Pinto - The Portugese National Strategy For Integrated Coastal Zone Management As A Spatial Planning Instrument To Climcat Change in Minho River Estuary

environmental science & policy 33 (2013) 7696
Available online at www.sciencedirect.com
journal homepage: www.elsevier.com/locate/envsci
The Portuguese National Strategy for Integrated

Coastal Zone Management as a spatial planning
instrument to climate change adaptation in the
Minho River Estuary (Portugal NW-Coastal Zone)
Rute Pinto *, Filomena Cardoso Martins
Department of Environment and Planning, University of Aveiro, University Campus of Santiago, 3810-193 Aveiro,
Portugal
article info
abstract
Article history:
Climate change is one of the greatest threats to coastal zones. Integrated Coastal Zone
Received 10 December 2012
Management (ICZM) considers the interaction between socioeconomic activities and envi-
Received in revised form
ronmental requirements to natural resources use in those coastal zones. It must now
10 April 2013
include measures to climate change adaptation, particularly directed to the most vulnerable
Accepted 11 April 2013
areas such as estuaries, thus constituting a key component of spatial planning. This study
Published on line 11 June 2013
aims to: (i) evaluate the integration of the concern of climate change adaptation in the
Keywords:
instrument at national level; and (ii) realize how this integration influences the manage-
Portuguese National Strategy for ICZM (PNSICZM), while a important spatial planning
Climate change
ment of the potential impacts of climate change at local level, in a temperate estuary,
Adaptation
namely the Minho River Estuary (MRE) (located in NW-Portugal coastal zone). We verified
Integrated Coastal Zone
that the PNSICZM integrates, both directly and indirectly, the concern of climate change
Management
adaptation. The PNSICZM highlights the need of climate change issue be integrated in
Spatial planning
coastal management and delivers a set of measures contributing to the effort of climate
Estuary
change adaptation and its guidelines must be included in the Spatial Planning Instruments
(SPI) at regional and local level. In this context, the SPI covering the MRE must be adjusted to
the PNSICZM guidelines in order to promote a planned adaptation of this estuary and of its
adjacent coastal zone to the potential impacts of climate change.
# 2013 Elsevier Ltd. All rights reserved.
1.
Introduction
Climate change and sea level rise are unequivocal (IPCC,

2007c). Coastal zones in Europe are centres of population and
economic activity and are inhabited by diverse ecosystems, in
particular wetland ecosystems. Projected climate change,
including sea level rise and associated changes in frequency
and/or intensity of storm surges and erosion, threaten human
and natural systems at the coasts in various ways. Management of the coastal zones needs to consider the multiple
functions of many coastal areas, which is increasingly
occurring through Integrated Coastal Zone Management
(ICZM) (EEA, 2012). The planning system is a key public policy
to anticipate and prevent adverse impacts of climate change
and to take advantage of any opportunities it might bring, thus
spatial planning has a anticipatory role on a robust adaptation
to climate change (Wilson, 2006). In this context, the national
* Corresponding author. Tel.: +351 234 370 349; fax: +351 234 370 309.
E-mail addresses: rutepinto@ua.pt, fiuza.rute@gmail.com (R. Pinto).
1462-9011/$ see front matter # 2013 Elsevier Ltd. All rights reserved.
http://dx.doi.org/10.1016/j.envsci.2013.04.005
planning systems need to be reviewed to upgrade the general

efficacy of public response to climate change, because the
national planning level is responsible to lay out detailed
guidelines and regulations as guidance for spatial planning
practice (Bajec, 2011).
The Portuguese National Strategy for Integrated
Coastal Zone Management (PNSICZM), while a Spatial
Planning Instrument (SPI) at national level, can make an
important contribution to prepare the adaptation of the
Minho River Estuary (MRE) for the potential impacts of
climate change, through the integration, or by mainstreaming (Klein et al., 2005), of its guidelines on climate change
adaptation in the SPI, at regional and local level, which
cover this estuary.
1.1.
Climate change and coastal zones
Coasts will be exposed to increasing risks, with a very high

confidence, in the over coming decades, due to climate change
and associated sea level rise, according to the Intergovernmental Panel on Climate Change (IPCC) (IPCC, 2007b).
Anticipated climate-related changes by 2100 include (IPCC,
2007b): an accelerated rise in sea level of up to 0.6 m or more; a
further rise in sea surface temperatures by up to 3 8C; an
intensification of tropical and extra-tropical cyclones; larger
extreme waves and storm surges; altered precipitation/runoff; and ocean acidification. These phenomena will vary
considerably at regional and local scales, but the impacts are
virtually certain to be overwhelmingly negative.
Coastal zones are the most densely populated areas on
Earth, where 23% of the worlds population lives both within
100 km distance of the coast and <100 m above sea level (Small
and Nicholls, 2003). At the same time, they support important
productive ecosystems which are, however, sensitive to
changes in climate and sea level (Nicholls and Tol, 2006;
Chust et al., 2009), especially the most vulnerable areas such as
estuaries (Bates et al., 2008; FitzGerald et al., 2008; Whitehead
et al., 2009).
Among the diverse coastal ecosystems, estuaries are one of
the most productive and fragile (Baban, 1997), being a favourite
location for the concentration of main social and economic
activities (Townend, 2002). The estuarine ecosystems are
complex environments particularly vulnerable to climate
change (Baban, 1997; Marques et al., 2007), which may undergo
geomorphological reconfigurations, shifts on the biological
and sediment dynamics and man-made infrastructures will be
subject to increasing vulnerability (Pethick, 2001; Green and
King, 2005; Whitehead et al., 2009). Estuarine vulnerability
depends of its sensitivity to changes in climate as well as of its
adaptive capacity to adjust to those changes, either reactively,
to events or changes, or proactively through planning
decisions (EPA, 2009).
To minimize the risks related with climate change that
threaten coastal ecosystems it is mandatory adopt adaptation
measures. ICZM implies a responsible integration of coastal
management and planning by adopting sustainable spatial
planning measures that minimize risks and restrict or
interdict the construction in the coastal zone to ensure the
maintenance of ecosystem processes, functions and services
and the preparedness to climate change.
77
1.2.
ICZM as a spatial planning instrument to climate
change adaptation
Confronting climate change includes a dual challenge: (i)
mitigation, by reduction of greenhouse gases (GHG) emissions
or enhancement of their sinks (Fussel, 2007); and (ii) adaptation, by automatic or planned response to change or to
minimize the adverse effects of impacts and maximize any
benefits (Pittock, 2009). Both mitigation and adaptation have a
spatial dimension (Biesbroek et al., 2009). Mitigation measures
to reduce GHG emissions are essential to avoid the worst
effects of climate change. However, it will be necessary to deal
with many decades of climate change due to emissions
already put into the climate system, being essential start now
the adoption of adaptation measures to these changing
conditions to ensure that the social, economic and environmental systems are well-prepared for the unavoidable
impacts of climate change and are able to take advantage of
any opportunities (ESPACE, 2007). Many adaptation solutions,
grey (technological), green (ecosystem-based) or soft (behavioural, managerial and policy approaches) measures, are
available and could be implemented at a reasonable cost (EEA,
2010).
Spatial planning is emerging as a key tool for implementing
measures (EEA, 2010), constituting a key sector to advance
adaptation measures and alleviate pressures on human and
natural systems by mainstreaming climate change adaptation
in its policy and building on the corresponding instruments.
Its cross-disciplinary, cross-sectoral and multiscalar
approaches can positively contribute to climate change
response (Dymen and Henriksson, 2009), highlighting the
specific and particular conditions of each territory and
considering them in the vulnerability assessment to climate
change. Spatial planning avoids land uses that increase the
exposure to the most significant regional and locally climate
change effects, promotes more sustainable cost solutions
compatible with the specificities of each territory and provides
proactive measures to preserve and protect resources in
anticipation to the impacts of climate change (Bulkeley and
Kern, 2004; Bulkeley, 2006; Campbell, 2006; Wilson, 2006;
Taussik, 2007).
In coastal zones, a range of adaptation options is available
for coastal management, including (Klein et al., 2001): (i)
planning for rising sea-levels by the building or strengthening
of coastal and river flood defences; (ii) protecting and
strengthening natural defences such as dunes and other
green infrastructures; and (iii) land-use management and
moving back from the coast. The existence of such a broad
range of options in one of the reasons why climate change
adaptation is recommended to take place within the framework of ICZM (Klein et al., 2001).
ICZM is an approach that integrates coastal management
and planning, taking into account all policies, sectors and
interests to achieve a sustainable coastal development
(Wilson and Piper, 2010). In this context, ICZM can be
considered mainly as a spatial planning instrument to manage
the impacts of climate change in coastal zones (Daschkeit,
2007), which can significantly affect populations, economies
and biodiversity (Nicholls and Tol, 2006; ESF, 2007; JonesWalters and Nieto, 2007; EEA, 2008).
78
1.3.
The Portuguese National Strategy for ICZM
The Continental Portugal (Iberian Peninsula, SW-Europe)

coastline extends over 900 km and is morphologically diverse,
presenting geomorphological features that include, among
others, extensive sandy shores backed by dunes, rocky coasts
with low and high cliffs, pocket beaches, bays, estuaries,
lagoons and barrier islands. The Portuguese coast comprises it
in three main types: (i) sandy shores; (ii) cliffed coasts; and (iii)
low-lying rocky shores (Ferreira et al., 2008). It is highly
attractive for the concentration of economic activities and
population, mainly along the estuaries, which are considered
highly vulnerable to sea level rise (Ferreira et al., 2008), being
particularly exposed to storm surges, coastline erosion and
floods (EC, 2009; ENGIZC, 2009).
The first integrated vulnerability assessment of the
impacts of climate change in Continental Portugal, based on
Global and European climatic models and on Portuguese
climatic and sea level data, projects to 2100 the (Santos and
Miranda, 2006): increase in maximum summer temperature
estimated at 3 8C in the coastal zones and above 7 8C in the
interior, accompanied by a major increase in the frequency
and intensity of heatwaves; reduction in precipitation over
Continental Portugal, predicted by almost all models, within
the range of 2040% of its current values, but due to increases
in the number of intense precipitation days (above 10 mm/
day 1) can occur an increase of precipitation during winter;
and rise in sea level (which has rose in Continental Portugal
about 0.15 m during the 20th century) of up to 1 m, similar to
the maximum proposed by the IPCC (IPCC, 2001) in worst case
scenario (IPCC scenarios give a global mean sea level rise of
0.090.88 m by 2100).
The main potential impacts of climate change in the
Portuguese coastal zones can be the permanent inundation of
wetlands and low-lying lands, accelerated erosion, freshwater
shortage, natural trend for upward and landward displacement of estuaries and coastal lagoons and potential loss of
ecosystems (Ferreira et al., 2008; EC, 2009). These resulting
impacts of climate change are the greatest challenge that
arises in the medium/long term to ICZM in Portugal, forcing
the adoption and implementation of adaptation measures in
various sectors because climate change is a cross-sectoral
issue and a cross-cutting theme of all decision-making
processes on strategies and development policies.
In Portugal, the spatial planning policy is based on a
Territorial Management System (TMS) which is organized
within a framework of coordinated interaction at three levels
(LBPOTU, 1998):
i) National: defines the strategic framework for national
planning, setting guidelines to be considered in regional
and local planning;
ii) Regional: defines the strategic framework for regional
planning in close coordination with economic and social
development national policies, establishing the directives
to the local planning;
iii) Local: defines, in accordance with the guidelines of
national and regional levels and with their own strategic
development options, the land use regime and its
programming.
The TMS concretizes the coordinated interaction of its

various levels through a coherent and rational set of SPI also
designated as Spatial Management Instruments (SMI). These
SMI establish the options to national territorial development
and organization, programme or embody policies of economic
and social development with territorial incidence. They also
constitute a supplementary means of the Government
intervention in pursuing the objectives of national interest
with spatial repercussions or in defining the land use regime
(LBPOTU, 1998). According to the different functions that they
perform, SMI integrate:
i) Territorial development instruments (TDI) which are
diverse and organized at national level policies (laws),
strategies, plans and programmes, and at regional level
regional spatial planning plans and intermunicipal spatial
planning plans;
ii) Territorial planning instruments (TPI) which are organized
at local level municipal spatial planning plans including
municipal master plans, urbanization plans and detail
plans;
iii) Sectoral policy instruments (ScPI) which are organized at
national level sectoral plans;
iv) Special nature instruments (SNI) which are organized at
national level special spatial planning plans of protected
areas, coastal zones, public water reservoirs and estuaries,
however these plans have territorial intervention areas
with incidence at regional and local level.
The PNSICZM is a SMI of national level, namely a TDI, and
has strategic nature, constituting an important spatial
planning instrument. In this context, it is important to
emphasize that the PNSICZM establishes a strategic framework to integrated and participatory management of the
coastal zones to ensure sustainability conditions for its
development, reaffirming the purposes conferred by the
current international Conventions, European Community
guidelines and national legal framework, and integrating
the provisions of the official documents of reference, among
which stand out at level:
i) International: the United Nations Convention on the Law
of the Sea (UNCLOS) signed on 1982 in Montego Bay (UN,
1982), which defined, among other important aspects in
the framework of international law of the sea, the concepts
of maritime areas to consider in ICZM; the United Nations
Convention on Biological Diversity (UNCBD) signed on 1992
in Rio de Janeiro (UN, 1992), which sought the conservation
of biological diversity and encompasses all aspects: genes
and genomes, species and communities, habitats and
ecosystems; the Convention for the Protection of the
Marine Environment of the North-East Atlantic (OSPAR
Convention) signed on 1992 in Paris (OSPAR Commission,
1992), which aimed to guide the international cooperation
in the protection of the marine environment and apply the
ecosystemic approach to the management of human
activities. These conventions are the main multilateral
international agreements that frame ICZM in Portugal.
However, another important convention, corresponding to
a bilateral international agreement, established with
neighbouring Spain, also can intervene in the Portuguese

ICZM, particularly in the case of the MRE, while a crossborder river and estuary, namely the Convention on
Cooperation for the Protection and Sustainable Use of
Water Basins Hydrographical Luso-Spanish (Albufeira
Convention) signed on 1998 in Albufeira (CA, 1999), which
defined the cooperation framework between Portugal and
Spain to protect surface water and groundwater and the
aquatic and terrestrial ecosystems which depend directly
on them, and for the sustainable use of water resources of
the international river basins, including the Minho River.
To monitor and propose solutions related to matters
covered by this convention, and other international
conventions concluded between Portugal and Spain, and
implement the cooperation policy between Portugal and
Spain was established, in 2007, the Interministerial
Commission on the Limits and Luso-Spanish River Basins
(CILBHLE, 2007). Although the cooperation framework be
established, yet there is no action or SMI jointly between
Portugal and Spain to the Minho River basin nor to the MRE,
therefore should be promoted the cooperation in ICZM
framework of the cross-border territory. This cross-border
cooperation between Portugal and Spain must take into
account the need for climate change adaptation because,
as referred by the EEA (2012), many impacts of climate
change and adaptation measures have cross-border
dimensions. It is by the recognition of the importance of
this cooperation framework that the PNSICZM established,
as one of its transversal objectives, the international
cooperation development through mechanisms of cooperation between states and regions on ICZM;
ii) European: the Recommendation 2002/413/EC of the European Parliament and of the Council of 30 May 2002 (EPC,
2002), which defined the general principles and options for
ICZM in Europe and described the steps that the Member
States should take to develop national strategies for ICZM
and involve all coastal stakeholders. Regarding cooperation, recommended that Member States should encourage,
enter into or maintain dialogue and implement existing
conventions with neighbouring countries to establish
mechanisms for a better coordination of responses to
cross-border issues. The PNSICZM was developed according to this Recommendation 2002/413/EC guidelines.
However, there are many others Community Sectoral
Policies that are not directly oriented to the coastal zones
but which are very relevant to the sustainable development of these areas. Among these policies stand out: the
Directive 2000/60/EC of the European Parliament and of the
Council of 23 October 2000 Water Framework Directive
(EPC, 2000), which established the framework for the
protection of inland surface waters, transitional waters,
coastal waters and groundwater and to ensure that all
Community waters achieve a good quality status, having
strong links with spatial planning and requiring the
consideration of integrated performances between these
sectors water management and spatial planning. This
Directive has caused major changes in those sectors,
adopting the Hydrographical Region as the main unit for
water management and planning based on the watershed
and, according to Veloso-Gomes (2011), the creation of new
79
Regional Water Authorities (by Hydrographical Region) has

strong implications on ICZM; the Directive 2007/60/EC of
the European Parliament and of the Council of 23 October
2007 Flood Risk Management Directive (EPC, 2007), which
established the framework for the assessment and
management of flood risks, aiming at the reduction of
the adverse consequences for human health, the environment, cultural heritage and economic activity associated
with floods in the Community. It is applied to flood areas
along rivers as well as in estuarine and coastal zones and
determined the elaboration of flood risk maps which are
very important for those rivers, estuaries and coastal
zones. This Directive also set that when an international
river basin district, or unit of management, falls entirely
within the Community Member States shall ensure
coordination with the aim of producing one single
International Flood Risk Management Plan, or a set of
Flood Risk Management Plans coordinated at the level of
the international river basin district; the Directive 2008/56/
EC of the European Parliament and of the Council of 17 June
2008 Marine Strategy Framework Directive (EPC, 2008),
which established the framework for community action in
the field of marine environmental policy. It should also be
referred the Community Cohesion Policy, which provides
the framework for the financing of a wide range of projects
and investments with the objective of stimulating economic growth in the Member States and its regions and is
based on the Structural Funds and Cohesion Funds. Under
this policy was launched, in 2000, the INTERREG III
Program, funded by the European Regional Development
Fund, which is particularly important for the implementation of joint strategies and development programmes for
cross-border cooperation between border regions neighbouring in order to develop the economic and social
cooperation. This Programme can be used, in the context
of the MRE, between Portugal and Spain to prepare it for
the impacts of climate change, whereas the management
of risks arising from climate change is among the priorities
of the Territorial Agenda of the European Union;
iii) National: the National Program of the Spatial Planning
Policy (PNPOT, 2007), which constitutes the spatial
planning framework to national territory and has identified, as a priority, the implementation of a planning and
ICZM policy, including terrestrial and aquatic components,
as well as the implementation of a sustainable policy to
climate change through the elaboration of adaptation
plans and the integration of adaptation measures to
climate change in the SMI.
The PNSICZM intervention area are all the Portuguese
coastal zones, translating the strategic options with relevance
to territorial development and organization, establishing the
generic guidelines for spatial planning (terrestrial and aquatic
components) and consolidating the reference framework for
the SMI in coastal zones (ENGIZC, 2009). Thus, the integration
of the concern of climate change adaptation in the PNSICZM is
essential as a framework to the SMI covering the MRE. In this
scope, this study aims to: (i) evaluate the integration of the
concern of climate change adaptation in an important SMI at
national level, the PNSICZM; and (ii) realize how this
80
integration influences the management of the potential

impacts of climate change at local level in the MRE.
2.
Materials and methods
2.1.
Study area
The MRE, and its adjacent coastal zone, forms the NW border
between Portugal and Spain (Iberian Peninsula, Europe) and
has about 40 km of length, as far as the influence of tides
extends and a maximum width of 2 km near the river mouth
(Alves, 1996). Administratively is covered by three Portuguese
Municipalities, namely: Valenca, Vila Nova de Cerveira and
Caminha (Fig. 1).
The MRE gathers wetland habitats of high ecological
importance including estuarine waters, mud and sand banks,
marshes, riparian forests, reed beds and rushes. The great
diversity of these habitats, coupled with the predominantly
Atlantic climate, with some Mediterranean influence, creates
favourable conditions to the occurrence of diverse bird
communities. The high productivity of the MRE makes it a
refuge place for nursery and feeding of marine fish species,
migratory and freshwater and for other types of species
essential to ecosystem functioning (ICNB, 2008).
Due to its high ecological value and relatively low human
intervention, the MRE in the Portuguese estuarine side it is
included in the Natura 2000 Network (ICNB, 2008) as (Fig. 2): (i)
Littoral North Site of Community Importance (SCI); (ii) Minho
River Site of Community Importance (SIC); and (iii) Estuary of
the Minho and Coura Rivers Special Protected Area (SPA).
However, the entire MRE, even the estuarine Spanish side, is
covered by this same protection statute of Natura 2000
Network, as can be confirmed in the Natura 2000 Viewer
(http://natura2000.eea.europa.eu/#). This protection network
seeks to maintain and protect habitats and biodiversity from
threats and impacts, including those related with climate
change (Sousa et al., 2005, 2008; ICNB, 2008).
The landscape along the MRE margins is a mosaic

composed by dispersed settlements, alternating with areas
of irrigated agriculture and forestry. The highest population
density of the Portuguese Minho River basin it is located at the
MRE because there are good accessibilities for social and
economic activities. The economic activities are mainly
connected to the secondary and tertiary sectors (e.g. construction, commerce, manufacturing industry, services, tourism), although agriculture and professional fishery have some
expression (INAG, 2001; INE, 2001). These activities and land
uses are regulated by a set of SMI (Tables A.1A.3 in Appendix
A), which determine the eco-socio-economic development of
the MRE.
Considering the climate and sea level projections for
Portugal Continental by 2100 (IPCC, 2000, 2001; Santos and
Miranda, 2006; IPCC, 2007a, 2007b, 2007c) and the characteristics and vulnerability of the Portuguese coastal zones (Santos
and Miranda, 2006; Andrade et al., 2007; Ferreira et al., 2008;
Coelho et al., 2009) as also the estuary specificities (Alves, 1996;
INAG, 2001; INE, 2001; Sousa et al., 2005, 2008; ICNB, 2008), the
MRE can be particularly vulnerable and experience some
potential eco-socio-economic impacts of climate change
(Table A.4 in Appendix A) to which the SMI should be prepared.
2.2.
Methodology
The methodology used in this work was based on the research,

collection and analysis of official documents on the Portuguese climate change, coastal zones and spatial planning
policies, namely through a detailed analysis of the PNSICZM
(Resolution of the Council of Ministers No. 82/09, of 8
September 2009) (ENGIZC, 2009). This analysis was carried
out following two criteria: (a) identification of actions
(indicators/targets) associated with the concern of climate
change adaptation, through actions with a direct reference to
climate change and actions with indirect (implied) reference to
climate change; and (b) identification of actions with direct
implications on SMI. This analysis allowed to evaluate the
Fig. 1 Geographic location of the Minho River Estuary (Portugal NW-Coastal Zone).
81
Fig. 2 Natura 2000 Network in the Minho River Estuary in Portugal.
integration of the concern of climate change adaptation in the

PNSICZM and also to realize how this integration influences
the management of the potential impacts of climate change in
the MRE.
3.
Results
The PNSICZM establishes a strategic framework to global,

integrated and participatory management of the coastal
zones. It aims to ensure the appropriate articulation and
coordination of policies and instruments that guarantee the
sustainable development of coastal zones in a long-term
vision (20 years), until 2029. Its implementation intends to
achieve a coastal zone sustainable and harmoniously developed, supported on knowledge and managed under a
comprehensive model that integrates policies, instruments
and institutions and ensures the participation of different
stakeholders.
In the PNSICZM it is recognized and emphasized the need
to integrate climate change issue into the coastal management in order to incorporate measures and sector-specific
guidelines to climate change adaptation. In this sense, in its
values, principles, strategic options and objectives (Table A.5
in Appendix A) is present, indirectly (in an implied way), the
concern related with the need to prepare for the potential
impacts of climate change.
The PNSICZM objectives are supported by 20 measures,
which are based in a set of indicators to verify its realization
and that correspond to the targets that must be achieved.
These measures are of the following four types: (i) Regulatory
and management; (ii) Thematic environmental values, security,
planning, competitiveness, knowledge; (iii) Monitoring; and (iv)
Participation. They have three priority levels, corresponding to
the time for concretization: (i) Priority 1: short term (mainly in
the first three years); (ii) Priority 2: short and medium/long term
(mainly between the fourth and the seventh year); and (iii)
Priority 3: medium/long term (mainly between the fourth and
the twenty-ninth year). The leader entity(ies) responsible for
the implementation of each measure and others entities
involved are identified in the PNSICZM. The entities involved
in the various measures should ensure the technical and
financial resources for its implementation.
We verified that climate change appears clearly framed
both in the thematic objectives as well as in the transversal
objectives, being consubstantiated in 12 out of its 20 measures
(i.e. in 60% of the measures) of the PNSICZM. In these
measures were identified actions (indicators/targets) associated with the concern of climate change adaptation with
direct reference to climate change, indirect (implied) reference
to climate change and direct implications on SMI (Table A.6 in
Appendix A).
4.
Discussion
4.1.
Integration of the concern of climate change
adaptation in the Portuguese National Strategy for ICZM
In the PNSICZM the concern of climate change adaptation it is
integrated and, in this scope, preventive as well as preparatory
measures are listed, especially through spatial planning,
under a governance framework based on institutional
cooperation and co-responsibility. It should be noted that
the major concern, in the climate change context, is the
prevention and management of natural risks, particularly in
the most vulnerable areas, such as estuaries. Over half of the
measures are exactly motivated by this concern as mentioned
previously presenting actions (indicators/targets) whose implementation must be based on the PNSICZM models, namely:
82
i) The Planning model based on the articulation of socioeconomic and ecological dynamics in resource use and risks
management, by applying the scientific knowledge into
coastal spatial planning and through the scientific evaluation of the different impacts of climate change on coastal
ecosystems; the ecosystemic approach, prospective and
preventive in ICZM; the coastal good (bem litoral)
concept through the integration of prevention and
precaution principles into the SMI; the buffer zone
concept through its integration as a spatial planning
principle into the SMI associated to a non aedificandi status,
being an essential safeguard mechanism to risk situations
and in the most vulnerable stretches of the coastal zone;
and guidelines that will frame the revision or development
of other SMI in the coastal zone;
ii) The Institutional model based on the articulation of
competencies, co-responsibility and institutional cooperation, by applying the institutional co-responsibility
around a national coordinating entity under a new
institutional framework for ICZM; and the implementation
of institutional cooperation at different levels of Governance (national, regional and local) and with neighbouring
regions, in particular with the Spanish bordering regions;
iii) The Governance model based on strengthening of the
Government role in regulation, financing and management of the coastal zone and on public-private cooperation, through the convergence of interests around
partnerships for coastal management by applying the
co-responsibilization in sharing risks which must be
applied to ensure the involvement and participation of
local communities and other local actors through the
access to information and intervention in SMI processes of
formulation, implementation, evaluation and revision.
4.2.
Implications for the management of the potential
impacts of climate change in the Minho River Estuary
The timeframe to apply measures (according to the priority
levels), entities responsible for its implementation and
funding sources are all well defined in the PNSICZM,
supporting the implementation of the models mentioned
previously.
The implementation of the PNSICZM will have implications
in the management of the potential impacts of climate
change, both through actions to be implemented by the SMI
as well as on entities articulation, cooperation and actions. It is
mainly based on spatial planning that many decisions, with
impact on territory and society adaptive capacity to climate
change, can be taken, maximizing their effectiveness (ENAAC,
2010). The determinations of spatial planning may affect the
territory vulnerability and resilience and can play an anticipatory role towards the adaptation to climate change
(Bulkeley, 2006; Wilson, 2006). Thus, adaptation measures
through spatial planning will be much more efficient
(Schmidt-Thome, 2006) and effective (Chatterjee et al., 2008)
as more decision-makers consider them in the decisionmaking processes.
The MRE, due to its biogeophysical and socioeconomic
characteristics, represents an area of complex territorial
management, being covered by several SMI, from different
levels, reflecting the diversity of entities with competences in

their management and also the complex institutional articulation. The concern of climate change adaptation and the
PNSICZM set of measures to climate change with direct
implications on SMI should be reflected territorially at the
local level of the MRE through spatial planning. This means
that the SMI covering the MRE, both in aquatic and terrestrial
components, and the entities responsible with competences
on the implementation of those SMI, must integrate and
consider the PNSICZM guidelines (Table A.7 in Appendix A)
based on their models mentioned previously:
i) Under the planning model it is essential the integration of

the PNSICZM guidelines into the SMI covering the MRE. In
this scope, the Coastal Zone Management Plan Caminha to
Espinho (POOC-Norte) (national level), the Regional Territorial Management Plan of North (PROT-Norte) (regional
level) and the Municipal Spatial Planning Plans of Valenca,
Vila Nova de Cerveira and Caminha (local level) should
integrate, as a form of adaptation to climate change, the
prevention and precaution principles and the non aedificandi buffer zone principle, taking an ecosystemic,
prospective and preventive approach. Thus, the Coastal
Zone Management Plan Caminha to Espinho, which is
under revision, will integrate the PNSICZM guidelines as
mentioned in the diploma of 2009 which determined its
revision process. The Regional Territorial Management
Plan of North should include these guidelines in its next
revision, despite it still being under approval is not possible
to integrate the PNSICZM guidelines right now because
public consultation already occurred and their results
were published. The Municipal Spatial Planning Plans
(including Municipal Master Plan, Urbanization Plan and
Detail Plan) of Valenca, Vila Nova de Cerveira and Caminha
does not integrate yet the PNSICZM guidelines because
they are older than the PNSICZM, however these SMI must
harmonize with the SMI of superior level, therefore in its
next revisions will be shaped by both the PNSICZM
guidelines and the Coastal Zone Management Plan
Caminha to Espinho provisions;
ii) Under the institutional model it is expected a better
coordination between the different main entities at
different levels, being especially important the articulation
of the following institutions at three levels: (1) National
General Direction for Spatial Planning and Urban Development, whose competences were integrated into the
current General Direction for Territory; Water Institute,
whose competences were integrated into the current
Portuguese Environment Agency; National Maritime Authority; and National Authority by Civil Protection; (2)
Regional Coordination Commission and Regional Development of North; Hydrographical Region Administration
of North, whose competences were integrated into the
current Portuguese Environment Agency; Caminha Port
Captaincy; and Viana do Castelo District Command of
Relief Operations; and (3) Local Municipalities of Valenca,
Vila Nova de Cerveira and Caminha. It is also important the
transboundary institutional articulation between the
various municipalities and the harbour authorities from
Portugal and Spain and through the Interministerial

Commission on the Limits and Luso-Spanish River Basins;
iii) Under the governance model it is necessary the development of publicprivate partnerships based on the stakeholders involvement and co-responsibilization in sharing
risks. To this purpose can be used an existent action tool,
the Territorial Action Programme (TAP) (DGOTDU, 2010),
which is a contractual nature instrument to make
compromises between interests manifested over the
territory and to create more favourable conditions for
desirable convergence and coordination of public and
private performances on urban and territorial development.
5.
Conclusions
Coastal zones, due to their sensitivity, are priority areas to

climate change adaptation. In this scope, spatial planning has
a determinant role because allows early action, which is more
cost-effective than responding to changes as they happen or
retrospectively.
In the PNSICZM the concern of climate change adaptation
appears, directly and indirectly, reflected in more than 50% of
their measures that should be integrated into the SMI of the
coastal zones. Thus, the national policy framework to
integrate the adaptation to climate change in the Portuguese
ICZM through spatial planning is prepared.
As the PNSICZM is a SMI of strategic nature sets guidelines
to climate change adaptation in the SMI at regional and local
level. Thus, the concern of climate change adaptation and the
set of measures to climate change with direct implications on
the SMI of the PNSICZM have direct implications on the SMI
covering the MRE which must integrate its guidelines in order
to prepare as well as possible the estuary for the potential
impacts of climate change. For this purpose, it is particularly
important, under the measure M11 of the PNSICZM, the
elaboration of the orientation guide for the Municipal Spatial
Planning Plans, which should be made in the first three years
of the Strategy implementation, because this guide will be
83
helpful to support the integration of adaptation measures in

the Municipal Spatial Planning Plans at local level. The entities
with local competences are in a privileged position to identify
the vulnerabilities of their territories and to define adaptation
actions to climate change as well as to integrate climate
change adaptation into the SMI at local level which, due to
their regulatory nature and because they bind public and
private entities, are the main SMI to make a proactive and
integrated management, including all sectors, of the potential
impacts of climate change and a cost-effective planned
adaptation. However, this will be a gradual process dependent
on the SMI revision cycles but it is likely the most directed way
to put in practice several adaptation measures that will allow
annul or significantly reduce the damage risk and maximize
the benefits from climate change (ENAAC, 2010). At the same
time, to improve the contribute of spatial planning to climate
change adaptation in the MRE will be important a better
coordination between the different main national institutions
at different levels and also a better articulation and cooperation with the bordering Spanish regions, for example through
the elaboration of transboundary SMI. All these are fundamental requirements to promote and improve climate change
adaptation in order to prepare for the potential impacts of
climate change a valuable ecosystem such as the MRE. Thus,
the PNSICZM models provide an essential framework for
climate change adaptation in the MRE through spatial
planning.
Acknowledgement
Rute Pinto was supported by a PhD grant from the Portuguese
Foundation for Science and Technology FCT (SFRH/BD/
33389/2008).
Appendix A
See Tables A.1A.7.
84
Table A.1 Main SMI covering the Minho River Estuary at national level.
Territorial
management
system (TMS)
components
Level
Spatial
management
instruments
(SMI) types
National
Policies (Laws),
Strategies,
Plans and
Programmes
Territorial
Development
Instruments
(TDI)
Environment Law (1987)
Spatial Planning
Policy
Spatial Planning
and Urban
Planning
Law (1998)
Coastal Zones
Policy
National Strategy
for Integrated
Coastal Zone
Management
(2009)
Climate Change
Others Policies
Policy
National Programme National Plan of Environment
to Climate Change Policy (1995)
(2004, 2006, 2008)
Legal Regime
of SMI (1999)
National Strategy
for Adaptation to
Climate Change
(2010)
National Programme
of the Spatial
Planning Policy (2007)
Forest Policy Law (1996)

National Road Plan (1998)
National Action Program to
Combat Desertification (1999, 2011)
Hunt Law (1999)
Albufeira Convention (1999, 2008)
National Strategy for Nature
Conservation and Biodiversity (2001)
National Plan of Water (2002)
National Programme for the Efficient Use
of Water (2005)
Ownership of Water Resources Law
(2005)
Water Law (2005)
Strategic Plan of the North Region (2006)
National Plan of Forest Fire Defense
(2006)
National Strategy for Forestry (2006)
National Strategy for Sea (2006)
National Strategic Plan for Fishery (2007)
Strategic Plan for Solid Waste (2007)
Strategic Plan for Water Supply and

Sewerage (2007)
National Strategy Plan for Tourism (2007)
National Strategy for Agro-Livestock and
Agro-Industrial Waste (2007)
National Strategy for Sustainable
Development (2007)
National Strategic Plan for Rural
Development (2008)
Inland Fisheries Law (2008)
Polis Programme Integrated Operations
of Renewal and Valuation of the Littoral
North Coastal Zone (2008)
National Action Plan for Environment
and Health (2008)
National Strategy for Energy (2005, 2010)
National Plan of Maritime Port (under
preparation)
National Strategic Reference Framework
(2007)
Thematic Operational Programme for
the Enhancement Planning (2007)
Regional Operational Programme of the
North (2007)
Others
85
Table A.1 (Continued )

Territorial
management
system (TMS)
components
Level
Spatial
management
instruments
(SMI) types
National
Territorial Planning I
nstruments (TPI)
Sectoral Policy
Maritime Spatial Planning Plan (2008) (under approval)
Instruments (ScPI)
Special Nature
Instruments (SNI)
Table A.2 Main SMI covering the Minho River Estuary at regional level.
Territorial
management
system (TMS)
components
Spatial management
instruments (SMI) types
Level
Regional
Policies (Laws),
Strategies,
Plans and
Programmes
Regional Territorial Management Plan of North (2006) (under approval)
Territorial Development
Instruments (TDI)
Territorial Planning
Instruments (TPI)
Sectoral Policy
Instruments (ScPI)
Minho River Basin Plan (2001)

Sectoral Plan of Ecological
Network Natura 2000 (2008)
Estuary of the Minho and Coura Rivers

Special Protected Area (SPA) (1999)
Minho River Site of Community
Importance (SCI) (1997)
Littoral North Site of Community
Importance (SCI) (2000)
Regional Plan for Forestry Planning of Alto Minho (2007)
Hydrographical Regions of North Management Plans Basins Management
Plan of the Minho-Lima Hydrographical Region (2005, 2009, 2009, 2013)
Floods Risks Management Plans (international or national) (under preparation)
Coastal Zone Management Plan Caminha to Espinho (1999, 2005, 2007, 2009) (under
revision)
Spatial Planning Plan of the Minho River Estuary (under preparation)
Special Nature
Instruments (SNI)
Table A.3 Main SMI covering the Minho River Estuary at local level.
Territorial
management
system (TMS)
components
Spatial management
Policies (Laws),
Strategies,
Plans and
Programmes
Territorial Development
Instruments (TDI)
Territorial Planning
Instruments (TPI)
Level
Local
Municipal Spatial Planning Plans (including Municipal Master Plan, Urbanization

Plan and Detail Plan) of Valenca (2010)
Plan and Detail Plan) of Vila Nova de Cerveira (1995) (under revision)
Plan and Detail Plan) of Caminha (1995) (under revision)
National Agricultural Reserve of Valenca (2010)
National Agricultural Reserve of Vila Nova de Cerveira (1995) (under revision)
National Agricultural Reserve of Vila Nova de Cerveira (1995) (under revision)
National Ecologic Reserve of Valenca (2010)
National Ecologic Reserve of Vila Nova de Cerveira (1995) (under revision)
National Ecologic Reserve of Vila Nova de Cerveira (1995) (under revision)
Rail Public Domain (2003)
Hydric Public Domain (2005, 2005, 2007)
Adjacent Zones: Zones Threatened by Sea and Zones Threatened by Floods
(2005, 2005)
Buffer Zone (2006, 2007, 2009) (under definition)
86

Territorial
management
system (TMS)
components
Spatial management
Level
Local
Sectoral Policy
Instruments (ScPI)
Special Nature
Instruments (SNI)
Forest Management Plan of the National Forest of Camarido (2009, 2009)

International Regulation for Preventing Collisions at Sea (1972)
Regulation of the Hunt in the Waters and Margins of the International Section of
the Minho River (1994, 2012)
Regulation of the Jurisdiction Space of the Caminha Port Captaincy (2002, 2011)
Regulation of the Pleasure Shipping (2004)
Regulation of the Fishing in the Minho River (2008, 2009)
Table A.4 Main potential eco-socio-economic impacts of climate change in the Minho River Estuary.
Climate drivers
Air temperature increase of up to 5 8C (by 2100)
Precipitation decrease, in general, of up to 50 mm in winter and 50100 mm in the

other seasons. However, due to increases in the number of intense precipitation
days (above 10 mm/day) can occur an increase of precipitation during
winter (by 2100)
Sea level rise of up to 1 m (by 2100)
Potential eco-socio-economic impacts

- Water temperature increase
- Changes in levels of dissolved oxygen and
biochemical processes
- Changes in both direction and power of waves
- Storm surges increase and changes in direction,
strength, frequency, duration and intensity
- Shortening of return period of more intense
storm surges
- Difficulty in drainage at the mouth increasing floods
- Salinity incursions/intrusions increase
- Deposition of sediments along coast will probably
be lower than the current deposition
- Acceleration of coastline erosion with increased
coastal erosion
- Shoreline retreat
- Changes in weather patterns with the increase
of extreme events frequency and intensity such
as floods and heat waves
- Shortest return period of floods
- Flash flood increase in low lying areas
- Freshwater shortage due to prolonged and more
intense periods of droughts
- Changes in hydrological patterns (rainfall, runoff,
flow, turbidity and aquifers recharge)
- Enlargement of silting (with a significant reduction
of exported materials to the coast and the entry
of larger volumes of sands transported by littoral
drift with possible reduction of coastal
sedimentary traffic)
- Increase of loss of intertidal and marsh zones
- Loss or displacement of habitats/ecosystems
(inland migration of beaches and wetlands)
- Changes in species and communities
distribution, composition and structure
- Invasive species increase
- Loss of land and changes in land uses
- Changes in socioeconomic infrastructures
- Direct loss of economic, ecological, cultural
and livelihood values through the loss of
land, infrastructures and coastal habitats
Table A.5 Values, principles, strategic options and objectives of the Portuguese National Strategy for ICZM.
Identity
Sustainability
Planning
Security
Principles
Sustainability and intergenerational solidarity

Cohesion and social equity
Prevention and precaution
Systemic approach
Technical and scientific knowledge
Subsidiarity
Participation
Co-responsibilization
Operationality
Strategic options
Planning model
Institutional model
Governance model
Objectives
Thematic
Transversal
Socioeconomic and ecological dynamics articulation in resources use and risks management
Ecosystemic approach
Skills articulation Co-responsibilization institutional around a national coordinating entity
Public-private cooperation, which focuses on convergence interests through partnerships for the
coastal zone management including a figure of users associations Co-responsibility in sharing risks
Conserve and enhance the resources and the natural heritage, landscaping and cultural
Anticipate, prevent and manage situations of risk and impacts of environmental, social and economic
origin
Promote the sustainable development of economic activities that contribute to the enhancement of
specific resources from coastal zone
Improve the scientific knowledge on systems, ecosystems and coastal landscapes
Develop the international cooperation
Strengthen and promote the institutional articulation and the coordination of policies and instruments
Develop mechanisms and monitoring and observation networks
Promote information and public participation
Values
87
88
Table A.6 Measures including actions associated with the concern of climate change adaptation of the Portuguese National Strategy for ICZM.
Measure
Measure
type
Reference
to climate
change
Direct
implications
on SMI
Actions (indicators/targets) associated

with the concern for climate
change adaptation
Priority level
Leader entity (ies)
Financing source
Strengthen and
promote a specific
normative
framework for
coastal zone
management
Regulatory and
Management
Direct
Yes
- Institution of the governance model

- Application of the coastal good concept and
integration of prevention and precaution
principles into the SMI namely in: Regional
Spatial Planning Plans, Municipal Spatial
Planning Plans and Special Spatial Planning
Plans
- Development of a Sectoral Plan for the Coastal
Zone which will identify options and guidelines
that will frame the elaboration or revision of
the SMI in the coastal zone, considering climate
change and its impacts
- Priority 1
short term first
2 years of the
strategy
implementation
- Water Institute/
Portuguese
Environment Agency
- Government budget
- EU funding
M02
Stimulate and
effecting the
coastal zone
management
mechanisms
Regulatory and
Management
Indirect
Yes
- Introduction of co-responsibility and sharing

risks principles Hydric domain regulation
through Hydric Public Domain Associations
- Priority 1
short term - first
35 years of the
Strategy
implementation
- Water Institute/
Portuguese
Environment Agency
- Hydrographical
Region
Administration/
Portuguese
Environment Agency
- Government budget
- EU funding
M05
Ensure the
implementation of
the intervention
priority program of
coastal zone
recovery
Thematic:
Environmental
values
Indirect
Yes
- Creation of the necessary mechanisms for

monitoring, evaluation and reprogramming of
the Coastal Zone Spatial Planning Plans, taking
into account the need of these plans integrate
new interventions corresponding to risk
situations for people and goods
- Realization of new interventions in risk
situations and in areas to value that require an
complex institutional articulation or that
integrate broader areas of the coastal zone (e.g.
buffer zone spaces, estuaries and lagoons)
Priority 2 short/
medium/long
term depending
on the action
- Water Institute/
Portuguese
Environment Agency
- Nature
Conservation and
Biodiversity Institute
- Government budget
- Municipalities (Local
Government)
- EU funding
- Private funding
M01
Thematic:
Security
Direct
Yes
- Elaborate a study with the prediction of the

coastline evolution
- Identification of different risks and
categorization, in particular those arising from
climate change
- Apply a prospective and ecosystemic approach
in taking measures to prevent and reduce the
effects of climate change risks
- Elect areas where the adaptive management is
a priority in the climate change context and a
example typified of future actions
- Assume that coastal zone as a buffer zone
particularly important function in the context
of climate change and associated sea level rise
that must be assumed as a spatial planning
principle to be integrated into the SMI
associated with a non aedificandi status as a
safeguard mechanism for risk situations and
for the most vulnerable stretches of coastal zone
- Priority 1
short term first
5 years of the
Strategy
implementation
- Water Institute/
Portuguese
Environment Agency
- Hydrographical
Region
Administration/
Portuguese
Environment Agency
- Navy/
Hydrographical
Institute
- Government budget
Government)
- EU funding
M08
(Re)assess the need

of hard coastal
defence through
the application of
multi-criteria
models
Thematic:
Security
Direct
Yes
- (Re) assessment of existing infrastructures

through evaluation studies, especially for
critical situations, where climate change, and
its resulting impacts on coastal ecosystems and
landscapes, should be integrated
- All new coastal defence constructions, which
demonstrate important in a social-ecological
approach, should be submitted to a multicriteria analysis
- Priority 2
medium term
between the 3
and the 6 year of
the Strategy
implementation
- Water Institute/
Portuguese
Environment Agency
- Hydrographical
Region
Administration/
Portuguese
Environment Agency
- Government budget
- EU funding
M09
Incorporate in
contingency plans
the specific risks of
coastal zone
Thematic:
Security
Indirect
Yes
- The Risk Management Plans and Emergency

Plans must address risk situations including
situations of erosion and sea advances,
especially in adverse weather conditions
- Ensure that the warming systems and risk
management from national level contemplate
an articulation with the terrestrial space
- Create Emergency Response Plans with
transboundary regions
- Priority 1
short/medium/
long term
depending on the
action
- National Authority
by Civil Protection
- General Direction
of the Maritime
Authority
- Government budget
Government)
- EU funding
M10
Undertake the
inventory of the
Hydric Domain and
assess the legality
of the Maritime
Public Domain
occupations
Thematic:
Planning
Indirect
Yes
- Inventory of the dominial margins, particularly

the Maritime Public Domain
- Develop a database containing the inventory,
information and characterization of the uses
and activities existing in the margin
- Priority 2
short/medium/
long term
depending on the
action
- Water Institute/
Portuguese
Environment Agency
- Hydrographical
Region
Administration/
Portuguese
Environment Agency
- General Direction
of the Maritime
Authority
- Government budget
Government)
- EU funding
89
Identify and
characterize the
risk and vulnerable
areas and typify
safeguard
mechanism
M07
90

Measure
Measure
type
Reference
to climate
change
Direct
implications
on SMI
Actions (indicators/targets) associated

with the concern for climate
change adaptation
Priority level
Leader entity (ies)
Financing source
Integrate into the

spatial
management
instruments
framework the
ICZM issue
Thematic:
Planning
Direct
Yes
- Monitor the elaboration and ensure the

integration of the Portuguese Strategy for ICZM
principles, objectives and measures into the SMI
- Elaboration of a Sectoral Plan for the Coastal Zone
outlining the structuring options for the coastal
zone as a whole, which will frame the
development and revision of the remaining SMI,
including the Special Spatial Planning Plans Definition of the coastal zone as a buffer zone to
protect from sea advance and from climate
change corresponding to a coastal good
(resource) non aedificandi zone principle
considered at the various scales of SMI, with the
Regional Spatial Planning Plans setting
standards and guidelines to be integrated into
the Municipal Spatial Planning Plans
- Assess and quantify the percentage of integrated
coastal zone as a buffer zone of non aedificandi
area at the regulation level of the SMI
- Develop a orientation guide to the Municipal
Spatial Planning Plans
- Priority 1
short/medium/
long term
depending on the
action
Note. The guide
for Municipal
Spatial Planning
Plans must be
made within the
first 3 years
- Coordination
Commission and
Regional
Development
- Water Institute/
Portuguese
Environment Agency
- Government budget
Government)
- EU funding
M15
Creating a
knowledge
platform of R&D
for the coastal zone
Thematic:
Knowledge
Direct
Yes
- Creating a knowledge platform having as

priority areas those that are related with
marine biodiversity and climate change and its
main impacts, prevention and adaptation
forms, development of innovative forms to
monitoring and risk management, among other
domains
- Priority 1
short term first
3 years of the
Strategy
implementation
- Ministry of
Education and
Science
- Water Institute/
Portuguese
Environment Agency
- Government budget
- EU funding
M16
Ensuring adequate
technical training
to the requirements
of ICZM
Thematic:
Knowledge
Indirect
Yes
- Specific training (annual action) about the

coastal zone issues that allows the technical
specialization, for example, of the municipal
technicians
- Priority 3
short/medium/
long term
depending on the
action
- Ministry of
Education and
Science
- Government budget
Government)
- EU funding
M17
Promote the
development of
cooperation
mechanisms
among states and
regions on ICZM
Thematic:
Knowledge
Indirect
Yes
- Develop of cooperation programs on ICZM

through Transboundary Cooperation Programs
between Regions of Portugal and Spain to
address any risk situations and for coastal
resources valorisation in transboundary areas
- Priority 1
short term
between the 2
and the 6 year of
the Strategy
implementation
- Water Institute/
Portuguese
Environment Agency
- Hydrographical
Region
Administration/
Portuguese
Environment Agency
- Government budget
- EU funding
M11
M20
Participation
Indirect
Yes
- Promote information campaigns about the

potentialities, vulnerabilities and coastal zone
evolution
- Priority 1
short/medium/
long term
depending on the
action
- Water Institute/
Portuguese
Environment Agency
- Hydrographical
Region
Administration/
Portuguese
Environment Agency
- Nature
Conservation and
Biodiversity Institute
- Government budget
Government)
- EU funding
- Private funding
Develop a
information and
awareness
program on coastal
zone
91
92
Table A.7 Measures including actions with direct implications on SMI and on SMI of the Minho River Estuary and on
main entities with competences on its SMI.
Measure
M01
Measure
type
Strengthen and
promote a specific
normative
framework for
coastal zone
management
Regulatory and
Management
Implications on SMI
Implications on SMI and main

entities with competences on the SMI
of the Minho River Estuary
- Introduction the concept of the

coastal zone as a coastal good
through defining a buffer zone
and integrating the prevention
and precaution principles into
the SMI
- Introduction of the Sectoral Plan
for the Coastal Zone guidelines into
the SMI
- Regional Territorial Management Plan of

North
- Coastal Zone Management Plan
Caminha to Espinho
- Municipal Spatial Planning Plans
(including Municipal Master Plan,
Urbanization Plan and Detail Plan) of
Valenca, Vila Nova de Cerveira and
Caminha
- Coordination Commission and Regional
Development of North
- Hydrographical Region Administration
of North/Portuguese Environment Agency
- Caminha Port Captaincy
- Municipalities of Valenca, Vila Nova de
Cerveira and Caminha
M02
Stimulate and
effecting the
coastal zone
management
mechanisms
Regulatory and
Management
- Introduction of the coresponsibility and sharing risks

principles in Hydric Public
Domain
- Hydric Public Domain

M05
Ensure the
implementation of
the intervention
priority program of
coastal zone
recovery
Thematic:
Environmental
values
-Revision of the Coastal Zone

Spatial Planning Plans

Caminha to Espinho

M07
Identify and
characterize the
risk and vulnerable
areas and typify
safeguard
mechanism
Thematic:
Security
- Integration of the concept of

coastal zone as a buffer zone
with a non aedificandi status into
the SMI

North - Coastal Zone Management Plan
Caminha to Espinho - Municipal Spatial
Planning Plans (including Municipal
Master Plan, Urbanization Plan and
Detail Plan) of Valenca, Vila Nova de
M08
(Re)assess the need

of hard coastal
defence through
the application of
multi-criteria
models
Thematic:
Security
- Integration of the results from

multi-criteria analysis of the
coastal defences constructions
into the SMI

Caminha to Espinho
Caminha
93

Measure
Measure
type
Implications on SMI

M09
Incorporate in
contingency plans
the specific risks of
coastal zone
Thematic:
Security
- Integration the specific risks of

the coastal zone in contingency
plans (Risk Management Plans,
Emergency Plans and Emergency
Response Plans)
- Floods District Special Plan of Viana do

Castelo
- Civil Protection Municipal Emergency
Plan of Valenca, Vila Nova de Cerveira
and Caminha
- Civil Protection District Emergency Plan
of Viana do Castelo
- Viana do Castelo District Command of
Relief Operations
M10
Undertake the
inventory of the
Hydric Domain and
assess the legality
of the Maritime
Public Domain
occupations
Thematic:
Planning
- Identification of the illegal uses

and occupations in the Maritime
Public Domain
- Hydric Public Domain

of North/Portuguese Environment
Agency
- Littoral North Polis Society
- Private Entities
M11
Integrate into the

spatial
management
instruments
framework the
ICZM issue
Thematic:
Planning
- Introduction of the ICZM and

buffer zone into the SMI
- Introduction of the guidelines
from Sectoral Plan for the Coastal
Zone into the SMI
- Introduction of the guidelines
from Regional Spatial Planning
Plans into Municipal Spatial
Planning Plans

North
Caminha to Espinho
Caminha
Agency
M15
Creating a
knowledge
platform of R&D
for the coastal zone
Thematic:
Knowledge
- Introduction of the scientific

knowledge in the coastal spatial
planning through their inclusion
into the SMI by providing
scientific information

Agency - Caminha Port Captaincy
M16
Ensuring adequate
technical training
to the requirements
of ICZM
Thematic:
Knowledge
- Introduction of the scientific

knowledge in the coastal spatial
planning through training on
coastal zone issues the municipal
technicians, decision-makers on
spatial planning and general
population

94

Measure
M17
Measure
type
Promote the
development of
cooperation
mechanisms
among states and
regions on ICZM
Thematic:
Knowledge
Implications on SMI
- Elaboration of transboundary SMI

- SMI and Emergency Plans to be
developed
- Interministerial Commission on the

Limits and Luso-Spanish River Basins
M20
Develop a
information and
awareness
program on coastal
zone
Participation
- Clarification the public about the

SMI nature in coastal zones
references
Alves, A.M., 1996. Causas e processos da dinamica sedimentar

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Rute Pinto was born in Braga (Portugal) in 1979. She is graduated in
Geography and Planning (2001) and has a Master degree in Municipal Engineering with a Specialization in Urban Planning (2007) by
University of Minho (Portugal). Her professional career has been
guided by the provision of consultancy services in environment,
planning and geographic information systems to public entities. In
her academic career the main research interests are Spatial Planning and Sustainable Development. She is currently a PhD student
in Marine and Environmental Sciences in a Doctoral Program
hosted by University of Oporto (CIIMAR) (Portugal) and University
of Aveiro (CESAM) (Portugal).
Filomena Cardoso Martins is born in Coimbra (Portugal) in 1960.
She is geographer with a PhD degree in Sciences Applied to
Environment (1998) by Aveiros University (Portugal). She teaches
and researches at Aveiros University. Responsible of Sea Sciences
and Coastal Zone Mcs, teaches courses in Environment, Territorial
Planning, Natural Resources, Sea Sciences and Coastal Management fields, at 1st, 2nd and 3rd cycles of studies, in Aveiro and
foreign Universities. Her main research fields are Integrated
Coastal Management, Natural and Cultural Heritage Conservation,
Participation and Citizenship, Social Risk Perception and Management, Sustainable Development, participating in several scientific
and applied projects financed by Portuguese and EU programmes.

Pinto - The Portugese National Strategy For Integrated Coastal Zone Management As A Spatial Planning Instrument To Climcat Change in Minho River Estuary

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environmental science & policy 33 (2013) 7696

Available online at www.sciencedirect.com

journal homepage: www.elsevier.com/locate/envsci

The Portuguese National Strategy for Integrated

Received 10 December 2012

Received in revised form

Accepted 11 April 2013

Published on line 11 June 2013

Integrated Coastal Zone

Climate change and sea level rise are unequivocal (IPCC,

environmental science & policy 33 (2013) 7696

planning systems need to be reviewed to upgrade the general

Climate change and coastal zones

Coasts will be exposed to increasing risks, with a very high

environmental science & policy 33 (2013) 7696

The Portuguese National Strategy for ICZM

The Continental Portugal (Iberian Peninsula, SW-Europe)

The TMS concretizes the coordinated interaction of its

environmental science & policy 33 (2013) 7696

neighbouring Spain, also can intervene in the Portuguese

Regional Water Authorities (by Hydrographical Region) has

environmental science & policy 33 (2013) 7696

integration influences the management of the potential

Materials and methods

The landscape along the MRE margins is a mosaic

The methodology used in this work was based on the research,

environmental science & policy 33 (2013) 7696

Fig. 2 Natura 2000 Network in the Minho River Estuary in Portugal.

integration of the concern of climate change adaptation in the

The PNSICZM establishes a strategic framework to global,

environmental science & policy 33 (2013) 7696

levels, reflecting the diversity of entities with competences in

i) Under the planning model it is essential the integration of

environmental science & policy 33 (2013) 7696

Portugal and Spain and through the Interministerial

Coastal zones, due to their sensitivity, are priority areas to

helpful to support the integration of adaptation measures in

environmental science & policy 33 (2013) 7696

Environment Law (1987)

Forest Policy Law (1996)

Strategic Plan for Water Supply and

environmental science & policy 33 (2013) 7696

Table A.1 (Continued )

Regional Territorial Management Plan of North (2006) (under approval)

Minho River Basin Plan (2001)

Estuary of the Minho and Coura Rivers

Municipal Spatial Planning Plans (including Municipal Master Plan, Urbanization

environmental science & policy 33 (2013) 7696

Table A.3 (Continued )

Forest Management Plan of the National Forest of Camarido (2009, 2009)

Precipitation decrease, in general, of up to 50 mm in winter and 50100 mm in the

Sea level rise of up to 1 m (by 2100)

Potential eco-socio-economic impacts

Sustainability and intergenerational solidarity

environmental science & policy 33 (2013) 7696

Actions (indicators/targets) associated

Leader entity (ies)

- Institution of the governance model

- Introduction of co-responsibility and sharing

- Creation of the necessary mechanisms for

environmental science & policy 33 (2013) 7696

- Elaborate a study with the prediction of the

(Re)assess the need