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




























     I GC1005. 2
       .074
      1991








                                                  The Oregon Ocean Plan


                  Published and distributed in January 1991 by the State of Oregon:
                  Neil Goldschmidt, Governor 1987 - 1991
                  Barbara Roberts, Governor 1991 -


                            The Oregon Ocean Resources Management Task Force


                  Gail Achterman, Task Force Chair, Governor's Assistant for Natural Resources
                  Ralph Brown, Commercial Fisheries
                  Bob Pullen, Charter Fisheries
                  Paul Vogel, Director, Oregon International Port of Coos Bay, Ocean Navigtion
                  Dee Chamberlain, PhD., ARCO, Oil and Gas
                  Jim Wenzel, Marine Development Associates Inc., Marine Minerals"
                  Jay Rasmussen, Director, Oregon Coastal Zone Management Association
                  Debbie Boone, Clatsop County Commissioner, Coastal Counties (1987-88)
                  Dave Werschkul, Curry County Commissioner, Coastal Counties (1989-90)
                  Jayne Fraese,Public at Large
                  Neal Maine; Public at Large
                  Ellen Lowe, Public at Large
                  Chief Edgar Bowen, Confederated Tribes of Coos, Lower Umpqua and Siuslaw, Coastal Indian
                  Tribes*
                  Bruce Andrews, Director, Oregon Department of Agriculture
                  Don Mann, Oregon Economic Development Department *
                  Nancy Rockwell, Deputy Director, Oregon Department of Energy
                  Fred Hansen, Director, Oregon Department of Environmental Quality
                  Rollie Rousseau, Deputy Director, Oregon Department of Fish and Wildlife
                  John Beaulieu, Deputy State Geologist, Oregon Department of Geology and Mineral Industries
                  Susan Brody, Director, Oregon Department of Land Conservation and Development
                  James F. Ross, Director, Oregon Department of Land Conservation and Development, 1987-88
                  Pete Bond, Ocean Shores Coordinator, Oregon Department of Parks and Recreation
                  Martha Pagel, Director, Oregon Division of State Lands

                  *appointed pursuant to 1989 legislation
                  "Note: Jim Wenzel, Marine Development Associates Inc., represented marine mineral interests as a
                  Task Force member. Mr. Wenzel wishes to be disassociated from the final plan recommendations.









                                                                  Oregonfs
                                                 Ocean Resources
                                                Management Plan












                                             The Oregon Ocean Resources
                                                   Management Task Force


                                                               January 1, 1   991









                                              LIBRARY
                                             NOAA/CCEH
                                          1990 HOBSON AVE,
                                         CHAS. SC 29408-26,2'@







                ii


                The Oregon Ocean Resource Program
                320 SW Stark Rm 530
                Portland, Oregon 97204
                (503)229-6068


                Oregon's Ocean Plan is the result of the vision, leadership, and support of Senator
                Bill Bradbury, who foresaw the need for Oregon to take affirmative action to protect
                its ocean resources.


                The Oregon Ocean Resources Management Task Force Staff-
                    Eldon Hout, Program Manager                    Nan Evans, Senior Policy Analyst
                    Jeff Weber, Coastal Ocean/GIS Specialist       Robert Bailey, Outer Continental Shelf Coordinator


                Acknowledgements:
                    The Ocean Plan was prepared with the generous assistance of many individuals within state
                agencies, federal agencies, local governments, universities and the public at large. Their technical
                knowledge, insights, criticisms, and helpful suggestions are gratefully acknowledged.
                    A special "thank you" is directed to the many Oregon citizens who cared enough to come to
                workshops and meetings, voice opinions or share knowledge, and write letters of comment. The
                Ocean Plan is the better for their participation.
                    Funds for the preparation of the Ocean Plan were provided from the Oregon General Fund by
                the 1987 and 1989 Oregon Legislatures. Additional funds were provided by the U.S. Department of
                Commerce, National Oceanographic and Atmospheric Administration (NOAA), Office of Ocean and
                Coastal Resources Management (OCRM) through both a Section 306 Coastal Zone Management
                Grant and an Interagency Personnel Agreement.


                Oregon's Ocean Geographic Information System
                    Many of the maps in the Ocean Plan were produced by Oregon's State Service Center for Geo-
                graphic Information Systems (GIS), which is located at the Oregon Department of Energy in Salem.
                    The mandate for this plan included provisions for the development of a computerized ocean infor-
                mation system. Over the last two years, the GIS Service Center has assisted other state agencies in
                the development of the ocean GIS. The ocean GIS is a part of the Ocean Plan. The Service Center
                built the data base using data provided by several sources. The plots in this document reflect only a
                portion of the database. As more data become available from state and federal agencies and
                academic institutions, they will be added to the system with the assistance of the service center.
                    Staff at the GIS Service Center who were instrumental in the development of the database and
                the plots include Scott Smith, John Sharrard, Richard Crucchiola, and Eric Gillett. The entire Ocean
                Task Force and staff extend a special thanks to the Service Center staff for their unflagging commit-
                ment to quality, accuracy, and service.
                    The GIS Service Center runs Are/Info on Sun workstations to manage the data and develop the
                plots. Final plots are produced on an electrostatic plotter. For more information about the Service
                Center, write or call the State Service Center for GIS, Oregon Department of Energy, 625 Marion St.
                NE, Salem, OR 97310.(503) 378-4036










                                                                                                      Oregon's ocean is but a
                                                                                                 small part of the vast Pacific
                                                                                                 Ocean, which is larger than
                                                                                                 any other single feature on
                                            ICY                                                  Earth. Our ocean constitutes
                                                                                                 only part of its edge, but it is
                                                                                                 the edges of such systems
                                                                                                 that are the mostproductive,
                                                                                                 the most used, and the most
                                                                                                 vulnerable to disruption from
                                                                                                 human activities.
                                                                                                      This map of part of the
                                                                                                 northeast Pacific sets the
                                                                                                 stage for the Ocean Plan,
                                                                                                 The Plan establishes an area
                                                                                                 within which resource
                                                                                                 stewardship shall be the
                                                                                                 prime determinant of state
                                                                                                 ocean resource policies.
                                                                                                      This map was developed
                                                                                                 by the Strategic Assessments
                                                                                                      ch of NOAA's Office of
                                                                                                 Oceanography and Marine
                                                                                                 Assessment. The Branch was
                                                                                                 created to assess the effects
                                                                                                 of human activities on es-
                                                                                                 tuarine and coastal environ-
                                                                                                 ments and on the resources
                                                                                                 of the U.S. Exclusive
                                                                                                 Economic Zone. Ihe purpose
                                                                                                 of such assessments is to help
                                                                                                 balance the development
                                                                                                 and conservation of resour-
                                                                                                 ces that affect the coastal
                                                                                                 environment.
                                                                                                      The Oregon Coastal Pro-
                                                                                                 gram, of which the Ocean
                                                                                                 Program is a port, will be
                                                                                                 working closely with the Strat-
                                                                                                 egic Assessments Branch
                                                                                                 over the next few years both
                                                            '444'3-
                                                                                                 to exchange data and to en
                                                           60 &4*
                                                                                                 hance their respective
                                                       *0
                                                                                                 capabilities for making data
                                                                                                           able and accessible
                                                                                                 bom use
                                                     Sir",
                                                                                                 when and where it is needed
                                                                                                 in the process of developing
                                                 The Northeast Pacific Ocean                     and carrying out natural
                                                 Map courtesy of the Ocean Assessments           resource policies.
                                            Division, National Ocean Service, NOAA.






                iv


                                                Task Force Technical Advisors

                    Richard Hildreth, University of Oregon Ocean and Coastal Law Center
                    Jim Good, OSU Sea Grant Extension
                    La Verne D. Kulm, OSU College of Oceanography
                    William Pearcy, OSU College of Oceanography
                    Susan Hanna, OSU Department of Agriculture and Resource Economics
                    Dan Varoujean, University of Oregon Institute of Marine Biology
                    Jean Flemma, University of Washington Institute for Marine Studies
                    Earle Buckley, Director, National Coastal Resources Institute
                    Matt Spangler, Director, Lincoln County Planning Department
                    Mark Barnes, CREST, Astoria
                    Joseph Edney, formerly of Coos-Curry Council of Governments, Department of Environmental Quality
                    Dennis Olmstead, Oregon Department of Geology and Mineral Industries
                    Greg McMurray, Oregon Department of Geology and Mineral Industries
                    Scott Smith, Oregon Department of Energy
                    Neal Coenen, Oregon Department of Fish and Wildlife, Newport
                    Dan Bottom, Oregon Department of Fish and Wildlife, Corvallis
                    Rick Starr, Oregon Department of Fish and Wildlife, Newport
                    Robin Brown, Oregon Deptartment of Fish and Wildlife, Newport
                    Dave Fox, Oregon Department of Fish and Wildlife, Newport
                    Krystyna Wolniakowski, Oregon Department of Environmental Quality
                    Bruce Sutherland, Oregon Department of Environmental Quality
                    Jeff Kroft, Oregon Division of State Lands
                    Janet Neuman, Oregon Division of State Lands
                    Don Oswalt, Oregon Department of Land Conservation and Development
                    Patty Snow, Oregon Department of Land Conservation and Development
                    Phyllis Cottingham, League of Women Voters, Brookings
                    Margarite & Howard Watkins, Oregon Shores Conservation Coalition, Coos Bay
                    Diana Bradshaw, Portland Audubon Society
                    Palmer Sekora, U.S. Department of the Interior, Fish and Wildlife Service
                    Roy Lowe, U.S. Department of the Interior, Fish and Wildlife Service
                    Lisle Reed, Pacific OCS Region Manager, U.S. Dep I of the Interior, Minerals Management Service
                    Elizabeth Holmes-Gaar, U.S. Department of Commerce, National Oceanic and Atmospheric
                    Administration, National Marine Fisheries Service.
                    Steve Chesser, U.S. Army Corps of Engineers, Portland
                    Paul Heikkila, Oregon State University Sea Grant Extension Agent, Coquille
                    Bob Jacobson, Oregon State University Sea Grant Extension Agent, Newport
                    Jim Bergeron, Oregon State University Sea Grant Extension Agent, Astoria
                    Jim Waldvogel, Oregon State University Sea Grant Extension Agent, Crescent City, CA
                    Hans Radtke, Consulting Economist, Yachats







                                  Conten

                  The Need for an Ocean Plan
                      Driving Forces                                             3
                      Legislative Action                                         5
                      Jurisdictions at Sea                                     I I
                  The Context for an Ocean Plan
                      The Ocean Environment                                    17
                      The Human Environment                                    27
                  The Policies of the Ocean Plan
                      Ocean Resources Stewardship                              45
                      Resource Issues and Recommendations                      57
                          Ocean Fisheries                                      59
                          Marine Birds and Mammals                             81
                          Intertidal Plants and Animals                       101
                          Recreation and Cultural Resources                   113
                          Marine Water and Air Quality                        121
                          Oil and Gas                                         131
                          Oil Spills                                          141
                          Marine Minerals                                     149
                  Getting the Work Done
                      Tools for Governing                                     161
                          Territorial Sea Plan                                163
                          Ocean Policy Advisory Council                       166
                          Project Review Panels                               168
                          Coastal Local Governments                           170
                          State Agency Programs                               173
                          Interstate Coordination                             176
                          State-Federal Partnership                           178
                      Information and Education                               181
                      Citizen Involvement                                     185
                      Ocean Research                                          189







              The Need for An
                  Ocean Plan


             Driving Forces for Ocean Planning     3

             Legislative Action                    5

            Jurisdictions at Sea                  11




1
11




















                                                        1





          2   Oregon's Ocean Resources Management Plan




             L6*4@A*








                                                        't 7@,





                                                                                 The Need for an Ocean Plan e 3









                              Driving Forces for Ocean Planning


                rp    wo sets of forces sparked Oregon's ocean resource planning. First, the Oregon
                 JL coast and Pacific Ocean are important to Oregonians. Commercial and recrea-
                tional fisheries, transportation and navigation, clean air and water and recreation
                are all ocean uses upon which coastal communities rely for their livelihoods and
                way of life. Oregonians care deeply that the coastal environment be protected and
                traditional use of renewable resources be maintained. Oregon's state agencies and
                local governments have control over many of the uses and resources along the coast
                and within the state's three-mile territorial sea.


                    Second, national and international forces            Oregon's ocean and shoreline, regardless of
                outside Oregon inject new demands for ocean              how well the state is prepared.
                and coastal resources into the present mix.                  Overarching both these sets of forces is the
                Global political and economic forces, beyond             growing public concern about the quality of the
                the control of the state, affect the price and           marine environment. There are increasing
                supply of oil, gas, and mineral resources and            demands for national and coastal state govern-
                can generate interest in exploring Oregon's              ments to step up efforts to protect human
                ocean for these resources. The Oregon coast is           health, conserve ocean resources and preserve
                increasingly attractive as a recreation destina-         environmental quality. Coastal states, respond-
                tion and retirement home for people from con-            ing to public concerns, are initiating ocean
                gested urban areas with deteriorating                    resources management programs to ensure
                environmental conditions. Oregon's ocean                 that state and local interests in ocean resour-
                fisheries are intertwined with global market             ces are protected.
                demands and the industrialized nature of
                major international fishing fleets which can af-             Oregon is now faced with the responsibility
                fect the marine food chain across vast stretches         of managing a range of ocean uses in its ter-
                of ocean. These forces will bring change to              ritorial sea and coordinating with federal agen-
                                                                         cies for management beyond. Until now, such





                4 * Oregon's Ocean Resources Management Plan


               uses either coexisted without conflict or con-        ment program that is based on clear policies
               flicts were managed on a case-by-case basis.          and uses an open process involving all inter-
               Balancing the demands created by new uses             ested parties.
               will demand an adaptive, equitable manage-
































                                                 "woof
                                                                       -7

                                                                             -0,











                                                                                                               I'f













                                                                                   n


                   The Pacific Ocean challenges the coast north of Cape Perpetua. The town of Yachats lies in the
              middle distance. (ODOTphoto)





                                                                                  The Need for an Ocean Plan 9 5









                     Legislative Action for Ocean Planning


                T
                      he 1987 Oregon Legislature, through Senate Bill 630, the Oregon Ocean
                      Resources Management Act, created the Oregon Ocean Resources Manage-
                ment Program. The purpose of the program is to plan for the coordinated, com-
                prehensive management of ocean uses and resources off the Oregon coast. The law
                links together state agency programs, federal programs, local government interests,
                and public concerns into a coordinated planning and management program. The
                Act established the Oregon Ocean Resources Management Task Force, and charged
                it with the assignment of developing an Oregon Ocean Resources Management
                Plan. The plan was presented to the Oregon Legislature on June 1, 1990, and
                adopted by the Land Conservation and Development Commission by August 1,
                1990, as part of Oregon's Coastal Management Program.


                    The Act addresses more than an Ocean                 federal agencies in managing ocean resources
                Plan. It is a statement of Legislative concern           within 200 miles of the coast.
                that the resources of the Pacific Ocean are im-
                portant to Oregon and that the state must be             Legislative Policies
                prepared to properly respond to increased and                The Legislature provided a policy
                new uses of ocean resources. The legislature             framework to guide the ocean planning work.
                found that while many state agencies have                The primary policy builds on the foundation of
                responsibilities for different resources or uses,        Statewide Planning Goal 19, Ocean Resources,
                there was no policy framework for coordinated,           and asserts that Oregon will
                consistent state policy. Likewise, the Legisla-            ... conserve the long-term values, benefits,
                ture determined that federal law and the new               and natural resources of the ocean both
                U.S. Exclusive Economic Zone provided the                  within the state and beyond by giving clear
                state with the opportunity and responsibility to           priority to the proper management and
                                                                           protection of renewable resources over non-
                assert the state's interests as a partner with             renewable resources.





                  6 * Oregon's Ocean Resources Management Plan


                     Other policies of the legislature are to                  Oregon's Territorial Sea outlined in the
                   Encourage ocean resources development                       Ocean Plan.
                   which is environmentally sound and economi-              0  State agency programs for regulation of
                   cally beneficial;                                           ocean uses and activities.
                   Provide for efficient and coordinated ocean
                   resources management through improvement                    The Ocean Resource Management Plan and
                   of the state's coastal management program               the other parts of the Ocean Program provide
                   and state-wide land use program;                        Oregon with a policy framework and a process
                   Assert the interests of this state as a partner         to draw together the various participants
                   with federal agencies in the sound manage-              needed to focus on ocean resource issues.
                   ment of the ocean resources within the
                   United States Exclusive Economic Zone and               Oregon will also have an open, cooperative
                   the continental shelf,                                  process involving the public and ocean users to
                   Promote research, study and understanding               resolve ocean policy issues. As part of the
                   of ocean processes, marine life and other               Oregon Coastal Management Program, the
                   ocean resources to acquire the scientific inven-        Ocean Plan will guide state response to and
                   tory information necessary to understand the
                   impacts and relationship of ocean develop-              participation with federal agency action regard-
                   ment activities to ocean and coastal resources;         ing ocean resources.
                   Encourage research and development of new
                   innovative marine technologies for explora-             The Task Force
                   tion and utilization of ocean resources.                    The Oregon Ocean Resources Management
                Ocean Program                                              Task Force membership was established by the
                     To implement these policies, the Legisla-             Legislature to include the many state agencies,
                ture established a four-part Ocean Resources               local government, groups, and interested par-
                Management Program to "provide for efficient               ties in ocean issues. The members of the Task
                and coordinated ocean resources management                 Force are listed in the front of this Ocean Plan
                through improvement of the state's coastal                 document. A large and diverse Technical and
                management program and state-wide land use                 Scientific Advisory Committee provided advice,
                program." The Ocean Program includes:                      information and feedback. In addition, the
                                                                           Task Force was charged with involving the
                  ï¿½  Those parts of the existing federally ap-             public and coordinating with affected federal
                     proved Oregon Coastal Management Pro-                 agencies and adjacent states. The Legislature
                     gram which pertain to ocean and coastal               was concerned that the Ocean Plan be
                     resource conservation and development, in-            prepared in a wide open, public process.
                     cluding local government comprehensive
                     plans. Especially important are the estuary           Ocean Plan Requirements
                     management plans and coastal shorelands                   The Ocean Plan is required to have four
                     planning and zoning measures adopted by               major elements:
                     coastal counties and cities.                          1.  An analysis of state and federal laws,
                  ï¿½  The Ocean Task Force and any successor.                   programs, and regulations affecting ocean
                     This broad interagency process is crucial to              resources within the planning area, includ-
                     addressing complex ocean management is-                   ing gaps, overlaps, and conflicts.
                     sues. The Ocean Plan proposes an Ocean                    This analysis is in three parts: 1) the Ter-
                     Policy Advisory Council to succeed the                ritorial Sea Management Study, completed in
                     Task Force.                                           1987 for the Department of Land Conservation
                  ï¿½ The Ocean Resources Management Plan                    and Development by James Good, Oregon State
                     and future refinements such as the plan for           University Extension/Sea Grant program and





                                                                                    The Need for an Ocean Plan * 7


                Richard Hildreth, University of Oregon Ocean               policy and action framework for Oregon's ocean
                and Coastal Law Center; 2) Appendix, Interim               program.
                Report of the Ocean Resources Management
                Task Force, 1988; and 3) an Analysis of State              The Impact of the Ocean
                Laws and Agency Responsibilities (included in              Plan on State Agencies
                the Executive Summary of this Ocean Plan).                     The Legislature clearly intended the Ocean
                2. A study of present and future ocean uses off            Plan to be the coordination framework for
                     Oregon and an analysis of the state's                 Oregon state agencies and their programs for
                     management regime for these uses.                     ocean resources. Two separate provisions of the
                     A description and analysis of uses and ac-            1987 Act strongly suggest that state agencies
                tivities in the ocean off Oregon are included              are obligated to act in a manner consistent
                throughout the Ocean Plan. Some potential                  with the Plan.
                uses are listed as issues for future study in the              The Oregon Attorney General's Office has
                Governance section, Territorial Sea Plan sub-              provided an analysis of the impact of the Plan
                section of this plan.                                      on state agencies. That analysis concludes that
                3.   Maps and other information in computer for-           1) state agencies may not act inconsistent with
                     mat about ocean conditions, uses, and                 the plan but 2) agencies are not obligated "to
                     resources to provide a basis for plan                 elevate priorities identified in the plan over
                     decisions.                                            other statutorily or constiutionally mandated
                                                                           responsibilities." Thus, when state agencies
                     A comprehensive computerized geographic               take action regarding ocean resources, they
                database has been developed at the Oregon                  must do so consistent with the plan. However,
                Department of Energy, Geographic Information               agencies are not compelled to change programs
                System Service Center. The Department of                   to meet the many recommended actions con-
                Land Conservation and Development has coor-                tained in the program.
                dinated with a variety of state, federal and
                academic agencies to acquire and develop this              The Impact of the Ocean
                database. This Ocean Plan document contains                Plan on Federal Agencies
                some maps and other graphic products from                      Congressional action in late October, 1990,
                the GIS. Improvements and additions to the                 may profoundly affect the way in which
                database and computer system are continuing.               Oregon's Ocean Program guides federal ac-
                The goal is to develop a dynamic, accessible in-           tivities both in the state's territorial sea and in
                formation system available to all who need its             federal ocean waters from 3 to 200 miles. The
                information.                                               federal Coastal Zone Management Act
                4.   Recommendations to develop or improve                 Reauthorization Amendments of 1990 over-
                     state agency programs for managing ocean              turns a 1984 Supreme Court decision in
                     resources, with emphasis on oil and gas               Secretary of the Interior v. California in which
                     and related activities, oil spill response,           the Supreme Court held that federal OCS oil
                     marine minerals, marine water quality, air            and gas lease sales had no affect on a state's
                     quality, environmental studies and re-                coastal zone and hence were not required to be
                     search, and a permanent management                    11 consistenf' with policies and regulations in
                     structure and process to keep the plan up             the state's coastal program.
                     to date.                                                  The new law clarifies that all federal agen-
                     These recommendations are found                       cy activities, whether in or outside of a state's
                throughout this Ocean Plan and form the                    coastal zone (including the three mile ter-





                 8 e Oregon's Ocean Resources Management Plan


                ritorial sea), are subject to the "consistency" re-       sions. Citizens attended and participated freely
                quirements of section 307 (c)(1) of the federal           during three Task Force two-day workshops
                Coastal Zone Management Act if they affect                held in January 1988, January 1989, and
                natural resources, land uses, or water uses in            February 1990.
                the coastal zone. "Affecting" activities mean                 In fall 1988, eight public workshops were
                direct immediate impacts, cumulative impacts              held. Five were in the coastal cities of Brook-
                and reasonably foreseeable indirect effects that          ings, Coos Bay, Florence, Newport, and Cannon
                occur later and away from the action. No                  Beach and three in the inland cities of
                federal activities are categorically excluded.            Portland, Eugene, and Medford. A total of over
                    To achieve the full benefits of this ex-              200 people attended. Several issues and con-
                panded state authority, Oregon will need "en-             cerns raised at these workshops were sub-
                forceable" policies within the Oregon Coastal             sequently discussed by the Task Force and
                Management Program pertaining to protection               policies were developed and included in the
                of ocean resources. Enforceable policies include          plan.
                constitutional provisions, court decisions,                   In November 1989, workshops were held in
                statutes, regulations, administrative rules, ac-          Gold Beach, Newport and Astoria with fisher-
                knowledged land use plans and implementing                men and four general public workshops were
                ordinances.                                               held in Gold Beach, North Bend, Newport and
                    The Oregon Ocean Resources Management                 Cannon Beach to discuss the first draft plan.
                Act and this Plan establish the policy                    800 copies of the draft were distributed and
                framework for enacting enforceable policies.              over 300 people attended.
                The new federal law is a strong incentive for                 Information about the plan and other ocean
                the state to prepare a plan for Oregon's ter-             issues was provided via Oregon Ocean, a
                ritorial sea which provides the needed pro-               newsletter. A mailing list was established and
                cedural clarification and regulatory detail to            new names were continually added from those
                assure policy enforceability. With enforceable            who attended meetings and workshops. A total
                plan policies officially incorporated into                of ten newsletters were prepared and mailed to
                Oregon's coastal management program, state                over 1200 recipients. Issue papers were an-
                agencies and local governments will have a
                powerful tool to hold federal agencies account-           nounced and made available upon request.
                able to the standards of Oregon's ocean                       Copies of both draft plans were widely dis-
                management program.                                       seminated in person and by mail. 800 first
                                                                          draft plans were distributed in October 1989,
                Citizen Involvement                                       and 1300 final draft plans were distributed in
                    The Ocean Plan was developed with sub-                May 1990. In addition to many comments
                stantial citizen involvement in all phases of the         voiced at the fall 1988, November 1989, and
                planning process as required by the 1987 Act.             May 1990 hearings and workshops, more than
                All meetings of the Task Force were widely                sixty letters were received commenting on the
                publicized through direct notice by mail, ar-             first draft ocean plan and thirty letters were
                ticles in newspapers, radio and television an-            received on the final draft. The Task Force
                nouncements and posters. Citizens attended all            made substantial revisions to the first draft
                Task Force meetings. Each Task Force meeting              plan as a result of these fall 1989 workshops.
                included designated "open mike" opportunities             Some minor amendments were made after the
                for public comment which were well used. In               May 1990 hearings.
                addition, citizens were often able to interact
                directly with the Task Force during discus-





                                                                                 The Need for an Ocean Plan * 9


               Local Government                                         Federal Agency
               Coordination                                             Involvement
                   The 1987 Act recognizes the fundamental                   The 1987 Act recognized the major role of
               role of Oregon's coastal local governments in            the federal government in managing a variety
               regulating shoreline land uses which could af-           of ocean resources. The Legislature called for
               fect ocean resources. The Ocean Plan is re-              close coordination with federal agencies during
               quired to be compatible with acknowledged                development of the Ocean Plan. Several federal
               comprehensive plans of adjacent coastal coun-            agencies participated in Task Force workshops
               ties. The Task Force was required to work with           and meetings, provided information for the
               the Oregon Coastal Zone Management Associa-              ocean resources GIS or commented on staff
               tion, Inc. to make sure that local governments           papers and draft plan elements. These agencies
               were involved in the ocean planning process.             included:
                   Coastal local governments were well repre-             0  Department of the Interior
               sented during development of the Ocean Plan.                  U.S. Fish and Wildlife Service/Oregon Is-
               A coastal county commissioner and the Direc-                  lands and Three Arch Rocks National
               tor of the Oregon Coastal Zone Management                     Wildlife Refuges
               Association were members of'the Task Force.                   U.S. Fish and Wildlife Service/Ecological
               In addition, representatives from coastal cities,             Services Branch
               counties, and port districts provided comment
               and advice during preparation and review of                   Minerals Management Service/Pacific OCS
               plan elements.                                                Region
                   The Plan reaffirms that coastal local                     Minerals Management Service/OtTice of
               governments bave important regulatory respon-                 Strategic and International Minerals
               sibilities for land uses and activities along the          0  Department of Commerce
               ocean shoreline and can take affirmative action               National Oceanic and Atmospheric Ad-
               to protect ocean resources. In the past, most                 ministration
               local governments have simply not regarded                    National Marine Fisheries Service/Habitat
               ocean resources as part of traditional land use
               considerations. The Plan contains a listing of                Conservation Branch
               ocean resource topics which local plans could                 National Marine Fisheries Service/
               address as well as recommendations that coas-                 Resource Assessments and Conservation
               tal cities and counties review their plans and                Branch
               ordinances and amend, as necessary, to protect                National Ocean Service/Office of Oceanog-
               ocean shoreline resources or regulate onshore                 rapby and Marine Assessments
               development resulting from the use of ocean                   National Ocean Service/Office of Ocean and
               resources. Five other plan recommendations                    Coastal Resources Management
               call for strengthening local government's par-
               ticipation in ongoing ocean planning and                   0  Environmental Protection Agency/Region
               decision making.                                              10
                                                                          0  Department of Defense
                                                                             U.S. Army Corps of Engineers/Portland Dis-
                                                                             trict





                                                    10                 Oregon's Ocean Resources Management Plan




                                                                                                                                                             ................. ............






















                                                                                                                                                                                                                               %V








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                                                                                                                                                                    ..........               6.             ..... ..
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                                                                                                                                                         E5.        A, S 1                                                 0
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                                                                                                                                                                                                                    5L
                                                                                              4

























                                                                                                                                                          ..... ......

                                                                                      .... ..........



                                                        Oregon's Ocean Planning Area





                                                                              The Need for an Ocean Plan * 11










                                                                    Jurisdictions at Sea


               M
                       anagement of ocean resources and uses is fragmented and complex.
                       Numerous state and federal agencies have authority or jurisdiction over
               resources and uses, depending on location or the kind of resource or use. The politi-
               cal and administrative boundaries limiting these authorities are not related to the
               fluid, dynamic nature of the ocean or its resources. Activities and uses under
               federal jurisdiction, for instance, may affect resources or uses under state jurisdic-
               tion. State programs may affect resources under federal jurisdiction.


                   One of the principal objectives of the              from the shoreline to the boundary of the
               Oregon Legislature was to coordinate these              United States Exclusive Economic Zone (EEZ)
               authorities and develop a comprehensive                 200 miles at sea.
               framework for coordinated management among                  Three geographic regions fall within this
               all agencies. The process of developing the             ocean planning area:
               Ocean Plan produced more than just a plan; a             0 The coastline, including intertidal areas
               variety of local, state and federal agencies                and nearshore rocks and islands;
               began to work together to address resource
               management needs. This communication and                 9  The continental margin, including the con-
               coordination has set the stage for Oregon's on-             tinental shelf and continental slope; and
               going ocean management program.                          0  The deep ocean beyond the continental mar-
               The Oregon ocean                                            gin, including several features such as the
                                                                           Cascadia Basin, Gorda Ridge and Blanco
               planning area                                               Fracture Zone.
                   As a first step in ocean resources planning,            Coastal watersheds and estuaries were not
               Oregon defined an ocean planning area from              included in the ocean planning area because
               the border with Washington on the north to the          these areas, although interconnected with
               California border on the south and westward





                   12 0 Oregon's Ocean Resources Management Plan


                  oceanic ecosystems, are managed through local                 definite distance to a depth of water which per-
                  land use and estuarine plans.                                 mits exploitation of resources such as oil and
                      The general oceanographic characteristics                 gas. For years this area was roughly defined by
                  of the Oregon Ocean Planning Area have been                   a depth of 600 feet, the edge of the geographic
                  described in detail in The Oregon Ocean Book                  continental shelf. However, the Department of
                  published by the Department of Land Conserva-                 the Interior has asserted that the seaward
                  tion and Development (DLCD) in 1985. The                      limit of the OCS is now coincident with the
                  Oregon Estuary Plan Book, published in 1987                   U.S. EEZ. It is in this area that the Depart-
                  by DLCD, contains a full explanation of                       ment of the Interior has pursued oil and gas
                  Oregon's estuarine habitats and how they are                  leases under the OCSLA.
                  managed.                                                      The State's Territorial Sea
                  The Exclusive                                                      The 1953 federal Submerged Lands Act es-
                  Economic Zone                                                 tablished coastal states' ownership of the sea
                      In 1983, the United States asserted jurisdic-             bottom within three miles of their coastlines.
                  tion over the resources and uses of the ocean                 Within this three mile strip, called the ter-
                  within 200 miles of its coastline, an area                    ritorial sea, coastal states have the power to
                  known as the U.S. Exclusive Economic Zone                     manage, administer, lease, develop and use the
                  (EEZ). Coastal states have primary jurisdiction               land and natural resources of the ocean. The
                  and control of the first three miles and the                  federal government retains considerable
                  federal government has jurisdiction over and                  authority in the territorial sea in matters of
                  controls the remaining 197 miles of the EEZ.                  navigation, interstate commerce, national
                                                                                defense, and international affairs. For example,
                      Within the EEZ, the U.S. claims authority                 within the three miles the U.S. Coast Guard
                  to control the exploration, conservation, and                 has sole authority to establish vessel traffic
                  management of all natural resources, both                     lanes, the Environmental Protection Agency
                  living and nonliving, of the seabed, subsoil and              can designate ocean dumping sites,the Corps of
                  overlying waters. The management of natural                   Engineers can dispose of dredged material sub-
                  resources within the EEZ is primarily a domes-                ject to relevant federal acts, and the military
                  tic, not international, responsibility.                       can conduct necessary defense exercises.
                      The 200 mile EEZ also coincides with the                       In 1988, a Presidential Proclamation ex-
                  fishery conservation zone designated by the                   tended the territorial sea to twelve miles for in-
                  Magnuson Fisheries Conservation Act of 1976.                  ternational matters, but stated that domestic
                  Within this 200 mile-wide area, regional                      laws were not to be affected by the extension.
                  fisheries councils regulate foreign and some                  Many questions remain regarding the impact
                  domestic fisheries (see Ocean Fisheries):                     and full meaning of the Presidential Proclama-
                  The Federal                                                   tion.
                  Outer Continental Shelf                                       Oregon County Boundaries
                      Since 1953, the U.S. Department of the In-                     The boundaries of Oregon's coastal counties
                  terior has administered the Outer Continental                 extend seaward three miles to the western
                  Shelf Lands Act (OCSLA) and has bad jurisdic-                 boundary of the state. However, the Oregon
                  tion over the seabed resources of the Outer Con-              ocean planning law (ORS 196) requires that
                  tinental Shelf (OCS). This OCS area extends                   planning for ocean resources and for sub-
                  from the boundary with the state's three mile                 merged and submersible lands of the territorial
                  territorial sea (see below) seaward an in-





                                                                                                                                                                    The Need for an Ocean Plan * 13


                               sea be carried out under the Oregon Ocean                                                                                     Oregon does not claim ownership or poses-
                               Resources Management Plan.                                                                                            sion of the entire area. Designation of the area
                                                                                                                                                     will change neither the jurisdictional boun-
                               Oregon Ocean                                                                                                          daries of the state nor the federal legal regimes
                               Stewardship Area.                                                                                                     under which the resources of the U.S. Ex-
                                       The Oregon Ocean Resources Management                                                                         clusive Economic Zone are managed. Rather,
                               Plan designates an Ocean Stewardship Area as                                                                          Oregon believes that by designating an Ocean
                               the ecologically sensible area for coordinated,                                                                       Stewardship Area, the state is advancing the
                               comphrehensive management of ocean resour-                                                                            principles of ecologically sound ocean resources
                               ces of direct concern or responsiblity of the                                                                         management.
                               State of Oregon. The Ocean Stewardship Area                                                                                   The Oregon Ocean Stewardship Area and
                               includes the entire continental margin from                                                                           the accompanying principles of conservation
                               mean high water along the coast across the con-                                                                       and habitat protection are discussed more fully
                               tinental shelf and down to the bottom of the                                                                          in the next section.
                               continental slope.








                                                           U.S. E.E.Z (200 miles)                                                                        FederalO.C.S.                     State 3-miles                       Oregon

                                                           Sea Leval


                                                                                                                                                                                          Shelf

                                                                                                                                             Slope
                                             GoVda Ridge

                                                                                        adia
                                                               %k              CaS
                                                                                                       Basin
                                                                                                                                                                                             ............
                                                                          4r-.


                                                                                                                                                                                 ..........................
                                                                                                                                                                                 ...............
                                                                                                                                                                                 ...............
                                                                             ..........       . . . . . .                                                                        ............... .
                                                                     ......   .........                                                                                          ................                 ...........
                                                                                                                                                                                 ...............                 ................
                                                                                                                                                                                 ...............
                                                                                                                                                                                     ............ .
                                                               ......................
                                                                                              Deep Sea                                                                      Continental
                                                                                                                                                                                 Margin






                                      Cross-section of Oregon's offshore orea (not to scole)







               The Con
         for an Ocean Plan



          The Ocean Environment           17

          The Human Environment           27





4

I
                               te)d












                                              15





                16 e Oregon's Ocean Resources Management Plan





























                                                                           'A



                                                                       K" WOW,











                                  13@


                  Rugged coastal mountains plunge to the sea at Ecola State Park, in the foreground, and loom
              just inland of the town of Cannon Beach and Haystack Rock, in the distance, (ODOTphoto, 1968)





                                                                        The Ocean Planning Context * 17










                                                    The Ocean Environment


                                                                              The Continental Margin
                                                                     Oregon's Marine Communities




              0
                    regon's ocean resources planning is set in the context of global ocean condi-
                     tions and dynamics. The huge scale of ocean currents, particularly the North
              Pacific and Alaska gyres, connect vast oceanic and coastal areas into an intercon-
              nected, dynamic system.


                  In the search for a smaller, but still ecologi-      For now, Oregon must focus its attention
              cally meaningful scale, oceanographers identify      on an even smaller area which makes ecologi-
              an area offshore from Cape Mendocino in north-       cal, practical, and political sense for the state.
              ern California to Vancouver Island that shares       Oregon's Ocean Plan highlights the entire con-
              similar species composition and oceanographic        tinental margin off the coast of Oregon as
              conditions. This system, called the northern         Oregon's area of concern for ocean resources
              California Current ecosystem, may be an ap-          management.
              propriate unit for future regional planning and
              management.





                18    Oregon's Ocean Resources Management Plan














































                  In manyplaces along the Oregon coast, the forest is anchored in sandysediments previously
              deposited on the ancient seafloor, then compacted and upliftedby the collision of continents. At the
              ocean's edge this sandstone gives way first to rocky rubble, then sand, and is returned to the sea.
              (Oregon Sea Grant photo)





              Oregon Offshore                        LEGEND
                                                Generalized Sediment Types
                                                    = Mud
                                                    = Fine Sand
                                                    = Medium Sand
              Sedi'ment Types                       MR Coarse Sand
                                                    = Shell
                                                    RM Gravel
                                                    = Bedrock
                10   0     10    20    30 MILES
                                                 Oregon State University
                                                 Sediment Core Samples      0
0 0                                  0               0 Sand
         0                                           0 Mud

                                                     0 Mixed Sand and Mud
             0                 0   0 0                                      0 0 0  0   0
                       0       0 0 0 0                                    0   0 0  0 0
   0           0  0 0 0 0   0  00  0 0                                        0    0 0
0  0              0 0 0 00                  0 0                                Go  0 0 0
0  0   0          0 0                0    0   0 0            0 0      10o 0     0  0
     0 0                           0      0                    9 0          0
       0 0   0                               00 0                  0  0 0 dh  0 0  0 0
   0 0   0 0 0 0          0 0        0    0  00 0 0  0 0         0 0  0 0 0 0 0 0  0 0
       0   0 o 0  o 0  0o 0 0  0 0 0 0  00            0    0 0 0 0 0  0 0 0 0 0 0  0 0
%01i 0       0 0  0    0  0 0  0 0 0 0  so            0  0     o  to0   0 0 0 0 0    0 0
     0 0        0 0         0  0 0      0 0              0     0 0          0
0 0      0 0 41o    0              0 0  0    00 0 0  00  0 0 0   0 0  0 0 0   0 0  S 0
               0       00 0 0        0               00    0 0 0      0     0          0
                                              0 0 '0     0       0 00   0 0 0 o 0  0
                IT                                          a
                                                00   0*0
                                            60             0
                                                                   (a 0 0$C@,%  .0 0
                                                         0
                                                0              0 0
                                                                   0
                                              @00




                                                                                  000 0   0


                                                                                  000 0   0


                                                                  0               000000  0


                                                                                  00 0 0

                                                         00 0 0 8                 9
                                                                                  ocp0
                                                                                  0   0 000
                                                                                  0  0 0


                                                                                  0  0


                                                                                  00 0    0


                                                                                  00 o  00


                                                                                  0090  00


                                                                                  00  00


                                                                                  00 0


                                                                                  00000 0


                                                                                  0 000


                                                                                  000


                                                                0                 00


                                                              0 0 0
                                                                                  0
                                                         0 0                      0
                                                                                  0
                                                         0 0 0                    0000

                                                              0 0                 000


                                                         0      0 0               00 00


                                                                 0 0              00


                                                              00 0                0 0 0










                                                                                  ,6 Id,






                                                                                  00 0

                                                                                  0
                                                                                  Nr-ox, 00
                                                                                  kj'\*j01V,
                                                                                  000 0 CO 011
                                                                                  000
                                                                                  000 000 4D

                                                               0                  0 0
                                                                                  000
                                                                                  00 00
                                                                                  odo o
                                                                                  0 0 0 O8q

                                                                                  0000
                                                                                  00
                                                                0


































































                                                                                  0
                                                                                  0
                                                                                  0
                                                                                  0
                                                                                  0
                                                                                  0






                                                                             The Ocean Planning Context 9 19


                                                                            1
                 The Continental Margin

                 Analysis of the physical and biological fea-          Prominent submarine banks occur near the
              tures of the Ocean Planning Area further                 outer edge of the shelf. The four major banks
              focuses Oregon's ocean resources management              are the Nehalem, Stonewall, Heceta, and Co-
              setting on the continental margin for the follow-        quille. Submerged rocky outcrops are also
              ing reasons:                                             found on the inner shelf, especially between
               ï¿½ The continental margin is defined clearly             Coos Bay and the Rogue River. Sea stacks and
                 by physical features.                                 rocky islands thrust above the sea surface close
                                                                       to shore.
               ï¿½ The continental margin supports distinct                  Oregon's continental slope is a narrow
                 marine biological communities.                        strip, from 12 miles wide at Cape Blanco to 60
               ï¿½ The majority of human uses of ocean                   miles wide off the Columbia River. From the
                 resources off the Oregon coast occur ion the          outer edge of the continental shelf, the slope
                 continental margin.                                   plunges to the deep sea bed about 11/2 miles
               ï¿½ Events which occur on the continental mar-            below the surface. Gently sloping benches, low
                 gin can directly affect the interests of the          relief hills, and a few steep escarpments are
                 state of Oregon.                                      found on the upper part of the slope.
              Physical Features of the                                     Two prominent submarine canyons and
                                                                       numerous smaller submarine valleys breach
              Continental Margin                                       the outer edge of the continental shelf and the
              TOP09rciphy                                              upper slope. The Astoria Canyon cuts deeply
                 The continental margin is where the rocks             into the outer shelf about 10 miles west of the
              of the continent meet the ocean floor. The               Columbia River. The much smaller Rogue
              major structural features of the continental             Canyon begins near the edge of the shelf off-
              margin are the continental shelf and the con-            shore of the Rogue River. These submarine
              tinental slope.                                          canyons and a number of smaller valleys are
                 OregoWs continental shelf is a relatively             important avenues for moving sediment across
              flat, gently sloping terrace. The shelf is nar-          the shelf and down to the deep ocean floor.
              rowest (10 miles) near Cape Blanco and widest            Bottom Sediments
              (46 miles) off Florence and the central coast.               Sand and mud cover most of the continen-
              The depth of the shelf at its outer edge where it        tal margin. The movement and deposition of
              merges with the steeper continental slope                these sediments over the continental margin is
              varies from about 450 to 550 feet (abo.ut 145 to         controlled by river discharge; estuarine circula-
              185 meters). The shelf is not entirely flat.             tion patterns which can trap some of the sedi-
                                                                       ment; coastal erosion; wave characteristics;
                                                                       ocean currents; density differences in the
              -                                                        oceanic water column; benthic organisms bur-
                 The map on the previous page shows the dis-           rowing in the sediment; and ocean dumping of
              tribution of sediment types off Oregon, and the          material dredged from coastal harbors. In the
              location and sediment composition of samples             winter, storms can stir the bottom sediments
              taken from the ocean floor over the post several         across all of the continental shelf.
              decades.

                 Source: USGS and OSU





                           20 9 Oregon's Ocean Resources Management Plan


                           Ocean Currents                                                                         The broad, shallow surface current which
                                The movement of water over the continen-                                     flows southward along the Oregon coast is
                           tal margin off the Oregon coast is driven by the                                  called the California Current. During the sum-
                           major Pacific Ocean currents. Local winds and                                     mer, the California Current moves southward
                           weather create daily, seasonal, and yearly                                        offshore of the continental margin at speeds of
                           variations in the general circulation patterns.                                   about 2.5 to 5 miles per day. During periods of
                                The North Pacific Current crosses the ex-                                    strong northwest winds, this current may
                           panse of the Pacific Ocean from Japan to Cana-                                    double its speed. A narrow, fast undercurrent
                           da where it encounters the continental margin                                     moves north ward deep below the surface along
                           near Vancouver Island. The North Pacific Cur-                                     the continental slope at depths greater than
                           rent then splits into a northward flowing cur-                                    600 feet (200 meters). During the winter, the
                           rent carrying water into the Gulf of Alaska and                                   faster (6 to 12 miles per day) Davidson current
                           a southward flowing current carrying water                                        flows northward at all depths over the continen-
                           along the coast from Washington to California.                                    tal margin pushing the California current fur-
                                                                                                             ther offshore.

                                                                                                                                      Although there are general
                                                                                                                                 seasonal patterns in surface cur-
                                                 N 0 F-TH                                                                        rents, the high variability in
                                                C___      I-                                                                     winds off the Oregon coast results
                                                                                                                                 in a great deal of variability in

                                           C-1
                                                                                                                   . . ........ .
                                                                                                                                 these currents. Current fluctua-
                                                                                                                 ,......... . . .... .
                                                                                                                                 tions are the strongest near the
                                                                                                                                             id can change quickly and

                                                                                                      .......... ........
                                                                                                                                        st simultaneously over long
                                                                                                                                 almo
                                                                                                      ............. .....
                                                                                                 ....... . .. .
                                                                                                     ......................
                                                                                                . ...... .... .... .... .. ..    stretches of the coast and
                                                                                                                                 throughout the entire water
                                                                                                                                 column over the shelf. These fluc-
                           ,"MUL UR-CULATION                                                                                     tuations in current patterns are
                                                                                                                                 nearly impossible to predict.

                                                                                                                                 e The Columbid River Plume
                                                                                                                                      The Columbia River also great-
                      WINTM clR@-_ULA710N                                                   N09-7H                               ly influences ocean currents
                                                                                                                                 across the continental margin.
                                                                                                                                 The fresh river water mixes slow-
                                                                                                                                 ly with ocean surface waters and
                                                                                            3
                                                                                                                    ... .....    forms a large dilute lens or
                                                                                                                                  plume" which extends south-
                                                                                                                                 westerly from Astoria. A strong,
                                                                                                    . . . . . . . . . . . . .
                                                                                                                                 narrow current flows along the
                                                                                                                                 boundary between the lighter
                                                                                                                                 river water and the denser ocean
                                                                                                                                 water. On the inshore side of the
                                                                                                                                 plume, this current often enhan-
                                                                                                                                 ces and strengthens the coastal
                                                                                                                                 jet. Changes in the winds will
                              Seasonal ocean currents                                                                            move this current either closer or





                                                                                     The Ocean Planning Context 9 21


                                                                                                         e Winter Currents
                                                                                                             In the winter, winds
                                   WIND DI.QfLRON
                                                                                                         are predominantly from
                                                                                                         the southwest. Surface
                                                                                                         waters across the con-
                                                                                                         tinental margin move
                                                                                                         toward the shore during
                                                                                                         the winter. High runoff
                                                                                                         from coastal streams and
                                                                                                         the Columbia River
                                    OEM                                                                  dumps a lot of light fresh
                                     .. ....... ......                                                   water along the coast
                                                                                                         during the winter. This
                                                                                                         sets u
                                                                                                               p a northward flow-
                                            :::..@ ... .......

                                             . . . . . . . . . . ..
                                                                                                         ing current along the
                            #@ft- XNAU.55, t976                                                          coast which can reach
                 I                                                                                 I     very high speeds (11/2 to
                                                                                                         2 miles per hour), espe-
                    Offshore water transport and upwelfing                                               cially during strong
                                                                                                       winter storms. Changing
                 further away from the coast. South winds move                                         winds often interrupt the
                 this current offshore, while north winds move                 general winter current pattern and can move
                 it closer to shore.                                           surface waters offshore and trigger coastal up-
                    Summer Currents and Upwelling                              welling which can last for days or weeks.
                      Summer is the season of upwelling, al-                   9 Deep Water and
                                                                                  Bottom Currents
                 though upwelling can occur in any season if                        Deep water and bottom currents are poorly
                 conditions are right. In the summer, winds are                understood. In the summer, a deep counter cur-
                 primarily from the north. Due to the earth's                  rent flows northward under the southward
                 rotation and the topography of the continental                flowing surface current. This deep countercur-
                 shelf and shore, surface waters move west                     rent is strongest along the shelf break and
                 away from the shore. This offshore movement                   upper slope. The deep currents also vary with
                 causes deep, cold, nutrient-rich waters to rise               local topography. For example, eddies are com-
                 to the surface. This process is called upwelling.             mon near the banks and the beads of sub-
                 Although the most active upwelling is restrict-               marine canyons.
                 ed to a narrow band approximately 6 to 15
                 miles from shore, the upwelling has a great in-                   Vulnerability to Spills and Contaminants
                 fluence on currents over the entire continental                    The fast speeds, multiple directions, high
                 shelf.                                                        variability and unpredictability of the currents
                      Differences in the densities between the                 over the continental margin make the entire
                 relatively heavy upwelled water and the lighter               continental shelf vulnerable to adverse effects
                 surface water set up a fast southward flowing                 from oil spills and other pollutants. An oil spill
                 current called a coastal jet. The core of the coas-           can move up or down the entire Oregon coast
                 tal jet is often as close as 10 to 20 miles from              in the matter of a few weeks, and could come
                 shore and can travel at speeds of 20 to 35 miles              ashore from a spill anywhere over the continen-
                 per day.                                                      tal margin in just a few days.





                 22   Oregon's Ocean Resources Management Plan
                                 '128W
                                                                                            f
                                                                                18     JuN 88/9am

           44N
                                              +













           ,1@ "M







































                                                                       A
                  Satellite images reveal that ocean currents flowing near the coastline are as complex and
               dynamic as those of a mountain stream. Special cameras record the temperature of the ocean's sur-
               face waters, and the resulting images show ocean features that are both invisible to the naked eye
               and nearly impossible to measure using traditional sampling and measuring techniques. Scientists use
               such images to study how coastal promontories, like Cape Blanco and Cape Mendocino, and sub-
               marine features like Heceta Banks affect ocean currents,
                  This image covers the ocean and coast from Yaquina Bay, Oregon, to Cape Mendocino in Califor-
               nia. It was taken in July, when strong northwest winds drive warmer surface waters (red areas) out to
               sea, thus allowing cold nutrient-rich waters (blue areas) to rise to the surface close to shore. The upwell-
               ing colder waters are pulled into complicated eddies and plumes by the warmer southward-flowing
               California Current.
                  Fishermen also use satellite imagery to target fish catch, since many fish species congregate near
               the boundaries between cold and worm waters. (NOAA photo courtesy of Ted Strub, OSU)






                                                                            The Ocean Planning Context  23

                 Oregon's Marine Communities
             High Biological Productivity                             seasonal peaks in primary production and in
                 Oregon's continental margin is extremely             plankton "blooms" throughout the spring and
             rich and productive. The coastal upwelling               summer.
             brings cool, nutrient rich waters to the surface             During the summer the areas of maximum
             over the entire continental margin and stimu-            primary productivity are about 15 to 20 miles
             lates plant growth. Phytoplankton, the micro-            from shore. Sometimes the areas of highest
             scopic plants of the ocean, thrive in the                productivity are concentrated very close to the
             upwelled water. Primary production in the                shore. However, at other times, especially
             waters of the continental margin can be more             during periods of strong upwelling, these areas
             than double the primary productivity of the              of high productivity are spread out across the
             open ocean. (Primary productivity is a biologi-          shelf. Additionally, a lot of primary production
             cal measurement of the size of plant popula-             occurs in the surf zone.
             tions and the amount of food produced by these               The large phytoplankton populations sup-
             plants.) The seasonal occurrence of upwelling            port large populations of microscopic animals
             and pulses in upwelling events result in                 called zooplankton, primarily copepods,


                 Typical marine food web off the Oregon coast
 




                           24 * Oregon's Ocean Resources Management Plan


                           euphausiids, and larvae of fish and shellfish.                                    nian communities which are at the northern
                           The zooplankton are food for large populations                                    edge of their distribution.
                           of fish, birds, and mammals. The waters over                                           Populations of animals at the edge of their
                           the continental margin off Oregon are extreme-                                    ranges tend to be smaller, more variable an-
                           ly rich and productive, as evidenced at least in                                  nually, and more sensitive to environmental
                           part by the large fisheries industry dependent                                    changes than populations in the center or op-
                           on these waters.                                                                  timum part of their range.
                           An Ecotone - The Mixing of Several                                                     Coho salmon off Oregon are an example of
                           Biological Communities                                                            a species in an ecotone and at the edge of its
                                The waters of Oregon's continental margin                                    range. In North America, coho salmon are
                           are biologically important for other reasons too.                                 found only in the cold, productive waters of the
                           This habitat forms what ecologists call an                                        subarctic region. Abundance of coho is maxi-
                           ecotone, a boundary area where different                                          mum at the center of its geographic range (i.e.,
                           biological provinces overlap. In an ecotone,                                      offshore from British Columbia) and declines
                           members of different communities are mixed                                        with changes in latitude towards the edges of
                           together. The species found off Oregon are rep-                                   its distribution. Average annual coho commer-
                           resentative not only of a native community, but                                   cial catch data over the past 60 years demon-
                           also of subarctic communities which are at the                                    strate this distribution pattern. From year to
                           southern edge of their distribution and Califor-                                  year, the relative strengths of currents flowing
                                                           Commercial Salmon and Crab Landings, 1970 - 1986
                                                                                   in pounds round weight


                           20,000,000
                                                                                                                                                . . . . .. . . . . . . . . . .
                                                                        ..... .. ...... .. ... ......                                 - - - - - - .......
                                                                                                                                                          ...............
                                                                        .......... .
                                                                        .........
                                                                                                                                      ..................... . . .....
                           18,000,000                                                                                                                     . . .......

                                                        ...........     ....
                                                           ........     ................................
                                                        ..........
                                           . . ...........              .................................
                                                 ... ........... .      .....      .......
                                           - - -------- --
                           16,000,000                   . . . . . . . . . . . . . . . .
                                                 .. ..........
                                                 ...                    .......................X

                                                        .............

                                                 .. ............        .. ......... ..
                                                 ... ............       . ........

                                                                                                                                                     ................
                           14,000,000
                                                                                                                                      . ..... ..
                                                                            .............                                           ..........................
                                                                        .. ............                                              ..........................
                                                                                                                                           .... .........


                                                                            ...............
                                                        ...........     . . ...
                                                        ..........
                                                                                                        I.......                . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
                                                                                                                                  ........ . .. ..
                           12,000,000
                                                                                          .......................... . . .. ..                 . . . . .
                                                                                                                                                          ............
                                                                            . .. .....................................
                                                                                                                                         .. ...............
                                                                                                                                      . ... ......        ..........
                                                                                                                                      . .. ...........
                                                                                                                                                                      El Salmon
                                                                                   .. ..                                          ..........................
                                                                                                                                  ...............................
                                                                                                                                   ............... ..... ...
                                                                                                                                      .... ...... ... .
                           10,000,000    -
                                                                                                                                 .. . ... . .....
                                                                                                                                                          ...........
                                                                                                                                                          ...........
                                                                                                ............
                                                                                                                                                                            C
                                                                                                                                                                                rab
                                                               .. .. . .. ..
                                                                                                                                 ...........
                             8,000,000                                                                                                              - - - - - - - - - - - - -
                                                                                                                                         .. ................
                                                                                              . . ...        .. ...
                                                                                                                                 ..............


                                                                                                                                                          ............
                                                                                                                                . ...............
                             6,000,000                                                                       ..

                                                                                                                                ... ......
                                                                                                                                ....  ...... ....
                                                                                                                               .............. ..


                                                                                                                                .............. ........
                             4,000,000
                                                                                                                               ......... ...

                                                                                                                                                    . ............
                                                                                                                                                    .. ............

                                                                        . ... . . . ..
                             2,000,000                                             .. ..
                                                                                                                                            K.
                                                                        ... ..     . . . .. ..


                                       0

                                            1970        1972            1974       1976         1978         1980         1982         1984         1986


                             History of two fisheries shows wide annual variability






                                                                               The Ocean Planning Context * 25


                 into the area off the Oregon coast from the              boundary or region is very difficult. Charts plot-
                 northern subarctic and from the southern sub-            ting the distribution of spawning areas and
                 tropical regions vary greatly. The environmen-           nursery grounds show different species using
                 tal variability in water temperature and                 the nearshore waters, the offshore banks, the
                 nutrient supply results in variability in biologi-       continental shelf break, and the continental
                 cal productivity and in species composition of           slope. Other charts plotting the distribution of
                 populations of zooplankton and fish. Migration           larvae, juveniles and adults show fish popula-
                 routes of adult salmon and distribution pat-             tions all across the continental margin.
                 terns of the zooplankton on which they feed                  The only boundary that does make ecologi-
                 will also vary from year to year. And, offshore          cal sense is the seaward edge of the continental
                 Oregon the average size of mature fish, fecun-           margin. Although some species are found in
                 dity, and survival of adult coho is generally less       the waters of the deep ocean and the continen-
                 than in the middle of their range where such             tal margin, in general, the species composition
                 environmental fluctuations are not as likely.            of fish populations, the size of the populations,
                 Highly Variable and                                      and the distribution of spawning areas of the
                 Highly Vulnerable                                        continental margin are distinctly different from
                 Communities                                              those of the deep open ocean.
                     One of the most characteristic and unique            Huge Breeding and Feeding Bird
                 qualities of biological communities of the con-          Populations
                 tinental margin off Oregon is the extreme                    Large numbers of seabirds migrate along
                 variability, both seasonally and yearly in               Oregon's continental margin. Multitudes of
                 planktonic and larval species and in fish stock.         nesting seabirds along Oregon's coast depend
                 This high variability results in a high vul-             on relatively undisturbed coastal nesting
                 nerability to long-term, widespread, and ad-             habitats and on the rich coastal waters for food
                 verse effects from human activities.                     for themselves and their young. Some bird
                 Rich Fish Populations                                    species have very particular habitat and feed-
                     The productive continental margin sup-               ing requirements and are found only in certain
                 ports large and diverse populations of fish, all         areas. As examples, the northern fulmar and
                 of which are food to or feed on other creatures          the sooty shearwater are found primarily along
                 of the sea in a vast and complex food web.               the mid and outer shelf and the shelf break.
                 Some of these fish species are commercially im-          The California and western gull are nearshore
                 portant.                                                 and coastal birds which are rarely found
                     Populations of many fish species are con-            seaward of the shelf break. Some seabirds such
                 centrated over the entire continental margin.            as the tufted puffin nest in burrows dug in the
                 The distribution of fish is, of course, highly vari-     dirt atop offshore rocks and islands and travel
                 able and different species are associated with           daily to the rich feeding grounds near the edge
                 specific sediment types. But, in general, fish           of the continental shelf to capture fish to bring
                 populations tend to be highest in areas where            back to the fledglings in their nests.
                 there is a break or change in bottom topog-                   Biologists believe that many of today's
                 rapby, such as over the banks, along the shelf           seabird populations are just remnants of much
                 break, and at the beads of submarine valleys             larger seabird populations common in the
                 and canyons.                                             times before intense human use and develop-
                     Trying to draw a boundary line or pinpoint           ment of the coast. A number of seabird species
                 a region in the Oregon Ocean Planning Area               have been formally listed as sensitive,
                 and say that fish are concentrated within that







                26  Oregon's Ocean Resources Management Plan


                                                                                    threatened, or endangered by the
                                                                                    state and federal governments.
                                                                                    Diverse Marine Mammal
                                                                                    Populations
                                                                                        The continental margin is impor
                                                                                    tant habitat to a wide variety of
                                                                                    migrating and resident marine mam
                                                                                    mals. Gray whales migrate along the
                                                                                    Oregon coast within a few miles of
                                                                                    shore from November through June.
                                                                                    A year round population of adult
                                                                                    killer whales is found over the shelf
                                                                                    Several species of seals and sea lions
                                                                                    use the offshore rocks and islands as
                                                                                    pupping and haul out areas. North-
                                                                                    ern fur seals migrate along the shelf
                                                                                    edge from its wintering grounds in
                                                                                    southern California to its breeding
                                                                                    grounds in the Pribilof Islands.

                                                                                       Marine mammals of the offshore
                                                                                    rocks and islands depend on the
                                                                                    waters of the continental margin as
                                                                                    feeding areas. For example, north-
                                                                                    ern sea lions leave their rookery
                                                                                    areas near Cape Arago and the
                   Populations of breeding seabirds and proportion of the           Rogue Reef and travel as far as 20 to
               total seabird population of each species,                            25 miles offshore to forage for food.
                                                                                    California sea lions, harbor por-
                                                                                    poises, and harbor seals not only
                                                                                    feed in river mouths and estuaries,
                                                                                    but they also forge across the con-
                                                                                    tinental margin out to the shelf
                                                                                    break.







                                                                            The map following this page shows the loca-
                                                                        tion of the most sensitive marine species
                                                                        habitats along the Oregon coast. Sites on the
                                                                        map include bird colonies that serve as breed-
                                                                        ing sites, pinniped haulout locations, and known
                                                                        threatened or endangered species locations.
                                                                            Source: ODFW and USFWS
 









                                  o        Breeding Bird Colonies

                                           Pinniped Haulout Sites

                                           Endangered Species


                              10            0             10            20            30 MILES






   Sensl"tl',ve Species Locations






                                                                                 The Ocean Planning Context * 27











                                                          The Human Environment


                                                                                                     The Counties

                                                                                        The Coastal Economy
                                                                                        Ocean Users and Uses
                 M        any Oregonians have chosen the coast as their home. They live in small
                         towns like Langlois, Yachats, and Gearhart; in the larger cities of Astoria,
                 Newport, and Coos Bay; in retirement or second home developments like Little
                 Whale Cove and Salishan; and in relatively remote areas where neighbors are few.


                     The coast is many things to many people:              Curry. The 1987 estimated coastal population
                 the family home for many generations; a place             totaled about 190,000 persons or approximately
                 to earn a living from the rich natural resources,         24 persons per square mile. The largest
                 such as timber, fish and shellfish; a retreat             metropolitan area along Oregon's coast is the
                 from the populated cities and hectic urban                Coos Bay area where the neighboring cities of
                 living; a place to play, to walk on the beaches,          Coos Bay and North Bend have a combined
                 to fly kites, to hike, to race dune buggies, to           total population of about 24,000. Coastal
                 canoe and kayak, to angle from a small boat or            Oregon has thirty-three cities and approximate-
                 the shore; a place to study the natural                   ly 40% of the coastal population resides in
                 phenomena of the forests and the sea: an en-              cities with populations over 2500. The total
                 vironment to stimulate human imagination                  population of coastal Oregon is roughly 7% of
                 and explore individual creative capacities; and,          the state's population.
                 basically, a place to live, do business, and raise            Oregon coastal communities are experienc-
                 a family.                                                 ing significant changes in their population and
                     The population of Oregon's coast lives in             their economies. Many of these changes are a
                 five coastal counties and the coastal parts of            function of the overall national demographic
                 two large, mostly inland counties. These coun-            trend toward an older population. Oregon, and
                 ties, from north to south, are Clatsop, Til-              especially the coast, has a relatively large per-
                 lamook, Lincoln, Lane, Douglas, Coos, and                 centage of elder citizens. Many retired people





               28 9 Oregon's Ocean Resources Management Plan


              have moved into coastal areas because these          adults have left coastal areas to seek education-
              communities are so "liveable" and provide            al andjob opportunities elsewhere. Both of
              retreats from urban or industrial areas. Young       these trends are likely to continue.
























                                N
























                                                                                                 V_l

                                                                                          %
                                                                                          V11










                 Nye Beach in the city of Newport is typical of the close relationship of Oregon's coastal com-
              munities with the ocean. Jumpoff Joe, a landslide area from ocean erosion, is located in the center of
              the photo. Rising sea level is projected to accelerate erosion along the cliff edge. Cities @Vll need to
              plan for this geologic eventuality. (ODOTphoto, 1978)






                                                                              The Ocean Planning Context * 29

                    The Counties

                Clatsop County                                          tion Agency, U.S. Fish and Wildlife Service,
                ï¿½ Population: 33, 100                                   and the Oregon Department of Fish and
                                                                        Wildlife. Newport, a major fishing port, is also
                ï¿½ Principal Industries. Fishing, Lumber,                the Dungeness crab capitol of the world. Lin-
                  Agriculture, and Recreation                           coln City, formed by the consolidation of five
                    Clatsop County was named for the Clatsop            small towns, is an oceanside community with
                Indians, one of the many Chinook tribes living          numerous tourist-oriented attractions and
                in Oregon. Fort Clatsop, Lewis and Clark's              resorts. Lincoln City is also a popular retire-
                winter headquarters in 1805, is now a national          ment community.
                memorial and is located near the mouth of the               Sport fishing is popular and productive
                Columbia.                                               along the coast of Lincoln County, from the
                    Astoria, the county seat, was the first             Siletz River and Bay to Yachats River. Sizeable
                American city to be settled in the West. Astoria        charter and commercial fishing fleets operate
                was established as a fur trading post in 1811.          out of Depoe Bay and Newport. Mild winters
                The first U.S. Post Office west of the Rocky            and cool summers help to produce an abun-
                Mountains was also established in Astoria in            dance of horticultural specialities.
                1847.
                Tillamook County                                        Lane County
                                                                        9 Population: 273,700
                ï¿½ Population: 21,400                                    * Principle Industries. Agriculture, Educa-
                ï¿½ Principle Industries: Agriculture, Lum-                  tion, Fishing, Food Processing, Logging,
                  ber, Fishing, and Recreation                             Manufacturing of Wood Products,
                    Dairy farms dominate Tillamook County's                Recreation, and Tourism
                fertile valleys. The county is the home of the              Only a relatively small part of Lane County
                world-famous Tillamook cheese. Logging and              is located in the coastal zone. Eugene, Oregon's
                lumbering are also again becoming economical-           second largest city, occupies the population
                ly important due to the reforestation and               focus of the county in the Willamette Valley.
                regrowth of most of the huge "Tillamook Burn"           Florence, at the mouth of the Suislaw River, is
                area.                                                   the only coastal city in Lane County. Most of
                    Tillamook County offers ocean and stream            the land in coastal Lane County is part of the
                fishing, charter and dory boats, clamming, crab-        Suislaw National Forest.
                bing, beachcombing and biking. The county's             Douglas County
                oceanfront is famous for its scenic grandeur.           9 Population 92,150
                Lincoln County                                          9 Principle Industries: Lumber, Mining,
                ï¿½ Population: 38,800                                       Agriculture, Fishing, and Recreation
                ï¿½ Principle Industries. Lumber, Fishing,                    Douglas County extends from the coast up
                   Agriculture, and Recreation                          the Umpqua River drainage to the Cascades.
                    Newport is Oregon's oceanography re-                Only a relatively small part of the county is ac-
                search center with OSU's Mark 0. Hatfield               tually in the coastal zone. Almost all of the
                Marine Science Center which also provides               coastline of Douglas County is in the Oregon
                facilities for the National Oceanic and Atmos-          Dunes National Recreation Area. Reedsport,
                pheric Administration, Environmental Protec-            Gardiner, and Winchester Bay, all located near






                        30       Oregon's Ocean Resources Management Plan







                                                                              Clatsop, +0.4%



                                                                                                                E] -9.0 %to -6.0 %
                                                                           Tilli nook, -0.3%                    E2       -6.0 %to -3.0 %
                                                                                                                E]       -3.0 %to 0.0 %
                                                                                                                0        0.0 % to 2.9 %
                                                                                                                         3.0 % to 6.0 %




                                                                      ......... .













                                                                                                      Lane          %









                                                              ..............

                                                      . ... ......    ......
                                                      ...........
                                          Coos, -6.5%
                                                             ..........-.......
                                                                      ..........
                                                                      ..........
                                                                   ............
                                                                   .........-                Douglas, -0.6%

                                                                ............
                                                       .......... . . ......
                                                    ............
                                                               ............
                                                               ...........
                                                            .. .........
                                                               ...........
                                                               ............
                                                               ..............






                                                            Curry, -0.8%










                          Percent change in coastal county populations from 1980 - 86





                                                                         The Ocean Planning Context * 31


             the mouth of the Umpqua River, are the center         Francisco, is the world's largest forest products
             of population and activity in coastal Douglas         shipping port.
             County.                                               Curry County
             Coos County                                           e Population: 17, 1 W
             ï¿½ Population: 6 1,000                                 * Principle Industries. Lumber, Agricul-
             ï¿½ Principle Industries: Lumber, Fishing,                 ture, Commercial and Sport Fishing,
               Agriculture, Shipping, and Recreation                  Recreation, and Tourism
                 The name "Coos" is derived from the native            The county contains valuable standing tim-
             Coos Indian word which may translate to               ber and also offers spectacular coast scenery
             "lake" or "place of pines." Although trappers         and recreational attractions, such as beach-
             had been in the area a quarter of a century ear-      combing, clamming, and crabbing; excellent
             lier, the first permanent settlement in present       fishing (freshwater and saltwater); river scenic
             Coos County was made at Empire City, now              boat trips; and coast, river and mountain
             part of Coos Bay, by members of the Coos Bay          hiking trails. The Port of Brookings is con-
             Company in 1853.                                      sidered one of the safest harbors along the
                 Forest products, tourism and fishing              coast for ocean recreational fishing.
             dominate economic activity in Coos County.                Agriculture in Curry County includes rais-
             Boating, dairy farming, myrtlewood manufac-           ing sheep and cattle, dairy farming, and raising
             turing, ship repair, module fabrication and           cranberries, blueberries, and horticultural nurs-
             agriculture specialty products, including cran-       ery stock.
             berries, also play an important role. The Inter-          (The source of most of the preceding
             national Port of Coos Bay, considered the best        material is the Oregon Blue Book, 1989-1990.)
             natural harbor between Puget Sound and San















             @6





                                                                 if, r


                "N



                 A large freighter glides into the Columbia River estuary at Astoria. The Columbia River, along with
             Coos Bay, is a major international port on the Oregon coast. (Oregon Sea Grant)





                 32    Oregon's Ocean Resources Management Plan



















                                                                                                           67

                            girl,


                                                                               %Vol*






                                                                      4















                                                                                                     ayofs
                     Seafood processing, often small scale and labor intensive, is on economic mainst       everal
                 coastal ports. This part of the industry depends on a continuous supply of fresh fish from the ocean.
                 (Oregon Sea Grant)





                                                                                      The Ocean Planning Context * 33

                     The Coastal Economy
                 Personal Income                                               Security payments and retirement pensions;
                     Coastal Oregon has experienced generally                  and other export industries such as water
                 low overall economic growth and amplified                     transportation, marine cargo handling, paper
                 swings in employment during national reces-                   and paperboard mills, boat and ship building,
                 sions. The demographic "aging" of the coastal                 and state and federal education and research
                 population combined with the coast's reliance                 facilities.
                 on natural resource-based industries that are                      The Oregon Coastal Zone Management As-
                 subject to dramatic supply and demand chan-                   sociation (OCZMA) recently published an
                 ges have caused per capita personal incomes of                analysis of the coastal economy in The
                 coastal residents to lag behind averages for the              Economic Landscape of the Oregon Coast. The
                 rest of Oregon and the U.S.                                   results of this study show that passive income
                     Coastal residents depend on economic ac-                  from such sources as social security payments,
                 tivity in six basic categories: commercial fish-              other retirement benefits, disability payments,
                 ing; commercial agriculture; lumber and wood                  interest and dividend income, and rents are be-
                 products; tourism; passive income from invest-                coming increasingly significant as the average
                 ments and transfer payments, such as Social                   age of the coastal population increases. Of the
                                                                               natural resource based industries, the timber



                            100



                            90



                            80



                            70



                            60

                 Percent    50
                 of Income


                            40



                            30


                            20


                            10


                              0           +                                                                                +
                                  Clatsop Tillamook    Lincoln    Coastal  Coastal    Coos       Curry  Coast Total Oregon     United
                                                                   Lane    Douglas                                             States

                                              IN Investment & Disability D Transfer Payments     E Wages & Salaries

                    Sources of personal income in 1987 in coastal counties, Oregon, and the U.S. (Source: OCZMA)





                  34*    Oregon's Ocean Resources Management Plan


                     Personal income sources in Oregon's coastal communifies in 7 987. (Source: OCZMA)



                                                                                     Fishing 10.8%

                                   Investment 21.9%                                              Agricufture 2.6%





                                                                                                           Timber 14.9%

                                                            1  1 1 H+H





                                                                                                     WIT
                                                                           Ng


                                                                                                         Tourism 7%
                              Retirement &
                             Disability 21.4%
                                                                                             g


                                                                    .-M: NX
                                                                     ..........



                                                                     . . . . . . . . . . . . . . . . .

                                                                                   Other Wages 21.4%



                 industry accounts for about 15% of the total es-            defined or understood. There is a strong connec-
                 timated personal income of coastal residents,               tion between the attraction of Oregon's relative-
                 whereas fishing makes up about 11% of the                   ly clean, uncrowded coastal environment and
                 total.                                                      the growing population of retired persons from
                 Coastal Retirement                                          outside the coastal area.
                     The OCZMA economic profile reveals the                      The size and growth of transfer payments
                 growth of "transfer payments" as a major sec-               spells a shift in the coastal economy away from
                 tor of the coastal economy. This retirement-re-             reliance on resource extraction and gives a
                 lated sector is larger than either timber or                glimpse of the changing social and political
                 fishing in almost all counties (except Clatsop              makeup of coastal communities. For this
                 County where commercial fisheries is slightly               population, many with political savvy and
                 higher). This influx of older persons, coupled              money, the ocean is more of a visual and aes-
                 with historic patterns of "out-migration" of                thetic resource than a resource to be actively ex-
                 young people after high school, creates a higher            ploited.
                 percentage of older persons and a shrinking
                 pool of young labor for industrial development
                 on the coast.                                                   The following plot shows many of the
                     The relationship of the coast's two largest             generally recognized features along the coast.
                 sectors, "transfer payments" and "investments"              Highway 707, urban growth boundaries, coun-
                 to ocean and coastal resources is not clearly               ties, and so on.




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                                                                            The Ocean Planning Context 9 35


               Ocean Resources                                         provides about 2.6 percent of Douglas county's
                  The direct economic role of ocean resources          personal income.
               varies from community to community. In 1987,               The economic contribution of recreational
               commercial fishing, a major social component            activities related to the ocean is difficult to
               of the coast, provided 10.9 percent of the total        quantify because there is no clearly defined "in-
               coastal personal income. Yet for that same year         dustry" to measure. The OCZAIA study focused
               in Lincoln County, fishing contributed 16.4 per-        on portions of selected industries that are
               cent ($80.9 million) and in Clatsop County 20.5         directly affected by visitor expenditures: hotels
               Percent ($94.2 million) of the total personal in-       and lodging places, amusement and recreation
               come, both well above average. On the other             services, eating and drinking places, retail
               band, in Curry County, commercial fishing con-          sales and automobile service stations that are
               tributed about 4.7 percent ($10.4 million),             directly affected by tourist's expenditures. Over-
               slightly less than tourism at 5 percent ($11.0          all, tourism is estimated to contribute ap-
               million). None of these figures reflect the             proximately 7 percent to the total personal
               economics of ocean recreational fisheries which         income of the Oregon coast. How much of this
               are not specifically addressed by recent avail-         is directly related to ocean and coastal resour-
               able studies.                                           ces is simply impossible to determine. In some
                  Other ocean related industry is con-                 communities, such as Depoe Bay and Brook-
               centrated in a few major ports. In 1987, the            ings, recreational ocean fishing contributes sig-
               marine transportation and cargo sector con-             nificant income to the community, especially
               tributed less than 2 percent of the total per-          during salmon season. Whale watching trips,
               sonal income but 4.5 percent ($34 million) in           especially from Newport and Depoe Bay, are a
               Coos County. Boat building in Coos Bay                  growing segment of off-season trips for charter
               provides about 1 percent of Coos county's per-          boat operators.
               sonal income, while boatbuilding at Reedsport

                   4
                                                      k








                                              M
                                                                                      wp@
                                          J
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                   Fishing vessels represent the personal investment of individual fishermen in the future of Oregon's
               fisheries industry. (Oregon Sea Grant)






                36    Oregon's Ocean Resources Management Plan




















                                                                                         7',





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                                              A Or
                                              10iW



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                                                              -iv





                    These boats tied up a Newport are a small part of Oregon's commercial fishing fleet, which num-
                bers about 2000 vessels. (Oregon Sea Grant)






                                                                                 The Ocean Planning Context 9 37


                    Ocean Users and Uses

                    Oregonians depend on the ecologically and                   Fishermen form a diverse community.
                economically valuable resources of the ocean.              They fish a wide variety of species including
                Human uses of the ocean are concentrated on                salmon, cod, rockfish, snapper, sablefish, sole,
                the resources of the continental margin. These             flounder, halibut, tuna, shrimp, crab, whiting,
                resources can be listed and categorized, but               sea urchins and squid. Some of them are inde-
                Oregonians know that they are ecologically in-             pendent businessmen who own one or more ves-
                terconnected and interdependent and that                   sels. Others work as crew members. Some
                these resources are highly valuable to human               work with foreign companies in joint fishing
                economies and highly vulnerable to disruption              ventures.
                by human activities.                                            Commercial fishing contributes about 10
                Commercial and Recreational Fishing                        percent of the total personal income of coastal
                    Commercial fishing was one of Oregon's                 counties and communities and in major fishing
                first industries. In the mid-1800's, Scan-                 ports may contribute as much as 25 percent of
                dinavian and French immigrants fished for sal-             all personal income.
                mon in the lower Columbia River. Using horses                   Fishing is also a cherished way of life for
                and their own human strength, these people                 many coastal residents whether they are direct-
                worked gill nets, beach seines and fish wheels             ly involved in the fishing industry or not.
                to reap an abundant harvest which was                      Navigation and Transportation
                processed and packed in nearby plants. With                     Oregonians have long used the beaches and
                the new invention of gasoline engines, adven-              the nearsbore waters to get from one place to
                turous fishermen ventured "across the bar" at              another along the coast and to transport goods
                the mouth of the Columbia and began to fish                to and from markets. In the years before the
                the resources of the ocean.                                coastal highway was completed, coastal resi-
                    The rich harvest of the oceans and rivers              dents drove their carts and carriages and later
                played an important role in the development of             their automobiles along the highway of the
                the Oregon economy and the establishment of                beach. For many years, coastal traders using
                various cities and ports all up and down the               barges and small ships have carried goods to
                coast.                                                     communities up and down the entire west
                    Today, Oregon fishermen catch fish almost              coast. Captains of fishing vessels and merchant
                everywhere. Some fishermen may work rela-                  ships sought refuge in the natural harbors
                tively close to shore taking day trips to near-            where communities were also developing.
                shore reefs. Others will stay out for several              Today coastal pilots meet large oceangoing ves-
                days and fish the rich resources at the edge of            sels several miles at sea and guide them to
                the continental shelf. Still others participate in         safety in these harbors.
                the distant water fisheries of the central                      The deep water ports of the lower Colum-
                Pacific. Even so, Oregon fishermen tend to con-            bia River (including Portland), Coos Bay, and
                centrate their efforts on the rich fishery resour-         Newport are part of a complex network of in-
                ces of the continental margin. About 95 percent            land and oceanic transportation systems serv-
                of the value of the fisheries and the total                ing millions of people worldwide. People in
                pounds landed in Oregon is from fish and                   coastal ports like Coos Bay often host regular
                shellfish harvested from the continental mar-              crewmen from the Soviet Union, Japan, Korea,
                gin.                                                       the Philippines and Hong Kong.





                  38    Oregon's Ocean Resources Management Plan
















                                   PAM



                     The plot on these pages shows the location of towboat lanes off Oregon. Lane locations are pub-
                lished by the OSU Sea Grant Extension Service, and are used by towboat operators and fishermen to


                     Oregonians have strong economic ties to               generally chart a straight line course which
                major nations around the Pacific Rim and the               slices diagonally across the Oregon ocean plan-
                world. Huge vessels regularly leave Oregon                 ning area from about 150 miles at sea off As-
                loaded with wood products such as chips, logs,             toria to about 50 miles at sea off Cape Blanco.
                and lumber and with grain for foreign trade.               Waste and Dredged Material Disposal
                Large quantities of imported commodities also                  Worldwide, the ocean has become the final
                enter the U.S. through Oregon's ports. These               dumping place for many of the wastes of
                imports include automobiles, chemicals, metal              human society, including municipal and in-
                products, clothing, shoes, and machinery.                  dustrial waste, dredged material, and marine
                     Numerous smaller, shallow draft coastal               and terrestrial litter. Oregon's coastal com-
                ports support the commercial and recreational              munities and industries, like others around the
                fishing industry, pleasure boaters, and domes-             world, use the ocean to dispose of waste and un-
                tic coastal trade.                                         wanted material. Some of the sources of the
                     Much of the domestic trade between the                waste, such as municipal sewage treatment
                Pacific coast states is carried by shallow draft           plants and harbor dredging projects, are
                barges. Barge captains generally follow the 60             deliberate societal choices. Whereas, others are
                fathom (360 feet or 120 meter) contour, four to            the result of carelessness or ignorance.
                five miles offshore.                                           Six municipal wastewater treatment works
                     Each day, several supertankers full of                and three pulp and paper mills currently dis-
                North Slope crude oil, travel southward from               charge directly into Oregon's coastal ocean. At
                Valdez, Alaska, to refineries in California and            current levels, the pollutants from these out-
                the Gulf of Mexico states. Tanker captains






                                                                             The Ocean Planning Context * 39




                                          Oregon Coastal Shipping Lanes




 -----------------











               avoid conflicts. Since the process of agreeing on lone locations and publishing the results began, con-
               ficis and fishing gear losses-which were not uncommon-have become practically nonexistent.


               falls are relatively small and seem to be dis-          to specific sources and may, in fact, be uniden-
               persed quickly.                                         tifiable. No one and yet everyone is responsible.
                   Oregon's coastal ocean is also used for the         Marine Litter
               disposal of dredged material. The need to keep              Marine litter fouls Oregon's continental
               channels in harbors open for vessels requires           margin. People litter. They unthinkingly throw
               maintenance dredging. Growth of ports can re-           beer bottles, plastic packaging, and garbage
               quire new dredging. Everyone who uses                   overboard. They leave the leftover trash from a
               products transported over the ocean or who              beach picnic.on the shore. They throw cigarette
               eats fish from the ocean contributes to the need        butts in the sand.
               to dredge. The Corps of Engineer's discharges               Plastics and other trash, which end up in
               from 7 to 11 million cubic meters of sediment           coastal waters and on the bottom, kill marine
               from coastal harbors and rivers at about twen-          organisms. Although no scientific studies have
               ty authorized dredged material disposal sites           been done on the origin and amounts of marine
               on the continental shelf. These sites are               litter on Oregon's shoreline and across the con-
               generally located near river mouths in water            tinental margin, beach cleanup projects report
               depths ranging from 50 to 185 feet. The                 that the great majority of the litter found is
               dredged material that is currently being                from boats, that significant amounts of litter is
               dumped on Oregon's continental margin is                found near campgrounds and picnic sites, that
               clean, uncontaminated sand.                             about 60% of all items found are plastic, and
                   Discharges from rivers transport a variety          that the amount of litter deposited by tides the
               of pollutants from many sources into the coas-          day after a beach cleanup is often equal to the
               tal waters. Many of these may be untraceable            amount picked up by the cleanup effort.





                 40 * Oregon's Ocean Resources Management Plan


                 Recreation and Aesthetics                                  Oregon are small and localized, but they lie in
                     Oregon's coast has been termed a national              relatively shallow water where miners using
                 treasure. People from all over the world come              dredges could recover the gravel.
                 to the Oregon coast to admire its beauty, to                   Major placer deposits of mineral-rich "black
                 relax, to experience nature, to play, and to find          sands" may lie beneath the ocean off the coast
                 inspiration. Oregonians place a high value on              Oregon. Mining entrepreneurs have been inter-
                 pristine beaches, rocky headlands, and scenic              ested in the possibility of mining these "black
                 vistas.                                                    sands" and the interest may increase in the fu-
                     The waters of almost the entire continental            ture. The extent of these placer deposits and
                 shelf and much of the upper slope from north to            the economic viability of marine minerals mini-
                 south along the Oregon coast are visible from              ng off Oregon are poorly known.
                 publicly accessible viewpoints. On a clear day,                The potential for adverse environmental ef-
                 a person standing on the beach can see about 6             fects from marine mining and the degree of spa-
                 miles to the horizon. On a clear day, a person             tial and other conflicts with the fishing
                 standing on the Yaquina Bay Bridge can see                 industry and other ocean users are poorly un-
                 about 16 miles out to sea; From Cape Arago, a              derstood at this time. But, Oregonians are con-
                 person can see about 17 miles up and down the              cerned.
                 coast and out to sea; from Cape Blanco, 19                 9 Oil and Gas Development
                 miles; from Sea Lion Caves, 24 miles; from                     Although Oregon's offshore geology has not
                 Otter Crest Lookout, 28 miles; from Neahkah-               been fully explored, geologists who have inter-
                 nie Mountain Lookout, 32 miles; from Cape                  preted existing information postulate that oil
                 Sebastian, 35 miles, from Cape Perpetua                    and gas deposits may be present in three
                 Lookout, 37 miles; and from Cascade Head, 45               sedimentary basins which extend across the
                 miles.                                                     continental shelf and upper slope. Existing
                     Degradation of the aesthetic resources of              technology and the economics of oil and gas
                 the coast could greatly alter the quality of the           development would probably limit oil and gas
                 Oregon coast and could negatively affect the               activities to the continental shelf and upper
                 coastal experience and the economies which are             slope. The federal government and the oil and
                 dependent on tourism and recreation.                       gas industry are very interested in knowing the
                 Possible Future Uses                                       magnitude of oil and gas resources off the
                     Oregonians and visitors to the Oregon                  Oregon coast.
                 coast worry that future development of ocean                   Environmental risks of oil and gas develop-
                 resources will adversely affect the way of life            ment and potential use conflicts with the
                 on the coast.                                              fisheries industry, as well as the aesthetic im-
                 9 Marine Minerals Mining                                   pacts of oil and gas development are of great
                     The federal government and a few com-                  concern to Oregonians. Geographically, these
                 panies have been interested in the mineral                 concerns are focused on the entire continental
                 resources of Oregon's continental shelf. Cur-              margin.
                 rently no mining is occurring on the continen-             e Other Uses
                 tal margin, but economically recoverable                       Looking to the future, other potential users
                 deposits may be present.                                   of Oregon's coastal ocean could include people
                     Developers may be attracted to offshore                growing oceanic plants and animals in large
                 gravel deposits as onshore sources are depleted            scale mariculture operations, kelp or other
                 or demand increases. The gravel deposits off               marine algae harvesters, people who want to in-





                                                                            The Ocean Planning Context 9 41


               stall or have installed artificial reefs which         ders hosting marathons along the coast.
               would attract fish and to serve as a fishing or        Oregonians will probably have many interest-
               SCUBA diving site, and new recreational users          ing and difficult ocean resource use choices in
               such as people exploring reefs in private recrea-      the future.
               tional submersibles or jet skiers or sail boar-














































                    If offshore oil and gas exploration were ever permitted off Oregon, drill ships such as this one
                operating in the Santa Barbara Channel, may be used The ship is anchored into position, drill pipe is
                lowered from the tower through a hole in the ship's bottom, and the hole is drilled into the seofloor.
                (DLCDphoto)

























                        E  E
          The Policies the
                Ocean Plan



          Ocean Resources Stewardship      45

          Resource Issues
          and Recommendations              57
                                 Of













                                              43





                44    Oregon's Ocean Resources Management Plan
































                      70"',






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                   Mack Arch off Curry County is one of nearly 1400 rocks and islands along the Oregon Coast. These
               islands, many of which ore crucial habitat for seabirds and mammals, are central to Oregon's commit-
               ment to marine resource conservation and habitat protection, (U.S. Fish and Wildlife Service photo)





                                                                              Ocean Resources Stewardship 9 45









                                       Ocean Resources Stewardship

                                                                  Conservation and Habitat Protection




               S
                    tewardship means taking care of the Earth and its resources for the long-term
                    future. Ocean stewardship is at the heart of the Oregon Ocean Resources
               Management Plan. The goal of ocean resources stewardship is to maintain the
               quality and the productivity of the marine ecosystem while sustaining the
               economies that rely on its resources.

                   Oregonians value the coast and the ocean             Stewardship Transcends
               very highly, and expect government agencies to           Political Boundaries
               be good stewards of public resources. The
               Ocean Resources Management Task Force lis-                   Stewardship concerns and responsibilities
               tened to the people of Oregon and has taken              are not limited by governmental boundaries
               seriously their charge to be wise stewards of            and agency jurisdictions. Oregon believes that
               the ocean. Ultimately, ocean resource                    ocean stewardship means that the state's ocean
               stewardship is the responsibility of each in-            resource management concerns extend beyond
               dividual citizen.                                        its legal boundaries.
                   The Ocean Plan identifies important ocean                The U.S. government has asserted
               resources and the risks to these resources, ex-          authority over ocean resources within a 200-
               amines how Oregon can respond to problems,               mile Exclusive Economic Zone (EEZ). Oregon
               and recommends goals, policies, and needed ac-           has jurisdiction over, and therefore direct
               tions. The Ocean Plan charts the ocean                   responsibility for managing, the ocean resour-
               stewardship path for the future through sound            ces within the territorial sea, which extends
               ocean resources management decisions.                    seaward three miles from the shore. The state
                   The Oregon Ocean Resources Management                also has certain rights and responsibilities for
               Plan is Oregon's ocean stewardship plan.                 the management of resources within the EEZ,





                  46 * Oregon's Ocean Resources Management Plan


                  just as the federal government has specific con-        species assemblages of plants and animals,
                  trol and responsibilities over certain activities       food webs and migration patterns to name just
                  within the territorial sea.                             a few. Human activities in this dynamic and in-
                     The Oregon Legislature, in passing the               tegrated zone can directly affect ocean resour-
                  Oregon Ocean Resources Management Act,                  ces throughout this ecological area.
                  recognized that the conservation of long-term                The Oregon statewide land use planning
                  values, benefits, and natural resources of the          program, including local plans and estuarine
                  Oregon coast and ocean meant looking beyond             plans, addresses activities on the landward
                  the territorial sea. Therefore, Oregon's ocean          side of this zone. The Oregon Ocean Resources
                  planning effort began by looking at the resour-         Management Plan addresses the water side.
                  ces and uses of the entire 200-mile zone to
                  determine where Oregon's ocean resource                 The Ocean Stewardship
                  management responsibilities are concentrated            Area
                  and what makes ecological and management                     The ocean stewardship ethic is global in
                  sense.                                                  scope, but the Oregon Ocean Plan focuses
                  Management on an                                        directly on the coastal and oceanic area in
                                                                          which events directly affect the interests of
                  Ecological Basis                                        Oregonians and in which stewardship actions
                     Ecosystems are not fixed within lines on             by Oregonians are most likely to have results.
                  maps or jurisdictional boundaries. Ocean cur-                Oregon is making an unequivocal state-
                  rents dissolve the meaning of governmental              ment that ocean resources management must
                  boundary lines. Fish swim freely in ocean               be based on ecological realities and must reflect
                  waters. Marine birds and mammals migrate                the interrelation ships of the resources of the
                  great distances between breeding and feeding            continental margin, the human uses of these
                  areas. Marine birds and mammals also range              resources, and the responsibilities and con-
                  widely from rookeries and haulout or resting            cerns of federal, state and local governments.
                  areas in search of food. Sediments from coastal         Oregon is identifying an ocean stewardship
                  rivers are deposited along the entire continen-         area as the ecologically sensible ocean resour-
                  tal margin and are then shifted and                     ces management area. The Ocean Stewardship
                  redeposited by ocean currents. Pollution from           Area is Oregon's area of direct concern and
                  rivers, ocean dumping, littering, or oil spills         responsibility for ocean resource management.
                  can quickly spread in many directions.                       The Ocean Stewardship Area includes the
                     The geographic scope of Oregon's ocean               entire continental margin from mean high
                  stewardship responsibilities must combine               water, across the continental shelf,,and down
                  oceanographic characteristics of the biological         to the bottom of the continental slope. The
                  communities and habitats, as well as, practical         width of the continental margin varies from
                  management considerations and political boun-           about 35 miles off Cape Blanco to about 80
                  daries.                                                 miles off the northern coast. Depth to the ocean
                     Oregon's primary ocean and coastal                   floor at the edge of the margin varies from
                  stewardship responsibilities and resource               about 9000 feet (3000 meters) off the southern
                  management interests extend from the                    coast to about 6600 feet (2200 meters) off the
                  seaward edge of the continental margin to the           northern coast. A straight line drawn at about
                  coastal mountains. This area is an ecological en-       125 degrees and 20 minutes west longitude ap-
                  tity linked together by many physical and               proximates the seaward edge of the continental
                  biological phenomena: winds, currents, tides,           margin.





                                                                                                                                                                                                                                                   Ocean Resources Stewardship                                                                                                           47


                                                                                                                                                                                                                                                                                                                                                                                           . . . . . . .. .







                                                                                                                                                                                                                                                                                                               5W





































                                                                                                                                                                      --- - -------    .... . . .......








































                                                                                                     -4-r_                                                             .... . .....



                                                     The Ocean Stewardship Area





                   48 * Oregon's Ocean Resources Management Plan


                      Oregon does not claim ownership or posses-                information upon which to make better
                   sion of the entire Ocean Stewardship Area. But               ocean management decisions
                   Oregon does proclaim that sound stewardship               0  Seek appropriate co-management arrange-
                   and resource management requires changing                    ments with the federal government to en-
                   the way decisions have been made in the past,                sure that ocean resources in the Ocean
                   especially in this area.                                     Stewardship Area are managed consistent-
                      Designation of the Ocean Stewardship Area                 ly in accordance with the policies of the
                   will neither change the jurisdictional boun-                 Oregon Ocean Resources Management Plan
                   daries of the state, nor change the federal legal         0  Coordinate and cooperate with adjacent
                   regimes under which the resources of the ex-                 states and encourage regional approaches
                   clusive economic zone are managed. Designa-                  to management of ocean areas, when ap-
                   tion will not expand the state's federal                     propriate
                   consistency authority beyond activities which             0  Involve local governments and the public in
                   affect Oregon's coastal zone.
                      By designating this Ocean Stewardship                     ocean resource management decisions
                   Area, Oregon is advancing the principles of               0  Develop marine management areas, where
                   ecologically sound ocean resources manage-                   needed, to provide increased opportunities
                   ment. Oregon believes this approach can ad-                  for public recreation, to protect biological
                   vance the national and international                         communities and habitats, and/or to ad-
                   discussions necessary to establish new concepts              vance scientific understanding of the ocean.
                   of ocean stewardship responsibilities.                  Stewardship and the
                   Within the Ocean Stewardship Area.                      Coastal Watersheds
                   ï¿½  Ocean resource uses and activities directly               Oregon's ocean resources are intercon-
                      affect the interests of the State of Oregon          nected in several important ways with coastal
                   ï¿½  Oregon has management interests in oil               watersheds. Rivers discharge beneficial
                      and gas exploration and development,                 nutrients and harmful pollutants into the
                      marine mineral mining, marine transporta-            ocean. Estuaries, where fresh river water
                      tion and ports, marine birds and marine              mixes with salty ocean water, are crucial to the
                      mammals, intertidal areas, ocean fisheries,          biological cycles of many species of marine
                      oil spills, recreation, cultural resources, aes-     animals and directly contribute to the produc-
                      thetic qualities, and water and air quality          tivity of the ocean. Anadromous fish, primarily
                   ï¿½ Oregon shares management respon-                      salmon, use both freshwater rivers and the
                      sibilities and interests in concert with             salty ocean as equally important ends of a con-
                      federal resource management agencies                 tinuum of habitat needs acquired over millions
                   Within the Ocean Stewardship Area,                      of years.
                   Oregon will.                                                 Oregon's Ocean Stewardship Area neither
                   ï¿½ Conserve living marine resources, includ-             includes estuarine and riverine habitats nor ad-
                      ing biological communities and habitats              dresses their management. These rivers and es-
                                                                           tuaries, their adjacent shorelands, and the
                   ï¿½  Give priority to renewable resources over            lands in the watersheds are already included in
                      nonrenewable resources                               Oregon's Coastal Management Program. Cities
                   ï¿½  Support scientific research on marine                and counties in the Oregon Coastal Zone have
                      ecosystems, ocean resources, and                     already adopted comprehensive land use plans
                      oceanographic conditions to develop better           which address, in addition to fourteen





                                                                          Ocean Resources Stewardship * 49


              statewide planning goals, three specific coastal       and extends state management policies and ac-
              goals Goal 16, Estuaries, Goal 17, Shorelands,         tivities into the interconnected ocean realm.
              and Goal 18, Beaches and Dunes. Each estuary               Note: The Oregon Estuary Plan Book, pub-
              is managed through an estuarine managment              lished in 1987 by the Department of Land Con-
              plan adopted as part of the county comprehen-          servation and Development, contains a full
              sive land use plan. The Ocean Stewardship              explanation of how Oregon's estuaries are
              Area complements Oregon's comprehensive                managed.
              management program for watershed resources













































                   Estuaries are the link between rivers and the ocean. This view of the mouth of Coos Bay reveals
               how the ocean floods into the boy to mix with fresh water from coastal rivers, which results in a uni-
               que, rich habitat forplont and animal life. This estuary mouth, like many others along the Oregon
               coast, has been stabilized for navigation with rockjetties, (ODOTphoto, 1972)





                50     Oregon's Ocean Resources Management Plan


























                                                                                                             A% A-,
                                                VV




                                                                                    4



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                                            AR


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                   Shell Island, off the tip of Cape Arago near Coos Bay, is particularly valuable as a resting and
               feeding area for sea lions (the darker animals) and seals (the lighter animals near the tip of the sandy
               area.) But because this area con be easily reached at low tide, the mammals face increasing distur-
               bance from humans. (U.S. Fish and Wildlife Service photo)





                                                                             Ocean Resources Stewardship o 51

                   Conservation and Habitat Protection

                   The conservation of all ocean resources is           birds and mammals.
               the principle that guides Oregon's ocean resour-             Future demands on Oregon's ocean for
               ces management. This principle seeks to                  food, waste disposal, energy, minerals, and
               protect the integrity of marine ecosystems               other uses mean that the ocean system will be
               while giving priority to the protection and wise         increasingly sensitive to depletion, degrada-
               use of renewable resources over nonrenewable             tion, or destruction. Ocean resource manage-
               resources.                                               ment decisions should be made with caution
                   Ocean resources conservation means that              and a view toward the future. Short term gains
               the integrity, diversity, stability, complexity,         must not be made at the cost of long term detri-
               and the productivity of marine biological com-           ments to the marine ecosystem. Careless use
               munities and their habitats are maintained or,           and wasteful exploitation violate the principle
               where necessary, restored. Ocean resources con-          of conservation.
               servation also means that Oregon will attempt                Ocean resource conservation is good for
               to accommodate the needs for economic develop-           Oregon's economy. Much of Oregon's economy,
               ment while avoiding wasteful uses and main-              especially on the coast, depends directly on
               taining future availability. However, if a               maintaining a healthy natural resource base:
               development activity endangers the quality of            sustainable populations of fish and shellfish,
               oceanic ecosystems which provide renewable               unpolluted air and water, recreational oppor-
               resources for the long term future, then                 tunities, and outstanding visual qualities, to
               economic development activities cannot take              name just a few. A healthy future for Oregon
               precedence over ocean resources conservation.            means conservation.
               The Need for Conservation                                Habitat Protection
                   The ocean may seem boundless and its                     All plants and animals require cer"tain
               resources unlimited. But the size of the ocean,          habitat conditions to survive and flourish. In
               its unseen depths, and its seemingly infinite ex-        the ocean, these habitats are a complex com-
               panse obscure the fact that its productive and           bination of many factors, including seafloor
               assimilative capacities are limited. As big as it        type, water depth, light penetration, 'wave ex-
               is, the ocean system is affected by both human-          posure, and nutrient availability. Some or-
               caused disruptions and natural fluctuations.             ganisms, especially seabirds and marine
               More and more, ocean waters are called upon              mammals, require isolation from human ac-
               to provide resources for growing human popula-           tivities as an element of their habitat.
               tions and to absorb society's increasing wastes.             Diverse, abundant habitat types are the
                   Pollution can impact large areas and affect          foundation of a productive marine ecosystem.
               large populations of marine organisms. If fish           Habitat diversity provides resilience against
               harvests exceed a population's ability to main-          damage to populations that could result from
               tain a viable, sustainable size, then fish popula-       either natural or human-induced environmen-
               tions can collapse, entire biological                    tal changes. Habitat destruction can have un-
               communities can be altered, and entire fishery           foreseen consequences for populations,
               industries can be displaced. Coastal community           communities, or ultimately, for entire marine
               development and population growth can result             ecosystems.
               in non-point source pollution and can encroach
               upon nesting and breeding habitats for marine





                 52 * Oregon's Ocean Resources Management Plan

                 Ways to Conserve                                          effort nationally and internationally. But
                 Ocean Resources                                           ecosystem-based comprehensive planning and
                                                                           management are essential to the conservation
                     A wide range of approaches for conserving             of ocean resources necessary to support human
                 ocean resources exist. State and federal                  communities for the long term future.
                 resource agencies already employ many dif-
                 ferent management techniques to conserve                  Ocean Resources
                 ocean resources. For example, they set permit             Conservation in Oregon
                 conditions, require use of the best available                 Ocean resources conservation is the man-
                 technology, establish harvest limits, set fishing         date of the Oregon Ocean Resources Manage-
                 seasons, encourage or require mitigation, and             ment Act of 1987:
                 impose environmental performance standards.
                                                                              Oregon will conserve the long-term values,
                     Pollution control technologies can reduce                benefits and natural resources of the ocean
                 the effect of waste discharges on marine ecosys-             both within the state and beyond by giving
                 tems. Harvest limitations or gear restrictions               clear priority to the proper management and
                 are used by fishery management agencies to                   protection of renewable resources over non-
                                                                              renewable resources.
                 maintain long-term sustainable yields of fish.                The legislature's choice to give "clear
                 Off-site mitigation measures can sometimes                priority" to renewable over nonrenewable
                 compensate for otherwise unavoidable ecosys-              resources reinforces an existing policy in
                 tem damage. In some cases where an ecosys-                Oregon's Coastal Management Program.
                 tem or a species is under severe stress, human            Statewide Planning Goal 19, Ocean Resources
                 activities or use of a resource must simply be            requires that:
                 prevented and the habitat or species preserved.
                     Managing marine ecosystems and protect-                  All local, state and federal plans, policies,
                                                                              projects and activities which affect the ter-
                 ing biological communities and habitats, rather              ritorial sea shall be developed, managed and
                 than just managing individual species and ac-                conducted to maintain, and where ap-
                 tivities, are essential to a sound ocean resource            propriate, enhance and restore, the long-term
                 conservation program. State and federal agen-                benefits derived from the nearshore oceanic
                                                                              resources of Oregon. Since renewable ocean
                 cies, long accustomed to managing harvests of                resources and uses, such as food production,
                 certain species or focusing on a single activity,            water quality, navigation, recreation, and
                 such as navigation or water quality, must begin              aesthetic enjoyment, will provide greater long-
                                                                              term benefits than nonrenewable resources,
                 to develop a better understanding of marine                  such plans and activities shall give clear
                 habitats and the populations and communities                 priority to the proper management and
                 they support. This understanding must be in-                 protection of renewable resources.
                 corporated into management decisions. Major                   Goal 19 further requires the identification
                 research and study of habitat elements and con-           and protection of important biological habitats;
                 ditions, especially in the productive nearshore           the protection of the integrity of the marine
                 region, are necessary. Program goals and                  ecosystem, including its natural productivity
                 policies will need to reflect a habitat manage-           and diversity; and the long-term protection of
                 ment philosophy.                                          resources of the continental shelf for fishing,
                     In the long term, comprehensive planning              navigation, recreation, or aesthetic purposes.
                 and ecosystem based management is often the               Any minerals mining, oil and gas development,
                 best way to resolve issues and provide for sus-           dredged material disposal, or ocean dumping of
                 tainable resource use. Management which                   wastes must not substantially interfere with or
                 focuses on the interactions between biological            detract from the use and long-term protection
                 communities and habitats in the ocean is a new            of renewable resources.





                                                                                Ocean Resources Stewardship * 53


                    Goal 19 identifies Oregon's principal ocean                endangered species
                resources conservation techniques. These are                   The importance of the area in important
                the identification of environmental resources                  life history stages of marine organisms,
                that may be affected by a resource use, the as-                especially special areas used for feeding,
                sessment of the effects of a proposed resource                 courtship, breeding, spawning, nurseries,
                use, and the use of contingency plans for emer-                parental foraging, overwintering, and rest-
                gencies.                                                       ing or haul out
                Protection and Preservation                                    Vulnerability of the biological community
                of Critical Habitats and                                       and the habitat to the adverse effects of pol-
                Species                                                        lutants, noise, seismic testing, habitat al-
                                                                               teration, human trespass, and harvest
                    Special protective measures may be needed               0  The severity of impacts on the biological
                for certain critical habitats to maintain the in-              community and the habitat from existing
                tegrity of the marine ecosystems or to assure                  or potential uses
                the survival of populations of threatened or en-
                dangered species. Special protection of critical            0  The uniqueness of an area within Oregon's
                habitats and species is necessary when certain                 Ocean Planning Area
                human activities or uses threaten the long                     Some habitats are so important to the con-
                term viability of an ecosystem, its biological             tinued health of marine ecosystems that the
                communities and habitats. Increased protec-                more use-oriented management techniques do
                tion usually means some kind of restriction on             not afford sufficient protection. Other habitats
                activities or uses.                                        or species are unique to Oregon and may re-
                    Endangered, threatened, or sensitive                   quire special measures to protect against ad-
                marine bird and mammal species require spe-                verse effects from other ocean uses. Oregon's
                cial protection to insure their survival as viable         overall ocean resources conservation policies re-
                populations, and to prevent species extinction.            quires that these important, vulnerable or ex-
                Only a few areas off the Oregon coast are likely           tremely valuable resources be preserved.
                to require this intense level of protection.                   In such cases the need to preserve certain
                    Oregon's Coastal Management Program                    resources or qualities of the marine ecosystem
                recognizes the need to protect critical habitats.          should take priority over human activities or
                Goal 19, Ocean Resources, requires protection              resource uses.
                of ". . Amportant biological habitat ... and other             Preservation means that no adverse
                biologically important areas for marine mam-               buman-induced changes to a biological com-
                mals, marine birds, and commercially and                   munity or habitat should be allowed, and that
                recreationally important fish and shellfish."              human activities which could cause such cban-
                    Increased protection of a critical habitat             ges need to be prohibited.
                must be justified on a case-by-case basis. Fac-            Information Needs
                tors to be considered include:
                 ï¿½ The ecological significance of the habitat to               Information about marine resources and en-
                    maintaining ecosystem structure, biological            vironmental conditions is crucial to the im-
                    productivity, biological diversity, and repre-         plementation of a conservation policy. Existing
                    sentative species assemblages                          state and federal programs already require
                                                                           that a significant level of resource, environmen-
                 ï¿½ The ecological importance of the area to                tal, and socioeconomic information support
                    maintaining populations of threatened or               ocean resources management decisions.





                 54 e Oregon's Ocean Resources Management Plan


                    For example, Oregon's Statewide Planning                 ocean resources conservation.
                Goal 19, Ocean Resources, requires government            2.  Require an environmental inventory and im-
                agencies that carry out actions, projects, or                pact assessment for all ocean resource
                plans affecting ocean resources to                           management decisions with potential to sig-
                   ... develop inventory information necessary               nificantly affect the marine ecosystem. As-
                   to understand the impacts and relationship                sessments must analyze and describe the
                   of the proposed activity to continental shelf             long-term effects of the proposed action on
                   and nearshore ocean resources. As specific ac-
                   tions are proposed, inventory information                 biological communities, marine habitats,
                   shall be gathered .... sufficient to describe             and uses of the continental shelf and near-
                   the long-term impacts of the proposed action              shore ocean.
                   on resources and uses of the continental shelf
                   and nearshore ocean.                                  3.  Require an environmental risk assessment
                    In addition, the National Environmental                  for all proposals to develop nonrenewable
                Policy Act (NEPA) requires federal agencies to               ocean resources. This assessment shall
                prepare an environmental impact statement                    determine the probability that biological
                (EIS) prior to making decisions on "major                    communities and habitats will be exposed
                Federal actions significantly affecting the                  to adverse effects from operating proce-
                quality of the human environment."                           dures or accidents, the sensitivity of these
                    Oregon's ocean resources conservation pro-               biological communities and habitats to
                gram will build on these existing information                such exposure, and the probable impacts of
                requirements and will strive to forge a strong               exposure on the marine ecosystem.
                link between scientific and economic informa-            4.  Prohibit a proposed activity when the environ-
                tion and public policy decisions.                            mental impact and risk assessments show
                Recommendations                                              that the value of affected biological com-
                                                                             munities and habitats is high, the risk of
                    The goals of the Oregon Ocean Plan are to                adverse effects from the proposed activity
                conserve all marine resources; to protect                    is high, and the proposed activity cannot be
                marine habitats; and, where necessary, to                    modified to reduce the risks to acceptable
                preserve fragile, vulnerable, unique, and criti-             levels.
                cal marine communities and habitats.                     5.  Resolve conflicts between ocean resource uses
                    The recommended conservation and                         to:
                habitat protection policies set the stage for the         0  Protect the overall integrity, diversity,
                entire Ocean Plan. Recommended policies and                  stability, and complexity of the marine
                needed actions for specific ocean resources and              ecosystem.
                uses are found in the section called Resource Is-
                sues and Recommendations. Recommendations                 0  Give priority to the conservation of renew-
                on improving ocean resources governance,                     able resources; to renewable resource uses
                education programs, research activities, and on              over nonrenewable resource uses; and to
                needed legislative changes are found in the sec-             non-consumptive uses over consumptive
                tion called Getting the Work Done.                           uses.
                Recommended Policies                                     6.  Use non-regulatory means to promote and
                for Conservotion                                             achieve ocean resource conservation, when
                1. Allow only those activities and uses of ocean             likely to have results equivalent to or bet-
                    resources in Oregon's Ocean Stewardship                  ter than regulatory means.
                    Area which are consistent with the goal of           7.  Promote public education and interpretation





                                                                             Ocean Resources Stewardship * 55


                   programs to increase understanding of                    short periods of time, must be evaluated
                   marine ecosystems and the need for ocean                 before proceeding to additional activities,
                   resource conservation.                                   and must avoid interference with other ex-
                8. Support the use of mitigation techniques to              isting uses
                   reduce adverse effects on biological com-                The scale of a pilot project must be the min-
                   munities and habitats to the maximum ex-                 imum to obtain the needed information.
                   tent practicable. However, the potential for         Recommended Policies
                   mitigation shall not be used as the sole jus-        for Habitat Protection
                   tification to allow an ocean resource                1.  Expand state agency decision making on
                   development activity.                                    ocean resource uses and activities to in-
                9. If necessary to obtain needed information                clude considerations of entire ecosystems,
                   about environmental risks and effects,                   in addition to individual species or ac-
                   allow small-scale pilot projects under the               tivities management
                   following conditions:                                2.  Identify critical habitats within the Oregon
                 ï¿½ A pilot project must include research on the             Ocean Stewardship Area which require spe-
                   effects of the activity on the marine ecosys-            cial management or protection. Protect
                   tem, and must make the results of research               these biological communities and habitats
                   available to the public.                                 from adverse effects, disruption, or damage.
                 ï¿½ A pilot project must conserve living marine          3.  Enforce federal and state laws protecting
                   resources; and must not adversely affect                 migratory birds, marine mammals, and en-
                   any critical marine habitat.                             dangered, threatened, and sensitive species.
                 ï¿½ A pilot project must be carefully monitored          4.  Restrict uses or access, if necessary, to
                   by state and federal agencies.                           protect endangered, threatened, and sensi-
                 ï¿½ A pilot project must be scheduled only for               tive species or their habitats.





                56    Oregon's Ocean Resources Management Plan



























                            U,























                                                                                   AL


                  Dungeness crab, fresh from the ocean's cold waters and then a steaming water kettle, are sold at
               markets up and down the Oregon coast. More thon simply a delicious seafood, Dungeness crab sym-
               bolizes a coastal way of life. (Oregon Sea Grant)





                                                           Ocean Resources Stewardship 9 57











                                                  Resource Issues and
                                                     Recommendations


                                                                       Ocean Fisheries

                                                            Marine Birds and Mammals

                                                           Intertidal Plants and Animals

                                           Recreation, Tourism, and Cultural Resources
                                                                  Water and Air Quality
                                                                            Oil and Gas
                                                                               Oil Spills

                                                                        Marine Minerals





                58    Oregon's Ocean Resources Management Plan




































                     44"



                   Pulling in a research catch for Oregon State University on this cruise, this vessel out of British Colum-
               bia shows the typical net and drum arrangement of larger west coasthigh fine'trawlers which fish the
               productive waters off Oregon. (Oregon Sea Grant)






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                                                                                                Ocean Fisheries * 59


                  Ocean Fisheries

              Resources                                                 can be a basis for comparison between years.
              Characteristics and Contributions                         Ex-vessel value is the amount of money actual-
              of Oregon's Fishing Industry                              ly paid to the fishermen for fish landed.
                                                                        Another measure is the amount of personal in-
                  Whether counted in dollars of personal in-            come (total wages, salaries, and profits)
              come generated or appreciated as the history              generated in a community directly by harvest-
              and cultural characteristics of people who face           ing and processing and indirectly in those in-
              the elements to make their livelihoods at sea,            dustries and businesses which supply goods
              commercial and recreational fisheries are keys-           and services to the fishing industry. Complex
              tones of Oregon's coastal economy and culture.            economic models can be used to calculate the
                  Fishing is a cherished "way of life" for              contribution of the fisheries industry to local,
              many coastal residents, offering a sense of               state and regional economies. The West Coast
              freedom and independence often hard to                    Fisheries Assessment model was developed for
              achieve in the modern world. The competitive              the West Coast Fisheries Development Founda-
              nature of the business and the outdoor environ-           tion and is the source of most of the economic
              ment provide additional rewards. But,                     information presented here.
              economic risks and unpredictable incomes also                 Ocean fishing contributes about 10 percent
              come with the occupation.                                 of the total personal income of coastal counties
                  Fishing can be a tradition in a community             and communities. In major fishing ports such
              and a heritage in a family. Even those who                as Newport and Astoria, commercial fishing
              don't fish for a living get a special pleasure            can account for over 25 percent of all personal
              from watching a fishing boat pass under a                 income. Statewide, commercial fishing and
              bridge going out to sea or unload its catch in an         processing contributed almost $300 million in
              bustling fishing port.                                    personal income to the Oregon economy in
              Importance to Coastal Economy                             1989. Recreational ocean fishing also generates
                  Ocean fisheries are an important part of              a considerable amount of personal income in
              Oregon's coastal econom . Economic sig-                   Oregon. Charterboat trips in 1985 generated
                                        y                               over $4.5 million in personal income. The local
              nificance can be expressed in several ways.               personal income impact of recreational ocean
              Pounds landed in a fishery in a given year                salmon fishing in Oregon in 1985 has been es-
              begins to tell the story of economic value and            timated at $10.8 million.
                                                                        Diverse Community
                                                                            But numbers only begin to tell the story of
                  The plot on the facing page shows average             Oregon's fishing community. The fishing com-
              annual sablefish catch off Oregon from 1983               munity is not easily described and no single
              through 7 986. Actual logbook catch data were             description can accurately portray this diverse
              used by ODFW to develop the database repre-               community. Even the term "fishing" is im-
              sented in part by this plot, but trawl locations          precise and is used to describe a variety of ef-
              were aggregated into 5-minute blocks to
              protect the proprietarl nature of the data.               forts.
                  Also shown are the fishery management                     Within both the commercial and the recrea-
              zones off Oregon and bothymetry to the edge               tional industries, a fishery may be categorized
              of the continental shelf.                                 by the species being caught: the salmon fishery
                  Source: ODFW                                          or the shrimp fishery, for example. Gear types





                   60 * Oregon's Ocean Resources Management Plan


                   also define different fisheries, such as the bot-       although they sometimes compete for the same
                   tom trawl fishery, the troll fishery, or crab pot       species, commercial and recreational fisheries
                   fishery. Yet, often one type of fishing gear is         are two different industries often involving dif-
                   capable of catching a number of different               ferent people and different boats.
                   species. And, any given species can be caught               The major fishing ports are Astoria, Til-
                   by a number of different types of fishing gear          lamook, Newport, Coos Bay, and Brookings.
                   (although some species can be legally kept only         Other smaller ports focus on a particular
                   if caught using a particular gear type). Fur-           fishery: Port Orford on sea urchins or Depoe
                   ther, many fishermen modify their gear or have          Bay on recreational fishing, for example.
                   boats which can be rigged with several dif-             wCommon 0 Resource
                   ferent types of gear so that the fishermen can
                   enter or leave different fisheries depending on             The fishing community does share in one
                   season, species abundance, market prices, or            thing: all fishermen are dependent upon a
                   government regulations.                                 public or "common" resource. The fish and the
                      Fishing vessel captains are a heterogene-            habitat in which they live are not "owned" by
                   ous group. A recent survey of trawl vessel cap-         any one person or group. Government agencies
                                                                           have management responsibilities for fish,
                                      7 986 commercial fish landings                             wildlife and their habitats.
                                                                                                 Fishermen may capture
                                                                                                 and sell fish and the fisher-
                                              Other 3.65%       Salmon 12.11%                    man who is the most
                                                                                                 skilled, the most efficient,
                                                                                                 or the luckiest can earn
                                                                           Crab 4. 10%
                                                                                                 more than others. As a
                                              . j::: _x Xx:.:

                                                                                                 common resource, many
                                              I . . . . .                                        may use the fisheries
                                               . . . ....... .... Si.
                                                                                                 resources of the ocean and
                                                                                                 many may use the ocean
                                                  X,
                                                 ii-                                                ways that can affect
                                                                                                 in
                   Grouncifth                                                                    fisheries resources. Only
                    48.22%
                                             ix.
                                                                                                 through practicing
                                                                               Shrimp 29.76%     stewardship and comply-
                                                                                                 ing with laws and regula-
                                                                                                 tions can these common
                                                                                                 resources be protected and
                                                    . . . . . . . ..                             maintained for the good of
                                                      Tuna 2.16%                                 all, for the long term.
                   tains showed that they ranged in age from 25
                   to 65, in education from grade school to Ph.D.s,        Fisheries Management
                   and in experience from 1 to 44 years.                       The state and federal governments are ac-
                     The Oregon fishing industry includes boat             tively involved in a number of fisheries through
                   crewmembers, captains, and owners; buyers,              regulation of seasons, gear types, allowable
                   packers, and processors; and marketers of fish-         mesh sizes, trip limits, annual harvest quotas
                   ing gear and supplies. Most fishermen are               and through the issuance of licenses and per-
                   small, independent businessmen who may pur-             mits. Some fisheries are also managed as
                   sue widely divergent business strategies. And           limited entry programs which control the num-






                                                                                                       Ocean Fisheries            61




                                                Personal Income Contribution of the Oregon
                                           Commercial Fishing and Processing Industry in 1989


                                 Astoria area                                            $70.8 million
                                 (includes Columbia River fisheries)
                                 Tillamook area                                          $10.5 million
                                 Newport area                                            $95.0 million
                                 Coos Bay area                                           $46.5 million
                                 Brookings area                                          $15.3 million
                                 TOTAL *                                               $ 294.9 million


                                  * NOTE: The total Is sIlghtly greater than the sum of the coastal counties
                                  due to 'leakages" of purchases which occur in areas outside the coastal
                                  counties.)



                  ber of vessels in an fishery.                                and Wildlife Commission and ODFW. Their
                      Fisheries management tends to focus on in-               jurisdiction does not extend to treaty Indians
                  dividual species or an assemblage of similar                 or to U.S. Fish and Wildlife Service hatchery
                  species.                                                     operations. ODFW must share management
                      The goals of fisheries management are mul-               responsibilities and regulatory jurisdiction
                  tiple and include efforts to protect the resource            with the Pacific Fishery Management Council
                  from overfishing; to maintain the economic                   for several ocean fisheries. In addition, the In-
                  viability of the fishing industry; to maximize               ternational Pacific Halibut Commission, a U.S.-
                  the economic value of the resource; to maxi-                 Canadian organization, manages the entire
                  mize the biological yield of the stocks; and to              Pacific halibut fishery off the western coast of
                  result in cost effective and enforceable                     North America.
                  regulatory regimes. Successful achievement of                The Magnuson Act
                  these goals can be extremely difficult, especial-               The Magnuson Fishery Conservation and
                  ly in those numerous situations when achiev-                 Management Act of 1976 (MFCMA) is the
                  ing one goal means not achieving another.                    major federal law governing ocean fisheries of
                  The Oregon Fish                                              regional importance. Prior to 1976, fisheries
                  and Wildlife Commission                                      management in the U.S. was a complex, hap-
                      The Oregon Fish and Wildlife Commission,                 hazard, and uncoordinated mix of state laws
                  acting through the Oregon Department of Fish                 and regulations which often resulted in either
                  and Wildlife (ODFW), is responsible for the                  no management of a fishery or different
                  management of the fisheries resources of the                 management approaches on the same species
                  state, including the protection and enhance-                 in adjacent states. Information on fish landings
                  ment of important fisheries habitats. ODFW is                and the status of fish populations was frag-
                  also responsible for the collection, application,            mented and inadequate to really understand
                  and dissemination of information on the                      what was going on in the fisheries.
                  management of wildlife and food fish resources.                  What was clear from the 1930s to the early
                  There are limitations to the power of the Fish               1970s was that the U.S. fishing industry was





                62 -0 Oregon's Ocean Resources Management Plan


               relatively static while foreign fishing off U.S.          were established by the Magnuson Act as an at-
               shores had dramatically increased. Extensive              tempt to provide some management consisten-
               foreign fishing was adversely affecting the               cy to those important ocean fisheries which are
               balance of trade and the economic viability and           regional in scope. The regional fisheries
               future of the domestic fishing industry. Fur-             management councils are composed of a repre-
               thermore, the large and efficient foreign fishing         sentative of the federal government, state
               and factory ships were threatening to overfish            fisheries management directors, and in-
               a number of important fish species off the U.S.           dividuals nominated by the governors of the
               coast.                                                    member states. The councils are responsible for
                   The Magnuson Act extended national                    developing management plans for important
               fishery management jurisdiction out to 200                regional fisheries occurring primarily between
               nautical miles (the fishery conservation zone or          3 and 200 miles of the coast. The Secretary of
               FCZ).                                                     Commerce has the basic authority for manag-
                   Within the FCZ, foreign fishing is                    ing these regionally important fisheries, based
               prohibited unless authorized by an existing in-           on the recommendations of the regional coun-
               ternational treaty or by international agree-             cils. States continue to have management
               ments which meet the requirements of the                  authority within 3 miles of their shore. How-
               Magnuson Act. Foreign nations are required to             ever, the Secretary of Commerce can preempt
               apply to the U.S. for approval to fish within the         state authority if he or she finds that the state
               200 mile zone or to fish for U.S. anadromous              management actions will substantially and ad-
               fish beyond 200 miles. The Magnuson Act clear-            versely affect the carrying out of a fishery
               ly states that preference to harvest fish within          management plan (FMP) adopted by the coun-
               the 200 mile zone must go to U.S. fishermen.              cil. Therefore, state fishery management plans
               The system under the Magnuson Act requires                and regulation usually parallel regional FMP's.
               that the federal government set a total allow-            The National Marine Fisheries Service
               able foreign fishing catch that allows foreign            (NMFS), a branch of the National Oceanic and
               vessels to catch only that portion of an optimal          Atmospheric Administration (NOAA) within
               yield of a fishery which is not being harvested           the U.S. Department of Commerce, is the
               by U.S. fishermen. The Magnuson Act also re-              federal agency responsible for the administra-
               quires that foreign vessels allow U.S. officials          tion of the Magnuson Act and for developing
               to board, observe, search and inspect the ves-            fishery data to support management decisions.
               sels and their operation to insure compliance.                The states of California, Idaho, Oregon and
                   The Magnuson Act also provides forjoint               Washington are members of the Pacific Fishery
               ventures. Joint ventures are agreements be-               Management Council (PFMC). Oregon has two
               tween foreign and U.S. companies. U.S. fisher-            obligatory seats on the Council: the director of
               men catch the fish that would otherwise be                ODFW and an individual who is nominated by
               underexploited because the U.S. fishing in-               the governor and who is required by law to be
               dustry doesn't have the capacity to process               knowledgeable and experienced in fisheries is-
               them or because there is no U.S. market for the           sues. An Oregonian may also serve as an at-
               particular species. The U.S. fishermen sell               large-member of the Council, increasing
               their catch directly to foreign factory ships for         Oregon's representation at times to three seats
               processing.                                               of the thirteen total seats. The Council has
                                                                         adopted fishery management plans for salmon
               Regional Fishery                                          and groundfish, an assemblage of bottom and
               Management Councils                                       mid water species, including cod, rockfish, sole,
                   Regional fishery management councils                  and flounder. The Council has no management






                                                                                                                                           Ocean Fisheries 9 63


                       responsibilities for tuna, a highly migratory                                     the introduction of new harvesting, processing
                       species extending far beyond regional waters of                                   and transportation technologies; annual and
                       the Pacific Northwest; for halibut which is                                       seasonal variability in weather patterns,
                       managed through an international treaty with                                      oceanographic conditions, and fish populations;
                       Canada; or for fisheries which are managed by                                     environmental pollution and habitat destruc-
                       tribal groups.                                                                    tion both at sea and on the land; stresses in
                                                                                                         other industries, such as the oil and gas in-
                       Recent History of                                                                 dustry and the insurance industry; and chan-
                       Oregon's Ocean                               Fisheries                            ges in state, national and even international
                            The fishing community has been through                                       governmental policies and regulations, some of
                       good times and extremely bad times. Some                                          which only indirectly involve fishing.
                       fishermen have become wealthy while others                                        The Years 1960 to 1989.
                       have gone broke. A vast array of factors unre-                                    Boom, Bust, Recovery and Adjustment
                       lated to fishing knowledge or skill can interact                                       From 1960 to the present has been the
                       to determine the fortunes of individuals within                                   most turbulent period in the history of
                       the fishing community and the fishing economy                                     Oregon's commercial fishery. Some fishermen
                       as a whole. The fisheries industry and the fates                                  became quite successful during the 1960s and
                       of individual fishermen are sensitive to chan-                                    then lost all they had gained. Several fisheries
                       ges in local, national and even global markets;                                   declined drastically during the early 1980s, but


                             Oregon's commercial fishery seasons


                                                      Jan       Feb      Mar Apr              May June July Au g                    Sept Oct            Nov       Dec         Notes
                                                      ...............
                                                                                                                                                                ... ......
                                                                                   X:   ........
                       Dungeness Crab                 .....                                   .....
                                                                                                                                                                                 .5
                                                      .... ......
                                                      ;@ ... . .....                                                             .....
                                                                                                                                          ............
                                                                                                                                     . ........
                                                                                                                                           .........................
                       Albacore Tuna                                                                                                                  X.:                       1,4
                                                                                                                                           . ........
                                                                                                                                . .................
                       Shrimp                                                    ....

                                                                                                                           ...... . .... ........ ...
                       Groundfish
                                                                                                 ..... ..                                                                    2,6.8
                                                                                                                          ...........                 .................... .....
                                                                                                                                      .................. ....
                                                                                              .......................
                                                                                                         .................................
                                                                                                                                                              XX
                                                                                              .......... ............................................  .............. XX
                                                                                              .......................................................... . ...............
                                                                                                                                        .....  ....... @MXX
                                                                                                                                        .......  ......                         2,7
                       Salmon                                                                 ......................................................  ..............
                                                                                              ........................................................  ............... :"XX.
                                                                                                  ......................................i. .....  ................
                       Halibut                                                                                                                                                      3

                                                                                                      .............
                       Squid                                                                                                                                                    1.4
                                                           -X-X-X-X-:-X---                                                      . .. ......
                                                           X
                                                           ................
                       Sea Urchins                    . .. ............                                                           .....
                                                           ................
                                                                                                                              ....... ......
                                                                                                                              ....................
                                                                                                                   .... . .. .......................
                                                                                                                                            ...........
                                                                               ............................                                 ...... .....
                                                                                                                            . .........
                                                                               .......................
                       Scallops                       1.'X.11.: .............
                                                      . ............                                                           ......



                                         Notes:                                                                         Source: Bob Jacobson
                                                I     171shery managed by ODFW
                                                2     171shery managed by the Pacific Rshery Management Council and ODFW
                                                3     FIshery managed by International Pacific Halibut Commission. 1989 season limited to 2 days.
                                                4     No regulated season opening and closing dates. Timing and length of seasonsd may vary
                                                      annually, depending on oceanographic, environmental, and market conditions.
                                                5     Crab pots can legally be placed in water 64 hours prior to the 12/1 season opening date.
                                                6     Year-round seasons for both trawl and fixed gear fisheries, but vessels regulated
                                                      by trip poundage limits on species or groups of species.
                                                7     Salmon season opening and closing dates vary by species and area,
                                                      but always occur from May I to November 30.
                                                8     The joint venture fishery for whiting ordinarily starts in April and closes when
                                                      the quota is reached. In 1989, the quota was reached in the end of June.





                64 o Oregon's Ocean Resources Management Plan


               in the last few years catches have either               U.S.S.R., Japan, Poland and Bulgaria. Many
               leveled off or improved, with the catch in some         more have participated in joint ventures in
               fisheries approaching record levels.                    Alaska with several foreign nations. In 1985
                   In the late 1960s, increased earnings in the        American catcher boats took approximately
               salmon and crab fisheries brought prosperity            200,000 tons of whiting off the Washington,
               for many Oregon fishermen. Many invested                Oregon, and California coasts. As of 1989,
               their profits in new vessels and equipment,             there are no more directed foreign fisheries on
               aided by federal programs such as the Farm              whiting within the 200 mile zone. The initial
               Credit Act, the Capital Construction Fund, and          controversy and concerns over joint ventures
               the Fishing Vessel Obligation Guarantee Pro-            have subsided and the fisheries are closely
               gram. Landings continued to increase through            managed and rigidly monitored by the Pacific
               most of the 1970s, with shrimp a particular suc-        Fishery Management Council and NMFS.
               cess: in 1978, the ex-vessel value of shrimp ex-            Joint ventures have provided a tremendous
               ceeded that of troll-caught salmon.                     economic boost to a select few Oregon fisher-
                   Japanese and Soviet vessels, fishing off the        men. Joint ventures have been, overall, the
               Oregon coast since the mid-1960s and off Alas-          most lucrative of any of the fisheries during the
               ka a decade earlier, had severely damaged the           1980s. In addition, vessels that have been par-
               stocks of halibut, Pacific ocean perch and other        ticipating in the joint ventures are ones that
               species. However, after passage of the Mag-             otherwise would have been fishing on tradition-
               nuson Act in 1976, which declared U.S. jurisdic-        al groundfish stocks. Therefore, more vessels
               tion within 200 miles of our coastline, optimism        have been able to participate in the Oregon
               regarding the future of the commercial fishing          trawl fishery.
               industry rose to extremely high levels. The                 The years from 1980 to 1984 brought
               result was a burst of boat building-shrimpers,          tremendous upheaval. Some of the commercial
               bottom trawlers, and midwater trawlers-un-              fishery was overcapitalized, with too many
               matched in the history of the commercial                boats competing for declining resources. The oil
               fishery. In the late 1970s the salmon and               price hikes of 1979, high interest rates, and sub-
               shrimp fisheries declined dramatically, but             sequent insurance rate increases hit fishermen
               trawl fisheries prospered. A midwater trawl             quite hard.
               fishery for widow rockfish developed off Oregon             And then in 1982, an El Niflo caused havoc
               in 1978 and grew rapidly.                               all along the coast. An El Niflo event occurs
                   In 1978, a then-controversial fishery               when normal wind patterns over the Pacific
               developed on Pacific whiting (hake), a species          break down, allowing warm surface water to
               which previously had been caught only by                back up and spread out over the coastal east-
               foreign vessels and for which there was little          ern Pacific. The changed current patterns
               U.S. market. Operating under a joint venture            result in changed fish migration patterns,
               agreement with the U.S.S.R., Oregon fisher-             reduced growth and survival rates, and chan-
               men harvested an initially small quantity of            ges in the distribution and quantity of prey
               hake and transferred it to a floating Soviet fac-       species. The 1982 El Niflo, one of the strongest
               tory ship for processing and distribution on in-        on record, devastated the industry. Boat pay-
               ternational markets. Since 1978, the number of          ments were missed and some fishermen lost
               joint ventures and the amount of fish caught            homes and other possessions.
               has grown rapidly. Between 20 and 30 Oregon                 Almost the only success story in this period
               fishermen have been involved in whitingjoint            was the distant water fishery. More and more
               ventures off the Oregon coast with the                  Oregon fishermen joined in such Alaskan






                                                                                                 Ocean Fisheries 9 65


              fisheries as Dungeness crab, sablefish, halibut,           stituting about 80-90 percent of the recreation-
              groundfish and pink shrimp. In some Oregon                 al catch. Coho generally occur at shallower
              ports, the income brought back from Alaska                 water depths and are, therefore, more acces-
              soon represented a substantial portion of all              sible to recreational fishing gear than chinook,
              fishery income.                                            which are generally found deeper in the water
                  With the end of the El Nifio, ocean tempera-           column. Most recreational salmon fishing takes
              tures returned to normal levels. Fewer boats               place in or quite near the territorial sea. In ad-
              competed for the returning stocks, and by 1986             dition, since recreational boats are day boats,
              recovery was well underway.                                coming in at the end of each day, most recrea-
                  During most of the 1980s, consumer                     tional salmon fishing occurs within 10 miles of
              demand for seafood products in the U.S. grew               port.
              steadily at rates greater than in the prior                    In general, the recreational salmon fishing
              decades. Factors leading to the rise in seafood            effort is highest in July, followed closely by
              consumption include increase in income, chang-             August. Recreational salmon seasons, like com-
              ing lifestyles, and a greater awareness of the             mercial seasons, are quite complex, varying
              health benefits of seafood. However, growth in             with location and from year to year. In-season
              per capita U.S. annual consumption has                     management actions such as season closures,
              declined in recent years. During 1989, prices              area closures, and restriction of fishing to cer-
              for most seafood products declined-some                    tain days of the week, are also common. The
              dramatically. Should these lower prices                    long term goal of recreational salmon manage-
              remain, as increased competition in both har-              ment for the Oregon coast is a season lasting
              vesting and marketing also take place, the                 from Memorial Day through Labor Day.
              Oregon fishing industry could face a period of                 The recreational salmon fishing fleet is
              adjustment.                                                composed of private and passenger-carrying
              The Future                                                 charter boats. Accurate data on the number of
                  Recent analyses done for the Oregon Coas-              private and charter boats actually engaged in
              tal Zone Management Association and the Na-                the sport salmon fishery off the Oregon coast at
              tional Coastal Resources Institute suggest that            any one time are difficult to obtain. There are
              changes in Oregon's fisheries industry may be              no good data on the salmon fishing efforts from
              necessary. For example, to compete successful-             private boats. And, estimates in 1986 indicated
              ly with Alaskan salmon and Norwegian farmed                that only 132 of the 226 licensed charter boats
              salmon, the marketing of Oregon salmon may                 were actually involved in the recreational sal-
              need to emphasize the high quality and                     mon fishery.
              desirability of wild Pacific salmon which are                  Groundfish also are of major importance in
              brought to market quickly. And development of              the recreational fishery. Recreational
              an Oregon onshore whiting processing industry              groundfish fishing is pursued from private
              may be an economic antidote to Alaskan                     boats and charterboats and from the shore.
              catcher-processors working in the waters off               While there are no seasonal restrictions on
              the Oregon coast and reducing the groundfish               recreational fishing and groundfish are found
              that would otherwise be landed in Oregon.                  in at least small numbers over much of the con-
                                                                         tinental shelf, most of the recreational fishing
              Recreational Fisheries                                     occurs from late spring through early fall and
                  Recreational salmon fishing is the keystone            is done within the territorial sea. Reef areas
              of the recreational fisheries industry. The tar-           where rock outcroppings occur relatively near
              get species are chinook and cobo, with coho con-           the shore are quite popular. Major reef areas in-





                   66 * Oregon's Ocean Resources Management Plan

                  clude the area from Tillamook Head to Cape                Major Fisheries Species
                  Lookout, the area from Siletz Bay south to                Salmon
                  Alsea Bay, a small area off Cape Arago, and an
                  area running from the Pistol River south to the                The primary targeted species of the ocean
                  California border. The only recreational                  salmon fishery are Chinook and coho salmon.
                  groundfish areas outside the territorial sea are          The Oregon ocean salmon fishery uses only sal-
                  two areas off Tillamook Bay and the Stonewall             mon troll gear. Trollers tow a number of lures
                  Banks off Newport.                                        or baited hooks through the water at depths of
                       Typically the various rockfish species con-          up to 80 fathoms (480 feet). Vessels vary in size
                  stitute about 80 percent (by weight) of the               from 18-foot day boats to 60-foot trip boats. The
                  recreational groundfish catch while ling cod              ocean troll fishery harvested over 6 million
                  constitutes about 14 percent. These species               pounds (round weight equivalent) in 1989.
                  tend to aggregate around rocky outcroppings or                 Until the 1960s, Oregon troll landings, al-
                  reefs, and by so doing make themselves more               though they fluctuated greatly, remained rela-
                  available to recreational fishermen. The recrea-          tively low. However, in the early 1960's
                  tional halibut catch is becoming increasingly             methods for raising hatchery salmon resulted
                  important and fishing efforts, especially out of          in increases in the number of smolts released
                  Newport, are increasing rapidly.                          and, although it cannot be scientifically proven,
                      The groundfish catch (in numbers) in-                 perhaps in the number of adult salmon return-
                  creased rapidly during the 1970s due primarily            ing to Oregon's coastal waters. In addition, in
                  to the introduction of LORAN C which allowed              the 1960's and early 1970's there were a num-
                  fishermen to return easily to favorite fishing            ber of years of very strong upwelling which
                  spots, improvement in fathometers which al-               resulted in extremely large increases in com-
                  lowed fishermen to detect fish schools on the             mercial and recreational salmon landings. The
                  reefs even when the schools are quite close to            commercial fishery responded to this increase
                  the bottom, and the availability of small radar           in adult coho abundance with a large increase
                  sets for use on small charter and private boats.          in fishing effort. Unfortunately, the good up-
                                                                            welling years were followed by a series of
                  Commercial and                                            rather weak upwelling years, which, together
                  Recreational Fishing Conflicts                            with the increased fishing effort resulted in a
                       Conflicts can arise between commercial               drop in coho landings. The El Nifio event of
                  and recreational fisheries. In general, most of           1982-1983, with its poor upwelling and warmer
                  the conflicts fall into one of five main                  water temperatures, further reduced salmon
                  categories: resource conflicts between commer-            abundance. Both coho and Chinook populations
                  cial and recreational salmon trollers; resource
                  conflicts between commercial groundfish trawls
                  and recreational groundfish hook and line
                  fishermen; resource conflicts between commer-
                  cial groundfish rod and reel fishermen and                     7he plot on the facing page shows heavily-
                  recreational groundfish hook and line fisher-             used charter fishing areas off Oregon. The data
                  men; resource conflicts between commercial                for the map were developed through exhaus-
                  longline halibut fishermen and recreational               fively interviewing charterboot operators along
                  halibut fishermen; and spatial or navigational            the entire coast. Many of the areas also support
                  conflicts between commercial and recreational             commercial fisheries.
                  boats. As specific conflicts arise the parties                 Source: ODFW
                  usually try to work out some compromise.





















































                                           X-01- t-









        Principal Recreational
        Charter Fisheries


        M Mnon
           ffifibut
           Offier Mon&
           Mbut Offier flottordish
           %kmn Mbut


        IN 0 to m NNW






                                                      ..........






                                                                                               Ocean Fisheries * 67


              now appear to be recovering.                             few years. Adult salmon then return to fresh
                  Most commercial salmon trolling is done              water streams to spawn and die. The migratory
              outside the territorial sea, and some boats may          behavior of the salmon make then vulnerable
              range as much as 50 miles offshore. Most                 to changes in habitat and water quality in both
              recreational salmon fishing occurs in the ter-           oceanic and terrestrial ecosystems. Poor log-
              ritorial sea within a one day boat trip of port.         ging practices can destroy breeding habitats by
                  Although the details differ from species to          clogging streams with mud and silt. Industrial
              species, salmon fry hatch from eggs laid in the          water pollution in estuaries can impede the
              gravel bottoms of coastal streams and the                progress of migrating smolt or spawning
              upper sections of major river systems such as            adults. Periods of poor upwelling such as the
              the Columbia. After an initial period in fresh           recent El Niflo, have been shown to result in
              water the fingerlings migrate downstream                 lower survival of hatchery smolt.
              changing into smolts and preparing to enter              Groundfish
              the ocean where they will mature over the next               The groundfish fishery includes over 80







                                                                              AN N








                                                                                                                          h











                   Commercial fishing is highly personal. This gillnetter deploys his net into the waters at the mouth of
               the Columbia River. Small owner-operated vessels are the majority in Oregon. (Oregon Sea Grant)





                          68 * Oregon's Ocean Resources Management Plan


                               Pounds
                          round weight
                        160,000,000 -


                        140,000,000 -                                                                         Other
                                                                                                              X-XI -X-::ï¿½*- -@f                      X.
                        120,000,000 -
                                                                                                          GroundfIsW@'i'k0'::-;
                                                                                                                            K %*:


                        100,000,000                                                                            XV,
                                                                                                                                                                                  X.:i*

                                                                                                                            0.0:
                                                                                                     X       Tun                       X
                                                                                                                                          .......... .
                                                            X-
                          80,000,000
                                                                                                                                        W
                                                                      .....................                                                                                     .....


                                                                                                                                              % -X                               :i:i
                                                                                                                                            .04%%:
                                                                                                                                               . . . . . . . . .. . . . . .
                          60,000,000
                                                                                                                                           0,:


                          40,000,000


                                                                                                                           ......                         ......... i:: . . . . . . . . . . . . . . .
                          20,000,000                        ---                 -                              Crab

                                      0                             1        1                                   1

                                       1970 1971 1972 1973 1974 1975 1976 1977 1978 1979 1980 1981 1982 1983 1984 1985 1986
                                Total commercial fish landings, 1970 - 7986, showing proportion of major fisheries. Source:
                          Oregon Agricultural Stafisfics


                          fish species, such as cod, rockfish, snappers,                                       bobbins or rubber discs attached to the bottom
                          sablefish (black cod), soles and flounders. Of all                                   of the mouth to help prevent snagging on the
                          the fish and shellfish landed in Oregon in 1989,                                     bottom. Trawls can be over 100 feet across the
                          groundfish made up about one half of the total                                       opening and 150 feet long. Trawlers must be
                          weight and one third of the total value. Over 83                                     equipped with cables, winches, and booms ade-
                          million pounds of groundfish were landed in                                          quate to drag and lift heavy nets full of fish.
                          Oregon during 1989. This catch had an ex-ves-                                               A nearshore mixed species trawl fishery oc-
                          sel value of over $26 million. Most of the                                           curs both inside and outside the territorial sea
                          product is processed in sbore-based plants. The                                      up to depths of about 250 fathoms (1500 feet).
                          groundfish fishery typically generates more                                          A variety of species are caught including ling
                          employment in the processing industry than                                           cod; Pacific cod; Pacific whiting; various rock-
                          any other Oregon fishery.                                                            fish (called the "Sebastes complex"); English,
                                Most groundfish are harvested by trawlers                                      petrale, and rex sole; sanddabs; starry
                          using midwater or bottom trawl nets. Some                                            flounder; and other flatfish, dogfish, skates and
                          groundfisb are also taken by book and line or                                        rays.
                          fish pots. Trawlers drag funnel-shaped nets                                                 Midwater trawls are fished any where from
                          through the water. The nets are wider at the                                         just above the bottom to just below the surface.
                          mouth and taper back to a narrow "cod" end                                           These trawls are generally larger and must be
                          that collects the catch. Trawl nets have two                                         towed faster than bottom trawls. The midwater
                          heavy metal doors near each side of the mouth                                        trawl fishery targets widow rockfish and
                          of the net which help keep the mouth open as                                         Pacific whiting. The midwater trawl fishery oc-
                          the net is towed through the water. Nets which                                       curs mostly outside the territorial sea.
                          are to be towed over rough bottoms have steel                                               Deep water bottom trawling occurs over






                                                                                              Ocean Fisheries e 69


              muddy and rocky bottoms. The bottom trawlers             million pounds in 1988 and 1 million pounds in
              are often referred to as draggers. The fishery           1989. The ex-vessel value peaked in 1974 at
              targets primarily Dover sole, with black cod             $12,571,000 and plunged to $814,000 in 1985.
              and rockfish species taken as incidental                 In 1988 the ex-vessel value increased to about
              catches. The fishery takes place entirely out-           $3.3 million, but fell in 1989 to about $780,000.
              side the territorial sea at depths from 250 to at            The downward trend in both catch and ex-
              least 700 fathoms (1500 to 4200 feet).                   vessel value is not confined to Oregon. The
                   Black cod or sablefish are harvested com-           same trend exists in California and
              mercially by deep water trawl nets, pots, and            Washington. The reduced landings appear to
              longlines. In 1989, about 66% of the black cod           be the result of reduced fishing effort caused by
              were caught by trawls, 23% by pots, and 11%              lower ex-vessel prices and perhaps a decrease
              by longlines. Pots are generally fished in 200 to        in albacore abundance. The collapse of the U.S.
              400 fathoms (1200 to 2400 feet), although in             tuna canning industry has seriously depressed
              the past several years fishermen have begun ex-          the market. Many fishermen forego tuna al-
              ploratory sets in as much as 900 to 1000                 together, while others have taken to marketing
              fathoms (5400 to 6000 feet).                             directly to the consumer.
                   Charterboat recreational fisheries using                Albacore tuna are distributed through out
              hook and line also target groundfish, especially         the North Pacific. Albacore migrate into the
              rockfish species, lingcod, and cabezon. Charter          waters of the Pacific Northwest in mid-July
              fisheries currently are limited to a maximum             and early August from the central North
              fishing distance of about 12 hours from port.            Pacific as the surface waters begin to warm. Al-
              Most of the demand for charter fishing occurs            bacore are seldom found in water temperature
              during the summer tourist season.                        less than 54 degrees F and they prefer tempera-
                   Management of the commercial groundfish             tures from 58 to 64 degrees F. Albacore also
              fishery is difficult due to the large number of          prefer areas where the horizontal water
              species involved. Increasingly stringent regula-         temperature gradient is rather steep, such as
              tions have been imposed by the Pacific Fishery           oceanic fronts between warmer and cooler
              Management Council over the past several                 water masses. During years in which ocean
              years to protect weaker stocks from overfishing.         temperatures are unusually warm, albacore ap-
                                                                       pear earlier in the summer and are available
              Albacore Tuna                                            further north. By late fall, albacore leave the
                   Albacore are caught by trollers towing as           waters off the Oregon coast and migrate back
              many as 12 to 14 lines of varying lengths.               to the warmer waters of the central Pacific.
              Oregon tuna trollers range far offshore, some                Large concentrations of albacore are also
              venturing into the central Pacific. The boats            known to effectively "disappear" from the
              are large and some are equipped with fish freez-         Pacific Northwest, missing their regular migra-
              ing equipment which allows the boats to                  tion route for what may be years at a time
              remain at sea for weeks or months at a time.             when water temperatures are cool. There are
              Many of the larger salmon troll vessels annual-          no seasonal restrictions in the albacore fishery
              ly participate in the tuna fishery when salmon           in Oregon. Rather the beginning and end of the
              fishing season slows in mid-summer. In winter,           season depends upon water temperature.
              these vessels often turn to crab fishing.
                   Over the last twenty years, Oregon land-            Halibut
              ings of albacore have generally decreased.                   Halibut are harvested by "longliners"
              From a high of around thirty million pounds              which stretch a groundline with baited hooks
              landed in 1974, landings dropped to about 3.9            over the ocean floor. Halibut are fished at






                 70 9 Oregon's Ocean Resources Management Plan


                 depths of 15 to 150 fathoms (90 to 900 feet).           shrimp nets and gear are specific to this
                 Halibut groundlines may be several miles long,          fishery, many shrimpers change gear and
                 are anchored at each end, marked with buoys,            operate in the groundfish and crab fisheries as
                 and have many hooks spaced 15 to 30 feet                season and profitability dictate.
                 apart. The halibut fishery involves mostly                  The Oregon shrimp fishery developed in
                 medium to large fishing vessels.                        the late 1950s. After the introduction of
                     Historical catches of halibut from a small          machinery which could automatically peel
                 area off the mouth of the Columbia may have             these tiny "cocktail" shrimp, the fishery effort
                 been as high as 5 million pounds in the early           greatly increased. The fishery grew steadily
                 1900's. During the late 1960's and early 1970's         through the 1970s, peaking in 1978. From the
                 halibut stocks declined dramatically. Catches           late 1970s through the mid 1980s, landings and
                 off Oregon reached a low of about 5600 pounds           the catch per unit effort decreased. Landings
                 in 1980. During the 1980's halibut catches              during 1983 and 1984 were particularly low,
                 gradually increased. In 1985, approximately 29          probably as a result of the 1982-1983 El Nino
                 vessels harvested 176,500 pounds of halibut in          event. Since 1985, the shrimp fishery has been
                 33 days of fishing.                                     experiencing a comeback. In 1989, over 49 mil-
                     The halibut fishery is tightly controlled by        lion pounds of shrimp were landed in Oregon
                 the International Pacific Halibut Commission,           with an ex-vessel value over $18 million.
                 a U.S.-Canadian organization created in 1923.               The pink shrimp live only about three or
                 The Commission establishes a series of periodic         four years. Because of their short lifespan, the
                 summertime open fishing periods and quotas              relative success or failure of one year class can
                 for the Washington/Oregon coastal area. In              have a considerable effect upon the size of the
                 1989 the commercial season off Oregon con-              stock. Sizable fluctuations in abundance result.
                 sisted of one two-day period.                           Pink shrimp are major food items for a number
                 Shrimp                                                  of fish species including whiting, sablefish, and
                     The small pink shrimp is the target species         petrale sole. Therefore, variations in the size of
                 in Oregon's shrimp fishery. Pink shrimp are             these fish populations may be a major control-
                 found in concentrations called "beds", the boun-        ling factor on the size of the shrimp population.
                 daries of which roughly coincide with areas of          Pink shrimp population size is also effected by
                 green mud 50 to 100 fathoms (300 to 600 feet)           ocean currents and water temperature. Larval
                 deep. In years of high abundance they may be            shrimp apparently have a higher survival rate
                 found as shallow as 35 fathoms and they are             in years of strong upwelling.
                 known to occur at depth up to 250 fathoms.              Crab
                 However, these deep areas do not contain                    Dungeness crab are fished commercially in
                 shrimp in commercial quantities. The beds               Oregon ocean waters with anchored strings of
                 occur off the northern California, Oregon, and          crab pots. A variety of vessels of various types
                 Washington coasts. Fishermen from one state             and sizes, from small trollers to large trawlers
                 may periodically fish the beds off the other two        are seasonally converted to be used in the crab
                 states. The pink shrimp fishery in Oregon is            fishery. There is no limit on the number of pots
                 managed as a limited entry fishery with con-            fished per boat. Some vessels fish over a
                 trols on the number of participating boats.             thousand pots. An average of 400 vessels per
                     Shrimpers tow one or two small-meshed (1            year have participated in the fishery over the
                 V2 inch) nets just above the ocean floor. Chains        past ten years.
                 attached to the nets drag along the muddy bot-              Landings over the years have varied in ap-
                 tom, stirring shrimp up into the net. Although          proximately eight to eleven year cycles. The






                                                                                                            Ocean Fisheries * 71


                 reasons for these fluctuations are not yet fully                15, but over 75 percent of the annual catch
                 understood, but they are probably related to                    generally occurs within the first two months of
                 oceanographic or biological factors rather than                 the season. Most of the legal sized male crabs
                 fishing pressure. Catch has fluctuated from                     are caught by this time and fishing interest
                 lows of 2 to 4 million pounds per year in the                   turns toward the approaching shrimp and sal-
                 years from 1973 to 1975 to highs of over 18 mil-                mon troll season.
                 lion pounds in 1980. In 1989, approximately 10                       Adult crab populations are most prevalent
                 million pounds of crab were landed in Oregon                    shoreward of 75 fathoms. During spring and
                 at an ex-vessel value over $11.6 million.                       summer months, the adults tend to congregate
                       Only adult male Dungeness crabs at least                  inside of 45 fathoms. Juvenile crab concentrate
                 6 V4 inches across the shell may be harvested.                  in shallow nearshore waters, intertidal beach
                 All other crabs caught in the pots are returned                 areas, and estuaries. Crabs migrate seasonally,
                 live to the sea.                                                moving inshore in spring and early summer
                       Adult Dungeness crab molt during the late                 and offshore in fall and early winter. The place-
                 summer months. For the several months follow-                   ment of crab pots follows this pattern.
                 ing the molt, the meat yield and quality is low                      Commercial crab gear is most efficiently
                 and the product unacceptable to processors.                     fished in shallow water less than about 75
                 The crab fishery is closed during this period to                fathoms. However, only in the winter does the
                 protect recently-molted, soft shelled crabs,                    fishery actually extend out to 75 fathoms, al-
                 which could die after handling and being                        though a trend in the fishery seems to be to set
                 thrown back into the ocean. The ocean crab                      the traps deeper and deeper. Weather condi-
                 season runs from December 1 through August                      tions limit how shallow crab are fished. During

                                                                              I
                                                                      Pounds round weight

                        0        2,000,000  4,000,000  6,000,000   8,000,000  10,000,000 12,000,000  14,000,000 16,000,000 18,000,000  20,000,000


                  1970

                  1971

                  1972

                  1973

                  1974

                  1975

                  1976
                        -4-                                1           f
                  1977

                  1978

                  1979

                  1980

                  1981
                        4-
                  1982

                  1983

                  1984

                  1985

                  1986



                     Dungeness crab landings in Oregon ports, 1970-1986





                 72 e Oregon's Ocean Resources Management Plan


                 the rough winter months, gear is rarely set in-           of domestic fishing and processing, and for fu-
                 side of 10 fathoms in order to avoid gear loss            ture contribution to local economies of the state.
                 from strong surges and surf. During the sum-              Sea Urchin
                 mer gear can be set shoreward to 2 to 3                       Red sea urchins have become the targeted
                 fathoms. Crabs live on sandy bottoms. A sub-              species for a relatively new and small fishery
                 stantial amount of fishing also occurs in sandy           off the southern Oregon coast. Red sea urchins
                 areas interspersed among rock outcroppings.               inhabit rocky substrates that support con-
                     The crab fishery experiences significant              centrations of kelp and other marine algae. In
                 gear and spatial conflicts. Generally, crabbers           Oregon, these areas are restricted to the near-
                 will avoid heavily trawled areas to reduce the            shore rocky reefs.
                 chance of gear loss. To help resolve problems                 Sea urchins are harvested by divers using a
                 with potential gear loss, crabbers and towboat            short-handled rake. The distribution of the sea
                 operators have agreed to specific coastwide tow           urchin fishery is determined primarily by
                 boat traffic lanes.                                       availability of suitable sea urchin habitat,
                 Pacific Whiting                                           regulatory and physical restrictions on depth of
                     Pacific whiting or hake may be the most               harvest, weather, and market factors. ODFW
                 abundant finfish species present in offshore              regulations set the minimum harvest depth at
                 waters. Whiting have not been historically har-           10 feet below mean lower low water. Dive
                 vested by Oregon fishermen, but the species be-           equipment allows effective harvest to about 90
                 came an important target species for early                feet, although urchins are currently harvested
                 foreign fishing fleets off the Oregon coast. Over         to about 70 feet in Oregon. The timing of har-
                 96.4 million metric tons were harvested in west           vest tends to coincide with the availability of
                 coast waters (no breakdown is available for               markets which are rather unstable. The major
                 Oregon) in 1984. Joint venture fisheries took             market is in Japan where sea urchin gonads
                 78.9 million metric tons, direct foreign fishing          are considered an aphrodisiac.
                 took 14.8 million metric tons, and U.S. trawlers              The urchin fishery has undergone a rapid
                 took 2.7 million metric tons. In 1989 about 200           expansion in the past few years as divers have
                 million metric tons were taken off the west               moved north from a declining California
                 coast of the U.S. As of 1989, there is no direct          fishery. The first landings were made in
                 foreign fishing on whiting in the 200 mile zone           Oregon in 1986. In 1987, 203,000 pounds were
                 offOregon.                                                landed. In 1988, about 1.9 million pounds
                     Whiting is a high volume, low priced                  (round weight) were landed in Oregon, with an
                 species. The flesh undergoes rapid enzymatic              ex-vessel value of about $560,000. The 1989
                 breakdown after harvest. Quick processing is              fishery landed about 7.8 million pounds valued
                 necessary for a quality product. Processing               at about $2,652,000. Most of the catch current-
                 generally has occurred on large floating factory          ly comes from the Port Orford area, but the
                 ships operating on the fishing grounds. Whit-             fishery is expected to move north in a few
                 ing are harvested primarily by midwater                   years. The fishery is managed as a limited
                 trawls. Fishing generally occurs from April               entry endeavor.
                 through October when the whiting appear in                Squid
                 Oregon's coastal waters.                                      The squid fishery is a relatively new and
                     Interest in whiting is continuing to in-              minor fishery. The first landings were made in
                 crease among domestic processors and fisher-              1982 when 7 vessels landed 113,000 pounds.
                 men. The whiting fishery probably has the                 By 1985, 13 vessels landed 1.8 million pounds,
                 greatest potential of any fishery for expansion           primarily in Newport.






                                                                                              Ocean Fisheries 9 73


                   Changes in market demand and competi-               situation where landings will be low most
               tion with California squid fisheries have con-          years, but occasional good year classes, per-
               trolled the occurrence of the squid fishery in          haps as seldom as once in a decade, will yield
               Oregon. The fishery expanded in the early               occasional years of higher landings.
               1980s in response to increased demand for               Other species
               squid and the availability of vessels idled due             Minor fisheries and incidental catches in
               to poor shrimp fishing. The fishery declined            major fisheries include a variety of species such
               after 1985 as a result of severe price reductions       as hagfish, thresher sharks, dogfish sharks,
               and increases in the shrimp fishery.                    skates, rays, octopus, wolf eels, and cabezon.
                   The gear used to harvest squid includes             Primary information sources for the
               purse seines, lampara seines, and shrimp                preceding section:
               trawls. The fishery is open all year, but most of
               the harvest occurs from March through June                  Oregon Department of Fish and Wildlife
               when the squid are spawning.                            statistics.
                   Squid school in nearshore areas prior to                Good, J.W., R.G. Hildreth, R.E. Rose, and
               and during spawning. Squid appear to spawn              G. Skillman. 1987. Oregon Territorial Sea
               mostly over sandy bottom areas in 10 to 55              Management Study. Oregon Sea Grant Pro-
               fathoms (60 to 330 feet) of water. Virtually all        gram.
               of the squid catch has been made within the ter-            Fox, D.S. 1989. Distribution of Selected
               ritorial sea. Schools near Newport, Heceta              Ocean Fisheries. Oregon Department of Fish
               Head and Coos Bay were fished from 1982                 and Wildlife.
               through 1985. Other spawning schools have                   Radtke, H. and S. Davis. 1988. The
               been observed but have not been fished.                 Economic Landscape of the Oregon Coast.
               scallops                                                Oregon Coastal Zone Management Association.
                   Although beds of weathervane scallops                   Radtke, H. and W.S. Jensen. 1990. Market,
               were known to Oregon fishermen, no targeted             Structural, and Resource Availability Changes
               fishery existed prior to 1981. Scallops are             in the Pacific Fishing Industry That Could Af-
               fished using a dredge with a mesh made of               fect the Economies of Oregon Coastal Com-
               chain. In 1981 three New England scallopers             munities:A Preliminary Assessment. Oregon
               on their way to Alaska "discovered" productive          Coastal Zone Management Association and the
               scallop beds off Coos Bay. Other New England            National Coastal Resources Institute.
               vessels quickly joined the fishery. Many of the             West Coast Fisheries Development Founda-
               local shrimpers suffering from the low abun-            tion. Oregon's Commercial Fishing Industry: Its
               dance of shrimp that year also joined the               Importance to Oregon's Economy.
               fishery. Within a few months, the best beds
               had been fished out and the catch per unit ef-          Risks
               fort seriously declined. The New England boats              Commercial and recreational fisheries can
               then left the area. In 1981 landings totalled           be affected by a wide range of problems and is-
               over 16 million pounds round weight. In 1982            sues: some are responsive to human efforts to
               landings dropped to 1.5 million pounds and              change them, others are entirely beyond the
               have remained low since then.                           reach of humans to affect; some are internal to
                   Oregon scallops have very low reproductive          a particular fishery, others transcend all
               success in many years. Therefore, at any given          fisheries; some are due to economic factors
               time the great majority of scallops in a bed will       within the fishing industry, others involve
               all be from one year class. This results in a           events in entirely different, non-fishing, sectors





                 74 * Oregon's Ocean Resources Management Plan


                 of the economy; some are local in scale, others          Natural Variability
                 are national, regional, or even global; some can             Natural variations in the population
                 be addressed through private efforts within the          dynamics of target fish and shellfish species
                 industry, others are better managed through              and of their prey species have direct impacts on
                 government agencies.                                     the fisheries industry and the livelihood of
                 Weather                                                  fishermen. For the most part natural fluctua-
                    The El Niflo of the early 1980s affected              tions in abundance are not well understood by
                 oceanic current and temperature patterns                 scientists, fishery managers, or fishermen.
                 across vast areas of the Pacific. The produc-                As an example, the Dungeness crab popula-
                 tivity and species composition of biological com-        tion has an eight to eleven year abundance
                 munities changed dramatically. While some                cycle off the entire West coast. Although the
                 species experienced severe population declines,          reasons for this cyclical abundance are current-
                 others were not substantially affected. Some             ly unknown, theories among researchers point
                 fishermen switched to alternate target species;          to biologic or oceanographic causes. Additional
                 others left the industry.                I               scientific research on the effects of various
                    Weather events on a smaller scale, such as            oceanic conditions on the life history of Dunge-
                 severe winter storms, can keep fishing vessels           ness crab can provide fishery managers with
                 in port, cause loss or damage to gear, and can           more accurate population data to predict abun-
                 take the lives of fishermen at sea. More ac-             dance and to set regulations that protect the
                 curate marine weather forecasts would help               population from inadvertent overfishing.
                 reduce the risks to fishermen from storms. The           Overfishing
                 fishing industry also works to minimize                      Overfishing can, unfortunately, be the
                 weather-related risks by improving safety                result of competitive harvest of a "common"
                 precautions and equipment in the industry.               resource, such as marine fish and shellfish.
                 Markets                                                  State, federal, and international fisheries agen-
                    Regional, national and global markets all             cies aim to prevent overfishing and assure the
                 affect the economic vitality of the fisheries in-        long term viability of fisheries and the fish and
                 dustry. For example, Pacific Northwest salmon            shellfish populations. Solid scientific research,
                 fisheries are affected by a number of external           professional training, accurate monitoring, and
                 market-related characteristics including the             effective enforcement are all keys to attaining
                 growth of the Alaska salmon fishery in the last          these goals.
                 few years and the ability to transport fresh and
                 fresh-frozen salmon out of Alaska; the influx of
                 pen-reared salmon from northern Europe,
                 Iceland, Chili and British Columbia; and the
                 value of the dollar compared to foreign curren-              The plots on the following pages show, as
                 cies, especially the yen. To maintain a competi-         did the one at the opening of this chapter, the
                 tive edge, the fishing industry makes every              average catch of various species from 1984
                 effort to handle the product and to work with            through 7986, aggregated into 5-minute blocks.
                 processors and shippers in ways to assure that           These data v0l/ help fishery managers deter-
                 high quality fish reach the market. Seafood              mine the relative value of ocean areas, and will
                                                                          help them identify important fishery habitats
                 commodity groups also use marketing cam-                 and potential resource-use conflicts before
                 paigns to promote their products in the retail           they actually occur.
                 market.                                                      Source: ODFW





                              Widow Rockfish                                            Widow Rockfish                            Yellowtail Rockfish                                             All Other Rockfish                                 Dover Sole                                                                                      Ocean Pink Shrimp
                             (Bottom Fishery)                                         (Midwater Fishery)
                                                                                          ID=                                          U-1 I I I I
                                                                                                                                        HIM
                                                                                                                                       IIIIIII
                                                                                                                                                                                                                                                                                                                                                          I I I ITTT_
                                                                                                        -----                                                                                                                                                                                                                                            LLI I I I I
                                                                                                                                                                                                              11 son I I
                                                                                          IIIII ---- --------                          Ll I III                                                                                                                                                          Average Annual Catch 1986-1987                            ....
                                                                                                -- --------
                                                                                                                                                                                                                                                                                                         M500,000 lbs. +
                                                                                                                                          L ----
                                                                                                                                                         Hill                                                                                     LIM
                                                                                                                                                                                                                         me 11                                                                                          - 500,000 lbs.
                                                                                                                                                                                                                             -     I                                                                     = 350 001
                                                                                          LLI                                                ---------                                                                                                                                                         200,001  - 350,000 lbs.                   LUIII
                                                                                          III           HIM   III
                                                                                          ILILI               M 111111
                                    ---------                                             III                 IN1111111                    -----------                                                                                                                                                         100,001  - 200,000 lbs.                               _LHI 1110 10
                                                                                          LU
                                                                                              I  -----------                           Ulli I    -----
                                                                                                                                                                                                                                                                                                               100 - 100,000 lbs.
                                                                                                                                                                                                                                                                                                            Shrimp Legend                                                _LLI I I
                                         LL _L LLLI M MU111111P,
                                                                                                                                                                                                            - ------                                      --------

                                                                                                              L _@U 11


                                        -------                                                                                             --------
                                                                                                                                                                                                               -------                                    --------
                                                                                                  ------------
                                                                                                                                              ---------                                                        -------

                                                                                                                                                                                                                                                                                                                                                                       L
                                                                                                                                                                                                               -------                                 -------

                                      ---------                                               -----------                                                                                                                                                                                                                                                    Lil I ----Lilill=
                                      ---------                                                      ------
                                                                                                   --------                                                                                                    -----                                   -------
                                                                                                                                                                                                               -----                                   -------


                                                                                                                                            ------                                                                                                                                                                                                                   ï¿½t7



                                                                                                                                                                                                                                                       T
                                                                                                                                                                                                                                                 IIIIIT

                               IIIII  ----------                                                    -------                                                                                                  --------                            IIIII I
                              L.I.1 I I---------                                                                                                                                                             --------                                                                                                                                   ILLLIJ I I I
                               Hill
                                IM    --------                                                                                                                                                                -------                            HH+*[+ +
                                                                                                                                                                                                           ----------
                               IIIII    -------                                                                                              --------                                               Hill    ---------                            H-H+
                               Hill                                                                                                                                                                 IIIH                                                                                                                                                           ------
                                      --------                                                   ---------                                                                                                   --------
                                                                                                                                                                                                                                                 IIH
                                      --------                                                                ...
                                      ---------                                                 -------
                                                                                        I I I I I I                                      A                                                                                                              - -----


                                                                                        LU I I I


                                                                                        L-111.1 I I
                                                                                        EFER                                         1_4                                                                                                                                                                   Fish Legend
                                                                                                              IIH                                                                                                                                          ------
                                                                                                    _L AA     IIIIIIII                                                                                                                                                                                   Average Annual Catch 1986-1987                            -----
                                                                                                                                                                                                                                                                                                         gM 270,000 lbs. +
                                                                                                                                                                                                                                                                                                               180,001 - 270,000 lbs.
                                                                                                                                                                                                                          41M                                                                                         - 180 0001bs.
                                                                                                                                                                                                                                                                                                               90 001
                                                                                                  UII                                                ---                                                                                                                                                       30,001 - 90,000 lbs.                             HHHHHHHH1
                                                                                                                                                                                                                                                                ---+H+
                                                                                                                                                                                                                                                                                                               100 - 30,000 lbs.







                                       Petrale Sole                                                                                                              English Sole                                          Lingeod                                                Channel Rockfish                               Pacific Ocean Perch                                             Arrowtooth Flounder



                                                                                                                                                            Jill                                                                                                                                                                   FH++HIM

                                                                                                                                                                                                                                                                                 H+H+
                                                                                                                                                                                                                                                                                                                                    Mill
                                                                                                                                                                                                                                                                                HIM I
                                                                                                                                                                                                             ail I 11-1 -----
                                                                                                                                                                                                             RH*
                                                                                                                                                                                                             HIM


                                                                                                                                                                 ----------
                                                                                                                                                                                                                                                                                                                                          _1 AL     I 1 0 m
                                                                                                                                                                                                                                                                                         T -                                              -L-L   I I I m
                                                                                                                                                                                                                       --------                                                                                                               -Jill
                                                                                                                                                                                                                                                                                                                                               J11111111111                                                  ----
                                             ------                                                                                                                   -- -----                                                                                                              ------
                                                                                                                                                                                                                                                                                                                                                                                                             T__
                                                                                                                                                                      --- -----                                        --- ---                                                           --------
                                                                                                                                                                      -- -----                                         ------                                                            --------

                                                                                                                                                                                                                                                                                            ......                                          -------

                                                                                                                                                                 ------ -----                                                                                                                                                               -------

                                                                                                                                                                 ------------                                                                                                          ----------                                         ----------
                                                                                                                                                                 ------------                                                                                                                                                                                                                                ____LI IN
                                                                                                                                                                 ------------                                                                                                                                                                                                                                ____U III
                                                                                                                                                                 ------------                                                                                                         ------------                                                                                                             11 lill
                                        -----------                                                                                                              ------                                                                                                                     ------                                                                                                           _-U-IIIIIIIIIIIII
                                        -----------                                                                                                              -------------                                         --------                                                             ......                                                                                                                     IIIIIII
                                        -----------                                                                                                                                                                                                                                   ------------                                                                                                                     IL III
                                        -----------                                                                                                                                                                    -------                                                                                                                                                                                 I I HI
                                        -----------                                                                                                              -- ---------                                                                                                                                                                                                                                -AL I I 11
                                                                                                                                                                 -- ---------                                                                                                                                                                                                                                __ 1 11111
                                                                                                                                                                 I    ----  L_                                  - T    ------                                                                                                                                                                                ------
                                       ------------                                                                                                              L    -------                                          -------                                                                                                        -- -------                                                          --------
                                       ------------                                                                                                              - -------                                                                                                                                                                                                                                --------
                                        ----------


                                       LIJ I I                                                                                                                   - -------                                             -- ----                                                                                                                  TO                                                           ------
                                       H+4                                                                                                                            ------                                           -- ----
                                  IIIII                                                                                                                  Ll I I II                                           a] I I I I
                                             ------                                                                                                                                                                    --------
                                                                                                                                                                 T                                                                                                             I I FrTTT
                                                                                                                                                                      -----                                            ------
                                             ------                                                                                                                   ------
                                  @H*                                                                                                                                                                                  ____ - __                                                                                                L-L I I IIIIII
                                                                                                                                                                                                                                                                                                                                            - -----                                              Hi  iiiiiiiii
                                                ----                                                                                                     LU I I I I   -----                                                                                                            L ---                                          Hii
                                                                                                                                                                                                                                                                                                                                                                                                  11  HillI
                                                                                                                                                         FFFW         ------                                                                                                           ------
                                                                                                                                                         U 11    111                                         UIIIII
                                                                                                                                                                                                             IIIH      I                                                                                                                                                                                  -------
                                                                                                                                                         Hill    III                                         HIM       11                                                                                                        ffiH Hi  i
                                                                                                                                                         Ill     III  ------                                 Hffl+@ - -                                                                ------
                                                        MEN                                                                                              all     III                                         aIIII1    --------
                                        --I           MEN I

                                        __L_          I EM
                                                                                                                                                                         ---                                 L1J I I I I
                                                                                                                                                                                                             11        -----                                                                ---
                                                                                                                                                         RH-H+
                                                                                                                                                                                                             IHHH      ------
                                             11  if   I I I I IN                         Fish Legend                                                                                                                   ------
                                                _L    A I I I IN
                                                I
                                                                                Average annual catch 1986-1987                                                                                                               . ...... ..
                                                                                                                                                                           _LL
                                                                                      70,000 lbs. +                                                                   ------

                                                                                                                                                                                                                                                                                                                                                                                                                       IIIL 1111
                                                                                      40,001 - 70,000 lbs.                                                            ------                                                                                                                                                                                                                                           Hill Hill
                                                                                                                                                                                                                                                                                                                                                                                                                       Hill
                                                                                               - 40,000 lbs.                                                          - ---- -----
                                                                                      20,001                                                                                                                                                                                                                                                                                                                   11      Hill  I now
                                                                                                                                                                                                                                                                                                                                                                                                               11      Hill
                                                                                      5,001 - 20,000 lbs.                                                                  ---                                                                                                                                                                                                                                 I
                                             l@l 141 1 1, 11111 1 Ill 11                                                                                                                                                                                                                                                                                                                                       1       Hii
                                                                                      100 - 5,000 lbs.                                                                                                                                                                                                                                    IIIIIIIH






                                                                                                Ocean Fisheries * 75


               Use and Spatial Conflicts                                 spawning and rearing of young fish. Other
                   Other risks to maintaining a healthy fish-            habitats allow juvenile fish tohide from
               ing industry come from potential and existing             predators while maturing. Several species of
               conflicts over the use of space. For example, oil         fish that are caught in the ocean breed and
               rigs or exploratory drilling ships with their as-         feed in fresh water streams and coastal es-
               sociated anchors or guy lines can preclude fish-          tuaries.
               ing vessels, especially ones that fish with long              Many of the complex relationships in and
               nets or trawls, from several square miles of              among marine habitats are poorly understood.
               fishing ground. Boats towing barges or seismic            And yet, subtle changes in these habitats and
               surveying instruments can cut loose floats from           large scale disruption or destruction can affect
               crab pots and destroy expensive fishing gear.             the survival of fish populations. Poor logging
               Recreational water users such as jet skiers, sail         practices on land, dredging and filling of es-
               boarders, and small boat fishermen can in-                tuaries, mineral mining on the sea bottom,
               crease congestion around port entrances and               deposit of drilling muds and cuttings from off-
               create navigational problems for fishing vessels          shore oil drilling rigs, and extraction of san4 or
               leaving or returning to a harbor.                         gravel from the sea floor can all change the
               Pollution                                                 habitats on which fish and prey food depend.
                   Pollution can taint the flesh of fish reduc-          And, all too often, scientific knowledge is not
               ing their market value or making them entirely            adequate to predict with certainty what the ef-
               unmarketable. At higher concentrations, pol-              fects will be of a particular project.
               lutants poison fish and other organisms in the            Issues
               food web, including humans. Oil spills can dis-               The future will bring new challenges to
               perse over vast distances destroying fish runs.           ocean resources management. Pressures to ex-
               Untreated sewage dumped in bays and es-                   plore and develop the nonrenewable resources
               tuaries can result in the bioaccumulation of bac-         of the ocean, such as oil, gas, and minerals, are
               teria and toxic chemicals in the flesh of filter          likely to increase in our modern consumptive
               feeding clams and oysters making them unac-               society. New uses of renewable resources may
               ceptable food for humans. Runoff from the land            develop, including new fisheries, which may
               carrying chemical pesticides, heavy metals, or            conflict with existing uses of renewable resour-
               durable plastics all pose threats to the ultimate         ces. Human efforts to expand the uses of both
               viability of marine ecosystems, including food            renewable and nonrenewable resources will in-
               fish and shellfish.                                       creasingly impact marine ecosystems.
               Habitat Disruption and Destruction                            The mandate of the Oregon     Ocean Resour-
                   Marine fish habitats vary widely and may              ces Management Act is clear. Oregon will:
               cover vast areas or be restricted to relatively              Conserve the long-term values, benerits and
               unique bottom features. Broad, flat muddy or                 natural resources of the ocean both within
               sandy bottoms cover much of Oregon's continen-               the state and beyond by giving clear priority
               tal margin and provide habitat for such bottom               to the proper management and protection of
               fish as Dover sole and sablefish and for Dunge-              renewable resources over nonrenewable
               ness crab. Others, such as yellowtail and ca-                resources.
               nary rockfish, congregate around rocks and                    The Pacific Fishery Management Council
               reefs for food and protection. Still others, such         and the Oregon Fish and Wildlife Commission
               as herring and hake, school in midwater and               manage fishery harvests and develop manage-
               feed on tiny shrimp-like creatures. Certain               ment plans for certain ocean fisheries off
               habitats provide just the right conditions for            Oregon's coast. Oregon supports the existing






                76    Oregon's Ocean Resources Management Plan






                                                          A

                                     71
                                                               141.


                                                                                                                     .4









                                                                   -A4,
                                                            AW,


                                                 A6,
                                            4.
                                                             X
                                                                                                                 A





                                       .Iy'
                                                             'Y







                                                                                           VT
                                                                             41

                                                   VVIV   4
                                                          f




                                                         X

                                                     r i,
                                                                                                          01






                   Large factory trawlers, complete with on-board processing facilities, represent a significant chal-
               lenge for Oregon's commercial fisheries. This SoVet vessel is fishing for hake (Pacific whiting), a mid-
                water fish which teems off Oregon through the late spring and summer. U.S. factory trawlers will be
               more common off Oregon as fisheries off Alaska are depleted (Oregon Sea Grant)






                                                                                                  Ocean Fisheries * 77


                state and federal systems which manage ocean              resources and their uses.
                fisheries. The proposed recommendations on                Habitat Disruption and Loss
                ocean fisheries in the Oregon Ocean Plan are                  All fishery habitats, whether they are
                intended to complement existing fishery                   marine, estuarine, or fresh water, must be con-
                management programs without duplicating,                  served. All agencies and entities responsible for
                counteracting, or diminishing existing fishery            managing freshwater and estuarine resources
                management efforts. The Oregon Ocean Plan                 should be encouraged to provide a high level of
                does not propose any new governmental or-                 protection to fulfill the goal of conserving
                ganizations or systems to directly regulate               fisheries habitats.
                ocean fisheries. The Oregon Ocean Plan does
                not set harvest limits, determine gear types,                 Although both federal and state law pro-
                set fishing seasons, or engage in any other ac-           vide for fishery habitat protection as part of
                tivity which is more appropriately handled by             traditional fisheries management programs,
                existing state or federal fishery management              most fishery management efforts have focused
                systems,                                                  on harvest or catch management. A better un-
                    The Oregon Ocean Plan appropriately ad-               derstanding and management of marine
                dresses only three types of risks to commercial           habitats is needed and should be fully incor-
                and recreational ocean fisheries: pollution,              porated into fishery management programs.
                habitat disruption and loss, and the lack of ade-         Inadequate Information
                quate information.                                            Statewide Planning Goal 19 specifically
                Pollution                                                 directs local, state and federal agencies, within
                    The potential impacts of nonrenewable                 the limits of each's jurisdiction, to:
                resource exploration and development along                  (1) Develop scientific information on the
                with the use of the ocean as the ultimate dump              stocks and life histories of commercially,
                                                                            recreationally and ecologically important
                for the wastes of civilization raise great con-             species offish, shellfish, marine mammals,
                cerns for the future of ocean fisheries.                    and other marine fauna; (2) designate and
                    Statewide Plannin Goal 19 requires that                 enforce fishing regulations to maintain the
                                        9                                   optimum sustainable yield (OSY) while
                the extraction of material from or discharge of             protecting the natural ecosystem; (3) develop
                waste products, including dredged material dis-             and encourage improved fishing practices
                posal, into or affecting the territorial sea do not         and equipment to achieve the OSY while
                substantially interfere with or detract from the            protecting the natural marine ecosystem; and
                                                                            (4) develop scientific understanding of the ef-
                use of the continental shelf for fishing, naviga-           fects of man's activities, including naviga-
                tion, recreation, or from the long term protec-             tion, mineral extraction, recreation, and
                tion of renewable resources.                                waste discharge on the marine ecosystems.
                    Uses of nonrenewable resources such as oil                Adequate specific information is lacking
                and gas development or marine minerals mini-              about Oregon's ocean on such subjects as:
                ng may be appropriate uses of ocean resources,            oceanic habitats; marine ecosystem dynamics;
                but only if they do not adversely affect the              population behavior and the interactions be-
                maintenance and enhancement of renewable                  tween populations: the location of key spawn-
                uses of ocean resources, such as commercial               ing, rearing, and refuge areas for fish species;
                and recreational fisheries. The policies of the           small scale current patterns; natural oceanic
                Oregon Ocean Plan, especially the policies on             variability; the sensitivity of various popula-
                oil and gas development and marine mineral                tions and habitats to specific disruptions; and
                mining are based on the fundamental need to               the potential impacts of different types of
                protect fisheries and other renewable ocean               human activities. This information will be






                 78 o Oregon's Ocean Resources Management Plan


                necessary to continue to manage Oregon's                 health and productivity of marine habitats that
                fisheries in a manner that protects the resource         support Oregon's ocean fisheries; support exist-
                from overfishing and from adverse effects of             ing state and federal fishery management ef-
                the exploration and development of nonrenew-             forts; and protect ocean commercial and
                able resources; maintains the economic                   recreational fisheries from any adverse affects
                viability of the fishing industry; maximizes the         of exploration and development of nonrenew-
                economic value of the resource; maximizes the            able ocean resources, such as oil, gas or marine
                biological yield of the stocks; and results in cost      minerals.
                effective and enforceable regulatory regimes.            Important Fishery Areas
                Conclusions and                                              For planning and resource management
                Recommendations                                          purposes, Oregon is highlighting several types
                    Oregon values ocean fisheries as the keys-           of "Important Fishery Areas". The term "Impor-
                tone use of ocean resources.                             tant Fishery Area7as used in the Oregon
                                                                         Ocean Plan includes:
                 ï¿½  Oregon's ocean fisheries, both commercial            1. Habitats important to the biological success
                    and recreational, are highly significant to              of commercially and recreationally caught
                    the continued health and welfare of local,               fish species, such as spawning, rearing,
                    regional, and statewide economies.                       resting and feeding areas.
                 ï¿½  The entire Ocean Stewardship Area is im-             2. Areas important to commercial and recrea-
                    portant to Oregon's commercial and recrea-               tional fishing activities, including:
                    tional fisheries. Oregon's diverse and                0  High catch areas. (e.g., High total pounds
                    productive fisheries are dependent upon a                landed and high dollar value of landed
                    variety of habitat types and areas                       catch)
                    throughout Oregon's Ocean Stewardship
                    Area. Protecting the oceanic environment              0  Areas where a few members of the fleet
                    is crucial to the maintenance of the                     catch a relatively small number of pounds
                    fisheries industry. Sound ocean resources                of highly valued fish.
                    management must conserve all of oceanic               0  Areas which are seasonally important to
                    habitats.                                                fishing activities such as areas where high
                 ï¿½  Ocean fisheries are managed through a                    catches are limited to certain times of the
                    complex system of state and federal laws                 year or areas which are important
                    and regulations.                                         migratory routes.
                 ï¿½  Better understanding of the importance of            3. Habitats that support populations of animals
                    specific marine habitats and of the                      which are important as food or prey species
                    dynamics of marine ecosystems to the                     to commercially and recreationally caught
                    viability, diversity, and productivity of fish           fish species.
                    populations is needed.                               4. Areas important to commercial and recrea-
                 ï¿½  Oregon must conserve marine ecosystems,                  tional fishing activities for specific in-
                    including biological communities and                     dividual ports or particular fleets.
                    marine habitats. Oregon needs to identify                (As more information is gathered about "Im-
                    and protect important fishery areas.                 portant Fishery Areas", the Oregon Depart-
                    The goals of the Oregon Ocean Resources              ment of Fish and Wildlife may include
                Management Plan are to support and enhance               additional categories of "Important Fishery
                Oregon's ocean fisheries; ensure the continued           Areas", if needed.)






                                                                                                    Ocean Fisheries * 79


                      Some of these important fishery areas are                  recreational fisheries and that do not adver-
                 easy to identify and are known to be vital to                   sely affect the long-term viability of fish
                 sustaining the diversity and productivity of                    populations or the quality of marine
                 Oregon's ocean fisheries. These areas include                   habitats.
                 Heceta-Stonewall Banks, Coquille Bank, As-                 4.   Heceta-Stonewall Banks, Coquille Bank, As-
                 toria Canyon, Rogue Canyon, and the area off-                   toria Canyon, and Rogue Canyon are too
                 shore from Cape Blanco.                                         important to Oregon's ocean fisheries to
                      But, the information available about many                  risk disturbance from nonrenewable
                 of the "Important Fishery Areas" is limited.                    resource uses. In these areas, prohibit com-
                 "Important Fishery Areas" need to be iden-                      mercial exploration and lease sales consis-
                 tified, studied, evaluated, and protected from                  tent with the majority position in the
                 activities which would adversely affect ocean                   Marine Minerals Policies. Allow non-
                 fisheries or could adversely affect the viability,              proprietary academic and public agency
                 diversity, and productivity of these habitats                   scientific research related to marine
                 and the biological communities they support.                    minerals if the Oregon Department of Fish
                      Gathering and analyzing information about                  and Wildlife determines that the research
                 all of the "Important Fishery Areas" of Oregon                  activities will not cause significant adverse
                 Stewardship Area will be time consuming and                     effects on the fisheries or on sensitive
                 costly. Oregon's efforts need to be focused on                  marine populations or habitats.
                 (1) identifying areas so vital to the health and           5.   In other "Important Fishery Areas", allow
                 welfare of ocean fisheries that only renewable                  specific uses of nonrenewable resources if
                 resource uses should be allowed, and (2) evalu-                 the Oregon Department of Fish and
                 ating the significance and sensitivity of specific              Wildlife determines that the specific
                 areas where nonrenewable resource uses are                      proposed activity will not adversely affect
                 being proposed and determining whether the                      commercial or recreational fishery ac-
                 probable impacts of the proposed activity on                    tivities, the quality of fish habitats, or the
                 commercial and recreational fisheries are ac-                   viability of fish populations.
                 ceptable.                                                  6.   Support research on marine ecosystems, fish
                 Recommended Policies                                            populations, and fish habitat needs which
                 1.   Conserve, protect and, where needed, en-                   will promote sound fishery management
                      hance or restore marine habitats that are                  decisions. Study, evaluate, and identify
                      important to commercial and recreational                   specific "Important Fishery Areas".
                      fish species.                                              Evaluate the probable risks and effects of
                 2.   Give clear priority to the proper management               the specific activities on ocean fisheries.
                      and protection of renewable resources over            7.   Develop public education and interpretation
                      nonrenewable resources throughout                          programs about the commercial and recrea-
                      Oregon's Ocean Planning Area. Commer-                      tional fishing industry; its characteristics,
                      cial and recreational ocean fisheries have                 key species, important fishery areas, and
                      priority over uses of nonrenewable resour-                 contribution to Oregon's economy and cul-
                      ces, including oil, gas and mineral explora-               ture.
                      tion and development.                                 Needed Actions
                 3.   Allow only those uses of nonrenewable resour-         0 The Ocean Policy Advisory Council should:
                      ces within the Ocean Stewardship Area                      Encourage the Oregon Department of Fish
                      that do not adversely affect commercial or                 and Wildlife, National Marine Fisheries





                 80,D Oregon's Ocean Resources Management Plan


                    Service, and Pacific Fishery Management                   able resource exploration, development, or
                    Council to continue to identify and to take               use.
                    appropriate steps to manage important                   0 In instances when a specific project is
                    fisheries and protect fish habitats.                      proposed for the exploration, development,
                 ï¿½  Encourage the Oregon Department of Fish                   or use of a nonrenewable resource in an
                    and Wildlife, National Marine Fisheries                   "Important Fishery Area", conduct detailed
                    Service, and Pacific Fishery Management                   biological assessments, economic assess-
                    Council to undertake, as a high priority, re-             ments, and risk evaluations to determine
                    search on marine habitats and ecosystem                   whether the proposed activity is likely to
                    dynamics which support Oregon's commer-                   adversely affect commercial or recreational
                    cial and recreational fisheries.                          fisheries or to adversely affect the long-
                 ï¿½  Oppose any uses of nonrenewable resources                 term viability of fish populations or the
                    which could adversely impact ocean                        quality of marine habitats.
                    fisheries. Act to implement the policies                  Identify those "Important Fishery Areas"
                    identified in the sections on oil and gas and             (in addition to the five areas identified in
                    on marine minerals of the Oregon Ocean                    Policy 4 above) that are so vital to recrea-
                    Plan.                                                     tional and commercial fisheries that the
                 ï¿½  Provide a forum for evaluating the accept-                risks associated with nonrenewable
                    ability of the risks associated with the im-              resource exploration, development, and use
                    pacts of nonrenewable resource uses on                    are simply not acceptable.
                    renewable resource uses, especially ocean                 Conduct and support research on impor-
                    fisheries.                                                tant fishery areas (especially nearshore
                El  The Oregon Department of Fish and                         areas) that support populations of animals
                    Wildlife should:                                          which are important as food or prey species
                 ï¿½  Develop and adopt a marine habitat clas-                  to commercially and recreationally caught
                    sification system.                                        fish species. Determine whether any addi-
                                                                              tional protective measures are needed for
                 ï¿½  Identify the geographic extent of "Impor-                 the areas.
                    tant Fishery Areas" throughout the Oregon                 Coordinate the development of public
                    Ocean Stewardship Area. (See definition of                education and interpretation programs
                    "Important Fishery Areas" above). Deter-                  about the commercial and recreational fish-
                    mine whether any additional protective                    ing industry; its characteristics, key
                    measures are needed for these areas to                    species, important fishery areas, and con-
                    protect recreational and commercial                       tribution to Oregon's economy and culture.
                    fisheries from adverse effects of nonrenew-






                                                                                  Marine Birds and Mammals 0 81


                     Marine Birds and Mammals

                Resources                                                  Oregon coast. Nearly 1.2 million seabirds, in-
                     Oregon's ocean waters, rocky coast, and               cluding several threatened and endangered
                nearshore rocks and islands are home to many               species, depend on the nearshore rocks and is-
                marine birds and mammals.                                  lands for breeding, nesting, and resting
                                                                           habitats. The total population of breeding
                     Most of the bird and mammal colonies are              seabirds in Oregon varies from year to year
                within three National Wildlife Refuges: Oregon             due primarily to natural variations in food
                Islands, which includes over 1,400 nearshore               supply.
                rocks and islands; Cape Meares, with several                   Thirteen species of marine birds breed
                endangered species and an adjacent old-growth              along Oregon's coast. They are the double-
                forest; and the Three Arch Rocks, where twelve             crested, Brandt's and pelagic cormorants;
                of the thirteen species of breeding seabirds in            Cassin's and rhinoceros auklets; Leach's and
                Oregon nest, including the largest colony of               fork-tailed storm-petrels; pigeon guillemots;
                common murres south of Alaska. The refuges                 western and glaucous-winged gulls; common
                include only the dry land part of the rocks and            murres; black oystercatchers; and tufted puf-
                islands. A few of the marine bird and mammal               fins. Other birds which visit or migrate
                rookeries and haul out sites are on privately              through coastal Oregon include: loons, grebes,
                owned property, such as Tillamook Rock. A                  albatrosses, shearwaters, fulmars, bald eagles,
                number of the rocks and islands are accessible             Canada geese, numerous species of ducks,
                at low tide.                                               plovers, sandpipers, turnstones, sanderlings,
                Marine Birds                                               phalaropes, and the endangered brown pelican.
                     The birds of the Oregon coast include year-               Although most people recognize Western
                round residents; migrants on their way north               gulls and cormorants, these familiar species
                to breeding grounds in the Arctic or south to              are only a very small part of the picture. The u-
                wintering areas in warmer climates; oceanic                biquitous western gull accounts for about 1.5
                birds coming ashore to nest and fledge their               percent of the total breeding population of
                young; and inland birds feeding on the rich                seabirds along the Oregon coast. Common mur-
                resources of the estuaries and coastal streams.            res and Leach's storm-petrels number in the
                     The nearshore rocks and islands are hubs              hundreds of thousands and account for over 90
                of bird activity. Huge breeding colonies use the           percent of Oregon's population of breeding
                rocks and islands. Many marine birds take off              seabirds.
                from nesting sites on the rocks and forage wide-               Common murre colonies are often extreme-
                ly over the entire width of the continental mar-           ly large and dense. Tens or hundreds of
                gin. Some species use the rocks as staging                 thousands of birds can be packed shoulder-to-
                areas where individuals congregate to get                  shoulder on the rocks during the summer
                ready for long migrations. The rocks are also              breeding season. Nesting sites are usually flat
                rest stops and shelters in the migratory routes            rock surfaces on island tops or rocky ledges.
                of other species.                                          Murres lay a single egg and both parents will
                     Although the length of the Oregon coast is            feed the chick until it is ready to leave the nest.
                less than a quarter of the entire California-              Murres are deep divers and will travel far
                Oregon-Wasbington coastline, over one-half of              along the coast searching for small fish which
                the nesting seabirds of the entire continental             they bring back to the nest one at a time.
                U.S. Pacific coastline are found along the





                  82 9 Oregon's Ocean Resources Management Plan


                    National Wildlife Refuges

                      The U.S. Fish and Wildlife Service (USFWS) ad-            cated along the open coast, while the fourth is lo-
                 ministers four National Wildlife Refuges along                 cated at Bandon Marsh, a salt marsh in the Coquille
                 Oregon's ocean coast. Three of the refuges are lo-             River Estuary.
                      Cape Meares Nationoll Wildlife Refuge
                      Located at Cape Meares, southwest of Til-                 tion Department and the USFWS.
                 lamook Bay, this refuge protects one of the few                    The refuge is managed as an ecological
                 remaining coastal old growth forests and a number              preserve with no habitat alterations. Public use of
                 of vertical cliffs which serve as breeding habitat for         this refuge is limited to hiking on the trail that
                 marine birds. Endangered species using the area in-            meanders through the forest and links up with the
                 clude American peregrine falcons and bald eagles.              adjacent Cape Meares State Park.
                 The 138-acre refuge is designated as a Research
                 Natural Area by the federal government and is
                 managed jointly by the Oregon Parks and Recrea-

                      Three Arch Rocks National Wildlife Refuge
                      Located just offshore from Oceanside and                  refuge, including: the American peregrine falcon,
                 south of Cape Meares, this refuge is composed of               bald eagle, Aleutian Canada goose and California
                 six small rocks and three large rocks totalling.about          brown pelican. The Seal Rock Unit of the refuge is a
                 17 acres. Only the area above mean high tide line              haulout area and pupping area for northern sea
                 on each of the rocks is actually within the refuge.            lions.
                 The refuge is the largest breeding colony of                       The refuge is closed to all public entry to en-
                 seabirds in Oregon. Twelve of the thirteen species             sure that marine birds and their nesting habitats
                 of seabirds which nest along the Oregon coast are              remain undisturbed. No human-related habitat al-
                 found here. The common Murre colony at Three                   terations of the refuge are allowed.
                 Arch Rocks is the largest colony south of Alaska.
                 Endangered species make extensive use of this
                      Oregon Islands National Wildlife Refuge
                      This refuge stretches from Tillamook Head                 cons, bald eagles, Aleutian Canada geese, and
                 south to the California border and includes more               California brown pelican. Harbor seals, northern
                 than 1400 rocks and islands. Only those portions of            elephant seals, northern sea lions, and California
                 the rocks and islands that are above mean high tide            sea lions make extensive use of the refuge for pup-
                 and are separated from the mainland at mean high               ping and haulout areas. The breeding colonies of
                 tide are included within the refuge. (There are a few          northern sea lions on the Rogue and Orford Reef
                 exceptions to this rule where rocks are privately              Units of the refuge are the largest south of Alaska.
                 owned or administration has been maintained by                     The refuge is a wilderness area and ecological
                 the U.S. Bureau of Land Management.)                           preserve. No habitat alterations caused by humans
                      The wildlife resources of the refuge are tremen-          are allowed. Public access is not allowed at anytime
                 dous. The majority of the more than one million                with the limited exception of officially approved
                 marine birds that breed in Oregon nest within the              scientific research projectsAe
                 boundaries of this refuge. Endangered species
                 using the refuge include American peregrine fal-




                      Leach's storm-petrels are very small, some-               and leave the burrows under the cover of dark-
                 what secretive birds. Although it is the second                ness to avoid being killed and by gulls. Once
                 most common bird along the Oregon coast, few                   the single egg is laid, one of the parents will
                 birdwatchers have ever seen one. A rock that                   stay in the burrow on the nest while the other
                 looks barren, with perhaps just a few gulls on                 parent forages for food. Once the chick hatches,
                 it, may actually have tens or hundreds of                      the fishing efforts of both parents are needed,
                 thousands of small storm petrel burrows just                   so the chick will be left alone in the burrow.
                 under the surface. Adult storm petrels enter                   Storm-petrels range far across the continental






                                                                                     Marine Birds and Mammals e 83


                 margin and the open ocean to forage for                     tebrates and come to shore to breed, bear their
                 zooplankton and small fish.                                 young, and rest. Nursery areas, called
                 Marine Mammals                                              rookeries, and resting areas, called haulout
                     The cold waters of the Pacific Ocean and                areas, are located on protected shore areas and
                 the rocks, islands and reefs off the Oregon                 on the nearshore rocks and islands. Seals and
                 coast are important habitats for a variety of               sea lions are very particular about rookery and
                 marine mammals: whales, dolphins, porpoises,                haulout sites and will return to the same site
                 seals and sea lions.                                        year after year.
                     Nearly everyone who visits or lives along                    Harbor seals are year round residents and
                 the Oregon coast is familiar with the gray                  are the most common seal along the Oregon
                 whales. The gray whales migrate between their               coast. Biologists estimate that there are as
                 summer feeding grounds in the Arctic and                    many as 5200 seals along the Oregon coast.
                 winter calving lagoons of Baja California.                  Harbor seals eat bottom fish, rockfish, herring
                 Migrating whales travel within a few miles of               and salmon. Seals awkwardly scoot along on
                 the coast and can often be seen from shore. The             their bellies when out of water and usually
                 southern migration takes place from November                haulout on rocks only a few feet from the
                 through late January and the northern migra-                water. Although gregarious with their own
                 tion occurs from March through May. A small                 kind, harbor seals are shy around humans and
                 part of the population, probably mostly young               will abandon their haul out areas when ap-
                 individuals, spends the summer along the                    proached.
                 Oregon coast.                                                    Small numbers of northern elephant seals
                     Once threatened with extinction from whal-              travel northward in the summer from their
                 ing, the gray whale population has recovered in             range in central California to haulout areas
                 recent years. Whale watching has become a                   along the Oregon coast. From shore, Northern
                 popular tourist attraction and a number of                  elephant seals can be seen hauling out on
                 charter fishing boats add whale watching trips              Simpson Reef near Cape Arago.
                 to their activities.                                             Northern fur seals breed in islands in the
                     Minke, sperm, blue, humpback, fin, sei,                 Bering Sea and Baja California. After breeding,
                 and right whales also migrate past the Oregon               they spend most of their time at sea and can be
                 coast, usually many miles from shore. Pods of               seen about 10 to 100 miles from shore migrat-
                 killer whales, or orcas, can be seen near the               ing past the Oregon coast.
                 shore and at the mouths of coastal rivers where                  Two different species of sea lions, the north-
                 they feed on fish, seals and sea lions. The                 ern (or Steller's) sea lion and the California sea
                 smaller harbor porpoise and white-sided dol-                lion, are seen along the Oregon coast.
                 phin are also common in Oregon's nearshore                       Sea lions not only are larger than harbor
                 waters.                                                     seals, but they are built differently. Sea lions
                     The whaling industry that threatened ex-                walk on their front flippers and can propel
                 tinction of many whale species has almost                   themselves up and over rocks. When in the
                 stopped worldwide. However, many whale                      rookeries or haulout areas sea lions can be
                 species are still listed as endangered by the               found on rocks many feet above the water. Sea
                 federal government, because populations are                 lion are quite noisy. Their barks can often be
                 still low.                                                  clearly heard from considerable distances.
                     Seals and sea lions depend on both the land                  The California sea lions are the most abun-
                 and the sea. They feed at sea on fish and inver-            dant sea lion along the coast. They are blackish
                                                                             brown and males will grow to around seven





                   84 * Oregon's Ocean Resources Management Plan


                      Endangered, Threatened and Sensitive Species

                       Extinction
                       Extinction is the ecological death of a species.                  Biologists are concerned that the rate of extinc-
                   When a species cannot adapt to changing condi-                   tion has dramatically increased as human influence
                   tions and fails to produce enough young to keep                  on the planet has grown. Besides irreversibly
                   pace with its death rate, a species will eventually be-          destroying genetic diversity, species loss to an
                   come extinct. Extinction is a lingering process. At              ecosystem can render the system less stable and
                   first, a species disappears from a section of its nor-           adaptive to climatic or geological changes.
                   mal range. As the region of extinction spreads, the                   Loss or alteration of habitat is the major cause
                   participation of the remaining populations in ecosys-            of human-induced species extinction. Other major
                   tem dynamics becomes less and less. Eventually, if               causes include direct killing or poisoning, pollution,
                   the populations cannot revive, the species becomes               and the introduction of non-indigenous competing or
                   extinct. Whole ecosystems can be affected by the                 predatory species.
                   extinction of a single species.

                       Endongered and Threatened Species
                       Under federal law, an endangered species is "a               and threatened species and for developing
                   species that is in danger of extinction throughout all           programs to protect these species.
                   or a significant portion of its range" and a                          The marine birds and mammals along the
                   threatened species is "a species that is likely to be-           Oregon coast which have been listed by the federal
                   come an endangered species within the foresee-                   (US) and state (OR) government as endangered (E)
                   able future throughout all or a significant portion of           or threatened (T) include:
                   its range".                                                           Bald eagle (US, OR: T)
                       The Endangered Species Act of 1972 directs
                   federal agencies to conserve endangered and                           Aleutian Canada goose (US, OR: E)
                   threatened species and the ecosystems on which                        American peregrine falcon (US, OR: E)
                   these species depend. The goal is to bring popula-                    California brown pelican (US, OR: E)
                   tions levels of endangered and threatened species
                   back to a level at which the species no longer are in                 Western Snowy Plover (OR: T)
                   danger of extinction and no longer need special                       Gray, right, blue, fin, sei, humpback, and sperm
                   protection. The U.S. Fish and Wildlife Service and               whales (US, OR: E)
                   the National Marine Fisheries Service are required
                   to identify and list species which are endangered or                  The Oregon Department of Fish and Wildlife
                   threatened.                                                      also maintains a watch list of sensitive species
                                                                                    which may become eligible for listing as threatened
                       The Endangered Species Act makes it unlawful                 or endangered if populations declines should con-
                   to "harass, harm, pursue, hunt, shoot, wound, kill,              tinue. A number of birds and mammals along the
                   trap, capture, or collect, or to attempt to engage in            coast are considered to be "sensitive" including:
                   any such conduct".                                               fork-tailed storm petrel; dusky and cackling Canada
                       Oregon's wildlife laws have sections which are               geese; northern goshawk; greater yellowlegs; long-
                   similar to the federal Endangered Species Act. The               billed curlew; marbled murrelet; purple martin; bank
                   Oregon Fish and Wildlife Commission has the                      swallow; and northern sea lionAe
                   responsibility for identifying and listing endangered


                   feet long. California sea lions range from                       the fall at about 3500 individuals. California
                   British Columbia to Mexico, but all breeding oc-                 sea lions feed on hake, herring, rockfish, scul-
                   curs south of Oregon. After mating is over in                    pins and salmon. During the winter California
                   mid-July, some of the young males migrate                        sea lions can be seen in "flotillas7 in river
                   northward as far as Canada. Aggregations of                      mouths and bays.
                   up to 2000 young male sea lions are common at                         The northern or Steller's sea lion is a much
                   Simpson Reef in early September. The young                       more easily disturbed than the California sea
                   males move south again in the spring to breed.                   lion and is quite vulnerable to disruption from
                   Oregon seems to have a healthy population of                     human activities. Northern sea lions have a
                   California sea lions. The population peaks in






                                                                               Marine Birds and Mammals 9 85


               tawny pelt and the males develop a thick mane            is sometimes mistaken for food and, when
               around their bulky necks. Northern sea lions             eaten, clogs an animal's digestive system.
               are larger than California sea lions. Males              Disturbance and Loss of Habitat
               grow to 12 or 13 feet and weigh around 2000                  Human disturbance probably poses an
               pounds. Females are about half the size of the           equal, if not greater, long-term and ongoing
               males. Northern sea lions range from the Chan-           threat to marine birds and mammals than pol-
               nel Islands off southern California, north along         lution. Loss of suitable habitat for breeding,
               the coast to the Bering Sea, and south around            nesting, foraging, roosting, resting, and winter-
               the Kamchatka Peninsula to the Sea of Ok-                ing, whether at sea, on the coast, or inland,
               hotsk. Northern sea lions feed primarily on              also threatens survival of healthy populations
               squid, whiting, herring and rockfish.                    of marine birds and mammals. Even existing
                  About 2500 of the world population of                 conflicts with fisheries activities put stress on
               250,000 northern sea lions breed in Oregon on            bird and mammal populations.
               a few rocky outcrops. The Rogue and Orford                   Impacts of human disturbance range from
               Reefs are the largest breeding sites for the             slight disruption of courtship, mating behavior,
               northern sea lion in U.S. waters south of Alas-          incubation, and feeding activities to outright
               ka. Northern sea lions have also colonized               mortality due to unusual exposure to heat or
               caves near Heceta Head. These "sea lion caves"           cold, trampling of the young by frightened
               are a popular tourist site and the owners of the         adults, and predation of unprotected eggs or
               upland access have provided means to observe             nestlings.
               the animals without disturbing them. In July,
               after the end of mating season, some of the                  Marine bird colonies are especially suscep-
               males travel northward into British Columbia             tible to disruption during late spring and sum-
               and Alaska. Most of the Oregon females and               mer. This is the breeding season and the
               pups remain along the Oregon coast                       season of the lowest tides, when access to the
               throughout the winter. In April 1990, the Na-            rocks from shore is easiest. A single distur-
               tional Marine Fisheries Service listed the               bance can result in the loss of a significant por-
               northern sea lion as a threatened species                tion of the young for that year. For example,
               throughout its range.                                    even one person coming onto a rock where
                                                                        tufted puffins are building nests or incubating
               Risks                                                    eggs will cause the puffins to abandon the rock
               Pollution                                                for that breeding season. Even if the puffins
                   Marine birds and mammals require uncon-              can find an alternate site, which is unlikely,
               taminated coastal and ocean waters. Pol-                 the delay usually will prevent the birds from
               lutants, including oil, chemicals, plastic debris,       successfully breeding that year.
               and other contaminants, pose real threats to                 The cumulative effects of a number of
               the health and survival of marine birds and              small disruptions can reduce or even decimate
               mammals. Many of these pollutants come from              marine bird or mammal populations across
               land-based, human activities. Chronic pollution          widespread areas. The reproductive rate of
               from oil or other chemicals decreases reproduc-          many marine birds and mammals is quite low,
               tive success and lowers survival rates. Oil from         therefore, a few years of poor breeding can
               major tanker spills, oil well accidents or               have major effects on population sizes. When
               blowouts, and even bilge discharges can kill             human induced mortality over a few years is
               many birds and mammals. Plastic pollution is             coupled with the natural mortality from low
               a growing threat. Animals may die when                   food supplies for a couple of years, such as
               trapped by floating nets or lines. Plastic debris        during the recent El Niflo, colonies of birds can





                 86 e Oregon's Ocean Resources Management Plan


                 be wiped out. Observations in California and             to popular fishing, shellfish harvesting, or
                 Washington indicate that murre colonies which            recreational boating areas. The rocks and is-
                 were decimated during the early and mid                  lands are also subject to noise and harassment
                 1980's have not come back.                               from low airplane and helicopter flights, includ-
                     Although the observed effects of close ap-           ing military overflights and search and rescue
                 proach to a breeding colony may seem small,              operations.
                 the results can be disastrous. Biologists report             The rocks and islands are the last possible
                 a recent example where a small boat was ob-              refuge for many birds and mammals. Once com-
                 served quietly watching a breeding colony of             mon on the onshore cliffs, bluffs and beaches,
                 double-breasted cormorants. Some of the birds            marine birds and mammals have retreated
                 moved just a few feet off their nests to get a bet-      from the advancing humans to the offshore
                 ter look at the people. As soon as the cor-              rocks and islands.
                 morants moved away from the nests, ravens                    Before human settlement of the coast, the
                 approached the unguarded nests ate large num-            marine bird populations were much larger than
                 bers of cormorant eggs.                                  they are today. Biologists estimate that 100
                     More disturbing events cause more                    years ago the bird population along the Oregon
                 dramatic impacts. Loud noises from boats                 coast may have been as much as two to three
                 anchored up next to the rocks or from low                times as large as it is today. Birds nested in
                 flying aircraft can scare whole colonies off the         large colonies on the many cliffs and bluffs
                 rocks. Frightened, stampeding birds may                  along the shore and on the nearshore rocks and
                 trample eggs or young and can knock the eggs             islands. Human presence has pushed the bird
                 or young chicks off the nests to tumble to their         colonies offshore to the undeveloped rocks and
                 death in the rocks or water below.                       islands, the only remaining habitat for the
                     For marine mammals, there are even fewer             birds.
                 isolated rocky outcroppings suitable for resting             Seals haulout on sand bars or mud flats,
                 and rearing young. Marine mammal colonies                but the rookery areas are only on the nearshore
                 are easily disturbed, especially during pupping          rocks and islands. This was not always the
                 seasons. Disturbance can be caused by people             case. Before humans disrupted their behavior,
                 gaining access to the rocks at low tide and by           the seals would establish nursery areas on the
                 fishermen or divers anchoring their boats and            beaches. The nearshore rocks are less desirable
                 noisily operating near the rocks.                        rookery areas for the seals, but they are the
                                                                          only sites left where the seals are relatively
                 Management Issues                                        protected from disturbance.
                 Population Declines                                          Archeological evidence indicates that north-
                 and Loss of Habitat                                      ern fur seals used Whale Cove for a pupping
                     Oregon's nearshore rocks and islands, so             area. Now northern fur seals do not breed
                 important as rookeries and haulout areas, are            anywhere along the Washington-Oregon-
                 quite vulnerable to human disturbances.                  California coast. Remains from Indian middens
                 Several key bird and mammal colonies along               indicate that northern sea lions used the
                 the Oregon coast are currently threatened by             beaches around Seal Rock as pupping and nurs-
                 disturbance and noise from nearby human ac-              ery areas. Today northern sea lions are entirely
                 tivities and from unauthorized intrusion. Some           absent from this area.
                 of the rocks and islands along the Oregon coast              Repeated disturbance at one site can result
                 are located near shore and are accessible by             in its abandonment with little chance of reloca-
                 small boat or by foot at low tide. Some are close        tion and can cause permanent population






                                                                              Marine Birds and Mammals                87





























                  Northern (Stellar) sea lions rest on rocks of Rogue Reef about three miles off the mouth of the
              Rogue River. This is the largest Northern sea lion rookery south of AJaska, and serves as an important
              year-around feeding andresting area. (ODFWphoto)

              declines. Since 1987, biologists have noticed            in Alaskan fisheries may have decreased the
              that, although the number of northern sea lion           food supply of the northern sea lion. Additional
              pups at the rookeries on the Rogue and Orford            factors such as entrapment in trawls and gill
              reefs has been relatively stable, the number of          nets, pollution, and habitat disruption combine
              adults tending these rookeries during the pup-           to seriously threaten the survival of the north-
              ping season has declined substantially.                  ern sea lion in Alaska. Populations in the east-
              Biologists are concerned that the reduced num-           ern Pacific near the Kurile Islands may be
              ber of adults on the pupping rocks may result            experiencing similar declines. In California,
              in reduced survival of pups and a future popula-         where once there were a number of large
              tion decline. This decline has occurred at the           rookeries, only two small northern sea lion
              same time as there has been an increase in               rookeries remain and these appear to be declin-
              boat activity around the rookeries, primarily as-        ing.
              sociated with sea urchin diving, and an in-                  So far, the Oregon population of northern
              crease in low flying aircraft over the rocks,            sea lions has been somewhat stable. However,
              primarily Coast Guard overflights.                       recent observations raise questions about the
                  Biologists are seriously concerned about             long term viability of the northern sea lion
              the survival of northern sea lions. The north-           population in Oregon. Disruptions ofadult ac-
              ern sea lion population in Alaska has declined           tivity at the pupping areas have been observed.
              precipitously in the past few years. The growth          Also, there are no suitable alternative rookery





                 88 * Oregon's Ocean Resources Management Plan


                 sites for northern sea lions along the Oregon             dangered and threatened species. Generally,
                 coast The ultimate fate of the Oregon northern            NMFS has primary responsibility for marine
                 sea lion population is uncertain. As populations          mammals and USFWS is responsible for
                 decline elsewhere, the health of Oregon's north-          marine birds.
                 ern sea lions will become more and more sig-                  All of the nearshore rocks and islands are
                 nificant to the survival of the entire species.           within the state's territorial sea, so the state
                 The Oregon Department of Fish and Wildlife                has jurisdiction over the surrounding waters
                 has listed the northern sea lion as a "sensitive"         and land below the water. The Division of State
                 species.                                                  Lands has proprietary jurisdiction over the
                     In April 1990, the National Marine                    ocean bottom and the rocks below the water
                 Fisheries Service used its emergency                      line. The Oregon Department of Fish and
                 authorities, under the Endangered Species Act,            Wildlife can regulate the harvest of fish and in-
                 to list the northern sea lion as a threatened             vertebrate animals around the rocks. ODFW
                 species throughout its range. Two protective              has the dual responsibility of managing
                 measures became immediately effective off the             fisheries to assure long term returns and to
                 Oregon coast as a result of this listing. First,          minimize disruptive impacts of local economies
                 shooting at or near northern sea lions is                 from shifts in the fisheries industry and of
                 prohibited. Killing northern sea lions has been           protecting marine habitats and animals from
                 illegal since 1988. But now, commercial fisher-           adverse disruption.
                 men are no longer permitted to shoot around or                Navigation and vessel safety is the concern
                 at the animals in order to scare them away                of the U.S. Coast Guard. Aircraft activities are
                 from fishing gear. Second, emergency measure              the concern of the military and civilian aviation
                 allows observers to be placed on fishing vessels,         agencies, such as the Federal Aviation Ad-
                 Fragmented State and                                      ministration and the Aeronautics Division of
                 Federal Responsibilities                                  the State Department of Transportation.
                     No single government agency has respon-                   In May 1989, the USFWS officially re-
                 sibility for the many valuable marine birds and           quested that the Ocean Resources Task Force
                 mammals of Oregon's coast and ocean. Nor                  establish special management areas with buff-
                 does any single agency have the authority to              er zones and use restrictions around a number
                 manage the many activities which occur                    of the nearshore rocks and islands. The
                 around sensitive marine bird and mammal                   USFWS identified thirty-three areas where
                 habitats.                                                 they believe human disturbance and habitat
                     The U.S. Fish and Wildlife Service                    degradation are threatening the viability of im-
                 (USFWS) has management authority for the                  portant marine bird and mammal colonies.
                 over 1400 rocks and islands which are part of             (The USFWS proposal and the 33 areas are
                 the Oregon Islands National Wildlife Refuge.              briefly described at the end of this section of
                 These rocks and islands are important breed-              the Ocean Plan).
                 ing, nesting, and resting areas for marine birds              The USFWS believes that protection of
                 and mammals. The USFWS authority covers                   marine birds and mammals requires better
                 only the dry land part of these rocks and is-             cooperation and coordination between state
                 lands. (See the information box on National               and federal agencies and that new federal-state
                 Wildlife Refuges).                                        comanagement arrangements are needed to ad-
                     The National Marine Fisheries Service                 dress issues which neither the federal govern-
                 (NMFS) and the USFWS share the lead respon-               ment nor the state government can do alone.
                 sibilities for identifying and protecting en-                 Effective management and protection of the






                                                                               Marine Birds and Mammals & 89


               marine bird and mammal populations will re-              clusions can still be very difficult.
               quire specific knowledge of the nature of the                Counts of marine bird and mammal popula-
               disturbances at each specific site and the               tions can vary greatly from year to year,
               cooperation of a number of state and federal             seasonally, and even hourly. Annual variations
               agencies.                                                in oceanic conditions and food supply; seasonal
                   However, management programs and                     variations in animal behavior, especially
               regulations are only partial solutions. Enforce-         reproductive cycles; and daily activities, such
               ment of even existing regulations is difficult           as foraging for food, must all be considered by
               without a commitment of much greater time                biologists trying to estimate population sizes,
               and money. Creative non-regulatory ap-                   determine population trends over time, or draw
               proaches will also be needed to complement               conclusions on the effects of environmental
               management schemes.                                      variables on population size.
               Limited Scientific Information                               Recently, biologists examining data from
                   Unfortunately, there is very little historical       the 1979 marine bird survey and aerial photos
               or scientific data on marine bird and mammal             of some of the nearshore rocks which were
               populations of the Oregon coast and nearshore            taken in 1979 before the survey was conducted
               waters. Knowledge of normal and abnormal                 have concluded that the 1979 survey probably
               animal behavior, historical diaries, research at         underestimated the common murre population.
               Indian middens, and studies of specific sites            The photographs shown many more common
               and species can provide some background infor-           murres than counted in the survey. The survey
               mation.                                                  was apparently conducted after the common
                   Data does exist for the California coast and         murre nesting season was completed and many
               the Washington coast, especially in Puget                of the birds had left the rocks.
               Sound. This data clearly shows the decline of                Marine bird and maninial populations also
               marine bird and mammal populations and the               vary greatly from place to place along the
               displacement of breeding colonies with increas-          coast. The exact nature of problems with distur-
               ing pressures from human activities. Profes-             bance and habitat disruption differs from site
               sional biologists infer that what has happened           to site depending on habitat type, species af-
               along the Washington and California coasts               fected, proximity to human activities, and
               has or is happening along the Oregon coast.              specific use conflicts.
                   Two coastwide surveys of marine birds                    The task of obtaining more information can
               along the Oregon coast have been conducted,              be narrowed by focusing on the specific areas
               one in 1979 and the other in 1988. Although              identified in the USFWS proposal to the Ocean
               these surveys provide valuable information,              Resources Task Force. (See description of the
               they must be used with caution. The data from            proposal at the end of this section of the Ocean
               just these two points in time are not adequate           Plan). There may be more than the 33 sites
               to draw scientific conclusions about population          identified by the USFWS which need addition-
               trends.                                                  al protective management or there may be less,
                   Exact data on the size of marine bird and            but the first important step is to develop addi-
               mammal populations is difficult to obtain and            tional documentation of these 33 areas.
               requires many, many hours observing animals              Limited Public Understanding
               in the field over many years. Such efforts can               Because many of the marine birds and
               also be very costly. And, even if accurate counts        mammals cannot be readily seen from shore,
               are obtained, comparing data and drawing                 the public is often unfamiliar with their
               scientifically supportable and meaningful con-           variety, numbers and behavior. Likewise, the






                 90 * Oregon's Ocean Resources Management Plan


                effects of human activities on these important                mals along Oregon's coast.
                and vulnerable species are often unnoticed ex-             0  Better and more extensive programs are
                cept by professional biologists. Impacts of                   needed to educate the public about marine
                human activities on marine bird and mammal                    bird and mammal resources along the coast
                populations may be subtle, cumulative, and                    and about the impact of human activities
                occur over long periods of time.                              on these animals. Education programs also
                    Human disturbance of marine birds and                     need to be targeted toward ocean users, in-
                mammals often stems from unintentional and                    cluding the fishing industry, on the specific
                uninformed activities. Pilots in low flying                   effects of their activities on marine bird
                aircraft may simply not be aware that their                   and mammal populations.
                sight-seeing flights over a breeding colony of             0  Protection of marine birds and mammals
                common murres can leave a trail of ecological                 and their habitats requires improved
                damage that will last for years. Adventurous                  cooperation and coordination of state and
                beach visitors may not know that their chal-                  federal agencies, and local governments.
                lenging climb up a rocky cliff can lead to sig-               Opportunities for comanagement need to be
                nificant disruption of breeding habitat. SCUBA                explored.
                divers anchoring alongside a nearshore rock
                while diving may not realize that their ac-                   Decisions to prohibit, restrict or allow ac-
                tivities can decrease the likelihood of successful        tivities to continue around sensitive areas must
                birthing and rearing of sea lion pups.                    be a careful balancing act involving the public,
                    Also, many people are not familiar with or            ocean users, local governments, and state and
                do not understand the reasons for the federal             federal resource management agencies.
                and state laws protecting marine birds and                    The question of allowing anchorages near
                mammals. Some people, especially tourists,                sensitive marine bird and mammal populations
                may also simply not be aware that the near-               will require special attention. Fishermen tradi-
                shore rocks and islands are part of a wildlife            tionally use the areas around the rocks and is-
                refuge and that trespass on them is prohibited.           lands for night and foul weather anchorages.
                                                                          Traveling in the lee of the rocks and islands
                Conclusions                                               also provides safe passageways during rough
                and Recommendations                                       seas. Concern for the needs of fishermen and
                    Conservation of the marine bird and mam-              for the safety of people and their boats neces-
                mal resources of the nearshore rocks and is-              sitates full consultation with affected parties
                lands requires priority attention.                        and careful consideration of any proposed spe-
                                                                          cial management measures around the near-
                 ï¿½  Human activities have and will continue to            shore rocks and islands.
                    affect marine bird and mammal popula-                     The goal of the Oregon Ocean Plan is to
                    tions along the coast of Oregon. Oregon               protect marine birds, marine mammals, and
                    must act to assure the continued viability            their habitats from adverse disruption, from in-
                    of these populations and the quality of the           tentional or unintentional harassment, and
                    habitat upon which they depend.                       from pollution, especially oil spills and plastic
                  ï¿½ More scientific information on marine bird            debris.
                    and mammal populations and their suscep-              Recommended Policies
                    tibility to disruption is needed. More site           1. Promote public awareness and appreciation
                    specific information is necessary to design               of marine birds, marine mammals, and
                    appropriate and effective management ap-                  their habitats. Develop public education
                    proaches to protect marine birds and main-






                                                                                   Marine Birds and Mammals 9 91


                    and interpretation programs to increase                     as appropriate to each specific case. Sup-
                    public understanding of the biology of                      port increased enforcement efforts of exist-
                    marine birds and mammals, their habitats                    ing state and federal agencies.
                    needs and the vulnerability of marine birds              8. Until Oregon completes an evaluation of the
                    and mammals to human disruption and dis-                    sensitivity of specific marine bird and mam-
                    turbance. Ensure that these education                       mal populations and their habitats and
                    programs are readily available and widely                   until Oregon adopts a plan for the ter-
                    distributed. Develop targeted education ef-                 ritorial sea or other enforceable programs
                    forts to specific ocean resources user                      which provide specific protection for sensi-
                    groups, including the fishing industry and                  tive marine bird and mammal populations
                    recreational boaters.                                       and their habitats (See Needed Actions):
                2.  Provide state protection to marine birds and             0  Allow fishing and the harvest of renewable
                    mammals, especially endangered,                             resources around all of the nearshore rocks
                    threatened and sensitive species, and to                    and islands unless the Oregon Department
                    habitats which are critical to maintaining                  of Fish and Wildlife determines that a
                    viable marine bird and mammal popula-                       specific use or activity adversely affects sen-
                    tions.                                                      sitive marine bird or mammal populations.
                3.  Develop provisions in Oregon's plan for the              0  With the exception the fisheries activities
                    territorial sea that will improve protection                which do not adversely affect sensitive
                    of sensitive marine bird and mammal                         marine bird or mammal populations and
                    populations and will provide for the                        safe passage and anchorage where neces-
                    development of site-specific management                     sary to protect human life, prohibit all
                    programs.                                                   other activities within 1/4 mile of the thirty-
                4.  Strengthen state programs to complement                     three sensitive areas identified below.
                    federal bird and mammal protection                          Prohibited uses include such recreational
                    programs. Actively pursue comanagement                      activities as jet skis; sea kayaking; SCUBA
                    opportunities.                                              diving; tidepooling; birdwatching; and
                5.  Prohibit activities around nearshore rocks                  sightseeing boats, planes, and helicopters.
                    and islands which threaten the continued                 0  Prohibit exploration and development of
                    viability of marine bird and mammal                         nonrenewable resources, including oil, gas
                    populations, especially endangered,                         and marine minerals, within three miles of
                    threatened, and sensitive species on the                    all nearshore rocks and islands. Allow
                    thirty-three sensitive areas identified                     academic and public agency scientific re-
                    below.                                                      search on nonrenewable resources within
                6.  Support the use of the nearshore rocks and is-              three miles of the nearshore rocks and is-
                    lands for safe passage and anchorage                        lands, if ODFW determines that these ac-
                    where necessary to protect human lives.                     tivities will not adversely affect sensitive
                    Allow anchorage and passage for matters of                  marine bird or mammal populations or
                    convenience only if these activities do not                 their habitats.
                    adversely affect sensitive marine bird and               9. Support the outstanding contribution of
                    mammal populations.                                         volunteer wildlife rehabilitation centers to
                7.  Support a range of resource management and                  protect Oregon's marine bird and mammal
                    protection measures which include both                      populations and provide state support
                    regulatory and non-regulatory approaches,                   through equipment, information, training,





                 92 0 Oregon's Ocean Resources Management Plan


                    and funding, as appropriate, to increase              11  The Ocean Policy Advisory Council should:
                    Oregon's capability to care for injured                0  Provide a policy forum and assist the ef-
                    wildlife and respond to oil spill events.                 forts of state and federal agencies to docu-
                 10. Increase communication among the Oregon                  ment the use and significance of specific
                    Department of Fish and Wildlife, Oregon                   sites to marine bird and mammal popula-
                    State Police, Oregon Department of Parks                  tions; to document site specific use con-
                    and Recreation and wildlife rehabilitation                flicts; to develop alternatives for resolving
                    centers on marine mammal protection.                      use conflicts around specific sites; and to
                 11. Develop protocols for involvement of wildlife            analyze and develop specific proposals for
                    rehabilitation centers in oil spill response              any needed additional protective manage-
                    planning and implementation.                              ment measures around specific marine bird
                 Needed Actions                                               and mammal habitats. The thirty-three sen-
                                                                              sitive nearshore rocks and islands iden-
                    Oregon's plan for the territorial sea should              tified by the U.S. Fish and Wildlife Service
                    include:                                                  should be used as the focal points for this
                    Criteria for the identification, designation              discussion and evaluation. However, other
                    and protection of sensitive marine bird and               sites may be considered if further research
                    mammal populations and habitats.                          and evaluation indicate that there may be
                    An evaluation of the sensitivity of marine                other important marine bird and mammal
                    bird and mammal populations and their                     habitats. These evaluations and assess-
                    habitats focusing on the thirty-three sensi-              ments should be given high priority by
                    tive areas identified below plus any other                state agencies and should be completed as
                    sites which the Oregon Department of Fish                 soon as possible.
                    and Wildlife determines are in need of                 0  Assist efforts of state agencies to provide
                    evaluation. (See list at the end of this sec-             immediate protection for stressed marine
                    tion).                                                    bird and mammal communities.
                 ï¿½  An analysis of the need for and adequacy of            0  Request the assistance of the U.S. Fish and
                    alternative protective measures around sen-               Wildlife Service and the National Oceanic
                    sitive marine bird and mammal popula-                     and Atmospheric Administration to help
                    tions and habitats.                                       identify specific problems and solutions to
                 ï¿½  Site-specific measures to protect sensitive               protect sensitive marine bird and mammal
                    marine bird and mammals populations and                   populations and their habitats.
                    habitats that include enforceable policies             0  Encourage and assist efforts to develop
                    and interagency or intergovernmental                      marine bird and mammal interpretive
                    management agreements where necessary.                    programs for areas near rookeries or
                    During the development of the plan for the                baulout areas to educate the public about
                 territorial sea, the Oregon Department of Fish               marine birds, marine mammals, and their
                 and Wildlife should continue to work with                    habitats and about their vulnerability to
                 other state agencies and with the U.S. Fish and              human disruption. Encourage the develop-
                 Wildlife Service and the National Marine                     ment of marine education programs on
                 Fisheries Service to find ways to advance the                these subjects throughout Oregon's school
                 objectives of the Oregon Ocean Resources                     system. Support the educational efforts of
                 Management Plan to protect marine birds and                  the Oregon Sea Grant Program.
                 mammals and their habitats.                               0  Provide a forum to work with the National






                                                                               Marine Birds and Mammals 9 93


                    Oceanic and Atmospheric Administration,              0 Evaluate the sensitivity of marine bird and
                    Pacific Fishery Management Council,                     mammal populations at specific sites. As-
                    Federal Aviation Agency, Coast Guard,                   sess the sources and levels of disruptions at
                    Oregon Marine Board, and any other af-                  specific sites.
                    fected agencies to find ways to reduce dis-          0  Examine resource protection needs of
                    turbances from a broad range of human                   specific sites. Analyze alternative protec-
                    activities to marine bird and mammal                    tive management approaches for protecting
                    colonies.
                                                                            marine birds and mammals.
                 ï¿½  Facilitate the efforts of the Oregon Depart-         0  Develop site-specific measures to protect
                    ment of Environmental Quality and local                 sensitive marine bird and mammals popula-
                    governments described in the section on                 tions and habitats from adverse disruption.
                    marine water quality to protect water                   Develop enforceable policies, administra-
                    quality in Oregon's ocean waters, including             tive rules, and interagency or inter-
                    promoting recycling of plastics and other               governmental agreements where necessary.
                    wastes.
                 ï¿½  Facilitate efforts to develop a strong state         0  Examine the need to establish state
                    oil spill prevention, response and cleanup              wildlife management refuges that either
                    capability as described in the section on oil           overlay or surround the federal refuges and
                    spills.                                                 to develop a comanagement scheme with
                                                                            the USFWS for such areas. If necessary
                0   The Department of Fish and Wildlife                     and appropriate, seek additional authority
                    should:                                                 for such refuges.
                 ï¿½  Conduct and support scientific research on              Develop, in cooperation with wildlife
                    marine birds, marine mammals and their                  rehabilitation centers, specific educational
                    habitats to provide information for use in              programs and informational materials to
                    management decisions to improve protec-                 educate state and local police and coastal
                    tion of these resources.                                park employees about marine birds and
                 ï¿½  Identify key marine bird and mammal                     mammals and the appropriate actions to be
                    habitats, including habitat requirements                taken to protect these animals.
                    for breeding, foraging, and resting.                    Develop protocols for involvement of
                 ï¿½  Establish criteria for the designation and              wildlife rehabilitation centers in planning
                    protection of sensitive marine bird and                 for and responding to oil spills.
                    mammal habitats.





                   94 e Oregon's Ocean Resources Management Plan


                     Sensitive Marine Bird and Mammal Habitats

                      During 1989, the U.S. Fish and Wildlife Service                 Species diversity on an individual nearshore
                  (USFWS) came to the Oregon Ocean Resources                          rock or island. The size of the populations of
                  Management Task Force with a proposal for addi-                     marine birds and mammals and the percentage
                  tional state protection of the marine birds and mam-                of the total Oregon population of a particular
                  mals of the nearshore rocks and islands.                            species on an individual rock or island.
                      The USFWS, with the help of the Oregon                          The current stresses and the severity of im-
                  Department of Fish and Wildlife (ODFW), examined               pacts of human activities on the habitat and biologi-
                  all of the approximately 1400 nearshore rocks and              cal community. The vulnerability of the biological
                  islands in the Oregon Islands National Wildlife                community and the habitat to the adverse effects of
                  Refuge, major headlands along the coast, and the               pollutants, noise, seismic testing, habitat alteration,
                  remaining rocks and islands not in the Refuge, to              human trespass, and harvesting.
                  determine which marine bird and mammal colonies                     The USFWS suggested that buffer zones and
                  may be in need of additional protection. The                   use restrictions may be needed in the following
                  USFWS identified thirty-three as especially crucial            cases:
                  habitat for marine birds and mammals. (These thirty                 If an endangered, threatened, or sensitive
                  three areas are identified and briefly discussed                    species requires a specific area for part of its
                  below). The USFWS officially requested that the                     life cycle (e.g., reproduction, feeding, or nest-
                  Ocean Resources Task Force designate these thir-                    ing), then a total exclusionary buffer zone of
                  ty-three areas as special management areas. The                     500 feet is necessary for that portion of the year
                  USFWS proposed that the state manage human ac-                      that the species requires use of that area.
                  tivities around these areas to protect the marine
                  birds and mammals using these habitats and to                       If an area contains a high percentage of the
                  complement the needs and objectives of the                          total number of marine bird or mammal species
                  Oregon Islands National Wildlife Refuge. The                        found along the Oregon coast, then a total ex-
                  USFWS suggested that buffer zones and use                           clusionary buffer zone of 500 feet is necessary
                  restrictions be developed for each of the thirty three              for that period of time that those species require
                  areas.                                                              its use.
                      The USFWS and ODFW developed the follow-                        If an area contains a high percentage of the
                  ing factors to evaluate the significance, sensitivity,              total state population of a species, whether
                  and vulnerability of the marine bird and mammal                     breeding, wintering, or general population
                  habitat areas along the coast:                                      levels, then a total exclusionary buffer zone of
                                                                                      500 feet is required for that period of time when
                  ï¿½   The ecological significance of the area to main-                the area is in use.
                      taining ecosystem structure, biological produc-                 If a species or habitat is highly vulnerable to a
                      tivity, biological diversity, and representative                particular human activity which causes adverse
                      species assemblages.                                            impacts on the species or habitat, then a mini-
                  ï¿½   The ecological significance of the area to impor-               mum exclusionary buffer zone of 500 for that ac-
                      tant life history stages of marine organ isms,                  tivity is necessary for as long as the species or
                      especially special feeding, courtship, breeding,                habitat is vulnerable to that activity.
                      nursery, parental foraging, overwintering, and                  The USFWS suggested these buffer zones and
                      resting or haulout areas.                                  use restrictions as their best professional judgment
                  ï¿½   The presence of state or federally listed sensi-           and as a starting point for discussion. Applying the
                      tive, threatened, or endangered species. The               above guidelines to the thirty three areas, the
                      ecological importance of the area to maintain-             USFWS identified ten areas which they believe
                      ing populations of sensitive, threatened, or en-           need permanent buffer zones. (These areas are
                      dangered species.                                          identified in the following list).






                                                                                        Marine Birds and Mammals 9 95



                      Tillamook Head Rocks                                           Castle Rock (Arch Cape)
                      This site includes a group of rocks and pin-                   This rock is located approximately 3/4 mile west
                 nacles located immediately adjacent to Tillamook                of Arch Cape in Clatsop County. In 1988, more than
                 Head. These rocks provide breeding habitat for                  10,000 common murres were recorded nesting here
                 more than 1,000 Brandt's cormorants and several                 in addition to 4 other species of marine birds. This
                 hundred common murres. Up to 150 harbor seals                   site also serves as a roosting area for endangered
                 use this area as a pupping area in spring and early             brown pelicans.
                 summer and as a resting area year around.                           Low flying aircraft and close approaching boats
                      Low flying aircraft and boats approaching too              are the major concerns here.
                 close to this area pose a threat.                                   Gull Rock (Arch Cape)
                      Tillamook Rock (Lighthouse)                                    This rock is located 1/4 mile west of Cove
                      This privately-owned rock with an abandoned                Beach and about 1/2 mile south of Arch Cape. More
                 lighthouse is located one and a half miles west of              than 6,000 common murres and 100 Brandt's cor-
                 Tillamook Head. This rock and the associated aban-              morants nested here in 1988. This site may also be
                 doned structures serve as a major seabird breeding              used as a roosting site by endangered brown
                 colony with more than 7,000 common murres and                   pelicans.
                 400 Brandt's cormorants recorded here in 1988.                      This rock is very near Castle Rock listed above
                 This rock also serves as a roost site for hundreds of           and, therefore, has the same aircraft and boat distur-
                 endangered brown pelicans.                                      bance concerns.
                      Human presence on the rock and boat and
                 aircraft traffic around the rock pose potential harm.               Unnamed Rock (Cape Falcon)
                 The rock's isolation aggravates these potential                     This is a large unnamed rock immediately ad-
                 problems since human disturbances are difficult to              jacent to Cape Falcon in Tillamook County. This site
                 observe.                                                        serves as a major Brandt's cormorant nesting
                      Sea Lion Rock (Ecola Point)                                colony with 668 birds recorded here in 1988.
                      This site is the second largest resting area for               This is an isolated section of coastline, so
                 northern sea lions on the north Oregon coast. The               human trespass is not a concern. However, low
                 rock is used year round by northern sea lions with              flying aircraft and close approaching boats may be
                 population sizes up to 250. More than 2400 com-                 impacting the birds.
                 mon murres were recorded nesting here in 1988                       Pyramid Rock (Cape Meares)
                 and the rock serves as a roosting site for en-
                 dangered brown pelicans.                                            This rock is located approximately 3/4 mile
                                                                                 northwest of Cape Meares. Over 9,000 common
                      Low flying aircraft and close approaching boats            murres and 288 Brandt's cormorants nested here in
                 are the principal concerns here. The USFWS sug-                 1988. The diversity of marine birds nesting here is
                 gested a permanent buffer zone around this rock.                high. Seven of the thirteen species nesting along
                      Bird Rocks (Chapman Point)                                 the Oregon coast are found here. This site is also
                                                                                 used by the endangered brown pelican.
                      This area includes four rocks just off Chapman                 There is a high volume of low level aircraft
                 Point approximately 1 mile north of Cannon Beach.               flights and boat traffic around this rock resulting in
                 Together these four rocks provide nesting habitat               repeated disturbances.
                 for more than 41,000 common murres and 3,100
                 Brandt's cormorants. This is the second largest con-                Pillar Rock (Cape Meares)
                 centration of nesting Brandt's cormorants in Oregon
                 and the third largest in the world. The endangered                  Located about 1/4 mile northwest of Cape
                 brown pelican uses these rocks for roosting and                 Meares, this rock is a major seabird colony support-
                 threatened bald eagles have been observed preying               ing more than 10,000 nesting common murres.
                 on murres here.                                                     Located very near Pillar Rock, this rock also
                      There is a high volume of low level aircraft dis-          receives a high volume of low flying aircraft and
                 turbance here and trespass on the eastern rock is a             close approaching boats.
                 problem on low tides. Boats are generally not a                     Three Arch Rocks
                 problem here because the rocks are located in or
                 very near the surf. However, people on surf boards                  Three Arch Rocks is immediately offshore from
                 are becoming a problem.                                         the community of Oceanside. This site includes the
                                                                                 three large rocks and six smaller rocks, including
                                                                                 one on the east end known locally as Seal Rock.





                   96 9 Oregon's Ocean Resources Management Plan


                   The USFWS suggested a permanent buffer zone                        Seal Rock is the largest haul out or resting site
                   around these four rocks.                                       for northern sea lions on the north Oregon coast. As
                       The three large rocks collectively support more            many as 300 animals have been recorded here. In
                   than 200,000 nesting seabirds making this the                  recent years, this site has also served as a breeding
                   largest seabird colony between central California              location for northern sea lions with the small num-
                   and British Columbia. Three Arch Rocks contains                ber of pups being produced making this the only
                   the largest breeding population of common murres               breeding location for northern sea lions in Oregon
                   south of Alaska and the largest population of tufted           north of Cape Blanco. Also, low numbers of Califor-
                   puffins in Oregon. In addition to the huge number of           nia sea lions use this rock as a haul out site from
                   birds, diversity is extremely high. Twelve of the thir-        fall through spring.
                   teen species of nesting seabirds along the Oregon                  Human disturbance at Three Arch Rocks is
                   coast breed on Three Arch Rocks. Endangered                    very high. Although trespass on the rocks does not
                   species also make extensive use of this site. The              occur very often, the area is plagued with low flying
                   endangered Aleutian Canada goose uses the                      aircraft that flush thousands of birds from their nests
                   western rock as a nocturnal roost site and feeding             and scare sea lions off the rocks. There is also a
                   areas from October through April. Endangered                   high volume of boat traffic around the rocks that oc-
                   brown pelicans use these rocks as roost sites from             curs daily in fair weather, In addition to motoring
                   June through November. Endangered peregrine fal-               right up to the rocks, large boats have been ob-
                   cons have been seen here throughout the year. On               served going through the arches in the rocks flush-
                   occasion, threatened bald eagles are seen over the             ing nesting birds out.
                   rocks apparently preying on murres.











                                                                                                                    mom Ll
                                                                                                                          -Row
                                                                                  C








                                        44














                       7hree Arch Rocks just off the community of Oceanside is the site of the largest seabird breeding
                   colony on the Oregon coast. Although these rocks are designated as a National Wildlife Refuge,
                   human disturbance is very high. (Oregon Department of Parks and Recreation)






                                                                                             Marine Birds and Mammals e 97


                                                                                      jacent rocks just off Cascade Head. Together these
                       Cape Lookout (south face)                                      three rocks form a major marine bird colony which
                       The south face of Cape Lookout is a major                      supports more than 32,000 nesting common murres
                  seabird colony site. The diversity is high. Eight of                and 104 Brandt's cormorants. This area also serves
                  the thirteen species nesting along the Oregon coast                 as a roosting site for endangered brown pelicans.
                  are found here. In 1988, more than 12,000 common                        Low level aircraft flights in this isolated areas
                  murres and 562 double-crested cormorants were                       are of great concern and occur frequently. Boat traf-
                  recorded at this site. Endangered peregrine falcons                 fic is also of concern but is less common.
                  have been observed here and the site is a historic
                  breeding site for this species.                                         Gull Rock (Offer Rock)
                       Low aircraft flights are particularly disturbing to                This large rock is located about 1/2 mile
                  the birds possible due to the acoustic effects of the               northwest of the town of Otter Rock. This is a major
                  sheer rock wall. This is also a popular anchorage                   seabird breeding site with over 20,000 common mur-
                  location for boats. Much of the time wind noise                     res and 558 Brandt's cormorants nesting here.
                  probably  'masks the noise of the boats. Problems                   There is also a good diversity of nesting marine bird
                  can occur if the boats get too close to the birds.                  species here. In addition to its value as a major
                                                                                      seabird colony, up to 100 harbor seals haul out to
                       Haystack Rock (Pacific City)                                   rest at this site throughout the year and to give birth
                       This site is located 3/4 miles offshore from                   to pups in spring and early summer.
                  Pacific City near Cape Kiwanda. This rock provides                      Trespass by humans seldom occurs here now,
                  breeding habitat for more than 3,000 marine birds                   however, there is a high volume of low level aircraft
                  and for twelve of the thirteen species of seabird                   flights and close approaching boats at this site caus-
                  which nest along the Oregon coast. This rock is ex-                 ing disturbances. The USFWS suggested a per-
                  tremely important to endangered Aleutian Canada                     manent buffer zone around this rock.
                  geese and dusky Canada geese (sensitive
                  species). Both of these Canada geese subspecies                         Shell Island and Simpson Reel (Cape
                  use this rock for roosting and feeding from October                 Arago)
                  through April and are easily disturbed.                                 The Shell Island and Simpson Reef rocks are lo-
                       This rock receives a high volume of low level                  cated west of Charleston near Cape Arago. This
                  aircraft flights and a high amount of boat traffic                  group of rocks is occupied by the greatest diversity
                  literally within feet of the rock.                                  of seals and sea lions found anywhere on the
                                                                                      Oregon coast. Between 500 and 1,000 harbor seals
                       Cliff Creek Cove (Cascade Head)                                use this site with numbers peaking during the spring
                       This beach area on Cascade Head is the site of                 and early summer pupping period. This is the
                  the second largest aggregation of California sea                    primary shoreline reproductive areas for harbor
                  lions in Oregon. From September through April, up                   seals in the state. Up to 2,000 California sea lions
                  to 1,000 California sea lions use this location as a                use this haul out and resting area during the fall
                  resting area. An additional 100 northern sea lions                  northward migration; the largest single concentra-
                  can also be found at this site during the same                      tion of this species in Oregon. In addition, over 100
                  period.                                                             northern sea lions and nearly 20 northern elephant
                       The area is fairly remote. Pedestrian distur-                  seals occupy this location at various times
                  bance is probably not serious. Boats and aircraft                   throughout the year.
                  may disturbance problems at times.                                      Pedestrian traffic at low tides is extremely
                                                                                      heavy in this areas and there is a high volume of
                       Unnamed Rock at Cascade Head                                   low flying aircraft resulting in serious disturbances
                       This site is located at Cascade Head in Til-                   to the marine mammals of this area. The USFWS
                                                                                      suggested a permanent buffer zone around this
                  lamook County about 1/2 mile north of Two Arches                    group of rocks.
                  Rock and includes a small headland and two ad-
                  jacent rocks. Together these sites support over                         North Coquille Point Rock (Bandon)
                  4,700 nesting common murres and 664 Brandt's cor-
                  morants.                                                                This rock is among a group of rocks just off-
                       The isolation of this site eliminates human                    shore from the City of Bandon. In 1988 this rock
                  trespass as an issue, but there are a significant                   supported more than 9,000 nesting common murres
                  number of low level aircraft flights past here and a                and 214 Brandt's cormorants. The diversity of nest-
                                                                                      ing seabird species is high with a total of seven
                  lesser number of nearby boat traffic.                               species found here. The endangered Aleutian
                       Two Arches Rock (Cascade Head)                                 Canada goose can be found using this rock during
                                                                                      spring staging and migration. Endangered brown
                       This site includes Two Arches Rock and two ad-                 pelicans use this rock as a roost site.





                    98 * Oregon's Ocean Resources Management Plan


                        The rock is west of the beach intertidal zone
                    thus trespass by humans does not occur and close                      Gull Rock (Cape Blanco)
                    approaching boats are not often a problem since                       This major seabird colony is located about 1
                    the rock is either in or very near the surf zone.                mile north of Cape Blanco and is just west of the
                    There is a high volume of low flying aircraft.                   surf zone. Seven species of marine birds breed
                        Several other nearby rocks are also important                here including more than 36,000 common murres
                    habitats for marine birds and mammals. Elephant                  and 1,020 Brandt's cormorants. This site is also
                    Rock and Table Rock support breeding populations                 used by endangered brown pelicans as a roost site.
                    of tufted puffins, common murres, pigeon guillemots              Gull Rock is also one of the five major haul out
                    and other species. This area is also used as a pup-              areas for harbor seals on the south coast, between
                    ping and nursery ground by harbor seals. The U.S.                100 and 200 harbor seals use this site for pupping
                    Fish and Wildlife Service highlighted this area, but             during the spring and for resting during the entire
                    recognizes that much of this area is so close to the             year.
                    beach and is accessible by foot at low tide that spe-                 Disturbance problems are associated with low
                    cial coordination with the city and state govern-                flying aircraft and boats approaching too closely.
                    ments will be necessary to protect these resources               Trespass by boat access is very easy during calm
                    and still respect the public's right to use the                  weather. The USFWS suggested a permanent buff-
                    beaches. Several citizens specifically requested in-             er zone around this rock.
                    clusion of this area during public meetings on the
                    draft policies.                                                       Orford Reef
                        Cat and Kittens Rocks (Bandon)                                    This special area includes Long Brown Rock,
                        This is a group of rocks located about 1/4 mile              Large Brown Rock, Best Rock, Square White Rock,
                    southwest of Coquille Point near Bandon. This is a               Seal Rock, Conical White Rock, Arch Rock and
                    major seabird colony with more than 30,000 com-                  West Conical Rock. Together these rocks serve as
                    mon murres and 218 Brandt's cormorants nesting                   a major seabird breeding site and a major sea lion
                    here in 1988. Up to 250 harbor seals use this site               haul out and pupping area. This site is one of the
                    throughout the year as a resting area and for birth              two most important haul out areas for northern sea
                    and care of young during spring and summer. This                 lions on the Oregon coast, both in terms of the num-
                    location is one of the five major use areas for harbor           ber of northern sea lions using the and in the num-
                    seals on the southern Oregon coast.                              ber of pups born here. This site may be occupied by
                                                                                     nearly 1,000 animals and may produce 100 to 150
                        The birds and mammals here are very sensitive                pups each year. The northern sea lion is listed by
                    to the high volume of low flying aircraft that pass              the state as a sensitive species and the National
                    over and to boats that approach too close in calm                Marine Fisheries Service is considering listing it as
                    weather. The USFWS suggested a permanent buff-                   endangered or threatened under the Endangered
                    er zone around this group of rocks.                              Species Act. This site along with the Rogue Reef,
                                                                                     constitute the largest reproductive area for northern
                        Face Rock (Grave Point)                                      sea lions in U.S. waters south of Alaska. In addition
                        This rock is about 1/4 mile offshore from Grave              to its importance for marine mammals, the Orford
                    Point near Bandon. In 1988 this rock supported                   Reef is also a major seabird breeding location. The
                    more than 4,800 nesting common murres and 312                    rocks of the reef support seven nesting species of
                    Brandt's cormorants. The diversity of nesting                    marine birds including more than 34,000 common
                    seabirds is high with seven species recorded here                murres and 400 Brandt's cormorants. The reef is
                    in 1988.                                                         also used by endangered brown pelicans as a roost-
                        Disturbance problems here are associated with                ing site.
                    low flying aircraft and close approaching boats.
                        Castle Rock (Cape Blanco)
                        This large rock is located at the mouth of the                    The plot on the facing page shows the loca-
                    Sixes River about 2 mile north of Cape Blanco.                   tions of nearshore rocks and islands that serve
                    Castle Rock provides breeding habitat for ap-
                    proximately 600 double-crested cormorants.                       as important bird and mammal habitats, and
                        Although the rock can be reached by wading,                  which require more protection from human in-
                    its vertical sides prevent climbing and, therefore,              terference than that afforded by existing laws,
                    trespass by humans does not occur. Close ap-                     regulations, and programs.
                    proaching boats may occasionally be a problem.                        Source: ODFW and USFWS
                    Low flying aircraft are the main concern at this rela-
                    tively isolated location.





























                                                                                                                                                               Tillamook Head Rocks
                                                                                                                                                                   Tillamook   Rock
                                                                                                                                                                        Sea Lion Rock
                                                                                                                                                                             Bird Rocks


                                                                                                                                                                            Castle Rock.
                                                                                                                                                                             Gull Rock
                                                                                                                                                                        Unnamed Rock
                                                                                    ;>








                                                                                                                                                                         Pyramid Rock
                                                                                                                                                                            Pillar Rock
                                                                                                                                                                    Three Arch Rocks




                                                                                                                                                                         Cape Lookout



                                                                                                                                                                         Haystack Rock




                                                                                                                                                                     Cliff Creek     Ye
                                                                                                                                                                      Unna med R k
                                                                                                                                                                    Two Arches Rock                                           IV








                                                                                                                                                                       Gull Rock.




















































                                                                                                                                                                          MW

                                                                                                                                                                          am by


                                                                                                                                         Simpson Reef
                                                                                                                                          Shell Island






                                                                                                                          N. CDquille Point Rock
                                                                                                                            Cat and Kittens Rock,
                                                                                                                                         Face Rock








                                                                                                                             Castle Rock
                                                                                                                             Gull   Rock


                                                                                                                        Orford Reef



                                                                                                                                  Redfish Rocks,
                                                                                                                                   Island Rock .






                                                                                                                                  Unnamed Rock
                                                                                                                                         Dog Rock

                                                                                                                                    Rogue Reef
                                                                                                                      (Dwbh NeMl@ & Py...d R.W            a.A



                                                                                                                                   Hunters Island


                                                                                                                                           Mack Arch;.



                                                                                                                                    Whaleshead Islands

                                                                                                                                              Twin Rocks
                                                                                                                                                Goat Island






                                                                                          Marine Birds and Mammals * 99


                       Disturbance from close approaching boats and                    Boats approaching too close scare the birds
                  the activities of commercial and sport fishermen as             and seals from the rock as do low flying aircraft. The
                  divers is extensive in this area. Low flying aircraft           USFWS suggested a permanent buffer zone around
                  are also believed to be a problem. These human ac-              this rock.
                  tivities are seriously threatening the use of this area
                  by the northern sea lions and are affecting the                      Double, Needle and Pyramid Rocks in the
                  ability of these animals to successfully breed and              Rogue Reef
                  rear their young. Nesting seabirds are also being ad-                Rogue Reef is the major haul out and rookery
                  versely impacted. The USFWS suggested a per-                    for northern sea lions in Oregon. Along with Orford
                  manent buffer zone around these seven rocks.                    Reef, these two sites comprise the largest rookery
                       Redfish Rocks (Port Orford)                                for northern sea lions in the U.S. south of Alaska.
                                                                                  Between 1,000 and 1,500 northern sea lions may
                       This group of five rocks is located west of Coal           use the Rogue Reef during the spring and summer
                  Point about 3 miles southeast of Port Orford. These             pupping and breeding season. Over 500 pups are
                  rocks serve as major seabird breeding sites with                born here each year. This area is also an important
                  over 20,000 common murres and 200 Brandt's cor-                 resting or haul out area for northern sea lions and
                  morants recorded here in 1988. Diversity is high                California sea lions at all times of the year. In addi-
                  with seven different species of marine birds breed-             tion, the rocks south of Pyramid Rock are one of the
                  ing here.                                                       five major haul out areas for harbor seals on the
                       Low flying aircraft and boats approaching too              south coast. All of these marine mammals are
                  close to the rocks are the major concern here.                  protected under federal law. The northern sea lions
                                                                                  is listed as sensitive by the State of Oregon. Rogue
                       Island Rock (Humbug Mountain)                              Reef is also an important seabird breeding colony
                       Island Rock is a large rock located 1 1/2 miles            with seven species nesting here including over 500
                  southeast of Humbug Mountain in Curry County.                   Brandt's cormorants and 3,600 common murres.
                  This is a major seabird colony with a diverse as-                    Disturbance from commercial and sport fishing
                  semblage of breeding species. Eleven of the thir-               boats and by divers coming in too close to the Reef
                  teen species of seabirds breeding along the Oregon              is very high. There is also a high volume of low
                  coast are found here, including more than 20,000                flying aircraft flights. These activities are adversely
                  common murres, 762 Brandt's cormorants, and 300                 affecting the marine birds and mammals of the
                  tufted puffins. Endangered species use is high here             Rogue Reef. The USFWS suggested a permanent
                  also with Aleutian Canada geese using the rock                  buffer zone around these three rocks.
                  during the spring and brown pelicans roosting on                     Hunters Island
                  the rock from spring through fall.
                       Low flying aircraft and close approaching boats                 This large rock is located just south of Cape
                  are the main concerns here.                                     Sebastian about 1/4 mile offshore. The breeding
                                                                                  seabird fauna is extremely diverse here with ten of
                       Unnamed Rock (Hubbard Mound)                               Oregon's thirteen coastal breeding seabirds found
                                                                                  here including over 19,000 Leach's storm-petrels
                       This large flat rock is located about 1 and 1/2            and 466 double-crested cormorants. Endangered
                  miles west of Hubbard Mound and serves as a                     species use this rock including Aleutian Canada
                  major seabird breeding colony. In 1988 over 20,000              geese during spring migration and brown pelicans
                  common murres and 162 Brandt's cormorants                       from spring through fall. Up to 200 harbor seals also
                  nested here. Endangered brown pelicans also use                 use this location. This rock is the southern most of
                  this rock as a roosting site.                                   the five major haul out and pupping areas for harbor
                       This rock is very low to the water so that when            seals on the south Oregon coast.
                  boats approach too close nesting seabirds can be                     Current problems at Hunters Island include
                  severely disturbed. Low flying aircraft are also a con-         boats coming too close to the rocks and low flying
                  cern here.                                                      aircraft over the rock. The USFWS suggested a per-
                       Dog Rock (Hubbard Mound)                                   manent buffer zone around this rock.
                       This rock is located about 1 mile west of Hub-                  Mack Arch
                  bard Mound. In 1988 approximately 3,000 common                       Mack Arch is located 1 mile west of Burnt Hill
                  murres and 30 Brandt's cormorants were recorded                 Creek near the northern limit of Samuel Boardman
                  nesting here. Endangered brown pelicans use this                State Park. This rock serves as a major seabird
                  rocks as a roosting site. The rock is one of the five           colony with more than 21,000 common murres nest-
                  major haul out areas for harbor seals on the south              ing here.
                  Oregon coast and is used by 150 to 200 seals
                  throughout the year, including pupping season.                       Low flying aircraft and close approaching boats






                                                                            Intertidal Plants and Animals * 101


                   Intertidal Plants and Animals

               Resources                                                 green and brown algae are just a few of the or-
                   The plants and animals of the intertidal              ganisms of the lower intertidal and very near-
               live at the boundary between the ocean and the            shore subtidal.
               land, in the zone buffeted by tides and waves.            Risks
               The tidepools, rocks, boulders, and nearby reefs          Pollution
               support dense, colorful, and diverse com-                     Intertidal ecosystems are vulnerable to pol-
               munities of marine plants and animals. Many               lution from sources both on land and at sea.
               of the plants and animals of these intertidal
               communities live only in the intertidal zone                  Miscellaneous trash carelessly tossed aside
               and very nearshore subtidal waters.                       in parks or at roadside pulloffs or left after a
                   Intertidal communities differ from place to           beach picnic becomes beach litter. Once cap-
               place along the coast depending on how shel-              tured by the waves and tides this trash can be
               tered the community is from the waves and on              transported up and down the coast and can
               whether the bottom is sand, mud, basalt,                  come ashore many times before it is finally
               granite, or sandstone.                                    deposited in a mussel bed, eaten by a marine
                   Rocky shores are densely populated by                 bird, or entangles the head of a seal. Volunteer
               plants and animals which have remarkable                  efforts to clean up beaches report that the most
               adaptations and abilities to stay put with the            litter is found near parks and recreation areas
               onslaught of the pounding surf. The biological            and that more litter comes in on each high tide.
               community of the wind swept sandy beaches is                  Poorly designed, operating, or located
               less rich than the rocky areas just a few feet            ocean outfalls from municipal sewage systems
               away. The constantly shifting sands are                   can contaminate intertidal organisms with dis-
               suitable homes only for those animals which               ease-causing bacteria. The chemicals used in
               can burrow or tunnel into the sand.                       treating the sewage can poison intertidal or-
                   Intertidal communities also change                    ganisms and can leaved bleached and sterile
                                                                         rocks where there were once vast beds of mus-
               dramatically within a few vertical feet,                  sels and barnacles.
               Animals and plants high on the rocks are                      Oil spilled from tanker accidents or dis-
               adapted to long exposures of air or salt spray            charged when a ship pumps out its bilge can
               and may be covered by the tides for only a few            coat and kill intertidal plants and animals. The
               hours during several days out of every month.             only ways to clean up oil soiled rocks and sandy
               Mussels, barnacles, and limpets are the com-
               mon animals of the high intertidal. The                   beaches include washing rocks with detergents;
               animals and plants of the low intertidal zones            bulldozing or shoveling the beach and trucking
               tend to be more delicate creatures which are              the oiled, sandy, rocky mess to a disposal site
               submerged most of the time and are only ex-               somewhere else; and blasting the rocks with
               posed to air during the very low tides a few              high pressure water jets. These clean up
               times a year. Anemones; a variety of starfish,            methods also destroy intertidal biological com-
               including the huge sunflower star and the                 munities and habitats.
               bright red blood star; purple and red sea ur-             Overuse and Abuse
               chins; delicate nudibranchs or sea slugs; spon-               Intertidal plants and animals, especially
               ges; tunicates, primitive ancestors of animals            those of the rocky shores, are easily damaged
               with backbones; and a vast variety of red,                by habitat disruption, pollution, and physical





                102     Oregon"s Ocean Resources Management Plan




                L








                                                                                                                Ali;







                                                                                                               777,















                                                                 '44.,
                                                                                          _7@


                    Low tide reveals a fringe of rocky interfidal habitat at the foot of the cliff at the Inn at Otter Crest.
                This fringe, often of volcanic basalt or very hard sandstone, is typical of many promontories on the
                Oregon coast. (Oregon Sea Grant photo)
                damage from increasing numbers of curious              Management Issues
                humans exploring the intertidal areas.                 Limited Public Awareness
                    Intertidal communities are slow to recover             Visitors to Oregon's tidepools may be com-
                from disruption. Many organisms grow slowly            pletely unaware of the effect of their actions on
                and live for many years. A single destructive          the viability of intertidal communities. Know-
                event can have long term effects. And, most in-        ing and following very simple guidelines for
                tertidal organisms don't move around very              tidepool etiquette could substantially reduce
                much, so repopulation from adjacent undis-             the impact of visitors and school groups on in-
                turbed areas can be extremely slow.                    tertidal ecosystems.
                   The simple act of many people walking on                Few opportunities currently are available
                snails, anemones, other invertebrates, and             near popular shoreline areas for visitors to
                marine plants can denude intertidal com-               learn about intertidal ecology and human im-
                munities. When overturned rocks are not care-          pacts. Increased education opportunities and
                fully and quickly replaced, habitats are               on-site interpretive programs can raise the
                destroyed and animals killed. Thoughtless col-
                lection of starfish and other organisms for inter-     stewardship consciousness of visitors to
                tidal souvenirs results in waste and destruction.      Oregon's coast.
                                                                       Impoverished Interfidal Areas
                                                                           Along the Oregon coast, the very low tides
                                                                       of the spring and summer months attract






                                                                                    Intertidal Plants and Animals * 103


                 hundreds of visitors a day to a few highly
                 popular and relatively small intertidal areas. A                  Tidepool Etiquette
                 few places along the coast that once abounded                       Everyone needs to learn about rocky interticlal
                 with diverse intertidal life are now im-                        ecosystems and about "tidepool etiquette." Informa-
                 poverished. Other areas all along the coast are                 tional signs and educational programs are needed
                 in danger of being degraded by overuse and                      at popular intertidal and tidepool areas, in the
                 will need special management attention in the                   schools, and at tourist and recreational facilities.
                                                                                 Development of new interpretive programs at
                 future.                                                         Oregon's State Parks along the coast would be a
                      Haystack Rock and Yaquina Head are two                     valuable contribution.
                 well-known areas where overuse and abuse                            Visitors to the rocky intertidal can consciously
                                                                                 conserve living marine resources by following a few
                 denuded intertidal communities. The diversity                   simple guidelines:
                 of life forms found in the intertidal areas has                     Don't collect animals as souvenirs or simply for
                 decreased. Starfish and sea urchins are less                        the sake of collecting. A dry starfish on a book-
                 abundant than in similar places along the                           shelf or, worse, a rotten starfish in the bottom of
                                                                                     a beach bucket is a senseless waste. School
                 coast. Actions by concerned members of the                          children don't need to collect "one-each" of
                 public, assisted by state and federal agencies,                     everything they see. A single specimen may be
                 have helped restore these areas. The Haystack                       more than enough for a school project or study.
                 Rock Awareness Program has improved the                             Study and observe plants and animals in their
                                                                                     natural settings. Don't put them in a bucket to
                 protection and preservation of intertidal com-                      carry up the beach. Much more can be learned
                 munities through education.                                         about a plant or an animal by carefully watching
                                                                                     it in its natural environment than in a bucket or
                 Growing Tourism and                                                 an inadequate aquarium. Even if an organism
                 Coastal Populations                                                 survives the crowding or low oxygen conditions
                                                                                     in a bucket, returning an animal to somewhere
                      Oregon's coast is attracting increased num-                    it doesn't normally live may be the same as kill-
                 bers of visitors and residents. The coast offers                    ing it.
                 outstanding recreational opportunities,                             Carefully pick up only a few animals to look at
                                                                                     and then replace each one, just as carefully,
                 pleasant residential communities, and beauti-                       precisely where it was found. A fragile organism
                 ful scenery. This growth offers many economic                       which normally lives in protected crevices can
                 benefits, yet with these benefits come increased                    die or become easy prey if it is just tossed back
                 risks of negative impacts on the quality of inter-                  into the sea or placed on the top of a dry rock.
                                                                                 0   Carefully replace any overturned rocks to their
                 tidal ecosystems. All of the problems of pollu-                     original location. The homes of organisms living
                 tion, overuse, and abuse will undoubtedly                           under and on top of rocks are destroyed when
                 worsen as the numbers of both visitors and                          a rock is overturned in search of tubeworms,
                                                                                     small fish or hermit crabs and then left exposed
                 coastal residents increase.                                         to the sun and predators.
                      To have both growth and healthy intertidal                 0   Don't litter and, if possible, remove trash found
                 communities will require Oregon to act quickly                      on the shore.
                 and positively to improve public awareness and                  e   Tread lightly and remember that the interticlal
                                                                                     will remain a rich and fascinating place only if
                 appreciation of intertidal ecosystems, to protect                   everyone acts as a responsible ocean resour-
                 and restore those areas which have already                          ces steward.4,
                 been degraded, and to provide high quality
                 recreational opportunities along the coast.
                 Fragmented State Agency
                 Responsibilities
                      Both the Oregon Department of Fish and
                 Wildlife and the State Parks Department have
                 concerns about protecting fragile intertidal com-






                   104 * Oregon's Ocean Resources Management Plan

                     Haystack Rock                                                 munities and providing high quality recreation-
                                                                                   al and educational experiences for the public.
                     Awareness Program                                             But neither agency alone can conserve inter-
                                                                                   tidal communities.
                       The vision of the Haystack Rock Awareness                       ODFW can regulate the taking or harvest
                  Program is simple and direct: "To create a group of              of intertidal animals. ODFW regulations make
                  dedicated people joined together to preserve and                 it unlawful to wantonly waste or destroy any in-
                  protect the precious natural wonder of the Haystack              tertidal animal at any time. ODFW regulations
                  Rock habitat". The Haystack Rock Awareness Pro-
                  gram provides interpretive and educational oppor-                also set harvest or personal bag limits, and es-
                  tunities to help coastal visitors and residents                  tablish a permit system for commercial harvest
                  understand and enjoy and, thereby, become a part                 of intertidal organisms. ODFW has no
                  of the "stewardship circle" for marine resources.                authority to regulate the harvest of marine
                       The program offers active interpretive programs
                  both on and off the beach. On days of the very low               plants or to manage areas to reduce the effects
                  tides, interpreters and volunteers can be found                  of human activities, other than harvesting in-
                  giving talks, helping visitors see nesting birds                 tertidal animals, on intertidal ecosystems.
                  through spotting scopes, and showing visitors
                  samples of intertidal life in tide pools and under                   Enforcement of existing rules can be ex-
                  microscopes. Volunteers also stop and talk to                    tremely difficult. Even if illegal actions are
                  visitors who venture unknowingly into closed wildlife
                  protection areas or are collecting prohibited                    reported immediately to fish and wildlife offi-
                  species. When not on the beach, interpreters and                 cials, actually being able to catch someone in
                  volunteers give public evening programs and slide                the act and stopping the destruction is unlike-
                  shows and do the work to keep this important effort
                  going.                                                           ly. Enforcement of existing regulations would
                       Life long learning experiences are being                    not solve the problem of unintentional overuse
                  created for the community and for visitors.                      and abuse.
                       Begun as a pilot project in 1985, the Haystack                  The State Parks Department operates a
                  Rock Awareness Program is clearly a success. The                 series of excellent coastal parks and has active-
                  Program involves local citizens in providing positive
                  protection of community resources, increases                     ly promoted public access to the beaches. But,
                  awareness of marine resources and the                            the focus of these parks tends to be toward on-
                  stewardship responsibilities of every citizen and                shore recreational opportunities, not managing
                  visitor, and creates an opportunity for preserving the
                  high quality of life along the coast while providing             intertidal areas or providing interpretive
                  for economic growth through enjoyable and educa-                 programs on intertidal ecology.
                  tional tourism opportunities.                                        The Division of State Lands also has a
                       The Program receives funding and support
                  from the City of Cannon Beach, the Seaside School                limited role as the "landlord" for intertidal
                  District, the Oregon Department of Fish and                      areas and as the permitting agency for the har-
                  Wildlife, the U.S. Fish and Wildlife Service, and                vest of marine plants.
                  many local individuals, businesses, and community
                  groups. 44-                                                      Conclusions
                                                                                   and Recommendations
                                                                                       The problem of conserving the intertidal
                                                                                   plants and animals of Oregon's ocean coast re-
                                                                                   quires priority attention.
                                                                                       A number of Oregon's intertidal and the ad-
                                                                                       jacent subtidal communities are threatened
                                                                                       with destruction through overuse and
                                                                                       abuse.






                                                                                Intertidal Plants and Animals e 105


                  ï¿½  Education and heightened public aware-                 close the area between Cape Foulweather and
                     ness can help conserve intertidal resources.           the Devil's Punch Bowl. Within this area it is
                  ï¿½  Growth of tourism and development of coas-             unlawful to take, catch or molest any intertidal
                                                                            invertebrates. ODFW called this area a
                     tal areas will place additional stresses on            11 marine garden". The ODFW has also estab-
                     Oregon's shoreline and intertidal plants               lished marine gardens at Cape Perpetua, Ya-
                     and animals.                                           quina Head, and Haystack Rock.
                  ï¿½  Excellent opportunities exist at sites along               The ODFW marine gardens as they current-
                     the coast for marine education and inter-              ly exist are only partial answers to the
                     pretation programs, increased public enjoy-            problems of providing special management at-
                     ment, and heightened awareness and                     tention to sensitive, vulnerable and valuable in-
                     appreciation of life on the edge of the land           tertidal ecosystems. ODFW`s authority is
                     and the sea. Some of these locations need              limited to regulating the harvest of animals
                     better management in order to continue                 and closing areas to harvest. ODFW cannot
                     providing these opportunities for the fu-              regulate the harvest of marine plants or
                     ture. State agencies will need to explore              manage public access or use in these areas.
                     new approaches and to coordinate existing                  A new and expanded concept for Intertidal
                     programs to fulfill these opportunities.               Marine Gardens can provide better protection
                     The goal of the Oregon Ocean Resources                 and can enrich recreational and educational ex-
                 Management Plan is to protect intertidal                   periences.
                 ecosystems from adverse changes to biological                  The purpose of these new Intertidal Marine
                 communities and habitats.                                  Gardens would be to protect sensitive inter-
                 Intertidal Marine Gardens                                  tidal areas from overuse, overharvest, and ex-
                     A few tidepool and intertidal areas along              cessive collecting, and to ensure future public
                 the Oregon coast need special management at-               use and enjoyment of tidepool areas without
                 tention. The Ocean Policy Advisory Council,                jeopardizing the continued health and integrity
                 the Oregon Department of Fish and Wildlife,                of intertidal and subtidal ecosystems.
                 the Division of State Lands, and the State                     These new Intertidal Marine Gardens
                 Parks Department should work together to                   would focus public attention and raise aware-
                 evaluate ideas for "Intertidal Marine Gardens"             ness about these fragile intertidal areas. Inter-
                 and to develop a process to designate and                  tidal Marine Gardens should have educational
                 manage Intertidal Marine Gardens. Local                    programs to increase the understanding and ap-
                 governments, tribal groups, and the public                 preciation of intertidal ecosystems and to help
                 must be involved in the evaluation, review, and            every visitor become a responsible ocean resour-
                 designation process. (Sites currently suggested            ces steward. Informational displays, interpre-
                 for consideration as Intertidal Marine Gardens             tive programs, nature trails, and visitor centers
                 are listed and briefly described at the end of             at the Intertidal Marine Garden sites or at
                 this section).                                             nearby state parks will all be important means
                     The term "marine garden" was first used                to increase public understanding and to pro-
                 by the Oregon Department of Fish and Wildlife              vide high quality recreational experiences.
                 in the early 1960s. Biologists, teachers, and re-              Public use of an Intertidal Marine Garden
                 searchers asked ODFW to provide special                    should be encouraged as long as the integrity of
                 protection for an area near Otter Rock. After              the intertidal ecosystem is maintained. The ac-
                 careful consideration, ODFW used its authority             tual uses allowed or prohibited at a particular
                 to regulate harvest of intertidal animals to               Intertidal Marine Garden would be determined





                106 * Oregon's Ocean Resources Management Plan


                after site evaluation and public review. In               4. Develop provisions in Oregon's plan for the
                general, allowable uses could include: hiking;                territorial sea to protect intertidal plants,
                picnicking; tidepooling; recreational fishing;                animals, and habitats.
                and harvesting individual mussels for bait for
                recreational fishing. Prohibited uses could in-           Needed Actions
                clude: any other harvest of plants or animals,            0   Oregon's plan for the territorial sea should
                including commercial harvest; and all commer-                 include:
                cial or industrial uses.                                   0  Criteria for the identification, designation
                    To protect the intertidal resources and to                and management of Intertidal Marine Gar-
                allow time for overused or abused areas to                    dens.
                recover, sections of an Intertidal Marine Gar-             0  A designation process for Intertidal Marine
                den could be temporarily closed and visitors                  Gardens which allows full opportunity for
                could be directed to alternative viewing sites.               the participation of local governments and
                This rotation of open viewing areas within an                 the public.
                Intertidal Marine Garden site could conserve
                intertidal ecosystems and provide continual                0  A list of suggested sites suitable for desig-
                recreational and educational opportunities.                   nation as Intertidal Marine Gardens. Site-
                    This new concept of Intertidal Marine Gar-                specific information and analysis of
                dens will require the Oregon Department of                    resource management issues at these sites
                Fish and Wildlife, the Division of State Lands,               which make them appropriate for con-
                and the State Parks Department to explore                     sideration as Intertidal Marine Gardens.
                new ways to manage these areas. New legisla-               9  An analysis of alternative management ap-
                tion will also be required. Currently no single               proaches to protect intertidal communities
                state agency has the necessary authority or                   and habitats within Intertidal Marine Gar-
                jurisdiction to manage and protect intertidal                 dens.
                resources, to develop and promote educational              0  Specific sites to be designated as Intertidal
                and recreational opportunities, and to control                Marine Gardens and proposed manage-
                potentially damaging uses of these new Inter-                 ment plans for these sites.
                tidal Marine Gardens.                                      0  A description of the public information and
                    (Note: The term Intertidal Marine Gardens                 education programs which will be a major
                as used in the Oregon Ocean Plan applies only                 component of an Intertidal Marine Gardens
                to oceanic intertidal areas and does not apply                program.
                to estuarine areas.)                                       0  Proposals for any needed changes in state
                Recommended Policies                                          agency programs or authorities.
                1.  Protect sensitive intertidal habitats and com-            The process for evaluating, identifying, and
                    munities from pollution and from overuse              designating Intertidal Marine Gardens in
                    and abuse.                                            Oregon's plan for the territorial sea should
                2.  Promote public awareness, understanding,              begin with the list of sites identified in the
                    and appreciation of intertidal habitats.              Ocean Resources Management Plan. (See the
                                                                          list at the end of this section).
                3.  Establish Intertidal Marine Gardens, where                Until Oregon's plan for the territorial sea is
                    necessary, to protect particularly vul-               completed, the Oregon Department of Fish and
                    nerable intertidal areas and to provide op-
                    portunities for public enjoyment and                  Wildlife, the Division of State Lands, and the
                    learning.                                             State Parks Department should actively ex-






                                                                               Intertidal Plants and Animals * 107


                plore ways to advance the objectives of the                  0  Work with educators to develop programs
                Ocean Plan and should seek any new                              and materials that will heighten public
                authorities which may be necessary to do this.                  awareness and appreciation of intertidal
                    The Ocean Policy Advisory Council should:                   habitats and communities and will help
                    Assist efforts of state agencies and local                  reduce unintentional abuse and overuse.
                    governments to provide immediate protec-                 0  Be the lead agency in the development of
                    tion for stressed intertidal communities.                   Intertidal Marine Gardens. Lead agency
                    Encourage and assist efforts along the                      tasks include: developing criteria for the
                    coast to develop educational materials, in-                 evaluation of suggested sites; evaluating
                    cluding interpretative programs, per-                       specific site suggestions for Intertidal
                    manent signs for roadsides and parks, and                   Marine Gardens; developing site specific
                    suggestions for alternative viewing sites in                management plans for Intertidal Marine
                    areas currently being overused or abused.                   Gardens; coordinating with the Division of
                    Encourage and assist discussions between                    State Lands, the Parks Department, and
                    the Division of State Lands, the Depart-                    the Ocean Policy Advisory Council to estab-
                    ment of Fish and Wildlife, and the Parks                    lish and manage Intertidal Marine Gar-
                    Department to explore ways to designate                     dens; consulting with local governments
                    and manage Intertidal Marine Gardens                        and the public in these activities. At any
                    and to provide for public education                         proposed Intertidal Marine Garden site
                                                                                that is adjacent to a state park, ODFW will
                    programs.                                                   work with the State Parks Department to
                    Facilitate efforts among state agencies,                    integrate physically and administratively
                    local governments, tribal groups, and the                   the Intertidal Marine Garden with the
                    public to develop Intertidal Marine Gar-                    state park. The State Parks Department
                    dens, where needed. Assist efforts to                       may need to take the lead in managing any
                    develop criteria, to evaluate sites, to in-                 Intertidal Marine Gardens adjacent to ex-
                    volve the public, and to designate sites to                 isting state parks.
                    be Intertidal Marine Gardens.                               Develop proposals for the 1991 legislative
                 ï¿½  Facilitate the efforts described in the sec-                session to define ODFWs authority to
                    tion on Marine Water Quality to protect                     designate, develop management plans, and
                    water quality in Oregon's ocean waters, in-                 administer Intertidal Marine Gardens. The
                    cluding promoting recycling plastics and                    legislative proposals should expand
                    other wastes.                                               0DFW`s management authority to address
                 ï¿½  Facilitate the efforts described in the sec-                public access and use issues as well as the
                    tion on Oil Spills to develop a strong state                harvest of all intertidal plants and animals.
                    oil spill prevention, response and cleanup                  The legislative proposals should also estab-
                    capability.                                                 lish a review and consultation process with
                0   The Department of Fish and Wildlife                         affected state agencies and provide for full
                    should:                                                     participation of local governments and the
                                                                                public.
                    Conduct or support scientific research on in-          El   The Oregon Parks Department should:
                    tertidal ecosystems to provide information
                    that will help improve protection of these                  Expand educational and interpretive
                    ecosystems and will help Oregon develop                     programs on ocean resources at State Park
                    its plan for the territorial sea.                           sites along the coast.





                 108 * Oregon's Ocean Resources Management Plan


                 0  Work with OPAC, DSL and ODFW to ex-                  0  Coordinate with ODFW, the Parks Depart-
                    plore better management approaches to in-               ment, and OPAC to explore better ways to
                    tertidal areas, especially the designation of           manage and protect intertidal areas while
                    Intertidal Marine Gardens. At a proposed                providing quality recreational oppor-
                    Intertidal Marine Garden site that is ad-               tunities, especially through the designation
                    jacent to a state park, State Parks will                and management of Intertidal Marine Gar-
                    need to work with ODFW to find ways to in-              dens.
                    tegrate physically and administratively the          9  Work with ODFW and the Parks Depart-
                    Intertidal Marine Garden with the state                 ment to make any necessary legal and
                    park. At such sites, the State Parks Depart-            fiduciary arrangements necessary to
                    ment may need to be the lead management                 develop and designate Intertidal Marine
                    agency.                                                 Gardens.
                    The Division of State Lands should:














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                    The tidepool offers a fascinating glimpse of sea life. Several intertidal areas are threatened by
                thoughtless collection of starfish and other creatures. (Non Evans)






                                                                                     Intertidal Plants and Animals 9 109


                                                                                   Suggested Locations
                                                                                   for Intertidal
                                                                                   Marine Gardens


                                                                                     The Ocean Plan only begins the effort to iden-
                                                                                tify those special places which could become Inter-
                                                                                tidal Marine Gardens.
                                                                                     Criteria suggested by ODFW for evaluating an
                                                                                intertidal site for designation as an Intertidal Marine
                                                                                Garden include:
                                                                                ï¿½    The diversity, abundance and sensitivity of the
                                                                                     intertidal communities and habitats at a par-
                                                                                     ticular site.
                                                                                ï¿½    The current and projected level of public use of
                                                                                     the site.
                                                                                ï¿½    The potential for adverse impacts on intertidal
                                                                                     communities and habitats from overuse, over-
                                                                                     harvesting, or excessive collecting that could
                                                                                     occur without special protective measures at
                                                                                     the site.
                                                                                ï¿½    The opportunities for high quality public recrea-
                                                                                     tional use and development of interpretive ac-
                                                                                     tivities.


                                                                                     Based on these criteria, the Oregon Depart-
                                                                                ment of Fish and Wildlife and members of the
                                                                                public have suggested the following sites as good
                                                                                candidates for Marine Gardens. Their location
                                                                                along the coast are shown on the following pages.
                                                                                ï¿½    Haystack Rock. Located at Cannon Beach,
                                                                                     this "sea stack" is a large rock isolated on a
                                                                                     sandy beach. Haystack Rock is easily acces-
                                                                                     sible. Overcollecting has been a problem in the
                                                                                     past and the variety of invertebrates is limited,
                                                                                     but recovering. In 1989, the area was desig-
                                                                                     nated as an ODFW marine garden. The boun-
                                                                                     daries of the ODFW's marine garden are 300
                                                                                     yards north and south of Haystack Rock.
                                                                                ï¿½    Otter Rock. Located nine miles north of New-
                                                                                     port, on the north side of the community of
                                                                                     Otter Rock, this area was designated as an
                                                                                     ODFW marine garden in the early 1960s. The
                                                                                     boundaries of the area are Cape Foulweather
                                                                                     on the north and the Devil's Punchbowl on the
                                                                                     south. Rest rooms, ample parking and good
                                                                                     trails are available. Channels paralleling the
                                                                                     shoreline break up the flat sandstone shelves.
                                                                                     Numerous tidepools pocket the rocks. The area
                                                                                     has thriving mussel and starfish populations.
                                                                                ï¿½    Yaquina Head. Located three miles north of
                                                                                     Newport, this is one of the most heavily used in-
                                                                                     tertidal areas in Oregon. This is a favorite area
                                                                                     for tours and educational programs for school





                  110 * Oregon's Ocean Resources Management Plan


                      groups. The Bureau of Land Management has                      abruptly into the sea. Bedrock shelves along
                      provided parking and a viewing site at the old                 the base of Cape Perpetua are broken by chan-
                      Yaquina Lighthouse. The north side of the head-                nels and caves which are lined with lush popula-
                      land is relatively inaccessible, except at low                 tions of sponges, ascidians, and encrusting
                      tides. Caves cutting into the headland have                    algae. Beds of mussels, starfish, and barnacles
                      abundant populations of sponges, colonial as-                  cover the rocks and channels. Green sea
                      cidians, and coralline algae. Paths and stair-                 anemones line the sides of the protected
                      ways make the south side of the headland                       tidepools. This area was designated as an
                      easily accessible. Several rocky outcroppings                  ODFW marine garden in the mid-1 970's. The
                      are present, ranging from boulders to isolated is-             U.S. Forest has a visitor center and maintains a
                      lands. Channels and tidepools are widespread.                  network of good trails that lead down to the in-
                      A variety of animals and extensive colonies of                 tertidal zone. The boundaries of this area are
                      sea urchins are found here. The area was desig-                the mouth of North Cape Creek to the north and
                      nated as an ODFW marine garden in 1987. The                    Neptune State Park on the south.
                      sandy beaches on the north and south form the                  Neptune State Park. Located about 5 miles
                      boundaries of the marine garden.                               south of Yachats, this state park has a varied
                  ï¿½   Seal Rock. Located 12 miles south of Newport,                  and extensive intertidal area. Bedrock outcrop-
                      there is good access to this intertidal area                   pings and sandy areas are intermixed. Most of
                      through Seal Rock State Park. Cliffs, bedrock                  the common species of intertidal animals may
                      and boulders are found intertidally around a                   be found in the numerous tidepools, channels,
                      massive headland and the chain of cliffs near-                 and among the boulders. Algae and surf grass
                      by. Offshore, numerous islands and reefs, give                 are abundant. The boundaries of the intertidal
                      some protection to the area. The usual as-                     area correspond with the state park boundaries.
                      semblage of mussels, barnacles, and sea stars                  Currently, collecting or taking intertidal animals
                      is most common. Seals and sea lions are seen                   is allowed in this area only under special per-
                      on the offshore rocks.                                         mits from ODFW.
                  ï¿½ Cape Perpetua. Two miles south of Yachats,                       Sunset Bay and Cape AragO. Located west
                      Cape Perpetua is a massive mountain dropping                   of Charleston, this intertidal area includes the













                                           Rocky Point                       Coquille Point
        Harris Beach                     Mari                                 Marine Garden            Sunset Beach / Cape Arago
        Marine Garden
                          f ,k                                                                               rine Garden





                  5
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                                                                                    Intertidal Plants and Animals * Ill


                      area between the Cape Arago lighthouse and                     intertidal areas and the bluff receive no special
                      the south cove about 3/4 miles south of Cape                   protection at this time.
                      Arago. A large state park, good access and                     Rocky Point. Located about 3 miles south of
                      abundant intertidal areas make this the second
                      most used intertidal area in Oregon. There are                 Port Orford just inside the Humbug Mountain
                      several large coves, extensive reefs, and                      State Park, this area is an excellent intertidal
                      numerous pools and channels. Several sandy                     area. Access is from a small road with limited
                      beaches are also present. A good variety of in_                parking. Sandy beaches, boulder fields, off
                      vertebrates can be found in this area. Offshore,               shore reefs and kelp beds are found here. The
                      large colonies of sea lions and seals can be                   area which may be suitable for a marine garden
                      seen and heard. Currently, collecting or taking                is the rocky area north of the sandy beaches.
                      intertidal animals is allowed in this area only                Harris Beach. Harris Beach State Park is lo-
                      under special permits from ODFW.                               cated two miles north of Brookings. The exten-
                      Coquille Point. Located along the western                      sive intertidal area lies between the Chetco
                      shoreline of the town of Bandon, Coquille Point                River on the south to about 1/2 mile north of the
                      is a series of rocky outcroppings with adjoining               state park boundary. Several rocky points,
                      boulders of various sizes scattered on the                     small sandy coves, isolated rocks, and boulder
                      sandy beach. Access is available at several                    fields are scattered in the area. The state park
                      locations, including a recently built stairway just            and good trails allow for easy access to this
                      south of the point. Many of the common                         popular intertidal area. Animals and algae are
                      species of intertidal plants and animals are                   abundant in this area and some unusual
                      found, including those species adapted to open,                species, such as solitary corals and umbrella
                      unsheltered areas. The offshore rocks are close                crabs, can be found. Currently, collecting or
                      to the point and colonies of breeding birds are                taking intertidal animals is allowed in this area
                      easily visible. Seals, which can be readily ob-                only under special permits from ODFW.-*.-
                      served from the bluff or the shore, use the near-
                      shore rocks as pupping and haul out areas. The







                                                          Suggested Marine Gardens

                    Cape Perpetua           Yaquina Head
                    Marine Garden           Marine Garden

  Neptune S.P.
                en                             Otter Rock
  Marine Gard'J Seal Rock
                           M.G.               Marine Garden                                                    Haystack Rock
                                                                                                               Marine Garden





               112     Oregon's Ocean Resources Management Plan



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                  Boardman State Park in Curry County preserves many miles of dramatic ocean shoreline for public
              use, typical of Oregon's commitment to public access to the ocean shore. U.S. Highway 707, shown
              here at House Rock viewpoint, serves many roles along the coast, including a commercial transporta-
              flon route, a local access road, and a spectacular scenic drive. (ODOTphoto, 7 972)






                                                                        Recreation and Cultural Resources * 113


                    Recreation and Cultural Resources

                Resources                                                 coast. As coastal tribes regain official tribal
                                                                          government status, they can play a major role
                Cultural Resources                                        in determining how tribal cultural sites and
                    Long before European influence spread to              resources should best be protected or studied.
                the Oregon country, native people lived near              Information from this research will not only
                the sea in villages on estuaries and coastal              reveal the life and culture of native people but
                streams from the Columbia River to California.            may also help identify the ancient distribution
                Community subsistence and ceremony were                   of marine animals such as fur seals and otters
                directly linked to the daily tidal cycle, the             before trappers, traders and settlers reached
                seasonal flow of salmon, an abundance of fish             the region.
                and animals and ripening of berries, bulbs, and               Historical and cultural sites also exist from
                other plants.                                             early non-Indian settlement and activity. Some
                    Archaeological evidence suggest that these            of these are known, designated, and protected.
                people first made contact with the Europeans              Others, such as shipwrecks sites, are only
                as early as the seventeenth century. At least             suspected from historical evidence. In the past,
                one shipwreck from this period is known to                Oregon law has regarded the artifacts from
                exist on the Oregon coast. Recent studies                 these sites, especially those on state-owned sub-
                theorize that native people may have occupied             merged lands, as available for private dis-
                the coast since before sea-level rise and could           covery and exploitation. To preserve the
                have inhabited or at least hunted and fished on           integrity of these resources for all Oregonians,
                what is now the submerged peninsula of the                state law should be changed to reflect the im-
                Heceta Banks. These and other sites along the             portance of artifacts and resources to all
                ancient coastal plain would have been inun-               Oregonians.
                dated or destroyed by the encroaching ocean               Recreation Resources
                over the last 10,000 years.                                   The Oregon coast abounds with recreation-
                    Relatively few village and other cultural             al resources and opportunities. Some, such as
                sites on the Oregon coast have been identified            the sandy beach or tidepool, offer an intimate
                and even fewer studied. Many sites are inland             glimpse of the ocean's edge for those willing to
                along rivers. Location and study of sites is              risk wet feet. Others, high above the waves on
                hampered by natural processes of the Oregon               a cliff or hilltop, provide hikers, bicyclists and
                coast such as high rainfall, strearn and                  auto travelers dramatic vistas of the meeting of
                shoreline erosion, and rapid plant growth,                land and sea. For the adventurous, numerous
                coupled with the relative impermanence of                 sites dot the coast for surf fishing from a rocky
                materials such as wood, bark, fibers and                  point or clam digging at low tide. Oregonians
                animal materials. Finally, the continuity of na-          and visitors can camp, picnic, hike and relax in
                tive culture, traditions and materials was tragi-         a multitude of state, county or federal parks
                cally interrupted and, for many tribes,                   within site and sound of the ocean. These
                exterminated over one hundred years ago when              recreational opportunities are primarily land
                miners and settlers began to occupy Indian                based but are made meaningful by the ocean's
                lands in large numbers.                                   presence.
                    Much more research and study is needed to                 Coastal recreation also extends into the
                better determine and understand the native                ocean waters. Generations of hardy sportsmen
                cultural sites and resources of the Oregon                have arisen before dawn to go charterboat fish-





                114 * Oregon's Ocean Resources Management Plan


                ing for salmon "over the bar" at Coos Bay,               coastal estuaries on bridges of classic design.
                Winchester Bay, Yaquina Bay, Tillamook Bay,              From these bridges, the travelei@s eye can be-
                the Columbia River and other areas. Surfers              hold wide tidal flats, the fringes of salt marsh,
                found Oregon waves cold but an excellent chal-           and the communities around coastal estuaries.
                lenge year round. SCUBA divers have explored             Travel on the Oregon Coast
                sheltered rocky sites near Sunset Bay, Cape                  As Oregon filled with settlers and the rail-
                Arago, Port Orford and Whale Cove. In recent             road crossed the coastal mountains, the sandy
                years, sea kayakers and wind surfers have                beaches, mild climate and recreational resour-
                begun to explore the potential of Oregon's               ces attracted weekenders and summertime
                ocean waters. Whale watch charter boats offer            vacationers to Seaside, Tillamook, and New-
                a close-up look at these migrating mammals               port. Even after the automobile came to
                during winter and spring.                                Oregon, many sections of the coast could only
                    For many, the primary attraction is the              be reached by boat or by driving on the beach.
                ocean beach itself and the almost limitless              Not until the coast highway was completed in
                variety of opportunities for enjoyment and               the 1930s was the entire coastline opened to
                recreation. Three major factors contribute to            automobiles. Over the past sixty years in-
                the popularity and enjoyment of Oregon's                 creased numbers of Oregonians and out of state
                beaches. First, unlike many states, these                visitors have come to enjoy the Oregon coast
                beaches are a public resource. Oregon law pro-           and the outstanding system of coastal state
                vide for the protection of the public's right and        parks.
                access to the free and uninterrupted use of                  Travel surveys indicate that the coast is
                Oregon's beaches. Second, access to many                 the most popular destination for pleasure
                beaches is easy and free. There are several              travelers in Oregon. The major travel magnet
                hundred access sites along Oregon's 300-mile             is the natural beauty of more than 300 miles of
                coastline provided by cities, counties, state            coastline and the almost limitless recreational
                parks, and federal agencies where people can             opportunities on the beach, the headlands,
                get to the beach. Third, Oregon's beaches and            dunes, estuaries and coastal cities. Travel on
                shoreline are still relatively clean and                 the coast is growing. Between 1975 and 1987,
                Oregonians work to keep them that way. These             total commercial accommodations employment
                factors make the Oregon coast very attractive            in the north and central coasts grew by over 62
                to visitors and residents.                               percent compared to a rate of 26 percent for all
                    Overall, however, is the visual drama of             industries in Oregon. This growth is expected
                Oregon's 300 mile-long coast. Travelers can              to continue.
                stop at high capes such as Cape Sebastian or                 Tourism is among Oregon's four largest sec-
                Neahkahnie Mountain and scan the horizon for             tors of the economy and generates about $1.8
                fishing vessels and freighters over forty miles          billion annually, an amount similar to Oregon's
                seaward near the curve of the Earth. From                high technology sector. Statewide, the direct
                hundreds of sites, ranks of rugged mountains             payroll from the travel industry is about $319
                to the north or to the south challenge the sea as        million representing nearly 37,000 jobs. The
                they appear to recede into the misty distance.           state also receives tax revenues from gasoline
                Offshore rocks dot the horizon. Along almost             and corporate income tax related to travel and
                eighty miles of central coast, sand dunes, im-           tourism.
                perceptibly engulfing the forest, create a gentle
                scene completely different from drama of the             Highway 101
                ocean. The flow of rivers to the Pacific provides            U.S. Highway 101, completed in the late
                yet other panoramas where the highway vaults             1930s, links coastal cities and towns from As-






                                                                               Recreation and Cultural Resourceso 115


                    Oregon's Public Beaches

                      In contrast to most of the nation's ' beaches,all           by daily tides, but dry sands up to the vegetation
                 but 36 of Oregon's 362 miles of shoreline are both               line were actually in private ownership! In addition,
                 accessible and reserved for public use. In other                 the 1965 amendments implied that the legislature
                 states, going to the beach might involve trespass on             couldsell part of the beach.
                 private land. Oregonians have always enjoyed the                     In 1966, construction of a barricade on dry sand
                 use of virtually all their beaches, but the right to do          in front of a north coast motel crystallized the issues
                 so was not established by law until 1967.                        of both the legal definition of a beach and the public
                      Oregon's public beaches represent two historic              right to the dry sand portion of the beach. Research
                 threads. First, from earliest human occupation until             revealed that 112 of Oregon's 262 miles of dry sand
                 modern times, ocean beaches have been vital to                   beach were privately owned.
                 coastal travel. Both native tribes and settlers found                In 1967, the Highway Commission introduced
                 the smooth ocean beaches to be ready-made trails.                Oregon's now-famous "Beach Bill" in the legislature
                 Some beaches even served as public highways for                  to clarify historic public rights to use ocean
                 automobiles until what is now called Highway 101                 beaches. To continue public use of the dry sand por-
                 was completed in 1932.                                           tion of the beach, the bill established a public recrea-
                      Second, Oregonians have historically used the               tional easement across private beach areas. The
                 ocean shores for recreation. By the late 1800s,                  Parks and Recreation Advisory Committee said that
                 Oregon's beaches had become a playground for                     we have the finest beach recreation areas in the na-
                 tourists brought by train from the Willamette Valley.            tion; and the Highway Commission, through this bill,
                 In the early 1900s, the first rough roads to the coast           wants to keep it that way."
                 brought automobile travellers who used the beach                     Passage of the bill was far from certain. Opposi-
                 for travel as well as a place to picnic.                         tion focused on the location of the vegetation line,
                      The foundation for Oregon's Beach Bill was laid             the threat to all private property rights on the coast,
                 in 1859. Upon admission to the Union, Congress                   and violations of the U.S. Constitution. The bill re-
                 granted Oregon jurisdiction over all navigable                   mained stalled for more than four months. Finally,
                 waters in the state. Such waters were to be ". . .               Governor Tom McCall helped forge a compromise
                 common highways. . ." over which all citizens had                that led to the bill's passage. Governor McCall
                 the right to travel. Furthermore, tidelands belonged             signed it into law on July 6, 1967.
                 to the state under both the Admissions Act and                       Court tests were not far behind. The new law
                 English Common Law.                                              was tested in cases involving both the barricade
                      In 1872, the legislature authorized the sale of             and the construction of a private road on the dry
                 tidelands to private citizens. By 1901, the State                sand beach without a permit. In both cases the
                 Land Board had sold off 23 miles of tidal shore. At              courts upheld the new law, ruling that the public had
                 the same time, recognizing the value of 30 miles of              acquired easements based on implied dedication
                 beach on Clatsop Spit as a transportation route, the             and long recreational use of the beach. The Beach
                 1899 legislature declared it to be a public highway.             Law merely empowered the state to enforce exist-
                      In 1913, Governor Oswald West, who opposed                  ing public rights to use the beach.
                 the sale of tidelands, proposed that al/Oregon                       On appeal, the Oregon Supreme Court upheld
                 beaches be designated as public highways. The                    the Beach Law as an excercise of the state's right
                 legislature agreed, and established Oregon's ocean               to protect the public's use and enjoyment of
                 shore, between low and ordinary high tide, as a                  beaches, since neither the state nor private land-
                 public highway.                                                  owners fully owned the disputed dry sands areas.
                      Following World War 11, increased outdoor recre-            The Court also referred to the English doctrine of
                 ation sparked a campaign to develop park lands,                  Custom whereby all Oregon beaches are "public
                 especially along the coast. The 1947 legislature                 recreational land according to an unbroken custom
                 amended the beach law to allow regulation of cars                running back in time as long as the land has been
                 and airplanes on the beach, to regulate the removal              inhabited." Federal courts have also upheld the con-
                 of sand or rock, and to prohibit the state from selling          litutionality of Oregon's Beach Law.
                 more shorelands. In 1965, the legislature changed                    The Beach Law set the stage for Oregon's now-
                 the designation of beaches from a highway to a                   familiar history of environmental legislation. It focus-
                 state recreation area, and prohibited sale of the                ed attention on the vulnerability of our beaches and
                 ocean shore except by "special law."                             other natural resources to development, and on the
                      In the 1960s, coastal development raised con-               potential loss of public rights long taken for granted.
                 cern that Oregon's authority over its beaches was                Ultimately, Oregon's Beach Law paved the way for
                 not as sound as had been assumed. State law es-                  the Oregon Ocean Resources Management Act and
                 tablished public ownership of the beaches covered                the Ocean Plan.A.-






                116 9 Oregon's Ocean Resources Management Plan


                toria on the north to Brookings on the south. Al-       munities have begun to sprawl along the high-
                though it swings inland from the ocean in some          way away from the city center in typical com-
                places, it is mostly confined to the narrow             mercial strip development. Accomodating
                space between the coast mountains and the sea.          conflicting traffic demands in these urban
                    Highway 101 fills three primary, some-              centers is a challenge to local officials and
                times conflicting, functions. First, as the only        transportation planners.
                continuous transportation link along the entire             Third, the highway is a major recreational
                coast, it is a vital highway of commerce serving        resource for the state and for local com-
                residents, businesses and industry in coastal           munities. It is a work of art designed, en-
                communities. Between some towns on the                  gineered and built with respect for the
                coast, no viable highway alternative exists. The        limitations and possiblities of the landscape.
                highway has been widened and straightened               Carved into the rock high above the surf, it cur-
                along some segments and traffic moves effi-             ves around coastal headlands behind handlaid
                ciently at high speeds. In addition, Highway            rockwork and retaining walls. In places it plun-
                101 is an essential link between coastal com-           ges into the coastal forest or hides in the thick
                munities and major highways to Oregon's inte-           coastal brush behind sand dunes, only to
                rior.                                                   emerge again to a new vista of the sea. A series
                    Second, in almost every coastal city and            of graceful bridges carries the highway in style
                town, Highway 101 is the main street. Many of           across coastal streams and estuaries. In spring,
                these main streets are congested, especially            the roadsides are lined with yellow
                during summer, with local traffic, through traf-        scotchbroom and gorse, pink wild
                fic, and recreational travelers. Some com-              rhododendrons, and, in the open meadow
                                                                        hillsides of the south coast, purple flag iris.











                                                  '4





                                                                                    or

                                                       AM-








                                           :4@


                    Although the large bridges over Yaquina, Coos, Alsea, and other bays are more commonly
                photographed, U.S. Highway 70 1 crosses even small coastal streams on handsome bridges of classical
                design, Here at Devils Elbow State Park, the northbound traveller exits a tunnel onto this bridge over
                Cape Creek. (ODOTphoto, 7972)






                                                                       Recreation and Cultural Resources 9 117


                   Oregonians and travelers from the world                shoreline is rapidly filling in the open spaces.
                over enjoy the recreational and aesthetic ex-             This development highlights the foresight of
                perience of the highway itself as well as the             Oregon's early state park program to acquire
                recreation to which the highway provides ac-              numerous sites for public use. The rapid pace
                cess. Most travelers use automobiles or recrea-           of development makes imperative the need to
                tional vehicles. But a growing number choose              actively pursue opportunities to add to
                to bicycle along the shoulder of Highway 101,             Oregon's treasure chest of publicly managed
                riding with the wind from north to south. In              scenic and recreational sites.
                some areas, the Highway is linked to the                      Increased urbanization, strip development
                Oregon Coast Trail and provides shuttle access            along Highway 101, and residential develop-
                to and from trailheads. State, federal and                ment on the shoreline can impact the ocean en-
                private campgrounds, roadside picnic areas,               vironment in several ways. Cities may need to
                and scenic viewsites abound along its entire              turn to new ocean outfalls to accommodate in-
                length. Highway 101 is a statewide recreation-            creased municipal sewage. As new homes and
                al resource of tremendous value.                          vacation cabins are built along the beachfront,
                Risks                                                     increased demand for seawalls and revetments
                                                                          to control the ocean's erosion may reverse the
                Increasing Numbers of Visitors                            natural beach building process and therefore
                    In Oregon, as nationwide, coastal recrea-             causes damage and loss to the public beach. In-
                tion is experiencing pressures and conflicts.             creased pressure to build new homes and
                The Statewide Comprehensive Outdoor Recrea-               cabins may result in development near
                tion Plan (SCORP), discussed below, describes             heretofore isolated bird or mammal habitat.
                recreation in Oregon as "facing a quiet crisis."              Unmanaged or too rapid population growth
                As more visitors travel the Oregon coast, the             on the Oregon coast can mean an unacceptable
                array of coastal recreational uses expands and            increase in traffic congestion on Highway 101
                diversifies even while traditional uses remain            as well as in recreational areas, noise, litter,
                popular. Even isolated, out-of-the-way areas              and significant degradation of air and water
                are increasingly used by visitors seeking                 quality. Coupled with growing numbers of
                scenery and solitude. Highway 101, the coast's            recreational travelers, this growth could
                major transportation route, is required to hand-          degrade the coastal environment and diminish
                le larger traffic volumes of visitors along with a        the quality of the coastal recreational ex-
                growing number of residents. Because most                 perience.
                visitors on the Oregon coast travel by
                automobile or recreational vehicle, traffic con-          More Recreation in the Water
                gestion may make coastal outdoor recreation                   Demand for increased "in-water" recreation
                areas difficult and unpleasant to reach. Once             is already occurring and can be expected to in-
                there, visitors may very well find crowded                crease both as a function of growing population
                areas and over-taxed facilities. The challenge            and of the popularity of "in-water" recreation
                for Oregon is to meet increasing demands for              nationwide. Some of these activities are rela-
                quality recreation in the face of increasing com-         tively benign. Others can create conflicts with
                petition for land and natural resources that pro-         other uses and resources.
                vide the recreational experience.                             More traditional SCUBA diving and surf-
                Population Growth                                         ing continue to grow in popularity. Sailboard-
                    Although the Oregon coast is well endowed             ing, already a huge recreation activity in the
                with public access and parks, urban growth                Columbia Gorge, is spilling over to the Oregon
                and rural development along Oregon's ocean                coast as sailboarders seek new challenges. Sea






                118 e Oregon's Ocean Resources Management Plan


                kayaking, although limited, is a growing sport            tains boat ramps throughout the state.
                on the Oregon coast. Jet ski craft are being                 These agencies and programs are broadly
                used in the ocean on occasion. Sturdy rubber              described and analysed in the Statewide Com-
                boats powered by outboard engines, such as the            prehensive Outdoor Recreation Plan 1988-1993
                Zodiac, are increasingly used for recreational            (SCORP) prepared by the Oregon Department
                fishing around nearshore rocks and reefs.                 of Parks and Recreation. SCORP profiles
                Other uses may not be far off. In Japan, for in-          regional recreational opportunities, including
                stance, several companies are building and                the north coast and south coast, describes state
                operating miniature submarines for recreation-            and federal programs, assesses supply, demand
                al sight-seeing.                                          and need, and provides suggestions and recom-
                Conflicts and Safety                                      mendations for meeting future recreation
                    While the ocean is vast, most recreational            needs.
                use is limited to very nearshore areas. These                SCORP provides a broad overview of
                areas include accessible coves and beaches                Oregon's recreation system and lists various
                where SCUBA diving, board surfing or sail-                federal, state, local and private programs that
                boarding may be readily and safely enjoyed.               contribute. SCORP does not provide more
                Kayakers, divers and surfers may, upon oc-                focused analysis and assessment of coastal or
                casion, venture into more exposed shoreline               other regional recreation needs and limitations.
                areas. Some conflicts may arise during certain            It does not consider the impact of recreation ac-
                seasons with some commercial fishing ac-                  tivities on other natural resources.
                tivities or between various recreation users. In          Highway 101 Improvements
                addition, recreation in the ocean can be a high              The Oregon Department of Transportation
                risk activity. Surfers, divers, sailboarders and          Highway Division is nearing completion of a
                others usually have local knowledge about                 study of the Highway 101 coastal corridor. The
                weather, currents, access, temperature and                study will make recommendations on improve-
                equipment. But as more people seek new                    ments for traffic flow in key sections of this
                recreational experiences without full apprecia-           mostly two-lane highway. It investigates
                tion of the inherent risk, safety becomes a key           11 parkway" and scenic byway alternatives to pro-
                consideration in designating areas for in-water           vide for through traffic flow while retaining
                recreation.                                               scenic qualities for which the coast highway is
                Management Issues                                         famed. Because Highway 101 is both a
                State Planning for Recreation                             transportation link and a recreational resource
                    Planning and managing recreation in                   connected with the many state parks and
                Oregon involves a complex mix of public agen-             waysides along its length, future improvements
                cies and private interests. The Oregon Depart-            to 101 will have a significant impact on coastal
                                                                          recreation.
                ment of Parks and Recreation is the lead
                agency for recreation planning in Oregon,                 Public Concerns
                manages Oregon's state parks system and                      Oregon has no overall coordinated plan or
                houses the State Historic Preservation Office             strategy for recreation and travel on the
                (SHIPO). Other public agencies, such as the               Oregon coast. This kind of plan is essential be-
                U.S. Forest Service, the Oregon Dunes Nation-             cause of the effects that increased recreation
                al Recreation Area, and coastal county parks              use may have on other resources and activities
                departments provide and maintain recreation               of concern to local governments and state and
                facilities along the coast. In addition, the              federal resource agencies.
                Oregon Marine Board constructs and main-






                                                                       Recreation and Cultural Resources * 119


                    Oregon is not well prepared to protect or            government rather than exploited for private
                safeguard sensitive natural resources and sites          profit.
                from increased recreational use. Oregon's coast              Improvements to Highway 101 should be
                has too few coastal facilities where the public          carefully coordinated with recreational plans
                can augment their travel or recreation by learn-         and should retain recreational and aestheic
                ing more about the coast and ocean. Oregon               qualities of key segments.
                must protect its coastal resources through                   The Oregon Parks and Recreation Depart-
                education as well as enforcement.                        ment, in conjunction with other affected agen-
                    Tourism on the Oregon coast is moving                cies, local governments and citizens, should
                from a seasonal to a more year-round industry.           develop a coastwide recreation plan to accom-
                But demand continues to be highest from June             modate increased visitors, improve and expand
                through September. A sizable infrastructure of           recreation opportunities and protect sensitive
                facilities, events and employment is geared to a         natural resources areas from overuse. In par-
                three and one-half month rush. Some coastal              ticular, Parks will need to work with the
                communities and businesses, however, are                 Division of State Lands, the Department of
                trying ways to expand the visitor season and             Fish and Wildlife, the Oregon Highway
                encourage "off-season" travel and recreation.            Division, Department of Economic Develop-
                    During certain times of the year, chiefly            ment, and coastal cities and county govern-
                the summer travel season, Highway 101 in                 ments.
                some areas reaches or exceeds its capacity as a              Local governments should review local com-
                highway of commerce for coastal communities              prehensive plans to fully consider the impacts
                and a recreational resource for visitors. Traffic        of growth and development on the recreational
                congestion is not only unpleasant for residents          and aesthetic values of their communities.
                and visitors alike, it is unsafe, disrupts com-              A plan for Oregon's territorial sea should
                merce, and degrades the coastal recreational             address shoreline and in-water recreation
                and aesthetic experience. As coastal com-                needs on a site-specific basis.
                munities grow and recreational travel in-
                creases, this problem will only increase and                 The goal of the Ocean Plan is to provide
                will not be easily or quickly resolved.                  quality marine recreation opportunities for resi-
                    Archeological and other cultural resources           dents and visitors.
                are not well known and are not addressed in              Recommended Policies
                depth in this plan. These resources are impor-           1.  Prohibit development activities in the ter-
                tant to Oregonians, especially to the Indian                 ritorial sea which would impair the cul-
                tribes of the Coast and should no longer be con-             tural, scenic, or recreational values of the
                sidered available for private exploitation.                  near shore areas.
                Conclusions and                                          2.  Prepare a comprehensive coastal and marine
                Recommendations                                              parks and recreation assessment and plan
                                                                             to accommodate increased recreational
                    Oregon needs an aggressive program to                    demands while protecting coastal and
                identify, acquire, and establish new public                  ocean resources.
                recreation areas in the water as well as the             3.  Pursue an aggressive program to identify and
                coastal upland.
                    Cultural, historic or archaeological resour-             acquire additional public recreation resour-
                ces and sites of Oregon should be retained by                ces and sites on the Oregon coast and to
                the general public or by the appropriate tribal              provide for public recreation opportunities
                                                                             in the marine environment.





                 120 * Oregon's Ocean Resources Management Plan


                 4.  Plan for improvements to Highway 101 which                 0  Completion of the Beach Access Plan, in-
                     maintain, restore, or enhance recreational,                   cluding an update of access site inventory,
                     scenic, and interpretive opportunities.                       a list of new sites for public acquisition and
                 5.  Place strong emphasis on education, informa-                  an evaluation of future demand
                     tion and interpretation to protect marine                  0  Specific proposals for a coordinated marine
                     resources, provide for economic develop-                      education and information program to use
                     ment and enhance visitor appreciation of                      state parks as focal points for information
                     coastal resources and economies.                              and to establish Ocean Watch Sites at
                 6.  Designate cultural and historic sites, includ-                scenic viewpoints along highways and in
                     ing shipwrecks, as important resources for                    parks. This element would involve Oregon
                     the general public and not private exploita-                  State University Sea Grant, Sea Grant Ex-
                     tion.                                                         tension, appropriate state agencies, coastal
                 Needed Actions                                                    local governments and citizens
                 0   Oregon's territorial sea plan should include                  The Oregon Highway Division should:
                     in-water recreational needs, opportunities,                0  Preserve major segments of Highway 101
                     and limitations. The Oregon Parks and                         as significant recreational, aesthetic, and
                     Recreation Department and Division of                         historical resources of the State of Oregon
                     State Lands, in consultation with local                    0  Incorporate ocean views and vistas,
                     government, should identify specific sites                    shoreline recreational, and opportunities
                     for marine parks to be included in the plan                   for interpretation and education into plans
                     for the territorial sea.                                      for improving Highway 101
                     The Oregon Parks and Recreation Depart-                   0   The Oregon Legislature should change ar-
                     ment should coordinate a recreational plan                    chaeological and treasure trove laws to
                     and strategy for the Oregon coast which in-                   protect archaeological sites and shipwrecks
                     cludes:                                                       as public resources and prohibit private ex-
                     A scenic resource analysis of the Oregon                      ploitation on public lands.
                     coast that identifies outstanding coastal                 El  Local governments should:
                     views and ocean areas visible from high-                   0  Review comprehensive plans to assess the
                     ways, parks and beaches                                       affects of growth and development on coas-
                     An evaluation of possible marine park sites                   tal and marine recreation, tourism, cul-
                     to expand and diversify in-water recreation-                  tural and aesthetic resources
                     al and educational opportunities while                     0  Should seek and identify sites appropriate
                     protecting ocean and coastal resources                        for acquisition as recreational or scenic
                     An evaluation of upland sites which should                    sites by the Oregon Department of Parks
                     be acquired to expand Oregon's state park                     and Recreation or other public entity
                     system on the coast





                                                                                      Water and Air Quality * 121

                    Marine Water and Air Quality
                Resources                                                dynamic marine system and relatively small
                    Clean ocean waters and coastal air are es-           volumes of pollution. While the physical
                sential to a healthy marine environment.                 dynamics of the marine environment will
                Marine ecosystems, from the microscopic                  remain relatively constant, the amount and
                                                                         kinds of pollutants entering Oregon's ocean
                plants and animals near the ocean's surface to           area are growing.
                the deep ocean, can be adversely affected by al-
                most undetectable amounts contaminants.                  Ocean Waste Disposal
                Even when not lethal, contaminants can inter-                For centuries, civilization disposed of waste
                act with each other or add to overall pollution          in the ocean on the assumption that the ocean
                levels to weaken individual organisms,                   could absorb this waste without harm. The
                diminish populations, alter the composition of           ocean provided a convenient and inexpensive
                communities of various plants and animals and            dump where the waste was soon out of sight
                threaten entire ecosystems. These effects can            and out of mind. Certainly, the amounts of
                go undetected until the problem becomes acute,           waste was relatively small compared to today
                certain parts of the marine ecosystem lose their         and, in many cases, the kinds of waste were
                fuctional value, and the marine environment is           more "organic".
                jeopardized.                                                 Today, however, waste disposal in the
                    Clean air and water are the foundation of            ocean is a different story. Some ocean areas, in-
                much of Oregon's coastal economy. Fish, crabs,           cluding parts of the United States,are
                squid, shrimp and other seafood caught by com-           threatened because the volume of waste has ex-
                mercial and recreational fishermen are the               panded tremendously and the kinds of waste
                products of healthy, viable marine ecosystems.           now include toxic materials, persistent plastic
                A polluted marine ecosystem may mean that                debris, and exotic chemical waste. Some waste
                fish may simply not be available to be caught            is discharged directly to the ocean and is regu-
                or, if caught, will be sick and contaminated.            lated as a "point source," such as treated
                Health risks may arise, consumer demand                  municipal sewage or industrial effluent, and
                decrease, and product prices fall. Oregon enjoys
                a positive reputation for quality seafood                sand or mud dredged from rivers and bays.
                products from a clean environment. This                  Other waste reaches the ocean indirectly, dis-
                reputation may mean a market advantage in                charged under numerouse individual permits
                coming years if coastal waters remain clean.             into creeks, rivers, and estuaries. As cities
                                                                         grow and industry expands, more individual
                    Residents and tourists alike expect clean            permits add to the total pollutant load of the
                beaches, clean ocean water, and clean air. Pol-          stream and thus the ocean.
                luted water and beaches are not only unattrac-               A significant amount of waste enters the
                tive but unsafe and unhealthy. Oregon's ocean            ocean from agricultural, forestry or urban "non-
                waters and air are still relatively unpolluted in        point sources," runoff in upstream watersheds.
                contrast to some coastal areas in the United             Catchbasins in the streets of most cities drain
                States. High environmental quality is a there-           rainwater runoff laden with a mixture of oil, an-
                fore a resource of comparative advantage for             tifreeze, bits of plastic debris, lawn fertilizer,
                Oregon's coastal travel and recreation industry.         and other material. Most farm and forest opera-
                    The cleanliness of Oregon's ocean waters             tions use a variety of chemicals and generate
                and air is a function of two variables; a large,         sediments which find their way into a gully, a





               122 * Oregon's Ocean Resources Management Plan


               creek, a river, an estuary, and the ocean. In-            sludge to continue to be dumped at sea.
               dustrial sites, both existing and abandoned,                  In 1977, the law was tightened to phase out
               contribute oil, grease, chemicals, or heavy me-           ocean dumping by 1981 of certain industrial
               tals to the pollutants that wash into streams             waste and municipal sewage sludge which
               and the ocean from the rain.                              would "unreasonably degrade" or endanger
                    Ocean disposal of waste will continue to be          human health and the marine environment.
               a fact of life for Oregon and the rest of the             Full implementation was difficult, particularly
               world because of two realities. First, the                on the East Coast and some cities continued to
               geologic reality that the world's rivers empty            dump sludge at an EPA designated site.
               into the ocean means that many wastes from                    In 1988, Congress reacted to public outrage
               land activities will continue to end up in the            over waste on the beaches and passed the
               ocean. Second, ocean disposal will be one of              Ocean Dumping Ban Act which prohibits all
               several waste management options, including               ocean dumping of municipal sewage sludge and
               reducing and recycling wastes, incinerating               industrial waste by the end of 1991. The 1988
               wastes, and land disposal, to meet pressing               Act requires the EPA to set up specific
               problems of waste management. For some                    timetables with ocean dumpers to phase out
               kinds of waste, the ocean disposal may, in fact,          dumping. However, dumping of dredged
               be the most appropriate. Oregon must there-               material can continue at approved ocean sites.
               fore address marine water and air quality as
               part of overall ocean resources management,               International Agreements
               take steps to monitor the health of ocean water           on Ocean Dumping
               and air and take preventative or corrective ac-               Ocean dumping is an international issue
               tion as necessary.                                        which concerns many nations. The United
               Ocean Dumping:                                            States is one of 64 countries which have
               A Brief History                                           ratified the terms of the 1975 London Dumping
                                                                         Convention (LDC), which establishes interna-
                    Ocean dumping is defined as the                      tional policy for ocean dumping in both ter-
               "deliberate disposal at sea of wastes or other            ritorial seas of signatory nations and
               matter from vessels, aircraft, platforms or               international high seas. The LDC lists a
               other manmade structures at sea" (see London              variety of substances that cannot be dumped in
               Dumping Convention, below). "Dumping"is dif-              the ocean, including mercury, cadmium, persist-
               ferent from "discharge" of waste from a pipe              ent plastics, crude and other oils, high-level
               from shore.                                               radioactive wastes, or materials for chemical or
                    In 1972, Congress began to regulate the dis-         biological warfare. The LDC lists other substan-
               charge and dumping of materials in the ocean              ces that require special permits for dumping.
               through the Marine Protection, Research and
               Sanctuaries Act, commonly called the Ocean                Risks
               Dumping Act. This Act banned dumping of a                     Marine biological resources are at risk
               variety of toxic, radioactive and biological              when water quality is not sufficiently high
               agents, placed dumping of dredged materials               enough to support healthy biological com-
               from navigable waters under the regulation of             munities. Toxic contaminants bioaccumulate in
               the U.S. Army Corps of Engineers, and re-                 the marine food web and create shifts in com-
               quired, for the first time, dumping permits               munity structure and composition. Convention-
               from the U.S. Environmental Protection Agen-              al pollutants such as organic materials with
               cy. The 1972 law allowed municipal sewage                 high BOD (Biochemical Oxygen Demand) can
                                                                         rob marine waters of enough oxygen to support






                                                                                     Water and Air Quality             123





                                                                                                                 Now









                                                                                                                     t


                                                                        411 @_

                                                                                                                          4

                                "K-




                                                                           Jj'



                                       94






                   Urban andrural development increases the number ofpollution sources into coastal and ocean
               waters. Close inspection of this view of Brookings and the mouth of the Chetco River will reveal sour-
               ces of potential pollution typical of a/1 cities along the coast. (ODOTphoto, 7 978)

               fish and aquatic life especially in localized bays       ter which contributes to biological oxygen
               and estuaries. Although large scale water                demand (BOD), nutrients such as nitrogen and
               quality impacts are unlikely at this time,               phosphorous, particulate matter, pathogens
               smaller, more localized impacts could cumula-            which can carry disease, and other flotable
               tively affect the balance in ecological integrity        materials, detergents, oils, and grease. For
               of marine biological communities along the               several coastal cities, combined storm and
               Oregon coast.                                            sanitary sewers pose problems when heavy
               MunicipalWaste                                           rains cause the volume of runoff to exceed the
                   In Oregon, six coastal wastewater treat-             treatment plant capacity and untreated sewage
               ment facilities discharge treated sewage ef-             is discharged into the estuary or ocean.
               fluent directly into the ocean. Another thirty           Industrial Waste
               discharge into estuaries where the effluent                  Several industries discharge treated liquid
               mixes with estuarine waters before flowing out           wastes directly into the ocean. These include
               to sea. Wastewater treatment reduces or                  pulp mills at Toledo, Gardiner, and North
               removes several basic components: organic mat-           Bend. Discharges from pulp mills vary with the






                 124 * Oregon's Ocean Resources Management Plan


                 specific process used but generally consist of            Even though the amount of debris from vessels
                 large quantities of wood fibers and wood                  is decreasing under MARPOL, much plastic
                 sugars. Although the percent of these solids is           remains at sea. Rivers also bring debris from
                 low and Oregon's turbulent marine environ-                urban areas and highways. Beach users con-
                 ment disperses them widely, the solids dis-               tribute marine debris by littering. Debris kills
                 charged by coastal pulp mills account for about           sea life, damages vessels'and litters Oregon's
                 75 per cent of the total BOD discharged along             beaches. Because plaseic degrades at such a
                 the coast.                                                slow rate, it accumulates and remains in the en-
                     Other industrial waste enters the ocean               vironment for years. Recent beach cleanup ef-
                 from estuaries and rivers, including creamery             forts in Oregon yielded over 26 tons of debris in
                 waste from dairy processing; fish, shrimp and             a single day. A project at the Port of Newport
                 fish wastes from seafood processing; and oils,            showed that proper waste disposal and recy-
                 chemicals and wood particles from forest                  cling facilities in ports are essential to proper
                 product manufacturing.                                    disposal of trash in port rather than at sea.
                 Nonpoint Sources                                          Nuclear Wastes
                     Runoff from coastal watersheds carries a                  Between 1944 and 1971, significant
                 variety of pollutants into rivers, estuaries and          amounts of radioactive materials from
                 the ocean. Urban runoff contributes oils and              plutonium-producing reactors at Hanford,
                 chemicals from parking lots, streets, and roof-           Washington, reached the Pacific Ocean via the
                 tops which all shed rain water in a pulse.                Columbia River. Radionuclides from these dis-
                 Agricultural and forestry activities that are             charges were detected as far south as northern
                 critical to the coastal economy can also con-             California and as far offshore as 200 miles. Un-
                 tribute pollutants such as pesticides and her-            certainties with radioactive wastes currently at
                 bicides, sediments from road building and                 Hanford may mean slow seepage of con-
                 streamside erosion, and organic material from             taminants into groundwater and discharges of
                 cattle or other livestock.                                radionuclides into the ocean via the Columbia.
                 Vessels                                                   Hazardous and Toxic Chemicals
                     Vessels at sea discharge or accidently leak               Several kinds of hazardous and toxic chemi-
                 fouled water, oils and other wastes from bilges           cal wastes are now entering the ocean. For
                 or holding tanks. While these are dissipated              many, there is little or no ability to determine
                 through dispersion, the cumulative effects con-           the amount discharged or to monitor effects.
                 tribute to degradation of marine water quality.           Trace metals and hazardous chemicals con-
                 These discharges may be more pronounced                   tained in municipal effluent and industrial dis-
                 when many vessels berth in the sheltered                  charges also enter the ocean via streams and
                 waters of Oregon's ports.                                 particulates in the air. These include mercury,
                 Marine Debris                                             copper, lead, chlorinated hydrocarbons (DDT),
                                                                           chlorinated biphenols (PCB), other pesticides
                     Nondegradable debris, such as plastic and             and herbicides. These materials can effect the
                 glass, enters Oregon's ocean from a variety of            marine environment even at extremely low
                 sources. Prior to the recent AIARPOL agree-               levels. For instance, antifouling paints with
                 ment to reduce marine debris (see below), the             tributyltin (TBT) can leach TBT from boat
                 primary source was the dumping of garbage at              hulls in amounts so small as to be virtually un-
                 sea by foreign and domestic merchant marine               detectable. TBT was found in Oregon and other
                 vessels, military vessels, commercial fishing             states to be deforming oysters. Although
                 vessels, cruise ships and recreational vessels.           Oregon and federal law now strictly controls






                                                                                                                                     Water and Air Quality 9 125


                                                                                                                                      Shipboard Waste
                                CAA                                                                                                  MARPOL/MPPRCA
                                    Clean Air Act                                                      Industrial Waste
                                CWA                                                                        ODA
                                    Clean Water Act                                                    -4011111w-
                                    NPDES (point Sources)
                                    Sec. 4W (dredged materials)                                                                Dredged Material Sewage Sludge
                                MARPOL                                                                    CWA/NPDES                     ODA                      ODA
                                    Annex V, Protocol of 1978 Relating to Prevention
                                    of Pollution from Ships (Shipboard waste)
                                MPPRCA                                                                                     Dreaged Material
                                    Marine Plastics Pollution Research and Control                     CWA/NPDES             CWA/Sec 404
                                    Act                                                                                                             WA/NPDES
                                                                                                                                                                   Federal Waters
                                ODA
                                    Ocean Dumping Act                                                                                                                 3-12 miles
                                                                                                                                   CWA/?
                                RCPA                                                      Air Discharge                          'NPDES
                                                                                                'CAA
                                    Resource Conservation and RecoverY Act
                                SDWA                                                                                                                                  State Waters
                                                                                                       Inclusti
                                                                                                                                                                         0-3 Miles
                                    Safe Drinking Water Act
                                                                                                                                          Sewage Treatm t
                                                                                                                                                             ::en
                                                                                                                             A/NPDES
                                WQA
                                                                                          Disposal Well.
                                    WaterQuolltyAct


                                                                                                                                                                                   N
                                                                                                                             Dredged Material
                                                                                                                                CWA/Sec 404                             @Septlc Tank,
                                                                                                                                                                          late DEQ,
                                                                                               RCIZA
                                                                                                                                                   ..''Urban Runoff-


                                                                                                                                        x
                                                                                            River/Watershed Runoff
                                                                                                       WQA, others


                                Major federal regulation of pollutant discharges in marine waters


                        the use of these paints, some effects may still                                         teen specified dumpsites in Oregon's nearshore
                        occur from residual amounts. In addition, little                                        ocean. The U.S. Army Corps of Engineers has
                        is known about other possible contaminants.                                             jurisdiction over these operations. Historically,
                        oils                                                                                    these dredged materials have consisted of clean
                                Oil spills, as a function of offshore oil and                                   marine sands with little or no organic matter
                        gas development or from marine transporta-                                              or other pollutants. However, more recent
                        tion, are treated in a separate section of this                                         operations in rivers and bays have yielded
                        plan. However, significant volumes of oil enter                                         more muddy sediments with higher organic con-
                        the marine environment in other ways, espe-                                             tent. Concern has been voiced that dredging
                        cially from runoff from urban streets and park-                                         near industrialized areas in some estuaries can
                        ing lots, leaking storage tanks or improperly                                           cause sediments contaminated with chemicals,
                        disposed oil, boat engines, and other equipment                                         metals, and organic material to release con-
                        located near streams. The amount of oil enter-                                          taminants into the water and enter the food
                        ing ocean waters off Oregon from such sources                                           chain.
                        isunknown.                                                                              Airborne Particulates
                        Dredged Materials                                                                              Scientists have recently begun to study the
                                Sand, mud and rock dredged from Oregon's                                        surface layer of the ocean and the effects of air-
                        estuaries and rivers for harbor maintenance                                             bome particulates and molecules of man-made
                                                                                                                chemicals on this critical air-water boundary.
                        and improvement are routinely dumped at six-                                            Although Oregon may directly contribute vary






                 126 * Oregon's Ocean Resources Management Plan


                 little to this particulate "rain" because of rela-            The Marine Protection, Research, and
                 tively low air pollution levels and winds which           Sanctuaries Act of 1972 (MPRSA), also known
                 blow mostly onshore, there is growing concern             as the Ocean Dumping Act, regulates ocean
                 about effects of airborne pollutants on the               dumping of all types of materials, including
                 ocean environment.                                        dredged materials. 1988 amendments to this
                                                                           Act aim to end dumping of sewage sludge and
                 Management Issues                                         industrial waste in the ocean by 1991. The EPA
                 Federal Pollution Control Programs                        and the Corps are responsible for administer-
                     Although some sources of pollution in                 ing the Act and the National Oceanic and At-
                 Oregon's ocean area are generated within the              mospheric Administration (NOAA) is charged
                 state, the problem of marine pollution is nation-         with ongoing research and monitoring.
                 al, even international, in scope. Major federal               The Marine Plastics Pollution Research
                 laws have been passed, programs developed,                and Control Act of 1987 directs EPA to find
                 and efforts organized to study and protect                ways to abate plastic pollution. 1988 amend-
                 marine waters. These federal laws and                     ments to the Act require degradable plastic
                 programs are the primary governmental ac-                 ring carriers for cans and bottles. This Act im-
                 tions concerning marine pollution on the                  plements the international agreement on ocean
                 Oregon coast.                                             garbage titled Annex V of the Protocol of 1978
                    The Clean Water Act, administered by the               Relating to the International Convention for
                 Environmental Protection Agency (EPA), is the             the Prevention of Pollution from Ships (MAR-
                 single most important law dealing with the                POL). MARPOL is a primary impetus for ports
                 quality of water in the U.S., including marine            in Oregon to provide garbage disposal and recy-
                 waters. Under the Act, EPA, through an agree-             cling facilities for vessels.
                 ment with the Oregon Department of Environ-                   The National Marine Pollution Program is
                 mental Quality (DEQ) regulate all "point                  composed of all federal marine pollution
                 source" (e.g. a pipe) discharges into rivers, es-         programs, especially those from the EPA,
                 tuaries and the ocean through the National Pol-           NOAA, and the Department of the Interior
                 lutant Discharge Elimination System                       Minerals Management Service (MMS). The
                 (NPDES). Section 404 of the Act regulates                 goals of this research program are to under-
                 dredged materials dumping and is ad-                      stand the fates and effects of toxic materials,
                 ministered by the U.S. Army Corps of En-                  nutrients, and biological agents in the marine
                 gineers.                                                  environment; the effects of loss or modification
                    The Water Quality Act, a 1987 amendment                of marine habitat; the status of marine ecosys-
                 to the Clean Water Act, focuses on planning               tems; and the implications for human health
                 and comprehensive solutions to pollution                  from marine pollution. Results of research and
                 problems in specific important coastal areas              study under this program are available to
                 such as Puget Sound, Chesapeake Bay, and                  Oregon.
                 major estuaries and near coastal waters. Under                The Clean Air Act of 1977 is the legal
                 this program, Oregon's DEQ is conducting a                framework for all air quality regulations in the
                 pilot project with citizens and local govern-             U.S. and directs EPA to set National Ambient
                 ments to identify and control pollution in the            Air Quality Standards. States are required to
                 Coquille River estuary and watershed. DEQ                 develop and implement plans to attain and
                 also has a nonpoint source assessment and con-            maintain these national standards. Nonattain-
                 trol program and is working with landowners               ment areas are those which do not meet the -
                 and municipalities to reduce runoff.                      standards for which special controls are needed





                                                                                       Water and Air Quality e 127





                                                                              N





                 X






                7,


                                                         tl



                                                                              j





                                                                                                                        j


                    This pile of plastic debris was collected during one of Oregon's annual beach cleanup drives,
                CitLzen beach cleanup efforts, pioneered in Oregon, have helped reduce the amount of plastics
                along Oregon's shore. However, plastic use throughout society requires constant vigilance to protect
                marine life from plastic pollution. (ODFVV)

                such as lowering existing amounts of air emis-            NPDES permits (see above) and to administer
                sions to make room for new ones while making              clean air regulations which carry out the Na-
                progress toward overall attainment. In areas              tional Ambient Air Quality Standards. Local
                where air is cleaner than national standards,             governments, through municipal sewerage and
                regulations prevent significant deterioration             storm water facilities, land use plans and local
                (PSD areas). The Oregon coast is a PSD area               ordinances, also play a role in controlling pollu-
                and air quality is virtually pristine.                    tion sources on land which may affect ocean
                State Pollution Control Programs                          resources.
                    The Oregon Department of Environmental                    Oregon has no marine water and air
                Quality (DEQ) has primary responsibility for              quality program which coordinates the various
                water and air quality in Oregon's territorial             federal programs, local government efforts and
                sea. State law gives DEQ authority for a host of          growing state involvement in marine water
                pollution control measures. DEQ also works                and air pollution issues. Oregon has only a few
                closely with the federal EPA to administer                marine water quality standards that address
                federal permits which are required for point              the special environmental conditions, biologic
                source discharges into state waters through               resources or pollutant loading of ocean and es-





               128 9 Oregon's Ocean Resources Management Plan


               tuarine waters. Existing water quality policies           assessments have been made which evaluate a
               and standards, based on freshwater conditions             site off Oregon. Exotic chemicals contained in
               in state river basins, apply to marine waters             industrial and municipal discharges accumu-
               only for specific pollutants. These standards             late in unknown amounts and add to the
               were written and adopted by Oregon's Environ-             ocean's burden. These and an increase in
               mental Quality Commission when knowledge                  shoreside industry can cause air quality effects
               of and demands on estuarine and marine water              such as ozone formation, visibility reduction,
               quality was minimal.                                      undesirable emissions and acid rain.
                   There is little baseline information specific         Conclusions
               to the Oregon coast's ambient air conditions
               and water quality in nearshore, as well as off-           and Recommendations
               shore, waters. Although NOAA maintains a                      Oregon's marine water quality is relatively
               marine monitoring program throughout the                  good at present and must not be degraded.
               country, Oregon has no coordinated system to              However, these waters are in jeopardy from in-
               monitor the health of marine air and water and            creasing demands for waste disposal and from
               then integrate new information as development             lack of a coordinated state and federal program
               occurs and waste disposal demands increase.               aimed at the special conditions of Oregon's
               Increased Waste Disposal                                  ocean and estuarine waters. A vigorous marine
                   As Oregon's coastal population grows,                 water quality program, including research,
               visitor counts increase, and industrial develop-          monitoring, and regulations, is necessary to an-
               ment occurs, waste will increase and add to pol-          ticipate problems and protect ocean and es-
               lution loads on estuaries and the ocean. Water            tuarine water quality.
               consumption will increase and, once used, con-                Oregon must step up efforts to reduce, at
               taminated water will enter the waste treat-               the source, the amount of wastes entering
               ment system, adding to effluent outflow.                  rivers, estuaries and the ocean. Local govern-
               Growing coastal communities will need larger              ments, both on the coast and inland, should
               sewage treatment plants with increased and                critically review urban growth and rural
               improved capacity for treatment and discharge.            development plans and work with state agen-
               In addition, coastal communities will need to             cies to buffer urban runoff, reduce plastic litter,
               revamp existing systems to separate storm and             improve wastewater treatment systems, and
               sanitary flow to prevent overload discharge of            promote recycling.
               untreated sewage into estuaries and the ocean.                Oregonians as a "public" demand clean air
               New Kinds of Waste                                        and water. Yet as individual citizens and busi-
                   The ocean off Oregon will be called upon to           nesses, more awareness is needed to reduce
                                                                         waste and of the adverse affects on ocean water
               absorb wastes not previously discharged in                quality from inappropriate waste disposal prac-
               large amounts. Ocean disposal is being con-               tices. Oregon needs programs to promote public
               sidered by some federal agencies and in-                  understanding that prevention of pollution is
               dustries for future disposal of hazardous and             both an ethic and a cost-effective way to protect
               radioactive wastes. Incineration of solid wastes          quality of the environment.
               on ships at sea or on abandoned oil platforms is
               being proposed for the Gulf of Mexico by in-                  Ocean waters of the world are a "commons"
               dustry and some local governments. Similar                belonging to everyone and to no one. Global
               proposals could be made for offshore Oregon.              ocean pollution problems ultimately affect, and
               Disposal of nuclear waste in the deep ocean is            are therefore a responsibility of, Oregonians.
               under consideration and environmental impact              The state should actively participate in inter-






                                                                                        Water and Air Quality * 129


                state and international efforts to prevent                 3.  Require that discharge of pollutants into the
                marine air and water pollution and protect the                 airshed of Oregon's Ocean Stewardship
                commons.                                                       Area is consistent with the policies of this
                    Oregon's coastal air quality is very high                  plan and such standards as may be
                and is a valuable resource. Oregon needs to es-                developed to carry out this plan.
                tablish a baseline of air quality measurements             4.  Increase information and data to analyze the
                and a program for monitoring to protect air                    effects of air pollution from ocean resources
                quality from degradation by new sources of pol-                development on marine and onshore air
                lution.                                                        quality.
                    Oregon, through the Department of En-                  Marine Water Quality
                vironmental Quality and the Ocean Policy Ad-               1.  Assert Oregon's leadership role in protecting
                visory Council, should take a leadership role in               marine water quality through improved
                protecting marine water and air quality in                     state management capability and through
                Oregon's Ocean Stewardship Area. A coor-                       a coordinated program of federal, state and
                dinated program should be established to en-                   local government.
                sure that state and federal regulatory and                 2.  Encourage citizens, local governments, busi-
                research programs and local government ac-
                tions protect water and air quality.                           nesses and ocean users to minimize waste
                    The goals of the Oregon Ocean Resources                    disposal in the ocean by reducing waste at
                Management Plan are to:                                        its source, conserving water, controlling pol-
                                                                               lution sources on land and in the water,
                 ï¿½  Prevent degradation of the air and waters                  promoting proper waste disposal, and recy-
                    of the Oregon coast                                        cling.
                 ï¿½  Protect, maintain, and where necessary, re-            3.  Emphasize prevention of marine water pollu-
                    store the quality of Oregon's coastal and                  tion by promoting recycling and debris col-
                    ocean waters to protect human health;                      lection in Oregon ports, requiring that
                    maintain recreational use of beaches and                   discharges from coast and offshore ac-
                    water; and protect and propagate fish,                     tivities be the minimum necessary and be
                    shellfish, and wildlife                                    treated to prevent degradation, reducing
                 ï¿½  Promote increased public awareness of the                  the use of water, eliminating or minimizing
                    importance of marine air and water                         the use of toxic substances.
                    quality, the effects of pollution and debris           4.  Establish marine air and water quality
                    in the marine environment, and the role of                 monitoring systems and promote research
                    citizens, governments, and industry in                     to analyze the effects of pollution on inter-
                    keeping marine air and waters clean                        tidal and oceanic ecosystems.
                Recommended Policies                                       5.  Support and participate in interstate and in-
                Air Quality                                                    ternational efforts to reduce and eliminate
                                                                               marine debris and pollution.
                1.  Emphasize pollution prevention rather than             6.  Promote the use of products that can be
                    cleanup and remedial measures.                             recycled or manufactured without adverse
                2.  Require that highest and best controls be                  affects on marine water quality.
                    used to minimize emissions from ocean ac-
                    tivities and assure that they do not degrade           Needed Actions
                    the existing high quality of Oregon's                  0 Oregon's plan for the territorial sea should
                    marine and coastal air.                                    include marine water and air quality






                130 o Oregon's Ocean Resources Management Plan


                    protection measures. These measures                       and relative benefits and risks from es-
                    should be derived from a coordinated state-               tuarine and ocean discharge of municipal
                    federal marine water and air quality protec-              wastewater effluent
                    tion program for the Oregon Ocean                       0 A marine debris management program as
                    Stewardship Area. This coordinated state-                 part of Oregon's solid waste program
                    federal program should address the follow-                The Department of Environmental Quality
                    ing:                                                      should coordinate preparation of the
                  ï¿½ A coastal air quality monitoring program to               marine air and water quality program for
                    provide baseline data and information,                    Oregon.
                    define sensitive airsheds and develop air                 The Department of Fish and Wildlife
                    quality models to address potential impacts               should:
                    to surface and upper air from offshore and
                    onshore sources                                         0 Provide technical assistance during develop-
                  ï¿½ A marine water monitoring program to es-                  ment of a marine water quality protection
                    tablish baseline water quality data at key                program for the Oregon Ocean Stewardship
                    sites and provide additional data and infor-              Area
                    mation over time to ensure that Oregon's                0 Coordinate with the Department of En-
                    marine life and marine ecosystems are not                 vironmental Quality to establish baseline
                    being adversely affected by waste dischar-                sites to monitor marine water quality and
                    ges into estuaries or the ocean                           biologic communities
                  ï¿½ Marine water quality discharge and dump-                  The Department of Land Conservation and
                    ing standards to prevent degradation of                   Development should:
                    waters and sediments of Oregon's Ocean                    Assist coastal local governments to develop
                    Stewardship Area                                          land use policies and implementing
                  ï¿½ Better siting standards, backup facilities                measures to reduce marine pollution from
                    and emergency procedures for municipal                    upland sources
                    and industrial ocean outfalls to ensure that            0 Coordinate with local governments and
                    marine water quality, recreation areas,                   other state and federal agencies to plan for
                    shellfish harvest, research and critical                  and promote activities which increase
                    habitat areas are protected                               public awareness and information about
                  ï¿½ A research program to study the effects                   marine pollution and debris.






                                                                                                      Oil and Gas * 131


                    Oil and Gas

                Resources                                                 Oil and Gas Development Steps
                    Oregon's offshore geology is complex and                  Based on activities elsewhere, the following
                only generally understood. While the available            five steps are described as typical steps in
                geologic information indicates that several               developing offshore oil and gas resources.
                sedimentary basins exist off Oregon where oil             These steps assume two things: one, that the
                may be trapped, these basins are ill-defined.
                No "recoverable" deposits of oil and gas have
                ever been discovered off Oregon. More geologic
                information is needed to make better estimates
                of petroleum resources and location offshore
                Oregon.
                    In 1981 the U.S. Geological Survey (USGS)
                                                                                               G
                estimated 300 million barrels of oil and 1.5 tril-                         . .....
                lion cubic feet of gas on the Oregon-Washing-
                                                                                            VVILWAIPA         WAIS@+.
                ton Outer Continental Shelf. USGS believes
                there is a 50 per cent chance that at least 100
                million barrels of oil (at 42 gal./bbl) and 600 bil-
                lion cubic feet of gas would be recoverable. By
                comparison, a 1984 Minerals Management Ser-
                vice (MMS) report estimates that a total of 180
                million barrels of oil and 3.26 trillion cubic feet
                                                                                            A-;-roRLo-, eAst
                of gas lie within the entire planning area, of
                which a smaller amount is thought to be
                recoverable.                                                            Z@
                                                                                                         C
                    The world oil market has a great influence
                                                                                                 0
                on whether oil and gas off Oregon is worth
                recovering. MMS estimates that at $15.75/bbl,
                50 million barrels could be economically
                recovered off Oregon and Washington. At
                $32.50/bbl, double the price, 60 million barrels                                       1i    OPIE.
                could be recovered from the same area.


                                                                                      cz@a    RASIN
                Risks
                                                                                            J`
                    Exploration and development for oil and
                gas off the Oregon coast is still many years
                away, if ever. But already, Oregon is trying to
                anticipate the kinds of risks inherent in this                                            EASIN S
                kind of ocean activity. Because these risks vary
                                                                                                        RAM ARGA-
                according to the stage of exploration or develop-
                ment, these stages are discussed first. For
                more information, see the Interim Report.
                                                                                                               1q77






                 132 * Oregon's Ocean Resources Management Plan


                 oil industry has an interest in exploring and               would be the first opportunity for Oregon to
                 developing oil and gas off Oregon and, two, that            clearly apply state standards to regulate off-
                 a lease sale could ever be successfully held.               shore oil and gas activities in federal waters.
                     The first of these steps, seismic surveys,                  Fourth, should exploration confirm the
                 would usually come before a lease sale. The                 presence of commercial oil or gas deposits, a
                 second would be to obtain a lease from either               permanent production platform would be
                 federal or state government. The last three                 erected on the site and a number of wells
                 steps would come only after a lease sale and                drilled to determine the extent of the field.
                 would be focused on blocks leased by the com-               Major planning decisions would be made about
                 pany. Each step would increase the detail of in-            both offshore and onshore facilities. A plan of
                 formation available to a company, Minerals                  development (POD) would be required and
                 Management Service and Oregon.                              would be reviewed and approved by MMS,
                     First, prelease exploration would involve               several federal agencies and by affected states.
                 seismic survey vessels using acoustic signals to            An environmental impact statement (EIS)
                 obtain profiles of geologic structures down to              would be required for the first production plat-
                 several miles below the seafloor. In Oregon                 form in this Washington-Oregon frontier plan-
                 waters, these surveys would require a permit                ning area. Review of the POD and EIS would
                 from the Division of State Lands. In federal                provide an opportunity for Oregon to impose
                 waters, Oregon has no regulatory authority but              state regulatory standards on oil development
                 does have a Memorandum of Agreement with                    activities in federal waters.
                 MMS to coordinate these surveys with current                    Fifth, as an oil or gas field is developed,
                 fishing activity to avoid conflicts at sea.                 preparations would be made for production of
                     Second, a company would need to obtain a                crude oil and transportation to refining plants.
                 lease in order to drill for oil. If oil and gas             Oregon state agencies and local governments
                 leases were ever offered in state waters, the               would have the ability to regulate these on-
                 lease would be entered into by the State Land               shore facilities through the "consistency"
                 Board. In federal waters, the Department of                 provisions of the state's coastal management
                 the Interior Minerals Management Service is-                plan, local comprehensive land use plans and
                 sues leases after receiving bids. Oregon has                implementing ordinances.
                 limited influence on federal lease sale                     Effects of Offshore
                 decisions, as discussed below.                              Oil and Gas Development
                     Third, if a lease sale were held and a com-                 Offshore oil and gas development activities
                 pany successfully obtained a lease, mobile ex-              have the potential for a wide range of adverse
                 ploration rigs would be brought in to drill                 effects on the marine environment as well as
                 exploratory wells to determine whether oil is,              coastal communities.
                 in fact, present. These rigs range from special             0 Oil Spills
                 drill ships which anchor into position to huge                  The risks most associated with offshore oil
                 floating platforms with legs that jack to the               and gas development are from oil spills. While
                 seafloor. The exploration stage may take                    oil spills from offshore platforms are rare,
                 several years. Companies would need to submit               tanker accidents are far more frequent and can
                 a plan of exploration (POE) to MMS for review               be dramatic, such as in Prince William Sound,
                 and approval. Oregon would also review that                 Alaska. The volume of spilled oil is not neces-
                 POE and would require the POE to be "consis-                sarily the critical factor. A small event in the
                 tent" with provisions of the federally approved             wrong place at the wrong time, such as near a
                 Oregon Coastal Management Program. This                     critical seabird feeding area, has the potential






                                                                                                     Oil and Gas        133





























                    Offshore oil and gas platforms, pumping from as many as forty wells. ore sophisticated industrial
                facilities located in the marine enVronment. 7his one, off Long Beach, California, includes a processing
                platform to separate oil from natural gas and water before piping it to shore. (DLCD photo, 7983)

                to be worse than a large spill. Beyond the                of chlorides, hydrocarbons and gases. Air pollu-
                drama of the spill event, the effects of oil on           tion from diesel engines used to power offshore
                marine ecosystems life is varied and complex.             operations is a contaminant of concern off
                A spill forty miles at sea in winter may have             California.
                very different effects from a small spill in sum-         9 Disturbance and Noise
                mer near the mouth of an estuary. Similarly,                  Vessel and aircraft traffic can adversely af-
                the economic effects of an oil spill on coastal           fect marine mammal or seabird colonies, espe-
                communities will vary. In addition to large,              cially during breeding, nesting or pupping
                spectacular spills, chronic release of oil in             seasons. Likewise, noise from offshore plat-
                small amounts can contribute to degradation of            forms is a potential risk to seabirds and marine
                coastal waters.                                           mammals. Some coastal residents and visitors
                o Contaminants                                            may be adversely affected from these same
                    Contaminants result from offshore oil and             noise, aircraft or vessel activities in relation to
                gas development in several forms. Oil spills,             offshore development. The Ocean Plan recom-
                discussed above, are one kind. But others in-             mends that no oil and gas activities take place
                clude drilling muds and cuttings used to lubri-           within three miles of offshore rocks and is-
                cate the drill bit and flush cut rock chips to the        lands.
                surface. Formation waters (water trapped in               e Habitat Alteration or Removal
                sediments in the rock strata) have high levels                Drilling muds and cuttings (above) can





                134 * Oregon"s Ocean Resources Management Plan


               smother bottom dwelling communities of sea
               life near drilling operations. On soft sand or
               mud bottoms, subsurface pipeline installation
               results in short-term sediment mounds and
                                                                                                            T11"0QX HEAD
               trenches in swaths which can smother or
                                                                                                        v"%    '6LATSOP
               remove these organisms. Work on rocky or
               hard sediment bottoms requires blasting with                                 --------
                                                                                            5 - "@-- _w__
                                                                                             -T               --@'@"LAMOOK
               resultant removal of habitat.                                          711 U
                                                                                                              A.
                  Conflicts with other Users                                                                   D-DDK
                   There are two principal kinds of potential
               conflicts with ocean fisheries: space-use con-
               flicts where drilling or production activities
               take up ocean space from fisheries, and
               pipeline or subsea equipment conflicts with
               fishing gear. Both may have economic conse-
               quences for fishing operations. The Ocean
               Plan recommends that oil and gas activities
                                                                                                         HE @T
               be prohibited ftom important fishery areas                                       77m        -1
                                                                                                            'LINCOLN Col
               (see Ocean Fisheries policies).
                                                                                                                If
                  Onshore Impacts
                   Offshore oil and gas exploration and
               development operations can generate a num-
               ber of onshore impacts, depending on the                                                         LANE
                                                                                                  na
               phase of the operation, the location, and the
               size of the oil deposit. These impacts can have
               wide-reaching economic and environmental
               impacts in coastal communities. After a lease                          L-, -      Z     @.AEEDSPDRT
               sale, companies which begin exploration need                       -----               @T
               a range of onshore support facilities, includ-
                                                                                                       oAy
               ing docks for supply vessels, vessel repair
               yards, airfields for helicopters, storage areas
                                                                                      16                 5 - YEAR
               for drilling muds and equipment.                                       -              LEASING PROGRAM
                                                                                      1%           MID-1987 TO MID-1992
                   If oil is found, these support services
               would continue to be needed as platforms are                                          WASHINGTON - OREGON
                                                                                                         PLANNING AREA
               established and production wells drilled.                                                  EXPLANATION
                                                                                                           _y '98,
               Production of offshore oil would require a                                    fton oF
                                                                                                   U'S. DEPARTMENT OF THE INTERIOR
               means of transporting oil from the platform to                                      MINERALS MANAGEMENT SERVICE
                                                                                                        SUBAREA
               a refinery. Pipelines would be the likely
                                                                                                       DEFERRALS
               method of bring oil ashore to a marine ter-
               minal for short-term storage and transship-                                        r-"   HIGHLIGHTED
                                                                                                  LJ AREAS
                                                                                                              o















































               ment to processing. If transported by tanker,
               a number of risks arise from potential tanker
               accidents within or near the host estuary. If                                     BROO-G$/
               transported by pipeline from the marine ter-
               minal, impacts from the pipeline would ensue               OUTER CONTINENTAL     SHELF OF OREGON







                                                                                                      Oil and Gas * 135


                along its entire length.                                   whether from the state or the federal govern-
                Environmental Record of Offshore                           ment, there is tremendous financial and politi-
                Off and Gas Development                                    cal momentum to proceed to development and,
                                                                           if oil or gas is found, production. Oregon must
                    The environmental record of the U.S.                   make all key decisions about oil and gas
                petroleum and offshore oil development in-                 development before leasing, not after. An under-
                dustry is mixed and incomplete. Some facts are             standing of the leasing process is important to
                known and others have yet to be studied. Some              addressing Oregon's concerns.
                short term effects from oil and gas activities
                have been studied; some long term cumulative               State Oil and Gas Leasing
                effects have not been studied.                                 Within Oregon's three-mile territorial sea,
                    The oil industry points out that there have            the Division of State Lands (DSL) has
                been no major oil spills from offshore platforms           authority to enter into leases for oil and gas ex-
                in U.S. waters since the 1969 Santa Barbara                ploration and development. The DSL has never
                oil blowout. There are several reasons for this:           issued leases for oil and gas within the ter-
                improvements in drilling technology and proce-             ritorial sea.
                dures, tougher federal safety and pollution re-                The 1989 Oregon Legislature, following
                quirements and inspections in federal waters.              early recommendations of the Ocean Resources
                However, many smaller spills, less than 1000               Management Task Force, imposed a
                gallons each, occur each year related to off-              moratorium through 1995 on oil and gas ex-
                shore platform activity but are not included in            ploration and development within state waters.
                the environmental record of platforms in                   This plan recommends that Oregon prohibit oil
                federal waters.                                            and gas exploration and development within
                    Cumulative, long term environmental im-                the territorial sea and does not suggest a time
                pacts from offshore activities have not been               limit.
                well studied. The cumulative effects of small,             Federal OCS Leasing Program
                chronic oil spills is not known nor is their                   (Note: see also the Interim Report of the
                cumulative interaction with other discharges               Oregon Ocean Resources Management Task
                from "formation waters," (i.e. water which con-            Force, July 1, 1988, for a more detailed discus-
                tains hydrocarbons, heavy metals and salts                 sion of the federal OCS leasing program and
                which is pumped to the surface along with oil),            Oregon-Washington Lease Sale #132.)
                and the dumping of drilling muds and cuttings                  Beyond three miles, the federal govern-
                into the marine environment. However, studies              ment controls oil and gas leasing on the "outer
                in the Gulf of Mexico show significant changes             continental shelf'(OCS). The Outer Continen-
                in the composition and diversity of marine                 tal Shelf Lands Act gives the U.S. Department
                biotic communities in areas of chronic low-level           of the Interior authority and a mandate to
                pollution from hydrocarbons. Other "monitor-               lease for oil development on the outer continen-
                ing studies" are underway off Southern Califor-            tal shelf. Interior has prepared a five-year na-
                nia.                                                       tional OCS lease sale program for 1987-1992
                Management Issues                                          which includes Lease Sale #132 in April, 1992,
                    A principal concern of the State of Oregon             off Oregon and Washington.
                is the process by which areas of the public's                  The Oregon-Washington OCS Planning
                ocean are ]eased for private exploration and               Area extends from three miles seaward to well
                development. Leasing is the crucial step for               beyond the continental margin. It encompasses
                Oregon. Once a company obtains a lease,                    nearly 70,000 square miles or over 48 million






                  136 * Oregon's Ocean Resources Management Plan


                acres.                                                        Washington, affected Indian treaty tribes,
                9 Developing Oregon's Position                                and Interior is needed to make leasing
                    During 1985, 1986, and 1987, Oregon                       decisions in the Northwest
                Governors Atiyeh and Goldschmidt provided                 e Pacific Northwest OCS Task Force
                comments to Interior during preparation of the                In February, 1988, Governor Goldschmidt,
                1987-1992 lease sale program. Among other is-             Washington Governor Gardner requested then-
                sues, the governors requested that a number of            Secretary of the Interior Hodel to establish a
                areas be deleted from lease sale consideration            state-federal-tribal task force to resolve issues
                (see map), including:                                     related to OCS leasing in the Pacific
                  ï¿½ Areas deeper than 200 meters (600 feet),              Northwest. In January of 1989, Secretary
                    which is the edge of the continental shelf            Hodel agreed to establish the Pacific Northwest
                  ï¿½ The Heceta-Stonewall Banks complex and                OCS Task Force (PNWOCSTF) composed of
                    Coquille Banks                                        representatives of the Governors of the States
                                                                          of Oregon and Washington, the Northwest In-
                  ï¿½ Six mile buffers around the rocks and is-             dian Fisheries Commission, the Columbia
                    lands of the Oregon Island National                   River Intertribal Fish Commission, and the
                    Wildlife Refuge, the mouth of the Salmon              Department of the Interior Minerals Manage-
                    River and Cascade Head Natural Research               ment Service (MMS).
                    Area                                                      The PNWOCSTF is charged with preparing
                  ï¿½ Six mile buffers around the mouths of Coos            recommendations to the Secretary on a host of
                    Bay, Yaquina Bay, and the Columbia River              OCS leasing issues. As a priority, the Task
                    Only areas deeper than 900 meters were ac-            Force, through its technical and scientific ad-
                tually deferred. All other requested deferral             visory committee, is coordinating development
                areas, which total about 900 square miles, were           of regional plan and strategy for environmental
                "highlighted" for "special pre-sale considera-            studies. In February, 1990, the Task Force
                tion.,,                                                   recommended to the Secretary that Lease Sale
                    In addition, the governors expressed                  #132 be cancelled and any leasing decision
                several basic policies that Oregon would use in           deferred until needed environmental studies
                evaluating offshore leasing proposals:                    are completed and the results analysed. That
                                                                          may take seven to ten years. Eventually, the
                  ï¿½ Federal consistency with the requirements             PNWOCSTF may take up issues of which, if
                    of Oregon's Coastal Management Program                any, areas should be leased for oil and gas.
                  ï¿½ Goal 19, Ocean Resources, which gives                 9 Litigation
                    priority to use of renewable marine resour-               In March, 1988, Oregon joined a lawsuit
                    ces over nonrenewable and which requires              with Washington, other states and environmen-
                    that decisions be based on scientific infor-          tal organizations to challenge the 1987-1992
                    mation                                                OCS Lease Sale Program, in particular the ade-
                  ï¿½ Inadequate scientific information exists to           quacy of the Environmental Impact Statement.
                    determine potential environmental impacts             The plaintiffs argued that the Secretary should
                    from OCS leasing and development                      have considered alternatives to offshore leasing
                  ï¿½ Lease sales should be based on specific               such as energy conservation measures, that
                    areas of geologic potential rather than               there was no criteria for determining which
                    broad administrative units                            OCS areas were scheduled for leasing and
                  ï¿½ A regional coordinating group of Oregon,              which ones weren't, that the leasing areas
                                                                          should have been based on geologic rationale,






                                                                                                     Oil and Gas * 137



                 and that the EIS contained a flawed cost-                Task Force and the Pacific Northwest OCS
                 benefit analysis that undervalued costs to               Task Force that Lease Sale #132 be cancelled
                 many areas. The states lost almost every issue           and that environmental studies be conducted
                 in federal court.                                        before, not after, leasing decisions are made.
                 Congressional Moratoria                                  Public Concerns
                 on Offshore Leasing                                          Few issues so galvanize public concern as
                    Since 1983, Congress has used the annual              does the prospect of offshore oil and gas
                 budget process for the Department of the Inte-           development. Throughout the Ocean Plan
                 rior to impose "a moratora" on certain lease             process Oregonians consistently expressed
                 sales or any official planning step leading to           strong concerns for scenic and aesthetic
                 lease sales opposed by the public and states,            qualities, the ocean's immense biological
                 Moratorium language has been written into In-            productivity, significant ocean fisheries and
                 terior's appropriations bill aimed at areas off          degradation of Oregon's clean, healthy, marine
                 California, Florida, and areas in the Atlantic           environment. Oregonians asked tough ques-
                 Ocean to prohibit spending funds to plan for or          tions about the need to drill for oil in a sensi-
                 conduct OCS leasing activities. A number of              tive ocean area in the absence of a national
                 lease sales have been stalled for years through          energy policy.
                 this Congressional tactic. Because no lease sale         9 Lack of Information
                 activities were yet occuring off Oregon and                  Marine scientists and natural resource
                 Washington, Congressional appropriations lan-            agency staff agree that until much more is
                 guage requested by the states was aimed at               known about Oregon's marine environment,
                 conducting needed environmental studies and              Oregon should not make commitments to oil
                 establishing the Pacific Northwest OCS Task              and gas leasing, exploration, or development.
                 Force.                                                   Major information gaps must be filled with
                 Presidential Action Cancell-                             studies on ocean currents, exchanges with es-
                                                                          tuaries, marine ecology, fisheries, marine mam-
                 ing OCS Lease Sale # 132                                 mals, and seabirds. Even with additional
                     On June 26, 1990, President George Bush              information, these experts believe that living
                 announced the delay or cancellation of lease             marine resources virtually anywhere on the en-
                 sales off California and Florida which had been          tire continental margin could be at risk from
                 the focus of an OCS Task Force established by            offshore petroleum production.
                 the President in February, 1988. The Presi-                  Major information gaps and research needs
                 dent also announced that he was accepting a              are identified in the section on Research and In-
                 recommendation from Secretary of the Interior            formation Needs. A technical and scientific sub-
                 Manuel Lujan to cancel Lease Sale #132 for               committee of the Pacific Northwest OCS Task
                 Oregon and Washington, hold no lease sale                Force (see above) has recommended a program
                 until after the year 2000 and conduct a series           of environmental studies for the Oregon-
                 of` environmental studies over the next five to          Washington OCS Planning Area. These studies
                 seven years to provide the Pacific Northwest             would be carried out by the Minerals Manage-
                 OCS Task Force and the states with informa-              ment Service's OCS Environmental Studies
                 tion for future lease sale planning. This                Program. Even if funded consistently at ade-
                 Presidential action for the Pacific Northwest            quate levels, the recommended studies would
                 responded directly to the recommendations of             take seven to ten years to complete.
                 the Oregon Ocean Resources Management





                138 o Oregon's Ocean Resources Management Plan


                o Conflicts with Other Resources and                     Act requires that the OCS leasing program
                  Uses                                                   balance the need to find and develop domestic
                    The Oregon Ocean Stewardship Area, the               petroleum resources with environmental protec-
                continental margin, is an area of very high              tion and state coastal zone management needs.
                ecological, fishery, and aesthetic values, all           Oregon has sought to restore this balance by in-
                which are renewable. In this area are a host of          sisting on thorough environmental studies and
                existing uses such as fishing activities which           analysis before leasing decisions are made and
                take place year round throughout the entire              by insisting that the state must be a partner,
                                                                         not merely a respondent, in making crucial
                region, recreation along the shoreline and in            decisions about whether, where and when to
                nearshore waters, navigation and transport of            lease. In this way Oregon can ensure that en-
                goods, and aesthetic enjoyment. Marine mam-              vironmental, social, and economic considera-
                mals and seabirds depend on the entire Ocean             tions are adequately addressed to protect
                Stewardship Area for habitat. The benefits to            Oregon's ocean and coastal resources.
                Oregon and its coastal communities from the
                economic and social uses of these renewable              o National Energy Policy
                resources appear to outweigh benefits from oil               Oregonians are fully aware that the debate
                and gas development. Oil and gas development             over offshore oil and gas goes well beyond pos-
                in this Oregon Ocean Stewardship Area would              sible effects to the Oregon coast and ocean.
                jeopardize resources and uses in both federal            Oregonians are not willing to risk valued ocean
                and state waters.                                        resources for a few days worth of petroleum
                o Onshore Issues                                         especially when the federal government has not
                   If ever permitted, offshore oil and gas ex-           moved decisively to require more fuel efficient
                ploration and development would bring a new              cars and appliances. The simple question is
                industrial use to the Oregon coast. Several is-          asked: Why risk drilling in Oregon's sensitive
                sues would arise from onshore impacts. Actual            and productive ocean area when alternatives
                shore facilities such as docks, marine ter-              easily available to the Nation could yield even
                minals, and supply yards would probably be lo-           more energy? Oregon made this question
                cated at one of three deep-draft development             central to the lawsuit challenging the Five-
                estuaries; Coos Bay, Yaquina Bay, or Columbia            Year OCS Lease Sale Program (above) and in
                River. Even in these ports, issues of oil spills         discussions with the Secretary of the Interior
                within the estuary, air pollution, noise, aircraft       on canceling Lease Sale #132 while the Pacific
                                                                         Northwest OCS Task Force and MMS conduct
                traffic and space-use conflicts with fishing ves-        additional studies.
                sels would be raised and need resolution. Local
                comprehensive plans and implementing or-                 Conclusions
                dinances, along with some state agency per-
                mits, would guide decisions about shore                  and Recommendations
                facilities related to offshore development.                  Oregon has declared, as a statewide plan-
                o A Balanced National Program                            ning policy, a legislative policy and a policy of
                   Oregon has been concerned that the nation-            this Ocean Plan, that renewable ocean resour-
                al OCS leasing program has strayed from its              ces must have priority over nonrenewable
                mandate for a balanced approach to leasing               resources. Therefore, coastal and ocean renew-
                and instead has followed a political mandate to          able resources and their uses must be protected
                open vast areas off the Nation's coast to in-            from adverse effects from offshore oil and gas
                dustry with only minimal attention to                    exploration and development.
                "balance." The Outer Continental Shelf Lands                 Oregon is committed to a thoughtful






                                                                                                       Oil and Gas * 139


                response to oil and gas issues. The 1987                   tegrated into the federal process. Oregon's Con-
                Oregon Ocean Resources Management Act and                  gressional delegation should continue to sup-
                this Ocean Plan were designed by the Legisla-              port and promote this state-federal
                ture to be major components of that response.              coordination through both budget and program
                Through the Act and the process of preparing               actions.
                this plan, Oregon has considered the entire                    At present, postponing, preventing, or shap-
                range of ocean resources and uses affecting the            ing a lease sale in federal waters is largely a
                coast, articulated its overall ocean resources             function of state-federal negotiation and politi-
                values, expressed its priorities for ocean                 cal leverage through the Congressional delega-
                resource use, and developed policies for future            tion. Oregon prefers that OCS leasing decisions
                ocean management.                                          be made through a state-federal process that
                    Oregon has assessed available scientific in-           fully considers state coastal management
                formation and concluded that renewable resour-             responsibilities and is based on thorough inven-
                ces throughout the entire Ocean Stewardship                tories of coastal and ocean resources and condi-
                Area would be at risk from offshore oil and gas            tions, tough assessments of the risks and
                development. Resources and uses within the                 benefits and consideration of alternatives to
                state's territorial sea, including seabirds and            OCS leasing.
                marine mammals and their habitats, beaches                     Alternatives to offshore leasing exist and
                and other recreation areas, important fishery              must be fully utilized before turning to sensi-
                areas for commercial and recreational fishing,             tive ocean areas. Oregon's ocean and coastal
                and estuaries, are especially vulnerable to ad-            resources and values need not be jeopardized
                verse effects.                                             by failure of the federal government to develop
                    Within its own territorial sea, Oregon can             those alternatives.
                control whether or not oil and gas exploration                 The goal of the Oregon Ocean Plan is to
                and development take place. The Oregon Legis-              protect its coast and ocean resources from ad-
                lature has imposed a moratorium through 1995               verse effects of offshore oil and gas exploration
                on oil and gas activities in state waters. In              and development.
                federal waters, Oregon has limited ability to in-
                fluence federal leasing decisions and must as-             Recommended Policies:
                sert its ocean policies in a variety of forums to          In State Waters:
                affect lease sale decisions.                               1. Prohibit oil and gas exploration and develop-
                    A fundamental difference exists between                    ment within the state territorial sea.
                the mandate of the U.S. Department of the In-              Note:
                terior to lease for offshore oil and gas develop-
                nient and the goals and policies of Oregon's                   After the Task Force adopted this policy
                coastal and ocean resources management                     recommendation, the 1989 Oregon Legislature
                programs. It is essential that Oregon coor-                enacted a six-year moratorium on any oil and
                dinate with MMS on offshore oil and gas issues             gas leasing within state waters as part of
                especially in preliminary, prelease environmen-            Senate Bill 1152.
                tal studies and planning work. The Pacific                 Minority position:
                Northwest OCS Task Force is the primary                        Consider petroleum exploration and
                vehicle for this coordination. It provides a               development activities that do not adversely af-
                forum and mechanism whereby the goals and                  fect the ecological integrity and beneficial uses
                policies of the Oregon Ocean Resources                     of marine waters within the state territorial
                Management Program can be effectively in-                  sea. Inventories on inshore and continental





                  140 9 Oregon's Ocean Resources Management Plan


                shelf areas to develop a better understanding of               lished
                resources and potential impacts would also be                  Special management areas identified in the
                allowed under this policy.                                     Oregon Ocean Resources Management
                In Federal Waters:                                             Plan as needing protection from oil and gas
                1.   Call upon the Secretary of the Interior to can-           activities are not offered for lease, includ-
                     cel Lease Sale #132.                                      ing important fishery areas listed under
                2.   Oppose any federal lease sale for the                     Ocean Fisheries
                     Washington-Oregon OCS Planning Area                    0  An oil spill prevention and response plan
                     until at least the following conditions are               for the Oregon coast has been developed on
                     met to the satisfaction of the Oregon Ocean               an interagency basis and adopted by the
                     Policy Advisory Council:                                  U.S. Coast Guard and the Oregon Depart-
                  ï¿½  Any lease sale is made part of a balanced                 ment of Environmental Quality
                     national energy program. This program                  0  Damage assessment standards and
                     must require conservation of energy and                   protocols have been approved by the
                     consider alternatives to development of oil               Oregon Department of Fish and Wildlife,
                     and gas resources in environmentally sensi-               the U.S. Fish and Wildlife Service and
                     tive OCS frontier areas                                   other responsible agencies
                  ï¿½  The rights of Pacific Northwest Indian                 0  A compensation program has been estab-
                     Tribes are considered and fully protected in              lished to compensate the state and other
                     all decisions concerning OCS leasing in the               ocean users for a range of costs, including
                     region                                                    cleanup, loss of gear, loss of resources and
                  ï¿½  Environmental studies that the Oregon                     opportunities
                     Ocean Policy Advisory Council agrees are              3.  Participate in the Pacific Northwest OCS
                     necessary for prelease decisions are con-                 Task Force.
                     ducted and the results analyzed, fully con-           4.  Call upon the Congress to review and revise
                     sidered, and made available for all parties               the Outer Continental Shelf Lands Act.
                  ï¿½  State environmental standards are met. No                 Revisions should result in an OCS oil and
                     degradation will be allowed which would                   gas program that is part of a national ener-
                     jeopardize the ecological integrity or benefi-            gy policy that requires conservation, a
                     cial uses of marine waters affecting the                  management regime that gives priority con-
                     Oregon coast                                              sideration to renewable resources over non-
                  ï¿½  Onshore economic, social and regulatory im-               renewable, and includes coastal states as
                     pacts on local communities and govern-                    full partners in all OCS management
                     ments are fully considered and appropriate                decisions.
                     monitoring and mitigation programs estab-





                                                                                                          Oil Spills * 141

                     Oil Spills
                 Resources                                                 crease the risk of a catastrophic oil spill. The in-
                     Numerous resources could be affected by a             creased port and offshore activity associated
                 coastal oil spill, including significant and exten-       with oil development and production will also
                 sive intertidal and estuarine habitats; near-             increase the likelihood of minor or chronic
                 shore fish spawning areas; coastal bird and               spills. The risks to Oregon's environment over-
                 marine mammal colonies; many endangered or                all will be significantly increased.
                 threatened organisms; wildlife sanctuaries;                   Vigilance and strict enforcement of existing
                 parks and beaches; and the livelihoods of many            laws can help prevent spills. As the Exxon Val-
                 Oregonians who depend on fishing and tourism.             dez incident pointed out, however, present sys-
                     The rugged, picturesque Oregon coastline              tems are inadequate to deal with a catastrophic
                 is world famous. But the dynamic natural for-             spill. Efforts are underway at all levels of
                 ces that attract so many tourists to the coast in-        government to reduce the risk of oil spills. Alas-
                 crease the chances of a catastrophic spill and            ka, British Columbia, Washington, Oregon,
                 decrease the chances of an effective response             and California are all implementing legislation
                 and cleanup. Strong winter storms are com-                designed to address the problem. The four
                 mon. Navigation is treacherous at all times.              states have formed a task force with British
                 Shipwreck sites are too numerous to count. Ex-            Columbia to address inteijurisdictional oil spill
                 perts agree that containing a spill on the                issues.
                 Oregon coast would be difficult under the best                Private industry is also taking actions to
                 of circumstances. In a winter storm, it would be          reduce the risks of oil spills. For example, the
                 impossible.                                               American Petroleum Institute (API) recently
                     Oregon is currently ill-prepared to respond           announced that it will establish a Petroleum In-
                 to a major oil spill, regardless of its source or         dustry Response Organization (PIRO) consist-
                 location. Existing contingency plans provide a            ing of a Headquarters Group in Washington,
                 framework for responding to spills and identify           D.C., and five Regional Centers. One of the
                 sensitive resources in some key areas, but ac-            centers will be located in Seattle, with support
                 tual response resources are woefully inade-               facilities located in Portland. Regional Centers
                 quate.                                                    will have all the equipment and expertise neces-
                                                                           sary to respond to a spill of 216,000 barrels of
                 Risks                                                     oil (9,000,000 gallons).
                     Substantial oil tanker traffic already exists             All experts agree that prevention of spills is
                 off the Oregon coast. Most of the large tankers           the only way to significantly reduce the risk to
                 are destined for California. However, medium-             the environment. Once large amounts of oil are
                 sized tankers regularly ply the Columbia River            on the water, present technology cannot ade-
                 and make occasional calls in Coos Bay.                    quately protect natural resources. A number of
                 Medium-sized tankers carry enough petroleum               prevention alternatives are being considered,
                 products to cause a catastrophic spill. In addi-          including double-hulled tankers, tanker rout-
                 tion, all large ocean-going vessels carry more            ing patterns, vessel tracking systems, in-
                 than enough oil to foul many miles of Oregon's            creased staffing and training of tanker crews,
                 coastline and devastate sensitive areas.                  more rigorous inspections of equipment, man-
                     Oil and gas exploration and development in            datory contingency plans, and regular oil spill
                 the Washington and Oregon OCS will only in-               response exercises. Oil spill prevention must be
                                                                           the top policy priority for Oregon.





                142 * Oregon's Ocean Resources Management Plan


                Management Issues                                        ocean shoreline has been addressed in such a
                                                                         plan. The 1989 Oregon Legislature enacted
                Vulnerability to a Coastal Spill                         Senate Bill 1039, which directs DEQ to develop
                    Quick action, the availability of materials          an oil spill response plan for the coastal waters
                and expertise, and the existence of a spill con-         of Oregon by mid-1991. This includes the coast,
                tingency plan for Yaquina Bay have all been              the Columbia River to Bonneville, and the Wil-
                given partial credit for the relatively low level        lamette to Willamette Falls. SB 1039 specifical-
                of damage resulting from the Blue Magpie spill           ly requires DEQ to work with volunteer groups,
                of November 1983. The Blue Magpie spill is the           affected local, state, and federal agencies, and
                only major oil spill to occur to date on the             adjacent states to develop the plan.
                Oregon coast.                                                The coastal spill response plan will contain
                    Oregon's three deep draft development es-            the following components:
                tuaries-the Columbia River, the Yaquina Bay,              0 Computerized maps and information about
                and Coos Bay-have all been addressed in spill                the waters of the state, showing: fish and
                contingency plans. However, none of Oregon's
                  Oregon's Spill Regulations

                    Regulations
                    State regulations for spill containment and con-     over the oil shall collect and remove the oil immedi-
                trol presently appear to be adequate. State law          ately, or if that is not feasible, shall contain, treat,
                makes it illegal for any quantity of oil that would      and disperse the oil. If immediate action is not
                produce a sheen to enter the waters of the state         taken, DEQ may contract for cleanup and may
                from a ship or any on- or offshore facility. ORS also    recover up to three times its cost to do so.
                states that any person owning or having control

                    Spill Response
                    Part of the Oregon Emergency Operations Plan         munications, agency responsibilities, and resource
                is concerned with oil spills. Annex 0 of the plan,       protection.
                Oregon's Oil and Hazardous Material Emergency                Oregon, Washington, Alaska, and Idaho, are
                Response Plan, outlines the authorities, respon-         members of the Environmental Protection Agency's
                sibilities, command structure, and notification proce-   Region 10 Regional Response Team (RRT). The
                dures for all such spills in Oregon. This plan is        RRT predominantly serves to coordinate the spill
                complemented by spill response contingency plans         response activities of thirteen federal agencies that
                for Oregon's three deep draft development es-            make up the rest of the team.
                tuaries: the Columbia River, Yaquina Bay, and
                Coos Bay. These contingency plans address com-

                    Coordination
                    Annex 0 addresses the major coordination con-        Now known as the States-B.C Oil Spill Task Force,
                cerns that are likely to arise in response to an oil     the group is addressing several interstate and inter-
                spill. In the event of a spill on the Columbia River,    national spill response coordination issues that
                the responsibilities of Oregon and Washington offi-      arise in the course of a spill. The purpose of the
                cials are described in both Annex 0 and in the           task force is to "...enhance existing means of
                Columbia River spill contingency plan. Both states       prevention and explore new ones, research and im-
                are members of the Regional Response Team,               plement means of financial recovery for both the
                which itself provides for coordination among agen-       province and the state[s], and establish ongoing
                cies in the event of a spill.                            technology sharing." The Task Force's work is en-
                    Early in 1989, in response to the Nestucca acci-     tirely independent of the federal response teams.
                dent and spill, British Columbia and Washington              Oregon and Washington have applied for a
                met to address trans-boundary spill response is-         Coastal Zone Management Act (CZMA) Section 309
                sues. Oregon and Alaska were invited to participate      Grant to implement the recommendations of the
                after the March 1989 Exxon Valdez spill, and Califor-    States-B.C. Oil Spill Task Force. The proposal iden-
                nia has monitored the Task Force's discussions.          tifies three issues - the use of dispersants, oiled





                                                                                                                       Oil Spills * 143


                       wildlife habitats, shoreline sensitivity,                         the spill, coordinate with Washington and
                       refuges and sanctuaries, recreational                             California, assess damages, and recover
                       facilities, areas of economic importance,                         costs.
                       water intakes and discharges, and access                          In addition, the plan will attempt to ad-
                       points for responders.                                       dress the following issues:
                   ï¿½   Identification of the resources most vul-                    Prevention
                       nerable to spilled oil, a scheme for prioritiz-                   Prevention will be a key element in
                       ing them for protection, and possible                        Oregon's spill control strategy. The extreme dif-
                       protection methods.                                          ficulty of containing oil once it is spilled in the
                   ï¿½   An index of potential emergency spill                        ocean means that prevention must be the
                       response workers and equipment, including                    state's first line of defense. Existing state and
                       sites for possible disposal of oiled debris.                 federal regulations will be examined along with
                   ï¿½   A strategy to evaluate the spill, notify                     the States/B.C. Task Force Recommendations
                       response personnel, contain and clean up                     to determine what steps Oregon can take to




                  debris disposal, and volunteer management - that                  Oregon's own spill response contingency planning
                  the states intend to address in concert. California               efforts would benefit greatly from the grant work.
                  and Alaska have both been invited to participate.

                       Damage Assessment
                       Oregon law establishes the state's authority to              shown, however, that it is difficult to agree on a
                  assess natural resource damages from a spill.                     monetary value for something that has no defined
                  Authority for damage assessment now rests jointly                 market value. In addition, it is nearly impossible to
                  with the Oregon Department of Fish and Wildlife                   identify all of the natural resource losses from a
                  and the Oregon Department of Environmental                        spill. In practice, the expense of identifying losses
                  Quality.                                                          has usually exceeded the cost of the damaged
                       Oregon has not adopted a systematic method                   resources.
                  for assessing natural resource damages resulting                       Newer damage assessment methods base the
                  from a spill. In an emergency, Oregon would probab-               calculation of damages on the amount and type of
                  ly use the traditional approach to damage assess-                 oil spilled and the types of habitats impacted.
                  ment, which attempts to place a monetary value on
                  the organisms lost in a spill. Case after case has
                       Liability and compensation:
                       Section 301c of the federal Comprehensive En-                limits to a spiller's liability for damages resulting
                  vironmental Response, Compensation, and Liability                 from a spill, the extent of a spillers liability might be
                  Act of 1980 (CERCLA) provides authority for the                   established by federal law (see also the discussion
                  state to recover damages for injuries to natural                  below).
                  resources, including the reasonable costs of assess-                   In 1989 the Oregon Legislature enacted SB
                  ing such damages.                                                 1038, which establishes financial assurance require-
                       Oregon law provides that a party responsible                 ments for ships that transport oil and hazardous
                  for injury, contamination, or destruction of fish or              materials in Oregon waters. It also enacted 1-113
                  wildlife or associated habitat is strictly liable for the         3493, which imposes civil penalties on anyone who
                  value of the fish or wildlife and for all costs of restor-        intentionally or negligently discharges oil into
                  ing fish and wildlife production and habitat in the               Oregon waters. Penalty amounts are to be deter-
                  areas affected by a spill.                                        mined by the Director of the DEQ after consulting
                       In Oregon, a spiller is strictly liable for damages          with the Director of ODFW. Penalties are to be paid
                  to persons or property without regard to fault.                   into an Oil Spillage Control Fund, from which ap-
                  Damages to natural resources are not explicitly in-               propriations may be made by DEQ to advance the
                  cluded in the law. Since Oregon law neither directly              costs of spill cleanup and fish and wildlife rehabilita-
                  establishes limits nor specifies that there are no                tion.





                 144     Oregon's Ocean Resources Management Plan










                                                                                                                AW








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                                        R

                                                  tl@ 7











                                                                         Je





                    The November 1983 wreck of the freighter Blue Magpie at Yaquina Bay demonstrated that
                Oregon's coast is vulnerable to oil spills from many sources. Cleanup crews worked with shovels and
                plastic bogs to scrape oil off the beach. (DLCD photo, 1983)

                prevent spills. Spill planners will work closely          the best available technology. Consequently,
                with the Oregon Congressional delegation to en-           resources have simply not been available to
                sure that pending legislation provides better             fully address the use of volunteers at a spill.
                standards and enforcement.                                   What should volunteers do? Who is liable
                Volunteer Monagement                                      for injuries to volunteers while they are work-
                    The cleanup of nearly every coastal oil spill         ing at a spill? Are facilities available to shelter
                in recent years has been assisted by concerned            the volunteers? Who is in charge? Oregon's
                citizens numbering into the hundreds. Rarely              coastal oil spill response plan will result in lists
                are there facilities and expertise immediately            of both volunteers and the issues surrounding
                available to properly use the concerned crowds.           their management. The CZMA Section 309
                In addition, most who show up to help need spe-           grant should allow the state to develop
                cial training to do what many of them want to             guidelines for managing volunteers. Additional
                do, which is to care for oiled birds and wildlife.        work will be necessary to effectively implement
                Most spill response planning efforts focus on             those guidelines, and to make citizen volun-
                how to protect environmental resources with





                                                                                                                Oil Spills * 145


                 teers a valuable component of Oregon's                        spillers can be held liable for damages to the en-
                 response to a coastal oil spill.                              vironment. Damages to lives and property are
                 Dispersant Guidelines                                         addressed in Oregon law, but the limits of a
                     Under certain conditions, substances that                 spiller's liability for damages to the environ-
                 break up an oil slick into small particles that               ment are not specifically addressed in state
                 sink can be used in the very early stages of the              law. If any limits on liability are established by
                 response to a spill. Some experts maintain that               state or federal law, or agreed to in internation-
                 dispersants provide a safe and effective way to               al protocols to which the United States is a sig-
                 respond to a spill. However, the effect of using              natory, they must be high enough to cover
                 a dispersant can be as damaging to fish and                   resource damages, the assessment of such
                 wildlife as the spill itself.                                 damages, and the costs of restoration. Rules
                                                                               must be developed.
                     The decision to use dispersants must be                   Wildlife Rehabilitation
                 made quickly. Ideally, guidelines for making a
                 dispersant decision are clear, and the informa-                   The rehabilitation of oiled wildlife is al-
                 tion necessary to make the decision is immedi-                ways a key issue in any major spill response.
                 ately available to the spill response team.                   Efforts must be made to help injured wildlife.
                     Dispersant use has been addressed in state                The public's attention will be focused in this
                 laws and rules in the past. The DEQ may                       area, and many people will volunteer to assist
                 authorize the use of oil dispersants in a spill               in caring for oiled wildlife. Potential rehabilita-
                 response emergency. However, the guidelines                   tion centers must be identified, necessary
                 used to determine the appropriateness of dis-                 equipment must be obtained, emergency proce-
                 persant use are now dated. Under the old                      dures must be developed, and a cadre of volun-
                 guidelines, the opportunity to use dispersants                teers must be organized and trained.
                 will have passed by the time the necessary in-                    At the present time, Oregon has no or-
                 formation is gathered and a decision is made.                 ganized rehabilitation program and no
                 New guidelinesmust be prepared.                               mechanism for implementing a major oiled
                                                                               wildlife rescue and rehabilitation effort. Plan-
                 Damage Assessment                                             ning efforts must address this issue.
                     Two issues related to oil spills are how to               Debris Disposal
                 assess the damage to living resources and the                     Mountains of oiled debris are the inevitable
                 environment, and how to assign value to the
                 damaged or destroyed resources. Both are                      aftermath of a major spill. Disposal of this
                 necessary for eqitable settlement of claims                   debris presents communities with difficult
                 against the responsible party. Oregon does not                decisions. Advance preparations can facilitate
                 have an agreed-upon method to determine the                   the disposal process and overcome potential
                 extent of natural resource damage from a spill.               barriers. All alternatives need to be critically
                 Nor has it adopted a method for assigning                     examined, and appropriate decisions regarding
                 value to damaged resources. Consequently, as-                 methods, needed permits and variances, and ac-
                 sessment and evaluation efforts could double                  ceptable sites need to be made.
                 the cost of spill response. It could also leave the               Interstate cooperation may be critical.
                 state's determination of damages vulnerable to                Therefore, agreements need to be developed
                 legal challenges. A new methodology inust be                  before a crisis occurs. Oregon has not sys-
                 developed.                                                    tematically studied the disposal of oily debris.
                 Liability for Damages                                         Planning efforts must focus on the problem.
                     An associated issue is the extent to which





                   146 * Oregon's Ocean Resources Management Plan


                   Vessel Safety                                                  Coast Guard to require double-hulled vessels
                       The United States Coast Guard in charged                   for petroleum transport in U.S. waters. There
                   with setting and enforcing safety standards for                is strong evidence that double hulls could sig-
                   all vessels, including tankers, and for estab-                 nificantly reduce but not eliminate, the risk of
                   lishing vessel traffic control systems in areas of             spilled oil from tanker accidents. Implementing
                   congested vessel activity, like San Francisco                  such a requirement will take time and intema-
                   Bay. The Exxon Valdez oil spill in March, 1989,                tional cooperation.
                   reignited a move within the Congress for the


                     Federal Oil Spill Issues

                       As with many other natural resource issues,                cumscribed by federal laws. Federal oil spill issues
                   state laws operate within a context that is clearly cir-       that are important to Oregon include the following:

                       Spill Response Planning
                       In October, 1989, the U.S. General Accounting              most significant issue is that no single authority is
                   Office released a report on Coast Guard Adequacy               designated to ensure that oil spill contingency plan-
                   of Preparation and Response to Exxon Valdez Oil                ning preparations are adequate. U.S. Coast Guard
                   Spill (GAO/RCED-90-44). The report identifies                  officials the absence of such authority is "...the most
                   several issues and offers some items that might be             significant limiting factor in the contingency planning
                   considered for Congressional action. Among the                 process."

                       Oil Spill Ualbillity
                       At present, a patchwork of federal laws pertain            tion laws do not limit a spiller's liability. The Senate
                   to oil spills. While there is general recognition that         has not wanted to preempt state no-limit liability
                   comprehensive legislation is needed to more ade-               laws, while the House has wanted to override state
                   quately address liability and compensation for spills,         liability provisions.
                   Congress has been stuck for fifteen years on the                    In 1989 the House and Senate finally came to
                   issue of whether to preempt state liability limits.            agreement on preemption, and both houses passed
                       Since 1975 the U.S. Congress has tried to pass             bills that do not preempt state liability laws. Issues
                   comprehensive oil spill liability legislation. Common          the conference committee needs to address in 1990
                   wisdom held that a catastrophic spill was necessary            are whether to mandate double hulls on oil tankers,
                   to settle differences between the Senate and the               and whether to implement international oil spill
                   House. As expected, the March 1989 Exxon Valdez                protocols. (The House would require double hulls im-
                   spill appears to have broken the deadlock.                     mediately and require implementation of internation-
                       At issue has been whether federal laws should              al protocols. The Senate would wait for another
                   preempt state laws that establish financial respon-            study on double hulls, and would not implement in-
                   sibilities for spill cleanup and compensation. At least        ternational protocols.) Differences over the interna-
                   17 of the 24 states that have liability and compensa-          tional protocols are concerned, again, with the
                                                                                  liability limits that can be established by the states.

                       Cleanup Costs
                       Of the four federal laws that address oil spills,          Exxon Valdez spill, the fund had only $4 million.
                   the Clean Water Act is the most comprehensive.                 The size of the fund was a factor in the Coast
                   However, a revolving fund it established to pay                Guard's decision not to take over spill cleanup ef-
                   cleanup and restoration costs beyond a spiller's               forts. Exxon had far more money than did the Coast
                   liability is severely underfunded. At the time of the          Guard to manage spill response.

                       Establishing Liability
                       At present, federal law requires proof of gross            feel that the potential for punitive damages could
                   negligence, rather than mere negligence, to estab-             motivate spill response and cleanup efforts. V*
                   lish liability for spill damages. In addition, damages
                   at present do not include punitive damages; some






                                                                                                        Oil Spills * 147


                 Conclusions and                                          6.  Insist that federal laws be changed to clearly
                 Recommendations                                              remove all limitations on the liability of
                                                                              any party responsible for spilling oil or haz-
                     Every effort must be made to prevent oil                 ardous materials into the waters of the
                 spills from occuring in Oregon's coastal and                 state.
                 ocean waters.                                            7.  Coordinate with other coastal states to en-
                     Despite preventive measures, Oregon must                 courage the U.S. Congress to designate the
                 plan for a coastal oil spill that would over-                U.S. Coast Guard as the sole federal agen-
                 whelm every available means for immediate                    cy with authority to review industry spill
                 response.                                                    prevention and response plans for ade-
                     Oregon is preparing a coastal oil spill                  quacy.
                 response contingency plan to protect sensitive           9.  Oregon's coastal oil spill prevention and
                 resources and address critical oil spill issues.             response plan shall be a part of the state's
                     Oregon is a participant in a regional oil                territorial sea plan.
                 spill task force that also includes the states of        NeededActions.
                 Washington and Alaska and the Province of                0 The Department of Environmental Quality
                 British Columbia.
                                                                              should work with other state agencies, ad-
                 Recommended Policies                                         jacent states, federal agencies, industry rep-
                 1.  Emphasize strategies to prevent spills from              resentatives, and Oregonians to:
                     occuring in Oregon waters.                            0  Update existing spill contingency plans,
                 2.  Commit sufficient resources to maintain ongo-            and develop spill contingency plans for all
                     ing spill planning activities so that plans              the remaining estuaries and the entire
                     can be updated, expanded, and exercised on               Oregon coastline.
                     a continual basis.                                    0  Ensure that oil spill contingency plans iden-
                 3.  Promote efforts within industry to assure                tify spill prevention strategies.
                     that oil spill -response equip-ment and               0  Identify opportunities to establish wildlife
                     trained cleanup personnel will be available              rehabilitation centers on short notice in the
                     to respond immediately to a spill during                 event of a spill.
                     any activity involving petroleum produc-              0  Identify methods to manage volunteers
                     tion or transport in Oregon waters.                      who want to assist in oil spill cleanup ef-
                 4.  Emphasize the importance of policies and                 forts.
                     strategies for dealing with wildlife                  0  Identify the means for disposing of oily
                     rehabilitation, oiled debris disposal, volun-            debris from the cleanup of an oil spill.
                     teer management, damage assessment, and
                     dispersant use.                                       0  Develop a policy for the use of dispersants
                 5.  Ensure that any party engaging in petroleum              and other oil reactive agents. If the policy
                     exploration, production, storage, or                     allows their use, adopt a clear protocol or
                     transport in or near Oregon waters shall                 guidelines to govern their use in an emer-
                     develop and acquire approval from the ap-                gency spill response.
                     propriate authority for oil spill contingency         0  Develop a comprehensive damage assess-
                     plans. The foremost plan element shall                   ment strategy so that a value can be placed
                     demonstrate that all possible steps have                 on damaged natural resources; appropriate
                     been taken to prevent spills from occurring.             fees or fines can be assessed; and suitable
                                                                              restoration measures can be taken.






                148 * Oregon's Ocean Resources Management Plan


                    Damage assessment work must also                          sitivity to spilled oil, and guidelines for
                    develop realistic criteria to be used to deter-           various cleanup techniques.
                    mine when a site has been sufficiently                    The Territorial Sea Plan should also in-
                    cleaned up.                                               clude policies and standards for oil spill con-
                 ï¿½  Seek continuous funding for contingency                   tingency plan requirements, the use of
                    plan development, updating, and exercising.               dispersants, liability limits, damage assess-
                 ï¿½  Seek commitment from industry to develop                  ment, and compensation, that are enforce-
                    and maintain necessary response                           able in Oregon waters.
                    capabilities.                                         El  With the assistance of the Attorney
                    The Ocean Policy Advisory Council should:                 General, the Ocean Policy Advisory Council
                                                                              should:
                 0  Incorporate major elements of the coastal
                    oil spill prevention and response plan into            0  Investigate the need, feasibility, and
                    the territorial sea plan. These elements in-              legality of requiring bonding to engage in
                    clude a site specific inventory of shoreline,             offshore oil and gas exploration and
                    estuarine, and intertidal areas, their sen-               development.






                                                                                                 Marine Minerals 9 149


                     Marine Minerals

                 Resources                                                  Gold was recovered from the beach at Gold
                     Significant mineral resources may exist in             Beach and Whiskey Run, north of Bandon,
                 both state and federal waters off Oregon's                 from the mid-1800s until the early twentieth
                 coast. Concentrations of chromium, titanium,               century. During World War II some 450,000
                 garnet, gold, and other precious "black sand"              tons of raw chromite-rich sands were mined
                 minerals are found off the southern Oregon                 from terrace deposits north of Bandon which
                 coast as placer deposits on the ocean floor.               eventually yielded about 52,000 tons of con-
                 Titanium-rich sands occur on beaches along                 centrated black sands, of which 37-39 percent
                 the entire Oregon coast. Some gravel deposits              was chromite. These upland deposits are
                 also exist. Polymetallic sulfide mineral deposits          thought to be similar to offshore deposits.
                 with iron, lead, copper and zinc may exist in                  Oregon's offshore placer mineral deposits
                 the Gorda Ridge area in deep water nearly 100              are discussed more fully in the Oregon Ocean
                 miles off Cape Blanco.                                     Book and the Task Force's Interim Report sum-
                     The Oregon Department of Geology and                   mer, 1988.
                 Mineral Industries (DOGMI) has published                   Risks
                 Mineral Resources Map, Offshore Oregon (GMS-               Environmental Considerations
                 37) which locates and describes the mineral
                 resources offshore Oregon.                                     Because the locations of these surface black
                                                                            sand deposits are fairly well known, it is pos-
                 Black Sand Placer Deposits                                 sible to begin to describe the biologic resources
                     The black sands deposits off Cape Blanco               and environmental conditions which must be
                 and the Rogue River are of highest interest at             considered if Oregon ever chooses to allow com-
                 present. These deposits appear to be con-                  mercial mineral exploration or development.
                 centrated in areas where the water is less than            The-two largest known areas of possible placer
                 100 meters deep. They lie within both state                deposits are located off the southern Oregon
                 and federal waters and have been sampled only              coast. One stretches from Cape Sebastian
                 on the surface of the ocean floor. No core                 north past the Rogue River from nearshore
                 samples have been taken to determine thick-                seaward of Rogue Reef. The other is off the tip
                 ness or composition. A program of limited core             of Cape Blanco on the north side of Blanco Reef.
                 sampling to determine deposit thickness to                     Within or adjacent to these areas are a
                 about thirty meters is planned for fall, 1990 by           diversity of living marine resources and other
                 a joint state-federal task force (see below).              ocean uses. The rocks and islands of the Rogue
                     Placer deposits were created by repeated               Reef, Orford Reef and Blanco Reef and other
                 sorting and reworking of sediments flushed                 rocks nearer shore are within the Oregon Is-
                 from the ancestral Siskiyou Mountains. Wave                lands National Wildlife Refuge. All provide im-
                 action and longshore ocean currents carried                portant habitat for seabirds and marine
                 away lighter sand grains and left concentra-               mammals and many are listed in this Ocean
                 tions of the heavier grains at various locations           Plan as sensitive bird and mammal habitat.
                 along the coast. This process was apparently               Several rocks in Rogue and Orford Reefs are
                 repeated several times at successive sea levels            critical pupping and rearing areas for the
                 since the last ice age.                                    Northern Sea Lion, now listed by the U.S. Fish
                     These deposits occur on beaches and                    and Wildlife Service as a threatened species.
                 uplifted coastal terraces of the Oregon coast.                 The combination of submerged rocks and


































                                                                                                                      -tuft


















                                                                                   see',             bgUe RLM FAd





                                                                                    0




              Heavy Mineral Samples
             Measured as a Percent of Sand Fraction                                                                                  '4"
                                         +30%
                                                                                                                       Cape Fermro
                            :21% - 30%                                                                                     0    0
                            :11% - 20%
                               6%          10%
                                1%           5%
                       Map Scale 1:405,000







                                                                                             Marine Minerals & 151


                reefs with sandy and muddy bottoms within                 mouth of the Rogue River. This towboat lane is
                this area provides rich, varied habitat for fish          used by towboats pulling barges along the coast
                and shellfish. Many of these species are com-             and results from an agreement between tow-
                mercially important including Dungeness crab,             boat operators and the crab fishing industry to
                pink shrimp, sea urchins, petrale, English and            establish towboat lanes to avoid crab gear los-
                Dover sole, lingeod, and several species of rock-         ses. Off Cape Blanco, this towboat lane passes
                fish. Coho and Chinook salmon stocks from the             several miles seaward of the known placer
                Elk, Sixes, Rogue and other rivers to the south           deposit areas.
                pass through these areas as seagoing smolts               Needed Research
                and again as returning adults.                                The marine environment off the southern
                    Strong summer winds produce significant               Oregon coast is not well studied. Major re-
                upwelling along the southern Oregon coast.                search is needed on environmental conditions,
                This upwelling brings cold, nutrient-rich                 ecology of marine life, and the mineral deposits.
                waters to the surface which provides food for                 Ocean circulation in this region is virtually
                phytoplankton blooming in the strong summer               unstudied. Upwelling and the effects of Cape
                sunlight. The oceanic environment is therefore            Blanco on the flow of nearshore and offshore
                highly productive.                                        ocean currents are not well known. Bottom cur-
                Existing Ocean Users                                      rents, both longshore and cross-shelf, need to
                    From late spring through the summer a sig-            be studied. The action of storms which stir sedi-
                nificant recreational and commercial Coho and             ments from the bottom and other seasonal tur-
                Chinook salmon fishery is centered on the                 bidity factors need further research.
                region from Cape Blanco to Cape Sebastian.                    Biological studies of bottom dwelling crea-
                This fishery is highly managed by the Pacific             tures which live in sediments both in and near
                Fishery Management Council and any addition-              mineral areas are needed. The use of these
                al management considerations posed by marine              areas as spawning or nursery areas for fish
                mineral operations will undoubtedly be con-               species needs to be known. The activities of
                troversial.                                               marine mammals and seabirds and use of food
                    Other commercial fisheries exist at various           sources in the region must be more fully under-
                times throughout the year in the region. These            stood.
                include crabbing, groundfish and mid-water                    The mineral deposits themseves need fur-
                trawling. The exact location of these fisheries           ther study to determine size, thickness, and
                varies but most use the areas of placer deposits          mineral composition. Other geologic factors
                at one time or another. A sea urchin fishery tar-         also need study including thickness and com-
                gets the submerged rocks of Rogue, Orford and             position of unwanted sediments and stability of
                Blanco Reefs. Important Fishery Areas are                 surrounding sediments.
                identified in the Ocean Fisheries section and in-             No comprehensive research program has
                clude Rogue Canyon, Coquille Bank, and areas              been prepared to guide field studies and re-
                off Cape Blanco. This Plan recommends that                search to ensure that a balance of information
                nonrenewable resource use be prohibited in                is obtained. Two recent studies will provide a
                these areas.                                              basis for such a research plan: Management of
                    Navigation is principal existing use of the           Living Marine Resources, A Research Plan for
                ocean in some areas where placer deposits                 the Washington and Oregon Continental Mar-
                exist. A two mile-wide towboat lane passes                gin, November, 1989, Oregon Department of
                directly over an area of major black sand con-            Fish and Wildlife, and An Assessment of En-
                centration about three to four miles off the              vironmental and Biological Impacts of Placer






                 152 9 Oregon's Ocean Resources Management Plan


                 Mining on the Southern Oregon Coast, Oregon                 tion contracts. Because of unresolved issues
                 State University College of Oceanography for                and lack of information related to marine
                 the state-federal placer task force. Additional             minerals, DSL has agreed with the recommen-
                 research needs are identified in this plan in the           dations of this Plan to defer consideration of
                 section on Ocean Research and Information.                  any commercial exploration for at least five
                 Management Concerns                                         years.
                                                                                 Even if exploration contracts were to be is-
                 State Regulations for Minerals                              sued, current law makes it clear that DSL can-
                     Just as the state is in the beginning stages            not go beyond exploration contracts until
                 of leaming about offshore minerals, so too is               several key steps are taken. First, new legisla-
                 the state beginning to fully consider the kinds             tion would be necessary to build an appropriate
                 of laws and regulations that would be neces-                regulatory regime. Second, the State Land
                 sary to protect renewable marine resources.                 Board could only approve mineral mining
                     Many questions remain unanswered about                  which is consistent with an adopted manage-
                 mineral deposits, environmental conditions,                 ment plan for Oregon's territorial sea. Third,
                 and effects of exploration and development. As              proposals for leasing must be reviewed and ap-
                 these questions are answered, Oregon will be                proved against the requirements of Goal 19 for
                 able to better determine the quality and quan-              which administrative rules have not been
                 tity of the minerals, whether mineral develop-              developed by the Department of Land Conser-
                 ment is appropriate, and if so, what regulations            vation and development.
                 are needed. Oregon should proceed cautiously,               e Goal 19
                 insuring that the regulatory framework                          Statewide Planning Goal 19, Ocean Resour-
                 developed provides effective public controls                ces, requires that scientific inventory informa-
                 over all phases of private mineral activities.              tion must be used to assess effects from
                   Senate Bill 606: Exploration Contracts                    proposed actions. Administrative rules are
                     1987 Senate Bill 606 (now ORS 274.611-                  needed to spell out the requirements of such an
                 .640) allows, but does not require, the Division            inventory and effects assessment for all phases
                 of State Lands (DSL) to enter into exploration              of marine mineral exploration and develop-
                 contracts with private companies to explore for             ment. When adopted by Land Conservation
                 minerals. Meant to encourage limited industry               and Development Commission, these rules will
                 exploration for minerals in order to increase               provide a yardstick for interagency review of
                 the state's information base, the law requires              proposals for exploration contracts and other
                 that all information be released to the state. If           private mineral activities.
                 DSL were to consider entering into exploration              Federal Marine Mineral Program
                 contracts, the law requires DSL to make exten-                  The U.S. Department of the Interior has
                 sive determinations under ORS 274.760 about                 jurisdiction over mineral leasing, exploration
                 environmental impacts from exploration. In ad-              and development activities in federal waters
                 dition, DSL would have to make an assessment                beyond the state's three-mile territorial sea.
                 of environmental and socio-economic effects of              The Minerals Management Service (MMS) ad-
                 exploration under Statewide Planning Goal 19,               ministers the federal marine mineral program
                 Ocean Resources, prior to any exploration con-              under provisions of the Outer Continental
                 tract.                                                      Shelf Lands Act (OCSLA) and has adopted
                     DSL has not entered into any exploration                regulations for mineral leasing and for mineral
                 contracts and has not adopted any administra-               exploration and development.
                 tive rules or regulations for considering explora-              MMS has not offered any leases for placer






                                                                                               Marine Minerals 9 153


                minerals off Oregon. In 1984, MMS announced               Oregon Continental Margin by Nick Wetzel
                its intention to bold a lease sale on the Gorda           and Scott Stebbins of the U.S. Bureau of Mines.
                Ridge for polyrnetallic sulfide minerals. That                The placer task force coordinated a field
                lease sale was cancelled after the Environmen-            program of limited core sampling in fall, 1990,
                tal Impact Statement revealed that this                   off Cape Blanco and the Rogue River to obtain
                proposal was premature and unwarranted.                   more information about the thickness and com-
                     Coastal states, environmental organiza-              position of deposits. Biologic and oceanographic
                tions and private industry have long com-                 studies were carried out at the same time.
                plained that the OCSLA is designed to meet                Results of this program will provide the State
                the needs of the offshore oil and gas industry            of Oregon, MMS, and the public with better in-
                and is not suited to marine mineral needs.                formation on mineral deposits and environmen-
                These groups have advocated that Congress                 tal considerations off the south coast.
                pass new laws more appropriate to the uncer-              Public Concerns
                tainties and risks of marine mineral explora-                Varied Public Perspectives
                tion and development.
                State-Federcil Task Forces                                    Oregonians differ on the issue of marine
                                                                          minerals. Many oppose marine minerals ex-
                     In 1984, in response to Interior's proposal          ploration and development altogether. Others
                for a lease sale on Gorda Ridge, Oregon agreed            want better information but are concerned that
                to join California and the MMS in a technical             exploration by industry would inevitably lead
                task force to examine scientific and technical            to commercial mining. Some would support
                implications of a lease sale on Gorda Ridge. A            commercial exploration with proper environ-
                team of scientists subsequently conducted                 mental restrictions. Most support university
                several annual summer research dives on the               and government research programs, although
                Gorda Ridge and concluded that leasing was                these are chronically short of adequate re-
                premature. The MMS has officially terminated              search funds.
                its leasing process.                                          Some are concerned that minerals informa-
                     In late 1988, a state-federal placer task            tion will outstrip biologic and environmental in-
                force was formed by Oregon and MMS to assess              formation and that the state will be
                existing information and examine technical is-            overwhelmed by momentum to proceed with
                sues related to placer mineral deposits off               development. Others point out that Oregon has
                Oregon. That task force has released three                existing controls but must enact others, includ-
                reports through the Oregon Department of                  ing the clear ability to completely stop the
                Geology and Mineral Industries:                           process at any time.
                     An Assessment of Environmental and                      Lack of Information
                Biological Impacts of Placer Mining on the                    Oregon must have a great deal more infor-
                Southern Oregon Coast, by Susan Ross, Oregon              mation before making any decisions about
                State University College of Oceanography.                 whether or not marine mineral development
                     Preliminary Evaluation of Heavy Mineral              would be in the best interests of the state, local
                Content of Continental Shelf Placer Deposits off          communities and the ocean environment. At
                Cape Blanco, Rogue River, and Umpqua River                present there is not enough biologic,
                by LaVerne Kulm and Curt Peterson, Oregon                 oceanographic, or geologic information avail-
                State University College of Oceanography.                 able to fully assess risks and benefits. In filling
                     A Preliminary Economic Appraisal of Poten-           these information gaps, Oregon must obtain a
                tial Heavy Mineral Placer Deposits Along the              balance of information about biologic resources
                                                                          and environmental conditions as well as






               154 9 Oregon's Ocean Resources Management Plan


               marine minerals. Information should be suffi.-          State-Federal Placer Task Force might obtain
               cient to allow Oregon to prescribe permit               additional information about marine placer
               terms, conditions and stipulations on all phases        deposits which could set off a "gold rush" that
               of commercial mineral activities.                       Oregon could not control and which would lead
               o Environmental Impacts                                 inevitably to mining. These members felt that
                   Coastal residents, local governments, and           any field research, even if conducted by agency
               state and federal agencies are concerned about          scientists and universities, should be cancelled
               potential adverse impacts from marine mineral           outright as premature or postponed until a com-
               mining, These impacts could be minor and tem-           prehensive research program could be prepared
               porary or they could be major and long-lasting.         which balanced environmental with mineral in-
               Impacts depend on a variety of factors: the size,       formation.
               location, and timing of mining operations, the              This minority position was retained even
               dynamics of the ocean in the operations area,           after the majority of the Task Force agreed to
               the physical setting and mineral characteristics        prohibit any commercial exploration contracts
               of the deposits and the nature and value of the         until additional environmental and mineral in-
               marine resources in the affected area.                  formation was acquired to allow state and
                   It is possible that commercial fishing or           federal agencies to make a decision about
               crabbing could be temporarily disrupted. Fish           whether or not commercial exploration was
               habitat in the mining area may be altered.              desirable or possible. The minority remained
               Marine mammals could be affected by noise               convinced that Oregon should not condone
               and disturbance. Mining excavations could               publicly funded academic research to gain more
               modify wave approach to the shoreline and               information about marine minerals and the
               cause erosion of beaches and cliffs. These pos-         marine environment even when all results
               sible effects require that Oregon proceed               were made available to the public.
               cautiously.                                             Minority Position B: Encourage
               o Continued State-Federal Coordination                  Commercial Exploration
                   Oregon must also be mindful of federal                  Several Task Force members argued that
               government interests in these same black sand           Oregon should not only allow public research
               deposits adjacent to Oregon's territorial sea           but should encourage commercial exploration
               boundary. Because exploration or mining in              under the conditions outlined by existing state
               these areas could directly affect Oregon's ocean        law, Senate Bill 606. These members felt that
               resources, state and federal agencies must              the Task Force bad an obligation to prepare a
               cooperate to ensure that programs are com-              plan which would carry out Legislative policy
               patible. Such efforts, already begun with the           to "encourge ocean resources development
               current state-federal placer task force, will           which is environmentally sound and economi-
               need to continue to ensure a coordinated                cally beneficial". This minority argued that ad-
                                                                       ditional information is needed to gauge both
               cautious, marine mineral program for both               the environmental or economic aspects of
               state and federal waters.                               marine mineral development and that without
               Spectrum of Positions                                   the participation of industry, no real assess-
               Minority Position A: No Further Re-                     ment of either would occur. Industry will not
               search                                                  commit resources to exploration off Oregon if in-
                   A minority of Task Force members                    centives, such as the "preference righVin exist-
               reflected the views of some concerned citizens          ing state law, are not provided. These members
               that research planned for Fall, 1990, by the            felt that the majority Task Force policy also
                                                                       contradicts another legislative policy to






                                                                                           Marine Minerals e 155


               "promote research and development of new, in-           minerals. The territorial sea plan should also
               novative marine technologies for exploration            include a comprehensive framework research
               and utilization of ocean resources."                    program for marine minerals and related
               Majority Position: Public Research                Will  biologic and environmental factors.
               Help Build Information Base                                 The state should not enter into exploration
                   The majority of the Task Force felt that            contracts with private industry under current
               scientific research funded by public agencies is        law for at least five years enabling state agen-
               needed to obtain information upon which to              cies and the public to obtain better information
               base future decisions. The majority reasoned            through public means, refine policies and to
               that Oregon has sufficient safeguards to                develop regulations. In addition, no commercial
               preclude a headlong rush to commercial                  exploration contracts should be permitted until
               development of mineral resources if publicly            the law is amended to make clear that an ex-
               funded field research indicates significant             ploration contract does not obligate the state in
               mineral resources. The majority was convinced           any way to enter into mineral leases even if the
               that while it is premature for Oregon to enter          company wishes to convert an exploration per-
               into commercial exploration contracts with in-          mit to a lease. Oregon must be able to stop the
               dustry, additional fundamental information is           process completely after a commercial explora-
               desirable and should be obtained through                tion permit.
               academic and agency scientists. This additional             Certain areas should be off limits to com-
               information will allow Oregon to decide                 mercial mineral exploration and development.
               whether to enter into any commercial explora-           These include Important Fishery Areas iden-
               tion contracts, and if so, where, when and how.         tified in the Ocean Fisheries section, and areas
               The majority also felt that Oregon should not,          within three miles of sensitive offshore rocks
               as public policy, oppose or prohibit public             and islands as identified in the secion on
               academic research and scientific inquiry mere-          Marine Birds and Mammals.
               ly because of speculation about how the infor-              Oregon should continue to coordinate with
               niation might be used. The majority also noted          federal agencies on marine minerals and en-
               that the public research will allow Oregon to           vironmental research and should seek a strong
               keep pace with federal agencies interested in           state role managing all marine mineral resour-
               marine mineral resources in federal waters ad-          ces off Oregon. New federal legislation is re-
               jacent to Oregon.                                       quired to establish a federal marine minerals
               Conclusions                                             regime compatible with the goals and policies
               and Recommendations                                     of this Oregon Ocean Resources Management
                                                                       Plan.
                   Oregon needs additional information on              Recommended Policies
               marine mineral deposits and environmental
               conditions even before making decisions about           1.  Prohibit commercial exploration contracts
               commercial exploration. Oregon should con-                  under Senate Bill 606 (ORS 274.611-640)
               tinue a cautious, step-wise approach to develop             for at least five years.
               marine minerals policies and gather informa-            2.  Amend ORS 274.611-640 to clarify that an ex-
               tion without committing the state to future                 ploration contract neither confers
               mineral development.                                        proprietary rights to any minerals found
                   Oregon should use the process of preparing              nor obligates the state to proceed with any
               a plan for Oregon's territorial sea to refine and           steps toward mineral leasing or develop-
               clarify policies and programs on marine                     ment.





                 156 9 Oregon's Ocean Resources Management Plan


                3.   Clarify and refine state marine mineral               above:
                     policies in the territorial sea plan.                     a. Encourage academic and public agency
                4.   Include in the territorial sea plan a research        scientific research to characterize both marine
                     plan for academic and public agency re-               mineral resources and nearby biologic com-
                     search related to marine minerals, environ-           munities and environmental conditions within
                     mental conditions, biologic resources and             a comprehensive research program that is
                     socio-economic conditions.                            designed to determine the costs and benefits of
                5.   Require an inventory and effects assessment           marine mineral mining.
                     under Statewide Planning Goal 19, Ocean                   b. Prohibit all academic, public and private
                     Resources, prior to any commercial explora-           agency scientific research or exploration that is
                     tion contracts and require that the                   not consistent with the comprehensive research
                     proposed exploration plan, if approved by             program for marine minerals.
                     appropriate state and federal agencies, con-          Needed Actions
                     tains necessary terms, conditions and                 0   Oregon's plan for the territorial sea should:
                     stipulations to avoid adverse impacts from              0 Include a research plan for marine
                     exploration activities.                                   minerals, related environment and biologi-
                6.   As called for in the section on Marine Birds              cal resources, and socio-economic condi-
                     and Mammals, prohibit exploration and                     tions to guide academic and public agency
                     development of marine minerals within                     scientific research
                     three miles of all nearshore rocks and is-
                     lands until Oregon completes a plan for the             0 Include policies and criteria for future state
                     territorial sea which includes an evaluation              administrative rules related to commercial
                     of the sensitivity of specific marine bird                exploration of marine mineral areas
                     and mammal populations and their                        0 Delineate areas where more public re-
                     habitats and provides specific protection                 search is needed, where future commercial
                     measures. During this plan preparation                    exploration, if any, should be focused, and
                     and evaluation period, academic and public                where other marine resources and uses
                     agency scientific research related to marine              should be protected from mineral-related
                     minerals will be allowed within three miles               activities
                     of the nearshore rocks and islands if the             0   The Oregon Legislature should amend ORS
                     Oregon Department of Fish and Wildlife                    274.611-640 to clarify that an exploration
                     determines that these activities will not ad-             contract neither confers proprietary rights
                     versely affect sensitive marine bird or mam-              to any minerals found nor obligates the
                     mal populations or their habitats.                        state to proceed with any steps toward
                7. Prohibit commercial mineral exploration and                 mineral leasing or development.
                     development in Important Fishery Areas as             0   The Division of State Lands should:
                     identified in the Ocean Plan.                           0 Take appropriate action to make clear that
                8. Use the adopted policies of the Oregon Ocean                ORS 274.611-640 will not be implemented
                     Resources Management Plan to coordinate                   for at least five years and until the law is
                     all state and federal marine mineral ac-                  clarified
                     tivities.
                                                                             0 If administrative rules are prepared to
                Minority Position                                              carry out ORS 274.611-640, provide for a
                     A minority of the Task Force recommend                    Project Review Panel with the Department
                that the following substitute for Policy #4,                   of Fish and Wildlife as lead agency to






                                                                                         Marine Minerals * 157


                   review and approve an inventory and en-            Minority Position
                   vironmental affects assessment under Goal              A minority of the Task Force recommend
                   19, Ocean Resources                                the following Needed Actions:
              0    The Department of Land Conservation and                a. The Division of State Lands, in coopera-
                   Development should prepare administra-             tion with the Oregon Department of Fish and
                   tive rules to carry out Statewide Planning         Wildlife and Department of Geology and
                   Goal 19, Ocean Resources, including rules          Mineral Industries, should develop a com-
                   for an inventory and effects assessment.           prehensive research plan for academic and
              0    The Governor should work with the Con-             public agencies to characterize marine mineral
                   gress to pass legislation for a new national       resources and nearby biologic communities and
                   marine minerals regime which requires              environmental conditions to determine the
                   coordination with state ocean resources            costs and benefits of marine mineral develop-
                   programs and encourages evaluation of              ment.
                   marine mineral resources without prema-                b. The state should postpone the proposed
                   turely committing public resources to              minerals research program scheduled for sum-
                   private development.                               mer, 1990, until a comprehensive research pro-
                                                                      gram is adopted.






           158 9 Oregon's Ocean Resources Management Plan

























                                                                                               0
                                                                                               i






           Geffoing the Work
                      Done



           Tools for Governing             161

           Information and
           Education                       181

           Citizen Involvement             185

           Research                        189






1

1











                                              159






           160 * Oregon's Ocean Resources Management Plan






                                                                                Tools for Governing 9 161









                                                              Tools for Governing

                                                                                 Territorial Sea Plan
                                                                  Ocean Policy Advisory Council
                                                                             Project Review Panels
                                                                      Coastal Local Governments
                                                                           State Agency Programs
                                                                            Interstate Coordination
                                                                         State-Federal Partnership




             T
                   he 1987 Oregon Legislature took a visionary step toward ensuring the long-
                    erm conservation of Oregon's ocean resources. It established the Oregon
             Ocean Resources Management Task Force and charged it with preparing a plan for
             managing ocean uses and resources. The Legislature asked for two kinds of recom-
             mendations; those for conserving and protecting ocean resources and those needed
             to improve Oregon's ocean management capability. In so doing, the Legislature
             recognized that merely completing a plan will not be enough. Oregon will need to
             build an ocean management structure to carry out the plan, to update the plan to
             keep it current, and to amend it to meet new needs.


                 The Ocean Resources Management Plan             need to take to meet its ocean resource manage-
             provides Oregon with a blueprint for building       ment responsibilities.
             an ocean management program. This section              Governance refers to the ways in which the
             describes the parts and the steps Oregon will       State of Oregon will organize to make complex






                 162 # Oregon's Ocean Resources Management Plan


                and sensitive decisions about ocean resources.             tion and with adjacent states, to insure effec-
                Governance recognizes that ocean stewardship               tive participation in federal agency planning
                and conservation of ocean resources involves               and management of ocean resources and uses
                                                                           which may affect this state, and to coordinate
                the interests, concerns, and knowledge of many             state agency management of ocean resources
                diverse groups. Citizens, local governments, in-           with local government management of coas-
                terest groups, marine scientists, the fishing in-          tal shorelands and resources.
                dustry, state and federal agencies, the                     The Legislature required that the Ocean
                Governor and the Legislature must all be                Resources Management Plan include recom-
                linked in a comprehensive management                    mendations "for a permanent ocean resources
                framework.                                              planning and management process..." as well
                    In the past, Oregon has not had a                   as recommendations on other aspects of ocean
                framework for ocean governance. Many agen-              governance.
                cies, groups and individuals had interests in               Oregon should take the following steps to
                ocean resources but there was no structure to           improve its ocean governance capability:
                bring them all together.                                  0 Prepare a more detailed plan for Oregon's
                    One of the principal purposes of the Oregon             territorial sea
                Ocean Resources Management Act was to im-                 0 Establish an ongoing Ocean Policy Ad-
                prove the management of ocean resources of in-              visory Council
                terest and concern to Oregon. The Legislature             0 Convene Project Review Panels
                recognized that sound management requires a
                system of governance so that all interested par-          0 Strengthen local government participation
                ties can effectively participate. The Legislature         0 Improve state agency programs
                found that                                                0 Coordinate with adjacent coastal states
                   It is important that the State of Oregon               0 Work with federal agencies to build a co-
                   develop and maintain a program of ocean
                   resources management to promote and insure               management approach to ocean resource
                   coordinated management of living and non-                management
                   living marine resources within statejurisdic-






                                                                                           Tools for Governing e 163

                    The Territorial Sea Plan
                Legislative Charge                                            volved in resolving more specific planning
                    The 1987 Oregon Legislature anticipated a                 issues in the territorial sea. This is especial-
                second phase in Oregon's ocean planning which                 ly true of the public which is keenly inter-
                would focused on the three-mile territorial sea.              ested in ocean issues.
                The Oregon Ocean Resources Management Act                  0  Third, state agencies involved in ocean
                (ORS 196) required that the State Land Board                  resources management are just beginning
                adopt a more specific plan for "management of                 to forge a coordinated consultation process
                the resources and uses of the submerged and                   for sound integrated decision-making. The
                submersible lands of state territorial sea consis-            experience gained in developing the ocean
                tent with ... the policies and recommendations of             plan will be highly valuable in developing
                the Oregon Ocean Resources Management                         the territorial sea plan.
                Plan." The territorial sea plan was required to            0  Fourth, the legislative deadline for plan
                be completed by July 1, 1991 and will become                  completion does not allow sufficient time to
                "the basis for rules to be adopted by the                     gather additional information, discuss and
                Division of State Lands."                                     resolve issues and prepare more specific
                Rethinking the Plan                                           recommendations.
                    In 1987, legislators and others expected                  Legislation will be necessary to amend the
                that the Oregon Ocean Resources Management                 specific requirements of ORS 196, related to
                Plan would contain more detail and specific                the territorial sea plan.
                recommendations for the entire ocean planning              Plan Topics
                area than has, in fact, been possible with the in-            Some of the topics which the territorial sea
                formation available, time, and resources al-               plan should address are:
                lotted. Preparation of a management plan for
                the territorial seabed for adoption by the State           Marine birds and mammal
                Land Board was expected to have been a rela-               habitat areas
                tively simple process based on the specifica-                 A territorial sea plan would provide a sig-
                tions in the ocean plan.                                   nificant opportunity to improve protection of
                    After developing this ocean plan, Oregon               sensitive marine bird and mammal populations
                must now take the "next step" in ocean plan-               and to develop management programs tailored
                ning and prepare a more specific plan for the              to the needs of each site. The planning process
                territorial sea. However, this plan must now be            should refine criteria, document and analyze in-
                thought of more broadly than envisioned in                 formation, and develop site-specific measures.
                1987 for several major reasons:                               The Department of Fish and Wildlife
                  ï¿½ First, the most controversial issues concern           should be the lead agency and work with U.S.
                    resources and uses nearsbore and have                  Fish and Wildlife Service and National Marine
                    been resolved only at the broad policy level.          Fisheries Service. These agencies should coor-
                    More detailed information is needed to sup-            dinate with fishermen, Sea Grant Marine Ex-
                    port discussion and negotiation of manage-             tension Agents, local governments, and citizens.
                    ment proposals for specific sites.                     Intertidal areas
                  ï¿½ Second, a wide range of participants and in-           (Intertidal Marine Gardens)
                    terested parties must continue to be in-                  The territorial sea plan process should






                164 * Oregon's Ocean Resources Management Plan


                begin with the list of sites identified in the            denied access to the site. The Ocean Plan does
                Ocean Resources Management Plan to develop                not address this issue in any detail. The ter-
                a program for marine gardens. The plan should             ritorial sea plan process should go further and
                address public information and education                  lay out the groundrules for state policy.
                needs as a major component of a marine gar-                   The Division of State Lands, as the
                dens program.                                             proprietor of the seabed, and the Department
                    The Department of Fish and Wildlife                   of Fish and Wildlife should be the lead agencies
                should be the lead agency and work with the               on this issue.
                Park and Recreation Department, Division of               Artificial Reefs
                State Lands, OSU Sea Grant, local govern-                     The Ocean Plan does not address issues
                ments, and citizens.                                      pertaining to artificial reefs. The territorial sea
                Off spffl response                                        plan is an opportunity for Oregon to seek addi-
                    Key elements of Oregon's coastal oil spill            tional information and develop policy to guide
                plan being developed by the Department of En-             requests for placement of reefs.
                vironmental Quality should be included in the                 The Department of Fish and Wildlife
                territorial sea plan. These include, at a mini-           should be the lead agency with the fishing in-
                mum, a site specific inventory of shoreline, es-          dustry, local governments and the Division of
                tuarine, and intertidal areas, their sensitivity          State Lands key participants.
                to spilled oil and the preferences or limitations
                of various clean up techniques.                           Recreation and Cultural Resources
                    The territorial sea plan should also include              The territorial sea plan should address in-
                enforceable policies and standards for oil spill          water recreational needs and limitations in
                contingency plan requirements, use of disper-             Oregon's nearshore areas as well an overview
                sants liability limits, damage assessment and             of all coastal recreational opportunities and
                compensation within Oregon waters. The                    needs. The plan is an opportunity for the state
                Department of Environmental Quality is the                Parks and Recreation Department, local
                lead agency for a coastal oil spill prevention            governments, and the public to make a more
                and response plan.                                        precise assessment about the need for and loca-
                                                                          tion of marine parks and development of other
                Marine Water and Air Quality                              coastal recreation resources while protecting
                    The territorial sea plan should address               the shoreline environment.
                specific marine water and air quality needs, in-          Dredged Material Disposal
                cluding such issues as water quality standards,               Dredged material disposal is regulated by
                baseline and monitoring programs, and coor-               federal permits through the U.S. Army Corps
                dination with federal agencies. The Depart-               of Engineers at designated ocean dump sites.
                ment of Environmental is the lead agency for              The territorial sea plan should review the ade-
                marine water and air quality issues.                      quacy of siting criteria and dumping practices,
                Leases for Cultivating or Harvesting                      determine whether those sites should be desig-
                Marine Plants and Animals                                 nated by the state and make recommendations
                    Whether Oregon ought to enter into leases             for state agency policy.
                for cultivating or harvesting marine plants and               The Division of State Lands, Department of
                animals on the ocean floor may be questions in-           Fish and Wildlife, Department of Land Conser-
                creasingly raised in the coming years. Leases             vation and Development, Department of En-
                convey certain benefits to some ocean users               vironmental Quality and U.S. Army Corps of
                and may result in some loss to others who are






                                                                                            Tools for Governing * 165


                 Engineers should be main participants on this             Commission as part of Oregon's Coastal
                 issue.                                                    Management Program.
                 Marine Minerals                                           Conclusions
                    The territorial sea plan should include a                  The Ocean Resources Management Plan
                 framework research plan to guide study and re-            completes the first phase of scoping issues,
                 search needs for marine mineral decisions.                gathering information, developing policies and
                    The Division of State Lands and Depart-                identifying needed actions within the 200-mile
                 ment of Fish and Wildlife would be co-leads on            U.S. Exclusive Economic Zone off Oregon.
                 work related to marine minerals. Other state                  Oregon needs to continue its ocean plan-
                 and federal agencies and local governments                ning program to focus on the state's territorial
                 would also participate.                                   sea. Within this critical area of state control,
                 Preparing the Plan                                        few issues have in-depth treatment. Several
                    The territorial sea planning process should            major issues must be resolved for uses, resour-
                 be viewed as a continuation of the work begun             ces, and specific areas within Oregon's three-
                 by the Ocean Resources Management Plan. All               mile territorial sea.
                 participants in the ocean resources manage-               Recommendations
                 ment planning process should be provided with             1.  Oregon should prepare a management plan
                 clear opportunities to participate in the ter-                for the state's territorial sea based on the
                 ritorial sea plan process. The proposed Ocean                 needs and recommendations of this Ocean
                 Policy Advisory Council is an appropriate                     Resources Management Plan.
                 forum for ensuring that the plan is developed
                 through an interdisciplinary, interjurisdiction-          2.  The proposed Ocean Policy Advisory Council
                 al, public process.                                           should coordinate preparation of the ter-
                    A number of difficult and complex issues                   ritorial sea plan and should continue the in-
                 should be addressed by the territorial sea plan.              terdisciplinary, interagency, public process
                 The original statutory deadline of July 1, 1991,              begun during preparation of the Ocean
                 does not leave sufficient time to resolve sensi-              Resources Management Plan.
                 tive issues and agree to workable plan ele-               3.  The 1991 Oregon Legislature should:
                 ments. Solutions will require careful work                 0  Establish the Ocean Policy Advisory Coun-
                 among several state, local, and federal agen-                 cil, as proposed
                 cies, interests groups, and the public. Legisla-           0  Amend state law to broaden the scope and
                 tion is needed to amend state law to provide                  extend the preparation time for the ter-
                 additional time.                                              ritorial sea plan
                 Status of the Plan                                         0  Provide budget support to the plan process
                    The territorial sea plan should be adopted                 to ensure citizen involvement, public educa-
                 by the Land Conservation and Development                      tion, and state agency participation






                166 9 Oregon's Ocean Resources Managment Plan

                   The Ocean Policy Advisory Council
               Legislative Charge                                        visory committee and, if necessary, other ad-
                   The Oregon Ocean Resources Management                 visory committees would provide advice and as-
               Act requires the Ocean Plan to contain recom-             sistance.
               mendations concerning a permanent ocean                       An advisory body will need staff assistance.
               resources planning and management process,                ORS 196 designates the Department of Land
               including:                                                Conservation and Development as the primary
                 ï¿½ Options for an advisory coordinating body             agency for coordination of ocean resources plan-
                   to succeed the Task Force.                            ning activities. DLCD is the appropriate agen-
                                                                         cy to provide staff assistance to an advisory
                 ï¿½ Advisory committees.                                  body.
                 ï¿½ The roles of the Governor, state and federal          Conclusions
                   agencies, local governments, citizens, and
                   other interested parties.                                 Oregon should continue its ocean resources
                 ï¿½ A process to update and amend the ocean               management program with a broadly repre-
                   plan.                                                 sentative body, as described in option three,
                                                                         rather than a more limited one. The Task Force
               Options for a                                             is an appropriate model for a permanent Ocean
               Coordinating Body                                         Policy Advisory Council. It would provide a
                                                                         forum for state agencies, ocean users, coastal
                   While there are a wide variety of pos-                local governments, citizens and interest groups
               sibilities for an ocean advisory body, three op-          on ocean resource issues.
               tions are presented here.                                     An Ocean Policy Advisory Council would be
                   One: a state agency-only policy coordinat-            the appropriate body to prepare a plan for
               ing committee. This committee would be                    Oregon's territorial sea as a continuation of the
               limited to agencies which had actual regulatory           work of the Task Force (see discussion of ter-
               or proprietary interests in ocean resources or            ritorial sea plan, above). This Policy Council
               uses. Several advisory committees could ensure            should have the benefit of a technical and scien-
               participation of the public, local governments,           tific advisory committee.
               ocean users, marine scientists and federal agen-              Over the long term, the Policy Advisory
               cies.                                                     Council would provide coordination and over-
                   Two: a citizen's policy commission. Similar           sight as state agencies, federal agencies and
               in concept to other lay commissions in Oregon,            local governments carry out the recornmenda-
               this commission would represent the public's in-          tions of the Ocean Resources Management
               terests in ocean resources without the con-               Plan and territorial sea plan. The Ocean Policy
               siderations of agency responsibilities. The               Advisory Council may also establish Project
               commission would need several advisory com-               Review Panels as described below. The Policy
               mittees.                                                  Council would be responsible for updating and
                   Three: a broadly representative policy ad-            amending the ocean plan.
               visory council. This configuration would be
               similar to that of the Ocean Resources Manage-            Recommendations
               ment Task Force where the many diverse inter-             1. The Oregon Legislature should create an
               ests in ocean resources and uses have had "a                  Oregon Ocean Policy Advisory Council, com-
               seat at the table." A scientific/technical ad-                posed of representatives of ocean users,





                                                                                         Tools for Governing * 167

                    local governments, the public, and state              0 A coastal county commissioner
                    agencies.                                             0 The director or director's designee of the
                 2. The purposes of the Ocean Policy Advisory               Oregon Coastal Zone Management Associa-
                    Council should be to:                                   tion
                  ï¿½ Coordinate preparation of a management                0 A representative of Oregon Indian tribal in-
                    plan for the territorial sea based on the               terests upon recommendation of the
                    needs and recommendations of this Ocean                 Oregon Indian Services Commission
                    Resources Management Plan and the direc-              0 A representative of each of the following
                    tions of the Legislature
                                                                            ocean users:
                  ï¿½ Provide a forum for discussing ocean                    Ports, navigation and transportation in-
                    resource policy, planning and management                dustry
                    issues and, when appropriate, mediating
                    disagreements                                           Commercial ocean fisheries, north coast
                  ï¿½ Recommend improvements to the Ocean                     Commercial ocean fisheries, south coast
                    Resources Management Plan and ter-                      Charter, sport, or recreational ocean
                    ritorial sea plan as needed                             fisheries
                  ï¿½ Offer advice to the Governor, the State                 Coastal recreation, non-fishing
                    Land Board, state agencies and local                  0 The director or designee of these state agen-
                    governments on specific ocean resource                  cies:
                    management issues                                       Department of Environmental Quality
                  ï¿½ Coordinate interagency and inter-                       Department of Fish and Wildlife
                    governmental review of specific ocean
                    resource projects or actions through Project            Department of Geology and Mineral In-
                    Review Panels                                           dustries
                  ï¿½ Encourage participation of federal agencies             Division of State Lands
                    in discussion and resolution of ocean resour-           Department of Parks and Recreation
                    ces planning and management issues affect-              Department of Land Conservation and
                    ing Oregon                                              Development
                 3. The membership of the Ocean Policy Ad-                  Department of Agriculture
                    visory Council should be appointed by the               The Governor should appoint the chair of
                    Governor as follows:
                                                                        the Council.
                  ï¿½ The Governor or Governor's designee                  4. The Department of Land Conservation and
                  ï¿½ Three representatives of the public at large            Development, as Oregon's coastal manage-
                  ï¿½ A representative of a conservation or en-               ment agency, should coordinate the ac-
                    vironmental organization with interests in              tivities of the Ocean Policy Advisory
                    coastal and ocean issues                                Council.






                168 9 Oregon's Ocean Resources Management Plan

                    Project Review Panels
               Legislative Charge                                        needed, involve all interested parties, and dis-
                    The 1987 Legislature was concerned that              solve when project review is completed.
               Oregon did not have a clear process to bring              Conclusion
               together state agencies, local governments,                   Oregon needs a process to coordinate the
               federal agencies and others when reviewing                review of specific ocean use proposals. Project
               ocean development proposals. The Legislature              Review Panels can provide an effective, effi-
               included the existing state agency coordination           cient, and flexible means of assuring that all
               requirements as part of the new Oregon Ocean              voices are heard in ocean decisions.
               Resources Management Program. ORS 196 re-
               quires recommendations for dispute resolution,            Recommendation
               the role of various agencies and groups in                1.  The Ocean Policy Advisory Council should,
               ocean management, and a permanent planning                    when appropriate, use Project Review
               and management process.                                       Panels (PRP) to address and coordinate the
               Coordination Needs                                            interests of state, federal, and local agen-
                    Oregon's coastal and ocean management                    cies in specific ocean resource development
               programs rely on a network approach to project                proposals. A PRP will not have any new or
               review and response. Ocean resource develop-                  independent authority, but will advise agen-
               ment projects, such as intertidal gardens, any                cies with existing authority.
               proposed artificial reefs, or mariculture                 2.  A PRP can be established by the Council
               facilities, will, therefore, require a coordinated            upon request of a state agency or affected
               review process among state and federal agen-                  local government, or upon the recommenda-
               cies. In addition, these projects can have on-                tion of the Council itself. A PRP should be
               shore consequences which will necessitate                     convened as early as possible in the review
               participation and coordination with local                     process.
               governments.                                              3.  A PRP is to be used when no other effective
                    Although Oregon agencies already coor-                   mechanism for interagency project review
               dinate review of coastal and ocean project                    and coordination exists, or when review of
               proposals, these are often sequential and not in-             a large, complex project or several related
               tegrated into comprehensive project review and                projects requires the expertise or authority
               assessment. Oregon does not have a reliable in-               of several agencies.
               teragency procedure to review multi-phased off-           4.  A PRP is not to be used when the actions
               shore development projects, or to assess                      under consideration are included in
               subsequent projects related to such proposals.                fisheries management plans.
                    Experience in California and elsewhere has           5.  Participation on a PRP will be decided by the
               shown that interagency project review panels                  Council and will:
               are an effective and timesaving means to                   0  Vary according to the nature of the activity
               review, assess, and resolve complex, multiple,                or project being considered;
               or multiphased offshore development
               proposals. Such panels can coordinate the                  0  Include all affected parties regardless of
               preparation or review of environmental impact                 their regulatory authority;
               analyses, the development of permits condi-                9  Include the agency that has principal
               tions or stipulations. The panels convene as





                                                                                          Tools for Governing o 169


                    decision-making authority over the activity            0 Advise on Goal 19 compliance for permit ac-
                    being considered, and other state, federal               tions or non-permit actions which could af-
                    and local agencies with regulatory,                      fect marine resources and uses, including
                    proprietary, or consultative responsibilities;           proposed legislation, administrative rules,
                  0 Include affected nongovernmental interests               and marine resource management plans
                    as necessary.                                            and programs.
                 6. The recommendations of a PRP are intended              0 Prepare or analyze environmental assess-
                    to direct subsequent actions of participat-              ments for Goal 19, environmental impact
                    ing agencies related to the project under                statements under NEPA, mitigation plans,
                    consideration. Any agency which elects not               monitoring programs, and contingency
                    to accept the recommendation of a PRP                    plans.
                    shall provide the Ocean Policy Advisory               8. PRP recommendations shall address, where
                    Council with written findings and con-                   appropriate, permit approval or denial, spe-
                    clusions to support its position.                        cial permit conditions, operational perfor-
                 7. The functions of a PRP will depend on the na-            mance standards, lease stipulations, and
                    ture of the proposed action and the scope of             initigation measures.
                    its review. A PRP could:                              9. Consistent with state open meeting law, all
                  0 Establish requirements for inventory                     PRP meetings will be open to the public.
                    preparation and impact assessments.





                170 * Oregon's Ocean Resources Management Plan

                    Coastal Local Governments
                Legislative Charge                                       Responding to Proposals
                    Oregon's Ocean Resources Management                      It is essential that coastal local govern-
                Act recognizes the important role played by              ments, cities, counties, and ports participate on
                local coastal governments in Oregon's ocean              Project Review Panels as they are formed to en-
                resources management program. The 1987                   sure that local planning concerns, infrastruc-
                Legislature asserted that this ocean program             ture responsibilities, and other local issues are
                must "coordinate state agency management of              fully integrated into the review of ocean
                ocean resources with local government manage-            projects and actions.
                ment of coastal shorelands and resources." The               In addition, local governments need the
                Act requires the ocean resources plan to be              benefit of a clearly defined mandatory consult-
                ,, compatible with the acknowledged comprehen-           ation process with the Governor on major ocean
                sive plans of adjacent local counties."                  development activities within the territorial
                    The Act provides for substantial local               sea, such as for oil, gas, or minerals. The
                government involvement in the preparation of             details of this process will need to be defined in
                the Ocean Resources Management Plan and                  the territorial sea plan, refined by the Ocean
                asks the Task Force for recommendations on               Policy Advisory Council on an ongoing basis
                the role of local governments in a permanent             and enacted, if necessary, by the Legislature.
                ocean planning and management process. The               Using Local Plans to
                Legislature also asked the Task Force to iden-           Protect Ocean Resources
                tify issues that affect local government plan-               Coastal local governments should take an
                ning programs and describe the work that may             active planning and regulatory role for some
                be needed to fully address those issues in the           shoreland uses and activities which affect
                local plans.                                             ocean resources regardless of whether major
                The Local Government Role                                ocean resource development, such as oil, gas or
                                                                         minerals, is ever proposed.
                in Ocean Management                                          Coastal counties have long stretches of
                    Local governments have three fundamental             ocean shoreline with valuable ocean resources.
                roles in ocean resources management.                     Many coastal cities border on the Pacific Ocean
                Participating in Ocean Planning                          where development decisions can have impor-
                    Coastal local governments should be repre-           tant consequences for shoreline and coastal
                sented on the proposed Ocean Policy Council by           resources.
                at least two representatives, one from a coastal             Ocean resource-related issues which local
                county and another from the Oregon Coastal               governments should address within comprehen-
                Zone Management Association which has mem-               sive planning programs include:
                bers of coastal counties, cities, port districts          0  Ocean sewerage outfall siting and design
                and soil conservation districts. Membership on               criteria
                the Policy Advisory Council will ensure that              0  Municipal and/or industrial sewerage
                local government perspectives continue to be in-             needs if cities achieve a full "buildout" of
                corporated into long-term planning for ocean                 land uses within adopted Urban Growth
                resources.
                                                                             Boundaries






                                                                                         Tools for Governing * 171


                 ï¿½  Shorefront residential development which             the three miles of federal waters adjacent to
                    depend on septic tank sewage treatment               the state Territorial Sea. Within this three-to
                 ï¿½  Beach/shore access, including directing or           six mile zone, Oregon would receive 27 percent
                    encouraging access away from sensitive               of royalties under the Outer Continental Shelf
                    tidepool areas or bird and mammal habitats           Lands Act. Exactly how this money would be
                                                                         received by the state and allocated to state
                 ï¿½  Port facilities for fishing and recreation ves-      programs, local governments and coastal In-
                    sels as well as for other industrial needs re-       dian tribes has not been decided by the state.
                    lated to offshore oil and gas or minerals                Local communities often bear the burden
                 ï¿½  Shoreline "Protection" measures, such as             from providing necessary onshore services to
                    seawalls                                             support offshore development. Local residents
                 ï¿½  Protection or nondevelopment of shore                and governments are not willing to add to
                    areas susceptible to erosion, slumping or            demands on already stretched local tax
                    sliding                                              revenue if there is no offset in direct return to
                 ï¿½  Protection of ocean vistas and views in              the local tax base. Oregon will need to squarely
                                                                         address the issue of allocation of revenues from
                    developing areas and along major arterials           offshore development to affected local govern-
                 ï¿½  Protection of special marine bird and mam-           ments if oil, gas, and mineral development is
                    mal habitat sites where upland develop-              ever permitted in the ocean off Oregon.
                    ment may encroach on or degrade valuable
                    habitat                                              Conclusions
                 ï¿½  Recreation areas and facilities, traffic and             Oregon's coastal local governments are es-
                    visual issues, relationship of private               sential partners with state and federal agen-
                    development to park and recreational                 cies in ongoing planning and management of
                    values                                               ocean resources and must continue to be full
                 ï¿½ Education and interpretive centers and                participants in Oregon's ocean resources
                    their relationship to community develop-             management program.
                    ment goals, tourism image, etc.                          Coastal local governments can take an ac-
                                                                         tive role in protecting certain ocean resources
                Revenueto                                                by using land use plans and ordinances to regu-
                Coastal Communities                                      late shoreline and upland land or water uses
                From Ocean Development                                   which may adversely affect ocean resources.
                    If oil, gas, or mineral mining were ever to              Local communities can be adversely af-
                occur, coastal local governments would receive           fected by offshore development of oil, gas, or
                very little direct revenue from offshore develop-        mineral resources without the financial means
                ment under existing law. Oil, gas and mineral            to offset added costs born by the community.
                leasing and development within Oregon's Ter-                 Local governments need the assurance of a
                ritorial Sea would yield rents, royalties and            clearly defined consultation process with the
                other fees which would go to the state Common            governor on certain ocean activities within the
                School Fund administered by the State Land               territorial sea.
                Board. Under existing law, these funds go to             Recommendations
                support education and are allocated on a state-
                wide basis.                                              1. Local governments should be represented on
                    Oregon would receive some revenue from                   any ocean policy advisory body and, as ap-
                oil, gas, or mineral leasing and development in              propriate, on Project Review Panels.





                172 9 Oregon's Ocean Resources Management Plan


                2.  Coastal cities and counties should review               ing citizen participation in land use issues
                    ocean shoreline marine resources and exist-             which may effect ocean resources.
                    ing and planned development within their            5.  Oregon law should be amended to provide
                    jurisdiction. Comprehensive plan policies               local governments, including Indian tribes
                    and ordinances should be amended as                     as appropriate, with a share of revenues
                    necessary to protect these ocean resources              derived from any future offshore develop-
                    consistent with Statewide Planning Goal                 ment of oil, gas, or minerals, should it ever
                    19.                                                     occur.
                3.  Coastal local governments should also review        6.  Oregon should use state General Funds and
                    comprehensive plan goals, policies and im-              seek federal funds to assist local govern-
                    plementing measures with regard to ocean                ments to participate in ocean resources
                    uses and resources which may affect on-                 planning and management.
                    shore development. Local government will            7.  The territorial sea plan should include
                    need to develop a policy basis for effective            provisions for mandatory local government
                    participation on the Ocean Policy Advisory              consultation with the Governor on permits,
                    Council and Project Review Panels.                      leases, licenses, and other approvals for
                4. Local governments should use their citizen in-           commercial oil, gas, and minerals explora-
                    volvement program as a vehicle for ensur-               tion and development, should this ever

                                                                            occur.





                                                                                             Tools for Governingo 173

                     State Agency Pro                                        ams
                 Legislative Charge                                          Conclusions
                     One of the principal objectives of the                      No new state agency is needed to manage
                 Oregon Ocean Resources Management Act is to                 ocean resources. Oregon's network manage-
                 assess the existing capability of state agencies            ment approach to ocean and coastal resources,
                 to manage ocean resources and to recommend                  coupled with a strong coordination mechanism
                 improvements to meet coming needs. The legis-               through the Ocean Policy Advisory Council and
                 lation requires that the Ocean Plan include "an             the governor, is appropriate to handle ocean
                 inventory of the existing state laws and agency             resource issues.
                 rules, authorities and programs which pertain                   Most state agencies need to strengthen or
                 to ocean resources." The plan is to include an              expand ocean or coastal resource programs and
                 analysis of state laws and agency programs                  staff capability to carry out the recommenda-
                 that need to be modified, eliminated or enacted.            tions in this plan. Legislative support is needed
                     The Act requires that the Ocean Resources               for these program improvements.
                 Management Plan include "specific recommen-                     Some legislative changes are required to
                 dations to develop or improve state agency                  clarify or add agency authority or improve
                 programs to manage ocean resources and ac-                  state programs.
                 tivities consistent with this 1987 Act."
                 Inventory and Analysis of                                   Recommendations
                                                                                 Agency program improvements are sum-
                 Agency Programs                                             marized here. More detailed recommendations
                     The Territorial Sea Management Study,                   are found throughout the section on issues and
                 1987, prepared by co-investigators Jim Good,                recommendations, above.
                 Oregon State University College of Oceanog-                 Department of Fish and Wildlife
                 raphy, and Dick Hildreth, University of Oregon              (0DFW)
                 Ocean and Coastal Law Center, compiled and                      ODFW is the agency charged with the
                 analyzed Oregon's ocean management                          direct management of a number of the ocean's
                 capabilities and needs. This study is hereby ref-           renewable resources. ODFW is also the state's
                 erenced in response to legislative requirements.            primary biological consultant for other agencies
                     The Interim Report of the Task Force, sum-              and the governor.
                 mer, 1988, contained a summary of existing                      As recommended in this plan, ODFW
                 agency authorities and programs for ocean                   should take an increasing role in planning for
                 resource management. This summary is hereby                 the territorial sea, resolving specific manage-
                 referenced in response to legislative require-              ment problems, and providing technical assis-
                 ments.                                                      tance to other agencies. To accomplish this,
                     Agency program needs, based on recom-                   ODFW will need to expand staff capability to
                 mended Task Force policies and needed ac-                   meet these coordination and technical assis-
                 tions, are summarized in this section. These                tance needs. ODFW will participate in marine
                 program needs are described more fully in the               water quality monitoring, oil spill contingency
                 Resource Issues and Recommendations section                 planning, marine gardens to protect intertidal
                 of this plan.                                               areas, bird and mammal habitat around rocks
                                                                             and islands, environmental studies related to
                                                                             any potential proposals for marine minerals, oil





                174 * Oregon's Ocean Resources Management Plan


                and gas exploration, marine parks, and public            geographic information system (GIS) being
                information and education.                               developed for ocean resources. ORS 196 re-
                Department of Environmental Quality                      quires that information to support Oregon's
                (DEQ)                                                    ocean plan be developed in a GIS format.
                    DEQ is responsible for developing com-               ODOE, as the state GIS service center, has
                prehensive plans, programs, standards, and ad-           made substantial progress in acquiring and
                ministrative rules for preventing and                    entering coastal and ocean information into the
                controlling air and water pollution, disposal of         system.
                liquid, solid and hazardous waste, and control-              The ODOE GIS would will provide the
                ling noise emissions from facilities both on-            Ocean Policy Advisory Council with informa-
                shore and in the territorial sea. DEQ has the            tion and analysis to develop specific recommen-
                lead role for Oregon in preparing an oil spill           dations in the territorial sea plan. In addition,
                contingency response plan for the Oregon coast           the GIS will support interagency efforts on
                as required under 1989 legislation.                      marine minerals, marine gardens, bird and
                    To fully address continued ocean planning            mammal habitat, shoreline erosion, ocean out-
                and management issues, DEQ will need addi-               falls and others. Data acquisition and refine-
                tional resources. New air and water quality              ment of the GIS will be ongoing within ODOE,
                programs are needed. DEQ should coordinate               coordinated with DLCD and other agencies.
                preparation of an Ocean Stewardship Area Air             ODOE is not recommended as a member of the
                and Water Quality Program, and be a key par-             Ocean Policy Advisory Council.
                ticipant on the Ocean Policy Advisory Council            Division of State Lands (DSL)
                during preparation of the territorial sea plan.              DSL is unique among state ocean resource
                Department of Geology and Mineral                        agencies because it has both proprietary and
                Industries (DOGMI)                                       regulatory interests within the territorial sea.
                    DOGMI is charged with coordinating data              On behalf of the State Land Board, DSL carries
                acquisition and analysis for geology, minerals           out the constitutional mandate to manage
                and petroleum resources. DOGMI would be                  lands under its jurisdiction with the objective
                Oregon's principal agency for regulating any             of "obtaining the greatest benefit for the people
                offshore mineral or petroleum activities, if they        of this state, consistent with the conservation
                were to occur. DOGMI is the coordinating agen-           of this resource under sound techniques of land
                cy for the state-federal placer task force and           management." (Oregon Constitution, Art.III,
                can be expected to play a similar role in any fu-        Sec.5(2))
                ture state-federal marine mineral studies.                   DSL has statutory authority to enter into
                    This plan recommends that DOGMI par-                 contracts, leases and other proprietary agree-
                ticipate on the Ocean Policy Advisory Council.           ments, in consultation with other agencies, for
                DOGMI would provide technical assistance on              exploration and development of marine hard
                marine geology, shoreline erosion, subsea                minerals, oil, gas, sand and gravel. DSL also is-
                geologic hazards, and marine minerals during             sues permits for geological, geophysical and
                preparation of a territorial sea plan. DOGMI             seismic surveying within Oregon's territorial
                will continue to provide technical advice to the         sea. Any fill or removal activity within the ter-
                Oregon member of the Pacific Northwest OCS               ritorial sea is also under DSL's regulatory
                Task Force.                                              authority.
                Department of Energy (ODOE)                                  As a member of the Ocean Policy Advisory
                                                                         Council, DSL would continue to play a central
                    ODOE manages the computerized






                                                                                       Tools for Governing * 175


               role in preparing a plan for ocean resources in             DLCD would be both a member of and pro-
               Oregon's territorial sea.                               vide staff support to the Ocean Policy Advisory
                   DSL will also be particularly involved in           Council during preparation of a plan for the ter-
               marine mineral issues and other issues, such            ritorial sea. DLCD will continue to coordinate
               as Marine Gardens, which relate to the alloca-          Oregon's ocean plans and policies as Oregon
               tion of submerged and submersible lands and             agencies carry out the plan and implement new
               their resources.                                        ocean programs.
               Parks and Recreation Department                             In addition, DLCD will be responsible for
               (Parks)                                                 adopting rules to carry out Statewide Planning
                   Parks effectively shares jurisdiction over          Goal 19, Ocean Resources. These rules will be
               the ocean shore, from the level of extreme low          crucial to determining both process and sub-
               tide to the statutory vegetation line, with DSL         stance of agency review of proposed activities
               under a joint permit notification and evalua-           which affect ocean resources.
               tion agreement. Parks is responsible for plan-          Department of Agriculture (DOA)
               ning for recreation throughout Oregon and                   DOA was added to the Ocean Resources
               with developing and managing state park                 Management Task Force by the 1989 Legisla-
               facilities along the Oregon coast.                      ture because of strong interests in ocean
                   Parks should be a member of the Ocean               seafood products. DOA coordinates three
               Policy Advisory'Council and continue to par-            seafood commodity commissions, the Oregon
               ticipate in planning for the nearshore area             Salmon Commission, the Dungeness Crab Com-
               within Oregon's territorial sea. Parks will be          mission, and the Trawl Commission. DOA also
               the lead agency in assessing coastal and                regulates oyster production in Oregon's es-
               marine recreation needs and developing plans            tuaries.
               and programs to meet growing recreational                   DOA is proposed as a member of the Ocean
               demands on the coast, including marine parks            Policy Advisory Council and will be a liaison be-
               and educational and interpretive programs.              tween Oregon's ocean resources management
               Department of Land Conservation                         program and the seafood industry.
               and Development (DLCD)                                  Economic Development Department
                   DLCD, Oregon's coastal management agen-             (EDD)
               cy, is charged by the Legislature with coordinat-           EDD was added to the Ocean Resources
               ing ocean planning activities and providing             Management Task Force by the 1989 Legisla-
               technical and support services to the Task              ture because of interests in Oregon port
               Force. In that role, DLCD actively coordinates          development as well as the overall economic
               with all other state agencies, local govern-            health of Oregon's economy.
               ments, and federal agencies on virtually every              EDD should continue to participate in
               issue. The agency also provides staff assistance        Oregon's ocean planning and management but
               to the governor on OCS and other state-federal          is not recommended as a member of the Ocean
               ocean policy issues.                                    Policy Advisory Coui@cil.






                176 * Oregon's Ocean Resources Management Plan

                    Interstate Coordination
                Legislative Charge                                        The ocean off Oregon is a small segment of
                    .The 1987 Oregon Legislature found, in the        a much broader oceanic region. These regional
                Ocean Resources Management Act, that "it is           aspects to ocean resources require a regional
                important that the State of Oregon ... promote        perspective for resource management. A 1989
                and insure coordinated management of living           Oregon Department of Fish and Wildlife
                and nonliving marine resources within state           report, Management of Living Marine Resour-
                jurisdiction and with adjacent states..." The         ces, identifies the northern Californis Current
                Legislature also asked for recommendations on         ecosystem as "...the appropriate unit of manage-
                coordination with adjacent states.                    ment." This region extends from Cape Men-
                                                                      docino, California, to Vancouver Island, British
                    The 1989 Oregon Legislature specifically re-      Columbia.
                quired Oregon to coordinate with the states of
                Washington and California on ocean resource           Existing Coordination
                management issues. This legislation requires              Oregon agencies and the Governor already
                Oregon agencies to coordinate on ocean and            coordinate with other states on several ocean is-
                coastal information systems, oil spill and haz-       sues. These include such formal mechanisms
                ardous material response, offshore rocks and is-      as participation in the Pacific Fishery Manage-
                lands, and marine fisheries information.              ment Council with California and Washington,
                Ecological Basis for                                  the Pacific Northwest OCS Task Force with
                                                                      Washington, the U.S.-Canada Halibut Treaty
                Interstate Coordination                               and an oil spill task force with Washington,
                    The Pacific Ocean, its ocean currents and         British Columbia and Alaska. Governor
                living resources, links the states of                 Goldschmidt and Washington Governor
                Washington, Oregon and Califomia coasts. For          Gardner have closely coordinated their position
                much of the year the California Current flows         on OCS Lease Sale #132, sendingjoint letters
                southward. In winter, however, storms push            to the Secretary of the Interior. Other more in-
                surface currents northward near shore. These          formal methods include newsletters, conferen-
                strong currents can transport pollutants from         ces and workshops, and information sharing
                one region to another. Oil spilled at Yaquina         among counterpart agencies.
                Bay in fall, 1983, was strewn northward along
                the Oregon and Washington coasts. An oil spill        Coordination Needs
                off Grays Harbor, Washington, in late 1988                The National Coastal Resources Research
                resulted in oiled beaches from Tillamook Bay          and Development Institute (NCRI) has studied
                north to the tip of Vancouver Island.                 the interstate coastal and ocean management
                    Young salmon from Oregon rivers pass              needs of the Northeast Pacific Ocean. Coordina-
                through waters off Washington, British Colum-         tion issues were a principal topic. Interstate
                bia and Alaska. Pacific Hake spawn off central        ocean concerns included ocean oil transport,
                and southern California but are an important          uniform standards for ocean oil and gas
                commercial fishery off the Oregon and                 development, offshore mining, reducing marine
                Washington coasts. Marine mammals, such as            pollution and debris, state ocean management,
                Gray whales and California sea lions, migrate         and needed ocean research.
                along the entire west coast as do several
                species of seabirds.






                                                                                        Tools for Governing 9 177


               New Interstate Coordination                              every opportunity to promote regional solutions
               Proposals                                                to issues which Oregon has in common with
                                                                        other coastal states.
                   As Pacific coast states become increasingly
               involved in ocean resources management is-               Recommendations
               sues, more formal regional coordination struc-           1.  The Governor and Oregon's Congressional
               tures may be proposed. The Western                           delegation should support regional solu-
               Legislative Conference, an organization of                   tions to ocean resource management issues
               western state legislators, is working on a                   when possible.
               proposal for an interstate compact, including            2.  Oregon should participate in regional or-
               British Columbia, for ocean resources manage-                ganizations and other formal interstate
               ment among Pacific coast states. The Western                 agreements to protect and manage ocean
               Governors Association may also form an ocean                 and coastal resources.
               resources committee. This would strengthen
               the commitment and practice of coordination at           3.  State agencies are encouraged to establish
               the highest state policy levels.                             program links to counterpart agencies in
                                                                            other states and to participate in interstate
               Conclusions                                                  projects where possible.
                   The fluid, dynamic nature of the Pacific             4.  The Oregon Legislature should support
               Ocean and the mobile, migratory creatures                    proposals for a Pacific states regional
               that live there make it imperative that Oregon               marine resources coordination body which
               enhance its ocean resources management pro-                  supports and enhances the policies and
               gram through coordination with adjacent coas-                programs of Oregon's Ocean Resources
               tal states. Oregon must take advantage of                    Management Program





                 178 o Oregon's Ocean Resources Management Plan

                    State-Federal Partnership
                 Legislative Charge                                     Oregon where the marine resources and ocean
                    The 1987 Oregon Legislature was especial-           conditions are naturally linked to the landward
                 ly interested in a state-federal partnership for       portion of the coastal zone. Within this region
                 managing ocean resources off Oregon. The               productive upwelling supports productive
                 Ocean Resources Management Act cited three             marine ecosystems, the basis for Oregon's com-
                 existing federal laws which "recognize the inter-      mercial and recreational fisheries. Seabirds
                 ests of coastal states in management of ocean          and marine mammals from rookeries on rocks
                 resources in federal waters and provide for            and cliffs nearshore feed all across the
                 state participation in ocean resources manage-         Stewardship area.
                 ment decisions." The three are the Magnuson                The ocean and its public resources are not
                 Fisheries Conservation Act of 1976, the Coastal        contained by boundaries drawn by states and
                 Zone Management Act of 1972, and the Outer             nations to establish ownership and jurisdiction.
                 Continental Shelf Lands Act of 1978.                   Oregon's ocean resource management interests
                    The Legislature noted that                          clearly extend beyond the three-mile territorial
                                                                        sea while federal agencies have programs and
                   ... the 1983 Proclamation of the 200-mile            authorities for resources and activities within
                   U.S. Exclusive Economic Zone has created             Oregon's territorial waters. Protection of ocean
                   the opportunity for all coastal states to more       resources therefore requires co-management by
                   fully exercise and assert their responsibilities
                   pertaining to the protection, conservation           the state and federal governments through
                   and development of ocean resources under             coordinated, complementary policies and
                   United Statesjurisdiction.                           programs. Among these policies is a commit-
                    The 1987 Act includes a Legislative policy          ment to a partnership in ocean management.
                 to:
                   Assert the interests of Oregon as a partner          Existing Coordination
                   with federal agencies in the sound manage-               Oregon and federal agencies already coor-
                   ment of ocean resources within the U.S. Ex-          dinate on a number of ocean resource issues.
                   clusive Economic Zone.
                    The Act'includes several directives to the          The Oregon Department of Fish and Wildlife is
                 Task Force to "insure that the Oregon Ocean            a member of the Pacific Fishery Management
                 Resources Management Plan is coordinated               Council along with other states, the Depart-
                 with federal agency programs for coastal and           ment of Commerce National Marine Fisheries
                 ocean resources..." In fact, the contributions of      Service and others. Oregon is a member of the
                 several federal agencies have shaped a number          Pacific Northwest Outer Continental Shelf
                 of policy and program recommendations in this          Task Force along with Washington, Indian
                 Ocean Plan.                                            fishery commissions, and the Department of
                                                                        the Interior Minerals Management Service.
                 An Ecological Basis for                                The U.S. Fish and Wildlife Service and the
                 State-Federal Partnership                              Oregon Department of Fish and Wildlife coor-
                                                                        dinate on marine seabird and mammal
                    The Oregon Ocean Stewardship Area, dis-             problems. The Oregon Department of Environ-
                 cussed earlier, is the ocean area most critical to     mental Quality and the U.S. Environmental
                 a cooperative state-federal management ap-             Protection Agency cooperate on several
                 proach. The seaward boundary, the toe of the           relevant ocean programs. A state-federal placer
                 continental slope, reflects the seaward extent         mineral task force involves several state and
                 of the Ocean Stewardship Area, the zone off





                                                                                       Tools for Governing * 179


               federal agencies. The Department of Land Con-               Federal agencies will continue to par-
               servation and Development works with the                ticipate in planning for ocean resources of the
               federal office of Ocean and Coastal Resource            Oregon Ocean Stewardship Area.
               Management to develop coastal management                    The objective of state-federal cooperative
               grant work programs for Oregon.                         management of ocean resources should be
                   Existing coordination between state and             ecologically sound decisions rather than merely
               federal agencies can be enhanced by a commit-           streamlining agency procedures.
               ment from both state and federal agencies to
               common policies, objectives and process. This           Recommendations
               Oregon Ocean Resources Management Plan                  1.  The state of Oregon should assert the prin-
               provides a framework for both state and federal             ciple of jointly managing ocean resources
               agencies to cooperate in managing ocean                     and uses with the federal government.
               resources and uses off the state of Oregon.             2.  The policies and standards of the Oregon
               Conclusions                                                 Ocean Resources Management Plan apply
                   Oregon and federal agencies must establish              equally to all activities in the Oregon
               a resource management partnership that                      Ocean Stewardship Area.
               provides for coordinated, compatible manage-            3.  Federal agencies with research, manage-
               ment of ocean resources throughout the Oregon               ment, or regulatory interests in ocean
               Ocean Stewardship Area.                                     resources in the Oregon Ocean
                   For most ocean resource issues studied by               Stewardship Area are encouraged to par-
               the Task Force, there is a high degree of exist-            ticipate with the Ocean Policy Advisory
               ing cooperation and coordination between state              Council, Project Review Panels, and in-
               and federal programs.                                       dividual state agency programs which im-
                                                                           plement this plan.





                                                                              Information and Education 9 181










                                                                            Information and
                                                                                             Education



               A
                      recurrent theme heard throughout the ocean planning process is the need to
                     zuire and effectively distribute information which will help coastal resi-
               dents, visitors and ocean users ptotect Oregon's ocean and coastal resources. Infor-
               mation which is clear, easy to learn, and understandable is a key to enhanced
               public awreness, knowledge and support for ocean stewardship.


                   Oregonians realize that while enforcement           phatic that enforcement alone will not protect
               of regulations is important, the most effective         coastal and ocean resources. They spoke with
               means of protecting and conserving a number             concern about growing numbers of residents
               of marine resources is through an effective             and visitors on the coast who know little about
               public information program. With this perspec-          Oregon's coastal and ocean resources and who,
               tive, many recommendations for action in the            through their actions, unknowingly place these
               Ocean Plan call for information programs and            resources at risk.
               educational activities in response to these             Users
               needs.                                                      The workshops also revealed that ocean
               The Audiences                                           users need additional education and informa-
                   There are many special information needs            tion about resources that may be affected by
               which can can be distilled to three principal           their activities. Better information about poten-
               audiences:                                              tial conflicts with other ocean users is also
                                                                       needed. With better information and increased
               Public                                                  understanding some resource impacts can be
                   At public workshops held during prepara-            lessened and user conflicts avoided without the
               tion of the Ocean Plan, Oregonians were em-             need for additional regulations.





                182 9 Oregon's Ocean Resources Managetnent Plan


               Managers                                                  warn of danger or admonish against certain be-
                   Oregon's ocean and coastal resources may              havior.
               be properly managed when those who make                       Information is made available to the in-
               decisions at the federal, state and local level           tended audience through a network of distribu-
               are knowedgable about the ocean's condition,              tion pathways and outlets. Opportunities for
               resources, and uses. While the depth of                   distribution are almost limitless. Coastal res-
               knowledge may not need to be the same for                 taurants might use informative placemats on
               everyone, a basic level of understanding is es-           tables. Highway lookout points could have self-
               sential to assess information and make sound              guiding signs or displays. State and local parks
               decisions.                                                could distribute printed information or hold
                                                                         evening education programs. Coastal cable
               Building a Public                                         channels could offer short video programs for
               Information Program                                       visitors and residents on marine topics.
                   A good public education program should                Libraries and schools are logical outlets for in-
               focus on the audience and its information                 formation and educational materials. Marine
               needs, the information and materials to meet              Extension agents and local government offices
               the needs, and ways to deliver the material to            are also outlets for information.
               the audience.                                             Oregon's Information
                   Potential audiences are described above as            Resources
               the "public," ocean "users", and "decision
               makers." In reality, these audience groupings                 Oregon has most of the necessary resources
               have a number of components including                     to build a coastal and ocean resources educa-
               visitors to the coast, whether tourists from afar         tion program. These resources need to be har-
               or Oregonian, school children of all ages, and            nessed into an overall information program
               new coastal residents, many of whom specifical-           and strategy.
               ly chose to move to the Oregon coast because of           Citizens
               the environment. Decision makers include coas-                Citizens are a valuable resource for infor-
               tal local officials, Ocean Policy Advisory Coun-          mation, interpretation and education. They can
               cil members and other state and federal agency            define need, help gather information and
               officials and councils whose decisions may af-            prepare materials,and provide pathways for dis-
               fect marine resources. Boaters, divers, fisher-           tribution. Several workshop commenters
               men, and other ocean users would benefit from             pointed out the success of local citizen interpre-
               information about new techniques to help                  tive and education programs, such as the Hays-
               protect resources.                                        tack Rock Awareness Program in Cannon
                   The information content of various educa-             Beach, in protecting shoreline areas threatened
               tional materials must be tailored and packaged            with overuse. Other examples were cited of
               to meet the need of the audience. Some content            coastal residents taking action to rally com-
               will be purely factual information which iden-            munity support for protection of valuable
               tifies and describes through photos, drawings,            shoreline areas and of grassroots efforts to
               and description. Much will be interpretive to             learn about and inform the public of Oregon's
               give meaning to factual information through               ocean resources that may be at risk from off-
               displays, signs, booklets, and videotapes. Some           shore oil, gas, or mineral development.
               may be instructive and build understanding                Academic Institutions
               through a coordinated program of education                    Oregon State University Sea Grant Pro-
               and training. A small amount may need to                  gram, with its Marine Extension Program and





                                                                                 Information and Education * 183


                 activities at the Hatfield Marine Science Cen-           Federal Resources
                 ter in Newport, is Oregon's leading ocean infor-             The U.S. Forest Service already provides a
                 mation and education program. The Sea Grant              good deal of information and interpretation
                 Extension Marine Education Program works                 through the Cape Perpetua Visitors Center and
                 with school teachers from around the                     the Oregon Dunes National Recreation Area.
                 Northwest to develop curriculum materials for            These and forest campground facilities along
                 students of all ages. The Sea Grant Com-                 the coast are resources to be included in an in-
                 munications Program produces a wide range of             formation program. The U.S. Fish and Wildlife
                 print materials on ocean and coastal topics and          Service, National Marine Fisheries Service,
                 produces top quality films for television broad-         U.S. Coast Guard, and Corps of Engineers have
                 cast and closed circuit viewing. Special sum-            information programs for resources or ac-
                 mer programs are sponsored by the Marine                 tivities within their jurisdiction. These agency
                 Science Center for the public on the coast,              programs would provide valuable components
                 many of whom are vacationing and want to                 and resources for a coastal and ocean informa-
                 learn more about Oregon's marine environ-                tion program.
                 ment. The public exhibits as the Science Center          Community Programs
                 draw over 300,000 visitors annually and are
                 evidence of keen public interest in the ocean.               Local information centers, such as the
                 Marine Extension agents provide technical and            Rogue Pacific Center in Gold Beach, provide
                 management information to ocean users,                   local communities with educational materials
                 primarily commercial and recreational fisher-            and programs year-round and help both resi-
                 men and seafood processors.                              dents and visitors understand and interpret
                                                                          the natural and human environment of the
                 State Agencies                                           local area. The Haystack Rock Awareness Pro-
                     Several state agencies must continue to be           gram in Cannon Beach has become a model for
                 active participants in building an ocean and             local interpretive programs. These programs
                 coastal information and education network.               not only develop information materials but pro-
                 The Oregon Parks and Recreation Department               vide a direct outlet for the materials to effec-
                 maintains the many state parks and                       tively meet specific needs. In addition, local
                 campgrounds along the coast. This network of             progrms create a climate of awareness and ap-
                 parks is a ready means of distributing informa-          preciation of local marine resources.
                 tion along the entire coast or providing inter-              Other public resources include the South
                 pretive materials aimed at the park locale. The          Slough Estuarine Reserve information center
                 Department of Fish and Wildlife has a strong             near Coos Bay, the Columbia River Maritime
                 interest in communicating information about              Museum in Astoria, and the new Oregon Coast
                 biological resources of the coast. ODFW also             Aquarium in Newport. Coastal county parks,
                 need to ensure that fishing and other regula-            such as the Coos Head County Park in Coos
                 tions are well known and understood. The                 County, are potential elements of a coastal and
                 Department of Environmental Quality provides             ocean resources education program. Com-
                 information to the public and specific groups            munity seafood festivals Newport, Astoria and
                 about air and water quality protection. The              other communities are distribution oppor-
                 Department of Land Conservation and Develop-             tunities.
                 ment, Oregon's Coastal Management Agency,
                 has a special responsiblity to make sure that a          Private Facilities
                 wide range of coastal and ocean resource infor-              Privately operated coastal visitor centers,
                 mation is prepared and distributed.                      such as Sea Lion Caves and Otter Crest, are
                                                                          potential participants in a coordinated program





                184 * Oregon's Ocean Resources Management Plan


               of marine information and education. Long a             and private participants, and should respond to
               part of the Oregon travel landscape, these and          needs of ocean users and decisions makers
               other private centers reach a segment of the            when necessary.
               traveling population that might otherwise be                The goal of an ocean and coastal education
               missed. In addition, coastal motels, restautants        and information program should be an "ocean
               and local visitor information centers are focal         aware" public.
               points for information distribution.                    Recommendations
               Conclusions                                             1.  A coordinated, innovative and responsive
               and Recommendations                                         Coastal and Ocean Resources Educational
                   Oregon should place a high priority on in-              Program should be developed by the Ocean
               forming and educating Oregonians and coastal                Policy Advisory Council to link the various
               visitors about coastal and ocean resources and              educational and information resources of
               uses as an effective means of protecting these              the state, provide timely and appropriate
               resources.                                                  information and education materials, and
                   Oregon has many valuable individual                     involve the public in promoting protection
               educational and informational resources ready               of coastal and ocean resources through
               to contribute but lacks a coordinated coastal               awareness.
               and ocean resources education program.                  2.  Oregon State University Sea Grant and Sea
                   A coastal and ocean resources public infor-             Grant Extension should be the lead agency
               mation and education program should be com-                 for implementing this program. Cooperat-
               prehensive and innovative, should place a high              ing agencies should include other Sea
               value on involving the public in the creation               Grant units, various state and federal agen-
               and delivery of information, should link public             cies, and community groups and in-
                                                                           dividuals.






                                                                                        Citizen Involvement * 185












                                                                    Citizen Involvement



                F
                      rom. the beginning, the Task Force has been committed to Citizen involvement
                      and an open public process. As a first order of business the Task Force set a
                goal of providing the public opportunities to be involved in all phases of developing
                the Ocean Plan. A newsletter was begun, a mailing list compiled, and media con-
                tacts made. While the Task Force was not able to carry out all possible participa-
                tion activities, the goal was largely achieved by a public outreach program that
                included printed information, local workshops, and open Task Force meetings.

                Developing the Ocean Plan                               Workshops and Meetings
                    Many Oregonians helped shape the Ocean                  In the fall of 1988, eight public workshops
                Plan. They participated in workshops, public            were held in Brookings, Coos Bay, Florence,
                hearings, and Task Force meetings. They wrote           Newport, Cannon Beach, Portland, Eugene,
                letters of comment and telephoned with ideas            and Medford. Over 200 people attended to tell
                and concerns. They asked tough questions that           the Task Force of their concerns, needs, and
                caused critical rethinking of issues. They spoke        ideas about the ocean and its resources.
                in support of key ideas and proposals. Although             The Task Force then met in a series of six
                many people worked with the Task Force on               meetings to address these concerns and begin
                the Plan and hundreds of others read materials          to formulate preliminary recommendations for
                sent by mail, there were more citizens who              policy and action. These meetings were held in
                were not fully informed about the process or            a variety of locations and were well attended by
                why it was important to be involved. Increasing         the public. Meetings were held through the
                public awareness and involvement is a goal of           spring and summer, 1989, in Charleston, New-
                this Plan.                                              port, Salem, Portland (2), and Lincoln City (2).
                                                                            In September, 1989, Task Force staff met





                186 9 Oregon's Ocean Resources Management Plan


               with fishermen and urchin divers in meetings             coastal resources and even more who enjoy the
               in Gold Beach, Newport, and Astoria. These               ocean and coast on a personal basis. The public
               meetings resulted in discussions with over 100           has vital information to contribute to the
               people directely involved in a variety of ocean          process. Knowledge of local conditions, is-
               fisheries. Then in November, 1989, 800 copies            sues,and resources will keep state level plan-
               of draft plan policies were printed and dis-             ning and management programs rooted in the
               tributed by mail and through public libraries            real world. Public involvement will help en-
               and courthouses. These policies were reviewed            gender overall awareness of coastal and ocean
               and discussed at four public workshops held in           issues. This public awerness will translate into
               Gold Beach, North Bend, Lincoln City, and Can-           support among local government officials, the                       10
               non Beach. Over 300 people attended and over             Legislature, the Governor and Oregon's Con-
               sixty written comments were received.                    gressional delegation, all of whom are able to
                   In response, the Task Force met in                   enact or effect programs which carry out the
               February, 1990, for two days in Newport and in           goals and policies of this Ocean Plan.
               March in Portland to consider the comments                   This Ocean Plan recognizes that citizens
               and make revisions to the plan recommenda-               can and should continue to be involved in ocean
               tions. These meetings resulted in a revised              planning and management. Three elements are
               draft for public hearings in May, 1990.                  proposed for ongoing involvement:
                   Throughout the planning process, Task                    First, as proposed, the Ocean Policy Coun-
               Force members and staff spoke to a variety of            cil would have many public members. Some
               organizations, groups, and school classes about          would represent the public at large, others
               the Oregon Ocean Resources Management Pro-               would represent groups that are vitally inter-
               gram                                                     ested in using ocean resources and conserving
               Videotapes                                               them for continued use and enjoyment. This
                   All Task Force meetings and public                   public representation at the policy level will set
               workshops were videotaped. These tapes                   the tone for other public participation activities.
               provided a "realtime" record of presentations,               Second, the information and education
               comments, discussions and decisions. Tapes               programs proposed in this plan, if carried out,
               will continue to be available as an archive              would provide essential information to create
               record for future reference. These tapes also            public awareness of ocean and coastal issues
               provided the Task Force and staff with a                 and set the stage for public involvement.
               means of seeing and hearing meetings and dis-                Third, a coordinated program of public out-
               cussions which needed to be reviewed as part of          reach in conjunction with on-going Ocean
               on-going policy discussions. Task Force mem-             Policy Council activities and discussions is
               bers unable to attend specific meetings or               necessary. The proposed process for a ter-
               workshops were able to see and bear a clear              ritorial sea management plan should have a
               record of events. This was an invaluable techni-         high public participation quotient, including
               que to preserve comments and ideas for incor-            workshops, newletters, visual media, and
               poration into the Ocean Plan.                            speakers. Citizens should be invited and wel-
               Future Citizen Involvement                               come at Policy Council meetings.
                   Full public involvement in ocean resources           Recommendations
               issues is crucial. The ocean and its resources           1. The Ocean Policy Advisory Council should
               belong to the public, many of whom are already               commit itself to full citizen involvement
               involved in or support conservation efforts for              during preparation of a plan for Oregon's






                                                                                           Citizen Involvement * 187


                    territorial sea and should prepare and im-            2.   The Oregon Legislature should provide the
                    plement a program that provides informa-                   resources to the Ocean Policy Advisory
                    tion to citizens about planning and                        Council to carry out a vigorous program of
                    management issues and provides oppor-                      citizen involvement.
                    tunities for citizens to be involved in all           3.   Citizen involvement efforts should be linked
                    phases of the ocean resource planning                      to a program of public information and
                    process.                                                   education as recommended in this plan.





          188 e Oregon's Ocean Resources Management Plan






                                                                                               Ocean Research * 189












                                                                            Ocean Research



                k
                       ccurate information is essential for sound resource management decisions.
                         ecision makers will need additional information for virtually every topic ad-
                dressed in this plan. Difficult research questions remain to be answered. What
                topics or areas need study first? When are secondary topics studied? How to coor-
                dinate among various researchers? Where to find funds for rather expensive
                studies? How does Oregon organize and use information?


                    While experts in various scientific dis-             everywhere in the Oregon ocean planning area.
                ciplines will probably differ on the exact nature        However, because the level of management of
                of necessary research, there is broad agree-             an area or resource determines the need for
                ment on existing data gaps and long-term re-             marine science information, three areas can be
                search needs. A list of information gaps is              identified off Oregon which have somewhat dis-
                listed in a following section based on results of        tinct management demands and consequent re-
                a Northwest OCS Environmental Studies                    search needs.
                Workshop-Conference sponsored by Minerals                 0  First, the resources of the nearshore fringe
                Management Service in May, 1988, and on in-                  of rocks, islands, intertidal areas and es-
                formation needs identified during policy discus-             tuary mouths along the coast are heavily
                sions for preparing the ocean plan. Other                    used and especially at risk. There are
                research needs have been identified in this                  numerous existing management problems
                Plan related to various ocean activities and                 and more can be expected. Information
                uses other than OCS oil and gas. Together, the               needs here are the most "fine-grained" or
                items on the list form the basis for determining             site-specific and will be felt most acutely by
                research needs for ocean management in                       state management agencies. This is an
                Oregon.                                                      area for which Oregon ought to provide
                    Additional marine research is needed                     primary research support.






                 190 o Oregon's Ocean Resources Management Plan


                 ï¿½  Second, Oregon's continental margin, an                specific potential adverse effects. Therefore,
                    Ocean Stewardship Area, is an area where               more focused sub-regional studies of ocean con-
                    a high degree of resource management will              ditions and resources are also needed.
                    be needed and for which information needs                  Oregon can take specific steps to establish
                    are great. Research will be needed by both             an ocean resources information management
                    state and federal agencies to fulfill co-              program so that research recommendations can
                    management responsibilities. Research                  be made on an annual basis and as a manage-
                    ought to come primarily from federal sour-             ment problem arises and so that information
                    ces and programs but Oregon should also                can be integrated into a computerized ocean in-
                    provide support to continental margin re-              formation system.
                    search.                                                Strategic Assessments:
                 ï¿½  Third, west of the continental margin to               Continental Margin
                    the boundary of the 200 mile EEZ, manage-                  The first step for Oregon is to prepare com-
                    ment needs will be fewer and, consequent-              prehensive assessments of ocean resources, con-
                    ly, so will the amount and precision of                ditions and uses of the continental margin as a
                    marine resources information. In this area             starting point for making ocean resource
                    federal agencies will have the primary need            management decisions and for identifying
                    for research and therefore should be the               specific research needs for management. As-
                    primary funding source.                                sessments would use existing information to
                                                                           describe, depict and characterize the physical
               A Strategy for Research                                     environment, biotic environment, living marine
                    It is extremely difficult, and probably not            resources, economic activities and environmen-
               useful, to establish a strict priority list of              tal quality of the Pacific Ocean off Oregon and
               needed studies. There are simply too many vari-             adjacent coastal areas. Assessments would pro-
               ables, such as a wide range of research needs               vide a "strategic" context for ongoing planning
               and study topics, a diversity of funding sources,           and for identifying needed information for site-
               variability of time required for each study, the            specific "tactical" decisions.
               nature of specific management issues, the un-                   Strategic assessments of Oregon's ocean
               foreseen results of research and subsequent                 should follow up the West Coast of North
               new research needs.                                         America Strategic Assessment Atlas being
                    For instance, OCS oil and gas decisions will           prepared by the Office of Oceanography and
               require a relatively high level of information to           Marine Assessment, National Oceanic and At-
               identify areas and resources and risk and spe-              mospheric Administration (NOAA). Assess-
               cial conditions that must be considered across              ments should be prepared from digital
               the entire continental shelf and along the en-              information and displayed in atlas format at a
               tire coast. The area-wide planning approach of              level of detail necessary for most planning and
               the U.S. Department of the Interior and the                 management decisions off Oregon. This com-
               potentially widespread effects of oil spills                puterized geographic data base could also be
               demands that broad assessments of ocean cir-                displayed at higher resolution if needed for a
               culation and biological resources are needed.               management situation and warranted by the
               However, information needs for marine                       available information.
               mineral decisions will be different. Mineral                    Oregon should rely on existing data and ex-
               areas are more closely known, and the environ-              pertise among NOAA, EPA, and other federal
               mental and biologic resources in the area can               agencies for development of these assessments.
               be more readily studied in order to understand              Oregon should expand its fledgling ocean






                                                                                                   Ocean Research 9 191


                 resources information management capability                sively develop information which, when added
                 through Interagency Agreement between                      over time, will fill in the broad-scale picture. In-
                 NOAA, MMS and other contributing federal                   formation from these studies will update the
                 agencies and the Oregon Department of Energy               strategic assessments, above. This is a task for
                 Geographic Information Service Center. This                the Ocean Policy Advisory Council, below.
                 would allow the Ocean Policy Advisory Council              Focused Research
                 and state agencies access to tremendous data                    Management decisions usually target on a
                 bases and to target the information on analysis            specific site or resource. Oregon's Goal 19,
                 of specific management questions.                          Ocean Resources, requires that decisions affect-
                      If possible, Oregon's strategic assessments           ing ocean resources be supported by scientific
                 should be carried out at as part of a regional             inventory information with particular attention
                 level assessmenti from Cape Mendocino to Van-              to analysis of impacts of the decision on renew-
                 couver Island. This relatively discrete                    able marine resources. Focused research will
                 biogeographic region provides an ecological                often be necessary to meet the requirements of
                 basis for describing and understanding                     Goal 19 when a specific project is proposed.
                 Oregon's ocean systems.                                         In many cases, focused research needs will
                 Broad-Scale Descriptive Studies                            be revealed when specific problems or decisions
                      Broad-scale studies provide basic informa-            are presented, the existing information base is
                 tion from which more specific information                  analyzed and specific data gaps are identified.
                 needs can be determined when management                    These studies will be especially necessary for
                 problems are presented. These studies are not              proposals for nonrenewable resources and uses
                 just "blue-water" scientific exercises; they are           such as OCS oil and gas and marine minerals,
                 fundamental to understanding complex ocean                 ocean disposal of wastes, etc. Focused research
                 interactions that can directly effect manage-              may also be necessary when artificial reef or
                 ment decisions. In addition, they provide cru-             mariculture proposals are presented.
                 cial baseline information against which                         Primary responsibility for funding focused
                 decisions can be analyzed and long-term effects            research will fall to the private developer but
                 assessed.                                                  study design and work will be closely super-
                      There are broad data gaps in oceanog-                 vised by affected public agencies. Oregon
                 raphy, marine ecology, ocean chemistry, geol-              should create a mechanism by which private
                 ogy and social/economic conditions in the                  funds can support needed marine research
                 region. These study needs are identified below.            work in the public domain.
                 Some of these studies, such as ocean circula-
                 tion off the southern Oregon coast, have never             Major Information Gaps
                 been conducted. Others, such as marine produc-             and Research Needs
                 tivity studies, are now possible through satel-                 The Oregon Ocean Resources Management
                 lite technology and remote sensing. These                  Act requires that the Task Force recommend
                 broad studies represent major ocean research                  Environmental and other scientific research
                 challenges and opportunities for Oregon State                 required to make management decisions
                 University, NOAA and other oceanographic in-                  about ocean resources with an emphasis on
                 stitutions.                                                   the information requirements of the state-
                                                                               wide planning goals for ocean and coastal
                      Because it is unlikely that funds will be                resources in relation to the oil, gas and
                 available for multi-year broad-scale studies at               mineral development activities of the Federal
                 the level of effort required, a number of smaller             Government in the Exclusive Economic Zone
                 more focused studies may be needed to progres-                off Oregon





                192 * Oregon's Ocean Resources Management Plan


                   The Task Force has received recommenda-                   as the Cape Blanco and Heceta Bank are
               tions for needed research topics from the Tech-               unknown
               nical and Scientific Advisory Committee,                   *  There is virtually no circulation data south
               university researchers, and state and federal                 of Newport, where Heceta Bank lies in a
               resource agencies. These research needs are                   transitional area between two oceanic cir-
               summarized below.                                             culatory regimes
               Physical Features Base Map                                 0  Interannual variability in circulation pat-
                ï¿½  Detailed bathymetry of bottom features                    terns on the continental shelf and in near-
                   within Oregon's Territorial Sea, including                shore environments is not well researched
                   offshore rocks submerged reefs, in digital             0  Temperature, humidity, and wind measure-
                   forinat                                                   ments across the continental shelf are
                ï¿½  Detailed bathymetry of specific features                  sparse. Paired temperature and salinity ob-
                   and areas of the continental margin such                  servations are limited in much of the region
                   as Heceta-Stonewall Banks, Rogue and As-                  off Oregon and Washington
                   toria Canyon                                           BiologylEcology
               Physical Oceanography                                      *  Productivity data for the waters off Oregon
                   A major step has been taken toward under-                 and Washington are old; very little data
               standing the state of knowledge of ocean cir-                 have been gathered in the last 20 years
               culation in the Pacific Northwest. The Minerals            0  The effects of spilled oil and increased tur-
               Management Service has completed a study en-                  bidity on primary productivity is unknown
               titled Coastal Circulation Along Washington                0  Understanding of the movement of
               and Oregon as part of its OCS Environmental                   hydrocarbons through neuston (surface)
               Studies Program. A conference of researchers
               from all major oceanographic research institu-                layer of the water column is limited
               tions and agencies was held in Fall, 1988, and             0  Very little is known about benthic com-
               a three-volume report has been published. The                 munities and processes, including natural
               following research needs were identified by par-              variability. Little is known about marine
               ticipants.                                                    species' preference or need for specific sub-
                ï¿½  Data on near-surface (0-20 meters deep)                   strate types
                   and nearshore (from shore to the 50 meter              0  Oregon does not presently have a marine
                   isobath) currents are very limited and                    habitat classification system. Habitat re-
                   there is little information on es-                        search must emphasize habitats known to
                   tuarine/ocean exchange processes                          be susceptible to accumulation or long-term
                ï¿½  Early studies of the Columbia River Plume                 exposure to spilled oil or those with special
                   were unable to complete a three dimen-                    aesthetic value
                   sional characterization of plume dynamics             Fisheries Data and Information Gaps
                ï¿½  Data on bottom boundary layer currents                 0  The accuracy of fishery production models
                   and sediment transport along the bottom                   is open to question. More data is needed to
                   are limited                                               more realistically determine allowable har-
                ï¿½  The extent of circulation exchange between                vest levels
                   the waters on and beyond the continental               0  The importance of offshore rocky reefs and
                   shelf has not been determined                             rocky bottoms to fish productivity is not
                ï¿½  Topographic effects of specific features such             well understood. Data on the distribution






                                                                                                Ocean Research * 193


                     and abundance of fish on rocky bottoms,                0 Critical marine mammal habitats need to
                     and on soft bottoms inside the 30 and                    be identified
                     beyond the 200 fin isobaths, are sketchy             Ocean Chemistry and Water Quality
                   ï¿½ Data on the distribution and abundance of              0 Oregon's marine waters have never been
                     forage and juvenile fishes is also sketchy               properly analyzed to determine the levels
                   ï¿½ Data on marine habitat parameters and                    and characteristics of dissolved compounds,
                     fish catch areas have not been organized                 suspended particles, or trace metals
                     and analyzed sufficiently to correlate catch           0 The habitat value of dissolved chemicals is
                     areas with habitat parameters. Important                 not well researched
                     parameters are depth, substrate composi-
                     tion, surrounding substrate, salinity, light,          0 Little is known about natural background
                     temperature, turbidity, and currents. Criti-             sediments and suspended particulates in
                     cal habitats, including spawning and nurs-               the waters off Oregon and Washington
                     ery grounds, have not been defined or                  0 Little is known about the fate of drilling
                     mapped                                                   mud plumes in the water column after the
                   ï¿½ There is little data on the sensitivity of               first 24 hours after their disposal
                     fish, especially salmonids, to oil and gas ex-         * The transport and fate of oil, heavy metals,
                     ploration activities such as spilled oil and             and organic compounds in Oregon's
                     seismic testing                                          dynamic marine environment, regardless of
                   ï¿½ The effectiveness of mitigation as a                     their source, have never been properly in-
                     management tool has not been sufficiently                vestigated and characterized
                     evaluated                                            Social and Economic
                 Marine Birds and Mammals                                   0 Economic baseline information is needed to
                   ï¿½ Offshore seabird populations off Oregon                  provide estimates of coastal employment
                     and Washington have never been adequate-                 and population related to ocean resources
                     ly quantified. There are no seabird popula-              development and related secondary employ-
                     tion monitoring programs currently in place              ment
                   ï¿½ Relatively complete population parameters              0 Inventory data is needed of coastal areas of
                     (other than abundance) have not been ob-                 recreational, cultural, historic, and
                     tained for any seabird or mammal species                 ceremonial importance
                   ï¿½ The actual impacts of ocean resource                   0 The net economic effect of the loss of
                     development activities on seabird popula-                fisheries to nonrenewable resource ac-
                     tions have not been sufficiently studied.                tivities both within and beyond state
                     Decisions have been based on predicted im-               waters have not been calculated
                     pacts, and such predictions have not been            Geology
                     adequately determined to be accurate                   0 The nature, extent, and location of geologic
                   ï¿½ Sensitive seabird habitat areas, including               hazards, including ground motion, seafloor
                     ocean feeding and resting areas, have not                offsets, active faults, sub-sea landslides,
                     been defined and identified                              diapirs, and shallow gas-charged sediments.
                   ï¿½ Important feeding areas for all marine                 * The composition and depth of seafloor sedi-
                     mammals found in Oregon waters have not                  ments have not been established across the
                     been identified                                          continental shelf





                194 9 Oregon's Ocean Resources Management Plan


               Data Administration and GIS                                 everyone who has access to it may not. Conse-
                    Ocean research has developed and made                  quently, some data will have the potential to be
               available an immense amount of data on                      used to draw erroneous conclusions. This poten-
               marine systems. Oregon's ocean resource                     tial requires that data limitations be rigorously
               management program will rely on the portion                 documented.
               of that data that relates to Oregon waters,                     The Oregon Department of Energy (ODOE)
               marine systems in general, or the effects of                houses the state's Geographic Information Sys-
               resource development activities. The acquisi-               tem Service Center. The Service Center is
               tion of such data will require money and time;              providing the technical expertise to build an
               the appropriate use of the data will require ac-            Oregon's Ocean Information System. The Ser-
               cess by experts who are familiar with its limita-           vice Center is also providing technical assis-
               tions.                                                      tance to numerous state and federal agencies
                    Research data will come from a variety of              on other natural resources geographic informa-
               sources. It will be used by several state agen-             tion systems, some of which will provide useful
               cies, private interests, citizens, and public inter-        information to the ocean GIS. The Service Cen-
               est groups. Although its use cannot be                      ter is working directly with state ocean
               restricted, its integrity must be guaranteed.               resource agencies, such as ODFW and DLCD,
                                                                           to assemble data bases on particular resources.
                    Many ocean resource data will be specific
               to locations in the ocean. They will be ideally             Recommendations
               suited to use in a computerized Geographic In-                  The Ocean Policy Council should
               formation System (GIS). Senate Bill 630 specifi-                Establish an interagency process to review
               cally required that the Plan include:                           and update ocean research needs
                  Maps of existing ocean conditions, uses and                  Provide leadership for an Ocean Research
                  resources of the coastline, territorial sea, con-
                  tinental shelf and Exclusive Economic Zone.                  Consortium made up of of Oregon's
                  These maps shall be ... entered into a com-                  academic institutions, state and federal
                  puter format to allow ease of data analysis                  agencies, and private industry
                  and shall be accompanied, where possible, by
                  computerized information about the mapped                    Work with affected state agencies and
                  resources or features ....                                   State Map Advisory Council to guide
                    Not all pertinent ocean resource data will                 development and maintenance of an
               be suited for use in a GIS. Both scientific                     Oregon Ocean Information System
               reports and economic data are useful to                         Coordinate the Oregon Ocean Information
               resource managers, but access to it generally                   System with adjacent states and with
               does not require a sophisticated computer. A                    NOAA, USGS, and other federal agencies
               system is needed to provide access to such data                 with ocean-related digital data
               and information.
                    It is possible to use data in ways for which           0   The Oregon Department of Fish and
               they were neither intended nor well suited. For                 Wildlife should develop a system of marine
               example, trawl catch data could be presented                    habitat research reserves based on a
               in such a way as to conclude that the catch ac-                 marine habitat classification system
               curately represents a particular population in a            0   The Oregon Department of Energy's GIS
               particular place, when in fact the catch may                    Service Center should continue to provide
               have utilized a net that harvested very few fish                technical services to build the Oregon
               under a certain size or age. The original                       Ocean Information System.
               developer of the data may know its limits, but              0   The Oregon Legislature should






                                                                                    Ocean Research * 195



               0 Strengthen marine research programs at           0 Continue to support the development and
                  Oregon State University, University of            use of an interagency Oregon Ocean Infor-
                  Oregon, and within state resource agencies        mation System.
                  to support ocean resources management



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           196 9 Oregon's Ocean Resources Management Plan







                                    Index










1









                                                                              197





           198 o Oregon's Ocean Resources Management Plan


































                                                                                               I






                                                                                                                             Index        199


                     A                                                                     California                                     26
                                                                                           influence of Columbia River                    26
                   Air quality                                     115,118                 Davidson                                       26
                         in the territorial sea plan                   152                 North Pacific                                  26
                         recommended policies for                      121                 upwelling                                      27
                   Archaeological resources                            112                 variability                                    26
                         need for Oregon Legislature to protect        113          Curry County                                          36
                   Artifacts
                         protection needed                             107
                   Artificial reefs                                      42           D
                         in the territorial sea plan                   152          Damage assessment                              135-136
                                                                                    Douglas County                                        36
                    B                                                               Dredged material disposal                        40,118
                                                                                           in the territorial sea plan                   152
                   Beach access                                        108
                         and habitat protection policies                 55           E

                    C                                                               Economy
                                                                                           coastal sectors                                37
                   Citizen involvement                            173-174                  commercial fishing                          37,40
                   Clatsop County                                        35                fishing industry                               59
                   Clean Air Act                                       119                 personal income on coast                       37
                   Clean Water Act                                     118                 recreation                                     38
                   Commercial fishing                                    39                transfer payments                              37
                         personal income from                            60                transportation                                 38
                   Comprehensive plans                                              El Niflo                                           64,73
                         ocean resource issues to be addressed         158          Endangered Species Act of 1972                        82
                   Conflict resolution                                   55         Exclusive Economic Zone                               48
                   Conservation                                      48,52          Extinction                                            82
                         defined                                         51
                         and habitat protection                          52
                         recommended policies for                        54           F
                         renewable resources                             55         Fisheries                                     39,59-78
                         techniques for                                  52                foreign fleets                                 61
                   Continental margin                                                      history                                        62
                         biology of                                      27                joint ventures                                 62
                         currents over                                   26                major species in                           66-72
                         and fish populations                            29                recreational                               64,107
                         and marine birds                                31                risks to                                       73
                         relation to stewardship area                    49         Fisheries management                                  61
                         sediments on                                    25                intent of Ocean Plan Policies on               75
                         structural features                             24                recommended policies for                       77
                         used to define planning unit                    24                regional councils                              62
                         width and depth                                 49         Fishery conservation zone                             61
                   Continental shelf                                     24
                   Continental slope                                     24
                   Coos County                                           36           G
                   Counties                                          35-36
                   Critical habitats                                     53         Goal 19                                               75
                         factors to consider in designation              53                and marine minerals                            144
                         policy on protection                            55                and habitat protection                         53
                   Cultural resources                                  107                 need for information                           54
                         in the territorial sea plan                   152                 policies                                       53
                   Current(s)                                                       Gorda Ridge                                           145
                         bottom                                          27





                  200 9 Oregon's Ocean Resources Management Plan


                   H                                                             Marine birds                                         79
                                                                                       effect of human disturbance                    83
                 Habitat loss                                                          in the territorial sea plan                    151
                        effect on fisheries                           75               locations of sensitive colonies                92
                        and extinction                                82               management issues                              84
                        threat to marine birds and mammals            83               recommended policies for protection            88
                 Habitat protection                                   52         Marine debris                                        117
                        recommended policies for                      55         Marine Gardens                                       100
                 Haystack Rock Awareness Program                      100        Marine mammals                                       81
                 Hazardous wastes                               118,120                effect of human disturbances                   83
                 Highway 101                                    108,111                in the territorial sea plan                    151
                 Highway Division                                                      location of sensitive populations              92
                        considerations in Highway 101                                  management issues                              84
                        improvements                                  113              recommended policies for protection            88
                                                                                       recommended policy on protection               55
                                                                                 Marine minerals                     41,141, 143 - 148
                                                                                       in the territorial sea plan                    153
                                                                                       recommended policies on managing               146
                 Important fishery areas                          78,146               resources                                      141
                        defined                                       76               risks from development                         141
                 Indian tribes                                        107        Marine parks                                         113
                        archaeological and cultural resources         112        Marine Plastics Pollution Research and Control Act
                 Industrial wastes                                    117        of 1987                                              119
                 Information                                                     Marine Protection, Research, and Sanctuaries Act of
                        and marine wildlife management                86         1972                                                 119
                        and oil and gas development                   128        MARPOL                                               119
                        and fishery management                        75         Migratory birds
                        on air and water quality                      120              recommended policy on protection               55
                        See also Public Information Program                      Minority task force policy recommendation
                 International Pacific Halibut Commission             61               oil and gas exploration and development 130
                 Interstate coordination                        164-165                on marine minerals                             147
                 Intertidal Areas                                     97         Mitigation                                           55
                        overuse                                       98         Municipal wastes                           40,117,120
                        recommended policies for protection           101
                 Intertidal Marine Gardens                            100
                        in the territorial sea plan                   151         N
                        suggested locations                           104
                 Inventory and impact assessment                      54         National Energy Policy
                                                                                       need for                                       128
                                                                                 National Environmental Policy Act                    54
                  L                                                              National Marine INsheries Service                62,85
                                                                                 National Marine Pollution Program                    119
                 Lane County                                          36         National Pollutant Discharge Elimination System
                 Lease Sale 132                                 126,130                                                               119
                 Lincoln County                                       36         National Wildlife Refuges                            80
                 Local government                               158-160          Nonpoint pollution                                   117
                        ocean planning role                     158-159
                        recreational planning                         113
                        revenues from ocean development               159         0

                                                                                 Ocean Policy Advisory Council                154-155
                  M                                                                    actions needed concerning oil spills           139
                                                                                       actions needed for fishery management          77
                 Magnuson INshery Conservation and Management                          actions needed to protect intertidal areas
                 Act                                                  61                                                              102
                 Mariculture                                          42               development of the territorial sea plan 153
                        in the territorial sea plan                   152              options for composition                        154






                                                                                                                                Index * 201


                          purpose of                                      155               need to develop coastal recreation plan          113
                          recommendations for marine birds and                        Oregon Division of State Lands                         162
                          mammals                                         89                actions needed on marine minerals                147
                          recommended membership                          155               actions needed to protect intertidal areas
                          use of Project Review Panels                    156                                                                103
                   Ocean resources conservation                                       Oregon Economic Development Department 163
                          See Conservation                                            Oregon Fish and Wildlife Commission
                   Ocean stewardship area                                                   and fisheries management                         61
                          delineation of                                  49                See Oregon Department of Fish and Wildlife
                          effect of designation                           49          Oregon Legislature
                          Oregon's interests in                           49                actions needed on marine. minerals               147
                          state-federal agency coordination               167         Oregon Ocean Resources Management Act
                   Oil and gas                                 42,123-131                   policies                                         52
                          exploration and development steps               123         Oregon state agency programs                    161-163
                          leasing processes                               126               roles in public education                        171
                          onshore impacts of development                  125         Oregon State University Sea Grant
                          public concerns                                 127               role in public information program         170,172
                          recommended minimum conditions for                          Outer Continental Shelf Lands Act                126,144
                          leasing                                         130               needed revisions                                 131
                          resource estimates                              123
                   Oil pollution                                          118
                   Oil spills                                124,133 - 139             P
                          federal issues                                  138
                          in the territorial sea plan                     152         Pacific Fishery Management Council                     61
                          Oregon's regulatory framework                   134               management responsibilities                      62
                          prevention                                      135         Pacific Northwest OCS Task Force                       127
                          recommended policies                            137         Placer Task Force, State Federal                       145
                          response plan components                        134         Placers
                          vulnerability to                           27,134                 See Marine Minerals
                   Oregon Coastal Management Program                                  Pollution                                 115,117 - 122
                          territorial sea plan                            153               effect on fisheries                              75
                   Oregon Department of Agriculture                       163               from oil and gas exploration and development
                   Oregon Department of Energy                            162               125
                   Oregon Department of Environmental Quality 162                           marine debris                                    41
                          actions needed concerning oil spills            138               threat to intertidal communities                 97
                          actions needed to protect air and water quality                   threat to marine birds and mammals               83
                                                                          122         Population
                          pollution control programs                      119               density                                          35
                   Oregon Department of Fish and Wildlife                 161               effect of growth on recreation                   110
                          actions needed for fishery management           78                estimate for coast, 1987                         35
                          actions needed to protect air and water quality             Ports                                              38,40
                                                                          122               major fishing                                    60
                          actions needed to protect intertidal areas                  Preservation                                           53
                                                                          102               defined                                          54
                          recommendations for bird and mammal                         Project Review Panels                           156-157
                          management                                      90          Public information
                   Oregon Department of Geology and Mineral                                 and conservation                                 55
                   Industries                                             162         Public Information Program                169 - 172, 175
                   Oregon Department of Land Conservation and
                   Development                                            163
                          actions needed for marine minerals                           R
                          management                                      148         Radioactive pollutants                                 118
                          actions needed to protect air and water quality             Recreation                                        41,107
                                                                          122
                          and the Ocean Policy Advisory Council 155                         in the territorial sea plan                      152
                   Oregon Department of Parks and Recreatiddl, 163                          need for coastal plan                            112
                          actions needed to protect intertidal areas 103                    risks to quality                                 110





                   202 * Oregon's Ocean Resources Management Plan


                  Recreational fishing                                39           W
                  Research
                        marine mineral deposits                      145         Waste disposal                                       40
                        needed on mineral deposits                   143         Water quality                                       115
                        pilot projects                                55               in the territorial sea plan                   152
                  Risk assessment                                     54               recommended policies for                      121
                                                                                 Water Quality Act                                   119
                   S


                  Senate Bill 606                                    144
                  Sensitive species
                        listed in Oregon                              82
                  State-federal agency coordination             166-167
                  State-federal coordination
                        on marine minerals                           146
                  Statewide Comprehensive Outdoor Recreation Plan

                  Stewardship                                 48-49,51


                   T


                  Territorial sea                                     48
                        prohibition of oil and gas activities        130
                  Territorial sea plan                          151-153
                        air and water quality                        122
                        and marine birds and mammals                  89
                        intertidal areas                             101
                        oil spills                                   139
                        on marine minerals                           147
                        recreation issues                            113
                        topics to be addressed                       151
                  Threatened and endangered species                31,53
                        policy on protection                          55
                  Tidepool Etiquette                                  99
                  Tillamook County                                    35
                  Thurism                                            108
                        annual revenues from                         108
                        effect on intertidal areas                    98
                        employment                                   108
                  Tbidc wastes                                   118,120
                  Transportation                                      40


                   U

                  U.S. Army Corps of Engineers                       119
                  U.S. Fish and Wildlife Service                      85
                        National Wildlife Refuges                     80
                        proposal to protect offshore colonies         91


                   V

                  Vessel discharges                                  117





















































                                                         -.*@ -*e
                                                 Publication Design
                                                       Layout,
                                                         and
                                                 Desktop Publishing
                                                       by the
                                      Oregon Coastal and Ocean Program staff
                                                        **** V*












































































































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