosystem services. Through the right allocation
of space and resources, countries can identify critical areas for
nature-based solutions that contribute to ecosystem restoration
and delivery of diverse services, such as erosion control, flood
protection, and carbon sequestration. However, delivery needs to
be complemented by a commitment to an appropriate financing
model to implement and maintain nature-based solutions. The
World Bank note Applying Economic Analysis to Marine Spatial
Planning describes various models for financing nature-based
solutions within an MSP context.
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7.
Marine Spatial Planning
Integrating
Sectors
7.1
Introduction
It is important to understand the marine sector policies and plans
linked to marine spatial plans. This will facilitate more effective
integration. It will also establish enabling conditions for public
and private sector investment in the sectors and further support
reaching a country’s Blue Economy objectives. In their report, the
HLP also highlights the link between sector planning and MSP and
the need to integrate sectors in ocean planning as part of the Blue
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Economy (Winther et al. 2020). This understanding is important
for stakeholders and sector representatives’ engagement
at national and local levels, especially for present and future
marginalized or vulnerable groups.
Each sector has its unique needs for each place and time in the
planning space. Most if not all sectors also have a strategic or
management plan for consideration while drafting the marine
spatial plan. World Bank participation in marine spatial plan
formulation provides an opportunity to identify or influence
potential downstream sector investments that have already
met environmental and social standards upstream during MSP.
Two factors are important in realizing this potential: effective
engagement of the sectors (see Stakeholder Engagement,
Section 9) and understanding of the interface between sectors
and MSP. This interface is well established in some sectors’
economies, such as conservation planning, and is limited in
others, but is strengthening as knowledge and experience with
emerging sectors such as offshore renewable energy grows. The
World Bank’s Global Practices (GP) have a comparative advantage
with their specialized support, both technical and financial. The
GP’s sector work can support sector plan development, which can
then be integrated into marine spatial plans. Below we discuss
considerations for the interface of various sectors in MSP.
7.2
Fisheries
Fisheries is a major user of the marine space. But some authors
(Stelzenmüller et al. 2016, Janßen et al. 2018, Trouillet 2019) suggest
that fisheries management is under-represented in MSP. When
a marine spatial plan includes fisheries management measures,
social and cultural aspects may be overlooked because the sector’s
economic needs drive the needs for inclusion in the plan (Janßen
et al. 2018). For example, planners often miss important areas for
small-scale fishing (Said and Trouillet 2020), resulting in zoning that
puts at risk food security for this group of stakeholders.
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The lack of fisheries sector representation results from:
• The complexity of the sector in terms of scale, mobility,
differing gear, and associated impacts. This reflects the
diversity of fishers and challenges in representing all
interests in MSP (Stelzenmüller et al. 2016).
• A lack of information suitable for MSP decision making,
which can limit the visibility of under-represented groups
despite the availability of fishery data applicable to the
various planning steps. Data such as vessel monitoring
systems (VMS) readings, logbooks, and sales may not
be easy to access, while some tools require advanced
modelling skills (Janßen et al. 2018).
MSP needs to account for changes in fish distributions due to
climate change or environmental degradation8 (see Climate-
Informed MSP, Section 12). But the information that MSP
practitioners need to address the changes is often lacking. Most
modelling is at a scale too coarse, while fisheries bio-economic
models may lack spatial data (e.g. distribution of stocks). A review
found that, besides these data challenges, MSP methods and
models that integrated fisheries management were generally
still academic proof of concepts and not directly useable by
MSP practitioners.
Given these limitations, protecting spawning grounds or
restricting access to sensitive habitats are the spatial aspects of
fisheries management that are often included in an MSP (Noble
et al. 2019). However, other aspects of fisheries management
(e.g. effort reductions) rely on sector plans. The English East
Inshore and East Offshore Marine Plans sought to integrate
fisheries, but ultimately they did not specify any spatial
designations, leaving the issue to be addressed by licensing
procedures (Janßen et al. 2018).
These challenges highlight that broader objectives of the MSP
may require investment in sector plans to complement the MSP
8 See PROBLUE Climate-Informed MSP fact sheet: https://documents.worldbank.
org/en/publication/documents-reports/documentdetail/448511636704037044/
problue-climate-informed-marine-spatial-planning-supporting-mitigation-
and-resilience
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and ensure sustainability of marine resources. Despite these
challenges, it is important to include the fisheries sector in MSP
since MSP can improve fisheries management by more than just
establishing zones to control fishing. Most fisheries use, or are
transitioning to, the ecosystem approach to fishery management
(EAFM). An MSP process can provide essential information for
the development of an EAFM plan (Ehler 2013).
Agencies routinely collect and map spatial and temporal
information on areas that are ecologically and biologically
important for fisheries management. Some fisheries agencies
also collect information on fleet movements using satellite
technologies such as an automatic information system (AIS) or
a vessel monitoring system (VMS). Planners can use these data
in MSP analysis and planning (Pomeroy, Baldwin, and McConney
2014). St. Kitts and Nevis used an MSP zoning plan as the basis for
consultations with fisheries stakeholders concerning introduction
of the EAF. Similarly, in Barbuda, the MSP process collected
various ecosystem-based information. A highly participatory
approach used the information to develop a marine zoning design
that would minimize harm to fishing and coastal livelihoods
(Ruttenberg et al. 2013).
7.3
Aquaculture
Commercial-scale aquaculture development requires a large
investment and needs long-term planning and defined allocation
of space (European Commission 2016). MSP allows sustainable
aquaculture activities to be maximized while considering other
users of marine spaces. It can also meet the need to site these
developments without compromising coastal ecosystems.
The benefits of aquaculture development in MSP are many:
higher productivity and returns for investors, and more effective
mitigation of environmental, economic, and social risks (Aguilar-
Manjarrez et al. 2017).
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Successful aquaculture development needs sites that allow
sustainable production, including good water quality, easy access
to infrastructure such as energy and transport, and other factors
depending on the species being farmed. Although aquaculture
activities use relatively small amounts of marine space,
assigning them to the wrong sites can cause conflicts and have
unwelcome environment, social, and economic impacts. These
factors highlight the importance of the industry taking part in
developing a plan, articulating its needs for space (e.g. for cages)
and supporting infrastructure (e.g. transportation, ports, energy,
and ice). Aquaculture linkages with supporting infrastructure
highlights the role MSP can play in multisectoral development
planning. Overall, marine spatial plans can greatly facilitate the
projected expansion of aquaculture, which now contributes more
than 52 percent of fish consumed globally (FAO 2020).
Co-locating aquaculture facilities with other uses such as
offshore wind farms can accommodate some of this expansion
(Stelzenmüller et al. 2016). This option is further discussed below.
Because MSP addresses upstream environmental and social
issues, it gives a degree of certainty for access to marine spaces
and resources. World Bank participation in upstream planning
provides opportunities to identify sustainable aquaculture
investments downstream. The FAO and World Bank9 handbook
on aquaculture zoning, siting, and management, based on the
ecosystem approach, provides further details on incorporating
aquaculture in marine spatial plans (Aguilar-Manjarrez et al. 2017).
7.4
Tourism
The tourism sector is a complex network of different interests and
activities that operate at different spatial ranges, times, scales,
9 Available at http://documents1.worldbank.org/curated/en/412061490106923079/
pdf/ACS18071-REVISED-v1-75pgs-a-i6834e.pdf
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and intensities (Munro et al. 2019). Therefore its engagement
in the MSP process in more complicated (Luhtala et al. 2020).
The sector is growing rapidly, as is planning for meeting future
demand. When linked to MSP, tourism planning enables the
sector to integrate into the broader Blue Economy. Tourism plans
typically focus on zoning, sites, tourist densities, tourist features,
and infrastructure, but more recently practitioners are including
environmental and socio-cultural considerations (Hall 2001). MSP
can help marine tourism management by:
• providing spatial regulations to manage the growth of
tourist facilities and activities without impeding the
environmental quality and economic growth of other users.
• allocating human uses, including those with cultural
and social values, and the value of place and tourism
value chains.
• optimizing the use of spaces that are in high demand
from multiple users while considering environmental and
cultural needs.
In the absence of tourist regulations from mandated agencies,
a marine spatial plan can provide the needed rules. However,
practitioners should introduce efficiencies and avoid duplicating
or complicating the permit systems. For example, yachting has
increased during the COVID pandemic (Froehlich et al. 2020) yet
mechanisms to regulate vessel anchoring (where and for how
long) are limited in many locations. Weak agencies with different
tourism management mandates make anchorage siting and
management difficult. At the same time, some countries have
enacted new anchoring protocols as part of their responses to the
COVID pandemic, which may bring changes in management of
anchorages (Figure 7.1).
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Figure 7.1: Virgin Islands-Approved Mooring Sites, Keeping Vessels 30 Meters Apart,
as Part of Visitor Protocols.
Source: Government of the Virgin Islands 2020.
The tourism sector also offers many opportunities to use nature-
based solutions. For example, mangroves can provide a safe
anchorage for yachts during storms. Mangroves that are officially
certified are being protected by new insurance schemes, which
incentivize maintaining these ecosystems (Beck et al. 2020).
The experience of San Andres Island in Colombia offers further
signs of the utility of nature-based solutions. Tourists report
that the main reason they go there is for the beaches. But those
beaches are under threat from erosion, which a study has shown
could cause annual economic damage of US$73 million to the
island’s tourism sector. Tourists have expressed willingness to pay
a total of US$1 million annually to protect the island’s beaches,
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beyond what they pay for their vacations. Thus, beach erosion
gives the tourism sector an incentive to get involved in broad
conservation and restoration activities. Protecting beaches could
be an “umbrella” conservation plan using nature-based solutions,
because healthy ecosystems naturally help to maintain beaches.
Coral reef, mangrove, and sea-grass ecosystems contribute to
sand production and buffer beaches and coastal communities
and assets from waves and storms. A beach conservation plan
would, by extension, encompass these other ecosystems to
ensure coastal stability, secure livelihoods, and coastal economies,
tourism among them (Castano-Isaza et al. 2015).
Marine spatial plans that include tourism, with siting and
infrastructure, constitute promising future investment
opportunities for the World Bank. Plan formulation can resolve
issues such as allocating sites for development and balancing
environmental and social aspects of tourism with other sectors.
Experience shows that once marine spatial plan implementation
is underway, investing in tourism sites and infrastructure
quickly proceeds.
7.5
Offshore Renewable
Energy
Offshore renewable energy is a rapidly emerging marine sector
as countries seek to meet their climate change targets and
reduce fossil fuel consumption. Much of this development is
offshore wind farms but other forms such as floating solar are
gaining interest (Box 7.1). While management of land-based wind
energy is often under local or regional planning systems, offshore
has a different regulatory regime (Jay 2010). Management is
often under control of the central government, which may lack
offshore plans. Going forward, these countries will need plans
that consider unique issues, such as common property access,
tenure, and international obligations such as those for navigation.
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Despite these challenges, MSP includes offshore energy in
most EU waters, and in the United States, United Kingdom,
and Australia.
Box 7.1
Tidal Energy: Larantuka Strait,
Indonesia Construction of offshore wind facilities has raised several
concerns among stakeholders, including harm to attractive ocean
views. Water pollution is generally not an issue for offshore wind
Dividing Flores and Adonara islands,
Larantuka Strait has one of the strongest energy, but there may be other environmental impacts. These
tidal currents in Indonesia. A bridge include bird collisions, underwater noise, and electromagnetic
810 meters long is being built to span
disturbances that can disrupt fish and marine mammal behaviors
the strait. Work on the US$20 million
Palmerah Tidal Bridge project began in (Andrulewicz, Otremba, and Kamińska 2010). On the other hand,
2019. The technology used in this venture these facilities may promote biodiversity because their hard
is generating controversy since it is
structures are suitable habitat for marine invertebrates and
the first combined tidal energy/bridge
project in the world. By combining macro-algae. A study (Griffin, Buck, and Krause 2015) found
installation of turbines with bridge increased biodiversity and restoration of degraded seabed
construction, the project should
habitats for commercially important species at a wind farm site
achieve certain cost economies and
provide electricity to 100,000 people in the UK. However, fishers considered their access to these
in the region (Firdaus, Houlsby, and stocks to be limited, and they perceived the structures to be
Adcock 2020).
navigation hazards if their engines failed. The siting of offshore
energy facilities may also conflict with commercial transport.
Yet the facilities can create employment opportunities in coastal
communities. A study of the social impact of an offshore wind
farm in the UK found that the local community perceived the
sector positively. For fishers who transitioned to jobs servicing
the energy facility, it provided steady and less dangerous
employment (Hattam, Hooper, and Papathanasopoulou 2015,
Schupp et al. 2021).
In the MSP process, the wind sector can provide information on
spatial and temporal patterns of animal migration and residency.
This information can help inform the allocation of space for future
uses (Bates 2017). MSP can also support the development of
offshore wind energy, including markets (Box 7.2) by providing a
degree of certainty on access to marine spaces and resources.
The report Key Factors for Successful Development of Offshore
Wind in Emerging Markets highlights how MSP can support this
development (World Bank 2021).
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Box 7.2:
The Role of Marine Spatial Planning in Developing Offshore Wind Markets
The World Bank’s ESMAP Group identified key factors for pillars (Figure 7.2), highlighting the importance of including MSP
successful development of offshore wind markets, which fall early and throughout the process of developing the emerging
under four pillars: strategy, policy, frameworks, and delivery offshore wind market.
(World Bank 2021). MSP plays an influential role in each of the
Figure 7.2: The Role of MSP in Offshore Wind Markets
Delivery
MSP can also help facilitate
Frameworks delivery of strategic
MSP can provide the outcomes by accounting
Policy platform to balance for the siting of ports,
MSP can be a tool to conflicted sectoral shipping channels and
Strategy help implement an priorities and maximize the cabling routes
An energy strategy can offshore energy policy location of offshore wind
inform marine spatial plans, that protectes local and other uses, including
policies and frameworks environments, or even co-location
that, in turn, help to deliver benefits from offshore wind
the strategic objectives for developments
offshore energy.
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Engaging stakeholders early on in formulating a marine spatial
plan to address these concerns, especially environmental and
social, helps to de-risk future investments. It can also identify
sites that stakeholders will accept for future wind farms. This
can avoid costly delays and negative media coverage during
the decision-making process and in permitting construction
of the facilities. Offshore wind facilities are large infrastructure
investments appropriate for private sector investing. A key role
for the World Bank is to facilitate financing discussions with IFC
and others to ensure they make their investments early in the
implementation process.
Section 10, Data and Geospatial Support, of this guidance note
provides further information on good practices, lessons learned,
and tools. Many tools exist to assess such challenges as the
economics of siting offshore wind facilities (e.g. the Spatially
Continuous Resource Economic Analysis Model) and identification
of conflicting or overlapping uses (Bates 2017).
With the development of offshore wind energy facilities has come
the concept of co-location of such facilities as mussel culturing and
micro-algae farms.10 However, effective co-location strategies need
either a) more results-oriented activities with deeper technological
integration or b) more process-oriented actions with new links
between distinct user groups (Di Tullio et al. 2018). Tools exist to
facilitate these decisions, such as the Sustainability Index.
It has been suggested that co-locating helps to optimize
marine resources and reduce conflicts with wind farms and
other uses. Other potential benefits include shared supporting
infrastructure and shared costs to service the facilities, such as
moorings and monitoring of possible environmental impacts.
Some problems with co-location include sectors having different
approval processes, which could limit integration (Spijkerboer
et al. 2020), and fishers’ fear of entanglement of gear on seabed
infrastructure, and vessel breakdowns (Stelzenmüller et al. 2016).
Nonetheless, interest in co-locating fisheries and aquaculture
activities in windfarms is increasing or being piloted. In countries
10 Co-location refers to the locating (two or more uses) together
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such as Denmark, where marine space is becoming limited,
co-locating in wind farms can provide long-term tenure
possibilities (Di Tullio et al. 2018). In Belgium, co-location of mussel
culturing and wind farms has been found to be technically
viable, but production costs were higher (Moreau 2020). A study
of fisheries using passive fishing gear such as gill nets, traps,
and pots noted that fishing could occur within a wind farm in
the North Sea if appropriately sited so as not to interfere with
farm operations (Stelzenmüller et al. 2016). Indeed, if proposed
co-located fish farms displaced the gillnet fishery, that sector
would lose significant income. In some countries space may
currently not be as limited, but it could be in the future if both
sectors expand as predicted and compete for space. Co-location
can also take place for fishing and tourism, with diving activities
taking place during the day and low-impact fishing at night
(Said and Trouillet 2020).
7.6
Land Use
Marine spatial planning has a strong link to various forms of land-
use planning, including urban, catchment, coastal, and landscape,
because the impacts of land use are ultimately felt in the ocean
(Maragno et al. 2020). Inappropriate siting of coastal infrastructure
such as ports, roads, and industrial plants can affect marine
environments through erosion and pollution, putting at risk
coastal communities’ safety and climate adaptation efforts.
Similarly, catchment management that does not consider the
downstream influx of fresh water into marine areas can disrupt
various ecological processes, harming marine-based sectors such
as fisheries and tourism.
An emerging land use issue that can have impacts distant from
the upstream source is raw materials extraction, in particular
sand extraction (United Nations Environment Programme 2019).
Increasing demand for sand for land reclamation, the construction
of transportation infrastructure and urban developments, results
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in reduced inputs of sand to coastal and marine areas causing
erosion. In some areas, such as small islands sandy beaches along
the coast may be the only affordable source of sand (Baker et al.
2016). In either situation, extraction exacerbates coastal erosion
and climate change vulnerability for downstream marine and
coastal ecosystems and ultimately coastal communities (Box 7.3).
Collectively these impacts can reduce the resilience of marine
ecosystems to various threats, including climate change.
Understanding how land-based plans may affect marine activities
helps MSP practitioners work with planners on the coast and
Box 7.3
upstream. Their participation in plan formulation provides an
Costs of sand mining in opportunity to address land-based sources of pollution and
Southeast Asia and India other issues.
(Fabinyi et al. 2022)
Yet despite the enormous potential effects of land-based
Sand for land reclamation in Singapore activities, integrating land-based planning into MSP is limited
initially came from Indonesia or Malaysia,
and then Cambodia, Vietnam and
worldwide. Notable exceptions are in the EU, where the Marine
Myanmar. Sand mining has led to river Directive can link to national coastal management efforts
bank and coastal erosion, and habitat (O’Hagan, Paterson, and Tissier 2020), in the Great Barrier Reef
disruption in both source and receiving
areas (Marschke et al. 2021). These
Marine Park of Australia (Day et al. 2019) , and in Indonesia (Box 7.4).
include loss of fish species, coral reef This limited integration is due to:
mortality, noise pollution and a damaged
environment (Lamb, Marschke, and
Rigg 2019). Coastal households, fishers • Lack of comparable local information systems.
and eco-tourist operators reliant on • Inaccurate forecasting systems.
sandy beach see no benefits to these
sand exports, only the ecological
• Lack of integrated governance between land and sea
and livelihood impacts. Sand mining
systems.
produces few jobs which are short-term, • Multilevel governance organization.
low-paid and transient (Marschke et al.
2021). In India, sand miners drown each
• Inertia of public administrations in the adoption of
year despite sand mining being illegal
medium- to long-term knowledge systems.
and, therefore, with no workplace safety • Absence of guiding regulations (Maragno et al. 2020).
regulations (Srivastava 2017).
It is important for the World Bank to remain well informed on
other operations or government efforts in land-use planning,
identify the implications for MSP investments, and find synergies
where possible. In transboundary situations, regional agreements
or protocols such as the Barcelona Convention’s ICZM Protocol
(Trop 2017) may also inform appropriate actions to address these
issues, including sand mining.
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Box 7.4:
Integrating MSP into National Spatial Planning
Through the recent Act11/2020 concerning job creation, documents. This will result in MSP at different administration
Indonesia will use a single regulation for spatial planning levels being integrated into broader or detailed spatial plans.
Figure 7.3: Integration of MSP into Indonesia’s Overall Spatial Planning System
Government
National
MSP Regulation
National SP
Will be integrated
And will Provincial
Provincial
to....
established Regulation
MSP
by / Ministerial
Provincial Regulation
SP
National
Strategic
area
President
Particular Regulation
National
Strategic
area
Strategic
Area SP
Source: Surharyanto 2021.
7.7
Marine Transport
The footprint of shipping and ports may be small relative to
other marine sectors, but it is important that the sector takes
part in MSP formulation. If the voice of the shipping industry is
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absent, MSP will likely not give full consideration to existing and
potential economic activities in the planning process. The sector
is expecting several key developments in coming years: increasing
freight volume, vessel size, and short- sea shipping, improved
bunkering technologies and general services, and autonomous
vessels. Climate change is an additional consideration because
predicted impacts such as increased storm frequency and
intensity will affect shipping and port operations (European
Commission 2020). These anticipated developments all
underline that a marine spatial plan should incorporate the
sector’s requirements.
Participation by the shipping sector in MSP may have benefits
for the planning as a whole. For example, maritime transport
operators often have scientific data on physical aspects of the
marine environment (e.g. bathymetry), resources, and ecological
systems that planners may lack (European Commission
2020). Unlike many other sectors, shipping needs to consider
international obligations in MSP, including the freedom to
navigate, artificial installations in EEZs, and existing IMO shipping
routes (Ross and Giannelos 2018). Within the framework of these
obligations, marine spatial planning should keep as much free
space as possible for future shipping activities and consider
shipping in three dimensions—ship trajectories, width, and depth.
The Nautical Institute, a shipping industry body, identified two
other issues to consider in an MSP plan: environmental and
commercial impacts and navigation. Environmental impacts
include coastal erosion from poor siting of port facilities, the
dredging of shipping channels to accommodate large-draft
vessels, and the wakes from passing vessels (Zaggia et al. 2017).
Nature-based solutions offer an opportunity to reduce these
impacts. As in fisheries, the World Bank may need to consider
investment in shipping sector plans to complement a marine
spatial plan. This will help reduce pressure on ocean resources,
such as marine mammals. Planning will also need to consider
climate change impacts such as increased storm frequency and
changes to currents. Yet another consideration is the location
of ports and supporting facilities, which are often part of an
integrated coastal management plan and closely linked to
shipping channels (Box 7.5).
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Box 7.5:
Incorporating Marine Transport Needs: Montserrat
In Montserrat, the MSP Steering Committee proposed to create was accepted, and also included two additional mooring
zones for specific activities such as shipping and mooring. zones at Old Road Bay and Fox’s Bay (B) to provide designated
Zoning of Little Bay (A), the most heavily used coastal area anchorages for visiting yachts that were already mooring
and the site of the island’s only port facilities, was a priority. in those areas on an ad hoc basis (Figure 7.4). Compared to
Representative from the Port Authority, with input from the the decision process for the MPAs, the committee reached
rest of the committee, suggested a shipping zone and two consensus on these “utility” zones relatively quickly (Flower et
mooring anchorage zones in the bay (Figure 7.4). The proposal, al. 2020).
Figure 7.4: Marine Zoning in Montserrat
Old Road
Bay
Little Bay Fox’s
Bay
0 100 200 400 0 0.25 0.5 1
Meters Kilometers
Shipping Zone Recreation Zone Mooring Anchorage Zone MPA No-Take
Source: Flower et al. 2020
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7.8
The Private Sector in
Plan Formulation
Private sector investment is key to a successful MSP.
Implementation of marine spatial plans and ultimately long-term
sustainable resource use require budgets that far exceed the
financial and human resources of the public sector. The World
Bank’s participation in the formulation of a plan helps to ensure
that planners will consider the enabling conditions for private
sector investments. It can also identify possible World Bank
financial instruments that will facilitate that participation by the
private sector.
The previous section described the importance of enabling
conditions being in place so that MSP has a clear legal basis
and a mandated institution in charge. The same holds for
the private sector, which needs to have appropriate enabling
conditions in place to invest efficiently once implementation
starts. Without authority from the relevant legislative body or
conformity with other regulatory processes, any subsequent
regulations would invite significant legal risk and uncertainty
(World Ocean Council 2016). For example, if the plan will allocate
space for renewable energy, one enabling condition to consider
is the legal authority for installing the structures on the seabed
(Lange, Page, and Cummins 2018). A review of relevant legislation
as it relates to spatial planning, along with institutional analyses,
will provide much of the information needed to assess the
enabling conditions.
In MSP, there are two aspects of finance: financing the MSP
process itself, and financing implementation of the plan. Many
marine spatial plans never make it to implementation, with lack
of funding often getting the blame. There are many explanations
for this funding gap, ranging from lack of government will to shift
spending priorities to lack of private sector interest in investing in
the marine sector. The above discussions have touched on these
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points, highlighting the need to consider during plan formulation
how to finance public or private activities that are proposed,
rather than waiting for endorsement and implementation of the
plan to start the funding discussions.
Through its various instruments, the World Bank has a competitive
advantage in financing activities that will de-risk investments for
implementation activities. In the plan drafting stage, for example,
the Bank can support various studies (e.g. feasibility studies
and strategic environmental assessments) to reduce risks and
strengthen certainty. Its capacity-building programs can give
agencies the know-how to manage specific investments including
innovative financing mechanisms (e.g. Blue Bonds). Also, the Bank
can initiate discussions on possible investment and investment
support by the Bank and IFC.
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8.
Marine Spatial Planning
Implementing
Marine Spatial
Plans
8.1
Introduction
Implementing a marine spatial plan helps to operationalize the Blue
Economy. Investments and other actions identified in formulation
of the plan are realized in this step. Capitalizing on the potential
of MSP requires implementation financing, institutions, and
approaches that use an economic lens throughout MSP processes.
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The UNESCO-IOC Step-by-Step Approach (Ehler and
Douvere 2009) notes that implementing a plan requires the
“clear identification of actions required to implement, ensure
compliance with, and enforce the spatial management plan.”
The document also describes what those actions might be for
governments and other stakeholder at national and local levels,
especially for present and future marginalized or vulnerable
groups. Initial implementation actions include establishing an
inter-ministerial/cross-sectoral coordinating body (or a similar
form) with one agency tasked with leading the MSP while
working with other agencies and stakeholders to implement
the proposed activities.
Implementation is the most important part of MSP. It is the step
where transformational change takes place. Actions described
in a plan can start once the relevant authorities endorse the
plan, as discussed in the previous section. These actions also
include compliance and enforcement that are best supported
by a science- and data-driven monitoring plan (Figure 8.1).
Investments to strengthen regulatory frameworks and institutions
and engage stakeholders in this step of MSP deliver economic,
social, and environmental benefits to a range of stakeholders
(see Stakeholder Engagement, Section 9 and Gender Equality
and Women’s Empowerment, Section 11). Other actions, such as
compliance and enforcement, are also part of implementation.
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Figure 8.1: Implementation Activities in MSP
Marine Spatial Planning Process Adjustments
MAKING
ENABLING PLANNING IMPLEMENTATION
CONDITIONS
THE CASE
REVIEW
Economic/ Regulatory Define Goals & Various Studies Investments
Social Benefits Objectives and Analyses
• Sectoral
• Ecosystem
• Socio-economic
Entry Points Institutional Coordination &
Define Study
Prepare and Integration
Area
Endorse the
Plan
Trade-offs,
Modelling,
Conflict Analysis
Ecological Funding Monitoring &
Compile Data
Evaluation
Cross-Cutting Considerations: gender, climate change, biodiversity
Source: Caldow 2015.
The World Bank has a comparative advantage at the
implementation step. It can support making the economic case
for implementation. It can mobilize investments that address
social (vulnerable people and gender), environmental (avoiding or
mitigating ecosystem and biodiversity loss), and climate matters
(investments that adapt to climate change and reduce GHG
emissions). The convening power of the Bank can also facilitate
multi-sector and multi-agency coordination to enable more
sustainable efforts and reduce conflicts.
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8.2
Lessons Learned –
Challenges and
Constraints
Despite the importance of this step in MSP, the number of
plans implemented is quite low compared to the number of
plans drafted and approved. The UNESCO-IOC database11 and
other MSP portals12,13 show the proportion of plans actually
implemented at either national or subnational levels is less than 25
percent. They also demonstrate that much of that implementation
is in high-income countries. A recent study of implementation of
ecosystem-based management of marine areas in Asia noted that
only 7 percent of coastal countries in the region had implemented
MSP in their entire EEZ or territorial waters (Nakornchai et al. 2019).
Reasons for the low rate of implementation range from
insufficient funds, poor governance and political support, and
lack of human capacity. Governance issues include lack of or
weakening political will, as seen in Australia (Ehler 2020); lack of
a legal basis to implement, as seen in Shetlands (Kelly, Gray, and
Shucksmith 2013), Portugal (Frazão Santos et al. 2015), China’s
MFZ, and Poland (Jay et al. 2013); and low capacity to implement,
including enforcement, compliance, and monitoring (Convention
on Biological Diversity 2014). Other governance challenges
include failure to establish strong coordination across different
institutional entities or sectors (Box 8.1) and generally weak
governance arrangements, as seen in Australia (Ehler 2020).
Other issues include inconsistent decision making and corruption
(Convention on Biological Diversity 2014), weak enabling
conditions, conflicting spatial claims as seen in the Netherlands
11 http://msp.ioc-unesco.org/
12 https://www.msp-platform.eu/
13 https://marineplanning.org/
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(Ehler 2020) and unmanaged expectations among stakeholders
(Convention on Biological Diversity 2014).
Box 8.1:
Plan of Implementation:
Hauraki Gulf New Zealand
Most MSP implementation has taken place in OECD countries
The New Zealand government such as Australia, New Zealand, the United States, and European
released Sea Change – Tai Timu Tai
Union members (Convention on Biological Diversity 2014). It has
Pari , the marine spatial plan for the
Hauraki Gulf in 2016 after a successful occurred or is underway in only a few developing countries , such
stakeholder-driven process. However, as China, Seychelles, and Mozambique. The CBD study cited the
the plan presented limited guidance
following conditions as needed for MSP implementation:
on implementation and required
legislative changes and uptake and
increased spending by implementing
agencies. These challenges were
• Government-supported stakeholder engagement that
is transparent, builds trust, and is credible, such as the
not considered during the drafting
of the recommendations. Some Fisheries Transparency Initiative in Mauritania and the
changes needed the support of some Seychelles (Fisheries Transparency Initiative 2021).
stakeholder groups and proved to be a
challenge. A 2018 study by the Auditor • A legal framework, created or already in place, that
General of New Zealand noted several includes enforcement, compliance, and monitoring.
lessons to learn from the lack of plan
• Sufficient financial and human resources and capacity.
implementation after two years:
• Effective partnerships formed with cooperation
• Provide more planning for among agencies, stakeholder sectors, and
implementation early in the project, government institutions.
•
not after the plan endorsement.
Continue Working Groups and the • Relevant data and tools (see Section 10).
MSP Steering Committee after
plan endorsement. This allows time Because developing countries have a low rate of implementation,
for the groups and committee to
there are few examples and lessons learned specific to them. Still,
discuss implementation.
• Involve implementing agencies information on the challenges they face is starting to emerge
earlier in the planning process, and in places such as Indonesia, the Seychelles, and the Caribbean.
consider how they would implement
The challenges are often the same as in the developed world,
the plan.
• Consider drafting an especially limited funds and human capacity. Developing
implementation plan during the countries are putting together solutions and tools such as
planning step.
• Consider mandating an agency
to coordinate and lead plan
innovative financing (e.g. the Blue Bond in Seychelles) and using
widely available online tools and portals (e.g. zoning tools and
implementation. others described in Data and Geospatial Support Section 10).
The MSPglobal International Guide on Marine/Maritime Spatial
Source: New Zealand and Office of
the Auditor-General 2018 Planning (UNESCO-IOC/European Commission 2021) provides
some insights into the overall approach to implementing an MSP.
It covers enforcement and monitoring, but offers few detailed
descriptions or lessons learned.
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8.3
Implementation Model
Kay and Alder (2005) provide a model for implementing ICZM
that is general enough to provide practical steps to implementing
MSP, subject to some modifications (Figure 8.2). In their model,
several activities, in addition to those that are sector-focused, take
place simultaneously or sequentially to implement the plan. These
are used to meet management objectives including education,
research, monitoring, compliance, and enforcement, as well as
operationalizing integration across sectors.
Figure 8.2: Implementation Model
Innovative Financing Supporting Tools &
Instruments Approaches
Implementation Strategy
Establish Public and
and/or $ Private Education &
operationalize Investment Awareness
mandated Plans
Evaluation &
Reporting
Endorsed agency for
EIA, SEA,
Marine overseeing and
Short-term 1 2 permits
Spatial coordinating 4 3
Workplan and other
Plan MSP plan
regulations
Long-term Research &
Workplan Monitoring
1 2
Detailed Compliance &
Zoning Plan
4 3
Enforcement
Training and capacity
Advisory Committee
implement the MSP
Scientific Advisory
development to
Plan Revised and
implementation
Group
or workplan
ammended
optional
Source: Kay and Alder 2005.
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Implementation usually begins by establishing the entity
mandated for coordination and programming. This entity may
be an existing government agency or a new agency legislated to
implement the plan. Whatever the form of the agency, it must
have a legal mandate to implement the plan. To guide decision-
making, the agency may have an advisory committee that is
multi-sectoral with diverse stakeholders represented. It may have
a scientific advisory group to support evidence-based decision
making. If the agency uses these groups, it is important to
develop the terms of reference (TORs) early in their establishment.
The TORs should specify group structure and composition with
well-defined roles, membership criteria, expectations, frequency
of meetings, term length, and, if applicable, remuneration.
The UNESCO-IOC Step-by-Step Approach (Ehler and Douvere
2009) provides three options for establishing an agency
mandated to implement an MSP:
• A single authority through a legislative process
(e.g. Great Barrier Reef Marine Park Act or Seychelles)
• An authority using existing legislation, either by
re-interpreting it or by slightly modifying it, as seen in
Vietnam with the Elaboration on the Law on Planning
(Government of Vietnam) . The revised legislation
provides a basis for MSP based on existing land-based
spatial planning.
• Modification of legislation that is already in force or that is
being considered for development of an agency in the near
future, as seen in Bermuda (Porter 2016).
In this step of MSP, implementation primarily focuses on
the establishment and management of day-to-day activities
and projects and continuing integration across sectors.
Implementation also needs to account for managing grievances
or appeals of decisions. MPA legislation often provides for this,
as seen in Ghana’s spatial planning law,14 which includes marine
areas, and tasks the Planning Authority to consider grievances at
the different stages of the plan (Republic of Ghana 2016).
14 http://vepg.vn/wp-content/uploads/2019/07/Decree-37_2019_ND_CP-on-
Implementation-of-the-Planning-Law_EN-compressed.pdf
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Sometimes the formal implementation plan may guide short-
and long-term activities. In other cases, managers might use a
detailed work plan or a combination of a long-term/strategic
implementation and a short-term work plan (Figure 8.3). Whatever
form they take, these implementation plans and programs should
closely link to sector activities and plans as outlined in MSP
(Table 8.1). The focus and scale of the plan drives the management
agency and the nature of the activities. At the national level,
activities will be more strategic and large scale, while site-level
plans will focus on tangible activities with communication and
coordination between sectors more prevalent.
Figure 8.3: Marine Spatial Planning Outputs
Sector Plans
including Marine
conservation/ Spatial
MPAs Marine
Management Zoning Maps
Plan Marine
Zoning
Regulations
Non-spatial Permit and Other Management
Management Measures Used to Achieve Specific
Measures Objectives
Source: Ehler 2016.
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Table 8.1: Sample Section of the Implementation Plan from Belize ICZM
TOPIC: 1.8 AQUACULTURE
Actions Key Activities Implementing Timeframe (Year) Budget Estimate Political Input
Required Agency(ies) (BZD)
1 2 3 4
1. Update • Develop Lead: Cabinet with 30,000 Executive
aquaculture proposed Ministry of Agriculture, leadership and
policy and updates. Fisheries, Forestry, political will are
regulations • Conduct sector the Environment, in support of this
to reflect consultations. and Sustainable action.
Aquaculture • Prepare and Development
Stewardship submit Cabinet Aquaculture
Council Paper. Sector gives
Guidelines support.
2. Report on the • Conduct field Lead: Cabinet with 25,000 Executive and
status and data collection, Ministry of Agriculture, management
performance analysis, and Fisheries, Forestry, leadership see
of both interpretation. the Environment, value in annual
aquaculture • Prepare and and Sustainable reporting.
and mariculture publish Report. Development
developments
annually.
3. Formulate an • Prepare Terms of Lead: Fisheries 20,000 Fisheries
Aquaculture Reference and Department Department
Steering Member Profiles agrees to need/
Committee for the Steering value of this
comprised of Committee. committee and
government, secures executive
non- support for its
government, creation.
and private
sector
representatives.
Source: Coastal Zone Management Authority and Institute (CZMAI) 2016.
The short- and long-term work programs drive the development
and implementation of plans for public and private investments,
sector-specific plans, and in some cases detailed zoning plans.
These plans are implemented through a range of tools, including
EIA, SEA, permitting, and other regulatory tools that support
compliance and enforcement, research and monitoring, and
education and awareness raising.
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8.4
Capacity Building
for Implementation
A strong sense of ownership emerges when stakeholders,
including staff involved in developing the plan, remain engaged
as the program moves into the implementation stage. This
ensures that all parties know well the reasons for the various
planning outcomes and activities needed to meet day-to-
day responsibilities. However, many people may need special
training and job preparation in the early days of implementation,
since capacity is often limited. Capacity development may be
needed not just in planning agencies but among developers,
NGOs, and the wider community (Ansong, Calado, and Gilliland
2018). In short, human capacity development builds an effective
implementation team. No one person has all the skills and
expertise required to realize a plan, but with a common goal, a
diverse and skilled team can move implementation forward. This
is one area where the World Bank can support countries through
technical assistance such as ASAs.
The range of skills and expertise (Table 8.2) needed for
implementation are summarized by Calado et al. (2019):
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Table 8.2: Skills and Expertise for Implementation
MSP Processes and Activities Skills and Knowledge Background and Expertise
Plan implementation
Project/organizational management Sectoral interests and agencies
• Ensuring coordination, compliance,
and enforcement of measures and
policies defined by the plan
Monitoring and evaluation
Understanding a “logic model”
Statistical and reporting experts, social
and indicators, existing monitoring
scientists
• Reporting and monitoring the programmes
progress of the plan and necessary
planning reviews
• Management of the planning process/
other competences
Programme/project management, systems Terrestrial planning, project managers,
thinking, and management processes social scientists
• Coordination and organisation of the
various activities and processes
Source: Calado et al. 2019.
Other important and overall skills for MSP practitioners that
Calado et al. (2019) identified include:
• Ability to navigate politics, such as understanding
processes of law, policy, decision-making, and the
legislative framework of MSP and its constraints.
• Spatial-planning skills, a set of skills including some of
the above.
• Understanding of social and natural sciences, and ability to
take a holistic view.
• Capacity to deal with neighboring countries and cultures.
• Ability to be neutral and assertive.
• Presentation skills and the ability to write clearly,
particularly about policies.
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8.5
Compliance and
Enforcement
Compliance and enforcement requirements for implementing
a plan are generally based on its objectives and priorities
(Formulating Plans, Section 6), the needs of various monitoring
programs (Monitoring and Evaluation, Section 14), and resources.
They involve tracking and auditing of processes, decisions, and
other actions across sectors specified in the MSP. Compliance not
only detects and deters infringers—it can also gather information
for monitoring, plan adaptation, and research purposes.
Enforcement programs usually aim to improve users’ compliance
with rules and regulations and are often sector-focused.
Education and communication programs seek the same objective,
meaning that enforcement programs should complement
education programs to maximize their effectiveness.
Research, Monitoring, and Evaluation
Two important tools in assessing the effectiveness of a plan or
program are program monitoring and evaluation (see Monitoring
and Evaluation, Section 14, for detailed discussion). Within a
plan implementation framework, research programs should fill
in the information gaps identified in the planning process and
provide input into any ongoing adaptive capacities that are built
into planning processes and monitoring programs. Research
activities outside of the implementation program, such as
university programs, should coordinate with MSP implementation
monitoring where appropriate and maximize staff and financial
resources dedicated to plan implementation, while being
scientifically rigorous. Research and monitoring also provide input
into the MSP evaluation that generates recommendations for
further actions or changes to activities and the plan itself.
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Sufficient time has passed for the evaluation of certain marine
spatial plans. Some of these, such as in Portugal, are in the second
planning cycle (Quero García, Chica Ruiz, and García Sanabria
2020) or even the third, such as Massachusetts (Government of
Massachusetts 2021), offering lessons learned and adjustments
for changing conditions and improved information.
8.6
Education and Awareness
Education should be an ongoing program of activities throughout
the life of the MSP to raise awareness of issues, alter user
behavior, and facilitate implementation. The focus of education
will change as stakeholders’ understanding of issues and solutions
improves, and evaluation programs report the impact of the
MSP. Stakeholders’ needs and available resources should drive
education and awareness activities that support implementation.
8.7
Data and Tools
for Implementation
The collation and maintenance of data continue past the
planning step to support monitoring of indicators, progress
reporting against these indicators, and capturing lessons
learned. Continuity of data and information is also important for
stakeholder engagement and transparency since various parties
may want access to explore possible implementation activities
(Box 8.2), for example, to look at the impact of sea level rise or
how natural capital was used for implementation, or to confirm
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findings of progress reporting and evaluations. Section 10,
Data and Geospatial Support, and Section 14, Monitoring and
Evaluation, discuss data and tools in further detail.
Box 8.2:
Atlas of Ocean Wealth (GEF LME:LEARN 2018)
Atlas of Ocean Wealth is an online tool that provides scientific information
in a clear and useful way to help decision makers at the local, national,
and international levels better understand the true value of the ocean
environments. It provides maps and data needed to make better, evidence-
based ocean-use decisions. High-resolution models illustrate the value of
oceans at broad scales for decision-making at the national and international
levels. Detailed maps and models inform local planning and management.
$ 8.8
World Bank Investment
Considerations
The World Bank’s role in MSP does not end with the endorsement
of a plan but continues with implementation. Operationalizing
the plan includes support for making the economic case for
implementation, action plans, additional public and private
investments, M&E (see Section14) and coordination and integration.
Economic tools described in the previous sections can also be
used for making the case for implementation, but the questions
may be different and therefore require different data (Table 8.3).
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Table 8.3: Economic Tools and Concepts for Marine Spatial Plan Implementation
Key Question Tools and What it tells you Minimum Data Needs
Concepts
• What economic indicators • Ocean accounting and • The importance of gaining political • Data of baseline information,
should be used in monitoring digital dashboards support, increasing the engagement with developed consistency in
and how will they best be • Impact evaluation of relevant stakeholders, and making the definition and collection of
measured? methods (ex-post) to necessary adjustments to improve outcome indicators
• What are the measurable establish causal links the achievement of desired goals • For impact evaluation: catch
impacts attributable to MSP on • Behavioral economics through science-based evidence of (e.g., catch per unit of effort);
ecological, social, and economic tools to anticipate impact on a multidimensional basis economic impacts (e.g., income
outcomes? perverse incentives • How to use proper ocean accounts growth); perceptions of
• What is the evidence on • Bio-economic to help MSP move towards its ecological and socio-
improving economic outcomes models to capture the full potential. Both tools (ocean economic change; wages and
for women and other interrelation between accounting and MSP) must be employment
marginalized groups? productive and brought together as a guide for the • Ocean accounts: natural assets;
extractive sectors and sustainable development of oceans. flows of goods and services
the condition of the from the ocean; waste to the
resource ocean environment; ocean
• Sustainability economy satellite accounts
standards in existing
sectors to attract new
capital
• Devising of packages
of investable projects
with scale, risk, and
returns adjusted to
different types of
investors
• Adaptive management
allowing marine
spatial planners to
learn by doing, adjust
actions as information
becomes available,
and adapt to uncertain
future condition
models
Source: Applying Economic Analysis to Marine Spatial Planning.
The World Bank note Applying Economic Analysis to Marine
Spatial Planning provides comprehensive guidance on tools and
approaches for marine spatial planning.
As noted earlier, the planning process enables World Bank and
IFC teams to identify and realize viable investment opportunities
across sectors once the government endorses the plan. These
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investment opportunities are more likely to be realized if the Bank
considers and where appropriate supports:
• Governance including institutional arrangements,
compliance and enforcement with the implementation
program as described above. Support may include
investment in establishing and strengthening institutions
and human capacity to implement MSP. Other investments
may support the ecosystem approach, climate change
mitigation, and adaptation actions. Regulatory instruments
such as EIA to facilitate compliance and enforcement
may be established to meet international obligations for
biodiversity, climate change, and the SDGs. This support
applies not only to the agency mandated to coordinate
and integrate the MSP, but also to sector agencies. Some
governance reforms may need to look at finance reforms
to simplify private sector investing and to facilitate
innovative financing mechanisms, as seen with the
Seychelles’ Blue Bond program.
• Integration, especially policy and sector integration,
is a key feature of MSP and the realization of the Blue
Economy. However, it is difficult to achieve given the
potential competing agendas of sectors and the need
sometimes to share power. Integration in the context of
implementation operationalizes the trade-offs reached in
the planning process. Some of these trade-offs include
creating opportunities for new and emerging sectors
that the World Bank and the IFC may have an interest in
advancing. Researchers noted that MSP integration looks
easy on paper or in a planning meeting discussion but in
fact is quite difficult (Vince and Day 2020, Gee et al. 2019).
• Implementation challenges include overlapping
jurisdiction, conflicting regulations, poorly defined
boundaries, vague institutional mandates, roles, and
responsibilities, incompatible data and transmission
formats, and general resistance to new approaches in
managing marine resources (Weig and Schultz-Zehden
2019). Despite the many challenges, there are cases of
successful integration, such as in Belgium as seen in Box
8.3 (Olsen et al. 2014)) and the Great Barrier Reef Marine
Park (Vince and Day 2020).
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Box 8.3:
Belgium Sector Integration
Belgium has strong vertical integration between ministries In 2012, a Royal Decree embedded in MSP legislation an
involved in the marine sector. Each government level has its own Advisory Committee that facilitates integration between federal
advisory bodies representing sector ministries. Each body in government departments and the participation, by invitation, of
turn has its own mandate and responsibilities. However, there relevant Flemish authorities (Olsen et al. 2014).
are cooperation agreements among the ministries (Figure 8.4).
Figure 8.4: Institutional and Stakeholder Integration in Belgium
Federal State Flemish Government
Legislative Federal Parliament (Laws) Federal Parliament (Decrees)
Federal Government: Government of Flanders:
Formal
• Federal Ministers + Cooperation • Flemish Ministers
State Secretaries Agreements - Decisions of the Flemish
- Royal decrees & Ministerial government
Executive
decisions
POWER
• Federal Council of Ministers • Flemish Council of Ministers
Advice
Informal
- Need to approve some RDs - Approves all Flemish decisions
Consultations
(led by Prime Minister) (led by Minister-President)
Federal administration Coast Guard Flemish administration
MSP-commission
Judicial Council of State Council of State
Federal Advisory Bilateral consultations Flemish Advisory
Bodies Bodies Advice
Advice
(per stakeholder group, behind
Environment: FRIDO Environment:
closed doors)
MINA-Council
Information meetings Fisheries: SALV
Public hearings
Advice Stakeholder (groups) Advice
Redercentrale (fisheries)
Zeegra (aggregate extraction)
Advice Scientists (Flemish and federal Advice
institutes)
NGOs, Local governments, ...
Source: Olsen et al. 2014.
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• Financing for implementation of a marine spatial plan,
especially investments, should ideally be part of an
implementation strategy or any short- or long-term
plan. Activities should start after plan endorsement,
in order to provide a level of certainty for public and
private investments. A Public Expenditure Review
(World Bank 2021) as described in the Enabling Conditions
(Section 5) is also critical to implementation, because
it provides information on the levels of funding that
may be mobilized to make public investments in MSP.
The World Bank note Applying Economic Analysis to
Marine Spatial Planning provides guidance on how
to finance MSP, and the types of capital available for
implementation. There are various kinds of capital
providers, depending on intended use, financial returns,
and associated risks. Public Private Partnerships
(Figure 8.5) are another way of financing implementation.
Figure 8.5: Possible Entry Points for Public and Private Investments
Policy Reforms
Governments,
provinces,
cities, industrial
“Enablers” parks
$
$ Investments
Public-Private Public-Private
Collaboration Partnerships
Enabling
environment Competitiveness
for Circular
Economy
“Actors”
Private sector
New business
models
Planning Implementation
Source: internal World Bank source- PROBLUE’s Pillar 2
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• An exhaustive list of the many types of capital is beyond
the scope of this note. However, in Table 8.4 we present a
summary of the most salient types according to the Ocean
Finance Handbook (Friends of Ocean Action, 2020).
Table 8.4: Capital Types for Blue Economy
Capital Type Description
IMPACT ONLY: Public financing Provided by national and subnational governmental bodies.
It is the largest category of non-
return-seeking capital. It is long- Official development assistance Public funding allocated to other countries and often key for
term and small-scale. (ODA) blended finance
Philanthropic grants Provided by non-governmental actors such as foundations,
charities, and large companies through social responsibility
programs. Like ODAs, it plays a crucial role in financing
sustainable development.
DEBT: Loans Variable in scale, collaterals, and interest rates
Low-risk and low-reward type of
capital. Opportunities for scale are Bonds They can be issued by both the private sector (large
substantial, such as the expansion corporations) and the public sector (through sovereign/
of the climate and green bond government bonds).
markets.
EQUITY: Public equity Open to be traded through stock markets. These are highly
It is based on buying a share of an liquid and open to scrutiny, as companies are obliged to
asset, which can be sold by the release information on their financial performance. Many
owner to raise capital. It is much environmental standards and principles are geared towards
more variable than debt in both this direction.
scale and tolerance for risk.
Equity investment Are much less liquid than the public equity, as shares, once
acquired, are not as easily sold. These are usually investment
funds and venture capitals. These represent most
investments taking place for a sustainable Blue Economy.
Source: Ocean Fox Advisory and Friends of Ocean Action 2020.
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• The World Bank has multiple instruments that can support
public and private investments: DPFs, IPFs, DPOs, PforR,
for example. It has different entry points for investing
(Table 8.5). Some implementation activities may be eligible
for IFC financing as a “blue project”15 with the eligibility
criteria based on Blue Economy Principles. There are other
innovative financing instruments that are part of the Blue
Economy suite of tools: blended finance, impact investing,
insurance schemes, Blue Bond, and micro-finance. These
can also apply to MSP implementation, as outlined in the
FAO Blue Finance Guidance Notes Series.16
Table 8.5: World Bank Group Financing Instruments
World Bank Instrument Description Support to MSP Steps
Development Policy https://www.worldbank.org/en/what- Policies and regulations for MSP planning and
Financing we-do/products-and-services/financing- implementation, institutional actions for MSP planning
instruments/development-policy-financing and implementation
Investment Policy Financing https://www.worldbank.org/en/what- Policy development, institutional arrangements,
we-do/products-and-services/financing- feasibility studies, capacity building, sector specific
instruments/investment-project-financing investments, overall MSP investment plan
Program for Results https://www.worldbank.org/en/programs/ Ex post payments for implementation of sectorial
program-for-results-financing investments, or full MSPs.
Advisory Services and https://www.worldbank.org/en/what- Preparatory assessments, technical support for
Analytics we-do/products-and-services/advisory- institutional arrangements, capacity building, outreach
services and education, evaluations.
Source: Not applicable.
• The private sector has access to a range of public and
private funding (grants and loans, for example). However,
private sector investment is influenced by the nature
and scope of risk for the investors, and their ability to
understand and manage the risks. The IUCN Blue Natural
Capital (BNC+) Framework provides guidance on how to
manage such risks when investing in the Blue Economy,
with a focus on natural capital (IUCN 2019).
15 https://www.ifc.org/wps/wcm/connect/industry_ext_content/ifc_external_
corporate_site/financial+institutions/resources/guidelines-for-blue-finance
16 http://www.fao.org/3/ca8825en/CA8825EN.pdf
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VOL . 1 2 CH. ES 1 2 3 4 5 6 7 8 REFERENCES 102
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Contents
INTEGRATED SEASCAPE MANAGEMENT
Marine Spatial Planning
for a Resilient and
Inclusive Blue Economy
Volume 1
Key Considerations to Formulate and Implement
Marine Spatial Planning
2022
More information: This publication is intended to
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involved in the MSP process.
problue@worldbank.org
PROBLUE is an umbrella
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administered by the World Bank,
that supports the sustainable
and integrated development of
marine and coastal resources in
healthy oceans.
4