Tag: Blog

How HELCOM’s new strategic approach is reshaping the regional response to hazardous substances in the Baltic Sea.

Laying the groundwork: strategic review for change

By the end of 2010s, HELCOM’s work on hazardous substances was still focused on a relatively limited number of substances. Actions and HELCOM Recommendations were often developed on an ad hoc basis and were not systematically linked to regularly updated assessments of the marine environment or pollutant loads. The regional context had also changed significantly since the Helsinki Convention was negotiated: by 2004, eight of nine HELCOM Contracting Parties were also EU member states, and chemicals regulation had become largely harmonized at the EU level.

Work began in spring 2020 on a comprehensive review of the HELCOM framework on hazardous substances. The review was carried out in cooperation with the Baltic Sea Centre of Stockholm University and supported by the Swedish Agency for Marine and Water Management, with all HELCOM Contracting Parties actively participating.

In 2021, a background report on an update of HELCOM work on hazardous substances in the Baltic Sea was published. The review concluded that while an existing HELCOM Recommendation had set out general principles for work on hazardous substances, there was no systematic mechanism for regularly updating the list of priority substances. Such a mechanism was needed to ensure that decisions were based on the latest data on inputs, environmental status and emerging substances of concern. HELCOM’s role in relation to other regional and EU-level policies also needed to be clarified, with a focus on identifying the specific added value of HELCOM’s activities.

These findings informed the 2021 update of the HELCOM Baltic Sea Action Plan (BSAP), through which the HELCOM Contracting Parties committed to several key actions. These included developing a regional strategic approach for managing hazardous substances, establishing a mechanism for managing the HELCOM list of priority substances, setting up procedures to use and build on data from other policy frameworks as well as updating the priority substances list and developing a regional action plan.

From strategic review to strategic approach

The development work began in October 2022. It was supported by two dedicated projects, HAPHazard and HAZ-SHAP, which ensured sufficient resources for the work. Clear requirements were defined for the new framework:

1. It should promote a truly holistic assessment of hazardous substances, covering a broad range of chemicals  
2. It should link actions to the outcomes of the assessment, ensuring that measures target the most relevant substances and issues, including data and knowledge gaps
3. It should actively interact with existing policies, both by utilizing data generated by them and by influencing their further development, ensuring that HELCOM actions provide added value to – and function in synergy with – existing policies.

To inform the design, paradigms and mechanisms used under other policies or organizations, as well as examples from scientific literature, were reviewed to identify relevant elements for the regional marine framework. These insights, combined with creative development work, helped to define a high-level conceptual structure for the framework.

A series of informal consultation sessions of HELCOM’s Expert Group on Hazardous substances (EG Haz) and several ad hoc meetings helped to refine the concept into a fully functional mechanism. This was a systematic and iterative process, where national experts contributed knowledge, feedback and suggestions on optimizing the various parts of the framework’s mechanism. Throughout the whole process, the HELCOM Working Group on Source to Sea Management of Nutrients and Hazardous Substances and Sustainable Agricultural Practices (WG Source to Sea) provided overarching strategic guidance. By the end of 2023, a draft but operational version of the regional strategic approach was ready for testing – or rather its ‘primary run’.  The finalized regional strategic approach consists of four main steps:

1. Holistic assessment of the state of the environment (levels of chemicals and observed biological effects), human activities and pressures (e.g. inputs to the Baltic Sea via different pathways).
2. Identification of substances or groups of substances of possible concern for the Baltic Sea, based on established criteria.
3. Updating of three priority lists (substances, sources of release, uncertainties to address).
4. Use of these lists as complementary perspectives to inspire adoption of measures of added value, following an analysis of the effectiveness and gaps in existing measures.

The approach was designed to be both flexible and systematic and to account for differences in the availability of data and resources as well as policy priorities. It ensures that each piece of information contributes clearly to understanding of the overall picture. The systematic structuring of available information also facilitates the identification of knowledge gaps in data or methodologies, helps express uncertainties and allows for easy integration of new scientific developments and data. Special attention was given in balancing the need for evidence with the precautionary principle.

The framework operates in recurring six-year cycles, designed to align with and draw data from other HELCOM processes ( HOLAS ,  PLC ) or regulatory frameworks (MSFD, WFD, REACH, etc.). In turn, the framework can support these processes by providing a basis for proposing new indicators and strengthening coordination of monitoring programmes, programmes of measures and regulatory actions.

Testing the approach: Short and long-term impacts

The year 2024 marked the first full application of the new approach. Key data sources were identified and used to support a holistic assessment that ultimately covered around 1,500 substances and substance groups. In parallel, several projects provided deeper insight into specific parts of the assessments, including biological effects, pharmaceuticals, PFAS substances and on non-target and suspect screening.

The careful design of the framework, its principles, definitions and mechanisms proved effective. It not only improved the efficiency of the process but also helped regional discussions focus on the specific characteristics of substances and the selection of appropriate policy options.

The work led to direct results, such as three agreed priority lists and 55 fact sheets, providing overviews for each highlighted substance or substance group, a tested regional strategic approach as well as a regional action plan on hazardous substances in preparation, outlining HELCOM’s role in relation to other policy frameworks.

One key realization from this process was that although one of the priority lists (‘Horizontal uncertainties to address’) still contained a number of priority needs, overall the gaps had been significantly reduced compared to the situation before the primary run.

There were also valuable indirect outputs. New databases were established for the Baltic Sea and its catchment area, compiling information on marine concentrations and estimated inputs for numerous substances and groups, based on data from national and international databases, screening campaigns, scientific articles and reports and using automated tools.

Ther long-term impacts of this work are expected to include new HELCOM indicators based on newly listed HELCOM priority substances, support to EU-level processes such as the Water Framework Directive (WFD) and the Marine Strategy Framework Directive (MSFD) as well as stronger, better coordinated regional work. The three priority lists convey a clear message to authorities and stakeholders, helping them focus on mitigating the highest risks and on addressing key knowledge gaps or methodological gaps.

Looking ahead: Building synergies and shared tools

Throughout the development and implementation, collaboration with other Regional Sea Conventions and organisations brought mutual benefits through shared expertise. These exchanges laid the foundation for future cooperation and joint initiatives. A great example is the Harmonised Regional Seas Assessment Tool (HARSAT) tool, a collaboration between the Baltic, North-east Atlantic and Arctic Regional Seas Conventions, supported by ICES, consultants and members of the relevant expert groups.  This openly available tool improves the efficiency of statistical analysis of contaminant data in marine samples, enhancing indicator evaluations for hazardous substances across regions.

Written by Vasileios Kouloumpos, Project Researcher, HELCOM

This article was first published by UNEP in their StoryMap Regional Seas: Transforming Oceans, Empowering People

Rüdiger Strempel, Executive Secretary of HELCOM, reflects on Finland’s special connection with HELCOM and the organisation’s regional efforts to protect the Baltic Sea

On 18th March 1974, the Finnish Postal Service issued a stamp and first-day cover to commemorate the Diplomatic Conference on the Protection of the Marine Environment of the Baltic Sea Area. Four days later, the Conference adopted the Convention on the Protection of the Marine Environment of the Baltic Sea Area, or Helsinki Convention. This was a milestone in a process in which Finland has continuously played a pivotal part. In this article, I would like to recall why a story that began more than fifty years ago still matters – and the special role of Finland in writing it.

The commemorative stamp depicted a flock of seagulls above a deep blue sea and bore the inscription “The Baltic Sea – our environment” in Finnish and Swedish. Sadly, however, by the 1970s, that environment was severely compromised, and the Baltic Sea was considered the most polluted sea in the world. Without decisive action on the part of the Baltic Sea states, it was at risk of spiralling into the abyss of ecological apocalypse.

Regional efforts to protect the Baltic Sea since 1972

In 1972, Finland spurred those states to action. An initiative that Finland, due to its special role in the bipolar Cold War world order, was uniquely well-placed to take and that matched the overall fabric of the country’s foreign policy. In the course of 1973, it hosted and chaired three intergovernmental expert meetings on the Baltic Sea in Helsinki, bringing together the then-seven Baltic Sea states: Denmark, Finland, the German Democratic Republic, the Federal Republic of Germany, Poland, the Soviet Union, and Sweden.

These efforts were crowned with success, and by early 1974, the process was brought to a successful conclusion at the Diplomatic Conference.

It took another six years for the agreement, a front- runner in international marine environmental law as the first international treaty globally to protect a regional sea from all sources of pollution, to enter into force. During that time, the governing body provided for in the Convention, the Helsinki Commission (HELCOM), met six times in a provisional format, the so-called Interim Commission (IC).

Finland hosted and chaired all six of those meetings, as well as roughly one-fourth of the meetings of the technical Working Groups established by the IC. It also provided an interim Secretariat. In 1980, the Commission’s first regular meeting occurred in Helsinki, and the permanent HELCOM Secretariat was established. It became the first international organisation to permanently establish its headquarters in the Finnish capital, where it is still located today.

And Finland’s close involvement with HELCOM continued beyond the inception phase. As the organisation’s host country, it has continuously supported HELCOM work both financially and substantively. Finland has hosted four HELCOM Ministerial Meetings – more than any other country. Moreover, when the geopolitical changes of the late 1980s and early 1990s and advancements in international environmental law and policy necessitated a revision of the Convention, Finland again played a key role in facilitating this process and ensuring that HELCOM remained fit for purpose.

In April 1992, Helsinki’s iconic Finlandia Hall was the venue of another Diplomatic Conference under Finnish chairmanship, which adopted the revised Helsinki Convention. The 1992 Convention has ten Contracting Parties, all Baltic Sea States, and the European Union, reflecting the geopolitical realignment following the collapse of the Soviet Union and the Eastern Bloc. In force since 2000, it has stood the test of time and remains the basis of HELCOM’s work to this day.

And that work is crucially important. Water knows no boundaries, and no one country can achieve marine protection on its own. For five decades, HELCOM has provided Baltic Sea states with a platform for the regional exchange, dialogue and cooperation required to tackle the formidable challenges faced by their common sea. It is a multilateral success story, leading to improvements in the state of the Baltic Sea environment and thereby benefitting nature and people across the region.

Yet, it has not been an unqualified success. The condition of the Sea remains deplorable, as documented by the third Holistic Assessment of the State of the Baltic Sea (HOLAS 3), published by HELCOM in 2023. Already ailing, our sea is severely affected by the triple planetary crisis of climate change, biodiversity loss and pollution. But the assessment also offers hope. Decades of monitoring and assessment under the auspices of HELCOM have vastly expanded our knowledge of the Baltic Sea.

Moreover, HOLAS 3, the most comprehensive assessment of its kind to date, also shows that if duly implemented, regional measures will lead to an improvement in the sea’s condition.

HELCOM’s 2021 Baltic Sea Action Plan (2021 BSAP) lays out a broad range of such measures, along with a roadmap for their implementation, clearly indicating what needs to be done and by when. While the costs of such measures may seem daunting, the high cost of inaction, also evidenced by HOLAS 3, makes them a critically important long-term investment that we cannot afford not to make.

Achieving good environmental status for the Baltic Sea

Fifty years after HELCOM’s establishment, the organisation’s job is far from done, and protecting the Baltic Sea requires continued, sustained multilateral efforts. It can, therefore, reasonably be said that if HELCOM did not exist, it would need to be invented. Fortunately, however, it does exist.

While the current challenging geopolitical situation has forced the organisation to modify its operational procedures, it remains largely on track in implementing the 2021 BSAP. In line with the bold vision that originated in Finland over half a century ago, HELCOM is poised to continue catalysing and crystallising joint regional efforts towards achieving good environmental status for the Baltic Sea – our environment.

This article was first published in Open Access Government. The views expressed in this article are those of the author and do not necessarily reflect those of HELCOM or its Contracting Parties.

by Marta Ruiz

One of the earliest lessons I learned as a child was the importance of sharing, an ethos that still resonates with me today. As an adult, I have come to understand that cooperation is key, especially when it comes to addressing critical issues like marine litter.

Litter knows no boundaries, affecting not only in the Baltic Sea but also in the Mediterranean, the Black Sea, and the North-East Atlantic. In 2016, it was estimated that 19-23 million tonnes — or 11%, of plastic waste generated globally — leaked into aquatic ecosystems, and this was predicted to reach up to 53 million tonnes annually by 2030.

In recognition of this shared problem, colleagues from these Regional Sea Conventions have been meeting since 2014 to informally discuss and exchange experiences on the implementation of the respective action plans on marine litter.

Monitoring for improved management

We already monitor beach litter, litter on the seafloor, and microlitter in sediments and water columns. However, national activities on riverine litter monitoring remain limited, and this is why inter-regional harmonisation is so vital. Once we monitor rivers with the same methodology regionally, we will obtain comparable data. These data will help us to identify the primary sources of riverine litter, the most frequently found items, as well as the areas of accumulation. Armed with this knowledge, we can devise the most appropriate mitigation measures to implement, primarily focussing on preventive ones, as these are more sustainable and cost-effective than remediation ones.

Laying the groundwork for further actions

This is where the Regional Action Plan on Marine Litter (RAP ML) comes into play. Adopted in 2021, the plan contains 28 actions addressing both land-based and sea-based sources of marine litter in the Baltic Sea.

Informed by the experiences gained through the first Action Plan (2015) and supported by data from the Second Holistic Assessment (HOLAS II) on the current state of marine litter in the Baltic Sea, the plan acknowledges the issue of riverine litter with a single action. Action RL3 aims to “establish a regional pilot project in collaboration with river basin authorities to assess input of macro litter by rivers to build sound regional knowledge base.”

While this action plan could be called modest in its approach to riverine litter, if successfully executed, it will pave the way towards an improvement in knowledge on this matter and will help determine the need to emphasise tackling riverine litter in the third Action Plan on Marine Litter.

Although it may be premature to discuss a third action plan, being prepared for the future and working collectively with colleagues from other Regional Sea Conventions will undoubtedly ensure our success on the challenges that lie ahead.

Author

Marta Ruiz

Associate Professional Secretary
HELCOM