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

From August 26–28, 2025, Świnoujście will become the center of the international BALEX DELTA 2025 exercise, dedicated to combating marine pollution. The Maritime Search and Rescue Service in Poland is the main organizer of the event, while the West Pomeranian Voivodeship Office is responsible for coordination of the land portion.

The exercise scenario involves a collision of vessels in the Baltic Sea, resulting in a fuel spill and water contamination. Some of the pollution ends up on the beach between Świnoujście and Międzyzdroje, contaminating a section of the coast and the birds nesting along the shore.

Nearly 400 people representing services, inspections, and organizations from Poland, Denmark, Estonia, Finland, Lithuania, Germany, and Sweden will participate in the exercise. Dozens of vessels, as well as rescue and environmental teams, will be involved.

About BALEX DELTA

The annual international marine pollution response exercise in the Baltic Sea, BALEX, is held in accordance with the 1992 Convention on the Protection of the Marine Environment of the Baltic Sea Area (the Helsinki Convention). The Convention mandates cooperative responses and preparedness among the Baltic Sea States for large-scale accidents.

The general objective of the BALEX exercises is to ensure that every Contracting Party is able to lead a major response operation.

BALEX exercises are hosted by the Contracting Parties according to a schedule agreed on by the HELCOM Response Working Group. BALEX has been held every year since 1989.

The HELCOM Stakeholder Conference 2025, a one-day online event dedicated to discussing hazardous substances in the Baltic Sea, will take place on 31 March 2025, from 10:00 to 16:00 EEST. Under the theme of the ‘One Baltic’ approach, the conference will explore the latest advancements in applying a holistic approach to managing hazardous substances to ensure a cleaner and healthier Baltic Sea.

The event is open to everyone, but pre-registration is required. Registration for this event has now closed.

The conference aims to bring together stakeholders from HELCOM Contracting Parties, industry representatives, NGOs, international organizations, civil society groups, and other interested individuals to discuss key actions supporting the Baltic Sea Action Plan (BSAP) goal: ‘A Baltic Sea unaffected by hazardous substances’.

The discussions will focus on implementing BSAP actions and the upcoming Regional Action Plan on Hazardous Substances (RAP HAZ), set to be finalized in 2025. Key topics include the current state of hazardous substances in the region, the impact of PFAS regulations, the risks associated with pharmaceuticals in the Baltic Sea, and the importance of a holistic regional approach to managing hazardous substances.

For more information and to view the provisional programme on the event page.

After several years in the making, HOLAS 3 thematic assessments on the state of the Baltic Sea have been published, covering the period of 2016–2021. The thematic assessments are part of the third HELCOM holistic assessment (HOLAS 3), providing a holistic view of the Baltic Sea ecosystem health. 

The holistic approach highlights the interconnectedness of various environmental factors and their impact on the ecosystem. The five assessment reports each focus on a specific topic, addressing the state of biodiversity, environmental pressures, eutrophication, and the relationship between humanity and nature. The findings offer valuable insights for policymakers, scientists, and stakeholders alike.

The results of HOLAS 3 have been published in stages, commencing in March 2023, and the process will culminate in the publication of the summary report State of the Baltic Sea, expected at the end of October 2023.

A comprehensive holistic assessment on the state of the Baltic Sea is conducted once every six years. The reports result from collaborative efforts among HELCOM member states, scientific experts, and organizations dedicated to the protection of the Baltic Sea. They serve as a cornerstone of HELCOM’s work and policymaking, assisting in the monitoring of the implementation and the effectiveness of the Baltic Sea Action Plan (BSAP).

Thematic assessments 2023

HELCOM Thematic assessment of economic and social analyses 2016-2021

HELCOM Thematic assessment of spatial distribution of pressures and impacts 2016-2021

HELCOM Thematic assessment of hazardous substances, marine litter, underwater noise and non-indigenous species 2016-2021

HELCOM Thematic assessment of biodiversity 2016-2021 (Main report compressed)

HELCOM Thematic assessment of eutrophication 2016-2021

The annual international Baltic Sea pollution response exercise BALEX 2023 is set to take place in the Gulf of Riga and its coastal region from 30 August to 1 September 2023.

The exercise aims to test the coordinated operation of the Baltic Sea response fleet units in addressing pollution incidents at sea. It will involve 11 military and civilian vessels from eight Baltic Sea countries: Denmark, Estonia, Lithuania, Poland, Finland, Germany, Sweden, and Latvia. These vessels are equipped with specialized pollution recovery equipment.

The coordination of BALEX rotates annually between the Baltic Sea states, and this year the exercise is organised by the State Environmental Service of Latvia, in cooperation with the Latvian National Armed Forces Coast Guard Service, and the State Fire and Rescue Service.

The participating Baltic Sea states’ agencies responsible for pollution response are aiming to enhance cooperation and communication among vessels carrying out the recovery of oil pollution at sea, examine the use of oil recovery equipment for shoreline the pollution incidents and the involvement of volunteers in rescuing animals.

BALEX 2023 will commence with a table-top simulation of an accident involving hazardous and noxious substances. The scenario is based on an actual accident where the engine room of a container ship caught fire  near the Latvian coast in the Gulf of Riga.

During the second day of the exercise, practical drills will focus on an oil pollution accident and mitigating its impact in the Gulf of Riga and on the coast north of the port of Skulte. The scenario entails a fictional oil tanker grounding in the Gulf of Riga, leading to the spillage of diesel fuel, heavy fuel oil and marine fuel.

In parallel with BALEX on 31 August 2023, the Multipurpose Maritime Operation (MMO) led by the European Maritime Safety Agency (EMSA), which has been taking place in the central and eastern part of the Baltic Sea will be completed.  

The annual international marine pollution response exercise in the Baltic Sea BALEX is held in accordance with the 1992 Convention on the Protection of the Marine Environment of the Baltic Sea Area (the Helsinki Convention). This convention mandates cooperative responses and preparedness among the Baltic Sea States for large-scale accidents. The BALEX exercise has been held every year since 1989.

For more information please contact Laura Mazmača, Senior Inspector, State Environmental Service of Latvia. Tel. +371 29544526, laura.mazmaca@vvd.gov.lv

To improve on the quality of monitoring data in the Baltic Sea, an intercalibration of analyzing methods of nutrients and heavy metals was recently carried out involving 22 laboratories across the region. The results were published in a report.

Financed by HELCOM, the intercalibration was carried out by the Danish Centre for Environment and Energy (DCE) of Aarhus University, on behalf of the HELCOM Pollution Load Compilation (PLC-8) project.

“For accurate Baltic-wide assessments of nutrient and metal concentrations, intercalibration between laboratories is crucial as it guarantees the compatibility of reported data, basically allowing us to compare apples with apples,” said Dmitry Frank-Kamenetsky, the coordinator of the HELCOM Pollution Load Compilation (PLC) projects. 

HELCOM now regularly organizes intercalibration campaigns at the beginning of each PLC project, to assure compatibility of reported data regarding nutrients and heavy metals. The latest campaign was already the third of its kind.

“The more we intercalibrate, the better data we get,” said Frank-Kamenetsky. “The good results of the recent intercalibration exercise confirm the trend of a continuous improvement of environmental monitoring data produced by the HELCOM countries.”

Marine litter and underwater noise topped the agenda of PRESSURE 14-2021, the meeting of the HELCOM Pressure Working Group dealing with pressures on the Baltic Sea, and which was held online from 13 to 16 April 2021. 

A revised full version of the HELCOM Regional Action Plan on Marine Litter (RAP ML) was presented at PRESSURE 14-2021. Based on the initial plan that was adopted in 2015 and incorporating the lessons learnt from all previous implementation efforts, the updated version is due to be adopted in October 2021 during the HELCOM Ministerial Meeting 2021, alongside the new Baltic Sea Action Plan (BSAP). 

PRESSURE 14-2021 further recognized the successful implementation of some of the actions under the current RAP ML, notably on including HELCOM guidelines on marine litter in national and local waste prevention and waste management plans, as well as sharing best practices on waste management. 

Other completed actions under the RAP ML include the development of best practices on the disposal of scrapped pleasure boats and handling of expanded polystyrene, the identification of key practical aspects of prevention of litter, and the retrieval and the management of ghost nets, among others. 

On underwater noise, a factor affecting species that are reliant on hearing, such as harbour porpoises, seals and some species of fish, wide support was expressed for the draft Regional Action Plan on Underwater Noise that is currently under development. The plan is due to be adopted with the BSAP later this year, along with an accompanying HELCOM Recommendation.

PRESSURE 14-2021 further developed recommendations on the regional policy document on hazardous substances that provides guidance on the upcoming HELCOM framework for hazardous substances. The framework is being developed to provide a more efficient and future-proof response to threats to the marine environment stemming from hazardous substances, especially from new chemicals. 

During the meeting, the topics of physical damage to the seafloor, the next HELCOM holistic assessment (HOLAS III), the update of the Baltic Sea Action Plan, eutrophication and issues pertaining to nutrients such as the Nutrient Recycling Strategy and the HELCOM framework on internal nutrient load management were also discussed. 

The meeting was attended by all HELCOM Contracting Parties and observers from Coalition Clean Baltic (CCB), Baltic Farmers’ Forum on Environment (BFFE), the Federation of European Aquaculture Producers (FEAP), European Federation of National Associations of Water and Wastewater Services (EurEau), Race for the Baltic, and John Nurminen Foundation, as well as by invited guest from Baltic Nest Institute (BNI) and the City of Helsinki. 

• Read the outcome of PRESSURE 14-2021
• See all meeting documents

Attended by about 400 people in person and several hundred more online, the XXI International Environmental Forum “Baltic Sea Day” was held from 23 to 24 March 2021 in Saint Petersburg, Russia as a hybrid event, with a main focus on the Baltic Sea Action Plan (BSAP), both on its current achievements and its now imminent update.  

“The BSAP remains one of the most effective instruments for achieving the HELCOM environmental objectives, offering a long-term vision and strategic orientation for a healthy Baltic Sea,” said the Executive Secretary of HELCOM, Rüdiger Strempel, in his opening plenary address, adding that the update of the plan is already well set to uphold this legacy. The BSAP is due to be updated later this year at the next HELCOM Ministerial Meeting.

Besides the BSAP, several round table sessions were dedicated to other pressing issues such as hazardous substances, and specifically on the modernizing of the HELCOM framework dealing with the issue. HELCOM is currently reviewing its processes on hazardous substances to allow a faster and more efficient response to emerging challenges caused, for instance, by the introduction of new chemicals used in industry and consumer products. The new strategic direction will also enable a better understanding of the full diversity of sources and pathways of contaminants to the Baltic Sea.

During the forum, other key discussions touched on river basin management and marine spatial planning, as well as on the implementation of projects conducted by way of cross-border cooperation.

Close attention was also paid to the adaptation to climate change, notably in connection with the implementation of the Agenda 2030 in 80 cities of the Union of the Baltic Cities (UBC) as well as in light of current trends in Russia.

“Traditionally, the Forum brings together scientists, representatives of government and business, public organizations and everyone who understands their responsibility to future generations for preservation of the unique ecosystem of the Baltic Sea,” said Ivan Serebritsky, the Deputy Head of the Committee for Nature Use, Environmental Protection and Ecological Safety of Saint Petersburg during his opening remarks. 

Held in a hybrid online and in-person format, the “Baltic Sea Day” Forum was coordinated by the Government of Saint Petersburg, Russia and the State Company “Mineral”, with support from HELCOM, the Ministry of Natural Resources and Environment of the Russian Federation, and the Committee for Nature Use, Environmental Protection and Ecological Safety of Saint Petersburg.

“There’s a long tradition of HELCOM involvement in the Baltic Sea Day Forum that has been held annually since 2000 in Saint Petersburg,” said Strempel, adding that during its 20-year history, the forum has become a key platform for the environmental dialogue at the regional and global level. 

• Read the full recap of the XXI International Environmental Forum “Baltic Sea Day”
• Watch the video of the opening plenary panel discussion
• All videos and presentations of the forum

In a bid to better understand the effects of certain hazardous substances on the Baltic Sea, HELCOM, in collaboration with Stockholm University’s Baltic Sea Centre, has compiled the latest science on selected chemical contaminants.

The results were published in four reports, namely on dioxins and PCBs, brominated flame retardants, PFOS and PFAS, and diclofenac.

“We must identify the major sources of the hazardous substances and understand how they move in the ecosystems to be able to do something about the problem,” said Emma Undeman, a researcher at Stockholm University and lead author of the reports. 

The reports give insights into the sources and pathways to the sea of the addressed substances, as well as on how their concentrations have changed in the Baltic Sea over time.

Dioxins and PCBs, mainly by-products from industrial processes, primarily stem from atmospheric emissions, further persisting in the environment and accumulating in the food chain. This is a particular cause for concern since these substances are known for their adverse effects on the nervous, immune and endocrine systems of living organisms.

The levels of brominated flame retardants (PBDE) – which are now either banned or regulated but were heavily used in the past as additives to prevent ignition and delay spread of fire such as in furniture and curtains – seem to be declining, but trends show that it could take up to 40 years for these contaminants to reach safe levels in the Baltic Sea.

With regard to PFOS and PFAS, used for instance in metal coatings such as Teflon or in firefighting foams, the main pathways are discharges from wastewater treatment plants, and runoff from contaminated sites via groundwater and drainage ditches. Research on PFOS in Baltic Sea biota further indicates that transport to the sea has dropped but that concentrations have not yet declined, pointing towards a high persistence in the marine environment.

Diclofenac, a widely used painkiller that is water soluble, mainly enters the sea through wastewater treatment plants which have a low removal rate of the drug. Despite good absorption by the human body when ingested, diclofenac is overused, leading to significant excretions reaching sewer systems. Some of the diclofenac in wastewater may also originate from dermal application which has a low absorption rate by the body. 

The four reports support the update of the HELCOM Baltic Sea Action Plan (BSAP), HELCOM’s strategic programme of actions for restoring good ecological status of the Baltic marine environment. The BSAP is due to be updated in 2021.

Information from the reports will notably serve to evaluate the efficiency of currently implemented measures under the present BSAP, and for suggesting additional measures needed to improve the Baltic Sea’s state in regard to the reduction of concentrations of hazardous substances. 

Download the reports: