Report of IPON Task Group to Committee on Multiple Use of the Coastal Zone

[From the U.S. Government Printing Office, www.gpo.gov]

COASTAL ZONE
Coastal Zone INFORMATION CENTER
Information
Center
REPORT OF

IPON TASK GROUP

COMMITTEE

MULTIPLE USE OF THE COASTAL ZONE

APRIL 1969

NATIONAL COUNCIL ON MARINE RESOURCES
GB AND ENGINEERING DEVELOPMENT
460
.A2
T19
1969

0/(0

ProPerty Of CSC Library

TABLE OFI CONTENTSU-S DEPARTMENT OF COMMERCE NOAA
OASTAL SERVICES CENTER
2234 SOUTH HOBSON 4@EN'Page
HARLECTON , SC 2q4O5-2413
PREFACE . . . . . . . . . . . . . * . . . . . . . . . . . . . . . .

BACKGROUND

Introduction The Need to Understand. Man's Environment . . . . 7

mol)ility of the Coast Line . . . . . . . . . . . . . . . . . . 7

THE NATURE OF THE COASTAL ZONE OF THE UNITED STATES

interactions in the Coastal Zone . . . . . . . . . . . . . . . 11

Physical Description of the Coastal Zone . . . . . . . . . . . 11

Definition of Coastal Zone . . . . . . . . . . . . . . . . . . 12

Coastal Zone Definitions . . . . . . . . . . . . . . . . . . . 12

PROBLEMS, OPPORTUNITIES, AND NEEDS
DISCUSSION OF SELECTED MAJOR AREAS OF INTEREST . . . . . . . . 12

Conservation . . . . . . . . . . . . . . . . . . . . . . . . . 13

Defense . . . . . . . . . . . . . . . . . . . . . . . . . . . 14

Ecology of Wetlands . . . . . . . . . . . . . . . . . . . . . . 15

Food . . . . . . . . . . . . . . . . . . . . I. . . . . . . . . 22

Mineral Exploration and Exploitation in the Coastal Zone . . . 23

Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . 27

Transportation and Communications . . . . . . . . . . . . . . . 29

Uses of the Shoreline . . . . . . . . . . . . . . . . . . . . . 31

Summary of- Foregoing Existing and Potential Problems, Opportunities
and Needs In the Multiple Uses of the Coastal Zone . . . . 33

INTER-RELATIONSHIPS OF COASTAL ZONE USES

Major use Categories . . . . . . . . . . . . . . . . . . . . . 36

Economic Variables . . . . . . . . . . . . . . . . . . . . . . 36

Non-Economic Variables . . . . . . . . . . . . . . . . . . ... 38

Page

IMPLICATIONS OF MAN'S USE OF THE SHORELINE . . . . . . .. . . . . 40

Legal Considerations . . . . . .. . . . . . . . . . . . . . . . 41

Zoning Considerations . . . . . . . . . . . . . . . . . . . . 43

NATIONAL POLICY ON COASTAL ZONE LAND DEVELOPMENT . . . . . . . . . 43

Short-term Strategy . . . . . . . . . . . . . . . . . . . . . 43

Questions for Discussion in Formulation of a Study
Relating to Coastal Zone Land Development
Policy . . . . . . . . . . . . . . . . . . . . . . . . 47

Long-term Strategy . . . . . . . . . . . . . . . . ... . . . . 48

National Institute for Coastal Zone Studies . . . . . . . 50

RECOMMENDATIONS

Short-term and Interim Actions . . . . . . . . . . . . . . . . 50

A Long Range Program . . . . . . . . . . . . . . . . . . . . 53

APPENDIX A - IPON TASK GROUP MISSION . . . . . . . . . . . . . . . 55

APPENDIX B - Ad Hoc TASK GROUP REPORT ON COASTAL ZONE DEFINITION 56

APPENDIX C - BIBLIOCRAPHY . . . . . . . . . . . . . . . . . . . . 60

PREFACE

MISSION

At the direction of the Chairman, Committee on Multiple Use of the
Coastal Zone-, a Task Group on Identification of Problems, Opportunities
and Needs, Existing and Potential (IPON),, was convened on April 18., 1968.

The Task Group mission as set forth in the January 23, 1968 memorandum of
the C, ittee on Multiple Use of the Coastal Zone contains the following
elements:

1. Review all of the material on this subject which has been pre-
pared by the Council staff, the consultant panels, and others.

2. The first order of business charged to the Task Group was to
formulate a list of major opportunitiesl needs and problems. Subjects
should be included on the list on a factual basis without bias or preju-
dice by the agencies present functions or responsibilities., and to identify
whether the situation is national., regional or local in nature.

3. Identify the scientific, technical and economic factors, and seek
a model for solution of the problems identified.

4. Develop position papers for consideration of the Committee on a
selection of critical issued taken from the listing furnished the Task
Group in Enclosure to the January 23., 1968 memo . copy of which is
attached as Appendix A to this Report. This listing., suggested by the
consultative panel at Committee hearings, contains a broad spectrum of
items dealing with the following subjects:

a. Quality of the environm nt.

b. Information base of land and water use.

c. Tendency of Federal action programs aimed at improving
undesirable conditions in the Coastal Zone to run ahead of sound know-
ledge and analysis.

d. Feasibility of regional studies of multiple use programs
in the Coastal Zone.

e. Identify specific areas which are threatened with irreversible
destruction by developments underway and the drafting of plans to deal with
these threats.

f. The need for a framework embracing the conservation,, develop-
ment and research aspects of Federal management of the Coastal Zone.

g. Sewage disposal from U. S. merchant vessels.

h. Consequences of a new sea level Isthmus Canal.

i. Re-examination of the Corps of Engineers shore stabilization
techniques and engineering technology.

J. Is the Chesapeake Bay Study proceeding on a sufficiently
comprehensive interagency basis?

k. Development of principles and standards for zoning in
particular Coastal Zone areas.

1. Possibilities of research support for Committee projects.

m. R & D and control actions needed to combat pollution and
hazardous cargo risks from merchant shipping.

n. Explore alternatives to the Corps of Engineers permit system.

o. Formulate acquisition and development programs for marine
recreational areas.

5. Basically, both problems and needs are associated with the question
of development versus preservation, hence the desirability of working
out a national policy on the matter. The Task Group will not only identify
problems and needs but work outrecommendations on solutions and policies
for consideration of the C ittee.

METHOD OF APPRQALCH

The assignment given the IPON Task Group implies an all-inclusive con-
sideration of the Coastal Zone. Other Task Groups and panels were given
more explicit assignments, limited to legal aspects, or to physiographic
or geographic bounds. The title words "problems, opportunities, and needs
existing and potential" direct attention to: (1) the entire store of per-
tinent knowledge presently available, as well as gaps or unknowns in that
knowledge; (2) the background, status, and trends of the cultures involved
with the Coastal Zone; (3) the present and aspired degree of technology which
can assist in the correction or reconciliation of problems, realize oppor-
tunities, and satisfy existing and pending needs.

This report is generalized of necessity. Equally evident, it contains some
overlapping with the more specific and detailed considerations of other
Task Groups.

An examination of the mission and tasks enumerated in the foregoing shows
the subject so broad as to defy completion by the personnel assigned within
the four-month's time frame allocated to the Task Group. In order to bring
the mission within manageable proportions, discussion by Task Group members
and advice received from the Executive Secretary led to the establishment
of the following:

1. The study subjects were divided into seven (7) broad topic areas
as follows, listed alphabetically:

a. Conservation.

b. Defense.

c. Ecology of wetlands.

d. Food.

e. Mineral exploration and exploitation.

f. Recreation.

g. Transportation and communications.

h. Uses of the shorelines.

2. The end result of the Task Group's work assignment was to
develop issue papers presentation to the C 'ittee. Issues are to be
decided without regard to priorities or whether they overlap. Primarily,
new innocative proposals are to be sought about things in the marine
area and the Coastal Zones that are not being done and need to be done.
The issues selected should be such as to complete within a four-month
period.

3. The first order of business was to list the major opportunities,
needs and problems. The plan of attack was to determine what are the
uses (areas of interest) in the Resource Base (Coastal Zone), and then
determine the needs, after which the problem areas (conflicts) and the
opportunities were developed. At the outset., it appeared that in many
areas the uses made of the Resource Base resulted in a beneficial effect
on other uses. It was decided that these beneficial areas should also
be included under opportunities.

4. The geographic area considered by the Task Group was assumed to
include the Coastal Zones of the fifty (50) states, where coastal waters
are involved, Including Rawaii, Alaska, Puerto Rico and the Virgin Islands.

5. The Task Group recognized that problems, opportunities and needs
may not be uniformly shared among all sectors of the society, and indeed,
the problem of one sector may be that cussed by some other sector. Indus-
trial pollution is but one of the most highly visible current examples of
how efficient economic practice may cause a social problem with ramifi-
cations that cannot be priced easily in economic terms. The suggestions
for formulation of national policy involves insight into the elusive con-
cept of the "public interest" which historically, for lack of a better
way, has been defined through presenting competing claims in our democratic
political process.

6. Sources of pertinent information are contained in the text and
a bibliography is listed in Appendix C. Also, the background and experi-
ence of the Task Group members contributed significantly to the material
contained in the Report. It should be noted that the background of the
members does not include all the areas discussed. Assistance was therefore
sought from outside individuals to supplement the Task Group background.

TASK GROUP MMERSHIP

1. Membership on the Task Group was variable among those persons
listed below, most or whom rotated on or off the TILsk Group during the
four months of prime activity from April to July:

Chairman: (April 18 - JulY 31)

Captain Raymond G. Miller
Office of Assistant Chief of Staff
U. S. Coast Guard
Department or Transportation
Washington, D. C.

(After July 31)

Captain William A. Jenkins
Deputy Chief, Office of Operations
U. S. Coast Guard
Department of Transportation
Washington, D. C.

Health, Education and Welfare:

Dr. Carl N. Shuster, Jr.
Director, Northeast Marine Health Sciences
Laboratory
National Center for Urban and Industrial Health
Narragansett., Rhode Island

Interior:

Bureau of Commercial Fisheries:

Mr. Charles R. Chapman
Acting Assistant Chief, Branch of Shellfisheries
Washington, D. C.

Geological Survey:

Dr. Deric O'Bryan
Social Scientist (Ecological lbrdrology)
Arlington., Virginia

Mr. Francis H. Kohout
Staff Hydrologist
Washington, D. C.

National Science Foundation:

Dr. Frank H. Hersman
Staff Associate
Office of Planning and Policy Studies
Washington., D. C.

Smithsonian Institution:

Dr. Grant Gross
Associate Curator
Division of Sedimentology
Washington., D. C.

2. Contributions to the Task Group are also gratefully acknowledged
from the following persons:

Dr. Henry L. Berryhill, Jr.
Chief, Office of Marine Geology and Hydrology
Geological Survey
Corpus Christi, Texas

Much of his work on the geological references and treatment of the coast
line emanate from his papers "The Coastal Margin, Its Nature and Uses."

Dr. William A. Niering
Professor of Botany and Director of the
Connecticut Arboretum
Connecticut College, currently on leave with the
National Science Foundation as Associate Program
Director, Environmental Biology

Dr. Niering's paper on "The Ecology of Wetlands in Urban Areas" is con-
tained herein.

Dr. Jack H. Pierce
Smithsonian Institution

Dr. Pierce prepared the discussion on mineral exploration and exploitation.

REPORT CONTENTS

This Report is divided into the following sections.

1. BACIGROUND

Describes the historical background and cites several current
examples which point up problems of conflicting use of certain portions

of the Coastal Zone. Also discussed is the fundamental need to understand
our environment, as short and long term chaages are taking place., so that
our marine science activities may be attained.

2. DEFINITION OF COASTAL ZONE

Briefly describes the physical segments of the Coastal Zone area
used for the subject of our study, and defines the term "Coastal Zone."

3. DISCUSSION OF SELECTED AREAS OF INTEREST

Conservation, defense, ecology of wetlands, food, mineral resources,
recreation, transportation and communications, and uses of the shoreline are
discussed in separate papers in terms of problems, opportunities, and needs.

4. IINT REUTIONSHIPS AMONG USES OF THE COASTAL ZONE

This section lists thirteen (13) use categories, and suggests a
methodology for developing a matrix of multiple uses of the Coastal Zone
for further study to determine relative use compatibility and incompatibility.

5. COASTAL ZONE LAND DWMOR40T POLICY

Discusses the implications of man's use of the shoreline and of
certain legal considerations required for Coastal Zone planning, develop-
ment, and management. There is presented a rationale for a national Coastal
Zone land development policy. Certain basic questions, requiring decisions.,
are posed for consideration in the formulation of a study relating to a
Coastal Zone land development policy.

6. RECOMMMMTIONS .

The Task Group recommends both a short-term and long-range approach
to the Coastal Zone by defining the national policy and goals, establishing
a permanent coordinating mechanism of Federal, state, local, and industry
for planning, developing, and ging the Coastal Zone, and recommends
opportunity for expanded education, training, and research programs.

CHAPTER I

BACKGROUND

INTRODUCTION - THE NEED TO UNDERSTAND MAN'S ENVIRONCENT

Indeed man's distribution and, to a degree, his migration, have been
determined by the position of the most definitive and dynamic geographic
boundary of our planet - the line along which the land meets the sea.
In earliest historical times, the sea beyond the westernmost shores of
the Mediterranean was the great abyss of man's ignorance; today the sea
floor itself is the latest frontier for man's future economic growth.
The coastal margin has become a zone of ever increasing activity as
human population has burgeoned; for settlement, for recreationp for
industrial development, for mineral production, and for the mass
dumping of man's wastes. In the coastal ma gin and beyond, advancements
in technology are leading man to greater involvement with the sea., not
just for travel across its surface but for extracting raw materials from
its waters and from the sediment and rocks beneath. Consequently, our
coast land in the decades ahead will become densely populated,$ our con-J
tinental shelves will be explored extensively for resources.

Long before the arrival of the white man in the Northern Hemisphere.,
American Indians utilized coastal areas as a source of food - seafood,
game., and crop growing - and the water as a means for travel. Their
mode of living permitted them to leave the Jwm diate shoreline areas
seasonally or whenever they sensed danger in weather changes. The
pattern of colonization by our forefathers., their mode of living,, and
their established communities depended upon water power for industry
and water routes for communication. These patterns are still reflected
in our political boundaries. From this beginning., the coastal areas
have had a lasting effect upon political., social, and economic life
throughout the United States.

MOBILITY OF THE COAST L INE

Geologic processes have outlined the geographic pattern of earth's
surface and the position of the coast line at any given time in earth's
history. The nature of the coast line has determined man's use of it.
Reconstruction of previous coastal margins is an important task of the
economic geologist. Deposits of oil and gas in particular seem to have
formed along older ccastal margins. Criterion for recognizing older
coastal margins are critical to appraising the mineral potential of older
sedimentary rocks now exposed on land.

Long-term fluctuations - To the infrequent visitor, the position of the
coast line seems eternal. To those more familiar with the coast line,
relatively minor changes, but nevertheless of a permanent nature,, are
apparent during the span of a lifetime, and in some cases over shorter
periods. However, in the perspective of geologic time, the entire face

of earth has been remolded many times. The contest of sea against land has
raged in slow motion across the globe for at least three billion years; each
strives to encroach upon the other in the eternal battle for supremacy.

our problems of the land and sea are of a much more immediate nature.
Consideration of the coastal margin in all its aspects leads us to a few
moments of contemplation of man's dilemma if he is forced to fit more people
into less land area.

Short-term fluctuations - Short term changes affecting the coastal margin
and man's use of it are of two main types: those of periodic or regularly
recurring nature such as the tides and seasonal currents; and those of an
irregular or catastrophic nature such as hurricanes, tsunamis, andfloods.
The effect of major hurricanes upon human settlement along the coastline
hardly needs reiteration. Suffice to say that during the history of our
country, hurricanes and major storms have caused not only changes in the
coastline but property and erosional damage along our coastlines whose loss
in value can be estimated to be more than a billion dollars - a single major
storm not of hurricane proportions that moved along the northeast coast from
Cape Hatteras to Maine in March, 1962 alone caused damage estimated at 190
million dollars (Burton and others, 1965). Figures for the number of lives
lost in the United States during hurricanes over the past 150 or so years
are not abailable, but it would be safe to estimate the total at more than
12,000 by projection from statistics available back in 1888 (World Almanac).

Tsunamis or tidal waves have not been frequent along our coastline, affecting
only infrequently the west coast of the United States. However, as a cata-
strophic event, their effect has, on many occasions, been devastating in
other parts of the world. Unfortunately they cannot be predicted, either in
time or magnitude. Unlike hurricanes which can be tracked, tsunamis travel
at speeds of about 400 mph and there is little time for an alert. The great
tsunamis in the Pacific triggered by the explosive eruption of Krakatoa in
1883 caused a tidal wave that drowned more than 36,000 persons in the East
Indies and did damage on the western coast of South American 3,500 distant.

Focusing on our immediate presence, man Also contributes to short-term
changes (vs. geologic time) of his environment as a contrast to the natural
short-term changes described in the foregoing paragraphs. For example, the
competition for use of certain segments of the Coastal Zone is reflected in
the daily press from time to time and cannot be better exemplified than by
a newspaper article by Hank Burchard concerning the beach at Ocean City,
Maryland, that appeared in the Washington Post, July 14, 1968. It was
reported that a legal and political battle is underway to prevent a third or
more of the beach at this Atlantic!resort from being closed to the public. A
private developer has constructed a house that stands on pilings extending
into the surf and divides the ten-mile stretch of Ocean City's traditional
public beach.

Another article appearing in the Washington Post on July 23P 1968,, written
by Le Roy Whitman entitled "Maryland Rapidly Losing Wetlands" indicates
public concern for the preservation of this valuable natural resource.

An August 1% 1968 dateline out of Annapolis., Maryland states:

"Construction of an oil refinery on the Potomac River at Piney Point
in St. Mary's County., Maryland would post a threat to 50 to 70 percent
of the entire annual breeding population of canvasback ducks in the
Atlantic F15nmy ... Other waterfowl species, as well as many additional
recreational and fishery resource values could also suffer irreversible
ham if this facility is built ... It is unfortunate that such a threat
should now be posed in a section of the tidal Potomac that is clear
and essentially free of harmful pollution, particularly in view of the
fact that the upper tidal portion is so badly polluted from sewage
and other waste products that enter the river from the Washington., D.C.
area. .$I

These words are from Jess W. Malcom, Executive Director of the Chesapeake
Bay Foundation. The issue in question concerns a petroleum company's
plans for the establishment of a foreign trade zone and the construction
of an oil refinery complex at Piney Point, Maryland. The question is now
being considered by the Federal, state and local governments, private
industry, and interested citizens groups. How or when this question will
be resolved is not clear at this time.

Although a start has been made by the Federal government to enhance the
exploration, exploitation,, and development of our natural resources, and
the enactment into law of certain conservation measures, more information
is being required by the Congress concerning our water resources, one
significant segment of the Coastal Zone.

The House and Senate Appropriations C rumittees., the Senate Committee on
Interior and Insular Affairs, and the Senate Committee on Public Works in
recent coi ittee reports have urged more comprehensive analyses of bene-
fits in proposed water resources development projects. These committees
are urging that the economic analysis of water projects reflect the broad-
est scope of potential benefits and costs which would result from their
construction and that the committees be furnished data which will accurately
reflect all primary and direct benefits as well as indirect and secondary
benefits. The purpose of this widespread use and full consideration of all
benefits would put this area of public works in a better position to reflect
the Nation's goals in economic and social progress,

The foregoing examples are but a few that point up the need to better
understand our environment so that the objectives of the marine science
activities of the United States, as set forth in Public Law 89-454.. may
be attained. These are:

1. The accelerated development of the resources of the marine
environm@Ont.

2. The expansion of human knowledge of the marine environment.

3. The encouragement of private investment enterprise in explora-
tion, technological developmento marine commerce, and economic utilization
of the resources of the marine environment.

4. The preservation of the role of the United States as a leader in
marine science and resource development.

5. The advancement of education and training in marine science.

6. The development and improvement of the capabilities, performance,
use, and efficiency of vehicles, equipment, and instruments for the use
in exploration, research, surveys, the recovery of resources, and the
transmission of energy in the marine environment.

7. Theeffective utilization of the scientific and engineering
resources of the Nation, with close cooperation among all interested
agencies, public and private, in order to avoid unnecessary duplication
of effort, facilities, and equipment or waste.

8. The cooperation by the United States with other nations and
groups of nations and international organizations in marine science
activities when such cooperation is in the national interest.

The next section of the Report will discuss in detail the nature of
the Coastal Zone in physical terms so that we can appreciate the sub-
sequent consideration of the uses and activities within this area.

THE NATURE OF

THE COASM ZONE

OF THE UNITED STATES

We have talked in generalities tibout the Coastal Zone. But if we are
to come to relate the problems, opportunities,, and needs to workable
programs we must speak in specifics. Hence, this section discusses
segments of the Coastal Zone and submits a recommended definition.

Although we considered the Great Lakes area a logical area to include
our consideration, it was not included in this report because the
Great Lakes area was the subject of a detailed analysis by another
Task Group.

INTERACTIONS IN THE COASTAL ZONE

A key to the high biological activity and to physical changes in the
Coastal Zone is seen in the tremendous surface of contact among large
masses of the interacting natural and living components: the air,, water.,
land, and resources. It is axiomatic that the greater the surface contact
and the greater the rate of contact,, the greater the action and interaction.
This is indeed what occurs in the Coastal Zone. An understanding of this
helps us to better visualize a theoretical concept of maximum ecological
conditions in the Coastal Zone, and why destruction of a sector of inter-
action of the components so greatly affects other sectors of the Coastal
Zone. The unique thing about the Coastal Zone is the extent of its land-
water interface.

PHYSICAL DESCRIPTION OF THE COASTAL ZONE

Suffice for the purposes of consideration by the IPON Task Group,, a brief
physical description of the various segments of the Coastal Zone is pre-
sented, namely:

doniinental Shelf
Ocean Shorelines
Estuaries
Estuarine Shorelines
Coastal Wetlands (marshes)
Coastal Plains

Another Task Group, Mentification and Delineation of the Coastal, Zone,
is preparing a separate report, primarily based upon physiological descrip-
tions. Therefore, detailed descriptions are not included here.

DEFINITION OF COASTAL ZONE

It became apparent during the discussions in the C', ittee of the
Multiple Use of the Coastal Zone that a definition was needed. Where
the considerations and recommendations involve inter-considerations
of the various agencies, Task Groups, and Panels of the Committee a
definition of the Coastal Zoneis required. Accordingly,, an Ad Hoc
Working Group was convened by the Committee Chairman to consist of the
IPON Task Group and representatives of the Departments of State and
Defense (Navy). See Appendix B for details of the report of this
Ad Hoc group. The following text is the product of the Committee:

COASTAL ZONE DEFINITIONS

"The Coastal Zone generally comprises the area surrounding the shoreline
on the sea coasts, Great Lakes., bays, inlets., and estuaries of the United
States, Its territories, possessions, Puerto Rico and other areas admin-
istered by the United Statesp whose use is strongly affected by the mutual
interaction of land and sea. The objects of research concerning the
resources and uses of this area cannot be limited to any specific bound-
aries. However, for purposes of identifying the ln,m diate objects of
planning, management., and regulatory programs., the Coastal Zone extends
landward within the states bordering on this shoreline as far as signifi-
cant marine influences are active, and seaward, to the A, theL
Uni ed St@attiktshtp,, is emphasized that activities in areas
,.i &@
cent t4@@
e t
jacent to the territoria, sea y have a significant effect on the use
of the shoreline which may require appropriate local,, national., or inter-
national measures in furtherance of Coastal Zone programs."

PROBLEMS, OPPORTUNITIES AND NEEDS

DISCUSSION OF SELECTED MAJOR AREAS OF INTEREST

The Task Group examined in detail selected separate major areas of
interest, as previously listed in the Preface,, in terms of problems,
opportunities, and needs related to the Coastal Zone. They are:

1. Conservation
2. Defense
3. Ecology'of'Wetlands
4. Food
5. Mineral Resources
6. Recreation
7. Transportation and Communications
8. Uses of the shoreline

A discussion of each follows.

CONSERVATION

This approach to conservation is basically one of ecology. In Europe
the concept of ecology is - in general terms - the influences and
reactions of an organism to its environment. In the United States, we
place ecological emphasis on what has recently been described as "man's
unnatural treatment of nature and its sad results." Comments on pollutions.,
extinctions, prospects of over-population, and resultant food shortages,
make headlines. Inevitably, with technological progress augmenting the
conveniences of modern living, and with ingenuity and competiveness
utilizing natural resources and changing local environments at an accel-
erating pacep the principles of ecology must play a significant role in
our national programs if we are to preserve and use wisely the natural
resources of the Coastal Zone. It may well be the synthesizing approach
beat suited to the meshing of understanding and compromise between such
disparate problems - economic., hydrologic., recreational - which we will
encounter in the Coastal Zone.

Problems: Major problems stem from a general indifference or lack of
understanding of our environment, except as it canserve our (usually
short term) needs and desires.

1. Pollution: Local extinction or decimation of fin and shellfish;
limits to recreation; unhealthy habitats; increasing thermal pollution
from the rapidly increasing number of power plants.

2. Sedimentation and Erosion: Smothering of shellfish beds and
nursery habitats of some fishes is taking place.

3. Lack of knowledge of what resources are contained In the coastal
waters (estuaries out to the continental shelf), and can produce without
lasting detriment.

Lack of attention to urban existence and expansion in seismic and
hurricane-prone locations.

Opportunities:

1. Preservation of more specific areas (e.g., Everglades, Cape
Hatteras) in a near natural condition for present enjoyment and future
planning considerations.

2. Sea harvest (food) research and exploitation - with favorable
publicity - of fish meal and other food sources presently held in low
public acceptance. The lessening of the umnbers of sharks, for example.,
might increase the numbers and range of the more desirable tuna.

3. Considerations of more offshore rigs, such as the oil platforms
in the Gulf of Mexico, Cook Inletp and off the California coast, for
marine research laboratories, pleasure boat havens, and perhaps even
waste treatment and disposal plants.

Needs:

Aside from the fact that we have not placed a very high priority on con-
servation in the past, any ecological change has resulted in multiple and
usually permanent reactions. Salmon ceased to run in the Conneticut River
and most U. S. West Coast rivers, since the turn of the century. Canals
have disrupted the waterfowl and fish habits in the Everglades, in the
Great Lakes - and, to be general, in the Mississippi, Colorado and Columbia
River deltas.

1. Therefore, we need an appraisal of what we want to save, or sac-
rifice, not just for now, but for the next several decades. Long Island
Sound as a fresh water lake might be an excellent project - but at the
sacrifice of major scallop beds. Power plants on a tidal river affect
(eradicate) the anadromous fish. Also recent unfortunate oil tanker acci-
dents in marine transportation and oil well blowouts, such as occurred off
Santa Barbara, with gross pollution of the waters and beaches must be con-
sidered and corrective actions formulated.

DEFENSE

This section on defense is treated in very general terms and is included
for the purpose of drawing attention to the fact that defense and national
security must be a part of any consideration of the Coastal Zone. No
attempt is made in this report to define or discuss problems or opportunities
of defense or security since these categories are of such specialized nature
and the requirements transcend the parameters and qualifications of the IPON
Task Group.

The various statutes and Executive orders pertaining to preservation and
enhancing the environment that are applicable to the Department of Defense,
particularly water pollution abatement programs, are being addressed by that
department with respect to its own shore establishments and vessels.

The IPON Task Group, therefore, listed some of the obvious general needs per-
taining to the marine environment. These would include the following
examples:

1. Accurate location of all obstructions and activities.

2. Navigational data such as aids, depths, channels, etc.

3.. Practice operating areas including firing and other practice areas.

4. Knowledge of the physical environment, land, sea, and air.

5. Shipyards, bases and other logistic support activities.

It is noted that the Department of Defense is an active participant in the
National Interagency Oil and Hazardous Cargo Pollution Plan and is coop-
erating fully with the various national and regional porgrams under that Plan.
Significant elements in the Plan include the United States Army, Corps of
Engineers, United States Navy, and Supervisor of Salvage of the Naval Ships
System Command and their counterparts in the regional (district) areas.

ECCLOGY OF WETLANDS

Because of the gradual diminishing wetlands of the United States, the
IPON Task Group felt that focus on this important segment of the Coastal
Zone was in order. Of the materials that were reviewed,, a paper presented
at the New York Botanical Garden Symposium "Challenge for Survival 1968"
by Doctor William A. Niering stated the problem succinctly and well.
Doctor Niering proposes that we as a Nation adopt a wetlands policy which
will include the preservation of this valuable natural resource. The
paper is quoted in its entirety in this report as being applicable to
a major problem, opportunity, and need in the Coastal Zone.

THE ECOLOGY OF WETLANDS IN URBAN AREAS*

William A. Niering**

Man is a threatened species. The twin specters facing him are over-
population and unbridled technology - both self-induced.

The double threat is aimed most directly at man's environment. As the
United States strives to accommodate more human beings than It has ever
had to serve before., increased demands are placed on our natural resource
bank. Our surroundings become increasingly crowded,, noisy,, and soiled."

These opening paragraphs from the Department of the Interior Yearbook
Man ... an endangered species? echo the grave concern being expressed by
certain Federal agencies and Congressmen on the Washington scene. As
a nation we have in the 20th century reached a high level of affluence
but the environmental price of this progress has been high. Accelerated
eutrophication of our lakes and rivers so polluted they occasionally catch
fire have rpompted the enactment of Federal water pollution control legis-
lation. But our rapid stride to opulence has also had a drastic impact
on other natural landscapes., namely the wetlands. Although the Nation's
marshes, swamps and bogs are among the most productive landscapes in the
world these liquid assets have suffered greater destruction and abuse
than any other natural habitate mani lated by man. As a result of
draining, dredging, filling and/or ppoullution we have in,the coterminous
United States reduced the nation's wetland asset to 70 million acres,
slightly more than half the original acreage (estimated 127 acres).
And the destruction is continuing at an accelerated pace of 1% or more
per year favored by the pseudo-socio-economic concept that conversion
of these habitats into other land use patterns results in the highest
and beat use. Unfortunately, such decisions have usually been conceived
in narrow economic terms with no critical evaluation of the significant
ecological role such areas serve the communityp the state or the broader
national Interest.

Presented at The New York Botanical Garden Symposium Challenge for
Survival/1968, April 25-26, 1968.
Professor of Botany and Director of the Connecticut Arboretum
Connecticut College. Currently on leave with the National Science
Foundation as Associate Program Director, Environmental Biology.

It is in this context and that of our symposium Challenge for Survival
that I should like to briefly examine their ecological role, the impact
of man on their ecology and the action which must be taken to safeguard
these assets.

Their Ecological Role

In the urban-suburban complex the remaining wetlands are engulfed by
some 140 million Americans crowded onto less than 5% of the land.
Yet cattail marshes '? wooded swamps and fringing tidal marshes can still
persist if given adequate protection from the environmental stresses
ofurbanization. Unfortunately, to the average urban dweller such areas
appear to have little relevance to daily life. For this reason a preview
of the ecological role these wetlands serve may be enlightening.

Hydrologic - Wetlands are of major importance in the nation's hydrologic
regime. Because of their water holding capacity they act as storage
basins assisting in minimizing erosion and serving to reduce the destruc-
tion of floods. In cities this is especially important since organization
Intensifies the rate of run-off as buildings, concrete and asphalt tend
to concentrate large volumes of precipitation. Being deficient in soak-in
areas the run-off is usually rapid and in excessive volumes. Wetlands,
including flood plains,, act as catchment basins and tend to slow the speed
of flow thus minimizing flood damage. In 1955 when the severe floods
struck eastern Pennsylvania hundreds of bridges were washed out along the
stream courses. However, two bridges of the type destroyed were left
standing below the Cranberry Bog,, a natural area preserved by the Nature
Conservancy. Flood plains also represent a hydrologic feature ideally
designed to carry water during peak flows. Every effort should be made
to maintain these valley landscapes free of developments., restricting
them for recreation or those activities not incompatible with periodic
flooding.

Furthermore, wetlands are important oxidation and sedimentation basins
where tons of organic and inorganic sediments are deposited from the
urban ran-off. Although accelerating eutrophication when intercepted
by marshes and swamps the organic component is slowly oxidized and the
nutrients made available to the wetlandecosystema rather than being
flushed into rivers and streams or the local sewage system.

Marine Productivi@z - Turning to the coastal wetlands, tidal marshes
represent an important marine resource rapidly being engulfed by
development. Extremely limited in extent these fringing wetlAnds are
delicately balanced ecosystems that grow upward and landward keeping
pace with the constantly rising sea levele Although most of the rise
was completed 5,000 years ago it is still occurring at the rate of about
3 inches per centvwy along the Atlantic shoreline. In response to a
complex of factors involving salinity there have also developed dia-
tinctive belts of marsh vegetation as one progresses from the estuary
to the upper marsh border. Located at the break in the slope and at
the tidal-fresh water interface there is not only a tendency for sedl-
ments to accumulate but also for nutrients to concentrate. Therefore,,
the marsh-estuarine system is one of the most productive in the world.

In a Georgia salt marsh it has been reported that seven times more
protein is produced as in the best Kansas wheat field. Here the food
web begins that supports our coastal fisheries. Algae and detritis
from the marsh grasses nourish the shellfish. The abundance of
plankton and crustaceans provides food for small fish such as menhaden
that are consumed by flounder, striped bass and bluefish. These in
turn support our spectacular game fish - tuna, marlin, swordfish and
sailfish. Here too are the nursery grounds for two dozen or more
commercially important crustacea, shellfish and finfish. In fact, it
is estimated that 90% of the total harvest of seafood taken by American
fishermen is caught on the Continental Shelf and about two-thirds of
these species are dependent in part on the marsh-estuarine ecosystem.

Tidal marshes are geologically significant as sediment accretors. When
they are destroyed those sediments that are normally deposited on the
marsh in its upward growth end up in channels necessitating constant
dredging. Their organic carpets of peat and marsh grasses also exhibit
great resiliency in buffering the shoreline during periodic storms
giving the upland an added degree of protection.

Duck Factories - Although the nation's midwest pothold country produces
over 50% of our ducks the eastern coastal marshes around suburbia produce
200,000 and the southern states another 700,000 during the best years.
Even though those in the west are most significant as breeding areas all
are important including those in and around cities that serve as vital
resting and feeding grounds during migration. New York's Jamaica Bay
is an excellent example. It should also be recognized that where one
is dealing with a migrating resource those wetlands serving as the breed-
ing grounds can affect the waterfowl population and ultimately the hunter
or naturalist thousands of miles away.

Education and Recreation - Wetlands are outdoor educational and scientific
laboratories. They furnish the resources for scientific research and serve
as living museums for teaching the dynamics and ecological role these
systems serve. At the Connecticut Arboretum the permanently preserved
wetlands have been variously explored by Connecticut College students. A
red maple swamp, actually a bog, with its underlying 20 feet of peat
served as a challenging problem to an undergraduate as she unravelled the
13,000 years of post-glacial forest history revealed by the pollen preserved
in the peat. The Manacoke tidal marsh salinities studies have been con-
ducted in an effort to better understand marsh zonation and permanent map-
ping studies will reveal future changes in the marsh vegetation. At the
Thames Science Center, closely affiliated with the Arboretum, thousands of
school children are annually given first hand field experience and are
being taught the value of wetlands. The Arboretum Guided Tour used by the
teachers makes its point about the wetland along the route..."The swamp
below this dam is roughly an acre in size. If flooded to a depth of one
foot, it would hold 330,000 gallons of water. Thus whenever a swamp is
filled or drained another large quantity of water is lost from the under-
ground water supply and made to run off more quickly to aggravate flooding
problems down stream."

Wetlands also provide many recreational outlets such as fishing, hunting,
bird watching or hiking. Twenty million Americans go fishing, two million
hunt waterfowl. Thousands hunt with the binoculars and camera where an
unparalleled diversity of waterfowl and spectacular marsh birds gives
pleasure and inspiration. On Staten Island a unique fenway system has
been proposed for incorporating the wetlands as part of the open space
pattern. It represents a sound ecological use of resources and the
recreation potential is unlimited. Such a mosaic of open space serves as
an essential structure to any developing community. It serves an impor-
tant social function and greatly enhances the quality of the environment.

The Impact of Man:

Filling, Dredging and Draining - In the Merchant of Venice, Shakespeare
wrote "... You take my life when you take the means whereby I live."
Wetland destruction as a result of filling, dredging and draining has
been widespread, especially in highly developed areas. Tidal marshes
on the south shore of Long Island Sound have been recuced from 30,000 to
16,000 acres. Similarly along the Connecticut shoreline almost half
(45%) of the 36.5 square miles of salt marshes found in the state in
1914 had been destroyed by 1959 and at the present rate of destruction
14% will remain by the year 2,000. At Sherwood Island State Park,
Westport, Connecticut 3.5 million cubic yards of gravel were taken
from Long Island Sound by hydraulic dredging. Much of this gravel was
used in the construction of the Connecticut Turnpike; the remainder
obliterated the life of a marsh to create a parking area. Even the
site of Kennedy International Airport was once a productive marsh.

Dredging and draining operations can also drastically affect the ecology
of wetlands. Dredging causes increased turbidity which decreases light
reaching photosynthetic organisms at the base of the food chain. Filter
feeders such as shellfish may be adversely affected or actually killed.
Suitable hard surfaces for the attachment of larval stages of shellfish
may be covered by excessive sediment. The adverse biological effects on
wildlife as a result of widespread tidal marsh ditching for mosquito
control along the Atlantic coast are well documented. In Delaware
natural marsh grasses were replaced by two shrubby species - marsh elder
and groundsel. Mollusk and crustacean populations, important food of
water fowl and other marsh birds, were reduced up to 95%.

In Florida drainage operations by large corporate developers are
threatening the future of Corkscrew Swamp, a magnificant mature cypress
forest owned by the National Audubon Society.

One only needs to look within one's own co=unity to see where the
sanitary land fill operations are occurring to realize that wetlands
are still regarded as wastelands.

Even those wetlands dedicated as natural preserves are being continu-
ously subjected to encroachment. The case of Troy Meadows is a classic
example. Located 20 airline miles from Times Square in Morris County,
New Jersey, this 3,000 acre marsh half of which is held as a wildlife
refuge by Wildlife Preserves is now being subjected to the

following encroachments: two transmission rights-of-way., two gas
pipe lines, four sever lines,, a p=iping station'9 tbree water wells
and a dredging operation to speed the flow of odorous effluent from
a nearby paper mill. Currently two high:wys.. an interchange and
access road are under construction across the preserve. One of the
utility easements will be increased in width eight-fold. A pipe line
official recently commented to a Wildlife Preserve Officer that this
preserve was one of the best things that ever happened for the land is
kept open, acquisition is simplified and land is cheap since it is not
improved. As long as this attitude prevails our wetlands are doomed.
But the question way well be asked - can Troy Meadows., considered one
of the finest wetlands in the east, be saved or will these continuing
encroachments destroy the values for which the area was preserved?

Pollution - Wetlands have long served as our reservoirs forlhmman and
Industrial wastes. To these we have added pesticides., "waste" heat
and an increased flow of nutrients from agricultural land . The effects
have been to accelerate eutrophication,, simplify species diversity and
exhaust the oxygen supply leaving only anaerobic organisms. In the
Hackensack meadows the tidal marshes are dominated by a single species.,
reed grass or Phramiteso Here it appears that the more diverse marsh
flora has been eliminated by pollution. Although of minor value for
water fowl E!H@tes still offers shelter and serves to catch sediments
and minimize erosion.

Pesticides, especially insecticides.. have markedly affected the ecology
of wetlands, On Long Island salt marsh muds contain up to 32 lbs per
acre of DDT following tvo decades of mosquito control spraying. Bio-
logical msguification occurs at various trophic levels in the food
chain from the pbytoplankton through the sea birds and levels appear
sufficiently high in the marsh muds at this time to be subtly elimi-
nating certain organisme.1 Marine organisms., especially crustaceans
are extremely sensitive to the persistent pesticides. As little as
0.6 to 6 parts per billion will kill or imobilize a shrimp population
in two days. A recent court case an Long Island has highlighted this
environmental contamination of WT and has led to a temporary injunction
against the Suffolk County Mosquito Control Commission.

The osprey, closely associated with our coastal wetlands, has been
rapidly declining in recent years. Here pesticides appear to be impli-
cated. A study from marshes along the Connecticut River now reveals
that only 0.5 young per nest are being reared compared to the normal
2.5 young and the eggs contain 5.1 ppa DDT. In Maryland hatchability
is slightly better - 1.3 - 1.6 per nest and DDT levels in the eggs are
lover - only 3,0 ppa-2

1. Woodwello G.M., C.F. Wursterp Jr. & P.A. Isaacson. 1967. DDT residues
in an east coast estuary.* a case of biological concentration of a
persistent insecticide. sci. 156:821-824.
2. Amesp P.L. 1966. DVT residues in the eggs of the osprey in the north
eastern United States and their relation to nesting success. Jour,
Applied Ecol. 3(suPP1.) 87-97.

Probably the most disturbing finding has been the recent report that DDT
reduces photosynthesis in marine plankton-3 The ecological implications,
may be of major significance in modifying species diversity., giving rise
to explosive populations and aggravating already serious eutrophication,
It my even result in subtle mortalities that might be difficult to deier-
mine by even the best sampling techniques.

Need for a National Wetland Sys
Private agencies such as the National Audubon Society., Nature Conservancy,9
Wildlife Preservesp Incop Natural Areas Council and Philadelphia Conserva-
tioniots have all played a vital role in the preservation of such wetlands
as Troy Meadows., the Tinicum Marshes in Philadelphia and East River Marshes
in Guilford, Connecticut. The preservation of Great Swampp although now
under federal protectionp was Initially sparked by a private group of citizens*

At the municipal level we see Jamica Bay,, a famous 3,,000 acre marsh and
water complex as part of the Nev York City Park System. And in Hempstead,,
Long Island 10.,000 acres of tidal marshes owned by the town have been
dedicated to wetland conser*ation through a joint program with the state*
In the town of Woodbridge, Connecticut there Is zoning prohibiting the
destruction of wetlands. MAny towns have conservation commissions assist-
Ing in the preservation of the community's open space resources,, especially
the wetlands. Land trusts are also being established as in Guilford and
Madison, Connecticut where wetlands can be privately held or given to the
town with certain legal restrictions.
Two states., Massachusetts and Rhode Island,, have taken bold leadership in
preserving tidal wetlands. The Massachusetts law prohibits dredging and
filling the 45,000 acres remaining in Massachusetts. The Rhode Island law
restricts use of coastal wetlands for the benefit of public health, marine
fisheries, wildlife and other conservation purposes. In New York the Long
Island Wetland Bill provides funding up to 50% of the total cost of develop-
ment and 50% of total cost of maintenance of town or county owned lands which
have been dedicated for conservation purposes. Wetland legislation has been
unsuccessful in Connecticut. However, Save the Wetlands Committee has a wet
lands acquisition program underway.

At the federal level recent estuarine legislation has authorized the
Department of the Interior to lisventory the nation's estuarim resources
and set forth recommendations for a program of preservation. The Comu.
mittee on Environmental Qmlity of the Federal Council on Science and
Tecbnology is currently considering means of resolving Inter-agency
conflicts In the use of the wetlandso Although there is a recognition
of the problem much bolder action Is required If our vetland heritage is
to be saved*

3. Wurster, C.J. Jr. 1968. DDT reduces photosynthesis by marine phyto-
plankton. Sci. 159:1474-1475.

In conclusion I should like to propose that we as a nation adopt a national,
wetlands policy. It is now recognized by economists that our productivity
potential has reached such a level that the nation's economy and our high
standard of living will not 'suffer by the preservation of such natural
resources but also enhance the quality of life for all Americans. Such
a policy would give national recognition to the importance of wetlands.
They would be inventoried, evaluated for the ecological role they serve
and vast acreages preserved in the national interest. Such a system
might be patterned after the Wilderness system so that it could be defended
against competitive land uses. This policy would hopefully minimize con-
flicts of interest among government agencies and exercise certain controls
over the private entrepreneur who may destroy for personal gain a resource
of $rest value to the nation.

Until we have fully assessed these liquid assets we will be unable to
determine what is the desirable wetland mix that should receive permanent
protection. With the possibility of our population doubling within the
next 40 years, this is the decade for action. For the urban environment it
will mean increased open space, maximum habitat diversity and assure a
higher level of environmental quality in perpetuity.

4. Krutilla, J-V. 1968. Balancing extractive industries.with wildlife
habitat. Resources for the Future, Inc.0, Washington, D.C.

FOOD

Introduction

Conflicts between development or preservation of natural coastal habitats
for food production are minor compared to non-food activities which phys-
ically destroy or chemically poison these habitats. Chief among the de-
structive activities are: (1) use of coastal areas for chemical, sewage,
and solid waste disposal, (2) oil spillage, (3) channel dredging and spoil
operations, (4) thermal pollution, and (5) creation of waterfront real
estate. The primary National concern regarding food production must be,
therefore, the prevention of habitat destruction or, at least, reduction
of losses to the lowest amounts possible. Important segments of National
policy in this regard are the Federal Water Pollution Control Act (P. L.
88-660) which deals with pollution in coastal areas particularly as it
affects shellfish and the Clean Water Act of 1966 which provides for a
comprehensive study of the effects of pollution on all estuarine areas and
resources.

Development

Fishing has often been labeled, in comparison with modern agriculture, as
still in the "hunting" stage. There are major advances being made, however.
The Russians, for example, have done well with large cooperative fishing
fleets and the Japanese have established themselves as the foremost aqua-
culturalists of the world. The Japanese have been singularly successful in
large scale production of oysters by 3-dimensional. culture methods and in
salt pond cultivation of shrimp. Economic and political motivation and
restraints are probably the major barriers to aquaculture in the United
States today.

Four aspects of coastal aquaculture must be considered in long-range planning:
(1) selected food species, (2) improvement in and use of culture techniques,
(3) construction of artifical habitats, and (4) utilization of non-toxic or
non-lethal levels of certain pollutants to enhance food production.

Biomass utilization vs. species production. Intensive aquaculture will
depend upon "farming"specific crops, much as in agriculture. Concurrently,
production of fish meals and FPC (fish protein concentrate) may be less
specied dependent.

Shellfish culture. Although shellfish (molluscan and crustacean) culture.
techniques have been known for many years, particularly through developments
in our research laboratories, we have been slow to utilize this knowledge.
The slowness of Americans to adopt and adapt these techniques to commercial
enterprises undoubtedly has economic bases related to such factors as the
relative ease of present day harvesting, availability of other protein foods,
and high costs of aquaculture in comparison to the production of other foo 'ds.
As shellfish and fish stocks become depleted and the need for food increases,
the economic justification of aquaculture will emerge - but the techniques are
generally available now. The major concern is whether coastal areas will still
be available and of good quality (for sustaining organisms) when aquaculture

becomes a necessary reality. The question of water-land rights vs. the
11public domain" will also need resolution.

Construction of culture facilities. When coastal areas can be owned out-
,right or leased on a long-term basis, private enterprise will be more apt
to construct artificial habitats'conducive to the culture of particular
species. In contrast, artificial reefs to attract and maintain fish pop-
ulations for recreational-food fishing will probably be developed and
managed by state (public) agencies.

Environmental manipulati2n. Large-scale manipulation of the marine envi@-
ronment has been visualized. One recent example involves the use of waste
heat from a nuclear power plant to pump nutrient-rich bottom.water up to
the sunlit surface area. It is predicted that such a thermonutrient pump
will greatly increase the fish yield. Because of their coastal. location,
desalination plants could be coupled with these thermal pumps. Also, with
large coastal metropolitan areas looking toward the open ocean as a sewage
waste dumping ground, proper management of this waste material might also
be beneficial although it is recognized that sewage has limitations,
compared with other substances, as a plant nutrient.

Preservation

Although preservation involves maintenance of natural tracts of coastal
waters and lands, the major action required to preserve these areas for
food production is that of counteracting chemical and physical destruction
of natural habitats. If the destructive forces can be restricted, mini-
mized, or halted, then we will have an opportunity to utilize coastal areas
for food production. If not, the immediate inshore areas, particularly
estuaries, will be doomed much like Lake Erie.

Contaminants can be particularly insidious since they may enter coastal
waters in very low concentrations yet ultimately be accumulated many-fold
by marine organisms. Contaminants such as pesticides and trace metals
destroy food resources.either by outright killing the food "crops" or by
rendering them unfit for human consumption. This must be prevented! While
certain sites may be developed for intensive aquaculture, larger areas will
probably remain in the public domain and provide recreational opportunities,
including sport fishing. In this respect, large tracts of natural habitats
will undoubtedly have to be maintained. Also, as practiced in land mainte-
nance and restoration (reforestation, soil conservation, etc.), management
of coastal areas will be needed to enhance their natural aspects. For
example, preservation of tidal marshes may someday extend to construction
of new tidal habitats that can replace former fish nursery areas that have
been destroyed. Thus, preservation of natural coastal habitats will also
involve reeldiminS area@ no well as renewing resources and mource areas.

MINERAL EXPLORATION AND EXPLOITATION IN THE COASTAL Z
AND ITS EFFECT ON MTIPLE USE OF THE COAS

Mineral exploration and exploitation is not new to the Cogetal Zov-@, having
been carried an a@ adjunct to land operations for a @on_@id@rabl@ length of
time, Many of the operations in the for@@@@ab.l@ future will be merely @x-

tensions of present day operations, with few radical innovations in tech-
nology expected. Exploitation of natural resources has, in some cases,
sufficient history so that the associated problems can be defined and
.precautions taken to minimize their effect.

Mineral industries are used herein in the broad spectrum to include not
only exploration and exploitation of solid materials and hydrocarbons but
to include also exploitation of materials which are extracted directly from
the water mass.

Any activity of the mineral industries have profound effects upon other uses
of the Coastal Zone; some of which are incompatible while others are of a
positive nature. Although such activity is incompatible, priorities, on
behalf of the national interest, should be made, or suggested, in view of
our diminishing natural resources on land.

The following groupings are believed to cover the major part of the fore-
seeable mineral activity in the Coastal Zone in the light of present tech-
nology and economics. Exploration and exploitation are discussed only in a
general framework with no predictions made as to where mineral activity
will occur nor with details as to specifics.

Oil and Gas

Exploration for, and exploitation of, oil and gas resources in the Coastal
Zone, as defined, has been carried on since the 1920's. Problems associated
with this industry should be relatively well known by now and can be reason-
ably defined and anticipated. Few radical innovations are expected in this
industry which will have an effect upon multiple use of the Coastal Zone.
Those technologic changes that may take place will be less expensive refine-
ments in present procedures. Such changes might be use of atomic energy and
use of floating rather than fixed platforms. The latter may permit the in-
dustry to expand its technologic limits to the outer edge of the continental
shelf.

Exploration for oil and gas, with todays' technology, is not deleterious to
most other uses of the Coastal Zone. Temporary dislocations may occur in
the natural environment due to introduction of some pollutants, use of ex-
plosives, and erection of platforms. Temporary discomfiture may result to
the recreation industry but no longer term effects should result.

The greatest conflict for exploration will be in the area of national defense..
Permanent defense installation on the sea floor may be temporarily blinded by
exploration efforts. Denial of the rights of passage may be made by the
Department of Defense where exploration impinges upon permanent installations
or where the Navy has submarine operating and maneuver areas.

Successful exploration, resulting in the discovery of commercial hydrocarbon
deposits, poses a much greater threat to multiple use,of the Coastal Zone.
Pollutants, in large quantiti6s, is an ever-present threat both to the'natural
environment, to recreational uses, and to urban uses. On an open shelf, such
pollutants would eventually be dispersed by natural agents and, over the long
term, harmful effects would be most noticeable on organisms with long resi-
dence time. In an estuarine system, such pollutants could effectively poison

the estuary for long periods.

Exploitation of oil depostis can have harmful side effects, not generally
considered. Withdrawal of large quantities of oil can cause subsidence
of superjacent land and flooding of former land areas. Such flooding
would be serious to urban development, as is now being experienced near
Long Beach, California.

On the positive side, installations placed upon the seabed could, if pol-
lutants were carefully controlled, act as artificial reefs. These would
enhance the recreational aspects of the Coastal Zone. In the broadest
aspect, such reefs might possibly act as focal points for aquaculture. It
is generally known that increases in fishery activity off the Louisiana
coast has been attributed to the reef effect of oil wells. It might be
worthwhile to investigate this possibility in conjunction with private
industry.

Solid Materials

Included in this category ate those minerals occurring as solid particles
on tile floor of the sea, in beach deposits, or in rock layers making up
the floor. These comprise presently exploitable, or near economic, deposits
of sand and gravel, phosphate, titaniferous and ferrous minerals, heavy
metals, and diamonds. Methods of exploitation are similar for all of these
as well as other minerals solids which might be included.

The present processes, and probably those of the near future, are analogous
to land mining where large quantities of a matrix and associated minerals
are removed, the minerals extracted, and the matrix either placed in spoil
dumps or returned to the environment. Present methods often leave large
unsightly deposits behind and are incompatible with multiple use of any
area. Underground mining can return most of the matrix to the mined out
tunnels thus greatly reducing most of the spoil dump problem. Strip mining,
or varieties, thereof, will pose the greatest problems.

Immense quantities of sediment will be placed in suspension, if the deposit
is under water, and the environmental factors changed rather drastically.
The benthic fauna will be destroyed by the dredging and the fauna living in
the water mass either destroyed or driven away due to turbidity. If the
deposit is a beach, mining will destroy the beach for recreation purposes
and could introduce sediment into the water creating environmental changes.
Surface supplies of fresh water could also be contaminated in a similar
manner.

Mining methods often require large volumes of fresh water. Withdrawal of
this from the aquifers may deplete city water supplies or cause salt water
encroachment into aquifers. Withdrawal of large volumes might also
cause small scale subsidence and fracturing of the overlying impermeable
beds permitting flooding of the aquifer with salt water.

Sand and gravel are, deposits often overlooked in resumes of mineral deposits
although the value of these commidites exceeds many of those that are often
considered. Sand and gravel from offshore deposits are now being used for
beach replenishment in Florida. In some coastal areas, lack of such deposits
on land may require the exploitation of such material as raw materials for

construction of buildings and roads. Massive use of these deposits would
undoubtedly upset the biologic and physical systems that presently hold in
the area.

Removal of sand and gravel from offshore reserves would be disastrous to
the benthic biota and would, in no small way, effect the physical regime
of the coast. Removal of large quantities for purposes on land may have
deleterious effects over sections of the coast much larger than the area
immediately adjacent to that which was mined.

Chemical Products from Sea Water

Present extraction processes for elements from sea water do little to
change the overall chemistry of the water mass. Those presently being
extracted on a commercial basis are neither the major elements nor those
considered as nutrients and absolutely necessary for life processes. Some
amount of these elements are undoubtedly necessary in the life processes
of certain marine forms, e.g. magnesium which is incorporated into the
shell structure of clams.

The effects are believed to be local in extent. The deficiency of elements
due to the extractive process is undoubtedly soon made up by natural mixing
of the water masses. Dow Chemical supposedly processes somewhere in the
neighborhood of a billion gallons of water per day in its Freeport, Texas
plant. The effect of this plant does not seem to cause alarm.

Certain metals in the effluent, taken from metal surfaces over which the
water passes, may be harmful in a very local area.

The temperature of the water is raised somewhat during processing causing
the effluent to be at a higher temperature than the intake water. This is
not entirely detrimental.

Desalinization

This section is abstracted from Office of Saline Water Progress Report 197,
Mineral By-products from Saline Waters, and Report 316, Study of the
Dispersal of the Effluent from a Large Desalinization Plant.

Erection of large desalinization plants will create conditions, under
present technology, which are detrimental to the biota and to the recrea-
tionhl aspects of the immediate area. In the foreseeable future, very
little in the way of chemicals will be extracted as by products of de-
salini,zation plants.

The effluent from presently operating plants has a salinity between 500/oo
and 600/oo against normal sea water with 350/oo. Future plants will have an
effluent stream whose salinities range from 1.05 to 1.10 times normal. In
addition to the increased salinity, there will be an increase in tempera-
ture; a depletion in oxygen; decrease in alkalinity and pH; it will be chlo-
rinated; and it will contain toxic amounts of heavy metals, phosphates, and
chemical additives. Toxic amounts of ionic copper, on the order of 20 times
normal, will be the most deleterious substance. There may be an increase in
turbidity.
26

All of these increases cited, however small they seem, will have a marked
effect on the lo6al marine environment. Organisms with long residence
times, the benthic adults and larvae and the zooplankton, will be seriously
affected. Damage may be alleviated, but not halted, by proper design of
the intake-outfall strubtures to promote mixing.

The total effect on all factors will be to reduce the usefulness of the
area for other benefits. Some of the effects will be to kill marine
plants and animals, cause objectionable orders through secondary effects,
permit extension into area of unwanted species, increase productivity of
low level forms which lead to aesthetic nuisances andhealth hazards, pro-
mote eutiophication, produce fog or sea smoke, production of H2S and increased
corrosivity, and concentration of copper by phytoplankton to filter feeders to
such an extent as to be lethal. These effects have bearing on recreational
use, on wildlife, on municipal and industrial use of water, and on transport
and navigation. Nearly all effects are detrimental.

The Office of Saline Water is aware of the problems and is attempting to
solve many of them by design of the desalinization plants and location where
effects can be minimized. Siting of a plant in an estuary, or other water
body with a poor circulatory system, would be catastrophic. Obviously more,
much more, data will be needed betore the true effect on all levels of life
and the geographic extent can be predicted. Biologic data, for background,
should be gathered now on areas that are potential sites for desalinization
plants.

Mineral by-products from saline water does not figure to be of significant
commercial value in the very near future. Present pretreatment processes,
to reduce scale formation, result in a high-analysis fertilizer. This can be
marketed economically only where there is a local demand for fertilizer and
no nearby sources exist.

To date, only the economics of the recovery of potassium and sodium sulfates,
from desalinization effluent, has been investigated. The break-even point
for sodium sulfate and potassium sulfate for a hypothetical plant is $8 per
ton. Present selling price is approximately $28 per ton resulting in a
commercial operation.

Extraction of other minerals may be feasible. The high content of copper, as
well as the increased salinity, may make extraction of copper, magnesium, and
bromine feasible. The desalinization plant at Freeport, Texas feeds effluent
into the Dow Chemical plant for extraction of magnesium from the water.

RECREATION

Introduction

The demand for coastal outdoor recreation is part of a greater national
requirement. However, because about one-third of our populace reside within
50 miles of the seacoast and travel from much greater distances has become
routine, the coastal areas must provide for much of the nation's outdoor
recreation needs. And these needs are diverse, subject to considerable

variation in seasonal and regional demands, and growing as our population
becomes larger, incomes increase and working time shortens.

The Issue

To provide opportunity for diverse, high quality coastal outdoor recreation
to satisfy current and future needs of the American people.

The Problem and Discussion

As the demand for coastal outdoor recreation grows, high quality coastal
areas and coastal fish and wildlife resources diminish.

Estuaries, coastal lagoons, beaches, in fact all types of coastal areas
suitable for recreation are subject to the impact ofman. Pristine areas
are converted to residential, commercial and industrial sites. Private
ownership usually denies public access. Coastal marshes are drained for
insect control and filled to make elevated real estate. Rivers are dammed
and diverted, highways crisscross the landscape, and great metropolitan
units occupy onc'e suitable recreation areas. Estuaries have become the
receptables for human and industial wastes and agricultural runoff contam-
inated with pesticides. Many coastal areas have been diked and levied to
provide storm protection and to@"reclaim" unoccupied shorelines and marshes.

Almost all of our coastal areas are experiencing an increased demand for
many purposes. Yet, it is these areas that must provide for much of the
Nation's recreation needs. Daily, the need grows for more, not less, high
quality recreation and for more fish and wildlife resources. Meeting the
national need for coastal outdoor recreation truly is a great challenge.

So far, development of much of the Coast Zone generally has been of single
purpose for short-range goals; virtually no thought has been given to other
uses or for future needs. Planning has been talked about but not generally
practiced. In many parts of our country, high quality coastal areas suitable
for a variety of recreational pursuits is but a dim memory; and more of our
coastal areas are being converted daily to such,a mem orable status. The
trend, however, is beginning to change. Public awareness is causing us to
assess the present state of affairs and to look ahead. Too long, the public
interest and need for high quality recreation has not been satisfied;
certainly planning for future recreation needs in 10,50, or 100 or more years
virtually has been ignored. However, it is gratifying to note that planning
for future water-based recreation is a significant part of the extensive
Type 1 planning program of the Water Resources Council, and that the Bureau
of Outdoor Recreation also does considerable long-range recreation planning.
The recent Coast Guard's expanded program of recreational boating safety is
looking ahead to make this form of recreation a safer sport.

Planning to provide for suitable high quality coastal recreation must also
consider the needs of other uses of the Coastal Zone, including transportation
and communications, food production, mining, defense, shoreside industry and
urbanization, and conservation of the coastal environment. Coastal recrea-
tion needs must be considered an integral part of national multiple-use plan-
ning and management of the Coastal Zone.

,The Needs

Before a rational plan to provide for coastal outdoor recreation can be
developed, several, steps would be necessary. These are:

1. Identify national and regional needs for various types (see attached
list) of coastal outdoor recreation now and for the future.
2. Determine to what extent and where these needs now are being ful-
filled.
3. Determine where additional recreation areas and facilities of various
types can be developed.
4. Explore how additional recreation can be provided, at national,
regional, and local levels.
5. Develop cost estimates and justifications.

Only after the above steps have been completed will it be possible to devise
a long-range action program, as part of a national multipel-use development
and management plan, to assure that sufficient high quality areas, facilities,
and fish and wildlife resources are provided to meet the recreation needs of
the American people. Types of coastal outdoor recreation of interest to our
people are as follows:

1. Fishing 10. Hiking
2. Boating/sailing 11. Collecting (shells, etc.)
3. Swimming 12. Hunting
4. Skin diving 13. Photography
5. Surfing 14. Bird watching
6. Water skiing 15. Sight seeing
7. Sun bathing 16. Treasure hunting
8. Camping 17. Nature study
9. Picnicking 18. Environmental enjoyment (relaxing)

TRANSPORTATION AND COMMUNICATIONS
USES IN THE COASTAL ZONE

This category of uses in the Coastal Zone includes the vast transportation
industry involved in the movement of goods and people for commercial, and
other reasons, either on, over, or beneath the surface of the water. Other
marine related categories of use in the Coastal Zone area would include
vessels supplying offshore drilling platforms, fishing vessels when travel-
ing to and from the fishing areas, and pipelines and communication cables
which are laid on the bottom or trenched below the bottom of the seabed.

It should be noted that the Department of Transportation Act 1966 (P.L.
89-67U), Section 4(f) require's that the Secretary shall not approve any
program or project which requires the use of any land from a public park,
recreation area, wildlife and water fowl refuge, or historic.site unless
there is no feasible and prudent alternative to the use of such land and that
such program includes all possible planning to minimize harm to these areas.
Hence, in the development of programs and projects involving the transporta-
tion needs, enumerated in the subsequent discussion, the foregoing parameters
:are prescribed.

The Act establishing the Department of Transportation included among its
purposes the task "to assure the coordinated, effective administration of the
transportation programs and to provide general leadership in the identification
and solution of transportation problems."

The Secretary, on 27 January 1968, designated the Coast Guard as the repre-
sentative of the Department for carrying out the purpose of the Department of
Transportation Act with respect to waterways, ports, and harbors. He further
enjoined the Coast Guard to assume the developmental role "limited to a two-
way communications system to establish a departmental presence in the day-to-
day operation of the maritime industry." Accordingly, Coast Guard concern is
now being further projected into the total marine transportation activity to
fullfill the purposes of the Department. Herein, therefore, lies the oppor-
tunity for both the Coast Guard and industry to make full use of this new
Federal mechanism in terms of problems, opportunities, and needs of the users
of the Coastal Zone.

Problems

One current problem recognized by both government and industry is that of
port modernization and development. Particulary this problem has been
brought about by the increased maritime traffic caused by the increasing
demand for goods and services by our growing population, great mobility of
our people traveling both at home and abroad in business and pleasure, the
:outmoded and aging piers and water-front structures, and changing technology
and containerization of cargo, supertankers carrying mammoth quantities of
oil and new exotic chemical carriers transporting such cargoes As liquified
and refrigerated gases.

In recognition of these problems and the need for port modernization, the
Committee on Multiple Use of the Coastal Zone formed a Task Group to develop
a conceptual plan for regional port studies. This Task Group, comprised of
representatives from the Department of Army (Corps of Engineers), Department
of Transportation (Coast Guard), and the Department of Commerce (Maritime
Administration) has submitted its report to the Committee. Therefore, the
IPON Task Group merely makes reference to this work and acknowledges and
supports the need for such a coordinated approach to port development. The
specific needs of transportation and communications include:

1. Accurate bottom contours of the coastal waters must be determined
and charts giving the depth and type of bottom are required. All obstruc-
tions or restricted areas of operation must be indicated so that the surface
and subsurface units may be safely navigated.
2. Channels and turning basins must be dredged into various ports to
permit movement of various size vessels.
3. Surface aids to navigation including buoys and fixed structures must
be provided.
4. Sea lanes to permit minimum risk of collision must be provided.
5. Fairways through obstructions such as offshore drilling platforms.
must be provided. These must be such as to minimize the distance through
the obstruction area, wide enough to permit unrestricted speed limits and
properly marked on the charts.
6. Anchorage areas must be provided.

7. Shore facilities for the loading and dischargeing of cargo and passen-
gers must be provided. Facilities are also needed to provide fuel, water and
food for the transportation units. Facilities needed include storage areas
and transfer areas for truck, aircraft, and rail.
8. There must be means for disposal of waste and trash from those units
and for the disposal of waste created when tanks are cleaned.
9. Facilities must be provided for overhaul (maintenance and repair) of
the transportation units.
it.). Means for providing assistance to those units in time of emergency is
necessary. This is required not only for the protection of life and property
but to prevent contamination of the area due to pollution.
11. The pipelines and corinunication cables must be laid in. such a manner
to protect them froin damage, and to preclude their being a hazard to naviga-
tion.
1@. Units operating under the surface must be provided with sufficient
Information on subsurface conditions to insure safe navigation. Wrecks and
abandoned vessels may have to be removed.
13. Aids to navigation for the. subsurface units must be provided.
14. Special resuce equipment for submersible vessels must be developed
and provided.
15. Offshore tervinals for deep draft ships must be developed and con-
structed.
16. Small vessels need Harbors for Refuge.
17. highways near and over the water, including necessary bridge clear-
ances, must be sufficient to provide ready access to the transportation and
related facilities.
18. Airports in the Coastal Zone will continue to be required.
19. Railroads near and over the water area, including necessary bridge
clearances will continue to be required.
20. Seaplane landing areas must be provided although the need for such
areas are diminishing.
21. Port development and dispersion, including facilities for handling of
dangerous carpo, Tmtst be provided.
22. Facilities of rescue and emergency equipment, including boats and
aircraft, will be required.
23. A growing need for an increased number of traffic control stations,
or barbor approach radar systems is probable.

TransporLation interests, especially air and water modes, pose requirements
for marine and atmospheric science, technology, and services will have to be
such.to keep pace with thelincreasing, complexity and sophistication of trans-
portation systems operating over, on, and under the oceans.

USES OF THE SHORELINE

(.;,--neral

In the earlier periods of national growth and development, the nature of the
shoreline largely dictated its use. Thus the natural deep harbors of the
northeast and west coasts gave rise to shipping as a major enterprise.
Settlement was most rapid in toose, parts of the country that had good access
to Oic sea as a trade route. The nature of our coast lines established a
pattern of growth and development that is still felt today - the settlers of
I
the rocky sea coasts looked to the sea, the settlers in parts of the country

with sandy coast line and poor access to the sea turned inland.

Increased activity along the coast line has brought increased confrontation
between man and the sea and with greater involvement have come the modifica-
tions that man has felt must be made to make the use of the sea more con-
venient. Shipping, industrial development and settlement have caused man
to make major modifications in the natural setting of the shoreline. These
have brought about drastic changes in the environmental balance of'the
coastal margin.

The need for outlets to the sea along the coastal sandy plains has meant
the cutting of artificial passes through estuaries, bays, lagoons, and
barrier islands. Twenty-five artificial or man-made harbors have been
created in Texas alone. Industrial development has been intense along many
segments of the coastal margin, particularly in the northeast, middle Gulf
coast, and parts of California. Much of the industrial growth has been
around bays and estuaries where harbors can be easily built.

Settlement along the coast line has increased tremendously over the past
30 years - both for year-round living and as summer shore communities. The
increase has been greatest along the northeast coast adjacent to megalopolis,
along the cast coas,t and west-central coast of Florida, and along much of
the California coast. Settlement along these coasts is expected to continue
to increase at an even greater rate. If these rates of growth continue, it
is estimated that by the year 2000 there would be two persons for every foot
of U. S. coast line.

Settlement has meant extensive dredging for housing development, marinas,
draining of coastal swamps, leveling of dunes, cutting of numerous artificial
passes for boats and creation of fill-land. The creation of new land periph-
eral to San Francisco by dredging of mud from the bay floor for new housing
developments is the most notable example of such activity in the United
States.

It is estimated that the demand for outdoor recreation has increased in the
post-war period at five times the rate of increase of population and incomee
The major pressure for outdoor recreation, especially in the heavily populated
areas of the northwest, and the midwest takes place along the coast line - for
camping, boating, fishing, and just plain romping on the beach. Anyone who
has attempted to enjoy the many beaches along our shorelines can appreciate
the mass migration to the beaches on weekends.

On the continental shelf, the extraction of mineral resources from substrata
already is underway on a large scale - more than 8,000 oil and gas wells have
been drilled on the shelf on the north Gulf coast. Exploration for mineral
resources of all types will increase and increased production can be pre-
dicted. Though production hasbeen greatest in the Gulf, Georges Banks in the
Atlantic and the shelves of the Bering and Arctic Ocean show greater promise.

PPORTUNITIES,
SUMKARY OF FOI'L,',COING EXISTING AND POTENTIAL PROBLEMS, 0
AND NEEDS IN THE MULTIPLE USES OF THE COASTAL ZONE

PROBLEMS

Premise

Attainment of the best use of the Coastal Zone may be one of the major
resource problems of our age. The problem arises from multiple use of the
Coastal Zone due to the quantity and quality of uses, often conflicting,
to which man is subjecting this area in relation to the short-term and
long-term natural phenomena and conditions of this Zone. It is a problem
not only of human ecology--biologic, sociologic, economic, and politic--
but also of the ecology of the Coastal Zone. The time for a more intelli-
gent, coordinated utilization of our coastal resources is already upon us.

General Background

Fisheries statistics indicate that in certain locations there has been a
decrease in the total harvest as man has increasingly polluted that part of
the Coastal Zone. Even though the.correlation of these situations may not
be validated for the entire Coastal Zone, there is sufficient evidence for
increasing concern of the derogating effects of the increase in both occur-
rence and magnitude of dumps at sea (solid and sewage wastes of municipal
origin and chemical wastes from industry), oil spillage, and channel dredg-
ing. Furthermore, we should not underrate the value of a healthy human
environment or the opportunities for healthy outdoor recreational pursuits.
Although present food supplies are sufficient to maintain the health of our
present population, we should further explore the Coastal Zone for sources
of protein and fresh water as well.

�yy,gestions

The present magnitude and frequency of occurrence of the various uses of the
Coastal Zone should be tabulated and projections be made, at least to the
year 2000, of the impact of these upon man and upon the coastal environment.
An attempt must be made to equate these use parameters in terms suitable for
systems analysis. It might be well to test the results of this attempt in a
relatively small area, as the Delaware River estuary or the Narragansett Bay
area, where some information already is available.

OPPORTUNITIES

Premise

Proper and full use realization of the bounties of the Coastal Zone may
depend primarily upon the manner and pattern in which we develop our uses
of the Coastal Zone. The opportunitv, therefore, is to achieve sufficient
sophistication so that maximum utilization can be achieved. To do this
research coordination, regional use planning, and regional management must
be achieved at a level never undertaken previously. Indeed, it is already
obvious that the scope should be extended to the continental shelf. For
Instance. international agreement must be obtained on coastal uses and
management, or else uncontrolled exploitation could damage the resource or

area involved.

General Backqround

There are a number of private and public educational and research insti-
tutions involved in the study of the coastal area. Other organizations of
national or regional scope, each primarily active in projecting, and/or pro-
tecting its special interest, are equally interested in the Coastal Zone.
Each of these institutions or organizations have connections with or count-
erparts in State and Federal agencies. The challenge is to develop greater
support of each entity along with increased cooperation and collaboration,
all within the democratic process. One newcomer to participating agencies
is the Sea Grant College program.

Suggestions

Prepare a timetable for the development of research and education, of plan-
ning, and of management of mutiple uses of the Coastal Zone. Recommend
increased federal support of the Sea Grant College program and other educa-
tional-research programs designed to promote an understanding of the complex
problems in multiple use and/or the planning, development, and management of
coastal. resources. Suggest a format for a national forum for the resolution
of problems. Recommend a program of information storage and retrieval.

NEEDS

Premise

In order to better formulate a National approach to multiple use of coastal
areas at least three historically interrelated kinds of information should.
be better enunciated and understood: (1) What natural events have and will
continue to occur? That is, what is the fundamental nature of the Coastal
Zone sans the effects of man? (2) What is the impact of man upon the
Coastal. Zone? (3) What impact has the coastal area had upon man? Although
there is not a single reference source providing an adequate historical
background to these three questions, this kind of information can be obtained.
The need is to put the questions into the framework of recognized problems of
today and then to the project them into the future. Wherein the historical back-
ground would aid in the evaluation of our current status and in the projec-
tion, it should be employed.

Background

Before the arrival of the white man in North America, Indians utilized the
coastal areas as a source of food - seafood, game, and crop growing - and
the water as a means of travel. Their mode of living permitted them to
leave coastal areas seasonally or whenever they sensed danger in weather
changes. The pattern of colonization by our forefathers and their mode of
living, particularly their established communities and dependence upon water
power for industry and water routes for transportation and communication, is
still reflected in political boundaries. From this beginning and developing
cultural aspects, the coastal areas have bad a lasting effect upon political,
social, and economic life in states bordering large bodies of water.

a tiqn

Review the three questions poised above and reduce to tabular or other
summary form the following kinds of information:

1. Human activities in and uses of the Coastal Zone versus the
economic, social, and/or political value (justification) of these uses;
2. Recommended use priority;
3. Impact of the uses upon the environment;
4. Evaluation of present levels of understanding or attainment for
each use by research, management, and/or legal aspects;
5. Future needs, scope, and subjects of research, management, legal,
economic, and other use aspects;
6. Geographical scope of problems;
7. Critical (geographical) areas and problems, from ecological as
well as political, social and economic viewpoints.

INTER-RELATIONSHIPS OF COASTAL ZONE USES

The Task Group next turned its attention to the many uses of an activities
within the Coastal Zone, and considered a method to define and isolate them
and to determine their relative compatibility (or incompatibility).

It is noted that the matrix approach has been used in a number of studies
involving multiple factors of uses such as the "Economic Study of the
Narragansett I;ay" and the "Shoreline Utilization in the Greater Seattle
Area - A Case Study." Also, Niels Rorholm concluded in "Economic Impact
of Narragansett Bay" that; (1) a multiple-use resource is probably not
producing services efficiently unless use conflicts occur, (2) most con-
flicts will center around shoreline use, and (3) the resolution of shoreline
conflicts involving physical space conflicts over a long period of time,
should receive more public attention. He used a matrix in determining con-
flicts of major uses of the Bay and its shoreline by showing (1) long-term
space conflicts, (2) short-term space conflicts, and (3) nuisances. It
should be pointed out, however, that the elusive concept of standards criteria
and definitions of all the factors involved in such a study has not yet been
made. On the other hand, an economic study of the Coastal Zone appears
feasible because the common denominator of dollar value is more easily grasped.
However, even here some difficulty is noted in these studies when such factors
as quantifying human values and aesthetics have not been decided upon.
klowever, despite the uncertainties presently known in such an attempt to
quantify the uses and their compatibility, the Task Group suggests a method-
ology of making this determination. If the relative compatibility and incom-
patibility of the various uses of the Coastal. Zone can be determined, it is
suggested that more effective planning and programming can be brough to bear
to:

1. Improve the compatibility of various uses by providing new opportuni-
ties for multiple use.
2.. Reduce conflicts which occur between uses, user groups and activities
in the Coastal Zone.

t, 3. Recognize incompatible uses for future study or to indicate leads
in which to channel resources and assets away from the incompatible areas
and into the more promising ones.

MAJOR USE CATEGORIES

The Task Group suggests thirteen use categories in pursuing the aforemen-
tioned matrix study of Coastal Zone uses. More attention must be given to
formulating a systematic description of Coastal Zone uses, since the way
uses are identified has a major bearing on the way problems are perceived,
and consequently, on the manner in which public policy formulation takes
place.

The Task Group recongnized that other classification systems are possible,
and indeed have appeared in published reports. However, it is suggested
that the uses of the Zone, or activities carried on there, be grouped under
the thirteen major headings as follows:

Urbanization Agriculture
Industry Power Production
Transportation* Water Supply
Mining Recreation
Waste Disposal Commercial Fishing
Pest Control (predominantly insects) Research and Education
Defense

*Includes land, air (airports) and water

It is further suggested that a matrix-type analysis of multiple use, using
the above named categories, cotild be employed to determine their relative
compatibility and non-compatibility. Herein, therefore, presents an oppor-
tunity for further sophisticated study and research ia an effort to obtain
the aforementioned objectives.

ECONOMIC VARIABLES

Discussion of multiple uses would be incomplete without attention being
given to the economic considerations of the Coastal Zone. Why should we
include sections on economic and non-economic variables? As idealistic as
we are are, implementation of plans and programs ultimately are translated
into the budget documents of interested agencies. Dollar amounts, priori-
ties,and financing must be addressed and provided for. Who pays and how,
are essential questions that must be answered. The proposals that generate
.from this Report, if implemented, will require financing--for there is a
dollar cost, direct or indirect, that is inherent. The material presented
herein are itemized considerations that are pertinent. Inferentially, a
coordinating mechanism for planning and management would include such items
in its programming. The following material on economic and non-economic
variables is attributed to "Economic Impact of Marine-Oriented Activities--
A Study of the Southern New England Region," by Niels Rorholm, H. C. Lampe,

Nelson Marshall, and J. F. Farrcll. Liberal use of quotations from this
work is Included here. The @implicntions and applicability to the Coastal
Zone is apparent.

"One of the severe problems of many rural communities is their
lack of an adequate resource base--or sometimes their failure
to use properly the base they have...."

"Human and capital resources are mobile and are becoming more so.@
They have a tendency to move toward places where they get the
highest reward in monetary or in other terms. Such places are
either rich in extractable resources, have a location advantage
in the factor or product market, or have a favorable man-made or
natural environment. To the extent that this environment can
attract other resources, it is itself a resource which can be
used by a community to further whatever objective or objectives
can be expressed through community action. In many of the coastal
communities in the United States, the environment created by the
meeting of the land with the sea and access to the ocean itself
constitute their major, and sometimes only, natural resource base...."

"It is important that information be made available that will assist
in the planning and use of these resources, for they constitute an
important financial base for the local communities from which to
meet their expenditures for schools, welfare and general government
operation, as well as an important base for economic development of
the business and industry ......

"Every coastal area is a complex of natural features which tends to
influence the economic development of that region...."

Economic impact--the effect of a general change in a region's economy
or the effect on the whole of a change in parL of its economy--may be
measured in a number of ways. One rarely finds an impact study which
is without promotional bias. There are so many ways of measuring
impact that it is not difficult to select one that suits a particular
purpose or to omit measures that would cast those purposes in.an unfa-
vorable light...."

"Eight different measures of economic impact have been applied to the
marine Industries of the Southern New England Marine Region,.... (i.e.
total sales; local value added by various sectors such as industry;
labor; capital; net exports; personal income; total business generated
by export demand; personal income generated by export demand.)...."

"From an economic analysis of a given sector, it may be concluded that
a rough blueprint for development would include:

1. Work to attract industrial. and research firms to suitable locations.
Suitability would generally include docking facilities; good transpor-
tation and communication facilities; and good living conditions; which
in turn means safe and clean communities, good schools and reasonable

proximity to cultural and recreational facilities. Last but not least,
toaays suitable industrial location must be close to universities and
other research facilities.'

2. Encourage tile development of certain industries to the maximum
extent permitted by the resource and tile demand for products. This will
probably, in time, include the managed production of high-priced items,
such as shellfish and perhaps selected finned fish.

3. Protect the environment that forms the basis for all summer
tourist activity, so that this economic activity may flourish, but also
protect the community and its tax payers from tile increases in social
service costs which follow in the wake of haphazard, laissez faire
economic developments...."

NON-ECONOMIC VARIABLES

"Tile quality of community life does not depend upon economic activity
alone. In fact, the human environment can be as effectively destroyed
by economic activity as can the environment for aquatic plants and
animals...."

"We do not, unfortunately, have precise measures of such elusive concepts
as "quality." We have, however, some measures of community costs. These
costs reflect the demands made on the community either to maintain or
improve an environment or perhaps the unwillingness of communities to
permit the environment to degrade...."

"The differences in community costs were evaluated with the aid of
straightforward analysis of variance. Information on expenditures for:
(1) assessed valuation, (2) debt outstanding, (3) receipts, (4) total
expenditures, (5) public welfare costs, (6) educational costs, (7) police
costs, and (8) fire proctection costs .... 11

"While community costs are important in reflecting services required, tile
effect of devel-opment on the environment is also critical...."

"Where marine economic activity is not stable or persistent, the oppor-
tunity for encroachment of general. industry exists. Where, because of
Ibcational and/or pricing advantages this takes place, the marine history
of a community can result in the deterioration or diminution of marine
resources ....

"Tiie character of economic development obviously,influences a community
for extended periods. The costs of retrieving marine resources once lost
may be high and the quality of the environment essentially reduced...."

"Where communities ignore the extended consequences of development, the
very character of the environment may be altered. .... The point at issue
is not one of maintaining or resurrecting the 'Istatus quo" but one of
controlling the environmental change. This can be done only by careful
selection of tbe quality and volume of enterprise permitted or encour-
area. .

"Each community has the opportunity to control, to a considerable extent,
the character of development. Zoning laws and building.codes are power-,
ful tools when they are applied and enforced. They are powerful tools
whether selectively employed or ignored. Given the limited professional
competence and foresight of much community management, the uses of zoning
is not always effective. The emphasis on revenue production by real pro-
perty taxes often leads towns to favor development that is detrimental to
all but a small part of the community. In rare, but heartening instances,
communities have been able to withstand the onslought of major enterprises,
private and public, that have sought to modify the environment. The lure
of income is often so great that community costs and reduction in com-
munity quality is ignored...."

"The ability of communities to shift costs to others also permits anom-
alies in development. The disposal of sewage and smoke are obvious areas
of shifting burdens. The traffic and school problems of neighboring com-
munities are often also changed. The aesthetic values of one community
can and are being changed by activities in another - not always for the
worse...."

"The direct and indirect influences on non-economic variables of economic
change are cruicial in considering community development. Any input-
output analysis must recognize the constraints placed on development of
Like non-economic factors. Unless attention is given these constraints,
the prospects for rational development are small indeed...."

In "Shoreline Utilization in the Greater Seattle Area--A Case Study," con-
ducLed by Management and Economics Research Incorporated for the National
Council on Marine Resources and Engineering Development, effective utiliza-
tion of the shoreline implies that long run social and economic benefits
derived from its use are maximized. This maximization must be accomplished
subject to two important constraints; (1) the length and characteristics of
the available shoreline, and (2) the compatibility of various uses of the
shoreline. G"hanges in either of these constraints is possible through dredg-
ing and land-fllling, and may or may not increase the long-run benefits derived
from the shoreline. Changes that result in increased compatibility of various
uses, however, nearly always result in increased potential benefits from the
shoreline. The results of the compatability evaluation conducted of 9 use
categories, as part of the Study, support the premise that multiple uses can
result in increased benefits from shoreline areas. On the other hand, they
also demonstrate that uncontrolled development can result in haphazard and
ineffective utilization of this valuable resource.

Nultiple uses of shoreline areas are essential if social and economic benefits
from the resource are to be increased. The use of technology to improve the
compatibility of various users can provide new opportunities for multiple use
and reduce conflicts which have heretofore existed between user groups. Tech-
nology offers an opportunity to increase the compatibility with other uses of
the shoreline, waste treatment, underwater facilities, management methods
through computers, instrumentation, cargo handling methods, ship design char-
acteristics, mineral. exploration and production, nuclear and power plants.
Also local, state and federal rules, regulations, laws and programs play a
significant role In avoiding or resolution of waterfront area conflicts.

The Study concluded that the impact of technology on shoreline utilization
was significant and included:

1. Benefits of Lechnology accrue from increases in the quantity of
useable shoreline, Improved efficiency of utilization, increased compati-
bility of uses, and improved management methods.
2. Incorporation into development plans of changing location demands
for terminal facilities, mineral exploration and production, and nuclear
power plants.
3. Federal iTICOIltiVeS to encourage regional planning and coordination
of port facilities would he appropriate; and that regulatory activities of
the Interstate Commerce Commission and the Federal Maritime Commission
should be coordinated to ensure compatibility of rate structure for ocean
and land transport.
4. The Technology for improving fishery yields and waste treatment
methods will not riove ahead without strong federal involvement.

'rile Task Group feels that somehow there most be achieved a rational balance
in the Coastal. Zone of the economic and non-economic variables.

IMPLICATIONS OF MAN'S USE' OF 'ERE SHORELINE

The history of our nations's growth has been based in large measure on a
freedom of action for the individual heretofore unknown in the annals of
civilization. Individuals and groups of individuals acting in consort have
had freedom to attack the frontier, freedom to plan and develop, and most of
all the freedom to use the natural resources of our land almost at will.

Development along our Coastal Zone line, as in evidence in other parts of
the nation, iias proceeded with few restraints - man has located on and used
the coastline in direct proportion to his ability to buy and develop prop-
erty. For example, on land much of man's activity witkiin his own domain
affects only those other persons either on adjacent property or nearby (we
will riot get Into the matter of air pollution here). Wherever man uses water
resources, inland or on the coast, lie affects distant neighbors more than he
does when he uses iand along. Far-reaching effects from local developments
may also be felt downstream on inland rivers. Along the coastline an ac-
tivity or situation at a certain locality can affect many persons elsewhere
along the coastline, often far removed. Longshore currents are prominent
along all segments of our coastline. The longshore currents, the coastal
winds and the sediments entering the coastal maring counteract to maintain
an ertergy balance. The biota along t@ie coastline occupy natural habitats
that are controlled by depth of water and physical, chemical and energy
characteristics of the water in the sea, the bays, and the estuaries. The
waters of the coastal margin yield most of the seafood taken from the ocean
commercial seafood is most abundant in coastal waters. Fortunately, the
Coastal Zone is less unique in transmissibility of effects than@most inland
rivers and lakes. The effects of pollution., adversions, consumptions, and
withdrawals have a much greater range on rivers and lakes than they do along
the ocean.

Man's activity in recent years has upset the natural balance along some seg-
ments of our coastline. Is it wrong that Tnan has distrubed this balance?
Our forefathers upset tile natural balance when they peopled the West. As
our nation grows, it is inevitable and proper that adjustments to the
natural regime will occur. The point to be stressed here is not to preserve
tile "status quo" but to understand and influence the inevitable changes in
a rational way. The cutting of channels, and dredging and placing of
jetties often has been done without knowledge of current patterns and sedi-
ment distribution and resulted in erosion of barrier islands off the coast
to the detriment of navigation and property.

T.ndustrial wastes, Jncluding thermal waters, have been dumped into some of
our estuaries to the extent that shellfish have been either exterminated or
rendered unfit for use by contamination. For example, oysters along the
New Jersey coast were recently found to contain toxic quantities of zinc
after outbreaks of illness from eatinc, these shellfish. Perhaps the most
undisciplined use of the coastline has been in the matter of settlement.
The sandy plains offers little resistance to storm action, and all of our
sandy plains coastlines lie in the hurricane belt. Not only is settlement
taking place In low areas susceptible to flooding but in many places dunes,
the only natural barriers to flood tides, are being flattened in tile settle-
ment process.

Increased use of the coastline can be as surely predicted as population
increar4es. Increased engineering along the coastline and exploration for
minerals on the shelves will bring increased need for more accurate maps of
large scale - man's modifications and settlement along the. coastal strip
necessitates revision of coastal topographic maps every few years. Land-use
classification of the coastline must be considered - should we restrict seg-
ments of low-lying coastline, that are susceptible to bigh storm damage, to
recreational vise? Shall allow pollution of our inshore waters to ruin
both commercial and sport fishing? How are we to handle great masses of sea
floor sediments during mining on the continental shelf? How are we to deal
with open cut mining along, the coastline where disturbance of the fresh
water table may cause salt water encroachment and ruin potable water? Shall
we continue to build homes on fill land in areas of high earthquake hazard -
who will be responsible here - developers, or home owners - or the U. S.
taxpayer? These and many more questions must be answered in the next few
yvars if we are to tise our coastline wisely. Most of us would prefer to see
not only our coastline but also the entire Coastal Zone developed in the
manner that is most beneficial to all. Concerning the role of the law in
planning for its use, two general needs seem pertinent: we will need addi-
restrictive covenAnts bases on sound scientific principles to guarantee the
efficient use of the coastline and for this we need both the awareness and
the will of tile legal profession; however, tile short and simple point of
the matter of the law and. the Coastal Zone is that the legal profession
should not wait for the human crisis on tile coastline, it should assume a
leadership role In anticipating it.

LEGAL CONSIDERATIONS

A review of Lhe legal basis for Coastal Zone planning, development, and
management would include both land and water-use regulations, Federal and

state. Such broad categories would include economic development, conser-
vation, recreation, and preservation. Specific questions for review would
include such items as:

Land Acquisition: For public parks, recreation, conservation, water-
shed protection, d prevention, and port and urban development.

Land Use Regulations: Federal and state tax powers; equability and
reasonableness protection of the private property owner; effect on land
values; zoning laws, permits, and regulations.

-Bu-1khead Lines: Dredging or filling; navigation; conservation and
protection.

Wetlands Protection Laws: Protection and conservation of ecological
.values; wharves, piers, port and harbor waterfront facilities; permits;
promotion of navigation and commerce; construction.

Dredging and Filling: Navigation, ecology and hydrology effects in
protection of Coastal Zone segments such as water pollution, fish and game,
waste disposal, tidelands and submerged lands. The question of applying
Lhe Rivers and Harbors Act of 1899 for navigational permits to deny appli-
cation for purposes other titan navigation is presently in the courts to
decide.

Present statutes, if adequately and vigorously enforced, will do much to
alleviate some of the problems discussed in the foregoing parts of this
report. Some of the laws would include the following listing:

Federal Water Pollution Control Act
(33 USC 466 et seq) - pollution abatement

Outer Continental Shelf Lands Act
(43 USC 1331-1343) - pollution abatement, navigational
safety, conservation and development

Rivers and Harbors Act of 1899
(33 USC 407) - facility construction in navigable waters,
modifications to navigable waters

Refuse Act of 1699
(33 USC 407) - pollution abatement

Oil Pollution Act of 1924 - oil pollution

Oil Pollution Act of 1961 - oil pollution

Fish and Wildlife Coordination Act
(lb USC 661) - protectLon of wildlife resources

E'xecutive Order 1.1288 of July 2, 1966
control of waste pollution from Federal installations

Executive Order 9634 of September 28, 1945
fishery conservation

P.L. 88-308 - prohibits foreign fishing in U. S. water

P.L. 89-658 - prohibits foreign fishing in 9 mile contiguous
zone

International Fishery Agreements and Conventions
fishery conservation

Merchant Vessel Navigation and Inspection Laws
(46 USC several Parts) - anti-pollution effects

Port Security Regulations (33 CFR Parts 1, 6, 124-126)

ZONING CONSIDERATIONS

In a paper "Utilization of the Estuarine Zone in Georgia" prepared by biol-
ogists from the Division of Biological Sciences, University of Georgia and
submitted to the Federal Water Pollution Control Administration, it was
recommended that five types of use Zones with separate buffers be established
in the estuarine region of Georgia. The five zones would be:

1. heavy industrial and Port Zone.
2. Recreation and Commercial Fisheries Zone.
3. Research Zone.
4. Light Industrial, Recreational, Commercial Fisheries and Port
Zone, and
5. Wilderness Preserve, Seashore Park and Commercial Fisheries Zone.

1,1'ash Zone would be protected from the adjacent zone by a buffer zone. In
this concept, the incompatibility of uses is recognized and these uses would
be isolated from one another. Zones with limited use would be small and
areas with many uses would be large, and that present use should provide the
-basis around which further development should be planned. Thus, a concept
has been proposed for the development of the estuarine region of Georgia
and the pollution loads which should be tolerated in the various zones.

I'his is an interesting concept on zoning and has considerable merit for
consideration in principle. Zoning within local, state, and Federal juris-
diction take place on a limited scale now.

NATIONAL POLICY ON COASTAL ZONE LAND DEVELOPMENT

I. Short-term Strate y - Proposal for Establishina_a National Coastal Zone
I-ant] Development Policy

Increasingly, there is growing scarcity and, at the same time, larger than
ever competitive demands for the land area along the coastal 7one. These

stem from the historical development of population centers in the Coastal
Zone areas, Lndividual preferences for locating near water areas, and from
economic reasons of trade and commerce. Social and economic development in
tile Coastal Zone ].and areaq has occured in an unplanned fashion largely as
a consequence of (n) the great number of political jurisdictions having
control over Lhe land-based activities in the Coastal Zone area, (b) tile
American concept of Individual land ownership, and (c) the abhorrence of
organized plakining in this country.

Anterican attitudes toward aational planning and policy formulation are cur-
rently undergoing .1 transformation. For example, serious consideration is
now being given to formulation of national policies affecting population
distribution, balanced economic development in the United States, balanced
development of rural and urban areas, national transportation systems, educa-
tion opportunities, etc. This makes it possibl.e,to contemplate formulating
and evolving a coherent national, policy relating to development of the
Coastal. Zones.

,Recent advances in technology have only tended to accelerate the presures of
formulating such a national Coastal Zone development policy. Larger ships,
containerization, new dredging and land-fill techniques have raised signif-
cant questions, for the development of new ports, regulation of expansion or
contraction of the shoreline, and individual vs. governmental exercise of
property rights in abutting land areas. The cancer-like growth of the cities,
and the resulting unsightly urban sprawl and deterioration of the human con-
dition, also Is a manifestation of this technological age, and the problem is
most actite in the Coastal Zone area.

I'he development of trade and commerce centers in the Coastal Zone has provided-
dynamic growth points that have stimulated the creation of major financial and
business centers, whose interests have since transcended maritime interests.
Tile main centers of political power in this country are located in coastal
areas, as are the principla diplomatic points serving this country's inter-
national interests. The history of these developments is well known.

Not as well defined is the competition and the conflicts that have been intro-
duced into the national way of life as a consequence of the primary develop-
ment (economic, social and cultural) in the Coastal Zone area. The ghetto
problem and the urban problem are problems most highly visible in, even if
they are not unique to the Coastal Zone city. The magnitude of these problems
can be attributed to the very successes achieved in the Coastal Zone at the
expense, some might assert, of the inland area. Seemingly the favored growth
of the Coastal. Zone has come to the point where it is unsustainable in the
face of competitive demands from inland land areas without the intervention
of rational planning efforts. And the tendency in national policy-making may
be to disfavor Coastal Zone areas at a time when the problems are most severe.

To a large extont, the problems of the Coastal Zone, and especially the
coastal cities, parallel those of inland areas. Thus problems of urban decay,
social tinrest, environmental pollution, welfare for the poor and disadvan-
taged are "problems' both in coastal and inland cities, although tile character,
ingredients, scale, remedial programs, etc. may vary significantly from area
to area. Problems of this character are ordinarily attacked through national

programs that do not directly distinguish coastal area needs, or the develop-
ment policies that have been established for such areas. Indirectly, the
magnitude of the benefits of these national programs may be greater for a
coastal area because of the significantly greater concentration of pupulation,
industry - and problems.- in the Coastal Zones.

The economic, social-, cultural. and political. development of the Coastal Zone
may be influenced only to a minor extent by marine activities, yet the reverse
is not true. Factors exogenOUS to the marine system are likely to be deter-
minative of the pattern of growth and development of marine affairs. Thus,
the overall fiscal situation of our port cities will determine the portions of
budgets that are allocated to port development, marine industrial development,
marine educational services, social services, such as pension systems for
marine public employees, or labor mediation, political administration activi-
ties, such as the creation and support of interstate or intergovernmental
compacts, commissions, and boards that are essential to the orderly development
of marine affairs. Marine conservation and recreational activities are areas
where purely economic and budget priorities are more difficult to justify.
The result has been that marine conservation and recreation activities have
not received the level of funding that is in the national interest.

Studies about the Coastal. Zone heretofore have largely concerned land bases
activities or marine (water based) activities per se. This is true
because of tiistorical considerations that have influenced7t-he development of
institutional systems - governmental and private - that have viewed land and
marine activities from a separate viewpoint. Even within the broad land and
marine categories there tend to be specialized areas of consideration that are
riot effectively related one to the other. For example, urban and rural studies
are undertaken for different urban a-ad rural areas in the Coastal Zone, but
are not viewed together for purposes of determining their policy implications
for national policies relating to transportation, economic development, urban
development, crime, poverty, and so forth. Similarly there is extensive
division of responsibiltty for marine activities with no central source that
looks across lines of responsibility.

Many Land utilization studies have been made that center around the develop-
ment of particular port areas. Mille some of Otese like the study on the
Chesapeake 1@av Area,* and the study of Shoreline Utilization in the Greater
Seattle Area: A Case Study,** are cowpr@hunsive in scope for a single port
area, and survey conflicting public and private demands for land, the results
are not readily generalizable to other port or tion-port coastal land areas.
@`or example, conservation and recreational activities are likely to differ
significaiiLly between port and non-port areas. 11any industrial Piarine service
operations and research facilities are purposely located outside congested
port areas, and much of the investment capital and labor supply of the port
area may come from outside. The impacts and interrelatioiiships of such ex-
ogenous factors outside the port system are not adequately treate.d in studies
centerIng arotind port area development per se.

"Chesapeak-e Bay Study," a multi-Agency, Federal-State study in progress
under the "management of the U. S. Corps of Engineers".

Unpublished wanuscript, Manageinent-Lconomics Research, Incorporated,
.January 1.968, NERI Lroject No. 1083.

In an occasional paper, "Selected Case Studies on Shoreline Development in
the United States,"* commissioned by the Nntional Planning Association in
an ongoing study, Clifford Elkins makes the following recommendations:

Hune of the most important cons ide rat ions on future use and
development of ;@iorelines is the problem of multiple and con-
flicting uses. The pull for shoreline qctivities is coming
from several directions including recreation, industrial,
harbors, and urban development; therefore, it is absolutely
necessary that coordination and planning be maintained to the
hiChest degree possible in all future uses of the sborelinc.
It is iriperaLive that the means be developed to preserve for
future generations the more vital and irreplaceable uses of
beaches, harbors, and estuaries. In this regard, all. possi-
ble influence should be used on. state and local governments
by the Federal Government to develop State Planning Commis-
sions to work in conjunction with these local planning com-
missions to achieve a long-range development plan for shore-
line activities."

This Task Force endorses these re commendat ions, and believes that there is
a need for a study program that will provide relevant information upon
witich a national Coastal Zone land development policy, comprehensive in
its scope, mi@.,,ht be developed.

one must ask- Lhe basic question. Why should there be a separate policy of
any kind for the Coastal Zone? We believe tliere are two basic reasons
that apply here as well as to any otlier national policy that may require
formation.

First, the reason why new policy formulation at the national level becomes
important is because the problems, opportunities or needs in some area (1)
are on a scale that goes beyond local resources, of (2) demand action which
will have the effect of altering the status quo, both in the area under
study and in other areas as well. The first proposition is self-evident,
but the second is less so. However, the second may be the more crucial;
it comes about because of the issue of how scarce resources are to be
allocated, arid how the structure of competitive situations is to be changed.
Thus any area-limited and activity-limited action program is likely to be
successful only when there is perception that it will contribute to the
well-being of some larger system.

This point mitst be made - and kept firmly in mind - because most problems,
opporLunities or needs in the Coastal Zone land area are no different in
kind from those manifested in other land areas. It makes sense to isolate
arid examine Lhese In a Coastal Zone context only because it is evident that
Litose problems, opportunities and needs to the Coastal Zone, strongly
interact with those which are common to all areas-of the United States. To
optimize this allocation of resources to the unique areas, it is desirable

`iiie Relation of Government Programs to Private Investment Enterprise in
11arine Resources and Engineering Development," supported by 'National Council
on Marine Resources and Lnoineering Development and National Science
FoundaLion.

to eVM1uOtC these an integral elements in the mixture that comprises the
"Coastal Zone."

Strong evidence would have to be advanced to justify, for example, the
formulation of a separate national urban policy for the Coastal Zone unless
it was part of a larger national policy covering all land areas. Thus, as
mentioned before, there appears to be little that is unique in the urban
problems, opportunities and needs of the Coastal Zone, even taking into
consideration that some of these urban areas serve as ocean arteries of
trade and commerce. What is unique about the Coastal Zone, however, is the
high population density, industrial concentration, and scarcity of land
compared with the rest of the United States.

Therefore, in recognition of the relative scarcity of land area, the TPON
Task Group recommends that a systems analysis study be made of the Coastal
Zone land area as a significant subsystem of the larger U. S. land area.
Such a study should survey the total set of political, economic, social and
cultural factors that are likely to bear on the development of the Coastal
Zone land area for two arbitrarily dcfined future time periods. The Task
Force suggesLs that five and twenty-five years be tised as significant time
frames. Tho first is usually.considered as an appropriate measure of short-
run activity, and the latter a measure of the long-run, where the conse-
quences of new perturbations to the system or of new policies begin to
show up and can be assessed.

The Task Group believes the value of this study will depend upon the
breadth reflected in research design; therefore,,it has formulated the
following sets of illustrative questions which may be useful in structuring
a study of desirable scope.

UESTIONS FOR DISCUSSION IN FORMULATION OF A STUDY RELATING
TO COASTAL ZONE LAND DEVELOPMENT POLICY

1. Identify the physical factors such as climate, topography, geology
and water resources (including supplies that influence land development
policy). What are their relative degree or strength of influence?
2_ WliaL is the nature of the social, economic and cultural problems that
exist -in the ConsLa.l. Zone area? What aspects of any problems are unique to
the Coantal Von(,, an(] what aspects are common to all areas of the United
States? What pu
efforts are being undertaken to solve these
problems? How do efforts to resolve such problems influence land development
in the Coastal Zone?
3. To what extent and Low do social., economic and cultural problems in
the Coastal Zone interact with and Influence the development of marine activ-
ities? Are separatc activities required to deal. with the marine components
uf any sucit proulums, or are warine interests adequately considered as part
of any geiieral programs?
4. Wliat political. entities, e.g., Federal, state, regional, city, county,
special district, and other local governmental bodies have political jurisdic-
tion over the development of the Coastal '11one? In what areas does jurisdic-
tion exist, and by what mechanisms is it exercised?

5. Is tile jurisdiction of the above singular or multiple? What should
be the allocation of jurisdiction in order to promote orderly development of
the coastal shorcline.? How should any desired changes be brought about?
0. What mechanisms exist for resolving differences that may arise when
development objectives nre in conflict with one another, either within a
single jurisdiction or between '-Jurisdictions? What are the criteria that
should be considered in defining the "public interest" relating to land de-
velopment in the Coastal Zone?
7. In what areas do non-coastal. political jurisdictions or private
groups have an interest in the way that coastal development is undertaken?
'Are these interests adequately represented in the decision-making process?
8. What oovernmental incentives or disincentives exist that influence
the character of development of the coastal shoreline? Are these enacted
into law? by what process does change occur in response to developing needs?
9. What are the priority systems that influence the development of
marine activities in the Coastal Zone? What is the internal order of pri-
ority rankings guiding the development of marine activities? Are different
priority systems reflected in the programs of the Federal Government? State
Government? Local. government? To what extent are any priority systems
embedded in the law? To what extent are they a matter of administrative
regulation or practice?
10. Are the priority systems that influence marine development stated
in economic terms, or are provisions made for social priorities? Are the
weighting systems given social priorities the same or different as economic
priorities? If these are different, in what respect are they different?
11. To what extent and how does governmental fiscal tax policy influence
the development of marine resources? To what extent is a state or local
F.,overnment jurisdiction dependent on revenue derived from marine or marine-
related activities? how does any dependency affect the development of marine
activities? Do conflicts exist between governmental taxing powers and the
national interest in developing marine resources?
1.2. What kinds of public and private planning efforts should be under-
taken to determine the development of the Coastal Zone land area? In what
areas should submission of a plan be niade a condition for undertaking develop-
ment? Miat should be the criteria for such planning, and what should be the
mechanisms for review and adoption of any plans that have been formulated?

-_@e pl, 1@t r z@Le - National Institute for Coastal Zone Studies

While the Task Group believes that a Coastal Zone land development study is
urgently needed, and, therefore, assigns such a'study high priority, there
is a more basic problem involved that is implicit in the assignment to this
Task Group. 'fhat is: inadequate attention is being given to viewing the
overall development of the Coastal Zone from a long-range perspective.

E'xisting research and study of the Coastal Zone problems, opportunities, and
lieeds - what little there has been - is hightly specific, limited in terms of
the missions of particular government agencies, and usually represent an
effort to develop projections growing out of present conditions. While prob-
lem-oriented st'udies are necessary and should be continued, information
transfer between areas is difficult. The continuity of study effort is ir-
regular and Is often the victim of changing political administrations.

Transportation planning might serve as an example of the deficiencies in the
current processes. Transportation is used to move goods and people; there
are numerous tradeoffs that must be taken into account between air, land,
water and pipeline. Obviously, transportation needs are not only determined
by current patterns of congestion or other problems, but by the needs of the
future. Future needs are dependent on policy decisions about economic and
urban development, that are made at many levels of government. The system is
dynamic and interacting yet, at present, there are no effective means for
viewing the coastal system in its entirety, or for measuring low current
decisions in one area may affect future developments in the same area and in
other areas as well. Small decisions, unless made in the context of policy
guidelines for long-range development, can themselves set the terms of long-
range policy.

Planning can be undertaken on the basis of "objectives," and "goals," or on
the basis of studying "problems," "opportunities," and needs."

The difference is between the general and specific approach. Both techniques
are useful, but the choice of one to the exclusion of the other is likely to
have vastly different consequences for development and for the character and
scale of the planning process, and the manpower resources required. Moreover,
the general goals-objective aapproah often results in a quite different per-
spective as to how problems-opportunities-needs are conceived.

Generally long-term planning, especially at the national or multistate re-
gional level, involves goals-objectives oriented planning because the passage
of time is unlikely to change the statement of the goal or objective in con-
trast to problem planning, where time invariably alters the concept of the
problem. Goals-objectives planning is particularly appropriate, too; when
a great number of planning activities are already underway involving strong
political prerogatives, as in the case of the Coastal Zone,and where the
major deficiency may be the lack of unity and coordination mechanisms to link
existing planning activities.

For a large-scale planning, effort, such as required by resource planning in
the Coastal Zone, the use of goals-objectives planning is vital in giving
perspective and structure to problem-opportunity-need planning. Without such
perspective and structure, it is difficult to define the level of problem-
opportunity-need, its relationship to other related problems-opportunities-
needs, and the basis for obtaining agreements as to definition to permit
formulation and administration of public policy. For example, an unemployed
pool of manpower can be considered in terms of a "problem," and "opportunity,"
and a "need."

The consequences can be quite different in terms of public policy. Consi-
dered in terms of unemployment "problem," policy formulation emphasized
providing employment opportunities; in terms of "need," tqhe orientation con-
cerns the welfare of the unemployed. In terms of public administration,
different agencies of government are likely to have cognizance over the
"problem" or "need." In resource planning, in connection with a public works
facility, such a pool of unemployed labor may be looked at in "opportunity"
terms.

After considerable debate and consultation with staff of the Committee on
Multiple Usses of the Coastal Zone and the Marine Council concerning the best

approach to fulfilling the terms of its assignment, this Task Group turned to
Federal agencies to determine if somewhere, someone might have examined single,
areas in terms relevant to the Task Group',s assignment. It found that there
was no single source where it could go to discover the "problems, opportunities
a - or with-
and needs" of the Coastal Zone. Even within a single Federa gency
in bureaus of agencies - there was no one who could provide such information in
policy-relevant terms. More importantly, the Task Force concluded (a) that
there is very little possibility in tire near future that agency interests might
be expected to change to accommodate policy concerns such as grow out of thi,4
assignment, and (b) that even over a longer period such changes would be un-@-
likely to materialize within the governmental structure.

."Fortunately there is a model available that may be applicable to the situation
In the Coastal Zone. Recently, in recognition of the importance and this need
for a continuing, comprehensive overview of urban development divorced of the
pressures of the political process, President Johnson announced the chartering,
of a National Urban Institute, private in its management, but to be financed
both by public and private funding. The same congent reasons advanced for the
establishment of the Urban Institute by a distinguished Presidential Commission
are applicable to the need for a permanent nongovernment study capability to
conduct studies applicable to the future development of the Coastal Zone region.

The 'task roui recommends that a new stud institution - the National Institute
of Coastal Zone Studies - be created to give continuing attention to research
.pn_th4@_` prof) -1 ems oprortunities, and needs" of the Coastal Zone. The chai7ter-
ing of this proposed Institute, as well as its method of financing, require
additional consideration at the highest policy levels of the Federal Government.
Therefore, this Task Group further recommends that another appropriate task
p,roup be assembled to give attention to this matter on a high priority basis.
Tii thri view of this rask Group the ptirpose of the proposed Institute would best
be served if it included within its functions not only research and policy
study activities, btit also appropriate education and information transfer ac-7
tivities.

P,E(,O@U,T@.'.NDATIONS

We to the complexities of the multiple uses and conflicts found in the Coastal
/one, the lack of a comprehensive systei,,i to cope with these uses and conflicts,
and to better understand this part of our environment, the Task Group believes
immediate action is necessary. A miAti-faceted approach is, therefore, sug-
gested.

SHORT-TERM AND INTERIM ACTIONS

Certain policies can be adopted to effect Immediate actions. It is recognized
that some of these actions may appear too severe as they apply to exploitation
of the Coastal Zonr_-. Nonetheless, a stronp preservation position is deemed
necessary at this time at all levels of government if tbe integrity of tile
remaining undeveloped Coastal Zone area is to remain intact and to serve the
puhlic need for the future,

1. Defining, the National.Interest in the Coastal Zone:

The Marine Sciences Council should describe the broader national interest
in the Coastal Zone. Examples of expression of certain elements of broad
national interest are the Federal Water Pollution Control Authority's
.,National Estuarine Study and the Estuarine Study under P.L. 94-454.

2. Defining the National Goals and Objectives Relative to the Coastal Zone:

The Marine Sciences Council should develop a statement for a national posi-
tion of the role and responsibility of the Federal Government in the Coastal
Zone. Legislation should be prepared so that Congress can express its
interest and intent in the orderly development of the Coastal Zone by the,-

multiple use concept. A definition is needed to develop, in cooperation'
with government at all levels and the private sector, our national goals and
objectives in the Coastal Zone. P.L. 94-454 provides th,e genesis of'such.,'
statements.

3. Enforcement of Water Quality Standards:

Maximum application provided by law should be made in the enforcement of
water quality standards by the state governments, or by the Federal Govern-
ment if the states default.

4. Use of Present Laws, Executive orders, and Regulations:

To prevent or minimize further loss and degradation of,Coastal Zone areas,
but particularly the estuaries and associated wetlands and beaches, the use
of such authorities should be directed for maximum application of.Federal
and state laws. Where necessary and appropriate, test cases should be
selected for legal interpretation. Each of the coastal states.should be
urged to do likewise, with Federal assistance, if necessary.

5. Identifying High Value Coastal Areas:

It is recommended that the Marine Sciences Council support adequate funding
for the Interior Department, the Corps of Engineers, and other agencies
studying estuaries, shorelines, and other parts of the Coastal Zone. it is
also recommended that the Marine Sciences Council Staff, or the succeeding
ongoing organization (1) review the listing of high value coastal areas
developed by these ongoing studies, and (2) take appropriate steps to rec-
ognize additional areas in order to complete the listing. Among the purposes,-
of such action would be to assist in the identification, in consultation with
the Department of State, of potential international problems, and to serve as
a guide for public and private planning activity.

6. Intensifying the Review of Proposed Coastal Zone Alterations and Plans
for Development of Coastal Water Resources:

The expertise among the Federal agencies, such as found in the Department of
the Interior, Corps of Engineers, Water Resources Council, Health, Education, 11;17
and Welfare, Smithsonian and others; for example, should be inventoried by
the Coastal Zone agency for the purpose of forming a reservoir of experts that
would, on-a-re-
@national basis, serve as consultants to those agencies

that now perform this function. Further, the Coastal Zone agency should
compile and maintain an updated inventory of expertise to be found outside
the Federal Government and make such inventory available to the Federal
agencies and states as needed.

7. Stopping the Disposal of Federal Land:

The General Services Administration should be requested to study carefully
with the Department of the Interior assistance, any proposals to sell to sell to
private interests land that might better be used for public recreational
activities, for preservation of the natural environment, for the public
good, and for other similar activities.

8. Additional Study of Coastal Zone Problems:

Tn order to more rapidly uaderstand our environment, increased emphasis by
Federal agencies in the study of Coastal Zone problems should be made. The
Coastal Zone agency should prepare and circulate a listing of needed re-
search and study in specfic problem areas, and to make such required
ecological studies in the conservation and protection of the Coastal Zone
from destructive modifications and their effects.

9. Development of Guidelines:

The Federal Government, acting through the Marine Sciences Council, should
develop broad guidelines for a Coastal Zone management plan concept. The
broad guidelines should be for Federal and state guidance for assigning
multiple uses, for acquiring Coastal Zone lands, for management, zoning
and enforcement. The guidelines should be provided to the states and the
states encouraged to use them. It is noted that the Department of the
Interior is already engaged in this effort in connection with water quality
standards and the Bureau of Land Management with oil and gas leases.

10. Preparation of a Handbook for Coastal Zone Problems:

The Federal Government should assume responsibility for preparing for wide
public distribution, a handbook of technical information and problem areas
that would serve as a guide for reviewing water development projects, pro-
posed estuarine and wetland modifications, and conflicting uses of the
environment. Specific areas or problems should be stressed and alternatives
described that would, depending on the location and problems, reduce, or
eliminate detrimental effects to the environment or reduce conflicts.
Alternative legal procedures should also be discussed. Dissemination should
include, schools, colleges, Federal and state administrations. A panel of
experts and/or consultants should he assembled to prepare the text. This
effort should be started as soon as possible.

11. Provisions for a Back-up Position:

In the event the courts rule that the Corps of Engineers cannot deny or
condition a "navigtion" permit for natural resources or pollution purposes,
the agreement between the (Department of the Armey and the Department of the
Interior of July 13,1967, would be meaningless. This presently is the best
vehicle available for conserving and protecting the Coastal Zone from destruc-
tive modifications. In the event this vehicle fails, the government would be

without recourse to prevent or temper private exploitation. The following
possibilities should be explored.

a. Confirm the authority of the Corps of Engineers to consider and
manditorily include conservation of fish and wildlife resources and pollu-
tion control when issuing navigation permits by amending the River and Harbors
Act of 1899.
b. Amend the Fish and Wildlife Coordination Act to accomplish the same
as in (a).
C. Seek new legislation that would establish a permitting system in the
Department of the Interior, or in any agency dealing with Coastal. Zone re-
sources, development use, or activity that might be establislied. The issuance,
conditioning, or denial of such a permit of proposed projects should include
provisions in all cases of anti-pollution measures.
d. Seek new legislation establishing state authority for a permitting
system described in (c), but within the framework of accepted Federal guide-
lines similar to the Federal Water Pollution Control Act. It may take years
to provisions for such a back-up position so this effort should not be delayed.
e. To make such ecological study in the conservation and protection of
the Coastal Zone from destructive modifications and their effects.

A LONG RANGE PROGRAM

1. A permanent Coastal Zone Coordinating Mechanism:

Create a separate permanent coordinating mechanism responsible for coordinat-
ing Coastal Zone research, planning and where appropriate, management. The
counterpart (if such an authority may be considered for development in state
and local governments.

2. Increased Education:

A new study institution--The National Institute of Coastal Zone Studies---
should be created to give continuing attention to research of problems, oppor-
tunities, and needs, of the Coastal Zone. A curriculum should he developed for
the training of Coastal Zone planners and managers. Greater attention and
Increased efforts are needed In providing educational opportunities, such as
fellowsships, student support, training programs, public opportunities, and such a
program should have broad inter-discipline orientation to include research,
scientific investigations, and problem orientation. The existing Sea Grant
programs, the Department of Health, Education and Welfare programs, and others,
where appropriate, should be reviewed for amalgamation in the new institution,
where indicated.

3. Study of Coastal Zone Land Development Policy:

Initiate a systems analysis study of the Coastal Zone land areas as it relates
to a subsystem of the larger U.S. land area to survey the total set of pollt-
ical, economic, social and cultural factors that are likely to bear on develop-
ment of the Coastal Zone land area for five and twenty-five year future time
periods.

4. Management Information System:

.Compatibility should be assured between the data storage and retrieval systera
developed for the National Estuarine Study and those systems which contain
data re.lating to the continental shelf and the coastal plain, as well as
other existing and planned systems concerned with estuarine and coastal
waters.

APPENDIX A

1PON TASK GROUP MISSION

This Tnsk Croup w,11.1. review all of the material, on this subject which has
been prepared by the Council staff, the consultant panels, and otbers, and,
to the greatest e.,tent possible, develop new material. Basically, both
problems and needs are associated with the question of development v. pres-
ervation and the desirability of working out a National policy on the matter.
The Task Group will not only identify problems and needs but work out recom-
mendations oil solutions and policies for the consideration of the Cormiittee.

The Task Group will. formulate a list of major opportunities, needs, and
.problems as the first order of business. Subjects should be included on the
list oil a factual basis without bias or prejudice by the agencies with a view
to present functions or responsibilities and included whether or not the sit-
uation is National, regional or local in nature.

This Task Group will. identify the scientific and technical factors, including
economic factors, and seek a model for solution of the problems identified.

Some of the issues which have been raised which need attention from this
Task Group are attached.

The lask Group will develop position papers on a,selection of these and other
questions and issues which may be brought to its attention. for consideration
by the Committee.

Committee Membersbin and Operation. The Chairman of this Task Croup will be
supplied on a full-time basis by the National Science Foundation. The follow-
ing agencies will make people available to assist in the work of this group on
a part-time basis: health, Education and Welfare, Atomic Energy Commission,
Department of Transportation, Department of the Interior (2), the Smithsonian
Institution, avid the Office of Science and Technology. It is possible that
office space call he. provided by the Department of the Interior.

This Task Group will- be provided secretarial and administrative support by the
[National Science Foundation. The Task Group.advisers would be Robert Abel and
Josephine Doherty.

OPTIONAL FORM NO. to
MAY 19d2 KOITION APPENDIX B
OGA PPM ft (41 arm) 101-11.6
UNITED STATES GOVERNMENT
Memorandum
5421
TO Chairmati, CNUCZ DATE:3 February 1969
Serial 44

FROM Captain W. A. ih"N'KINS' USCG

SUBJECT: Definition of the Coastal Zone

1. In accordance with your instructions pertaining to a definition of the Coastal
Zone, members of the 11"ON Tasl@ (;roup met on 31 January and 3 Fefruary 1969 to
consider that question. Assisting in t1iis work was the Chairman of tbe IDCOZ Task
Group and representatives ()f the Department of State and Defense (Navy).

1.-@nclosurc (1) liereto, contains tbe results of the deliberations of this Ad Hoc
yroup. It is understood t1iis subject will be an agenda item for discussion at the
7 1`ebruary 1909 mecLinj.,, of tlie C@IUCZ.

W. A. JENKINS
Acting Chairman
IPON T.(,.

Encl: (1) beliberi Lions of Ad lioc group

Bu-Y U.S. Savinvu Bonds Rerularlvon Am- Pavroll.Cavinrr Plan

3 February 1969

1. Problem: To define the term Coastal Zone

2. Considerations:

a. A basic definition is central to the deliberations of the CMUCZ, its
various Panels, and Task Groups, and to the Marine Science Council.

b. The definition must include a wide range of considerations, the most
important of which are:

(1) Interests of federal, state and local governmental agencies;
other public and private bodies, such as interagency groups including the MSC
and CMUCZ comprised of some 15 agencies, the Water Resources Council, and
others; and international law and policy, particularly the freedom of the
seas doctrine.

(2) The definition on the seaward side would have to contain the
following two primary elements: the concept of unrestricted research and
scienific investigations of the oceans and the sea beds, and regulatory
management which must be articulated within the meanings of the jurisdiction
of the United States and with international law with economic, defense,
international, and legal considerations.

(3) The landward boundary would be mainly concerned with functional
and management concepts with national political boundaries, such as state
and local, with additional economic, social, and watershed cons iderations.

c. All of the agencies represented on the MSC/CMUCZ have interests and
responsibilities along that part of the Coastal Zone within that area con-
taining lands, shoreline, and the territorial sea.

d. Some of the agencies represented have significant interests and respon-

sibilities beyond the territorial sea boundary such as State, Defense, Trans-
portation, Interior, and others.

e. The focus of much of the CMUCZ considerations have largely been one of
federal, state, and local concern of the shoreline of tile U.S., territories,
and possessions, i.e., the physical interface of land and sea, including the
Great Lakes.

3. Summary of Tank Group's suggestions and recommendations to date.

a. COSREL: That seaboard and Great Lakes area whose use is strongly
affected by the close proximity of land and sea.

b. COSREL: Seaward boundary amendment to the above as suggested by the
Chairman, COSREL T.G.: Bounded on its seaward side by tile outer limits of
federal authority.

c IDCOZ Physiographic Description: The Coastal Zone extends in and
from the sea as far as significant marine influences are active, and as far
seaward as continental influences are significant. Delineation is thus a
question of characteristic of constal environvents, by those influences that
are distinctive and significant.

d. IPON: None recommended, but for T.G. purposes of discussion, the
Coastal Zone may be taken to extend from the outer edge of the Continental
Shelf to the inland edge of the coastal plain.

4. Specific Problems:

a. DOD/Navy has Problems with any definition placing the seaward limit
beyong the territorial seas, and accordingly suggests:

For purposes of unilateral federal-state regulation, the sea-
ward limit of the Coastal Zone is defined as coextensive
with the outer limit of the recognized territorial sea of the
United States.

b. State suggested wording on the seaward boundary:

Boundod on the seaward side by the extent of the influences of
the land for scientific research purposes, and by the extent
of U.S. Jurisdiction for other purposes.

5. Conclusions:

11. No attempt should be made to define the Coastal Zone for scientific
aad research purposes, since scientific investigations transcend political,
legal, and zonal boundaries.

b. Defining the Coastal Zone from a regulatory, management, and multi-
use-multi-purpose stand point presents, major problems of a national, inter-
national and legal character.

c. The definition should be worded so as not to hinder the proper carrying
out of the statutory functions of any federal agency, nor construed as limiting
any agency's programs in the future.

d. Nost of the concern of the CPIUCZ in the Coastal Zone area is within
the limits on either side of the shoreline.

e. Any definition should he reference only and not a legal description.

f. Any definition should contain an expression of the multiple uses within
geographic concepts.

6. Recommendations:

,.The Coastal Zone generally comprises the area surrounding the shoreline
on the sea coasts, Great Lakes, bays, inlets, and estruaries of the United
States, its territories, possessions, Puerto Rico, and other sireas admin-
by the United States, whose use is strongly affected by the mutual
interaction of land and sea. The objects of'research concerning the resources
and uses of this area cannot be limited to any specific boundaries. However,
for purposes of identifying the immedi\ate objects, of planning, management,
and regulatory programs, the Coastal Zone extends landward within the States
bordering on this shoreline, as far as significant marine influences are
;ictive,and seaward, to the outer limit of U.S. territorial sea. It is empha-
sized that activities in areas adjacent to the territorial sea may have a sig-
nificant effect on the use of the shoreline which may require appropriate
local, national, or International measures in furtherance of Coastal Zone
programs.

APPENDIX C

BIBLIOGRAPHY

"A Summary of Estuary Programs
U.S. Geological Survey
Water Resources and Geologic Divisions"
October 1967

"A Three-Ply presntation of the Major Organ Systems of a Quahaug "
Public health Service
Bureau of Disease Preveiition and Environmental Control
Northeast Shellfish Sanitation Research Center
Narragansett, Rhode Island

"A Perspective of Regional and State Marine Environmental Activities:
A Questionnaire Survey, Statistics and Observations"; (PB 177 765)
Prepared under contract to the Institute of Public Administration in
connection with their work for the President's Commission on Marine
Science, Engineering and Resources: by the, John 1. Thompson and Company
Washington, D.C., February 27, 1968

"Agency to Study Plan to Dump Sewage at Sea"
BY LeRoy Witman
The Washishington Post
Sunday, August 25, 1968, pg. 1. D1

"Agreement by Lake Michigan Basin States''

Appearing in the Congressional Record - Extension of Remarks, October 4, 1968
Pg. L 8642, C.P.O., Washington, D.C.

Biological oceanography"
By Carl N. Shuster, Jr.
University of Delaware Marine Laboratories
Newark and Lewes Delaware
Contribution No. 23

"Chesapeakc Bay Stucy Group"
Minutes of second meeting, March 27, 1968
Published by Department of Army
Baltimore District
Corps of Engineers, Baltimore, Maryland

Chesapeake, Report
Release, Thursday, August 15, 1968
Published by the Chesapeake Bay Foundation, Inc.
Annapolis, Maryland

Chesapeake Report
Release, Thursday, October 17,1968
Published by the Chesapeake Bay Foundation Inc.
Annapolis, Maryland

"Coastal Plains Economic Development Region"
A Report on the Initial Action Planning Program of the Coastal
Plains Regional Commission

"Coastal Zone - Issues"
A paper by Dr. Deric O'Bryan
U.S. Geological Survey
Water Resources Division
may 1, 1968

"Competition for Aquatic Environment"
By Dr. Roland F. Smith
As printed in COMMERCIAL FISHERIES REVIEW, Vol. 30, No. 5
May 1968

"Congressional White Paper on National Policy for the Environment"
Submitted to the United States Congress under the auspices of the
Committee on Interior and Insular Affairs, United States Senate and
the Committee on Science and Astronautics, United States House of
Representatives, 90th Congress, 2nd Session, Serial T, October 1968;
G.P.O., Washington, D.C., 1968

Conservation Foundation Letter
April 22, 1968, 5-68, Washington, D.C.

"Delaware Estuary Sedimentation Study"
Project report of July 11, 1967
U. S. Geological Survey

Department of Interior News Release
Remarks by Dr. S. Fred
Deputy Assistant Secretary of the Interior for Water Pollution Control
Before the Oyster Institute of North America
Washington, D.C., July 15, 1968

"Economic Impact of Marine-Oriented Activities -- A Study of the Southern
New England Marine Region"
University of Rhode Island
Nich Rorholm, N. C. Lampe, Nelson Marshal, and J. F. Farrell
1967

"Economic Impact of Narragansett Bay"
By Niels Rorholm
Bulletine 374
University of Rhode Island
Agricultural Experiment station
Kingston, Rhode Island
December 1963

"Effects of Water Quality-Changes on Biota in Estuaires"
Project report at Washington, D. C. and Patuxent River, Maryland
July 17, 1967
U. S. Geological Survey

Estuarine Studies of the U. S. Geological survey

Future of Cheapeake Bay an Enigma"
In Chesapeake Bay Foundation News Bulletin
Annapolis, Maryland
April 1968

"Geologic Aspects of Sea-Water Encroachment: Recognition of Late
Glacial Substages in New England and New York"
Project report of September 7, 1967
U. S. Geological Survey

H.K. 25 - Estuarine Areas, Report. No. 989
From the Commiittee on Merchant Marine Fisheries
House of Representatives
NOVeMber 28, 1967
G.P.O., Washington, D.C.

"Hydrologic - Oceanographic Interralations"
Project report at Washington, D.C. and Florida
September 1, 1967
U. S. Geological Survey

"Issue Paper -- Management of the Coastal Zones, Estuaries and Great Lakes"
By S. Fred Singer
Deputy Assistant Secretary
Department of the Interior
Commission on Marine Science, Engineering and Resources
February 9, 1968

Joint House-Senate Colloquium, to Discuss a National Policy for the. Environment"
Bearing before the Committee on Interior and Insular Affairs United States
Senate and the Committee on Science and Astronautics United States House of
Representatives, 90th Congress, 2nd Session, July 17, 1968, No. 8
G.P.O., Washington, D.C., 1968

"Man and the Coastal Zone"
Remarks of James T. McBroom
Executive Secretary for the Committee on Multiple use of the Coastal Zone
National Council on Marino Resources and Engineering Development
At a meeting of the Louisiana Intercoastal Seaway Association
Morgan City, Louisiana
April 19, 1968

"Marine Trade Zone Plan Due Toning Down"
by Clyde LaMatte
In The Houston Post, Sunday, October 13, 1968

"Managing the Environment`
Printed in the Congressional Record - House
September 18, 1968, Pg. 8956, G.P.O.
Washington, D. C.

"Marine Frontiers"
An address by Hubert H. Humphrey, Vice President of the United States
At the Conference on Marine Frontiers, sponsored by the New England
Council and the New England Marine Resources Information Program
At the University of Rhode Island
Kingston, Rhode Island
1967

"Marine Hydrology and Geochemistry"
Project report at Woods Hole, Massachusetts and Washington, D.C.
U. S. Geological Survey
August 1, 1967

"Marine Resources Conservation and Development Act"
Hearings before Special Subcommittee on Submerged Lands of the Committee
on the Judiciary, House of Representatives, 90th Congress, 2nd Session
G.P.O., Washington, D.C., 1968

"Marine Resources of the Atlantic Coast"
Atlantic States Marine Fisheries Commission
Tallahassee, Florida
Leaflets 1 to 8 inclusive
October 1965

"Marine Science Affairs"
The President's message to the Congress transmitting his Second Annual
Report on Marine Resources and Engineering Development
March 11, 1968

"Movement of Radionuclides in the Columbia Estuary"
Project report at Portland, Oregon
Columbia River Estuary of
September 12, 1967
U. S. Geological Survey

"National Estuarine Inventory - Handbook of Descriptors"
Proposed by T. A. Wastler and L. C. de Guerrero
U. S. Department of the Interior
Federal Water Pollution Control Administration
Division of Technical Services
Office of Estuarine Studies
Washington, D.C.
June 1968

"National Parks and Landmarks"
United States Department of the Interior
National Park Service, 1966

"Ocean Disposal of Waste Material
By Ralph W. Buelow
Contribution No. 28
From Northeast Marine Health Sciences Laboratory
National Center for Urban and Industrial Health
Bureau of Disease Prevention and Environmental Control
Public Health Service
Department of Health, Education and Welfare
Narragansett, Rhode Island

"Our Environment and Public Policy"
Appearing in Congressional Record - Extension of Remarks
October 28, 1968, E9456, 57
Speech by Congressman Jeffrey Cohelan
At Aspen, Colorado, August 25, 1968

"Return to the Sea"
A pamphlet published by United States Department of Health, Education,
and Welfare
Public Health Service
Washington, D.C.
August 1967

"Rhode Island; Official Highway Map"
1968

"Sediment Movement and Bottom Conditions in the Atlantic Coast Estuarine and
Nearshore Waters"
Project report at Washington, D.C. and Philadelphia, Pennsylvania
October 2, 1967
U. S. Geological Survey

"Selected Case Studies on Shoreline Development in the United States"
By Clifford Elkins
National Planning Association
September 27, 1967

Shoreline Utilization in the Greater Seattle Area: A Case Study"
Prepared for National Council and Marine Resources and Engineering Development
By Management and Economic Research, Inc.
January 1968

State of Maine, J.P. 612 - L.D. 1597
An Act to Regulate the Alteration of Wetlands
Approved June 5, 1967
Chapter 348 Public Law
Page 634-1

"Study of Means for Minimizing the Danger of Pollution of the Marine Environment
Wich Might Arise from the Exploration and Exploration of the Sea-bed and
Ocean Floor and the Subsoil Thereof"
Iceland's proposed draft resolutlon before the United Nations, New York., N.Y.
October 28, 1968, in Department of State Telegram USUN 7390

"That Delicate Balance"
Printed in the Chesapeake Bay Foundation, Inc.
News Bulletin, Vol. 1, No. 2, July 1968
Annapolis, Maryland

"The Ecology of Wetlands in Urban Areas"
By William A. Niering
May 1968

"The Federal Role in Water Transportation Planning"
by PhIlip L. Franklin
Coordinator for Water Resources, Department of Transportation
Remarks at the First Minnesota Semlnar on Waterborne Transportation Planning
St. Paul Minnesota
January 16, 1968

"The Influence of Industrial and Municipal Wastes on Estuarine and Offshore
Water Quality"
Project report at Tacoma, Duwamish River and four areas in Puget Sound, Washington
Dated July 1, 1967
U. S. Geological Survey

"The Nature of Tidal Marsh"
By Carl N. Shuster, Jr.
U. S. Department of Health, Education and Welfare
Contribution No. 16
From the Northeast Shellfish Sanitation Research Center
NAarragansett, Rhode Island
As printed in Information Leaflet
New York State Conservation Department
Division of Conservation Education
August-September 1966 Issue

"The Nation's Water Resources; the First National Assessment of the Water
Resources Council"
Parts 1, 4, 5 and 6
Washington, D.C.
November 1968

"The Outer Continental Shelf: Its Promise and Its Problems"
Appearing in Congressional Record - Extension of Remarks
November 1, 1968, Page E9690-93
By Under Secretary of Interior David S. Black
Speech before the 18th Annual Convention of the Gulf Coast Association
of Geological Societies

"Transient Flow and Saline IntrusLion in Rivers"
Project report at Arlington, Virginia
July 13, 1967
U.S. Geological Survey

"Utilization of the Estuarine Zone in Georgia"
Article submitted to the Federal water Pollution Control Administration as a
contribution to the National Estuarine Pollution Study
by biologists from the Division of biological Sciences
University of Georgia
Narch 14, 1968

"Waste Disposal in United States Assailed"
by Joseph G. Herzberg
In The New York Times, Sunday, October 20, 1968

"Water Resources of the Everglades National Park, Florida"
Project report at Miami, Florida
July 10, 1967
U. S. Geological Survey

"Water Quality Improvement Act of 1967"
Appearing in Congressional Record -EXtension of Remarks, November 19 6 8,
Pg. 9685, Remarks in the House of Representatives, Monday, October 14, 1968
By Honorable Ed Reinecke

''We Have Overengineered our Environment"
By Irston K. Barnes
In The Washington Post, Sunday, August 25, 1968
Pg. E8

"Wild and Scenic RIvers Act"
Public Law 90-542, 90th Congress
S. 119, October 2, 1968

"Will We Destroy the Web of Life?"
By William Hines
In The Sunday
Star, Washington, D.C.
SePTember 29, 1968
Pg. PC-4

DA7E DUE

GAYIORDINo. 2333 PRIWED IN U.A.

3 66 li.107 0476
6