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













































































              GC
              1020
              .T87
              1999
              c.2



                                             L111



















                    '-7



                                                                                                                                                                                                                    M








                                                                                                                                                                                                              `00'




                                                                                                                                       41@' 17



                                                                                                                 0


                                                                                                                                                                                                       build


      A
                                                                                                                                                                               -tyregional,
                                                                                                                                                                                                                                                  Al
                                                                                                                                         economi               and to-ther interests a


                                                                                                                                          C
                                                                                                                             ay                                                        -ag        da f
                                                                                   sm, el;p bring i eft6fï¿½ in MM                           of wmih- vaisi ve             ocean, s,          -ev           or
                                                                                        t 75. Offi
                                                                                                  cial White H        ho!Ography


                                                                                                                                           MR-M
                                                                               @Re have to,                                                                                                          ds
                                                                                                                                                   -.1=7


                              ..".5w., =7@






                                           U            I I ty9













                                                   a"T
                                                                                                                                                                           T79T
                                                                                                                                                                                                                         . .. . ......























                                                                                                                   --Actk 0@     ,It

                                                                    r@y
                                                           A     /AX.,









                                                                                                                                                                                             F:
                                                                 John Pisani,
                                          QWIM
                                         e                                                                      Ua. bepartment of C
                              Bria nkuA
                                                                 Ron Pouls                                                            OmIrl'a c,e
                                                                                                                                             f
                                                                                                                                                        icAdm' sttaitio
                              OR Eric,Cha'pman, USCG*            mlichaef'P'@r`                                     N atibnal Go0aftic and, AllhosPlid!@        iff"i    n
                                                                                                                              @en or   e'. Nev'v''
                              Erika Clark                                                                         SI. D'e'Ipaff  t f th
                                                                                                                u
                              H. Larry Clark                                                                      S. be aftftlienti6f. Aug,itc-u4TM0,
                                                                 Wayne Raabe                                           p
                              Elizabeth-My                       Mithael ReeV                                   U.S. DepdMOnt of Defenge
                                                                               e                                                                                                            ZFI
                              Elliot Diringer                                                                       0.8-Alpiy Corps of trigin9.   s
                                                                 @-uzanne Schw.-Aftz
                                                                                                                U.S.'D'OpArtmentof the thteridr
                              Or., SVIVU.A@ Emarle               @Fra,h Sharples
                              k-fiD.Evans
                                                                 Russell,Sm iith"
                              murrehimane Feld,                  Milte Soul                                               it,                    'T,
                                       @' 1.11'                        -                                                 M
                                                                 Dr., R-fchaM
                              Mfl-


                                                          t,;@r  "RO-Q'i
                                                              7Zh




                             ME,







                                           "Imp
                                                                                                                                                                                 A mm@@


"Hope, creativity, and imegination will be required to meet the challenges that we face

with our oceans.  But they are, after all, the traits that first enabled and inspired explorers

to take to the sea.  They are traits that allowed us to look at our inextricable ties to our

environment and invent new ways to protect our natural wonders....In the 21st century,

these traits must lead us to preserve out living oceans as a sacred legacy for all time."

President Williams Jefferson Clinton

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























                                                                                                                      wc
                                                                                                                    00

                                                                                                                                                                                                  6,



                                                                                                                  2-0 [email protected]
                                                                                                                  22  8ioteChh&ltrqfy
                                                                                                                  24  Offflibte, 04 and   b


                                                                                                                  29c Tfti@"Laid of the                 'on
                                                                                                                                 9 j avi-ti n
                                                                                                                                   If N , iga, io
                                                                                                                               -e Law'Eh
                                                                                                                  @32 Mbritfrei           forc!@@,


                                                                                                                  36  S_wJlkrff6rg6d Herita.06 Rl@s_b_Wdffes
                                                                                                                  38  Coral- Rbdfs
                                                                                                                  46  BtUaries
                                                                                                                  4z  matimb P.roteeteSLaM




                                                                                                                                 JAW.

                                                                %
                                                                                                                            44"A




                                                                                                                                                     2-

                                                                                                                                                       4


A Look to the Future

September 2, 1999

To The President:

In June of last year, you and Vise President Gore presided over the National Ocean
Conference in Monterey, which drew together for the first time the full array of
ocean interests-from government to industry, science to conservation.  Among
the many initiatives you and the Vce President's launched at that historic gathering
were new steps to restore coastal reefs, rebuild marine fisheries, preserve freedom
of the seas, provide public access to military data and technology, enhance the
competitiveness of America's ports, and protect our national marine sanctuaryies
from oil drilling.

In your address to the Conference, you also directed your Cabinet to report
back to you with additional recommendations fora  coordinated, disciplined,
long-term federal ocean policy.  Today, on behalf of the 
Cabinet and independent agencies with reponsibility for ocean
affairs, we are pleased to submit this report with our recommendations
for a comprehensive policy to guide federal efforts into
the 21st century.

The national dialogue begun in Monterey reflects the diverse,
sometimes competing values inherent in our oceans.  The seas
are not only a source of economic benefit and a major avenue of
world trade, but they are also a vital component of our national
defense, a natural treasure to be preserved, and a fascinating frontier
with secrets yet to be discovered.  Our recommendations build on
the broad consensus among Conference participants on the vital importance
of the oceans to our nation's future-our economy, our security, our
health and well-being-and the challenges we face in ensuring that all the
ocean's many resources are protected and sustained.

There is growing awareness among Americans of the many ways the oceans












              influence our daily lives. Farmers in the nation's heartland depend on weather
              systems driven by the interaction of the oceans and atmosphere to nourish
              their crops. Citizens who have never seen an ocean may benefit from energy and
              food from the waters off our coasts. Marine organisms provide the cure for many
              diseases and the promise of many more cures. Ocean-going vessels carry the bulk
              of our world trade, linking us to the global marketplace and keeping our economy
              strong. Our naval forces, which preserve the international freedoms of navigation
              so crucial to maritime commerce and global stability, use ocean data daily in their
              worldwide operations. A strong national security is essential to our nation's
              ocean policy.

              At the same time, we have come to understand that the "boundless" oceans have
              limits. They cannot provide unlimited fish to feed the growing populations of the
              world, nor can they absorb unlimited wastes from human activities. We also are
              beginning to realize the importance of preserving the oceans'complex and deh-
              Cate balances. Non-native species discharged from ships'ballast tanks into U.S.
              waters can irrevocably alter an ecosystem. Toxic algal blooms are degrading
              many coastal areas; knowing how they form will be key to preventing future out-
              breaks. And unchecked coastal development risks destroying ocean habitats that
              sustain economic activity and the natural splendor that for ages has drawn us to
              the sea.                                                                                                                                  t

              One thing is dear: if we truly are to protect our oceans - and the many
              benefits they provide - we first must better understand them. We only recently
              discovered whole colonies of previously unknown types of life surviving at great                                                     4-
              ocean depths, drawing their life energy - not from the sun like other known                                                         /4".
                                                                                                                                                 410
              life forms - but from chemicals under the seafloor. We have dis-

              C
               overed that life exists in every drop of sea water, and we have





                                          -.Mal
                                                                     w'-
                                          @ryop Wsea,@7a@er,           e @ave
                            WarlyneMurawskil
                            NGS image collection


                                                                                                                                                                      S
                                                                                                                                                                        Cirn @fiture 3













                                                                                     refined our understanding of the way the oceans drive climatic patterns like El Niho,
                                                                                     which shape the weather across the globe. Yet, despite such advances, the seas
                                                                                     remain largely unexplored. More ocean data and research are critical for identifying
                                                                                     new resources and economic opportunities, maintaining our military readiness, and
                                                                                     ensuring healthy oceans for future generations.
                                                                                     In developing the recommendations contained in this report, we have been guided by
                                                                                     the following core principles:

                                                                                     SUSTAINING THE ECONOMIC BENEFITS OF THE OCEANS - Future generations deserve to
                                                                                     inherit healthy, bountiful oceans.
                                                                                     STRENGTHENING GLOBAL SECURITY - Freedom of the seas is integral to the strength
                                                                                     and security of our nation.
                                                                                     PROTECTING MARINE RESOURCES - Strong protection of our ocean and coastal environ-
                                                                                     ment, using a precautionary approach and sound management, is no longer a choice,
                                                                                     but a necessity
                                                                                     DISCOVERING THE OCEANS - Exploring and understanding the oceans is critical to our
                                                                                     well-being and survival.
                                                                                     In the pages that follow, we offer specific recomrnendations in twenty-five subject
                                                                                     areas. For example:
                                    L'                                               To sustain economic benefits, we recommend working with coastal communities on
                                                                                     plans for sustainable development; creating new incentives to reduce overfishing and
                                                                                     develop guidelines for environmentally sound aquaculture; and increasing support for
                                                                                     identifying and harvesting marine resources with pharmaceutical benefits.
                                                                                     To strengthen global security we recommend working with the U.S. Senate to ensure
                                                      CMC
                                                              F.                     early ratification of the Law of the Sea Convention; improving our ability to detect and
                                                                                     deter maritime threats before they reach our shores; expanding efforts to maintain
                                                                                     and exercise traditional freedoms of navigation and overflight around the world; and
                                                                                     extending to 24 nautical miles the "contiguous zone" for enhanced federal law
                                                                                     enforcement purposes.





                to the,-S@a@













                                                                                                                                                     @,4




             To protect marine resources, we recommend coordinating federal efforts with
             state and local "smart growth" initiatives in the coastal zone; taking new steps
             to reduce urban and agricultural runoff; strengthening efforts to protect and
             restore essential fish habitat; and exploring the concept of marine wilderness
             areas.

             To better understand and use the oceans, we recommend expanding
             coastal, open-ocean, and seafloor observations; integrating satellite,
             buoy and other observing networks; advancing basic and
             applied research to increase our knowledge of ocean and
             coastal areas; supporting exploration in underwater areas;
                                                                                                              k4
             and establishing a coordinated effort to promote ocean
             science education.
                                                                                                   ensive
             To ensure a coordinated, focused, federal effort to imple-
                                                                         AdPr P.
             ment this report, we recommend establishment of a                 W    61ky to        ore, pro -
             high-level task force composed of undersecretaries of
                                                                                                   'aCeans
                                                                          t6ct  0041            ow
             relevant agencies and departments to be chaired by the
             Deputy National Security Advisor and the Chair of the
                                                                                t
                                                                                 hotewt
                                                                            in      .,,n            ium.
             council on Environmental Quality
             We believe this report makes an important contribution to the
             national dialogue begun last year in Monterey We look forward to                                                                                     .4
             working with you in developing and implementing a comprehen e
             federal policy to explore, protect, and sustain our oceans in the new millennium.


             Sincerely,


                                                                                                                                ,110,01

             Richard Danzig                               William M. Daley
             Secretary of the Navy                        Secretary of Commerce



                                                                                                                  4,4


                                                                                                                                                   America's Ocean Pdture5
                                                                                            I I PIP 1.11


"Seventy-one percent of our planet is ocean, and seventy-one percent of our
body is salt water....There is this extraordinary connections between who we
are as human beings and what happens in this magnificent body of water."

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





                                                                                                                                      Sustaining the Economic

                                                                                                                                                                            Benefits of the
                                                                                                                                 GM,
                                                                                                                            IM




                                                                                                                                                                   Z lilip
                                                                                                                                                                                                         Oceans

                                                                                                                                                          7771
                                                                                                  -NI
                                                                                                                                       ML







                                                                                                                                        M
                                                                                                                    d


                                                                                                                                            IQ

                                                                                                                                                                                                       N.,





                            Future geiieratims deserve to inherit healthy, bountiful oceans.




                                                                                                                                                                                                                          America's 11"Min











                                                                                  0
                                                                          0





                                                                           ur marine transportation system - which consists of waterways, ports and
                                              Build the world's            their intermodal connections, vessels, vehicles, and system users - supports
                                        most technologically              our economy and national security through dependable all-weather trans-
                                                                       portation for the movement of goods and people. it is the most flexible, most cost-
                                     advanced, safe, secure,           effective, and safest mode of domestic and intemational freight transportation,
       "A
                                  efficient, effective, accessible,    providing competitive access to suppliers and markets in an increasingly global
                                                                       economy. It enables the swift mobilization and supply of America's military both
                               globally competitive, dynamic,          through military assets and through the sealift and logistical support provided by
                                                                       the private commercial U.S. flag merchant fleet. And it also provides recreational
                             and environmentally responsible
                                                                       value to millions of boaters, fishermen, and cruise passengers.
                            system for moving goods and people.
                                                                       By 2010, U.S. foreign trade in goods is projected to more than double today's value,
                                                                       reaching $5 trillion in constant dollars, with the volume of foreign trade cargo
                                                                       increasing by more than 30% to 1.7 billion metric tons. This rise in marine trade
                                                                       is expected to fuel demand for increasingly flexible and less expensive marine
                                                                       transportation services. This demand, as well as increases in recreational use,
                                                                       h
                                                                           -speed ferry transportation, cruise ship traffic, commercial fishing, and
                                                                        igh
                                                                       expanded U.S. military needs for force projection and supply, will strain the
                                                                       marine transportation system's services and infrastructure. However, the ability
                                                                       of today's system to handle tomorrow's emerging needs is severely challenged.

                       V                                               In response to a Congressional mandate, the Coast Guard, the Maritime
                            A                     ]wow
                                                                           Administration, the Army Corps of Engineers, the National Oceanic and
                                                                               Atmospheric Administration, the Environmental Protection Agency,
                                                                                  and nine other federal agencies collaborated with stakeholders
                                                               T@,                 to assess the marine transportation system and present their
                                                                                     findings in a report to Congress. The report of the Marine
                                                                                      Transportation System Task Force addresses several concerns
                                                                                      and recommendations to be implemented by the combined
                                                                                      efforts of the private, local, state, and federal sectors.
                                                                   JOL
                                                                          Ai





                                                                                      Highlights of the report are presented here.




      8 Turning to the Sea







                                                                                                                                                                                          0    pro


                 Ongoing concarns                                                              R,
                ï¿½ Many federal agencies, state and local governments, port
                  authorities, private industries, and labor groups share respon-
                  sibilities for managing safety, security and environmental                 0 Create a
                  protection, making coordinated responses to challenges and                    national coopera-
                  opportunities very difficult to achieve.                                      tive marine transportation
                ï¿½ Innovative U.S. financing, regulatory changes, and tax                        system research program.
                  mechanisms may be needed over the long run to spur the                     0 Achieve environmental protection and safe-
                  substantial public and private capital investments needed to                  ty through improving local coordination, ballast
                  meet growing demands.                                                         water management, and design and system man-
                ï¿½ The marine transportation system infrastructure and support-                  agement of &edged channels.
                  ive information systems may be stretched to their lin-Lits to              0 Establish supporting information management
                  cope with projected increases in both the system's users and                  and infrastructure in: hy&ographic and weather
                  the size, speed, and diversity of vessels.                                    information; tracking cargo, passengers, and vessels;
                ï¿½ Growth in vessel traffic will increase risks to sensitive ocean,              and waterways traffic management information.
                  coastal, and inland environments.                                          0 Meet national security objectives by balancing com-
                                                                                                mercial demands with safeguards and inspections to
                /'rnecommendat@ons                                                              protect against security threats and support military
                @_M                                                                             mobilization.
                ï¿½ Facilitate coordination among all stakeholders by establishing
                  a federal Interagency Committee for the Marine Transportation                 For irnore @ngormaVon
                  System, a nonfederal Marine Transportation System National                    o http://vvwwuscg.mil
                  Advisory Council, as well as regional and local committees.                   Ei http://wwwmarad.dot.gov
                ï¿½ Explore funding strategies that coordinate public funding                     F-i http://vvwwnos.noaa.gov
                  processes and maximize the effectiveness of public and                        F-i http://vvwwusace.armyrnil
                  private investments.                                                          Ei http://wwwepa.gov/
                ï¿½ Improve competitiveness and safety by establishing infra-                             owow/oceans
                  structure and information systems that streamline vessel
                  inspection, reporting and port clearance procedures, and that
                  improve the marine transportation system traffic forecasts.





                                                                                                                                                                          America's Ocean Future 9












                                                            he recent rapid expansion of trade, wealth, and recreational opportunities has led
                                                            to a corresponding growth in vessel traffic and in the potential for accidents. About
                                         Provide tools for  3,500 ships are involved annually in accidents on our nation's waterways, and 50%
                                    safe n a viga tion to   of waterborne cargo contains hazardous materials. Human error is the cause of
                                 eliminate deaths, injuries, approximately 8o% of those accidents. Educating mariners, pilots, crew, and res-
                                                            cuers about navigational concerns and maintaining a continuing dialogue among
                               and environmental            marine user groups will facilitate the creation of a safer operating environment.
                             andproperty                            To reduce the risk of accidents and spills, U.S. mariners and harbor pilots
                                                      Premised         need information derived from new integrated electronic technolo-
                           damage.              on mutual respect and    gies, such as seafloor mapping, detailed large-scale digital vector
                 ellI                        shared commitment by govern-  charts, precise positioning systems, and real-time and predict-
                                          ment, industry, and labor, the Coast ed oceanographic and meteorological data. Expanded over-
      7@
                                         Guard's Prevention Through People pro- seas charting services are also needed to support U.S. mih-
                                        gram promotes marine safety and environmen- tary and commercial navigation in foreign waters.
                                       tal protection by addressing the human element -Because most of the nation's harbors and channels are
                                       the root cause of approximately So% of marine not naturally deep enough to accommodate modern ves-
                                       accidents. Through this program, the Coast Guard sels, the U.S. dredges an average Of 275 million cubic yards
                                       works with mariners to develop innovative, non-
                                                                              of sediment a year to maintain and improve the 299 deep-
               IMP                      regulatory solutions to human element issues,
                                        such as publishing advisory risk management draft (greater than 14 feet) and 626 shallow-draft naviga-
                                          guidelines and other "lessons learned" tion projects. However, routine dredging can be environ-
                                           documents.                    . mentally destructive, and many of America's greatest sea-
                                                http:wwwuscg.mil/hq/      ports have contaminated sediment that cannot be dredged
                                                   g-m/runc/ptp/     /without harm to the environment. The nation's need for safe, effi-
                                                                      cient marine transportation must be balanced with the priority of
                                                                   healthy coastal waters.

                                                            (Ongc@ng tc@pncerns
                                                            0 The rapid advance in the technological capabilities of navigational aids has out
                                                              paced the government's ability to provide the quality-controlled, standardized
                                                                       need In
                                                                         gies

                                                                           c



                                                                   )ro-

                                                                   Lronmen






















  Air
                                                              data streams needed to "fuel" new navigation products and systems.




     10 Torning to the Sea



             elm                                                                                                     M M M M M M M

                                                                                                                    M9115-                   _dMIR rib"


                                                                                                                        14' W_


              ï¿½ Many areas of U.S. coastal waters have not been mapped in 50 years, including 35,000 of the 43,000
                 square nautical miles identified in 1993 as critical to U.S. ports and their approaches.
              ï¿½ Although increased maintenance dredging for existing navigation channels and additional dredging
                                                                                                                                 N@
                 requirements for port improvements are required, better dredging techniques have not been identified.
              ï¿½ The greatest threat to safe navigation is human error. Yet, too few educational programs exist to teach
                 commercial and recreational mariners the importance of human error in accident prevention.
              (Vecommendavons
              ï¿½ Eliminate the hydrographic survey backlog of 35,000 square nautical miles of critical areas in U.S. ports
                 and their approaches, and map the one-third of the 9 5,000 miles of U.S. coastline that has never been
                 mapped using photogrammetric methods.
              ï¿½ Complete the production of electronic charts for U.S. and overseas waters, and develop an electronic sys-
                 tem for disseminating timely updates and corrections to U.S. military and civilian mariners worldwide.
              ï¿½ Deploy real-time environmental observation and prediction systems, such as the Physical Oceanographic
                 Real-Time System (PORTS), in U.S. high-traffic areas, and complement them with high-resolution predic-
                 tions of all navigationally significant weather and oceanographic conditions.
              ï¿½ Expedite the development of technologies for maintaining navigation channels to improve the reliability
                 and safety of federal navigation projects.
              ï¿½ Conduct research on effective and environmentally sensitive management of sediment, reduction of                                    'W77,
                 the flow of sediment into waterways, remediation of contaminated sediment, and disposal of dredged
                 spoil in an environmentally sound manner.
              ï¿½ Develop educational programs to teach commercial and recreational mariners the importance of                            AN
                 avoiding human error in accident prevention.

                 For more @ngonrnaUon
                 o http://chartmaker.ncd.noaa.gov
                 Ei http://wwwusace.armymil
                 Ei http://vrvvwopsd.nos.noaa.gov/d_ports.html
                 Ei http://wwwuscg.niil/
                 Ei http://marine.er.usgs.gov
                 Ei http://wwwepa.gov/owow/oceans/dmmp





                                                                                                                                                        Arnerka's Ocean Future

                                                                                               6 .. Q-166-













     Oil



                                                                                             he travel and tourism industry is the nation's largest employer and second-
                                                                                             largest contributor to the U.S. gross domestic product, generating over $700
                                                               Create long-term
                                                                                             billion annually. Coastal tourism and recreation comprise the largest and
                                                                tunides for                  fastest-growing sector of the U.S. service industry accounting for 85% of all
                                                        Oppor
                                                   coastal tourism through                   tourism-related revenues.
                                               sustainable practices and                     Many coastal communities depend on healthy coastal ecosystems and clean
                                                                                             coastal waters for their survival. Yet rapidly growing coastal populations,
                                            effective environmental                          increasing numbers of visitors (18o million annually), and unsustainable coastal
      10                                  protection.                                        development are degrading the water quality and destroying the habitats that
                                                                                             are the main attractions of coastal areas. Although tourism and recreation-
                                                                                             related development are major factors shaping the use and management of
                                                                                             U.S. ocean and coastal resources, this sector has not been regarded as requiring
                                                                                             policy@ management, planning, and resources. The federal government can help
                                                                                             tribes and states, which have key roles in managing coastal tourism, achieve
                                                                                             their goals of protecting vital coastal ecosystems while promoting economic
                                                                                             growth and economic stability

                                                                                             (Ongo5ng bancerns
                                                                                             0 Federal efforts to help tribal, state, and local partners promote and implement
                                                                                               sustainable practices for coastal recreation and tourism are fragmented or
                                                                                               limited.
                                                                                             0 There is no systematic data collection on the magnitude, value, and impacts
                                                                                               of coastal tourism and recreation, which should be the foundation of sound
                                                                                               planning and sustainable management.
                                                                                             0 Federal efforts to educate tourists and recreational users about safe and sus-
          "R @@                                                                                tainable use of coastal resources are expanding, but the lack of coordination
                                                                                               and resources significantly limits progress, and key opportunities are missed.
                                                                                             0 Current financial and technical resources available to federal, tribal, state, and
                                                                                               local entities are inadequate to effectively manage and safeguard many of the


                                                                   AL,

                                         40       4
                               x
                                                                                      J


coastal and marine protected areas and other tourism and recreation resources
(e.g. national marine sanctuaries, national and state parks, city beaches) that are the
foundation of coastal tourism and recreation.

There are too few areas for marine tourism use.

Recommendations

Collect and provide access to information on the magnitude, value, and impacts of ocean and
coastal recreation and tourism, including information on a coastal-country basis and studies
on the dynamics of tourism in coastal and marine areas.

Build on existing groups to coordinate relevant federal, tribal, state, and other programs
dealing with ocean and coastal resource management to foster a sustainable tourism industry.

Mobilize public/private partnerships to develop coordinated and effective policies and
public outreach programs related to coastal recreation and tourism.

Provide guidance and technical assistance to tribal, state, community, and private-sector
partners to helpl them sustainable manage coastal recreation and tourism.

Evaluate current federal, tribal, state,and local programs related to recreation and tourism,
and develop best management practices as part of general guidelines for managing sustainable
recreation and tourism industries in the nation's coastal zones.

Working with tribal, state, and local governments, create new areas for sustainable
marine tourism, and provide access to these areas.

For more information

http://state-of-coast.noaa.gov/
http://www.epa.gov/surf2
http://www.mms.gov/intermar/marineac.htm
http://www.whitehous.gov/PCSD/

In South Florida, the environment is the economy.  A recent study found that over 2.3 million
visitors spent --------- in 1997 on recreation and tourism in the Florida Keys.  -----economic
impact of the visitors was $2.9 million in cutput/sales, $1.7 billion in income, and almost
--,000 jobs.  Ninety-four percent of all receating visitors were concerned about protecting
the environment of the Florida Keys.

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








                                                                            J


                                                                                                ur coastal communities are the most densely populated and fastest growing
                                                                                                areas in the U.S.: 14 of the nation's 20 largest cities are coastal, over 40% of new
                                                              Create coastal                    commercial and residential development is along the coast, and approximately
                                                       communities with                       3,6oo people move to the coast every day. Over 50% of the U.S. population lives
                                                                                           by the coast today; by 2025, this figure is expected to reach 75%.
                                                  sustainable economies
                                                                                           Coastal communities contain some of the nation's most productive and diverse nat-
                                               based on well -planned
                                                                                           ural resources, including valuable habitats, fisheries, recreational areas, and natural
                                                                                           treasures. However, growing demands for access to the coast have resulted in habi-
                                            development and health
                                                                            Y
                                                                                           tat loss, water pollution, increased polluted runoff, and sprawl. Helping communi-
                                          coastal ecosystems.
                                                                                           ties reduce damage from natural disasters, address contamination sites (e.g., brown-
                                                                                           fields), and revitalize waterfronts will make better use of existing developed areas
                                                       "A@                                 and reduce unwise new development.
                                                                                           In addition, some portions of the U.S. coastline are severely eroding, threatening the
                                                                                           property and livelihoods of coastal communities. Federal offshore sand resources,
                                                                                           which are used for beach nourishment projects, are needed to address erosion prob-
                                                                                           lems. However, there are concerns about environmental harm from. sand collection
                                                                                           and replenishment activities, as well as potential conflicts with other users of the
                                                                                           coastal ocean, such as fisheries.

                                                                                           (Ongp@ng (Canceirns)
                                                                                           0 Many coastal communities lack the tools, resources, and information to
                                                                                              strategically and sustainably address the impacts of rapidly growing coastal
                                                                                              populations, including increased runoff from developed areas.
                                                                                           0 Some federal and state development policies and practices have unintentionally
                                                                                              encouraged suburban sprawl and disinvestment in urban cores, or building in
                                                                                              disaster-prone areas.
                                                                                                    0 Some policies have allowed for public and private investment in coastal
                                                                                                      areas prone to natural disasters, increasing the risks of loss of life and
                                                                                                      property and damage to natural habitats.
                                       - ldoo@`_




                                                                                5,
        14 Turning to the Sta
                                                                           A'











                                                                                                Thirty-
                0 No overall management framework exists to ensure                      three of the thirty-five        X
                   that federal offshore sand resources are used in a             US. coastal states and territories
                   timely, cost-effective, and environmentally                now have coastal zone management
                                                                            plans to help coastal communities improve
                   sound manner.
                                                                          long-term planning and sustainable use of
                                                                        their natural resources. This state-federal partner-           region-
                                                                       ship helps communities implement poRution con-
                ï¿½ Promote comprehensive management by                  trols, land-use planning, waterfront revitalization,            al sand
                   helping tribal, state, and local goverrun ts        education and other efforts to address growing coastal          manage-
                                                            en         populations and to reduce habitat destruction, harmful          ment initia-
                   adopt and implement sustainable develop-            algal blooms, runoff pollution, and vulnerability to
                   ment management plans for coastal zones.            storms and other hazards. For example, in Florida,              tives; analyze
                ï¿½ Examine and revise policies and programs,            coastal management is helping revitalize waterfront             the potential
                   such as flood insurance subsidies, that pro-         areas, and plan and implement the South Florida              impacts associated
                                                                          Ecosystem Restoration Wtiative, the largest               with the use of fed-
                   mote unsustainable or hazardous development.             coastal restoration project in history.              eral sand resources;
                ï¿½ Increase support for tribal, state, and local efforts                 http-//wwwnos.noaa.                    and identify possible
                   to plan for and mitigate the impacts of natural haz-                  gov/Programs/ocrm.                 mitigation measures to
                   ards on communities and natural resources; to redevel-                         htmI                  offset these impacts.
                   op brownfields appropriately and revitalize waterfronts in
                   coastal communities; and to reduce the flow of polluted runoff                      Fair more @nqarmaVan
                   into coastal watersheds, bays, and estuaries.                                       Ei http://state-of-coast.noaa.gov/
                ï¿½ Work with tribes, communities, states, nongovernmental organi-                       ii http://wwwmms.gov/intermar/
                   zations, and across federal agencies to produce useful indices of                       marineac.htm
                   sustainable development to measure and track progress at local,                     Ei http://wwwepa.gov/win
                   regional, and national levels.                                                      Ei http://vvwwepa.gov/surf2/
                ï¿½ Work with tribes, communities, states, nongovernmental organi-
                                                                                                       11 http://marine.er.usgs.gov
                   zations, and across federal agencies to create a coordinated                        Ei http://vvwwwhitehouse.
                   "digital coast" electronic information system for coastal decision                      gov/PCSD/
                   makers that provides easy access to comprehensive data on such
                                                                                                       o http://wwwhvable
                   topics as community vulnerability to natural hazards, impacts of                         communities.gov
                   land-use changes, and maps and descriptions of coastal habitats.
                ï¿½ Form closely coordinated partnerships among the federal gov-
                   ernment, tribes, coastal states, and communities to develop






                                 _7         @ _i; 11 Ell I



                                              aters under U.S. jurisdiction contain more than one-fifth of the world's most
                                              productive marine areas. However, fisheries resources in these waters, the
                             Increase the    ecosystems that support them, and the communities that depend on them are
                          long-term economic under increasing pressure to meet a growing demand from consumers, who spend
                                            about $46 billion a year on fish products.
                        and social benefits to the
                                            In the past, U.S. government subsidies fostered increases in capacity in the fisheries
                      nation from living marine sector, and until recently, many fisheries in the U.S. had unrestricted access. As a
                    resources b eliminating over- result, too many boats were chasing too few fish. Several other factors have exacer-
                                            bated the problems facing domestic fisheries. Bycatch (the incidental capture of
                   fishing and rebuilding overfished nontarget species) has significantly harmed many species of fish and endangered
                                            sea turtles, marine mammals, and birds. In addition, much of the bycatch is dis-
                   stocks important to commercial, carded because it is less valuable than the target species. Other human stressors,
                  recreational, and subsistence such as coastal development, pollution, anchoring on coral reefs, and some types of
                       fisheries.           fishing gear, have substantially degraded habitat essential for fish productivity.
                                            With strong management in recent years, such as the federal implementation
                                            of programs controlling access to fisheries, many stocks are beginning to recover.
                                            Several fisheries have also begun to address the bycatch issue by requiring turtle-
                                            and fish-excluder devices, and the regional Fishery Management Councils are
                                            involving broader communities in the management of the nation's fisheries. But
  r                                         even with current efforts, 33% of federally managed fish stocks are overfished, and
                                            it will take ten years or more before some fisheries fully recover and become com-
                                            mercially viable and sustainable. New fisheries management practices will require
                                            a more broad-based ecosystem approach.

                                              (Onga@ng Concerns
                                              0 Fishing overcapacity continues to exist in many U.S. fisheries.
                                              0 Bycatch of nontarget species, although declining, continues to threaten
                                               marine biodiversity and reduce economic opportunities in other fisheries.
                                              0 Current harvest restrictions may have to be even more stringent to
                                       @@qe Pe















                                                                                                                                                                                              rM

                   eliminate overfishing and rebuild stocks to                                             0 Develop tedi-
                   achieve sustainable economic benefits.                      U@ La  f@   @4                 nologies to improve                                             %
                ï¿½ The status of 65% of federal marine fisheries                                               fisheries science and
                                                                                                              further reduce bycatch a
                                                                             0   0                                                      nd
                   stocks is unknown, hampering our ability to                                                                                                                 'tt.
                                                                                                                                                                                              WA
                                                                                @A                            wa
                                                                                                                 ste.
                   manage fisheries sustainably.
                                                                                                           0 Explore the scientific and conser-                                            L
                ï¿½ There are major data gaps on bycatch levels
                   in many fisheries and on the impacts of fish-                                              vation. benefits of marine harvest
                                                                                                                                                       4'
                   ing activities on most essential fish habitats.                                            refugia and other protected areas.
                ï¿½ The short-term effects of much-needed                                                    0 Support the development of
                                                                                                              an ecolabelling system that
                   marine conservation measures may severely
                                                                                                              provides consumers with
                   strain the econornies of local communities.
                ï¿½ Consumers are unaware of how their con-                                                     additional information so
                                                                                                              that they have the option of
                   sumption drives fishing pressure, and are
                   unable to distinguish between sustainably                                                  purchasing sustainably
                                                                                                              harvested fish.
                   and nonsustainably harvested fisheries
                   products.                                                        0 0                    0 Seek Congressional support
                                                                                                              for the Chnton/Gore Lands
                                                                                0
                                                                                                              Legacy Initiative, which calls
                                                                                                              for significant funding to help
                ï¿½ Evaluate and apply creative measures to
                   reduce fishing overcapacity including                                                       estore U.S. fisheries.
                   leveraged buy-outs and rights-based fishing.
                                                                                                              Fou- mou-L- bn9ormaUon
                ï¿½ Create short- and long-term opportunitie's to
                                                                                                              o http://wwwnmfs.gov
                   decrease the economic burden on fishing com
                                                                                                              o http://wwwuscg.rnil
                   munities by redirecting fishing effort into supporting activi-                                                                               . ... ..
                                                                                             ci http://wwwst.nmfs.
                   ties, such as fishery research.                                                                        -d
                                                                                                        gov/sti/index.htn
                ï¿½ Provide fisheries managers with the best available technolo-
                                                                                                                                                                        ;W
                   gy to survey and properly assess fish stock levels, enabling              Ei http://wwwnmfs.gov/councils/                                               @''. 1:, ),
                                                                                             Ei http://wwwnmfs.gov/sfa/                                               6.1
                   them to better set appropriate fishing limits.                                                                                                        46,  1 ,
                ï¿½ Create incentives to reduce adverse effects on nontarget
                   species and marine habitat.
                                                                                                                    op tedl-
                                                                                                                     es to. 1mprove
                                                                                                                   'nes sclence and"








                                                                                                                    _MAP,





                                                                                                                                                                        America's Ocean Future 17



                                                       M@ @ M = M M M

                                  kiP
                                      16LAIL


                                                                         @-x
                                                                                    1:,




                                                                                              ncreasing world population and wealth have led to higher demand for edible
                                                                                              fish and excess capacity of fishing boats. The United Nations (UN) Food and
                                                                  Work wf th
                                                                                              Agriculture Organization (FAO) forecasts that by 2010, worldwide demand for
                                                           other nations to                   seafood will top no million tons, but catches will fall short by 40 million tons.
                                                                                              Nearly 70% of the world's marine fish stocks are overfished, fully exploited, or
                                                      protect and conserve                    rebuilding only under protective management regulation. Pressure to increase
    pit-                                          shared fiving marine                        production already has the industry fishing farther down the food chain, causing
                                               resources.                                     potential imbalances in the ecosystem. The race for fish also leads to high rates
                                                                                              of bycatch - of nontarget fish species and vulnerable marine mammals, turtles,
                                                                                                                                  and wasted discards.
                                                                                                             and seabirds alike
                                                                              7                              Though a growing number of regional organizations are charged
                                                                                                             with managing specific fish stocks, the future of the world's fishery
                                                                                                             resources is uncertain. At the 1992 Earth Summit in Rio de Janeiro,
                                                                                                             all nations joined in the call for new international agreements and
                                                                                                             mechanisms to achieve sustainable marine fisheries. The U.S., as
                                                                                                             one of the world's leading fishing nations, plays a key role in
                                                                                 6@ f@ I I'M ftf             expanding international cooperation to manage and conserve
                                                                                                             global fishery resources. For example, the U.S. has successfully
                                                                                           ta, mit,          used trade measures - or the threat of trade measures - to convince
                                                                                                             exporting nations to end wasteful and destructive fishing methods.
                                                                                                             Focused effort can be especially effective because only ten coun-
                                                                                 1-4 4V @-                   tries, including the U.S., account for 70% of total global production.

                                                                                                             (Ongoing t-wn-c-er-n-@s)
                                                                                                             0 The two key tools for international fisheries management - the
         :-P
                                                                                                                                          -lighly Migratory Fish Stocks Agreement
                                                                                                               1995 UN Straddling and I
                   OW
                                                                                                               (Straddling Stocks Agreement) and the FAO Agreement on High-
                                                                                                               Seas Fishing Vessel Compliance (FAO Compliance Agreement) -
                                                                                                               have yet to enter into force. Also, the FAO Code of Conduct for
                                                                                                               Responsible Fisheries (Code) is not yet widely implemented by




         18 Turning to the Sea












               fishing nations.                                                            0 Take a leading role in
             ï¿½ Nations continue to subsidize their fishing industries, leading to             implementing the new FA0
                                                                                              action plan on fishing fleet
               overcapitalization of fishing fleets and increasing pressure to
               maximize harvest.                                                              overcapacity
             ï¿½ Conservation and management schemes are undermined by ille-                 0 Strongly encourage the members of
               gal, unregulated, and unreported fishing. A number of nations                  the World Trade Organization to eliminate
               also offer "flag of convenience" registry to fishing vessels with              subsidies that lead to overcapacity as part Of
               no accompanying oversight of their fishing practices.                          the new round of negotiations set to begin in                                           4_=__
             ï¿½ Conservation and management schemes have not always been                       November 1999.
               successful in averting overfishing or allowing for the rebuilding           0 Support and develop means (including trade-based
               of depleted stocks.                                                            means) bilaterally and through regional fisheries
             ï¿½ Parties to international agreements and regional fishery man-                  organizations, to ensure compliance with fishery
               agement organizations often exceed agreed-upon quotas or are                   management initiatives. Identify and negotiate
               out of compliance with those organizations'conservation and                    new regional, multilateral agreements to eliminate
               management regimes.                                                            destructive fishing practices.
                                                                                           0 Work with other countries to evaluate vulnerable
             (Recommendations                                                                 marine species, and take an active role in
                                                                                              international decision-making on listing
             ï¿½ Promote ratification by signatory nations of the Straddling
                                                                                              new marine species under the Convention on
                                                                                                                                                                                               P
               Stocks Agreement and the FAO Compliance Agreement, and
                                                                                              International Trade in Endangered Species
               implementation of the FAO Code at all appropriate bilateral                    of Wild Flora and Fauna.                                     7
               meetings.                                                                                                                                                             irY`
                                                                                                                                                                  RL-lib               4,
             ï¿½ Develop proposals to implement key provisions of the above                  For more @nqormaVon
               agreements, such as a precautionary approach and trans-
                                                                                           Ei http://wwwnmfs.gav
               parency (openness in the decision-making process), through
                                                                                           Ei http://wwwstate.gov/www/global/oes
               regional fishery organizations and arrangements.
                                                                                           El http://wwwuscg.mil/                                     04
             ï¿½ Increase bilateral pressure to foster agreements to rebuild over-
               fished species and to deter illegal, unregulated, and unreported            Ej http://wwwfao.org/waicent/                     474-4
                                                                                                 faoinfo/fishery/
               fishing. Participate actively in FAO initiatives to develop an                                                                        44,
               international plan of action to address such fishing practices.                                                                            PON
                                                                                                                                                           K@



              L





                                                                                        L, J





                                                                                             xpected increases in world population are projected to intensify the global
                                                                                             demand for edible seafood. The aquaculture industry which propagates and
                                                             Prom o te th e
                                                                                             rears aquatic plants and animals, can provide consumers with high-quality; safe,
                                                       development of                      and affordable seafood and other important fish products, and thereby reduce
                              '0                                                           pressure on wild stocks and help their recovery
                                                  environmentally safe
                                                                                           The global aquaculture industry, whose production is valued at nearly $1 billion in
                                              and sustainable aquaculture                  the U.S. and $4o billion worldwide, currently supplies less than lo% of the nation's
                                            to meet the growing national
                                                                                           seafood demands. Improving U.S. aquaculture production can simultaneously pro-
                                                                                           vide more seafood to domestic markets and help offset the U.S. trade deficit in edi-
                                         and global needs forprotein                       ble seafood products, which has increased by 139% since 1992 and now stands at
                                        from seafood and to relieve                        $6 billion annually - the largest for any agricultural commodity Aquaculture can
                                      press ure on wild fish stocks.                       also make major contributions to U.S. local, regional, and national economies by cre-
                                                                                           ating business opportunities both here and abroad and by providing employment
                                                                                           in a new and diverse industry

                                                                                           The U.S. has the opportunity to lead the world in developing sustainable aquacul-
                                                                                           ture technologies based on renewable resources and advancing international guide-
                                                                                           lines for the industry which provides 25% of the world's fish supplies. However, the
                                                                                           continued growth of aquaculture in land-based systems and coastal environments
                                                                                           and any expansion of aquaculture into the U.S. Exclusive Economic Zone must be
                                                                                           conducted in an environmentally sound manner. Although coastal environments
                                                                                           are primarily under state control, the federal government can play a significant role
                                                                                           in assisting tribal and state aquaculture efforts through research and the regulatory
                                                                                           process.

                                                                                           (Ongo@ng Cancerns
                                                                                           0 U.S. aquaculture development is restricted by a lack of species ready for commer-
      AJ,
    *.0F,                                                                                    cial culture, sophisticated engineering requirements, sparse information on dis-
                                                                                             eases and ways to treat them, and marketing and distribution concerns.
                                                                                           0 Concern exists about the potential environmental impacts of some aquaculture




        20 Turning to the Sea


operations, especially genetic and disease consequences for wild stocks, introduction of
nonindigenous spedes, coastal habitat alternation, effluent effects on habitat, and interactions
with marine mammals and endangered species. 

No comprehensive regulatory framework exists for permitting aquaculture operations.

Although, aquaculture has proven to be a valuable tool to increase salmon populations, its
effectiveness remains unknown for other fish and shellfish stocks.

Recommendations

Support research and develop pilot projects for hatchery and nursery development, closed-system
production techniques, processing, and marketing.

Work with stakeholders to develop guidelines for environmentally sound and sustainable
aquaculture by the end of the year 2000, and promote domestic and international compliance with
them.

Work with stakeholders to create an integrated regulatory framework for coastal or inland
aquaculture.

Develop a comprehensive federal permitting and certification process for the open-ocean
aquaculture industry in the U.S. Exclusive Economic Zone, consistent with the U.S. policy
on nonindegenous species.

Integrate aquaculture development with wild stock management and environmental stewardship.

Evaluate wild stock enhancement through aquaculture as a method of accelerate recovery of
depleted stocks, and implement stock enhancement programs where practicable.

Through the joint Subcommittee on Aquaculture, improve coordination of U.S. government
aquaculture research and assistance to tribal, state, and local governments, and industry.

For more information

http://swr.uesd/edu/fmd/bill/aquapol/htm
http://www.susdev.noa.gov/aqucult/html
http://www.fac.org/waicent/facinfo/fishery/

-------------------------------------researcg----------------crab industry has -------------
a multi-million dollar investment --------from New Jersey to Florida. Working with the
fishery industry, researchers, students, and others, aquaculture specialist have provided
seed oysters and expertise to rebuild oyster bars in the Chesapeake Bay.  And in New England,
many community partnerships are underway to develop small-scale, low-impact economic 
opportunities in shellfish aquaculture for local fishermen using new information and
technologies.

http://www.nsgo.seagrant.org/research/aquaculture/index.html






                                                          j-




                                                                    n 199o, leading scientists predicted that the application of the modem tools
                                                                    of biotechnology and molecular and cellular biology to marine organisms and
                                              Tap the enormous      ecosystems would create a revolution in the ocean sciences that would be funda-
                                         potential of marine        mental in nature, exponential in pace, and unprecedented in its scientific and eco-
                                     species for developing         nomic impacts. In the decade that has followed this prediction, stunning results
                                                                    have been reported as the tools of marine biotechnology have been applied to
                                  new pharmaceuticals and           solve problems in the areas of public health and human disease, seafood safety
                                biomaterials, and apply the         and supply, new materials and processes, and marine ecosystem restoration and
                                                                    remediation.
                               tools of biotechnology to restore
                                                                    Many classes of marine organisms demonstrate a wide variety of compounds
                              and monitor the marine                with unique structural features that suggest medicinal, agricultural, and industri-
                             environment.                           al applications. However, even though 8o% of all life forms on Earth are present
                                                                    only in the oceans, their enormous potential as the basis for new products
                                                                    remains largely unexplored. The U.S. government has traditionally invested less
                                                                    than 1% of its total biotechnology research and development budget in marine
                                                                    biotechnology Productive new avenues for the commercial development of
                                                                    marine-derived compounds will enhance the use of aquatic resources and con-
                                                                    tribute to the global economy.



                                                                    0 There may exist potential risks related to the release of genetically altered
                                                                     species within the marine environment.
                                                                    0 Current technology is inadequate both to access remote marine biotechnology
                                                                     sites and to commercially develop marine biotechnology products.
                                                                    0 A lack of information about baseline conditions of the marine environment
                                                                     makes it difficult to assess the environmental impacts of biotechnology.
                                                                    0 There is no mechanism currently in place to ensure that profits derived from
                                                                     publicly owned resources will be shared with the public and used appropriately.


                                                        lvokottRenry


      22 Turning to IT*G6
                 V_









             CRecommendat-oons
                                                                                    For more
             ï¿½ Increase support for sustainable harvesting and testing of           @nqormaz@on
               marine compounds by both government agencies and commer-             o http://wwwimb.nrc.ca/imb/
               cial pharmaceutical companies as possible treatments for AIDS,             imb.htn-d
                                                                                                                                     4
               inflammatory or infectious diseases, and cancers.                    F-i http://wwwnsgo.seagrant.org
             ï¿½ Assess the potential risks of genetically modified marine                  Ei http://wwwumbi.umd.
               organisms to human health, marine diversity, and the                              umd.edu/
               environment, and communicate any concerns to
                                                                                                  Ei http://wwwbioter-h.
               the public.                                                  D                           wisc.edu
             ï¿½ Develop investment incentives to encour-
                                                                                                       o http://wwweng.nsf.
               age partnerships with acaden-da and                                                          gov/bes/
                                                                                          7
               industry in marine biotechnology                                       r made              default.htm
             ï¿½ Support research on the environmen-                                                         Ei http://wwwgeo.nsf
                                                                  M=-M           4tfl M-MAVL@,, f r 0 M
               tal effects of extracting marine organ-                  w        @I -.as an an                gov/oce/biotheme.
                                                                       peft-et   sue'th      ti-
                                                                                                              htm#tech
               isms for biotechnology purposes.           i'hild-, atoty drug, extiaded from an
             ï¿½ Support the application to marine          organism called the Caribbean sea whip, are       o http://www.
               sciences of modern biotechnology           under review by the U.S. Food and Drug              nucb.org/
               tools commonly used in the                  Administration.
               biomedical arena.
             ï¿½ Develop technologies to access and                    http://www.fda.gov/
               develop marine biotechnology sites, such              fdac/features/1998/
               as remote and manned submersibles, and                   igg_deep.html
               techniques to screen products and commercially
               reproduce chemical compounds without requiring
               more raw material.
             ï¿½ Focus on organisms found in extreme environments to
               identify unique products with high commercial potential.
             ï¿½ Consider establishing a federal marine environment fund to
               benefit from royalties and payments from commercial uses of
               federally owned resources.
                                                                                                                       9-nsf-




































                                                                                                                                            Amerio's O(ean Future 23



                        [INS                11111111 IM





                                                                             7:, C@




    r
                                                                                             he outer continental shelf contains significant oil and gas resources that are vital

                                          2@
                                                                                             to our domestic energy supplies and national security needs, contributing 22% Of
                    _Iri i                                     Maintain safe
                      -4                                                                     domestic oil and 27% of natural gas production. Natural gas reserves in the outer
                                                        and environmentally                  continental shelf are particularly important because natural gas has major envi-
                                                                                             ronmental benefits over other fossil fuels. Cleaner burning, it is increasingly
                                                   sound domestic energy
                                                                                             being used in the conversion of electrical power-generating stations from oil-
                                               supplies andalternative                       or coal-fired facilities.
                                            fuel sources.                                                    The federal share of offshore oil and gas revenues averages about
                                                                                                             @4 biwon a year. Much of the existing leasing and development
                                                                                                         @t' occurs in the central and western Gulf of Mexico. In recent years,
                                                                                                             the rapid development of deep-water technology has led to a
                                                                                                             strong move by industry to both lease and operate in ever-deeper
                                                                                                             waters. Over 4,ooo platforms are operating in waters up to 3,900
                                                                                                             feet deep, and over 3o rigs are drilling in water deeper than 1,ooo
                                                                                                             feet, including one deeper than 7,700 feet. By the end Of 2000,
                                                                              tath year, however,            production from Gulf deep-water fields is expected to account for
                                                                              Congress does not
                                                                                                             one-half of the total Gulf of Mexico outer continental shelf oil
                                                                              fully use these funds
                                                                                                             production and one-third of the total outer continental shelf gas
                                                                              for conservation. The
                                                                                                             production.
                                                                              Clinton/ Gore Lands
                                                                              Legacy proposal                Advances in technology have made offshore oil and gas produc-
                                                                              would ensure that the          tion cleaner and safer than ever. Since 198o, 6.9 billion barrels of
                                                                              monies are spent only          outer continental shelf oil have been produced with a spillage
                                                                              for their original pur-        rate of less than 0.001%. Despite these advances, however, envi-
   PF__                                                                       pose - improving and           ronmental concerns have led to congressional and executive
                                                                              protecting our                 moratoria since 1981, and many of our coastal areas are now
                                                                              nation's lands and             closed to new leasing through the year 2012. In addition, new
                                                                              waters.                        leases are permanently banned in National Marine Sanctuaries.
                                                                                                             Many coastal states and communities object to oil and gas devel-
                                                                                             opment off their coastlines. One way that coastal states and the public can par-

                                                                                    en



        24 Torning to the Sea












                ticipate in decisions on federally regulated offshore activity is          0 Continue efforts to
                through the coastal zone consistency process, which allows                    provide states and other sta e-
                them to review and comment on proposed projects or permits                    holders with early information on
                that may affect state coastal management programs. Federal                    proposed outer continental shelf oil and
                actions likely to affect any land/water use or other natural                  gas exploration and other activities.
                resources in the coastal zone must be consistent with the states'          0 Encourage production of natural gas, as a
                                                                                                                                                                                 Y@
                enforceable policies.                                                         cleaner source of energy from areas where
                                                                                              production is still permitted under the outer
                                                                                              continental shelf moratoria.
                (Pngo@ng (concerns)
                                                                                           0 Join the United Nations Law of the Sea Convention.
                ï¿½ Multiple-use conflicts can arise between outer continental               0 Accelerate scientific research on marine gas hydrates
                  shelf oil and gas activities and other ocean-based activities,
                                                                                              (methane and other gases existing in a frozen state
                  such as commercial and sport fishing, tourism and recreation,               below the ocean floor) as a potential long-term
                  vessel traffic, military operations, and marine protected areas.            energy resource.
                ï¿½ While outer continental shelf oil and gas development brings
                  employment and revenue to coastal states and communities,                   For moire @ngormaUon
                  it also may result in accelerated coastal development with its              Ei http://wwwmms.gov
                  attendant problems, including additional demands on infra-                  o http://marine.er.usgs.gov
                  structure and the environment.                                              Ei http://wwwgomr.mms.
                ï¿½ Uncertain outer continental shelf boundaries may lead to dis-
                  putes with other coastal nations regarding ownership of cer-                       gov/homepg/regulate/
                                                                                                      environ/rigs-to-reefs/
                  tain oil and gas reserves unless the U.S. joins the United                         information.html
                  Nations Convention on the Law of the Sea.




                ï¿½ Increase research on methods and technology to minin-dze
                  risks to human safety and to coastal and ocean environments.
                ï¿½ Through meetings, workshops, and negotiation, work with all                                                                                                     ff;
                  stakeholders to ensure environmentally sound and safe outer
                  continental shelf energy extraction.


                                                                                                        C) Wolcott IRTITY



                                                                                                                                                                              cean
                                                                                                                                                                     America's 0















                                                                                       All          yj"



                                                                                                                                                                                                                                                          -vnli
                                                                                                                                                                                                                   !Y




                                                                                                                                                                                                                                                                     C(t



                                      Im




                                                                   _rj LJ     .rj J -ri JL Li J ab:-@-j J

                              r
                             .&L"edom Of -rhe         is ifiregr-al to dje  trL,-.fjg-rlj -an Jr 5ecurity of our ma blorl.










                                                                             7,.@ 7:















                          or






                                                                   The Law of the Sea Convention



                                                                                                   he United Nations Convention on the Law of the Sea provides a compre-
                                                                                                   hensive international legal framework governing the world's oceans.
                                                                 Preserve strong
                                                                                                   Currently, 131 nations are party to the Convention, including all of the
                                                          US influence and                         major maritime powers (except the U.S.), most of our key allies, and many
                                                                                                   important nonaligned states. The Convention supports the full range of
                                                     leadership in global ocean
                                                                                                   U.S. interests in ocean activities, law, and policy It preserves our rights of
                                                       affairs, and encourage
                                                                                                   military mobility in the world's ocean and coastal waters; ensures free
                                                                                                   movement of global maritime commerce; secures our national jurisdiction
                                                          international adher-
                                                                                                   over living and nonliving resources off our shores; clarifies our high-seas
                                                            en                     hat
                                                               ce to concepts t                    freedoms for laying cables to support communications; establishes an
                                       At-
                                                            support US interests.                  internationally agreed-upon framework for national efforts in maritime
                                                                                                   law enforcement, marine environmental protection, and marine scientific
                                                                                                   research; and creates a framework for settling international disputes.

                                                                                                   In the late 198os, there was widespread agreement among the industrial-
                                                                                                   ized nations that the Convention's deep-seabed mining regime required
                                                                                                   basic changes. Recognizing that the Convention would soon enter into
           7@                                                                                      force without the U.S. and other major western powers as parties, the
                                                                                                   Secretary General convened informal negotiations aimed at amending
                                                                                                   Part XI of the Convention. These negotiations concluded in 1994 with an
                                                                                                   Implementing Agreement that amends the formerly flawed Part )[I and
                                                                                                   meets all of the specific objections previously expressed by the U.S. and
                                                                                                   other industrialized nations to the Convention's deep-seabed mining pro-
                                                                                                   visions. All sectors of the U.S. ocean community represented at the
                                                                                                   National Ocean Conference affirmed their support of the Convention, and
                                                                                                   the President, in his June 12, 1998, keynote speech at the Conference,
                                                                                                   reasserted that accession to the Convention and ratification of the
                                                                                                   Implementing Agreement is a high-priority objective of U.S. ocean policy
                                                                                          r-A











                                                 @7-



                        L11                                                          = = = M M M @ @ @ @ @







                                                                                         (Recommendit =Gn )
                0 Though the Law of the Sea Convention and its reforming                   0 The President, the Vice
                  agreement have been placed in the highest priority category                 President, and the Cabinet        4-
                  of agreements requiring Senate action, the Senate Foreign                   should continue to work              "7-

                  Senate has been unable to review the Convention and support                 particularly the Senate
                  Relations Committee has not scheduled hearings. Thus, the                   with the Senate - and

                  the U.S. becoming a party to it.                                            Foreign Relations
                0 The U.S. position as a nonparty to the Law of the Sea                       Committee - to ensure
                  Convention is increasingly undercutting U.S. influence over                 that the U.S. joins
                  other nations'implementation and adherence to the provi-                    the Law of the Sea
                  sions that support our interests. Examples of excessive mar-                Convention as soon
                  itime claims that are counter to U.S. interests are extended                as possible.
                                                                                                                                    V*
                  boundary claims that could affect U.S. access to offshore
                  resources, and requirements for coastal state permission to
                  transit through territorial seas or international straits.
                ï¿½ The U.S. position as a non arty often slows or complicates
                                             P
                  approval for U.S. ship and aircraft access to conduct marine
                  scientific research in foreign jurisdictional waters.
                                       -tinate judges for the Law of the Sea
                ï¿½ The U.S. cannot non
                  Tribunal, optimize U.S. influence on maritime dispute resolu-
                  tion, or participate fully in the International Seabed Authority.
                                                                                                                                                                                         N
                ï¿½ The U.S. is at risk of losing its influence and leadership posi-
                                                                                                                                                                                        J1.
                  tion in critical international fora for dealing with the oceans,            For more @ngorrnat@on
                  such as the International Maritime Organization. U.S. propos-
                  als for maritime safety and environmental protection guide-                 o http://wwwstate.gov/www/global/
                                                                                                    oes/oceans/indexhtml#law
                  lines are increasingly met with open skepticism because of                                                                                                              -.Mimi
                  the U.S. position as a nonparty to the Law of the Sea
                  Convention.










                                                                                                                                                                     America's Ocean Future 29






                                                             Freedom of Navigation


                                                                                  Maintain US national and economic security and
                                                                                  leadership in promoting global stability and preserving
                                                                                  global navigational freedoms.


                                                                                  he U.S. has always recognized and defended the traditional freedoms of
                                                                                  navigation and overflight on and over the world's oceans for military and
                                                                                  commercial purposes. Internationally agreed-upon freedoms of navigation -
                                                                                  key to our ability to import raw materials and export finished products to
                            000                                                   global markets - are essential to our economic security Freedom of naviga-
                                                                                  tion is also essential for national security, enabling the worldwide movement
                                                                                  of U.S. military forces and the sealift and airlift needed for their support.

                                                                                  The complex global political/military environment of the post-Cold War era
                                                                                  puts a premium on forces that can move quickly anywhere in the world's
                                                                                  oceans, including through more than 250 international straits, to provide mili-
                                                                                  tary presence for diplomatic purposes without infringing on any nation's sov-
                                                                                  ereignty to project power from the sea, to enforce United Nations sanctions,
                          of @@O                                                  or to conduct humanitarian operations. In the past decade, there have been
                             406                                                  twelve U.S. and coalition military operations that were critically dependent on
                                                                                  internationally recognized transit rights and high-seas freedoms of naviga-
                                                                                  tion. Forward presence of ocean-based military assets supports U.S. intelh-
                                                     'AV                          gence, surveillance, and reconnaissance activities, providing a better under-
                                                                                  standing of developing international tensions and potential threats, deterring
          cf                                                                      hostilities, and promoting global stability and security

                                                                                  The customary international freedoms of navigation that are critical to
                                                                                  economic, national, and international security are codified in the Law of the
                                                                                  Sea Convention. Continued exercise of our navigational rights and freedoms
                 A.-
                                                                                  is essential to the future strength of our nation and to global stability





       3 0 M,














                ï¿½ Continued failure to join the Law of the Sea Convention could
                   diminish U.S. influence and leadership in international ocean
                   affairs and undercut our ability to resist excessive maritime
                   claims worldwide.
                ï¿½ Failure to conduct our domestic ocean affairs and global opera-
                   tions consistent with the Convention could restrict U.S. naviga-
                   tonal rights and freedoms critical to our economic and national
                   security
                ï¿½ Many nations make maritime claims and other proposals - such
                   as military exclusion zones or nudear-free zones - that could
                                                                                                                                                                           -.At-
                   have the effect of limiting or denying U.S. military and commer-
                   cial ship mobility in critical areas of the world's oceans.
                ï¿½ Domestic and international ocean initiatives and the U.S. mili-
                   tary's ability to test, train, exercise, and operate in the marine
                   environment have the potential to conflict.

                                                                                                                                                                AL
                C6iecom rn@endat*oo @ns
                ï¿½ The President, the Vice President, and the Cabinet should
                   continue to work with the Senate - and particularly the Senate
                   Foreign Relations Committee - to have the U.S. join the Law of
                   the Sea Convention.
                ï¿½ Expand the U.S. freedom of navigation program using Navy@
                   Coast Guard, and other national assets to exercise openly the
                                                                                             For more 5nqormazion
                   traditional freedoms of navigation and overflight in areas of
                   unacceptable claims.                                                      Ei http://wwwnavymil
                ï¿½ Work within an interagency structure to coordinate initiatives             Ei http://vvwwdefensehnk.mil                                                                         Pi
                   to maintain fTeedom of navigation and national security.







                                                                                                                                                                        America's Ocean Future







                       A41

                                                                                      time Law Enforcement
                                         'R




                                                                                                                                                                            drug
                                                                                                t
                                                                                                      I   he U.S. is a world leader in the enforcement of laws concerning
                                                                     Maintain the securi                  and illegal immigrant smuggling, customs regulations, harvesting of
                                                                                                          living marine resources in our Exclusive Economic Zone, and marine
                                                                     of US coastal borders,
                                                                                                          safety and environmental protection. International maritime crimi-
                                                                          ports, and harbors              nal activities pose clear threats to our borders, our economy, our
                                                                                                          environment, and our national security and require strong offshore
                                                                           through improved               law enforcement. Additionally, the post-Cold War era has brought
                                 L
                                                                                maritime ]a w             emerging threats, such as terrorism, arms trafficking, evasion of
                                                                                                          international trade sanctions, and piracy, each with potential mar-
                                                                                   enforcement.
                                                                                                          itime components. Critical U.S. ports and waterways infrastructure,
                                    'UIP
                                                 @Jf                                                      commercial carriers moving U.S. military cargo, and large numbers
                                                                                                          of U.S. citizens aboard cruise ships may be at risk.

                                                                                                          The marine transportation system is especially vulnerable to illegal
                                                                                                          and terrorist activities because its scale, complexity and pace of
                                                                                                          activity often overwhelm local, state, and federal detection and
                                                                                                          enforcement capabilities and private-sector protective measures.
                                                                                                          Increased cooperation with our international partners is needed to
                                                                                                          disrupt illegal activity before contraband is loaded onto vessels des-
                                              A P%                                                        tined for the United States. Enforcement efforts must also take full
                                                                                                          advantage of maritime transportation choke points and challenge
                                                                                                          suspect vessels before they reach U.S. ports. As governments remove
                                                                                                          barriers to trade and travel, U.S. officials need more information on
                                                                                                          the cross-border flow of people and goods and on other maritime
                                                                                                          activities to better identify criminal and other illegal actions.



                                                                                                          0 International criminal and terrorist threats are constantly chang-
                                                                                                            ing and adapting to current law enforcement capabilities. Today's
                                                                                                            communications and integrated intelligence systems lack the





        32 Turning to the Sea


sophistication to support real-time monitoring of vessels, people, and cargomovements.

High-level awareness of the emerging threats to the marine transportation system is requied,
along with the interservice, interagency, and international coordiantion needed to address them.

The U.S. currently claims a 12-nautical-mile contiguous zone, yet customary international law,
as reflected in the United Nations Conventions on the Law of the Sea, allows states to claim
a 24-nautical-mile contiguous zone.

Recommendations

Improve cooperation at the interagency, intreservice, and internatoinal levels to address threats
to our maritime interests, including collecting and sharing key information, and developing and
integrating real-time intelligence systems for tracking cargo, personnel, and commercial 
vessel operations.

Improve U.S. capability to conduct survellance, detection, identification, classification, and
interdiction of maritime threats before they reach U.S. coasts and harbors.

Acknowledge the low level of current security awareness in the marine transportation system, and
initiate a national education campaign to improve federal, state, and local awareness of the
growing threats.

Declare a 24-nautical-mile contiguous zone consistent with international law, as
reflected in Article 33 of the Law of the Sea Convention.

For more information

http://www.uscg.mil/hq/g-o/gopl/lawweb2/homepage.htm
htt;://www.whitehousedrugpolicy.gov
http://www.uscg.mil/deepwater/data/threats/forward/htm
http://www.navy.mil

--------------------------
--------------------------
--------------------------
--------------------------
--------------------------
those who do.  Fisheries
enforcement boardings have
increased by 50% over the last
four years, providing critical
support to rebuilding and main-
taining fish stocks threatened
by overfishing.  In addition
drug interdiction efforts in 1998
resulted in the seizure of more than
------- pounds of -------------some
374 millions hits with a value
of $1.9 billion off of our streets
and out of our schools.

"There is a window in time, and that is now, when we could forever 

lose a priceless ocean heritage, or we could develop the foundation

for an enduring legacy - an ocean ethic - an inspired gife from the 20th

century to all who follow us."

Dr.  Sylvia -----

Protecting Marine Resources

Srong protection of 

our ocean and coastal

environment, using 

a precautionary

approach and sound

management, is

no longer a

choice, but a 

necessity.

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

                       L


                                         Submerged Heritage Resources



                                                                n estimated 50,000 shipwrecks, including the ironclad civil war vessel, the US.S.
                                           Preserve and       A.", Monitor, are scattered throughout the U.S. territorial sea and the Exclusive
                                                                 Economic Zone. These shipwrecks and other sunken artifacts are time capsules
                                      protect submerged        of the world's history. Until the advent of scuba diving equipment and other tech-
                                   heritage resources for      nological developments in the 1950s, submerged heritage resources were largely
                                                               undisturbed by humans. Advances in deep-sea technology have created unprece-
                                current andfuture              derited opportunities for discovering, reseaTcl-iing, accessing, and preserving
                                                               resources, and for educating the public about the history, people, and cultures
                              generations.
                                                               associated with these unique and irreplaceable sites.

                                                               Unfortunately, new capabilities make these sites highly vulnerable to exploitation
                                                               and destruction by treasure hunters and souvenir collectors, resulting in their loss
                    AfF                                        and destruction. Even submerged heritage resources in state waters, which were
                                                               to be protected from treasure hunting under the Abandoned Shipwreck Act, are
                                                               still subject to commercial exploitation. Special care must be taken to preserve
                                                               and protect these precious resources for scientific study and public interpretation
                                                               and appreciation. Special care must also be taken to respect human remains,
                                                               including tribal sites.

                                                               (Cngc)@ng (Conceirns
                                                               0 Submerged heritage resources are often treated as commodities for private
                                                                 financial gain, rather than managed as public scientific resources in need of
                                                                 protection under laws based on historic preservation and environmental
                                                                 protection.
                                                               0 In certain situations, submerged heritage resources cannot be removed from
                                                                 the marine environment without risk of harm to natural and cultural resources.
                                                               0 Submerged heritage resources include diverse prehistoric and historic sites.
                                                                 The interests of tribes in such resources are often overlooked.
                                                               0 The extent of damage caused to the environment by reckless recovery activities
                                              C111hiz,           is unknown.
                                                 tWGSJOqe
                                                       Collection



      36 Turning thqS-111


While protection exist in many state waters and in federal marine protected areas, submerged
heritage resources are exploited and destroyed outside of these areas.

Certain sunken vessels and aircraft may be dangerous (e.g. contain unexploded ordnance), or 
should not be disturbed out of respect for the crew members who died on board.  There may also
be national security reasons why a sunken vessel or aircraft should not be disturbed.

States do not always preserve submerged heritage resources, and states that want to do so are
often unable to because of the historical law of salvage and finds.

Recommendations

Enact federal legislation that will prohibit the destruction and loss of submerged heritage
resources; punish those who injure or destroy these and associated natural resources; provide
for appropriate public access; develop a research and recovry permitting process; require
adherence to scientific standards; provide for the conservation and disposition of recovered
matericals in qualified repositories; ensure sensitive treatment of any human remains; and
portect severeign immune vessels and aircraft that hve not been expressly abandoned.

Clarify, though legistlation, the meaning of "abandoned" in the Abandoned Shipwreck Act so that
states can better preserve submerged heritage resources.  

Support cooperation and collaboration with tribes, states, and communities on ways to protect 
submerged heritage resources, including legal regimes, consistent gidelines and procedures for
evaluating best preservation and recovery plans, exploration and monitoring programs, and 
efforts to educate the public about the value and fagility of these resources.

For more information

http://monitor.nos.noaa.gov
http://www.nps.gov/scru/home.htm
http://www.nps.gov/usar/
http://www.history.navy.m-l

The federal government is proposing to designate Thunder Bay and surrounding waters on Lake
Huron as a National Marine Sanctuary.  The proposed sanctuary area off the coast of
Alpena, Michigan, contains approximately --- shipwrecks that span more--------- --- -----
tury of Great Lakes marine history.

http://----.noaa.gov/glsr/thunderbay

Coral Reefs

Our nation's coral reefs cover approximately 17,000 square kilometers.  Ninety percent of them
are accociated wit U.S. islands in the Western Pacific (Hawaii, Guam, American Samoa, and the
Commonwealth of the Northern Marianas); the remainder are located off Florida, Georgia, Texas,
and U.S. islands in the Caribbean.  These coral reefs support thousands of jobs and billions of
dollars in annual revenues from tourism, recreation, and fishing; are valuable sources of new
medicines and blochemicals; help prevent shoreline erosion; and provide life-saving protection
from storms.

Despite their unique value, coral reefs in the U.S. and around the world are quickly being
destroyed by a powerful combination of stresses, such as polluted runoff, sedimentation,
unsestainable fishing practices, collection and trade in reef species, groundings and other
damage caused by commerical and recreational vessel traffic, diseases, marine debris, and
climate change.  During the past two year, unprecedented levels of coral bleaching and 
mortality associated with abnormally high sea temperatures and other factors have occurred.  As
a result, approximately 60% of the world's coral reefs are at medium or high risk from
human impacts, and many have been degraded beyond recovery.

As part of the National Ocean Conference in June 1998, President Clinton signed the Coral Reef
Protection Executive Order (13089) to preserve and protect the biodiversity, health, heritage,
and ecological, social, and economic values of U.S. coral reef ecosystems and teh marine
environment.  To fulfill its protection efforts, the Order also created the interagency U.S.
Coral Reef Task Force.  Additional efforts are now required to effectively protect, restore, and
sustainably use valuable U.S. coral reef ecosystems for current and future generations.

Ongoing Concerns

The U.S. has not yet developed a coordinated national strategy to protect and resotre coral
reef ecosystems from the effects of human activities and natural stressors.

Protect and sustain the biodiversity, health, heritage, and ecological, social, and economic
values of coral reef ecosystems.

The U.S. lacks a comprehensive mapping or monitoring program to assess or track the condition
of U.S. coral reefs.

Financial and technical resources are inadequate to help states, territories, communities, and
other nations sustainably manage their coral reefs.

As the world's largest importer of coral reef species, the U.S. may be driving the
unsustainable use of coral reefs in other nations.

Recommendations

Implement Executive Order 13089 as quickly as possible through joint efforts of federal, state,
and local agencies; nongovemmental partners; and other nations as needed.

Implement priority actions of the U.S. Coral Reef Task Force, including the committment to
prevent federal agency degradation of reefs consistent with Executive Order 13080.

Increase research efforts to understand the causality behind the current worldwide deadline of
coral reefs and how it relates to disease, temperature change, and pollution.

Assist in the design and implementation of local and regional reef management plans that
integrate protected areas and fishery management with coastal zone and marine management
planning efforts, and increase support for local actions.

Increase monitoring protection, and sustainable use of reefs worldwide by supporting 
international partnerships at national, regional, and global scales.

Increase efforts to stem the problem of trade in nonsustainably harvested corals.

Work with the International Maritime Organization and other international partners to prevent
destructive ancharing of ships on coral reefs and provide safe, alternate anchorage for 
marines.

Seek Congressional support for the Clinton/Gore Lands Legacy Initiative, which proposed
$10.3 million - a 30 fold increase over current funding levels- for coral reef protection.

For more information

http://state of coast noaa.gov/bulletine/html/
http://coralreef.gov/
http://www.epa.gov/awow/coral
http://www.wri.org/indictrs/reef.html/

--------------------------
--------------------------
--------------------------
--------------------------
--------------------------
--------------------------
tor andmanage these valu-
able resources.  For example,
the Reef Ecosystem Condition
Project (ReCon) is training
volunteer divers to collect
important data on the tem-
perature, salinity, and visibil-
ity of coral reef waters.  And,
in 1997-98, Reef Check used
volunter divers to survey
over 300 reefs in over 30
contriesl

http://www.ReefCheck.org/
http://www.cmc-ocean.org/pressrelease.html






                                                                                   Estuaries




                                                                                                stuaries, where fresh water from rivers n-Lixes with salt water from the oceans,
                                                               Recognize the                    are among the most productive environments on Earth. These transition zones
                                                                                                from land to sea provide unique habitat for more than 75% of the U.S. commer-
                                                         value of our nations                 cial and 85% of the U.S. recreational fisheries. Estuaries are also popular places to
                                                    estuaries, andprotect                     live, work, and enjoy outdoor activities. More than 28 million jobs in the U.S. are
                                                                                              created in association with estuaries, and more than 70% of Americans swim,
                                                and restore them for current                  boat, and fish in them.

                                                            gen
                                             and future          era tions.                   Increasing pressures from inland activities and coastal development are causing
                                                                                              habitat loss and degradation, fisheries declines, and overall reductions in estuar-
                                                                                              ine health and productivity Associated physical alterations, such as dredging,
                                                                                              damn-Ling, and bulkheading, change the natural flow of fresh water to estuaries,
                                                                                              affecting water quality fish spawning, and the survival and distribution of living
                                                                                              resources. Removal of vegetation can also affect water quality by causing
                                                                                              increased erosion and siltation. Toxic substances and excess nutrients con-
                                                                                                ri u e o s       eases, a ga    ooms, an ow sso e oxygen an can pose a
                                                                                                   threat to the health of humans and estuarine wildlife. The introduction of
                                                                                                          nonindigenous species is also affecting the ecological diversity of
                                                                                                                 many estuarine environments, eradicating naturally occurring
                                                                                                                   species and destroying essential habitat.

                                                                                                                             (Onga@ng Gancau-ns
                                                                                                                              0 Federal activities that affect estuaries are
                     4                                                                                                           not always well integrated.
                                                                                                                              0 Monitoring efforts in estuaries are often
                                                                                                                                 fragmented and not incorporated into overall
                                                                                                                                 monitoring data and analysis, hindering the
                                                                                                                                 ability of managers to evaluate and modify
                                                                                                                                 the effectiveness of their programs.






        40 Turning to the Sea                                                  W,





                                                                                                                                                                             AIVY







               ï¿½ Information on estuaries is often collected without reference
                  to overall national research goals, or without the technologi-                                                            t,
                  cal means to share and combine the data with other research
                  efforts.
               ï¿½ Many people living inland and at a distance
                  from the coast are unaware of how their
                                                                                     The
                              t estuaries.
                  actions affec
                                                                          National Estuarine
                                                                     Research Reserve System is a
               (N@Com m @end a z @ @on S                          network of field laboratories that
               ï¿½ Improve communication and                      study and improve the health of degraded
                  coordination among the various               coastlines, linking programs of stewardship,
                  federal agencies and programs               public education, and scientific understand
                  sharing responsibility for                 ing. The National Estuary Program uses a
                  estuarine protection.                       collaborative approach to protect estuaries by                                              @7
               ï¿½ Coordinate federal programs                   encouraging states, communities, business-
                  with tribal, state, and local,smart           es, and the public to work together to                Fair moire @nqormaUon
                  growth" initiatives to more                     effectively manage, restore, and pro-                                                                              M
                  efficiently implement on-the-                      tect their valuable estuarine                  o http://wwwnos.noaa.
                  ground solutions.                                      resources.                                        gov:8o/ocrm/nerr/
                                                                                                                           welcome.html
               0 Improve estuarine monitoring activities                                                     Ei http://wwwepa.gov/
                  and data reporting to facilitate an "adaptive
                                                                                                               owow/estuaries/
                  management" process.                                                                         nep.html
               ï¿½ Create a national framework for estuarine research.                    Ei http://wwwfws.gov/cep/coastweb.html
               ï¿½ Increase public understanding of the connections between               Ei http://marine.usgs.gov
                  human activities and estuarine health through improved                11 http://wwwnwrc.usgs.gov
                  education and outreach.                                               Ej http://wwwepa.gov/emap/html/
                                                                                             pubs/docs/midatl/
               ï¿½ Seek Congressional support for the Chnton/Gore Lands Legacy
                                                                                              cond-mae.htm
                  Initiative, which would provide essential funding for the
                  National Estuarine Research Reserve System and the National
                  Estuary Program.



                                                                                                                                                                                       0@1






                                                                     Marine Protected Species

         ii7
                                                                                                   uring the past century, marine marru-nals, birds, turtles, fish, invertebrates, and
                                                                                                    other marine species have been overhunted or overfished, causing extinction or
                                                                Reduce the risks
                                                                                                   extreme population declines. Today interactions with commercial fishing opera-
                                                          of extinction, and                    tions, overharvest for international trade, and degradation and loss of important
                                                    recover marine protected                    feeding and nursery habitats have depleted many marine species. As coastal and
                                                                                                marine waters have become increasingly polluted, many species have shown
                                                species and the ecosystems
                                                                                                increases in diseases, infections, and tumors. Combined with increased distur-
                        00
                                                                                                bances from ship traffic, noise pollution, and other impacts, the cumulative effects
                                             on which they depend.
                                                                                                of these stresses have reduced many marine species to extremely low levels and
                                                                                                                  possible extinction. Specifically, between 1975 and 1999, the num-
                                                                                                                         ber of marine species or stocks listed as threatened or endan-
                                                                                                                              gered under the Endangered Species Act increased from
                                                                                                                                 20 to 61. Another 42 marine species or stocks are cur-
                                                                                                                                    rently considered "candidates" or are proposed for
                                                                                                                                      listing under the Act.

                                                                                                                                        There is serious concern for the future of
                                                                                                                                          a number of marine species protected under
                                                                                                                                          the Marine Mammal Protection Act or the
                                                                                                         vM, A Cape Cod,
                                                                                                            V                              Endangered Species Act, including Steller
                                                                                                             tie Georgia/Florida.
                                                                  'htdek fthist contact a U.S. Coast Guard-operated shore                  sea lions, North Atlantic and North Pacific
                                                                                                                                           right whales, Hawaiian monk seals, West
                                                                   station. The ships provide the station with their course,
                                                                                                                                          Indian manatees, southern sea otters, and
                                                                    speed, location, destination, and route, and the station
                                                                                                                                          all six species of sea turtles. Destructive col-
                                                                     responds with information on local right whale
                                                                                                                                         lecting practices and unsustainable collection
                                                                       sightings and procedures that may help prevent
                                                                         collisions.                                                   levels have also severely depleted the popula-
                                                                                    http://wwwwh.whoi.edu/                           tions of a number of species (e.g., seahorses and
                                                                                         cgi-bin/rwhale.pl                         coral reef species). And habitat destruction is prob-
                                                                                                                                ably leading to the loss of less-studied marine organ-
                                                                                                                            isms before they are even identified, much less protected.


                                                                                 efttion




                  to the Sea













                                                                                            0 Consider the impacts of
             ï¿½ There is a lack of information on the population sizes and trends               marine noise pollution on
                of marine wildlife, as well as on the threats to marine wildlife.              marine mammals, and develop                4
                                                                                                                                                                     TwO
             ï¿½ The lack of coordination, especially in the international arena,                solutions as appropriate.
                reduces the effectiveness of recovery and protection actions.               0 More effectively implement the
             ï¿½ Delays in addressing population trends can dramatically increase                Convention on International Trade
                the cost of recovery efforts.                                                  in Endangered Species of Wild Fauna
                                                                                                                                                                                          A
                                                                                               and Flora, and improve cooperation with
              ReccDmm                                                                          domestic and international partners,
             ï¿½ Increase research and monitoring activities to provide informa-                 including increased training and capacity
                tion on populations of marine wildlife, and threats and solutions              building for other countries.
                to their decline.                                                                                                                                    4-4
             ï¿½ Develop and implement national goals and coordinated action                  Fair mau-e @nqc)=at@an
                plans to recover marine protected species.                                  Ei http://wwwnmfs.gov/
             ï¿½ Increase coordination with tribes and states on research,                           prot-res/prot-res.html
                recovery and management of marine protected species.                        El http://state-of-coast.noaa.gov/
             ï¿½ Address key existing and emerging threats, including modifica-               Ei http://wwwfws.gov/r9endspp/
                tion/destruction of coastal and estuarine seafloor ecosystems                      endspp.htn-d
                by fishing gear, coastal habitat destruction resulting from shore-          Ei http://wwwfws.gov/r9dia/
                                                                                                   global/cites.html
                line protection efforts, and watercraft collisions with marine
                                                                                                                                         _ AV
                mammals.                                                                    13 http://wwwheritagetnc.org/
                                                                                                                                                               , All
             ï¿½ Develop a coordinated policy and action plan for dealing with
                interactions between the public and expanding seal populations,
                the growth of marine aquaculture, and the use and effectiveness
                of marine preserves.
             ï¿½ Develop solutions to safely deter marine mammals, sea turtles,
                and seabirds from becoming entangled in fishing gear; prevent
                incidental bycatch in commercial fisheries; and reduce the
                impacts of ship traffic on marine mammals.

                                                                                                                     0






                                                                                                                                                                        America's Oce Futar'4
                                                                                                                                                                                             3





                                                         w

                             4P,                                Marine Protected Areas



                                                                                          ational parks, wilderness areas, wildlife management areas, state forests, and city
                                                                                          parks are all examples of land-based "protected areas." The designation of protect-
                                                                                          ed areas on land has a long history and proven track record for providing long-
                                                                                       term protection, resource management, recreational opportunities, and other uses.
                                                    Establish a strongly
                                                                                       Marine protected areas are defined as any area of intertidal or subtidal terrain,
                                                linked, scientifically                 together with overlying waters and associated flora and fauna, and historical and
                                            based, comprehensive                       cultural features, that have been reserved by law or other effective means to protect
                                                                                       part or all of the enclosed environment. Categories of marine protected areas can
                                          network ofprotected areas                    range from strictly protected wilderness areas to multiple-use areas.
                                        representing diverse                           There are approximately 300 marine protected areas in the U.S. managed by federal
                                       US marine ecosystems.                           agencies, state governments, or nongovernmental organizations. U.S. marine pro-
                                                                                       tected areas include National Marine Sanctuaries; selected National Parks, Seashores,
                                                                                       Monuments, and Wildlife Refuges; National Estuarine Research Reserves; National
                                                                                       Estuary Program areas; and certain areas designated for rebuilding fish stocks in
                                                                                       Fishery Management Plans.

                                                                                       Marine protected areas are important management tools with unique potential to
                                                                                       help communities protect and sustainably use their valuable marine and coastal
                                                                                       resources. They have been used effectively to conserve and manage natural areas,
                                                                                       reduce user conflicts and impacts from user activities, provide educational opportuni-
                                                                                       ties, enhance commercial and recreational opportunities, and provide undisturbed
                                                                                       areas for scientific comparison with nearby degraded habitats. Despite these bene-
                                                                                       fits and the fact that oceans cover over 71% of the Earth's surface, internationally, less
                             Ar                                                        than 1% of the sea is designated as marine protected areas. Domestically, about 1% of
                                                                                       the ocean area under U.S. jurisdiction is designated as marine protected areas, and
                                                                                       less than 1% of these areas protect marine life flom fishing and other impacts. Many
                                                            "Mo                        natural treasures on land have been given special protections to allow them to
                                                                                       remain as undisturbed as possible as part of the National Wilderness Preservation
                                                                                       System. No such system exists for U.S. ocean environments.





        4 4 lurning to i6e Sea















                                                                                                                                                    MR


                                                                                                                        ecosys-
                                                                                                                        tem functions or
                ï¿½ The U.S. does not have an integrated, compre-
                                                                                                                        contain significant
                   hensive network of sites representing the                                                            U.S. historical or cultural
                   nation's major ocean and coastal environments.
                                                                                                                        resources.
                ï¿½ There is no comprehensive approach to desig-                                        tof!ITHTW4@,   0 Examine the concept of marine
                   nating, evaluating, or monitoring marine pro-
                                                                                                  WMLIrkorm             wilderness areas and its applica-
                   tected areas at either the state or the federal level.
                                                                                                       tip to           bility to U.S. marine protected areas.
                ï¿½ Marine protected areas have not been used                            ',.a d, evaluate solu-        0 Evaluate the ability of existing marine
                                                                                           n
                                                                                                                                                                                    4#-"
                                                                                       to I                                                                                                              A
                   effectively for the long-term protection and
                                                                                 ,4@ o 7ns he p protect this            protected areas to protect unique or
                   sustainable use of commercial and recreational
                                                                                 I', sensitive area. This group,        representative examples of biological,
                                                                                                                                                                                          4P       1
                   fisheries.                                                    usin
                                                                                      g ecological data,                cultural, or historical resources; identify                 N-r
                ï¿½ Limited funding prevents adequate enforcement                                                                                                                                                    7%
                                                                                 socioeconomic informa-                 new areas of important ocean diversity
                   and monitoring in existing marine protected areas.
                                                                                 tion, and public input,                and productivity; and add sites and capaci-
                ï¿½ There are too few areas that preserve marine
                                                                                 It unanimously recommend-              ties to address specific local, tribal, regional,
                   biodiversity by limiting fishing and other
                                                                                 ed establishment of a new              national, or international issues and needs
                   harvest activities.
                                                                                 marine protected area for           0 Leverage public dollars to encourage pri-                  k
                                                                                 the Tortugas marine com-               vate donations by corporations and indi-
                (RecommencoaVoins                                                munities.                              viduals to support national marine sanctu-
                                                                                                                        aries and other marine protected areas.
                ï¿½ Increase linkages among existing marine pro-                       http://fpac.fsu.edu/
                                                                                                                     0 Seek Congressional support for the
                   tected areas within the U.S. and with those in                   tortugas/index.titmi
                   neighboring Countries to create a well-cooidinat-                                                    Chnton/Gore Lands Legacy Initiative,
                   ed network of sites for long-term monitoring, public                                                 which proposes to more than double
                   education, sustainable use, research and exploration, and                             the funding to strengthen our nation's twelve
                   protection of natural resources.                                                      national marine sanctuaries.
                ï¿½ Establish criteria to evaluate the effectiveness of existing                         Foir moire @nqormaVon
                   marine protected areas, and improve individual site perform-                       o http://wwwsanctuaries. nos.noaa.gov
                   ance and the success of the overall network.                                       0 http://wwwnps.gov/
                ï¿½ Identify areas of important ocean biological diversity and                          ci http://www/iucn.org/themes/
                   productivity and habitats for endangered species and commer-                                  wcpa/ppa.html
                                                                                                                                                                                                            @14































                   cial and recreational fisheries species, including essential fish                                                     01"e
                   habitat and coastal and marine areas that provide key                                                             Cfioxc



                                                                                                                                                                                       America's Ocean Future 45


Ocean and Coastal Habitats

Ocean and coatal habitats ae very diverse, ranging from coastal streams and sandy beaches to
seagrass beds and kelp forests, and from coral reefs and arctic ice shelves to open ocean waters
and deep ocean canyons.  The nation's ocean and coastal habitats support some of the most valuable
and diverse biological resources on the planet, including 66% of all U.S. commercial and
recreational fish and shellfish, 45% of all protected species, 50% of nongame migratory
birds, 30% of migratory waterfowl, and thousands of other species.  These habitats also provide
important services, including flood control, watre filtration and storage, storm protection, 
food production, and recreation and tourism.  While it is clear that human activities have
degraded or destroyed many ocean and coastal habitats, in some cases, the scope and magnitude
of these impacts are largely unknown, and we do not fully understand the complex processes 
related to ocean and coastal habitats.

Recent scientific examination of the effects of bottom trawling on the seafloor shows evidence
of large-scale habitat alteration, particularly within less resilient seafloor communities.
Other activities, such as dredging, although necessary to maintain our nation's waterways, can
also harm valuable riparian and estuarine habitats and raise ancillary problems associated
wit contaminated dredge material and its disposal.  Human activities, such as residential
and commercial development, can alter or destroy valuable coastal wetlands, which are critical
habitat for many species of fish, shellfish, birds, and other marine wildlife.

The port of Oakland has until recently been unable to dredge its channels because it could not
find an environmentally acceptable site to dispose of the dredged material.  An innovative
wetlands restoration project in the Sonoma Baylands helped find a creative solution by
hydraulically pumping clean dredged material onto former marshlands that had subsided.
Oakland is now more competitive in the deep-draft Pacific container trade, and the future
marshland is prime habitat for intertidal plants and animals.












                                                                                                   effect on-the-ground
                                                                                                                                                 Nk.
                 ï¿½ There is limited understanding of the causes of recently                        change in coastal areas.
                    observed changes in ocean chemistry and their potential                     0 Implement coordinated, comprehen-
                    impacts on ocean and coastal habitats.                                         sive efforts to reduce the impacts of
                 ï¿½ The nation's ocean and coastal habitats have never been com-                    dredging and fishing on coastal habitats.
                    prehensively mapped or described.                                           0 Develop cost-effective, environmentally
                 0 No coordinated monitoring program exists to track the health                    acceptable regional sediment management
                    and condition of ocean and coastal habitats and integrate                      procedures that speed remediation of contami-
                    federal, state, and local data.                                                nated sediments and increase beneficial reuse of
                 ï¿½ There is no comprehensive, long-term planning and tracking                      both dean and remediated dredged material.
                    of permits and use of ocean and coastal habitats, including                 0 Assemble and disseminate information on the social
                    impacts on essential fish habitat.                                             and economic values of ocean and coastal habitats.
                 ï¿½ Ocean and coastal habitats have tremendous social and                        0 Develop and implement new technologies to respond
                    economic values that are not captured in any assessment.                       to threats and restore damaged coastal habitats.
                 ï¿½ Technical and financial resources are not available to adequate-             0 Support community-based partnerships to identify,                                  t;,, 4&_ 1@W
                    ly restore most damaged habitats or respond to emergency                       design, and implement coastal habitat restoration
                    situations.                                                                    projects.                                                                              4
                                                                                                0 Increase research to understand the ongoing
                 ï¿½ Contaminated sediment, dredging, and the disposal of dredged
                    material pose a threat to ocean and coastal habitats.                          changes in ocean chemistry

                                                                                                For more @nqormaUon
                 ï¿½ Implement a coordinated, comprehensive effort to map and                     Ei http://wwwnmfs.gov/habitat
                    monitor the condition of U.S. ocean and coastal habitats, such as           E:i http://vvwwarcpartners.org
                    the Aquatic Restoration and Conservation Partnership.                       11 http://www.fvvs.gov/cep/coastweb.htmI
                 ï¿½ Produce an annual report card on the health of the nation's                  El http://state-of-coast-noaa.gGv/
                    ocean and coastal habitats.                                                      bulletins/htrrd/chr lo/
                 ï¿½ Fully implement the essential fish habitat requirements of the                     chr.htn-d
                    Magnuson-Stevens Fishery Conservation and Management Act.                   Ei http://wwwepa.gov/owow
                 ï¿½ Work with other federal, tribal, state, and local agencies to
                    encourage the use of existing wetland restoration programs to



                                                                                                                      W-@
                                                                                                                                                                                    A, e@n- fbiu'@






                                                                          Water Quality



                                                                                          oxic and nutrient pollutants, sedimentation, and disease-causing organisms are
                                                                                          degrading ocean and coastal water quality and threatening public health, the
                                                             Protect and
                                                                                          environment, and the economic well-being of communities that depend on fish-
                                                       restore coastal and                ing, tourism, and marine commerce. While "point" sources of pollution, such as
                                                  marine waters to safe-                  discharge pipes, continue to be a problem, the leading cause of water pollution
                                                                                          today is "nonpoint" source pollution, which includes runoff from farmland, subur-
                                              guard human health,                         ban lawns, and city streets, as well as pollution that is deposited from the air.
                                           sustain the rich diversity of                  Increasingly, excess nutrients in polluted runoff are contributing to harmful algal
                                                                                          blooms and robbing coastal and marine ecosystems of life-sustaining oxygen, cre-
                                         wildlife, promote a thriving                     ating "dead zones" that cover huge areas, such as the 7,7oo-square-mile dead zone
                                               economy, andpreserve a                     in the Gulf of Mexico. Pollution can also alter the chemistry of the coastal ocean,
                                                 recreational and aesthetic               which scientists fear is happening in the Bering Sea and other areas.
                                     A@
                                                  resource for safe enjoy-                As pollution continues to contaminate our waters, more and more people are
                                                                                          faced with the risk of illness from exposure to toxic contaminants and disease-
                                                                                          causing microorganisms, either when eating the fish they catch or through direct
                                                                    -,;7 @,7-             contact with polluted waters. In 1998, approximately 30% of all beaches surveyed
                                                                                          reported an advisory or closing, and 6o% of coastal waters were under fish-
                                                                                          consumption advisories.




                                                   Ir dwfta                               0 Water quality improvement efforts to protect human health and the environ-
                                                                                             ment have been focused primarily on inland and coastal waters. As a result, the
                                                                                             impacts of pollution on the marine environment are not as well understood.
                                                                                          0 While the federal government has developed national guidance on fish-con-
                                                                                             sumption advisories and recreational water quality monitoring, many tribes
                                                                                             and states do little or no monitoring, and variation in their methods and stan-
                                                                                             dards persists.
                                                                                          0 Contaminated sediments along our nation's coasts are degrading water quality
                                                                                          0 Many former ocean disposal sites are unmonitored, and their impacts on




        49 Tarning to the Sea












                   marine and coastal waters and ecosystems are largely unknown.                     0 Assess the impacts of
                                                                                                        military, industrial, and other
                                                                                                        coastal and ocean disposal sites,
                ï¿½ Implement the Administration's Clean Water Action Plan                                and identify and implement appropri-
                                                                                                              a e monitoring, protection, and
                   to effectively address polluted runoff and other
                                                                                                                   remedial measures where
                   sources of pollution, as well as improve coordi-
                   nation among federal agencies.                                 Ptesidont'g and Vice                 necessary                                                 *40
                ï¿½ Increase research on the effects of water                  President's igg 8, Clean Water               0 Work with international
                   quality and ocean discharges on the                'P Actidn Plan uses collaborative                    partners to reduce the flow
                                                                        watershed strategies to protect and                   of pollutants from land into
                   marine environment, including on
                                                                       restore water quality. Action items under              oceans by implementing
                   marine wildlife, and use this informa-                                                                                                                                                 AY
                                                                      the plan include developing a multi-agency              the Global Programme of
                   tion to improve protection for ocean
                   and coastal resources where necessary              Coastal Research Strategy, creating a coordi-           Action for the
                                                                      nated monitoring plan for coastal waters,               Protection
                ï¿½ Assist tribes, states, and territories in            and issuing a report to the public on the              ofthe
                   adopting fully protective fish-consump-
                                                                        condition of the nation's coastal waters.
                   tion and beach water quality standards,                                                                 Marine
                                                                                                                                                ___\  -"' , I-.---                      T
                                                                                        http://vTvvw.                     Environment
                   conducting adequate fish tissue and beach
                                                                                        cleanwater.gov                 from Land-Based
                   water quality monitoring, and developin
                                                                                                                    Activities.
                   effective public notification and education pro-
                   grams. Consider legislation that promotes these goals.
                                                                                                   For more @nqormaUon
                ï¿½ Improve detection of pathogens in fish wildlife, and recreation-
                   al waters through research on new technologies, and reduce the                o http://wwwepa.gov/water
                   occurrence of contaminants in coastal waters through improved                 o http://state-of-coast.noaa.gov                 N
                   controls on sewer overflows, stormwater runoff, and other                     1:1 http://wwwfws.gov/cep/coast/                    IN
                                                                                                         web.html
                   sources of pollution.                                                         Ei http://marine.usgs.gov
                ï¿½ Effectively manage and remediate both inland and coastal                       Ei http://wwwnos.noaa.
                   contaminated sediment sites to reduce their impact on coastal
                   water quality                                                                         gov/programs/
                                                                                                         ncos.html
                ï¿½ Work with tribes and states to identify and address the health of
                   coastal waters that are not meeting clean water goals.






                                                                                                                                                                                               @@reac






                                                                      Nonindigenous Species
                                                          -V


                                                               ilk


                                                                                             he spread of nonindigenous species, such as zebra mussels, Asian clams, ship-
                                                               Prevent                       worms, and aquatic weeds, is one of the most serious threats to the nation's
                                                                                             ocean and coastal ecosystems and the communities and economies that
                 J                                      introductions and                    depend on them. one of the primary sources of aquatic nonindigenous species
                                                   control existing                          is discharge of ballast water in ships arriving from foreign ports. Every minute
                                                                                             40,000 gallons of foreign ballast water that may contain exotic species, indud-
                                               populations of nonindigenous
                                                                                             ing disease-causing pathogens, are discharged into U.S. harbors. other sources
                                            species in US ocean and                          include aquaculture, introductions of stocks for sportfishing, ship hulls, and
                                          coastal waters.                                    floating debris.
                                                                                             Hundreds of nonindigenous species have now become established in the
                                                                                             nation's coastal waters; over 240 nonindigenous species are found in San
                                                                                             Francisco Bay alone. Once established, these species are almost impossible to
                                                                                             eradicate. Nonindigenous species have displaced and eliminated native
                                                                                             species, impacting fisheries and costing communities billions of dollars every
                                                                                             year in control measures. For example, in 1996, foreign viruses reduced U.S.
                                                                                             aquaculture production of shrimp by 50%, and failure to control the nonindige-
                                                                                             nous ruffe fish in the Great Lakes may cost over $500 million in losses to sport
                                                                                             and commercial fisheries by 2005. Some nonindigenous species, such as
                                                                                             cholera bacteria and some algae, have also had negative impacts on human
                                                                                             health.

                                                                                             In February 1999, President Clinton established the U.S. Invasive Species
                                                                                             Council through Executive Order 13112. The Council, chaired by the Secretaries
                                                                                             of Interior, Agriculture, and Commerce, is responsible for fulfilling the
                                                                                             Executive Order's mandates, including the development and implementation of
                                                                                             a national action plan to address invasive nonindigenous species. While the
                                                                                             action plan is a significant start, immediate and substantial progress is still
                                                                                             required.
        __ jlc










        50 Turning to the Sea











                onga@ng Concerns                                                          0 Fully implement the
                                                                                             National Ballast Water
               ï¿½ The U.S. lacks comprehensive, coordinated strategies and
                                                                                             Information and the National
                  actions to prevent the introduction and spread of nonindige-                                                                    An
                  nous species in ocean and coastal ecosystems and to identify               Aquatic Nuisance Clearinghouses to pro-
                                                                                             vide a centralized location for information
                  and respond to nonindigenous species present in coastal
                                                                                             on ballast water treatment, coastal non-
                  areas.
               ï¿½ Little information is available on the potential threats of non-            indigenous species, research, and education.
                  indigenous species, how to prevent their introduction, or their         0 Develop effective monitoring, education, research,
                  costs to marine and coastal ecosystems.                                    and rapid-response capabilities to quickly identify
               ï¿½ U.S. efforts to date have focused on controlling existing intro-            and eliminate nonindigenous species before they
                  ductions, and relatively little has been done to effectively               become established.
                  reduce the continuing influx of nonindigenous aquatic                   0 Support international efforts to prevent the introduc-
                  species into coastal areas.                                                tion of nonindigenous marine species, such as the
                                                                                             International Maritime Organization's Marine
               ï¿½ There is no international system for controlling introduction
                  of marine nonindigenous species.                                           Environmental Protection Committee's Ballast Water
                                                                                             Working Group.


                                                                                             For more @nqormaVon
               ï¿½ Increase efforts to prevent and control introductions of non-
                                                                                             Ei http://wwwgreat-lakes.net/envt/exotic/
                  indigenous species into marine and coastal ecosystems
                                                                                                    exotic.htnil
                  through the Aquatic Nuisance Species Task Force established
                                                                                             ï¿½ http://wwwanstaskforce.gov/
                  under the Non-Indigenous Aquatic Nuisance Prevention and
                                                                                             ï¿½ http://wwwuscg.mil/hq/
                  Control Act of 19go.
                                                                                                    g-m/ms04/first.htm
               ï¿½ Increase support for existing regional initiatives in the Great
                                                                                             El http://wwwnfrcg.gov/nas/
                  Lakes, Pacific, and Gulf of Mexico to control and prevent intro-
                  ductions of nonindigenous species.
               ï¿½ Develop and implement coordinated regional strategies in
                  other areas, and integrate all regional efforts into a national
                                                                                                                                                                  7
                  strategy as part of the national nonindigenous species plan
                  required under Executive Order 13112.

                                                                                                                      1c,
                                                                                                       okmeinez-


                                                                                                                                                           AL
                                                                                                                                                            'WIN 7






       4A*#
                                                    Marine Debris



                                                                 ften called "beach litter," marine debris is a major problem on beaches and in
                                                                V11
                                                                 coastal waters, estuaries, and oceans. Close to 8o% of debris is washed,
                                          Protectpublic
                                                                 blown, or dumped from shore, while 20% is from recreational boats, ships,
                                      health and the          fishing vessels, and ocean platforms. Most marine debris is man-made and slow
                                  marine and coastal          to degrade, such as cigarette butts, soda cans, plastic bags, and fishing gear.
                                                              Studies have shown that marine debris threatens over 265 different species of
                                environment by increasing     marine and coastal wildlife through entanglement, smothering, and interference
                             public awareness of the          with digestive systems. "Ghost fishing" - entrapment of fish and marine mam-
                                                              mals by lost or abandoned nets, pots, and gear - is reducing fish and wildlife
                            impacts of marine debris          populations. In addition, certain types of marine debris, such as broken glass and
                           and by working creatively to       medical waste wash-ups, can pose a serious threat to public health, causing
                          eliminate it from our beaches       beach closures and swimming advisories and robbing coastal communities of
                                                              significant tourism dollars. The U.S. Army Corps of Engineers spends $9.4 million
                        J and waters.                         annually to remove drifting and floatable debris from the New York/New Jersey
                                                              Harbor alone.


                                                              (Onga@ng
                                                              0 Implementation of effective marine debris control measures is currently
                                                                 hampered by a lack of consistent monitoring and identification of sources
                                                                 of debris.
                                                              0 Implementation and enforcement of local anti-litter regulations and manage-
                                                                 ment of debris entering and e)dting sewer systems are inadequate to effective-
                                                                 ly address the marine debris problem.
                                                              0 Marine debris can be the result of small-scale pollution by individuals who
                                                                 consider their discharges or littering to be of negligible impact compared
                                                                 with large-scale polluters. However, the cumulative impact of continuous,
                                                                 small-scale pollution can be dramatic.
                                                              0 Plastic makes up about 6o% of the debris found on beaches. The increase
                                                                 in the use of various kinds of plastic as durable, lightweight packaging has
                                                                 heightened the need for proper management and disposal.




     52 Torning to the Sea


Recommendations

Reestablish an interagency marine debris working group to coordinate development and implementation
of monitoring source identification, control, and education  programs to address and find
creative solutions to the marine debris issue.

Improve controls on potential sources of marine debris, including working with communities to
implement and enforce anti-litter laws, improve floating controls for local sewer systems, and 
employ statistical marine debris monitoring protocols.

Accelerate cooperative efforrts with industry, with tribal, state, and local governments, and
fishing groups to find creative ways to prevent and clean up marine debris and to increase 
public awareness of its impacts.

Support and encourage research efforts to pursue new packaging technology, and increase 
recycling opportunitie, particularly for plastics.

For more information

http://www.epa.gov/owow/oceans/debris/idex.html
http://www.uscg.mil/hq/g-m/nmc/seapart.htm
http://www.yotoy8.noaa.gov/books/debris/debris.htm


         LI







                         "Ireally don't know why it is that all of us are so committed to the
                         sea, except I think it's because in addition to the fact that the sea
                         changes, and the light changes, and ships change, it's because we all

                         came from the sea.... We are tied to the ocean. And when we go

                         back to the sea - whether it is to sail or to watch it - we are going-


                         back from whence we came,

                                                                             Kesidiffil JUIIII I. JIVIIIIctly

















      54 Turning to the Sea







                                                                                                                                     Discovering the Oceans
                                                                                                                          Exploring and understanding the oceans is
                                                                                                                                   critical to our well-being and survival.


                                                                                                           V
                                                          .tO































                                 hboat an,&Iabordt@ry
          rIUMISI, - UpIld                                                                                                                                                                              America's Ocean Future 5 5



                         L



                                                                            Ocean Education




                                                                                                     eople are drawn to the oceans by their beauty power, and infinite possi-
                                                                                                    bilities. Their inspirational power is demonstrated in centuries of litera-
                                                                Use ocean
                                                                                               ture, art, and music. Yet relatively few people understand the complex relation-
                                                         discoveries to                        ship between the oceans and the Earth's atmosphere, or grasp the magnitude of
                                                                                               human impacts on fragile marine resources.
                                   44y              heighten public aware-
                                                                                               A recent survey found that many Americans have misleading ideas about the
                                                ness of the full range of                      ocean and coastal environment. For example, only one in six knows that the
                                             ocean issues and inspire                          leading source of petroleum pollution in rivers, lakes, and bays is car oil washed
                                                                                               off streets into local waterways; most people think the leading sources are oil
                                           the next generation of ocean
                                                                                               rigs, tankers, and refineries. Similarly, the majority of adults recently surveyed
                                         scientists and explorers.                             are unaware that the leading cause of entanglement of marine wildlife is aban-
                                                                                                         doned fishing lines and nets. And four out of five Americans do not
                                                                                                               identify pollution running off the land as a problem for the
                                                                                                                   oceans, although it is the leading source of marine pollution.
                               Irk
                                                                                                                       Continuing intensification of human activity near the
                                                                                                                         coasts presents complex issues about marine and
                                                                                         i@_ duty, reserve,               coastal ecosystems and societal choices. Comprehen-
                                                                     ,and Aa*ifisfy Coa9t Guard members                    sive ocean awareness is critical to effective citizen
                                                                    have b-dip-dJa over2looo,doo peopple                   participation in decision-making processes. Citizens
                                                                   understand the effects of oil, hazardous
                                                                                                                           have increasing needs for informal education and
                                                                    hemicals, waste, debris, and what specif-
                                                                    c                                                      lifetime learning, as well as basic scientific literacy
                                                                    ic actions they can take to protect the                to be capable of making sound choices. Children in
                                                                      marine environment.                                 particular need to be engaged in ocean and coastal
                                                                             http://www,uscg.mil/hq/                    marine science. Young students have been motivated
                                                                                                                      by hands-on experiences, such as the National Ocean
                                                                              gmni,/,nInc/seapart.htrnl
                                                                                                                    Sciences Bowl(O, aquarium programs, GLOBE, Sea Partners,
                                                                                                                and Sea Camp. The ocean science community has the opportu
                                                                                                           nity to make the oceans a major context in which to study the inter-
                                                        04                                        actions of science, technology and society
                                                  it 4 0.,






                                                11"'."'! q:7



                                                                            MEMO                 M M                  M         M         M          M         M          M M =










              ï¿½ Although the government and private institutions support ocean                current ocean science
                                                                                                                                                                W
                science education and outreach programs, these efforts are rarely             and policy problems,
                driven by a specific plan to assess and improve the quality of             0 Expand efforts to create discovery-
                ocean science education for students, teachers, and the general               driven, interactive web sites for all feder-
                public.
                                                                                              al ocean programs to engage children and
              ï¿½ Current ocean and coastal educational materials are not as
                                                                                              adults in a lifetime of ocean discovery
                effective or useful to educators as they could be because they are         0 Expand partnerships between the federal gov-
                often not closely related to mandatory curricula and are highly               ernment and private entities, such as the
                variable in quality                                                           National Geographic Society; to leverage resources
              ï¿½ Teacher education is critical, yet opportunities for it are limited.          and increase ocean and coastal educational oppor-
              ï¿½ Federal agencies often have very specific educational responsibih-            tunities for the public.
                ties, such as boater education, safe handling of seafood, conserva-
                tion, and pollution prevention. Many of these can benefit from             For moire gnqormat@on
                and contribute to basic ocean educational materials and                    o http://wwwmarine-ed.org/
                programs,                                                                  0 http://wwwvims.edu/bridge/
                                                                                           0 http://wwwglobe.gov
                                                                                           o http://wwwtamug.edu/-seacamp
                                                                                           13 http://core.cast.msstate.edu/
              ï¿½ Establish a nationally coordinated effort to improve and promote
                                                                                           0 http://wwwaza.org/
                ocean science education.                                                                                                            _0(
              ï¿½ Make ocean science education materials widely available to
                educators and the general public,
              ï¿½ Develop partnerships and networks with education groups,
                                                                                                                                                         41
                such as the National Marine Educators Association, the National
                Science Teachers Association, and the American Zoo and
                Aquaria Association, to facilitate interaction between the
                ocean cornmunity and educators.
              0 Develop model programs, such as the Model Congress program,                        2 .
                that bring students together to debate and create solutions to







                                                                           Ocean Observations




                                                                                                   ecent technological developments have significantly improved ocean-observing
                                                                        Bevelop a                  systems. Satellites, ships, and buoys collect many kinds of data on and within
                                                                                                    the ocean, but these observations are not comprehensive. Gaps exist in
                                                                      coordinated,               coastal, open-ocean, and seafloor data sets. in addition, the federal programs
                                                       comprehensive system                      collecting ocean observations are poorly integrated. By improving the coordina-
                                                                                                 tion of data coliection, storage formats, and dissemination processes, an integrat-
                                                           of worldwide ocean                    ed ocean-observing system would provide comprehensive near-real-time infor-
                                                      obser va tions to s uppor t                mation on ocean and coastal conditions for the full range of users. Such a system
                                                                                                 would improve weather forecasting, detect and forecast oceanic components
                                                        6       a  wide range Of                 of climate variability, facilitate safe and efficient marine operations, make U.S.
                                                   Amk
                                                                                                                                                                     -dhtary operations
                                                                            societal             ports more competitive, and provide daily tactical support of n
                                                                                                 worldwide.
                                                                                eeds.
                                                                                                 Marine ecosystems and living marine resources would also be better protected if
                                                                                                 more complete and accurate data were coEected on ocean temperature, salinity,
                                                                                                 and dissolved chemicals and nutrients that affect commercial fish stocks, marine
                                                                                                 mammals, marine ecosystems, and coastal habitats. An integrated system would
                                                                                                 make more accurate predictions of natural hazards possible, allowing for mitiga-

                                          IVA
                                                                                                 tion of damage from hurricanes, coastal flooding, icebergs, tsunamis, and seafloor
                                                                                                 disturbances causing pipeline and telephone cable ruptures. The advanced warn-
                                                                                                 ing derived from observing systems and climate predictions saved an estimated
                                                                                                 $1 billion in California alone from losses related to El Nifio, which totaled $15 bil-
                                                               0
                                                                                                 lion nationally in 1997-98. Global ocean observations could even protect public
                                                                                                 health by collecting the necessary data to understand the fate of pollutants,
                                                                                                 pathogens, harmful algal blooms, and other health hazards that dose our beaches
                                                                                                 and shellfish beds. This system would also support fundamental scientific
                                                                                                 research and enhance public education and awareness of ocean issues.



                                                                                                 0 Current ocean-observation efforts are limited in scope. For example, volunteer
                                                                                                    merchant vessel observations are limited to shipping lanes; most satellites
                                                                                                    can only make surface-water or very shallow-water measurements; research
               k&A.

                          AL
                       age,


                        Sea







                                                                                                'g! o b -
                                                                                        M-4 Flo
                                                                                                             indude
                   vessels are limited to short-           0 0-_     I'& water s below the ocean's
                   term, small-area observations;              Pit, The Argo array will be a criti-          the full range of
                   and Navy data are not always            cal addition to an ocean-observing sys-           physical, chemical, and
                   publicly available. where data                                                            biological measurements
                                                                             to the existing atmos-

                                                                                                                                                                                   4r.
                                                                                                             to support all coastal users.
                   do exist, there are no mecha          I pheric observation system; and in com
                                                                                                             0 Encourage a strong
                                                             n
                   nisms to fully integrate them           bi ation, these systems will collect                                                                                              '7!
                                                                                                             partnership among federal
                0 No clear mechanisms exist for            data necessary to forecast weather,
                   translating large-scale, interna-                                                         ocean agencies and their
                                                         I predict phenomena that influence                                                      r,
                   tional ocean experiments into           global climate, and support national              range of public users to
                                                                                                             improve coordination               4
                   long-term, operational observa-         security and basic research needs.
                   tion efforts, or for transitioning             http://www.argo.ucsd.edu                   in technology devel-
                   emerging new ocean-observa-                                                               opment and the
                   tion technologies to operational use.                                                   management of
                                                                                                   ocean-observation programs,
                0 Data from different sensors, such as satellites, drifting floats,                resulting in an integrated,               "W:
                   and buoys, do not share commonalities in data format, access,                                                                                 t
                   and dissemination, and cannot be rapidly integrated to serve                    sustained, national ocean-
                                                                                                   observation system with
                   the many different users.
                                                                                                   common data standards,
                                                                                                                                                                411-
                                                                                                   formats, and dissemi-
                 Recommencoa)uons)
                                                                                                   nation techniques.
                ï¿½ Expand open ocean-observing capabilities to enhance sam-
                   pling of the full water column. In complement with satellite                    For moire
                   observations of the ocean surface, this will advance our
                   understanding of ocean circulation and air/sea interactions to                  Ei http://core.cast.msstate.                                              0
                   improve weather prediction and our understanding of climate                          edu/NOPPpbsplan.htn-d
                   change, and support basic researdi, fisheries, and national
                   security.                                                                       ii http://ocean.tamu.edu/GOOS
                                                                                                   Ei http://ioc.unesco.
                ï¿½ Expand and integrate seafloor observation capabilities to                                                                                                                         10
                   improve basic knowledge of the EartlYs temperature, chem-                            org/goos
                   istry, and structure. This will support pipeline and cable-
                   laying operations, national security and research needs, and
                   improved disaster warnings from seafloor disturbances.
                ï¿½ Expand and coordinate coastal-observing capabilities to





                                                                                                                                                                             America's Ocean Future 59


Over the last century, human activities have increasingly produced serious chemical, physical,
and biological changes in the oceans.  Water and air pollution are adding to the oceans vast
quantities of fertilizers and persticides that modify the chemistry of ocean water, particularly
along the coasts.  Overfishing, habitat destruction, invasive species, and pollution are
contributing to the decline of fish, marine mammals, and other species and reducing the 
biological diversity of marine ecosystems.  And climate change has the potential to produce
changes in ocean temperature, salinity, sea level, circulation patterns, and other physical
characteristics vital to marine and terrestrial life.

Issues such as Pfiesteria outbreaks, red tides, brown tides, the "dead zone" in the Gulf of
Mexico, introductions of nonindigenous species, and present scientific understanding.  
Fortunately, powerful new technologies are enhancing our ability to manage our precious
marine resources and answer immediately pressing and long-term questions about preserving 
biodiversity, climate change, and other critical issues facing us in the 21st century.  We
can harness advanced information theory and computational systems to assemble and analyze
data.  We can use new tools- from gene sequencers to autonomous vehicles and global 
satellites- to simultaneously explore questions about the oceans at subcellular and global sits.

Because the oceans are characterized by complex interacting physical, chemical, and biological
systems, research to understand ocean processes cuts across many different scientific fields.
A number of federal agencies have interests in ocean research, and each agency funds research,
and each agency fund research that meets its specific mission needs.

Deveop a vigorous, interdisciplinary ocean and coastal research program and cutting-edge
research infrastructure.

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










              Ocean research could benefit from                                                          ensure
                                                                                                           the integrity
              coordinated research programs across
              agencies and disciplinary boundaries.                                                          and accuracy of
                                                                                                              large, complex, and
              To encourage such coordination, in
                                                                                                               widely distributed
              1997 Congress established a new
              National Ocean Partnership Program.                                                              data sets.
              The heads of twelve agencies oversee                                                             0 Our coastal and ocean
              a program that provides funding for                                                              research infrastructure, from
                                                                                                              submersibles and research ves-
              new government/industry/university
                                                                                                             sels to laboratories, is aging and
              partnerships in research and education.
                                                                                                       y cannot meet the technological
              In addition, the National Science and                                                      demands of the 21St century.
              Technology Council's Comn-dttee on                                                                                                            4
              Environment and Natural Resources is focua
                                                            ing
              on improved interagency coordination with its
              FY 20oo budget initiative, "Integrated Science for Ecosystem               0 Develop an integrated, interagency science program
              Challenges."  One component of this program is slated to                      with the necessary infrastructure to meet ocean and
              increase research on harmful algal blooms and other coastal                   coastal ecosystem challenges, using a coordinated
              water quality issues. The National Ocean Partnership Program                  research strategy that integrates relevant ocean sci-                    V
              and the Committee on Environment and Natural Resources                        ence disciplines and advances both basic and applied                       '*A.
              provide mechanisms by which agencies can agree on priorities                  research in ocean and coastal issues.
              for cooperative ocean research. Early efforts have been                    0 Actively develop cooperative agreements with aca-
                                                                                                                                                                            4
              promising, but more needs to be done.                                         demia and the private sector to expand access to
                                                                                            specialized exploration and research infrastruc-
                                                                                                                                                                                    VW_
              (GngcD@ng Concerns)                                                           ture and data.
              ï¿½ oceanography and marine ecosystem science need an                                                                                     41,
                 increased interdisciplinary approach, linking the fields of             For magp_ 6nqarmat@an                                        -
                 physics, biology chemistry, and geology and allowing a better           El http://wwwaon-d.noaa.gov/
                                                                                                                                                                          N
                                                                                            ocd/globec/
                 view of the Earth as an integrated system.
                                                                                         o http://wvvwfhiri.usf edu/
              ï¿½ Current ocean and coastal research efforts do not take fall                                                                                                            Mr
                 advantage of opportunities for increased coordination, both in             ecohab/Default.htm
                                                                                                                                           AI-
                                                                                         11 http://wwwhpl.
                 research objectives and in shared research infrastructure.
                                                                                            umces.edu/coop/
              ï¿½ There is a lack of standardized practices and procedures to                                  the
                                                               @X
                                                          :A















                                                                                                           d                                                                          A@
                                                                                                     Se4-




                                                                                                         now


                                                      Ocean and Coastal Exploration



                                                                                      xploring the oceans has been an
               J
                                                                                      unportant human goal for
                                                        Expiore and
                                                                                      centuries. Yet, while we
                                                  discover the unknown               have spent much of our
                                                                                     history leaming about
                                             regions of the oceans.
                                                                                     what lies at the
                                                                                     ocean's surface, we
                                                                                     stiH know relatively
                                                                                     little about what hes
                                                                                     below In just the
                                                                                                                                       low
                                                                                     past 50 years, we
                                                                                     have discovered that
                                                                                     the greatest mountain
                                                                                     chains and canyons on           lu
                                                                                     Earth exist beneath the
                                                                                     sea. Only 20 years ago, we
                                                                                     discovered totally new
                                                                                     chemosyrithetic life forms that exist
                                                                                     around deep-sea hydrothermal vents.  Considered by some to be one of the most
                                                                                     significant biological discoveries in the latter half of this century these organ-
                                                                                     isms derive energy from chemicals - not the sun, revolutionizing theories of pho-
                                                                                     tosynthesis as the basis of aU life. These organisms have adapted to living in a
                                                                                     highly pressurized, sunless, superheated environment, and may provide insight
                                                                                     into our understanding of the origins of life on Earth and other planets.

                                                                                     Such discoveries demonstrate that the deep ocean remains the last great fTontier
                                                                                     of our planet for exploration and discovery Although no one can predict what
                                                                                     exploration wjU yield, exploration and research have led to discoveries that have
                                                                                     changed our lives fundamentaRy and have provided knowledge critical to sus-
                                                                                     tainably managing our natural resources.










                ï¿½ There is a lack of information about many ocean ecosystems,                                                        "Sit                                                      4;
                   including the ocean's deepest regions, affecting our ability to
                   manage them and to develop new uses and potential products.
                ï¿½ Only four manned submersibles in the world, none of them
                   operated by the U.S., are capable of descending to half the
                   ocean's maximum depth. The deepest-diving U.S.
                   manned submersible currently operating (the
                   ALVIAI) can reach only an estimated 63% of the
                   ocean floor.                                                                          part-
                                                                                   ftets, launc,hed the his-
                ï¿½ Not enough effort is made to bring the excitement
                                                                                I  toric.Sustafitable Seas
                   of ocean exploration - truly the last frontier on
                   Earth - to the public and to popular media.                     Ekp6d1fion to explore
                                                                                   and map the nation's
                                                                                   12 National Marine
               (Recommendaz@ons                                                    Sanctuaries, providing
                ï¿½ Establish a national strategy to expand exploration              the first comprehensive
                                                                                   study of some of the               For more 5nqormat@on
                   of the oceans, including more in-kind support by
                   federal agencies for private ocean exploration ini-             organisms and physical             o http://wwwnurp.noaa.gov
                                                                                   characteristics in these
                   tiatives.                                                                                          o http://wwwnational
                ï¿½ Support exploratory research in geographic areas,                areas.                                     academies.org/nrc
                   such as the deep-sea vent sites, and topical areas,             http://www.sustainable             Ei http:wwwwhoi.du/
                   such as undiscovered deep-sea species.                                seas.noaa.gov                        index.html
                ï¿½ Invest in the development of cutting-edge tech-
                   nologies and vehicles to observe and explore the
                   oceans from the surface to the seafloor.
                ï¿½ Develop ways to explore the oceans remotely, including new                                                                   0                                                      A
                   observatories and sensors and innovative uses of technologies.

                                                                                                                             Wq?. 15

                                                                                                              The




                                                                                                                                                                               America's Ocean Future 63


"Oceans are critical, not just to our

economy; not just to our food supply;

not just to America's trade and

security;  but to the fabric of life itself.

Those dark-blue waters are perhaps

the single greatest natural treasure

on God's Earth."

Vice President Al Gore



                                            .1112111111110 1
                                            ,., 3 6668 14103 4563 ,
                                                           I
                                                           I
                                                           I
                                                           I
                                                          I
                                                          I
                                                          I
                                                          I
                                                          I
                                                          I @
                                                          I.-
                                                         1-
                                                         I-
                                                         U
                                                         U
                                                         I-
                                                         I-
                                                         I