Baltic Sea Protection Action Plan: Strict protection in three new areas with immediate effect

Following fierce protests from water sports enthusiasts and others, the idea of a Baltic Sea National Park has been shelved. However, it has been replaced by the Baltic Sea Protection Action Plan, which provides for extensive measures to protect the badly damaged inland sea. As part of this plan, three areas will be under strict protection from this week. The first area in southern Hohwacht Bay will come into force on 24 March 2026, while the other two, west of Fehmarn and between Geltinger Bay and the Schleim estuary, will follow later this week. With the three new areas, 7.56 per cent of Schleswig-Holstein's Baltic Sea area is now under strict protection. This means new rules for water sports enthusiasts - albeit much more moderate rules than originally planned.

The three new protected areas

The first new nature reserve covers water areas in the southern Hohwachter Bucht in the district of Plön, the second area is located in the outer Flensburg Fjord and stretches from the Geltinger Birk to the Schleimündung estuary to the south. Finally, the third includes a large area of water to the west of Fehmarn. It represents the largest contiguous shallow water area in the western Baltic Sea. In all three areas, reefs, seagrass meadows and large algae, as well as harbour porpoises, are to be protected. They also serve as a resting and wintering area for seabirds and coastal birds

According to the Ministry of the Environment, the areas were selected on the basis of scientific studies on species diversity, habitats, development opportunities and existing pressures. The decisive factors were the occurrence of endangered species and habitats and the threats they face. Some of the areas border on existing nature conservation areas and are therefore intended to promote a networking function for the migration, geographical distribution and genetic exchange of wild species.

What is allowed and what is not allowed in the protected areas?

In the new protected areas, plants, animals and habitats may no longer be destroyed, removed or disturbed. Anchoring in seagrass beds is also prohibited. However, swimming, bathing, diving and "fishing on foot from the shore or wading in the water with a hand rod" are still permitted, so fishing from on board is taboo. State tasks such as hazard prevention, military use, disaster control, shipping, coastal protection and monitoring also remain possible. Harbour approaches should always remain accessible.

For motorised water sports, an as yet undefined speed limit applies all year round to reduce underwater noise. Further restrictions are also planned, but are not yet in force: according to the action plan, sailing, kiting, surfing and foiling will only be possible in specially designated zones between November and March in key resting bird areas in order to ensure the necessary resting areas for migratory and resting birds. However, the Schleswig-Holstein Ministry of the Environment must first apply to the Federal Ministry of Transport for a navigation ordinance for these temporary restrictions as well as the maximum speed for recreational craft. A working group of authorities and state associations, including water sports associations, is involved in the development of the draft application. It is not yet clear when these regulations will come into force.

Minister Goldschmidt assured in an interview with YACHT, that the state government would apply to the Federal Ministry of Transport for the regulations set out in the action plan in exactly the same way. "We will follow the process very closely and make it clear to the federal government that under no circumstances should additional restrictions be imposed over and above our application," said the Minister. This reference is based on experience with the North Sea Navigation Ordinance, which was issued two years ago by the Federal Ministry of Transport with surprisingly strict restrictions from the point of view of many of those affected.

From national park to action plan: The prehistory

The new protected areas are the result of a long and controversial process. Originally, Environment Minister Goldschmidt had wanted to establish a Baltic Sea National Park, which would have encompassed significantly larger areas, roughly corresponding to the existing bird sanctuaries and FFH areas. After massive opposition from various interest groups, including fishermen, water sports enthusiasts and farmers, a consultation process followed.s with intensive discussions with citizens, residents, local authorities, businesses and interest groups.

In March 2024, the black-green state government finally agreed on the "Baltic Sea Protection Action Plan 2030" as a political compromise. The national park plans disappeared into a drawer. Goldschmidt himself described the action plan as a political compromise: "This is nothing to be ashamed of in a democracy. We have launched the biggest plan to protect the Baltic Sea in the country's history."

The declared goal of the 16-point plan: By 2030, 12.5 per cent of Schleswig-Holstein's Baltic Sea is to be placed under strict protection. This target is to be achieved with the three new areas, which account for 7.56 per cent, and the planned tightening of the protection status in three existing Natura 2000 areas at Sagasbank south of Fehmarn, Stoller Grund east of Eckernförde Bay and in Geltinger Bay, which together account for 4.6 per cent of the Baltic Sea area. According to the action plan, these existing areas should also serve as "stepping stones" so that animal and plant species can connect the new marine protected areas with each other.

Reaction of water sports enthusiasts

According to Goldschmidt, the debate surrounding the original national park was "emotional". However, the minister emphasised that "the sailing community was by no means universally hostile". He had received many very supportive messages, especially from the sailing community. "But that is now water under the bridge," said Goldschmidt in an interview with YACHT. "The tone of the discussion has changed following the adoption of the Baltic Sea Protection Action Plan by the cabinet. Today, nobody is denying the need to contribute to the protection of the Baltic Sea."

In fact, the restrictions for water sports in the action plan that has now been adopted are much less severe than many water sports enthusiasts initially feared. The plans presented in March 2024 contain far-reaching restrictions, particularly for fishing and the reduction of nutrient inputs, while water sports still get off relatively lightly.

Criticism from environmental organisations

An alliance of seven nature conservation organisations, including the Bund für Umwelt und Naturschutz Deutschland (BUND), Naturschutzbund Deutschland (NABU), the Jordsand association and WWF Germany, welcomes the new protected areas, but also criticises them. In a joint statement on the two-year anniversary of the action plan, the alliance criticises the fact that the EU Restoration Regulation requires 20 percent of the marine area to be restored to a natural state. This can only be achieved with water areas that are consistently free of utilisation and disturbance.

For the environmental organisations, the interim results of the action plan are mixed. There are target agreements with agriculture to reduce nitrate and phosphate discharges, Baltic Sea advisory councils have developed additional measures and staff have been hired, explained the alliance. "But much remains non-binding, unclear and open." The organisations are calling for binding measures, mandatory requirements and regular monitoring of success.

The action plan sets the target of reducing the average annual nitrogen inputs from inland Schleswig-Holstein by around 2,000 tonnes and the average annual phosphorus inputs by around 65 tonnes. However, the fertiliser ordinance is currently being massively called into question at both state and federal level, criticised the alliance.

The environmentalists also see a need to catch up in terms of munitions recovery. There have been pilot projects to salvage old munitions. However, environmentalists are calling for the rapid and systematic removal of rusting bombs and chemical munitions before they poison more fish and mussels and endanger water sports enthusiasts and bathers.

If, on the other hand, the action plan were implemented with all protected areas and inland waters and wetlands were consistently and successfully renaturalised as announced, this would also fulfil many of the requirements of the EU Restoration Regulation, explained the alliance. "This is not about specifications and guidelines on paper, but about the fact that people in Schleswig-Holstein will still want to observe harbour porpoises, seals and wading birds and swim in a clear Baltic Sea in ten or 50 years' time."

Resistance from the fishing industry

The state fishing association, on the other hand, had sharply criticised the designation of the protected areas. All fishing is completely prohibited in all strictly protected zones, with the exception of beach fishing. This is particularly hard on the more numerous part-time fishermen, who are bound to a radius of a few nautical miles and cannot simply go fishing further out.

As compensation, the state wants to support the Baltic Sea fishermen with 400,000 euros a year. In return, they are to record ecological data, remove rubbish or provide other environmental services. Minister President Daniel Günther (CDU) described this as a "pact with prospects" to appease the fishermen.

Further planned measures

In addition to the restrictions on utilisation, the action plan also provides for active protection measures. Ecological enhancement of the areas is planned by restoring reefs, seagrass beds and mussel beds. In addition, munitions are to be recovered from the Baltic Sea and an "Integrated Baltic Sea Station" for protected area management and environmental education is to be set up.

The state government would also like to involve local stakeholders such as municipalities, tourism operators, water sports enthusiasts, land users, companies and their associations and chambers through a partner programme and thus promote a comprehensive awareness of the protection and conservation of the Baltic Sea.

The next step is to implement the fishing exclusion in the three existing Natura 2000 areas Sagasbank, Stoller Grund and Geltinger Bucht. Based on this, the Natura 2000 management plans will also be revised. In addition, visitor information boards will be set up in all new marine protected areas.