"Coastal risk management will either be inter-territorial or it won't be".
In the Gulf of Lion, 25% of the coastline is eroding. This massive phenomenon, which is accompanied by the risk of marine submersion, calls into question inter-territorial relations, particularly in Montpellier, where spatial recomposition cannot be achieved without dialogue between the metropolis and coastal municipalities. Explanations from political science researchers Sylvain Barone(G-Eau) and Laura Michel(Cepel), authors of Métropole et risques littoraux.
This " Popsu " study (observation platform for urban projects and strategies) was carried out in collaboration with the Montpellier metropolis. What are the specific political characteristics of this area?
S.B.: Coastal risk management policies emphasize the importance of planning on a wider scale than the beach. Montpellier as a metropolis is central to this equation, but from an institutional point of view, it has only one directly coastal commune, Villeneuve-lès-Maguelone. The other coastal communes in the urban area are part of the Agglomération du Pays de l'Or (POA). For a long time, coastal risks were a political blind spot for Montpellier. This is no longer the case.
L.M.: The risk of flooding remains a matter for the State. Erosion, on the other hand, is seen as a progressive natural risk that can be anticipated through local planning policies. It is therefore largely the responsibility of local players. Under the French Climate and Resilience Act, municipalities affected by coastline retreat will be required to include a map of eroding areas in their urban development plans, with consequences in terms of building permits.
Is there no dialogue between the metropolis and the coastal communes on these issues?
S.B.: There is a history of conflict between Montpellier and these communes, but it is tending to subside. A major study has been carried out on the future governance of the Gulf of Aigues-Mortes (GAM). It provided an opportunity for dialogue between Montpellier and the neighboring intercommunities, as well as with various public establishments, the Water Agency, the French Office for Biodiversity, etc. Coastal risk management will either be interterritorial or it won't be(Midi Libre 28/04/2023).
Has the French government completely withdrawn from the erosion issue?
L.M.: No, as part of the Plan Littoral 21 program, the Region, the French government and the Banque des Territoires are working with six regions to implement local strategies for coastline management and spatial recomposition. The aim is to build on existing forms of cooperation. For the Gulf of Aigues-Mortes, the study serves as a stepping stone to building this strategy.
Could it take the form of joint governance?
S.B.: With the GAM study, the local authorities opted for a system of agreements based on the agreement of all parties, enabling them to move forward with greater flexibility. Another option would have been a mixed syndicate-type structure, but this implies a majority decision-making process. Minority communities could have been forced to apply measures with which they were not in agreement.
L.M.: On a regional scale, one possible form of governance was the public interest group, but the players didn't want to add yet another layer to the jumble of existing structures. But we can see that things are moving forward, with players taking part in workshops and being present.
The metropolis is sometimes criticized for being a tool for economic competition between territories.
S.B.: It's a legitimate question, but at local level, no other local authority has as many resources and skills to support this spatial reorganization. Should the metropolis decide and manage on its own? Of course not. What's more, we're more interested in forms of governance that promote more symmetrical relations between public players. Beyond that, it will be interesting to include citizens and associations, to create a public space around these issues.
Isn't there also a discrepancy between the electoral and ecological timetables?
L.M.: Risk adaptation issues call for a multi-decade vision and an integrated approach that goes beyond short-term operational planning. The metropolis doesn't necessarily have the tools to include citizens in issues that are often presented as technical, but which are eminently political because they involve choices that will have a major impact on people. It's not easy for elected representatives to tell their constituents that they're going to have to move; they shouldn't have to bear these burdens alone.
What leeway do we have to counter these coastal risks?
L.M.: Climate change will lead to an irreversible rise in sea levels. But today's problems are mainly due to massive coastal development and the exploitation of upstream rivers. We need to question our urbanization model.
S.B.: We also need to look at the tourism model, but it's complicated to talk about spatial recomposition for campsites or hotels on the seafront.
Is it a lack of political will on the part of local authorities?
L.M.: They are subject to contradictory injunctions. They are told that they need to consume less space, move towards zero net artificialisation, take risks into account and so on. But they are also asked to produce housing, and their resources are largely based on urbanization and tourism.
S.B.: This area is confronted with extremely high population density, facilities, major infrastructures, agricultural issues and biodiversity, as well as very powerful constraints, with risks of marine submersion, runoff, overflowing rivers and fire... Montpellier is almost a borderline case, which makes it an exciting field of research.
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