10 Overall framework and measures for conservation and sustainable use of ecosystems in the management plan areas

Norway has a long tradition of taking a long-term approach to ocean resource management for the benefit of society as a whole. The basis for value creation from Norwegian ocean-based activities now and in the future depends on maintaining the value of Norway’s marine and coastal environment, safeguarding the oceans as a source of food and using ocean resources sustainably. In this white paper, the Government describes how it intends to continue and consolidate Norway’s integrated, ecosystem-based ocean management plan system.

10.1 Measures to ensure good ecosystem condition and conservation of marine ecosystems

The ocean areas under Norway’s jurisdiction support important species and habitat types. Ocean-based activity in these areas is increasing, and new ocean industries are emerging. Clean and healthy oceans are an essential basis for a sustainable ocean economy. However, ecosystem condition in Norwegian waters is under growing pressure from climate change and expanding industrial activities. New and more effective measures are still needed to ensure good ecosystem condition and the conservation of marine ecosystems in Norway’s ocean areas.

10.1.1 Marine protected areas and species and habitat conservation

Conservation measures are needed for a selection of Norway’s marine areas, habitats and ecosystems, both to safeguard valuable biodiversity and ecological functions, and to reduce pressures on and the vulnerability of marine ecosystems that are exposed to climate change and ocean acidification. Protected areas are established on the basis of their conservation value and to maintain their value in the long term. Establishing a protected area is a stand-alone management measure rather than a response to or part of preparations for industrial or other activities in an area. To maintain well-functioning ecosystems and ecological resilience to climate change, it is important to establish representative and well-managed marine protected areas that will improve ecological connectivity, and also ecologically effective networks to ensure conservation of the full range of habitat types in an area. In addition to their role in conservation, marine protected areas and other effective area-based conservation measures can play a part in maintaining natural carbon sinks (‘blue forests’). The white paper Norway’s integrated plan for the conservation of areas of special importance for marine biodiversity, Meld. St. 29 (2020–2021), is the basis for the Government’s work on the conservation of these areas. A more systematic approach to the conservation of areas of importance for marine biodiversity is being established using the areas identified as particularly valuable and vulnerable as a starting point and giving these areas priority.

We have a generally sound knowledge base for the large commercial fish stocks, seabird populations and some marine mammal species. The knowledge base is poorer for non-commercial fish stocks. Information on the occurrence and status of threatened and vulnerable species and habitats is also limited.

The Government will:

• continue the establishment of a network of marine protected areas and other effective area-based conservation measures (OECMs) that will improve ecological connectivity and is representative of the full range of variation in marine biodiversity and well managed, as described in the Global Biodiversity Framework;

• draw up a draft of a new act on the conservation of marine biodiversity outside territorial waters;

• implement an active management regime for coastal cod and other depleted fish stocks, and take steps to rebuild these stocks;

• build up knowledge about the effects of the use of bottom fishing gear in Norwegian waters on coral reefs and other benthic ecosystems, including assessing the use of marine and coastal waters that have previously been trawled as reference areas;

• consider whether to prohibit catches and bycatches of all red-listed fish species, including the option of regional restrictions;

• to ensure that the criteria used under the Water Management Regulations, which implement the EU Water Framework Directive in Norwegian law, give a more complete picture of ecological status in coastal waters, and to facilitate conservation of biodiversity in these waters, consider whether more ecosystem components should be included as biological quality elements for coastal waters under the regulations.

10.1.2 Adapting to climate change and a warmer ocean

According to the Intergovernmental Panel on Climate Change (IPCC), the oceans are as a result of rising CO₂ levels and global warming entering a state of which we have no experience. This involves higher temperatures, more frequent marine heat waves, acidification, oxygen depletion, a loss of sea ice, and changes in current patterns, productivity and species distribution. These changes may lead to far-reaching impacts on marine ecosystems and living resources, including those in Norwegian waters, which in turn will affect ocean industries and coastal communities. The impacts on ecosystems may be further intensified by human activity. Achieving sustainable management of Norway’s sea areas will require knowledge about how these factors interact and how the impacts can be limited through ocean management.

The Government will:

• enhance knowledge of how climate change and ocean acidification affect marine ecosystems and how they interact with other drivers;

• enhance knowledge of vulnerability to different drivers and the cumulative impacts on sandeel habitats;

• adapt the management of marine ecosystems and the harvesting of living marine resources to climate-related environmental change and the uncertainty climate change entails as regards future environmental conditions;

• develop methodology for monitoring the biological impacts of ocean acidification;

• start up a permanent system for monitoring ocean acidification in the North Sea.

10.1.3 Nature-based solutions

Marine ecosystems such as kelp forests, seaweed communities and eelgrass meadows absorb CO₂ through photosynthesis, thus helping the oceans to absorb a substantial proportion of CO₂ emissions. These ecosystems comprise natural carbon sinks in the ocean and are sometimes called ‘blue forests’. They are also important for marine biodiversity and can protect the coastline against extreme weather events by moderating wave action.

The Government will:

• conserve, manage and restore areas of marine vegetation and carbon-rich sediments in order to ensure good ecosystem condition, remove CO₂ from the atmosphere and protect biodiversity;

• identify areas/habitats that are candidates for restoration and encourage the development of suitable, effective methods for their restoration;

• evaluate measures that can effectively reduce adverse pressures and impacts on marine vegetation and areas of carbon-rich sediment;

• enhance knowledge of which drivers directly or indirectly result in the loss of kelp forests and other types of marine vegetation;

• enhance knowledge about carbon fixation by marine vegetation types such as kelp forests, seaweed communities and eelgrass meadows;

• focus on the conservation and restoration of marine vegetation and areas of carbon-rich sediment in further work on marine protection and other effective area-based conservation measures (OECMs);

• facilitate the development of new ocean industries such as environmentally friendly cultivation of seaweed and kelp as a measure for boosting carbon uptake.

10.1.4 Improving the situation for seabird populations

Populations of a number of seabirds have shown a considerable decline over time. In summer 2023, seabirds were also hit by an outbreak of avian flu, which entailed particularly high mortality in kittiwakes in certain areas of North Norway. We know a certain amount about the reasons behind the major changes in seabird populations, but more knowledge is needed about causal relationships and about ecological interactions in ecosystems that are important for seabird populations. It is also important to compile an overview of pressures on seabirds and measures that can be introduced to avoid seabird mortality. Earlier work involving cooperation between seabird experts and marine scientists should be further developed.

A national action plan for seabirds is being finalised, in which various policy instruments and measures are being considered, including whether certain seabirds should be designated as priority species. Knowledge about seabirds is being built up through the SEAPOP mapping and monitoring programme, including the SEATRACK module, which is mapping the non-breeding distribution of seabirds. A considerable amount of new information on seabird populations in Norwegian waters has been acquired through the programme. It is important to update and further develop this information, since it forms part of the knowledge base on seabirds and on the major marine ecosystems.

The Government will:

• draw up a national action plan to improve the situation for seabird populations;

• further develop the systematic efforts to build up knowledge about seabirds through the mapping and monitoring programme for seabirds, SEAPOP, including the SEATRACK module for their non-breeding distribution;

• carry out a new total census of breeding, staging and wintering seabirds along the Norwegian mainland coast in 2027 and around Svalbard in 2030;

• make map services on seabird habitat use and vulnerability available by publishing data through the marine spatial management tool for the ocean management plans;

• consider the establishment of a permanent monitoring system for seabird bycatches in fisheries;

• develop targeted measures for reducing the scale of unintentional bycatches of seabirds;

• strengthen cooperation between seabird experts, marine scientists and climate researchers in order to promote further progress in research on seabirds and marine ecosystems and on how climate change will affect food supplies and the viability of Norwegian seabird populations.

10.1.5 Preventing the spread of alien species

The spread of invasive alien species is regarded as one of the most serious threats to biodiversity. Shipping, aquaculture activities and the unintended release of alien species are responsible for large-scale transfers of marine organisms between the world’s oceans. A number of alien species have become established in Norwegian waters. Most of them are benthic plant and animal species found near the coast, such as Pacific oysters (Crassostrea gigas), japweed (Sargassum muticum) and carpet sea squirt (Didemnum vexillum). Introduced microalgae in ballast water have caused several algal blooms in Norway, resulting in commercial losses, for example in the fish farming industry. Alien species can cause severe damage to Norwegian nature by displacing naturally occurring species. Rising sea temperatures as a result of climate change make it easier for alien species from further south to spread in Norwegian waters.

The Government will:

• improve knowledge about and monitor the occurrence, spread and impacts of alien species in Norwegian waters;

• enhance knowledge about how climate change and warmer seas, combined with changing shipping patterns, will alter the risk of alien species spreading in Norwegian waters, and assess whether additional measures are needed;

• continue to give priority to efforts to prevent the spread of carpet sea squirt in Norwegian waters and to reduce numbers of Pacific oysters along the shoreline and around coastal islands and skerries;

• implement new measures to prevent the spread of alien organisms through biofouling, including requirements based on IMO’s regulatory framework;

• take the initiative for IMO to establish legally binding requirements to prevent the introduction and spread of alien organisms through biofouling.

10.1.6 Combating plastic pollution

Action at both national and international level is needed to reduce plastic pollution. Measures must target all phases in the life cycle of plastics to ensure that resources are used more effectively and prevent plastics from ending up in the environment. Norway has played an active part in initiating a negotiation process for a legally binding global instrument on marine plastic pollution, which according to plan is to be completed in 2024. At national level, Norway has for many years had sound, comprehensive legislation on pollution and litter, including plastics. Various preventive measures have been put in place, and more are being developed. Extensive joint EU/EEA legislation is an important part of this framework, which involves the use of substantial resources but is expected to have an impact in both international and Norwegian waters. Priority will be given to implementing and enforcing EEA legislation, including the Single-Use Plastics Directive, as required by the EEA Agreement to prevent plastic pollution.

The authorities also play a part in beach clean-up efforts through support for building up information about the need for beach clean-up, collecting data on litter cleared, and in coordinating the work through digital tools and a national coordination council.

Further work will continue to be needed on the sources of different types of plastic pollution, their effects, and effective measures to deal with them. This also includes the chemicals found in plastics.

The Norwegian Plastics Strategy, which was published in 2021, provides a general basis for this Government’s priorities too. The need for further measures and instruments will be assessed in the light of the new knowledge being generated in this area.

The Government will:

• intensify monitoring of macro- and microplastics in Norwegian marine and coastal waters, among other things to enable Norway to meet reporting commitments under OSPAR’s coordinated environmental monitoring programme and globally under SDG 14 (life under water), indicator 14.1.1 on plastic debris intensity;

• continue the retrieval programme for lost fishing gear to reduce ghost fishing and the amount of marine litter;

• follow up the 2021 Norwegian Plastics Strategy;

• play an active part in international efforts to reduce amounts of marine litter and microplastics, including the development and implementation of joint measures to combat marine litter and plastic pollution within the framework of OSPAR, IMO, the Nordic Council of Ministers and the Arctic Council;

• strengthen research on the sources of plastic pollution and its effects on marine ecosystems and food security, and promote international cooperation in this field.

10.1.7 Reducing pollution by hazardous substances

Many persistent, bioaccumulative and toxic substances and other hazardous substances are regulated through legislation and international agreements. The pressures and impacts associated with such substances in Norwegian waters need to be further reduced. For many years, Norway has been taking the lead both in Europe and globally in efforts to prohibit the use and releases of substances on the Norwegian priority list of persistent, bioaccumulative and toxic substances. This work is continuing.

Transport from other countries with ocean currents and in the atmosphere accounts for a large proportion of inputs of hazardous substances to the management plan areas. This highlights the need for extensive international cooperation in order to achieve our goals. There are known to be considerable inputs with ocean currents, but only very rough estimates are available for individual substances, so that there is little information on changes in inputs. Certain hazardous substances originate from microplastics containing them that are spread with ocean currents.

More knowledge is needed about persistent, bioaccumulative and toxic substances in Norwegian waters.

The Government will:

• continue screening studies to detect new persistent, bioaccumulative and toxic substances in the management plan areas and develop new methods to make it easier to detect the potentially most dangerous pollutants;

• survey and monitor both new and old persistent, bioaccumulative and toxic substances in the Arctic, including substances from local sources;

• enhance knowledge about the impacts on marine ecosystems of long-range transport of hazardous substances and the cumulative impacts of activities in various sectors on different ecosystem components;

• work actively towards a stricter international regime governing persistent, bioaccumulative and toxic substances, for example by proposing prohibitions and other regulatory measures for new substances in EU/EEA law, by nominating new substances for global prohibition under the Stockholm Convention or for inclusion in the regional Convention on Long-Range Transboundary Air Pollution, and by seeking to phase out substances under the Global Framework on Chemicals;

• give priority to prohibition and other types of restrictions on hazardous substances in plastics in the negotiations on a global instrument on plastic pollution.

10.1.8 Reducing underwater noise

Human activity has resulted in a considerable rise in noise levels in the oceans. Noise can disturb acoustic communication between marine animals and make it more difficult for them to find and catch food and to navigate. The rise in ambient noise levels is primarily a result of the growing volume of shipping. In addition, intense sound pulses produced by seismic activity, military sonar, detonations and pile-driving may cause direct injury and result in behavioural changes. Although much more information has been gained over the past 10–15 years, and there is a better understanding of the importance of underwater noise, little specific information is available about how noise pollution over time, often combined with other pressures, may affect populations of vulnerable species.

The Government will:

• consider the introduction of measures to limit underwater noise from shipping, based on IMO’s guidelines;

• build up knowledge about the pressures and impacts of underwater noise on fish and marine mammals;

• further develop the monitoring system based on national pressure indicators for underwater noise and harmonise monitoring with the regional system under OSPAR.

10.1.9 The preparedness and response system for acute pollution

The design and capabilities of the preparedness and response system must be adapted to the prevailing likelihood of major spills, both from shipping and from petroleum activities, and to the environmental risk such releases would entail. The risk of accidents in Norwegian waters is low, but the consequences of an accident involving large releases of pollutants could be very severe.

Although the maritime safety level in Norwegian waters is generally high and there are relatively few spills with environmental consequences, the Norwegian Coastal Administration’s analysis of the environmental risk associated with shipping in Norwegian waters (2022) shows that the level of risk is high or very high in many areas. The likelihood of vessel casualties is low, but the consequences of a major spill could be very serious for a number of species, and many species are therefore considered to face a high level of environmental risk. It is also important to take into account changing levels of environmental risk as a result of climate change, the rising vulnerability of many species, and the introduction of new fuel types such as low-sulphur fuel. According to the Coastal Administration’s emergency preparedness analysis, there are several regions of Norway where the ocean-going resources available for dealing with shipping accidents within the recommended response time are inadequate.

The Government will:

• give priority to the measures discussed in the Norwegian Coastal Administration’s environmental risk and preparedness and response analyses from 2022, so that the governmental preparedness and response system for acute pollution is developed in line with changes in environmental risk;

• continue to build up knowledge about the basic properties of low-sulphur fuels in the event of spills, and their effects on the environment.

10.2 Value creation and the green transition in the ocean industries, and an overall framework and measures for sustainable use

The ocean industries are vital to employment and value creation in Norway, and the oceans provide livelihoods for many coastal communities. Norwegian waters contain rich oil and gas resources, which have played a key role in the country’s development. The oceans are also the basis for Norway’s large, sustainable seafood industry and its large maritime industry. Some of the country’s most innovative businesses, jobs and knowledge institutions have their origins in human settlement along the coast and use of the oceans. For the foreseeable future, the oceans will continue to be a vital basis for jobs, value creation and welfare throughout Norway. The Government will present an industrial plan for Norway’s ocean areas.

Clean and productive oceans are an essential basis for a range of industrial activities at sea. However, ocean industries also affect ecosystems through harvesting, physical disturbance of the seabed, pollution, litter, noise and the spread of alien species.

Norway’s ocean areas and ocean economy have the potential to contribute substantially to the green transition and emission reductions.

10.2.1 Green transition in the ocean industries

Climate change mitigation measures related to the oceans and ocean industries have the potential to contribute substantially to the green transition and emission reductions. This contribution is an important element of the long-term social benefits and value creation these industries can provide.

The Government will:

• facilitate large-scale development of offshore wind on the Norwegian continental shelf, with the ambition of allocating licences for 30 GW of production capacity by 2040;

• facilitate long-term development of offshore wind in Norway by regularly opening up areas of the shelf for wind power; the next licensing round is planned to take place in 2025;

• further develop international and Nordic cooperation to facilitate the demonstration and testing of green solutions through the establishment of green corridors/zero-emission maritime transport corridors in areas including Norwegian waters;

• build up knowledge about what impacts new, green ocean industries will have on the marine environment, and how adverse environmental impacts can most effectively be limited.

10.2.2 Framework and measures for petroleum activities

Each of the ocean management plans sets out a framework for petroleum activities in specific geographical areas. On 1 December 2022, the Storting (Norwegian parliament) made a formal request to the Government in connection with the revision of the ocean management plans. The Government was asked to consider whether parts of the areas where the current management plans specify that no new production licences are to be issued, or certain areas that have not been opened, should be designated permanently as areas where no petroleum activities are to be initiated.

The established system of specifying a framework for petroleum activities in different geographical areas as part of the marine management plans provides a good basis for sound resource management and a predictable regulatory framework for the oil and gas industry. The framework can be adjusted on the basis of new and updated information. The framework set out in the management plans applies until any changes are made in connection with updates to the management plans.

The Trænarevet coral reef area will not be opened for petroleum activities in the current parliamentary period, in line with the wording of the present Government’s political platform.

The Government has made adjustments to the framework for petroleum activities around Bjørnøya. Otherwise, the existing frameworks will continue to apply. Figures 10.1, 10.2 and 10.3 show the framework for each of the three management plan areas, and information is also available through the marine spatial management tool on the BarentsWatch portal, https://kart.barentswatch.no/arealverktoy.

Framework for petroleum activities that applies to all the management plan areas

The Government will use the following framework as a basis for petroleum activities in all the management plan areas.

• In connection with numbered licensing rounds, and when licences are issued through the system of awards in predefined areas (APA), the authorities will continue to hold public consultations and take into account all available new knowledge about the effects of produced water and drill cuttings and other impacts on the environment and living marine resources.

• New production licences must include requirements for any necessary measures to ensure that coral reefs and other vulnerable benthic fauna are not damaged by petroleum activities. Operators must be prepared to meet special requirements in order to avoid direct physical damage to the reefs from bottom gear and anchor chains, sediment deposition from drill cuttings and pollution from produced water.

• Continue efforts and follow-up to achieve the zero-discharge target for releases of hazardous substances to the sea from petroleum activities.

• Seek to reduce uncertainty as regards acoustic disturbance and other possible negative impacts of seismic surveys on marine life.

• Establish strict requirements for activities in vulnerable areas to avoid damage, in line with current practice (consistent with the risk-based approach of the health, safety and working environment legislation).

Framework for petroleum activities in the Barents Sea–Lofoten area

The Government will use the following framework as a basis for petroleum activities in the Barents Sea–Lofoten area.

Source: Norwegian Environment Agency/Norwegian Offshore Directorate/Marine spatial management tool

• Coastal waters off Troms and Finnmark county to the Russian border

  • No petroleum activities will be initiated within a zone stretching 35 km outwards from the baseline from the Troms II petroleum province along the coast to the Russian border.

  • In a zone stretching between 35 km and 100 km outwards from the baseline, no exploration drilling in oil-bearing formations will be permitted in the period 1 March–31 August.

• Tromsøflaket bank area (as shown in Figure 10.1)

  • In coastal waters of the Tromsøflaket, restrictions apply corresponding to those set out in the framework for the area ‘coastal waters, Troms and Finnmark county to the Russian border’.

  • No exploration drilling will be permitted in oil-bearing formations on the Tromsøflaket outside 65 km from the baseline in the period 1 March–31 August.

• Eggakanten North

  • There is a general principle that new production licences must include requirements for surveys to identify any coral reefs or other valuable benthic communities that may be affected by petroleum activities and ensure that they are not damaged. This will be particularly strictly applied in the Eggakanten North area. Special conditions may be included in licences in vulnerable areas to avoid damage.

• The marginal ice zone

  • No new petroleum activities will be initiated in areas where sea ice is found on more than 15 % of the days in April, based on sea ice extent data for the 30-year period 1993–2022.

• Bjørnøya

  • No new petroleum activities will be initiated within a 100-km zone around Bjørnøya. This does not apply to the parts of the zone that are included in the system of awards in predefined areas (APA).

  • In the parts of the 100-km zone around Bjørnøya that are included in the APA system, no exploration drilling will be permitted in oil-bearing formations in the period 1 April–15 August.

• Central Barents Sea

  • No exploration drilling will be permitted in oil-bearing formations in the period 1 October–1 January.

• Nordland IV (unopened part), Nordland V (unopened part), Nordland VI (open part), Nordland VI (unopened part), Nordland VII and Troms II

  • The waters off the Lofoten and Vesterålen Islands and Senja will not be opened for petroleum activities and no impact assessments under the Petroleum Act will be carried out in these areas.

• Other conditions

  • In areas less than 50 km from observed sea ice, exploration drilling in oil-bearing formations will not be permitted in the period 15 December–15 June.

Framework for petroleum activities in the Norwegian Sea

The Government will use the following framework as a basis for petroleum activities in the Norwegian Sea.

Source: Norwegian Environment Agency/Norwegian Offshore Directorate/Marine spatial management tool

• a) The Møre banks (as shown in Figure 10.2)

  • No production licences will be awarded for the Møre banks. This does not apply to the parts of the Møre banks that are included in the system of awards in predefined areas (APA).

• b) Halten bank, open part

  • No exploration drilling in oil-bearing formations in the spawning season (1 February–1 June).

  • No seismic surveys during spawning migration/in the spawning season (1 January–1 May).

  • Use of technology to deal with drill cuttings and drilling mud on herring spawning grounds.

• c) Sklinna bank, open part

  • No exploration drilling in oil-bearing formations in the spawning season (1 February–1 June).

  • No seismic surveys during spawning migration/in the spawning season (1 January–1 May).

  • Use of technology to deal with drill cuttings and drilling mud on herring spawning grounds.

  • Particularly effective oil spill preparedness and response system, including short response times.

• d) Coastal waters, northern part

  • No further opening of areas of coastal waters that are not currently open for petroleum activities.

• e) Coastal waters, southern part

  • No exploration drilling in oil-bearing formations in spawning/breeding/moulting seasons (1 March–31 August).

  • Particularly effective oil spill preparedness and response system, including short response times.

• f) Entrance to the Vestfjorden, open part

  • No exploration drilling in oil-bearing formations in the spawning season (1 February–1 June).

  • No exploration drilling in oil-bearing formations in the breeding and moulting seasons (1 March–31 August).

  • No seismic surveys during spawning migration/in the spawning season (1 January–1 May).

  • Particularly effective oil spill preparedness and response system, including short response times.

    Delimitation of the area – blocks: 6609/1, 2, 3 and 6610/1, 2, 3, 6611/1, 2.

• g) Iverryggen reef

  • No new petroleum activities will be initiated in the Iverryggen reef area.

• h) Froan archipelago/Sula reef

  • No new petroleum activities will be initiated in the Froan archipelago/Sula reef area.

• i) Eggakanten South

  • There is a general principle that new production licences must include requirements for surveys to identify any coral reefs or other valuable benthic communities that may be affected by petroleum activities and ensure that they are not damaged. This will be particularly strictly applied in the Eggakanten South area. Special conditions may be included in licences to avoid damage.

• j) Jan Mayen/West Ice

  • No petroleum activities will be initiated around Jan Mayen.

• k) Other areas that have been opened for petroleum activities in the Norwegian Sea

  • No seismic surveys in the exploration phase are to be carried out landward of the 500-metre depth contour in the period 1 January–1 April. This restriction does not apply to site surveys.

  • No exploration drilling in oil-bearing formations in the period 1 April–15 June in the blocks 6204/1,2,3,4,5,7,8 and 6304/12 within the 500-metre depth contour; quadrant 6305 within the 500-metre depth contour, quadrants 6306, 6307, 6407/2,3,5,6,8,9,11,12; 6408/4,7; 6508, 6509, 6510, 6608/3,5,6,7,8,9,10,11,12; 6609, 6610 and 6611.

  • No exploration drilling in oil-bearing formations in the breeding and moulting seasons (1 April–31 August) in the blocks 6204/7,8,10,11; 6306/6,8,9; 6307/1,2,3,4,5,7.

Framework for petroleum activities in the North Sea and Skagerrak

The Government will use the following framework as a basis for petroleum activities in the North Sea and Skagerrak.

Source: Norwegian Environment Agency/Norwegian Offshore Directorate/Marine spatial management tool

• a) Skagerrak

  • No petroleum activities will be initiated in the Skagerrak.

• b) North Sea coastal waters

  • In a zone stretching 25 km outwards from the baseline, licensees must ensure adequate preparedness and response capacity for coastal waters and shoreline clean-up that is not based on municipal and government resources.

• c) Sandeel habitat south and sandeel habitat north (Viking Bank)

  • Exploration drilling in the areas of sandeel habitat and in a zone surrounding them must be carried out in a way that minimises disturbance to spawning, and there must be no discharges of drill cuttings, to ensure that the quality of these areas is not reduced by sediment deposition from drilling activities.

  • Any field developments in these areas must use solutions that keep changes to benthic conditions in the areas of sandeel habitat to a minimum.

10.2.3 Extraction of seabed minerals

Norway’s strategy for management of the mineral resources on its continental shelf was described in a white paper published in 2023 (Meld. St. 25 (2022–2023)), and has since been debated by the Storting. The Government described a step-by-step approach to the development of seabed mineral activities. Developments are to be based on the precautionary approach and the best available scientific information at all stages of the process. According to the white paper, the Government will incorporate any relevant framework determined for seabed mineral activities into the integrated ocean management plans. Each time the Ministry of Energy announces that new areas are to be opened for licensing, it will use new and updated information obtained from both governmental and commercial actors as a basis for the procedure. The Ministry will assess whether opening of specific areas for mineral extraction should be avoided in the interests of the natural environment.

Some particularly relevant points from the framework and measures set out in the white paper on mineral activities on the continental shelf and the debate in the Storting are listed below.

The Government will:

• not permit extraction from active hydrothermal structures, and protect such structures so that they are not damaged by activities in nearby areas;

• only approve plans for the extraction of mineral deposits if it can be substantiated that extraction can be carried out in a way that does not entail substantial negative impacts on biodiversity associated with the active hydrothermal structures;

• submit the first plans for exploitation of mineral deposits on the seabed to the Storting for approval;

• build up knowledge about how seabed mineral activities may affect biodiversity in deep-water areas.

10.2.4 Offshore wind power

The Government will promote large-scale developments in offshore wind power as part of the effort to achieve Norway’s climate targets. To ensure that the offshore wind industry is sustainable, it is important to find solutions that take into account climate and environmental considerations and the need for coordination and coexistence with other industries. Suitable areas for offshore wind power were identified by a working group led by the Norwegian Water Resources and Energy Directorate, which highlighted the interests of other industries and environmental considerations in its recommendations. The selected areas will be considered more closely as developments continue.

The Government will:

• Carry out field studies to improve knowledge of biodiversity and the environment in areas that are being considered for wind power developments in 2025, in line with the Government’s overall plan for mapping biodiversity in areas identified as suitable for wind power.

10.2.5 Sustainable, safe food production from the oceans

Norwegian fisheries and aquaculture management has evolved over many decades as new knowledge has developed. Norway is one of the world’s leading coastal states in sustainable harvesting and use of the oceans, and intends to maintain this position. This development will continue. Monitoring results indicate that concentrations of contaminants are generally below the maximum permitted levels for food safety, but frequent monitoring is needed so that action can be taken if these levels are exceeded.

The objective of Norwegian fisheries management is to ensure that the fisheries are sustainable, including the extent of their impacts on the seabed. The introduction of measures to protect seabed/habitat types that may be of great importance for ecosystems needs to be assessed on an ongoing basis. It is also necessary to improve knowledge of the impacts of the fisheries so that ecosystem status can be assessed.

The Government will:

• enhance knowledge about the impacts on ecosystems of harvesting new species and harvesting at lower trophic levels for all Norwegian sea areas;

• continue to build up the knowledge base for the management and sustainable harvesting of snow crab in the Barents Sea;

• continue to collect data on bycatches and assess whether further measures are needed to reduce bycatches of marine mammals in fisheries;

• continue efforts to prevent and expose fisheries crime;

• support measures and initiatives to improve resource utilisation in the seafood value chain;

• maintain good monitoring systems for documenting healthy and safe seafood;

• build up knowledge about the impacts of Danish seining and bottom trawling on the ecological functioning and biodiversity of marine ecosystems;

• compile spatial data on the management plan areas and make such data available through public map services such as the BarentsWatch marine spatial management tool; this will among other things facilitate effective evaluation of the environmental pressures and impacts associated with offshore aquaculture;

• compile an overview of information on the migration routes of wild salmon, and use this to model the migration routes of salmon smolt in and around areas for which impact assessments of offshore aquaculture are to be carried out; in addition, more data will be collected to improve and validate the models;

• build up knowledge about the impacts of aquaculture on carbon sinks and ecosystems, for example through environmental surveys of areas where there are aquaculture operations;

• build up knowledge about the impacts of offshore aquaculture (including goods and services for the industry) on biodiversity, for example through environmental surveys of areas where there are aquaculture operations;

• develop a licensing system for offshore aquaculture, including strict requirements relating to biodiversity and the coexistence of different ocean industries;

• ensure that the relevant authorities are involved in the design of future programmes for overall impact assessments for offshore aquaculture activities, and of guidelines for impact assessments and applications for specific offshore aquaculture projects;

• generate knowledge about pressures and impacts on local seabird populations associated with offshore aquaculture, including compiling data on seabird habitat use, for example through environmental surveys of areas where there are aquaculture operations;

• in cooperation with the Institute of Marine Research, establish a working group involving relevant directorates to strengthen the knowledge base on the environmental impacts of offshore aquaculture.

10.2.6 Safe, environmentally friendly maritime transport

The maritime safety level in Norwegian waters is generally high. In recent years, there has been a certain increase in the number of accidents, but the number of serious accidents involving large-scale spills has been reduced. A continued decline in the risk of accidents is expected up to 2040. Measures to prevent the spread of alien organisms are described in Chapter 10.1.5, and measures to limit underwater noise from shipping in Chapter 10.1.8. Acute pollution from shipping can result in serious environmental damage. The Norwegian Maritime Authority and the Norwegian Coastal Administration tailor the action they take to trends in maritime transport and the risk of accidents in Norwegian waters. The importance of sewage discharges and inputs of nutrients varies from one part of the Norwegian coastline to another. For example, the pressures and impacts associated with sewage discharges are generally higher in the coastal waters of the Skagerrak than in marine and coastal waters in the north. The rules on sewage discharges from shipping that have been introduced in neighbouring areas such as the Baltic Sea are stricter than those for the Skagerrak.

The Government will:

• further develop and tailor maritime safety measures to developments in maritime transport and the risk of accidents in Norwegian waters: this work will be organised to give priority to measures that give the greatest possible risk reduction at the lowest possible cost;

• implement international rules on sewage discharges from shipping in the Skagerrak.

10.2.7 Military shooting and exercise areas

Offshore military shooting and exercise areas are essential to the Norwegian Armed Forces’ operational activities and for national emergency preparedness and crisis management capabilities. The designated areas meet the Armed Forces’ needs for training and exercise of personnel, and make it possible to test equipment without the need for long-distance movements in advance. These areas are particularly important in security policy terms since a Norwegian maritime presence strengthens the exercise of sovereignty, supports operational needs, and facilitates exercises and training with allies, particularly in northern waters.

The Government will:

• continue the established practice of regulating military shooting and exercise areas in waters out to one nautical mile outside the baseline under the Planning and Building Act;

• adopt regulations designating military shooting and exercise areas outside one nautical mile beyond the baseline as areas of importance to the Norwegian Armed Forces where access can be prohibited under the Security Act;

• introduce a duty for the Norwegian Armed Forces to draw up instructions for shooting areas that provide guidelines for defence activities and specify how environmental concerns are to be taken into account.

10.3 Spatial data as a basis for area-based conservation and sustainable use

The management plans are a tool for spatial management of Norway’s ocean areas. Sound knowledge of these areas and marine ecosystems is an essential basis for finding a balance between conservation and sustainable use across sectors. Activities in each management plan area are regulated on the basis of existing legislation governing different sectors.

The Government will:

• provide for access to spatial data from research, the public administration and commercial actors and make the information available through public map services such as the marine spatial management tool on the BarentsWatch portal.

10.4 Strengthening the knowledge base on the oceans and climate change – mapping, monitoring and marine research

There is a sound scientific basis for Norway’s ocean management regime. However, there are still many gaps in our understanding of the marine and coastal environment, and further development of knowledge and expertise is needed. Further developing our understanding of the oceans and coastal waters is a vital basis for sustainable management of marine ecosystems.

The oceans play a vital role in climate regulation and in moderating global warming by absorbing excess heat and CO₂. In an ecosystem-based management regime for marine and coastal waters, the impacts of climate change must be considered together with those of other drivers of change. In addition, the management regime must be tailored to changes in climatic and environmental conditions. Climate change adds to the challenges of ensuring the sustainability of the overall management regime and patterns of resource exploitation. At the same time, the knowledge base underpinning the ocean management regime must be further developed.

We need more knowledge and a better understanding of ecosystem functioning and the impacts on ecosystems of factors such as human activity, climate change, ocean acidification, pollution, and plastic and microplastics. This understanding is a vital basis for sustainable ocean management, use of natural resources, innovation and economic development. The UN Decade of Ocean Science for Sustainable Development (2021–2030) is highlighting the need to further develop knowledge and put it to use in seeking to improve ocean management. Continued efforts to build fundamental knowledge are still needed, for example by mapping the seabed.

The Government will:

• facilitate the generation of knowledge about the oceans and climate change through mapping, monitoring and research, and by strengthening expertise and intensifying cross-sectoral cooperation between key agencies and research institutes;

• build up knowledge and a better understanding of ecosystem functioning and ecological relationships, and about the cumulative impacts of different drivers;

• learn more about the impacts climate change will have on marine ecosystems and species, what interactions there will be with other local and large-scale drivers, and the implications for ocean management;

• map habitats that are important in connection with CO₂ uptake and adaptation to climate change;

• map the carbon content of sediments in Norwegian waters and analyse the sources of the carbon;

• consider whether monitoring and if possible forecasting of marine heatwaves can be introduced;

• enhance knowledge about the ecological relationships between marine and coastal waters;

• continue the MAREANO programme for mapping the seabed in Norway’s marine and coastal waters.

10.5 International ocean cooperation

Ocean management, sustainable use of ocean resources and conservation of the marine environment are key elements of Norway’s foreign and development policy. Norway’s ocean management plans have provided inspiration for a number of countries we cooperate with and for the work of the High-level Panel for a Sustainable Ocean Economy (Ocean Panel).

Norway will continue to play a leading role internationally in work on the ocean and sustainable ocean management, both through active participation in global and regional ocean cooperation and by continuing to seek the expansion of research and knowledge generation relating to the ocean, the ocean environment, and the management and sustainable use of ocean resources.

The Government will:

• promote integrated, ecosystem-based management in international ocean cooperation;

• seek to ensure the inclusion of sustainable ocean plans, a tool recommended by the Ocean Panel, as a key element of work under the 2025 UN Ocean Conference in Nice, and use the conference to secure broad support for the Ocean Panel’s agenda up to 2030;

• through the Ocean Panel, provide support for developing countries in developing sustainable ocean plans;

• work towards the conclusion in 2024 of an ambitious global instrument with the aim of ending plastic pollution by 2040;

• work towards Norwegian ratification of the new Agreement on the Conservation and Sustainable Use of Marine Biological Diversity of Areas Beyond National Jurisdiction (the BBNJ Agreement) before the 2025 UN Ocean Conference;

• continue to support the efforts of developing countries to combat marine litter and plastic waste;

• continue to work within the International Seabed Authority (ISA) towards the adoption of regulations governing the exploitation of seabed minerals in the international seabed Area in line with Norwegian positions;

• continue Norway’s active role in the development of new climate- and environment-related requirements for shipping under IMO;

• work towards the establishment of a new global science-policy panel on chemicals, waste and pollution prevention, on the lines of the IPCC and IPBES;

• continue support for combating illegal, unreported and unregulated fishing (IUU fishing) in developing countries; an important element of this will be continued financial support for capacity building and implementation of the Port State Measures Agreement (PSMA);

• continue the efforts of the Blue Justice initiative to combat fisheries crime;

• work internationally towards sustainable management and restoration of existing carbon sinks in marine ecosystems, such as mangrove forests, eelgrass meadows and kelp forests;

• continue to share relevant and valuable expertise and experience in the field of sustainable fisheries and ocean management to assist developing countries in establishing sustainable ocean management regimes;

• expand the Oceans for Development programme in the next few years to include at least two more cooperating countries;

• continue to support the efforts of developing countries to reduce greenhouse gas emissions from shipping in the period up to 2030 through support to the GreenVoyage2050 project;

• strengthen the links between sustainable ocean management and promoting the role of aquatic food in sustainable food systems in forums including the Global Action Network Sustainable Food from the Oceans and Inland Waters for Food Security and Nutrition, the EAF-Nansen programme and other relevant forums and UN processes;

• continue to support the work of the Intergovernmental Oceanographic Commission (UNESCO-IOC) on the UN Decade of Ocean Science for Sustainable Development, and advocate the implementation of knowledge-based ocean management globally;

• ensure that Norwegian research institutes and groups are actively involved in implementation of the UN Decade of Ocean Science for Sustainable Development;

• continue cooperation on the marine environment within OSPAR to ensure good ecological status in the North East Atlantic, including Norwegian waters;

• focus on the oceans during Norway’s chairship of the Arctic Council; important topics include marine biodiversity, ecosystem-based ocean management, marine litter, strengthening cooperation on emergency preparedness and safe shipping in the Arctic, and green shipping initiatives;

• continue cooperation on the oceans and climate change through the Nordic Council of Ministers, using the joint statement on a sustainable ocean economy and the green transition made by the Nordic prime ministers in Oslo in 2022 as a starting point;

• play a part in ensuring that the Commission for the Conservation of Antarctic Marine Living Resources (CCAMLR) continues to be a pioneering organisation in the development of ecosystem-based regional resource management regimes.

10.6 Further development of the management plan system

As part of the integrated ocean management plans, goals have been set for the Government’s ocean policy and for management of the three management plan areas. These goals concern ecosystem condition, value creation, coexistence between ocean industries, conservation and sustainable use. The goals have gone through various stages of development from 2002 onwards, but in the previous white paper on Norway’s integrated ocean management plans, in 2020, they were harmonised so that each goal now applies to all three management plan areas. Some of them were also clarified and simplified to facilitate reporting on progress towards the goals.

However, the wording of the goals needs to be further tightened up and adjusted and their structure and organisation by thematic areas needs to be updated. This will reduce the need to interpret their scope and meaning, and will simplify reporting on progress towards the goals. Over time, assessments of progress towards the goals will also become more systematic and verifiable. A review of the goals may also reveal thematic areas where there is a lack of operational goals and make it possible to include new goals where gaps are identified.

An important element of the management plan system is the consistent involvement of relevant stakeholders in the process of updating the management plans every four years.

The Government will:

• ask the Forum for Integrated Ocean Management to draw up a plan for ensuring the participation of relevant stakeholders in the preparation of the scientific basis for the next white paper on the ocean management plans;

• review and update the structure and organisation of the goals for the ocean management plans;

• use the updated goals to report on progress towards the goals in the next white paper on the ocean management plans;

• present the next white paper on Norway’s integrated ocean management plans in 2028.