Introduction
Social and cultural background
Projects and lessons learned
Collaborative tourism development: results and prospects for the future
Hiiumaa Green Label
Conclusions


Introduction

Political and economic changes dominate the picture of reconstruction of the State in Estonia today. The environment may be seen as the third element in the transition from a society, in which the Soviet mode of production and thinking is prevalent, to a westernised society. Ongoing changes in these three spheres must be seen as a linked process including at least four dimensions: values, knowledge, technologies and institutions (laws, organisations, social and economic incentives etc). The long-term goal is to provide a national development strategy that is socially, economically and ecologically sustainable. Particular innovations need to be made in order to create environmentally responsible further development.

The West-Estonian Archipelago Biosphere Reserve, which includes the island of Hiiumaa (1000 km2, 12 000 inhabitants) was established in 1990, prior to Estonian independence, with objectives mainly in the field of nature protection through appropriate zonation and recognising legally constituted core areas.

Only an extensive use of a "top-down" approach and a very limited choice of implementation tools were possible in the context of the totalitarian state-building by the Soviet mode. The activities of the Biosphere Reserve today are affected by the same problems as other areas in countries in transition, i.e. a general fall in production and economic possibilities for farmers, the process of land reform and the switch to a free market economy.

There are two different ways to organise the management:

mater familias approach:		a master`s approach
Producing a chain of ad-hoc reactions to severe misadventures and short-term problems, to "keep the pot boiling"		Trying to manage more systematically in a long-term context by involving political and social arenas, by conducting networks and cooperation

The mater familias approach can never develop into integrated management; the second approach, on the other hand, can give birth to an integrated approach and avoid "tyranny of small decisions".

The Biosphere Reserve has now been developed in a new direction, towards creating a model region of sustainable development, where arrangements and provisions should also be made for buffer zones and transition area. This means a more integrated approach to balancing conservation and development, to fostering economic and human development which is ecologically, socially and culturally sustainable.

The three functions of the Biosphere Reserve:

• Conservation of natural and cultural values
• Ecologically, economically and socially sustainable development
• Interdisciplinary research and monitoring, participatory cross sectorial planning collaborative management, education and training, local, regional and global networking

• To prevent expensive ad hoc decisions (anticipatory aspect of integration).
• To create connections between sectoral policies (aspect of horizontal integration).
• To connect levels of decision-making and realising the subsidiary principle. Seeing central and local institutions as one system for the same purpose, in contrast to viewing them as "combating kingdoms" (aspect of vertical integration).
• To encourage intellectual cooperation between different disciplines. Using experts in an interdisciplinary, or even better, in an interactive way, may lead to synergy (aspect of integration of different disciplines).
• To overcome difficulties, caused by competitive scales, values, interests and goals of different stakeholders. Unified values, goals and objectives don’t pre-exist in society - these must be found (value-ladenness aspect of integration).
• To solve problems that are too complex to deal with alone, by combining forces. Combined measures might produce better results for less money and effort, thereby increasing effectiveness (aspect of integrated implementation).
• To follow and monitor the decisions made through the whole management cycle (plan implementation-evaluation-feedback), which will help generate new ideas and correct ineffective decisions (aspect of process-orientation of integration).

Can you influence decision-making?





Social and cultural background

Classical nature protection approaches as the only tool for management of biological diversity have their limitations. Often they recognise insufficiently that natural areas are vitally important for people. Too much emphasis is given to either the species characteristics (uniqueness, rarity) or the establishment of restrictions (protected areas). Management actions using an integrated approach should be carried out with caution. One of the main principles of an ecosystem approach is that management objectives are a matter of social choice. Different sectors of society consider nature terms of their own economic, cultural and social needs. Ultimately, all ecosystems are managed for the benefit of human beings - whether that benefit is consumptive or non-consumptive.

Is the post-Soviet society ready to make decisions about the maintenance of biological diversity and sustainable use of natural resources? A sociological study carried out by the Hiiumaa Biosphere Reserve Centre indicated that the local societies are threatened by the social void.

People feel that they are unable to influence political decision-making. They need assistance in their search for development alternatives and additional economic possibilities. People also need assistance in the re-establishment of a civil society after the long period of totalitarian power by returning to their social and spiritual values. At the moment, the Biosphere Reserve is planning capacity building for further collaborative planning and management with a focus on self-reliance and change from the "bottom" rather than from the "top". Activities in this field are going on in cooperation with different interest groups and the newly recreated local NGOs in the form of open forums, workshops and seminars, oriented to solve problems and work out local development visions and land-use plans. It takes much time to achieve results in this field of activities. The sociological study also indicated that the islanders' interest in nature is often spiritual.

About 50 % of the island's population associate the forest as well as the sea primarily with positive inner feelings (freedom, joy, purity). Less than one-third acknowledged that their primary associations with forests were direct economic interests. These research results show that in developing the management strategy for the Biosphere Reserve there is good reason to appeal not only to people's minds but also to their hearts.


Types of attitude towards forest - Sociological study of Hiiumaa, 1994



The Biosphere Reserve Centre uses various channels and means of communication. It publishes a regular newsletter, "Kaitseala Teataja", aimed at the local people and introducing them to the objectives and activities of the Centre. A book series, "Pinujaak", targets teachers, school children and guides, and highlights the natural values of Hiiumaa and the results of research work. Preparation and publication of the new series "Environmental Atlas of Hiiumaa" has also started; it will inform and educate the general public about various themes (e.g. protection of biodiversity, sustainable forestry, integrated coastal zone management etc).


Projects and lessons learned

The Centre has initiated various projects in the fields of traditional nature protection, collaborative land-use planning, waste management, development issues etc.

First, the Biosphere Reserve has proposed that different valuable habitats, forests, wetlands and landscapes should be incorporated into the core areas to protect them legally by a traditional top-down policy style. About 40 protected core areas of the Biosphere Reserve cover 7 % of the island territory (See page 6 Zonation of Hiiumaa island). At the moment they comprise mainly State-owned forests and uninhabited wetlands. Preparation of management plans for this area has started.Private stakeholders took the first initiatives in their own areas with nature protection restrictions. The problem is that there is not enough funding today to protect semi-natural plant associations, habitats and landscapes, i.e. protection which is possible only by specific management regimes.

Second, the Biosphere Reserve tries to provide a basis for broad cooperation within the management of areas which have high conservation value. To this end, the Biosphere Reserve has 1) developed the Kaina Bay Integrated Management Plan for a wetland area that meets the criteria of the Ramsar agreement and belongs to Category I of the List of Important Bird Areas, and 2) supported local village groups to create land-use plans in Kassari Landscape Reserve and in other coastal zones, characterised by very high visitor pressure. The interests of different stakeholders as well as the conflicts were identified by these activities.

There are several key factors in making this type of cooperation project work, among them being: the challenge to create and to keep together a coalition long enough to find resources, to implement the management plan, and being well prepared by having made financial arrangements for the implementation prior to beginning the public process. People begin to lose interest in the process if they are asked to wait for approval of financing before they can begin to be involved 'hands on'.

Third, the Biosphere Reserve Centre has invited local governments to participate in inter-sectoral projects for the island as a whole, e.g. to create common strategies on waste management, on protection and sustainable use of groundwater, on development of Hiiumaa as a Renewable Energy Island, etc.

Local governments are interested in establishing projects on these issues as a pilot and demonstration "hardware", but there is lack of interest in longer-term programmes. This question of the development of environmental issues in municipalities in Central and Eastern Europe is well described through a series of typical phases by Louis C.B. Hutten Mansfeld.


Lessons learned about municipal development

Collaborative tourism development on Hiiumaa:
Results and prospects for the future

Hiiumaa Island needs additional efforts to achieve a stable rural economy. Therefore, people are increasingly looking towards tourism as a way to build up the future of their island. The growth of tourism in rural areas might also provide an incentive as well as the funding for the conservation of natural and cultural values. Biodiversity and landscapes are key resources for rural tourism - this fact might persuade decision-makers of the importance of nature conservation. That is why the Biosphere Reserve is looking for examples of best practice in rural and island tourism and takes part in international cooperation. Cooperation within the European Commission-funded Eco-islands project led to creative and successful collaboration between tourism entrepreneurs.

A community-based project to establish a specially managed nature tourism destination on Hiiumaa Islets Landscape Reserve is planned to provide benefits for local development in terms of job opportunities, income, development of local infrastructure, etc. for the Salinomme village as a "gateway" to the islets. The project aims to guide the development of tourism along lines which respect the limited capacity of the reserve to absorb the pressure of visitors and their activities.

Another community-based large-scale tourism development effort is planned for the Kopu Peninsula, where a participatory approach to planning and management will be implemented by using simultaneously ecological, social and economic criteria. Forestry and forest-based tourism as well as coastal zone management belong to the target sectors of this project.

What is needed and planned by both these projects is the integration of biodiversity conservation policies and strategies with informed local knowledge about the values and management of local landscapes. Overall study of nature values and Landscape Ecological Plans as basis for further operational plans will be produced. Because of the very broad range of stakeholders, the adequate institutional capacity must be built up and the paradigm of planning as learning is to be used in this case.

Hiiumaa Green Label

• waste management with the focus on separating paper, organic matter and hazardous waste;
• reduction of use of plastic packaging by consuming local products, directly;
• water and electricity economies based on relevant technical innovations,training employees and informing guests;
• •preference for environment-friendly washing and cleaning detergents; the use of local products to benefit local farmers, fishermen and producers;
• giving visitors information about local nature and attractions.

The influence of the Label has been encouraging. The Tourist Information survey in summer 1996 showed that 50% of the people visiting Hiiumaa were aware of the Green Label. Moreover, 70% of these, when looking for accommodation, had made their choice because of the Label. These facts prove that the Label campaign is becoming a powerful incentive for tourism entrepreneurs to implement environment-friendly management. The Biosphere Reserve Centre considers the enlargement of the Hiiumaa Green Label project to be reasonable by involving new firms (tour operators, guides, transport companies etc.) and by developing the Green Label criteria. Representatives of ecological farming and forestry have shown interest in the local nature-friendly certification system.

There are numerous ways to develop such a label. At the moment the following are being considered: expanding the criteria with characteristics reflecting the company’s or entrepreneur’s attitude to conservation of the natural heritage and biodiversity. First of all, the applicant should take on responsibility for interpreting the Hiiumaa natural heritage and supporting similar activities. On the one hand, this means exhibitions and stands on the premises of the company, on the other hand encouraging tourists to pay attention to the nature of the adjacent area (signs, brochures etc). It is possible that the workers' professional knowledge will be required as well as training in special aspects, as necessary; training and certification system for the so-called green tour guides. There is a plan to work out certain requirements and a code of behaviour. The positive result shouldentitle the tour guide to wear a badge which follows the design of the Hiiumaa Green Label. The badge would work as a support offering services to tourists and tourism companies; involving tour operators (also from the mainland) in the label campaign and working out respective requirements; training tourists and thus developing a nature-friendly attitude: tourists should have the opportunity to apply for a specially designed label for having either participated in special activities or adopted a positive approach. The certified tour guides could be the people with the right to award the label to such groups or individuals. Schoolchildren could apply for the label by filling in special questionnaires while planning their trip to Hiiumaa.

When developing and expanding the Label, the question arises as to how to build up a founding institutional structure. So far it has been based on the initiative of the state agencies and the informal cooperation of interested people. In the future a more structured organisation is needed. Here it is possible to choose from various institutional types, from non-governmental non-profit organisations (NGOs) to foundation-like target enterprises. The latter is worthy of special consideration if it is based on the principles of ecotourism. The target institution of the Hiiumaa Green Label could then act as a mediator, directing the agreed share of the direct tourism profit to the benefit of local communities.


Conclusions

Biosphere reserves provide an international framework for comparative studies of the relationships between society and the environment with the aim of establishing model regions of sustainable development. Profound and rapid changes in Central and Eastern Europe can be seen as incentives towards a more integrated approach: adequate legislation has to be developed, administrative responsibilities need to be clarified and some degree of socio-economic security has to be established. On the other hand, such a situation can be considered as an opportunity for the introduction and implementation of innovative management arrangements.

Environmental policy instruments consist of direct regulations by laws, prohibitions and permits; indirect regulations by economic incentives, taxes, fines and subsidies; and influencing attitudes through education, information and communication. The last group often is underestimated in the newly independent societies. Frequently, even if communication and education are valued, there are no skills or adequate familiarity with methods which will help to achieve the goals. In order to benefit from the integrated management approach (if we do not decide to convert it into a "ritual" idling), development of the social-communicative instrument mechanism or "communicative governance" is of first importance.