[From the U.S. Government Printing Office, www.gpo.gov]
THE GULF OF MAINE ACTION PLAN July 1991 Prepared by the Gulf of Maine Working Group for the Council on the Marine Environment GC 512 .M3 G94 1991 The Gulf of Maine Action Plan was prepared by the Gulf of Maine Working Group, and coordinated by Melissa Waterman, Council on the Marine Environment Secretariat, with support provided by the Federal Office of Ocean and Coastal Resource Management under Section 309 of the Coastal Zone Management Act of 1972, as amended. TABLE OF CONTENTS The Gulf of Maine: An Overview page 1 Background to the Action Plan page 5 Mission Statement and Definitions page 7 Issue Areas Monitoring and Research page 9 Coastal and Marine Pollution page 12 Habitat Protection page 15 Education and Participationi page 17 Protection of Public Health page 20 Appendices Gulf of Maine Working Group members Action Plan Reviewers U S. DEPARTMENT OF COMMERCE NOAA Agreement on the Conservation of the Marine COAST AL SERVICES CENTER Environment of the Gulf of Maine 2234 SOUTH HOEON AVENUE 2'234 Sou'rH HOrSON AVENUE CHARLESTON SC 29405-2413 ;' Proparty of COC Library Lr - THE GULF OF MAINE COUNCIL ON THE MARINE ENVIRONMENT 1990-91 MEMBERS NOVA SCOTIA NEW HAMPSHIRE John Leefe Jeffrey Taylor Minister, Department of the Environment Director, State Planning Office Guy LeBlanc Robert Varney Minister, Department of Fisheries Commissioner, Department of V ~~~~~~~~~~~~~~~~Environmental Services NEW BRUNSWICK MASSACHUSETTS Vaughn Blaney Minister, Department of the Environment Jeffrey Benoit Director, Coastal Zone Management Office Denis Losier Minister, Department of Fisheries Diane Gould and Aquaculture Director, Massachusetts Bays Program MAINE Dean Marriott Commissioner, Department of Environmental Protection Richard Silkman Director, State Planning Office GULF ACTION PLAN ' A COMMON RESOURCE - THE GULF OF MAINE The water body known as the Gulf of Maine extends from Cape Sable, Nova Scotia to Cape Cod, Massachusetts, and includes the Bay of Fundy and Georges Bank. It may be defined in many ways: as a semi- enclosed sea, separated from the Atlantic ocean by underwater banks; as the geographic extent of certain plant and animal species; as an economic resource linking the three American states and two Canadian provinces; and as the foundation of a distinct maritime culture shared by the two countries. Most importantly, however, the Gulf of Maine is a marine ecosystem, comprised of interrelated nutrient cycles, currents and tides, food chains and energy flows. The fish, marine mammals, and birds inhabiting the Gulf region lead transboundary lives, crossing into Canadian or U.S. waters freely. The continued health of the system that sustains those creatures, as well as our own continued reliance upon the system's resources, demands that we manage it as a marine ecosystem, not as a composite of separate and jurisdictionally distinct issues. To sustain the bounty of the Gulf, it must be protected and managed in a coordinated manner. The Gulf of Maine Action Plan is an attempt by the states of Maine, New Hampshire and Massachusetts and the provinces of Nova Scotia and New Brunswick to rethink their management of the Gulf and to define shared goals to strive toward over the next ten years. Creation of the Action Plan required that the states and provinces recognize their common interests in the Gulf of Maine. The purpose of the Action Plan is best summed up in its Mission Statement: "to maintain and enhance marine environmental quality in the Gulf of Maine and to allow for sustainable resource use by existing and future generations." The Action Plan recognizes the current good health of the Gulf and takes a preventative stance toward control of future pollution. Acknowledgement that the resources of the Gulf - fish, clean water, water-based recreational activities - are depletable is emphasized by the Plan's focus on sustainable development. Characteristics But what is the Gulf of Maine? It is known as one of the world's most productive water bodies. This fact stems from the combined productivity of its seaweeds, salt marsh grasses, and phytoplankton. Two currents dominate water circulation in the Gulf - a counterclockwise current moving through the Gulf and a clockwise current flowing over Georges Bank. A huge volume of water coming from the major rivers that enter the Gulf, from waters flowing around southwest Nova Scotia, and from deep waters coming through the Northeast Channel, powers these currents. It takes about three months for water to circulate around the periphery of the Gulf. The Gulf of Maine is considered one of the premier marine environments of the eastern seaboard. The foundations of the Gulf's great biologic abundance are the single-celled phytoplankton and the macroalgae,' known as seaweed. Phytoplankton bloom during the spring and summer months, when sun-lit waters are rich in nutrients. Georges Bank is the area of highest productivity in the Gulf's offshore waters. Lowest productivity occurs in the deep Gulf waters and along the southern edge of Georges Bank. Yet, in comparison to other shelf ecosystems, all of the Gulf of Maine has high primary productivity levels. The parts of the Gulf familiar to most people are the coast and adjacent waters. Among the varied habitats that comprise the Gulfs extenisve coast, the Gulf's numerous estuaries, such as the Annapolis River estuary in Nova Scotia or the Great Bay Estuary in New Hamsphire, are among the most productive. These estuaries are thought to be vital at some life stage to 70 percent of the commercially-valuable fish species of the Gulf. Salt marshes and mud flats are other characteristic features of the coast. Mud flats are found in shallow, protected waters. Small invertebrates live in the mud, providing food for fish, crustaceans, and birds. The salt marsh plants provide food and cover for both marine and terrestrial organisms, trap sediments, and add nutrients to the system through decomposition. Rocky intertidal shores are another characteristic habitat of the Gulf. These shores are high energy environments where plants and animals must adhere themselves to hard surfaces to survive breaking waves. The Gulf coast also includes sand, gravel, cobble and boulder beaches. Microorganisms page GULF ACTION PLAN and tiny invertebrates are the dominant organisms of the region's sand beaches and provide food for migratory shore birds. Thousands of islands lie along the Gulf's coast. Some are sandy barrier islands, common along the Massachusetts coast. The majority, however, are rocky outcroppings found along the Maine coast. The islands support nesting seabirds, seals and shellfish along with traditional human communities. Due to their geographic isolation, valuable examples of unique vegetative communities and rare plant species exist on some islands. Off shore, the Gulf's shallow subtidal habitats feature a variety of macroalgae, including kelp and eelgrass. The kelp and eelgrass, in turn, provide food and protection to marine organisms such as sea urchins and sand dollars. Sea scallops, winter flounder and lobster also are found within these habitats during certain seasons of the year. An array of animal species live within the Gulf region. More than 18 species of marine mammals are present in the Gulf at various times during the year. From late spring into the fall, the endangered northern right whale feeds and courts in Gulf waters. The Gulf 's many habitats make it a hospitable region for a variety of bird species. The mud flats and sand beaches provide food for shorebirds as they migrate between their Arctic breeding grounds and southern wintering locations. A Hemispheric Shorebird Reserve has been established at the head of the Bay of Fundy in order to protect habitat for the half million semipalmated sandpipers and other endangered shorebirds that visit the area each year. Great blue herons, osprey and bald eagles feed and breed near the Gulf's estuaries. Shallow subtidal habitats supply food for diving ducks, such as eiders, buffleheads and scoters. During the winter months, great flocks of these birds can be seen floating just off the coast. Values Historically, the Gulf has been the preeminent source of livelihood for residents along its shores. During ~.~ recent decades, use of its resources has expanded, as more and more people make recreational use of the Gulf's rich waters and often unspoiled shores. Fishing remains the principal commercial venture in the Gulf of Maine. In Gulf waters, nearly 20,000 fishermen operate approximately 300 Canadian and 1,350 American fishing vessels, as well as 4,000 lobster boats in the two countries. Since the extension of national jurisdictions to 200 miles offshore in 1977, fishing effort in the Gulf has grown sharply, while fish landings in each country have steadily declined. Consequently, other fisheries have taken shape during the past decade. A sea urchin fishery prospers in Maine, generating an estimated $2-3 million in value in 1988. Seaweed harvesting is a growing business in Nova Scotia, where 55 million pounds were harvested in 1988. Aquaculture ventures,'concentrating on Atlantic salmon, trout, mussels, oysters, and quahogs, also are increasing in number in each jurisdiction. Tourism is another form of resource use that is growing throughout the Gulf region. Millions of people visit the Gulf coast each year in order to enjoy beautiful land and seascapes and recreational opportunities. Some tourism businesses, such as whale watching, are based entirely upon the Gulf's unique characteristics. Others, such as resorts, restaurants, or even second-home development, are based simply on the beauty of the Gulf coast. While the economic value of tourism to each Gulf state and province is hard to determine, it is recognized to be a major contributor to the state and provincial economies as well as a critical source of revenue to small coastal communities. Another use of the Gulf, which is in conflict with some of those previously mentioned, is its value as a repository of wastes. The Gulf is used to assimilate sewage, industrial effluent, urban runoff, and air pollution. The true damage caused by our long-term chronic and cumulative pollution of the Gulf is not quickly determined, for the economic effects of disposal of these wastes in the ocean are rarely calculated. However, the cost includes the loss of other valued uses, such as shellfish harvesting or recreational swimming. page 2 72' 70 W66 6', 46* -~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~6 - / Watershed~~~~~~~~~~ve ~~~~~~SAL 40* - -'i Depd~~~~~~~ coofl~~~r in mMcalenn 42' 70 42,6 GULF ACTION PLAN The uses we make of the Gulf and their value to us are constantly evolving. Yet, we must recognize that nearly all depend on a healthy marine environment. The health of the Gulf ecosystem is integrally connected to the quality of our own lives. Stresses Our use of the Gulf of Maine and of its surrounding lands has put stress on the marine environment by altering habitat, introducing contaminants, and influencing population dynamics. This stress has escalated as use of both land and water has intensified. It is our smaller, dispersed activities that continue to have a cumulative effect on the ecosystem. Population growth and land use changes have produced the most visible impacts on Gulf waters and surrounding lands. Historically, cities and their industries were located on major waterways, which then were used both for power and for transport. Development in the Gulf concentrated around major ports such as Boston or St. John. After World War II, and most recently, during the 1980's, population and land development grew dramatically in the Gulf region, specifically on the coast. Within the region, population growth currently is approximately twice as fast in the U.S. states as in the two provinces. Growth of the population has changed the type and intensity of land use in parts of the Gulf region. Along the southwestern Gulf coast, agricultural lands have been converted to residential development. This conversion process extends up to mid-coast Maine. Changes in land use have hastened the destruction of coastal habitat. Since the time of European settlement, approximately 65 percent of the tidal flats and marshes in the Maritime provinces have been altered or lost. A recent report by the U.S. Fish and Wildlife Servfce estimates that approximately 1,511,000 acres of inland and saltwater wetlands have been lost since the time of the American Revolution. Projected sea level rise will further affect wetlands and other coastal habitats. Continued coastal development on beaches and dunes exacerbates natural erosion processes. The jetties and seawalls built to stabilize sands beneath ill-chosen house sites simply hasten erosion. Even those barrier beaches now protected as parks or reserves are threatened by the effects of adjacent development. As land use intensifies, so do the effects of non-point source pollution. Non-point sources of pollution to the Gulf represent the greatest threat to the nearshore environment because of their pervasive character, their cumulative effect, and the difficulty of control or abatement. Urban runoff, road runoff, forest and agricultural runoff, failing septic systems, shipping and boating activities, and deposition of airborne contaminants continue to affect the quality of the waters and natural resources of the Gulf. Failing and inadequate residential septic systems located along the estuaries or on the Gulf coast introduce nitrogen, phosphorus, chlorine, viruses and bacteria into coastal waters. The effect of such pollution is to close shellfish areas to harvestors or to close beaches to swimming. In addition, discharges from recreational boats and ships contribute bacteria and nutrients, as well as lead, copper and tributyl tin from bottom paints. In the Gulf as a whole, such contaminants do not pose a measurable problem. However, in congested harbors and anchorages, such discharges have become a concern. Point-sources of pollution come from industrial plants, such as pulp and paper mills, fish processing plants, textile mills, metal fabrication and finishing plants, municipal sewage treatment plants, and chemical and electronic factories, all of which are found along the Gulf. Many industries have improved their waste effluent, in response to public pressure and government regulations, but they still legally discharge an array of metals, petroleum hydrocarbons, and other toxic contaminants. Several hundred industries around the Gulf pump their wastes directly into coastal waters. In the United States, the majority of industries send their wastes to the local municipal treatment plants, which were not designed to handle complex industrial effluents. It is estimated that over a ton of toxics is discharged daily into Boston Harbor from its two municipal treatment facilities. page 3 GULF ACTION PLAN Sewage treatement will continue to be a concern as the regional population grows. Within many cities, sewage treatment facilities are antiquated and cannot handle a growing volume of sewage. In some cities, such as St. John, sewage is collected but receives little or no treatment. Often sewage effluent may be treated with chlorine, a chemical of concern because of its potential toxic effects on marine organisms. In some urban areas, storm drains are connected to the sewage system, causing the treatment facilities to become overloaded after a rainstorm. As a consequence, large amounts of nutrients, bacteria, metals, toxics, oil and other contaminants are discharged together into coastal waters. Dredging projects in the region result in the disposal of dredged materials within Gulf waters. There are four major dredge disposal sites in the U.S. portion of the Gulf. In Maine alone, 4.5 million cubic yards of material have been dredged by the Army Corps of Engineers between 1950 and 1989. The dredging and dumping of material may adversely affect the marine environment. Pollution can be spread by moving contaminated sedi- ments from harbors to clean, open ocean areas. Bottom-dwelling communities can be destroyed by the dredging or disposal of materials in the ocean. Another cause for concern in the Gulf is the large volume of oil shipped to its ports. In 1986, 1,974,000 gallons of oil entered the port of Portland; 3,390,000 gallons entered the port of St. John. In 1987, the port of Boston ranked seventh highest nationwide among oil handling ports. In the past, several spills, ranging from 200,000 to 600,000 gallons, have occurred in Gulf ports. The United States and Canada are both parties to a treaty that establishes cooperative procedures in the event of an oil spill in the Gulf of Maine. In addition, all the states and provinces have regulations intended to prevent minor or major oil spills. Yet, the potential for a catastrophic oil spill still exists. The Future The greatest threat to the health of the Gulf comes from the long term effects of introducing small and seemingly insignificant quantitites of persistent toxic materials to marine waters. The sub-lethal effects of this chronic contamination can cause significant changes in such ecosystem propertiesas productivity, recruitment, re- production and community composition. These changes are not easy to discern yet they are the warning signs of environmental degradation, difficult if not impossible to reverse. Everything within the watershed of the Gulf of Maine is connected. Our activities on the land matter as much, if not more, than our activities in the water. The effects of these activities are becoming increasingly apparent. We have lost some preferred uses of the Gulf: shellfish beds are closed to harvestors, estuaries are losing wetlands and consequently, the habitat critical to juvenile fish and shellfish, sea bird habitat is disappearing, coves and harbors are plagued by nuisance algae during the summer months. The complexity of the Gulf system requires an equally complex response from the states and provinces that border it. As requested by the region's governors and premiers, the Gulf of Maine Action Plan represents a coordinated response by the states and provinces to some of the issues threatening the integrity of the Gulf. page 4 GULF ACTION PLAN The Need for an Action Plan Marine ecosystem health is dependent upon a multitude of interwoven biological, physical, chemical and geological factors, many of which are not fully understood. Thus, a proper management approach for any marine water body must reflect the interrelated nature of the ecosystem. The Gulf of Maine illustrates the need for a coordinated approach to environmental management, for the boundaries that define the Gulf of Maine are physical rather than political. Developing the Action Plan The great biologic wealth of the Gulf of Maine has been shared for centuries by the bordering states and provinces as well as by other nations, though not without occasional conflict. It is this shared history that has provided a strong foundation for cooperative efforts by the states, provinces, and federal agencies to draft a Gulf Action Plan intended to protect the Gulf's environmental integrity. The Gulf of Maine Action Plan is a document that outlines the goals and principles that the states and provinces bordering the Gulf agree to pursue during the next ten years. Within the Plan, state, provincial, and federal agencies, as well as environmental organizations and interested citizens, articulate the goals and objectives that they consider most important to address. These goals and objectives lie within the overall context of the Plan's mission statement: "to maintain and enhance marine environmental quality in the Gulf of Maine and to allow for sustainable resource use by existing and future generations." The Action Plan focuses on transboundary issues, rather than specific state, provincial, or local problems. Much can be accomplished when the governments of three states and two provinces, as well as federal agencies, find compatible methods to pursue common goals. Yet a policy document that refuses to acknowledge the cultural realities of the region would be an ill-formed and unsupportable plan. There are two great values inherent within the Gulf of Maine system, recognized by the Gulf Action Plan: the existence of an incredibly diverse and productive ecosystem and the existence of distinct economic and social benefits derived from that system by the region's residents. At a policy level, one of the purposes of the Action Plan is to maintain the natural and cultural heritage of the region through protection of its environmental quality and support of sustainable resource use. Foundations of the Plan The Action Plan evolved from an international conference titled The Gulf of Maine - Sustaining Our Common Heritage, held in. December, 1989, in Portland, Maine. At that conference, scientists, policy makers, fishermen, marine trades people, and interested citizens listened to technical papers on six Gulf issues. Based on those six issue areas, more than 250 participants were divided into small "working sessions" where specific problems and possible actions were identified and discussed. The mix of participants and the focused nature of the working sessions resulted in concise lists of actions deemed necessary to meet existing and future problems in the Gulf. These summaries, found in the conference Proceedings, later formed the basis of the Action Plan. At that conference, the two premiers and three governors signed the Agreement on the Conservation of the Marine Environment of the Gulf of Maine, which established the Gulf of Maine Council on the Marine Environment (Gulf Council). The Gulf Council's ten appointed members were charged to develop a regional marine environ- mental quality monitoring plan and a ten-year Gulf of Maine Natural Resources Action Plan, among other things. The Gulf of Maine Working Group, management committee of the Council, has overseen both initiatives. The United Nations Environmental Program's Regional Seas Program and existing water body manage- ment efforts in the United States and Canada were used as examples when devising the structure of the Action Plan. Several iterations of the Plan's outline were reviewed by the Working Group prior to the Council's agreement on the Plan's goals and objectives at their June, 1990 meeting. An initial review of the document by state, provincial, and federal agencies took place during September and October of that year. The Council then reviewed page5 GULF ACTION PLAN a draft Action Plan in November, 1990, containing goals, objectives, and specific actions. Public review of the draft Action Plan was held during the winter, with over 75 agencies, organizations, and individuals offering comments on the structure, content, and priorities of the Plan. In response to public comments, the Working Group revised the draft Plan in March, 1991, before offering the final draft version to the Council at their July, 1991, meeting. Priorities within the Plan Given an Action Plan of tremendous scope, covering issues from public health to habitat restoration, the Working Group recognized the need to identify priorities among the many objectives in the Plan. Priorities were based on an assessment of the immediacy of need, the likelihood of success, and the public awareness benefits of the objective. Based on these, the Working Group came up with seven high priority objectives: * 'to iencourage gener in appop antimely monitori anoae tion toe ion eCvironmtal and :resource managersand the generalf publicin order 't anallow; boath efficient and effectives management tt.-00000act ion, evaluation, lu a s of suIh action ::* tion assist in dheat e uction of himacts o point source polltion ont e Gulf of Maine Guf to facilitate We regional efforts to assure proper disposal b ofderis and ivessel wastes witin the marine w ennvirongment af fsof the Gulf.' : toevaluate existing awsand regulations re ating to Gulf natural resources order to reduce disparities and improvem performance of thosenlaws and regulations. i p oi as'si in timhemreduction ofimpctsofnon-pont source pollution ionthe Gulf of aine. pr theo 98promoAte the protection, restoration, and enhancement of fish and wildlife habitat within the Gulf W of~: . :i regon. * -to develop and implement a regional citizens" education and participaton program with the tent of t;; tii 0invol~ng citizens in-locall resource management issues. Of these seven, the first four are highest in priority and are included in the Council's 1991/92 workplan. The remaining three objectives and related actions will be addressed in the 92/93 and 93/94 Council workplans. The thirteen objectives and related actions not started during the first three years will be undertaken in three-year increments thereafter. The Plan as a whole will be reevaluated by 1994 - at that time its goals and objectives must be reassessed, progress during the first three years evaluated, and review of identified priorities undertaken. It is probable that, as existing state, provincial, federal and Council projects progress, new information will become available to indicate where greater efforts or research should be directed. Conclusion The Action Plan indicates the consensus of the states and provinces that the ecological integrity of the Gulf of Maine supercedes other interests. The Plan should be considered representative of agreement - agree- ment between governments and agencies and among states and provinces on the directions to be followed and actions to be taken in the near future. Funding for particular actions will come from a multitude of sources, some existing, some to be devised. Given myriad existing environmental programs, regulations, and policies, Plan implementation will vary from jurisdiction to jurisdiction. The Gulf Council is responsible, as per the 1989 Agreement, for reviewing progress on implementation of the actions in the Plan regularly and reporting that progress to the governors and premiers. How the goals and objectives are achieved invariably will depend on state, provincial and federal commitments; the key to the Action Plan is that all agree on the goals and objectives they are striving for. page 6 GULF ACTION PLAN ACTION PLAN MISSION STATEMENT W TOMAINTAI-AND ENH'ANCE M ARIANE iENVIRONMENTAL QUALITY IN THE GULF OF MAINE AND TO ALLOW FOR SUSTAINABLE RESOURCE USE BY EXISTING AND FUTURE GENERATIONS Definitions: GULF OF MAINE: land and water from Cape Sable to Cape Cod, including Georges Bank, the Bay of Fundy and tidal estuaries ACTION PLAN: a compilation of agreed-upon goals and objectives and a list of specific strategies or actions that will achieve the objectives for each goal GOAL: general statement describing what is to be achieved in the future. Goals reflect a consensual vision for a specific or general resource. OBJECTIVE: milestones that, as achieved, incrementally attain goals ACTION: a specific activity undertaken to achieve the objective, which identifies lead agents and final products. SUSTAINABLE DEVELOPMENT: use of resources that meets present needs without compromising continued resource use by future generations POLLUTANT: introduction by man, directly or indirectly, of substances or energy into the marine environment which results in such deleterious effects as harm to living resources, hazards to human health, hindrance to marine activities including fishing, impairment of quality for use of sea water, and reduction of amenities (GESAMP, 1986) CONTAMINANT: an addition to the marine environment that alters the marine environment but does not cause measurable adverse effects (GESAMP, 1986) page 7 GULF ACTION PLAN Role of the Gulf of Maine Council with regard to the Action Plan The Gulf of Maine Council on the Marine Environment plays a crucial role in implementation of the Gulf Action Plan. The Agreement on Conservation of the Marine Environment of the Gulf of Maine, signed in 1989 by the five governors and premiers of the region, established the Gulf Council. Comprised of state and provincial agency directors and ministers, the Council's mission is to discuss and act upon Gulf environmental issues of common concern. As a link among the many state, provincial and federal agencies involved in Gulf management, the Gulf Council will facilitate efforts by the five jurisdictions to maintain and enhance the health of the Gulf. Council support will come in many forms including dissemination of scientific data, improved state, provincial and federal communications, funding assistance, and heightened public awareness. With respect to the Action Plan, the Gulf Council's GOAL is: to develop interjurisdictional mechanisms for resolving environmental problems within the Gulf region. The Council will pursue this COAL by: - supporting existing and future regional agreements on shared environmental issues of concern, including but not limited to state/provincial oil spill contingency plans and scientific response plans, land-based to-kics reduction plans, and regionally significant habitat protection plans; - supporting regional efforts that facilitate the coordination of appropriate research initiatives in the region; - encouraging compatible Gulf of Maine public education and participation initiatives in the region; - supporting regional efforts toward improved coordination of marine and coastal management and enforcement programs; - supporting regional efforts to develop funding options for components of the Action Plan; and - advising member governments of federal activities in the Gulf of Maine -of mutual interest. Actions which the Council takes in striving to achieve these objectives, based on the priorities of the Action Plan, will be found in the Council's yearly work plan. Format of the Action Plan There are three discrete categories of objectives within the Action Plan, based on identification of their priority rating. Seven objectives have highest priority within the overall Plan. Four of those seven are to be initiated during the 1991/92 fiscal year, and are included within the Council's annual work plan. Those four objectives and the related actions are identified as 1991 Priorities. The remaining three highest priority objectives are found within the Plan as 1991-92 Priorities. The next category of objectives covers the second tier of priorities, those planned for initiation in 1994- 1997. These objectives remain priorities but did not rank as highly as did the seven mentioned above. The final category of objectives are those that will be tackled in the years 1997-2000. Generally, these objectives pertain to related tasks begun earlier and so were not rated as highly as the previous two categories. The Action Plan will be evaluated and revised in 1994 by the Gulf Council. At that time categorization of the objectives can be revised by the states and provinces. Thus, these initial priorities cannot be seen as fixed; they reflect priorities as presently perceived by the Gulf Council. Page 8 GULF ACTION PLAN MONITORING AND RESEARCH Ten objectives were established to meet the three goals. A survey mailed to over 150 scientists, Introduction policy makers and environmental managers around the Gulf determined the two highest priority monitor- The key to understanding the chemical, bio- ing objectives: logical, geological and physical processes of the Gulf of Maine is research. Relevant research and monitoring 1. to assess the status and trends in the marine programs will provide data and information necessary environment by monitoring appropriate indi- to predict the fate and effects of pollutants, as well as to cators of change in environmental quality, determine the efficacy of regulatory actions. Even with especially those that will allow identification the current level of research, we are only beginning to of the early stages of change delve into the complex natural systems of the Gulf. and The Monitoring Environmental Quality Monitoring Program 2. to .assess the existing levels, the trends, sources, and economic impacts of acute and In 1988 and 1989, the three states received a chronic risks to human health from toxic com- federal grant to design a Marine Environmental Qual- pounds transmitted through marine foods and ity Monitoring Program for the Gulf of Maine. Repre- water contact. sentatives from state, provincial, and federal agencies worked together to craft a plan that draws upon the efforts of other existing monitoring programs in the A final high priority issue that could not be Gulf as well as presenting new monitoring initiatives. categorized with actual monitoring activities was the The mission of the Gulf of Maine Marine Environ- goal of providing for the effective transfer of informa- mental Quality Monitoring Program is to provide tion to managers and the public. This goal, which was environmental and resource managers with informa- given high priority within the monitoring plan, was tion to support sustainable use of the Gulf, and allow also rated the highest priority objective of the Gulf assessment and management of risk to public and Action Plan. environmental health from current and potential threats. Rather than include the text of the entire Monitoring Program document here, a brief summary of the program follows. A copy of the complete Gulf Marine Environmental Quality Monitoring Program may be obtained from the Gulf Council Secretariat office. The Marine Environmental Quality Monitoring Program has three broad goals. It will provide informa- tion on the status, trends, and sources of risks to the marine environment of the Gulf; provide information on the status, trends, and sources of marine-based human health risks in the Gulf; and provide appropri- ate and timely information to environmental and re- source managers that will allow both efficient and effective management action and evaluation of such action. page 9 GULF ACTION PLAN RESEARCH, goal: to obtain and make available infor- mation required by resource managers to sustain the 1994 priority Gulf of Maine ecosystem 1.2 to establish protocols to standardize methodolo- gies and create compatible Quality Assurance/Quality Research Objectives: Control agreements for monitoring of Gulf environ- mental quality ely~Z:I :Actions 1.1- tornuae g enera ion o appropiae ani Gulfienronm'e''i. in.orma .ionf.or managers and the 1.2.1 appropriate state, provincial and federal agen- general public in order 'to allow both efficientand cies, and university research laboratories should nego- 'gen'al:'pulic in: e:~ :t:all::: : bor t b effi:c: a itd effectivei management action iand - 0evaluation, "and Of to tiate a system to assure high-quality, consistent data with regard to Gulf scientific research :: .::..::::i ::i iiii :.i?. :: i: i ::. 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IL: : : ::i: : :: promote public awareness of suc actions Actions 1.2.2 university laboratories, state and provincial labo- 1.1.1 the Gulf Council will seek agreements among ratories, and private contractors should develop Qual- state, provincial and federal agencies to promote estab- ity Assurance/Quality Control agreements that assure lishment of a common database derived from current consistent and compatible analytical results within the research and monitoring programs in the Gulf of Maine region 1.1.2 the Gulf Council, through its Data and Informa- tion Management Committee, will determine methods 1997 poty to ensure that Gulf environmental databases are com- 1.3 to coordinate approaches to marine research by patible and will recommend a regional protocol for federal, state and provincial agencies and among pri- transfer of data and information throughout the region 1.1.3 the Gulf Council, through its Data and Informa- Actions tion Management Committee, will develop a Gulf sci- 1.3.1 a regional task force should be established to ence and research index/directory that lists informa- coordinate information on the impacts on the Gulf of tion on current Gulf research activities, is geographi- Maine coastline of projected sea level rise. cally and thematically referenced, is accessible by computer, is updally and thematedically refegularlyenced, and is accessvailable byto 1.3.2 state, provincial and federal agencies and private computer, is updated regularly, and is available to environmental managers and to scientists. laboratories should develop an integrated research program devoted to improved understanding of the Gulf of Maine as a combined physical, chemical, and biological system 1.3.3 the Gulf Council should work with the states, provinces and appropriate federal agencies to articu- late marine research priorities at multiple governmen- tal levels in order to, among other things, structure funding allocations, improve competitive status of regional marine research proposals, and meet specific management needs 1.3.4 the Gulf Council should work with state, provin- cial, and federal agencies and universities to support research projects on and develop funding sources for the following topics: a) accurate estimates of dose relationships of patho- gens to humans and "allowable concentrations" b) the role of sediments as reservoirs of pathogenic microorganisms c) the synergistic effects between pathogens and toxic chemicals d) methods that detect indigenous pathogens that are not related to fecal contamination 'page 10 GULF ACTION PLAN 1997 priority 1.4 to improve assessment of harvesting method effects on Gulf of Maine productivity Actions 1.4.1 federal, state and provincial agencies, Sea Grant College programs and comparable university programs in Canada should give high priority to research on the effects of harvesting methods on Gulf productivity 1.4.2 state, provincial and federal agencies should agree on specific research projects relating to harvest- ing methods and develop a timetable for initiation of projects pagel1 GULF ACTION PLAN COASTAL AND MARINE POLLUTION 2.0 Coastal and Marine Pollution, goal: to reduce impacts from existing pollution sources and to prevent Introduction future environmental degradation of the Gulf of Maine Too often our view of the marine environment Objectives: takes form as a type of aquatic mirror: we most fre- quently notice changes in water quality only as they 1991 :prori i effect our own lives. Yet, the Gulf of Maine is a natural 2.1.A to assist in the reduction of impacts of source resource over which we exercise stewardship, not pollutioninthe Gulf ownership. As stewards, we protect the marine envi-i i i ronment of the Gulf without the demand that it provide recreation, employment and food for us. Typically, Actions however, stewardship falls second to proprietary no- 2.1.1 the Gulf Council will work with state and provin- tions when we view our environment. In fact, we cial agencies and with NOAA, EPA and Environment protect the Gulf's environmental quality primarily as a Canada to develop an inventory of industrial and means of ensuring the uses of the Gulf that we value. municipal discharges and other sources of pollution into the Gulf and its tidal rivers in order to develop Recent studies indicate that the Gulf of Maine, regional knowledge of pollutant inputs to the Gulf. The as a system of interrelated physical, chemical, biologi- Gulf Council will then identify specific pollutants and cal and geological features, is suffering. Samples show pollutant sources for priority action. that sediments in the deep offshore basins of the Gulf of Maine contain low but unnatural concentrations of 2.1.2 the Gulf Council will develop a resolution that toxins. Fish samples collected in specific sites by state, highlights the pollutio -impacts evident from use of provincial and federal agencies exhibit liver lesions, fin combined sewer overflows in bordering states and rot and other signs of environmental stress. Once infre- provinces and establishes the Gulf Council members' quent, toxic algae blooms in the Gulf are becoming policy on curtailing construction of and mitigating common events, distinguished from year to year only impacts from combined sewer overflows. by their magnitude and impact on marine organisms. 2.1.3 the Gulf Council member agencies will select W Many forms of pollution flow into the Gulf of specific marine areas degraded by point sources of Maine. The Gulf has been spared the catastrophe of a pollution within each jurisdiction and will implement large oil spill however, the number of oil tankers trav- appropriate demonstration projects in those areas; a re- ersing the Gulf hints at the possibility of a large spill in port on progress of the demonstration projects will be the future. Of more immediate concern is the cumula- made to the Council within two years. tive effect of minor but numerous spills occurring throughout the Gulf each year. A steady stream of pesticides, pathogens, nutrients, petroleum hydrocar- bons and trace metals enter the Gulf daily as point and non-point source pollutants. Furthermore, the Gulf's location "downwind" of the industrial states and prov- inces results in the deposition of a variety of pollutants from the air into Gulf waters. Clearly, one cannot take a blanket approach to pollution control in such a large area. Strategies must be developed at different geographic levels - at the regional, national, state and provincial, watershed, and community levels. The Coastal and Marine Pollution section of this Plan represents agreement on some regional responses to current water quality issues and on methods to prevent future pollution of the Gulf's coastal and marine waters. page 12 GULF ACTION PLAN . 1992-93 priority 1992-93 priority 2.2 to facilitate regional efforts to assure proper 2.4 to assist in the reduction of the impacts of non- disposal of marine debris and vessel wastes within the point source pollution in the Gulf Gulf Actions Actions 2.2.1 appropriate state, provincial, and federal agen- 2.4.1 state, provincial water pollution control agencies, cies should conduct a regional assessment of dockside working with appropriate federal agencies, should waste and septage facilities and prepare a plan to identify the sources of non-point source pollution to ensure adequate facilities the Gulf and their respective contribution of pollutants; pollution reduction targets should be devised and 2.2.2 the Gulf Council should assist state, provincial, implemented. and federal agencies, and community organizations to develop a program targeted at reducing fishing vessel 2.4.2 the Gulf Council should assist in evaluation of debris in Gulf waters, focused on fishing ports and regional priority non-point source pollution research harbors needs and support specific regional projects 2.2.3 the Gulf Council should work with vessel owner 2.4.3 the Gulf Council should assist state, provincial, organizations and shipping industry associations to federal agencies and private organizations in conven- encourage accelerated compliance with MARPOL .ing regional workshops to review and transfer infor- Annex V regulations in Gulf waters mzition regarding successful methods and programs for the control of non-point source pollution. 7992-93 priority 2.4.4 the Gulf Council should work with state and 2.3 to encourage evaluation of existing laws and provincial transportation departments to include Best . regulations relating to Gulf natural resources to reduce Management Practices and Techniques in highway disparity and improve performance among states and design standards in order to contain road runoff provinces 2.4.5 appropriate state and provincial agencies should Actions develop regulations that control runoff rates on devel- 2.3.1 the Gulf Council should support a study evaluat- oped land other than highways in order to reduce ing the federal, state and provincial laws and regula- pollutant loadings to the Gulf contained in river or tions applicable to the Gulf of Maine with the intention groundwater of identifying gaps among the laws and reviewing law enforcement practices and policies 2.4.6 state, provincial and federal public health agen- cies and appropriate environmental agencies, recog- 2.3.2 the Gulf Council should encourage state and nizing the fiscal and technical constraints upon the provincial agencies to issue a report in each state or states and provinces, should promote maintenance of province, which pinpoints future, high-priority im- individual sewage disposal systems; alternative sew- provements to Gulf-related laws and enforcement age treatment methods should be investigated by the programs within that state or province agencies as a means of opening productive shellfish beds to commercial harvesting page 1 GULF ACTION PLAN 1994 priority 1997 priority 2.5 to encourage federal agency cooperation/involve- 2.7 to support development of a regional strategy to ment in state/provincial pollution control actions minimize impact from disposal of contaminated mate- rials at sea Actions 2.5.1 the Gulf Council will assist states and provinces Actions in working with appropriate federal agencies to estab- 2.7.1 the state and provincial environmental agencies, lish compatible standards for marinewater and sedi- in cooperation with appropriate US and Canadian ment quality in the Gulf region federal agencies, should form an ad hoc work group to identify common dredging issues, including antici- 2.5.2 state, provincial and federal governments should pated frequency of dredging activity, projected vol- periodically review the use of Best Management Prac- ume of dredged material, composition of the material, tices and Techniques at all major federal facilities lo- estimates of pollution loadings from current and antici- cated on the Gulf perimeter in order to control and pated dredged material disposal, and evaluation of abate point and non-point source pollution inputs to possible contaminant testing protocols the Gulf of Maine 2.7.2 the Gulf Council should requent state, provincial 2.5.3 the Gulf Council will support efforts by Environ- and federal agencies to convene regional workshops mentCanadaand the Environmental Protection Agency every two years for the purpose of information ex- to develop compatible standards for high priority pol- change, identification of disposal problems in the Gulf, lutants in the Gulf region and discussion of cooperative efforts toward solutions. 7997 priority 2.6 to ensure the better prevention of and prompt response to the impacts of environmental catastrophes Actions 2.6.1 state and provincial hazardous materials agencies should review individual oil spill contingency plans to devise methods for improved cooperation at local and regional levels 2.6.2 marine industries, universities, and state, provin- cial, and federal agencies should cooperatively de- velop a marine catastrophe scientific assessment and monitoring plan which details, at a minimum, priority actions and personnel requirements 2.6.3 the Gulf Council should request the US and Canadian Coast Guards to conduct review of marine transport of hazardous materials, including river and harbor transport, and shipping and shoreside handling processes, in order to assess potential risks and identify improvements 2.6.4 the Gulf Council should request the U.S. and Canadian Coast Guards to initiate a study that exam- ines the merits and estimated costs of developing a coordinated vessel tracking system for the Gulf of Maine page 14 GULF ACTION PLAN HABITAT PROTECTION 3.0' Habitat Protection, goal: to foster an integrated approach to protection and sustainable use of Gulf of Introduction Maine habitats The waters and lands of the Gulf of Maine are Objectives: inextricably woven into the lives of residents of the surrounding states and provinces. The perimeter of the '991: rinoay Gulf features a variety of habitats, from rocky coasts to 3.:i to Su: :pport the protection, restoration, and en- expansive salt marshes. Churned by tides and currents, hancement of' fish and wildlife habitats Gulf waters support a bounty of commercially and recreationally valuable finfish and shellfish species Actions which, for centuries, have sustained the communities 3.1.1 the Gulf Council, through its member agencies, along the Gulf's shores. will encourage federal, state, and provincial agencies and private organizations, to initiate a multi-phased The estuaries of the Gulf act as pathways to project which focuses on the protection, restoration, inland waters for migratory fish, such as alewife and and enhancement of regionally significant habitats Atlantic salmon, and as nurseries for other fish species. The extensive intertidal flats associated with estuaries In its first phase, the project will identify exist- support tremendous shellfish and worm populations, ing regionally significant habitats and prepare a report 'harvested for generations by recreational and commer- for the Gulf Council indicating the types of habitats cial fishermen. Offshore submerged banks and ledges existing and existing management programs. are also places of high productivity. The offshore wa- ters provide feeding grounds for several species of In its second phase, the project will identify whales during the summer and fall months, including those areas not included in current management pro- the endangered northern right whale. Flocks of migra- grams and develop compatible standards for the defi- tory birds settle on Gulf waters and wetlands each nition of lost or degraded regionally significant habi- spring and fall as they follow their seasonal path along tats. the eastern seaboard. Initsfinal phase, the project will develop guide- Whether our interests lie in recreational shell- lines, suitable for state, provincial, and federal use, on fishing, real estate sales, or commercial fishing, the long-term management and restoration of degraded health of the Gulf's natural resources affects us eco- regionally significant habitats and implement rehabili- nomically. The state, provinces and federal govern- tation or protection projects based on those guidelines ments are beginning to address the issue of sustainable in each state or province. development of resources through such initiatives as the Canadian Green Plan, the provincial Round Tables on Environment and Economy, and the New England Governors-Eastern Canadian Premiers' Environment Committee. To assure the continued sustainable devel- opment of our resources, coordinated steps must be taken now. The problem of overharvesting of the Gulf's fisheries resources is a growing issue, and one cur- rently under debate in American and Canadian fo- rums. There are years of expertise institutionalized in the federal and regional fisheries agencies; it would be presumptuous for the Council or this Action Plan to recomend specific actions to them. For now the ques- tion of fisheries management and its effects on the Gulf system must be left to existing institutions. page 15. GULF ACTION PLAN 1994 priority ongoing priority 3.2 to support a systematic approach to the identifica- 3.3 to improve communication among state, provin- tion, classification and protection of coastal and marine cial and federal agencies, marine interest groups, and habitats of regional concern environmental organizations about existing manage- ment strategies for specific marine resources Actions 3.2.1 the federal, state and provincial wildlife and Actions marine resource agencies, and private organizations 3.3.1 the Gulf Council will work with appropriate should consolidate existing information on fish and organizations to convene a regular conference for state, wildlife habitats of the Gulf of Maine in a regional form provincial and federal managers, environmental or- ganizations, and marine interest groups to review 3.2.2 federal, state and provincial agencies and private common problems and management policies for spe- organizations should cooperate in the development of cific coastal and marine resources a common habitat-mapping system, suitable to the needs of the states and provinces 3.3.2 the Gulf Council should request that appropriate state and provincial agencies and federal agencies meet 3.2.3 the Gulf Council should request that appropriate to discuss compatible standards regarding site selec- state and provincial agencies review the findings of the tion and water quality impacts from aquaculture busi- UN Regional Seas Program and the UN Man and nesses in order to support environmentally appropri- Biosphere Program on the management of Large Ma- ate ventures rine Ecosystems; the agencies and the Council should issue position papers-for the Governors and Premiers on a proposed Biosphere Reserve within the Gulf of Maine 3.2.4 state, provincial, and federal agencies should meet with private organizations to discuss regulatory programs pertaining to coastal and marine habitats and to jointly propose specific actions for enhanced protection of regionally signficant coastal and marine habitats 3.2.5 state, provincial, and federal marine resource and environmental agencies should identify and propose sites for nomination as marine special areas in order to conserve marine habitats in accordance with the Cana- dian Green Plan and the U.S. Marine Protection, Re- search, and Sanctuaries Act 3.2.6 the Gulf Council should request that state, provin- cial and federal agencies, private organizations work cooperatively to establish a joint Gulf Marine Mam- mals Protection plan, in order to set priorities for the protection of habitat critical to marine mammals page 16 GULF ACTION PLAN EDUCATION AND PARTICIPATION 4.0 Education and Participation, goal: to cultivate a sense of stewardship among the citizens of the Gulf Introduction region and to enable them to make responsible deci- The Gulf of Maine has an enormous water- sions regarding Gulf of Maine resource use shed. The activities of more than three million people living within the two countries ultimately affect the Objectives: environmental quality of the Gulf of Maine. All the admonitions, regulations and legislation in the world I991 p:on'r :: ~ ' :..: : Z:::': i: : : :: r :io: rity will not protect the Gulf unless the three million resi- 4.1"':'" to:tdevelop and implement a regiona 'citizens' dents and the millions of visitors to the region become education and parti'ipation program with the intent of aware that their day-to-day activities affect the Gulf. involving citizens in local Gulf resource' management The foundation of that awareness is education. issues. A strong education program detailing the ef- Actions fects that human activities have upon the health of the Gulf must accomplish two tasks. First, it must enable 4.1.1 in order to cultivate a sense of stewardship among individuals, whether they live on the coast or along the the citizens of the Gulf region and to foster responsible upper stretches of a river that empties into the Gulf, to decision making regarding use of the Gulf's resources, see themselves as residents of a particular, though vast, the Gulf Council will establish a standing education watershed. Secondly, it must engender a sense of ste- and participation commitee to guide implementation wardship toward the Gulf and the will to act within of a regional education and participation program. individuals of all ages and economic status. 4.1.2 the Gulf Council, in cooperation with other re- Education fuels participation. All too often, gional organizations, will develop a Gulf of Maine per- our response to important environmental issues such sonnel exchange program for Gulf Council member as ozone depletion or contaminated groundwater is agencies, in order to share expertise in the fields of fatalistic resignation in the face of a technically complex coastal and ocean management. problem. Residents of the Gulf of Maine watershed must be encouraged to actively participate at the local or regional level in the decisions that will affect the Gulf on going priority today and in future years. Furthermore, they ust be 4.2 to create educational materials on the Gulf of given real power to take action in their locality, without Maine for a variety of user groups, including the gen- being forced to wait for the slow attention of state or eral public, elected officials, and the media provincial government to turn their way. This involve- ment can occur through groups such as watershed Actions associations or citizen monitoring programs. The fol- 4.2.1 the Gulf Council should produce a regional lowing Education and Participation goals and objec- resource guide to Gulf-related organizations tives illustrate the varied efforts that can be made to inform sectors of the public about the Gulf and their 4.2.2 the Gulf Council should request that state and role in maintaining its health. provincial Tourism Offices display Gulf educational materials at appropriate locations 4.2.3 the Gulf Council should produce a non-technical "State of the Gulf" report every three years that notes environmental trends in the Gulf 4.2.4 Sea Grant programs in the three states should incorporate specific Gulf of Maine educational actions into the next long-term Sea Grant program plan drafted after adoption of this Plan 4.2.5 appropriate private and public agencies and organizations should distribute interdisciplinary Gulf of Maine educational materials for grades K-12, for the use of educators throughout the region page 17 GULF ACTION PLAN 4.2.6 the Gulf Council should create and distribute a Gulf of Maine slideshow and/or documentary that ongong of Gulf-related issues informs the public about the Gulf, the environmental 4.4 to improve understanding of Gulf-related issues stresses upon it, and options for sustaining its re- by specific sectors of the public sources Actions 4.2.7 the Gulf Council should request appropriate 4.4.1 the Gulf Council should work with appropriate private and public agencies and organizations to ex- state, provincial, and federal agencies to create educa- pand Gulf education programs in existing non-aca- tional materials directed at potential marine waste demic settings, such as summer camps, Boy or Girl producers (such as recreational boaters, tourists, mer- scout programs, or 4-H programs chant marine, commercial fishing vessels) for inclusion in respective licenses or permits 4.2.8 the Gulf Council should assist appropriate pri- 4.4.2 the Gulf Council should work with the US Na- vate organizations and public agencies in development tional Park Service and Parks Canada to publish a of on-the-water educational programs for teachersand tional Park Service and Parks Canada to publish a of on-the-water educationalts and guide to the Gulf coast, which will offer visitors infor- mation on the botanic, geologic, biologic, and oceano- graphic features of the Gulf region ongoing priority 4.3 to foster communication among the scientific 4.4.3 the Gulf Council should work with appropriate institutions, such as the Canadian American Studies Center or the Quebec-Labrador Foundation, to expand Actions Canadian/US fellowship programs, in order to allow students and academicians to teach or conduct re- 4.3.1 universities, in cooperation with the state and s tud ents and academicians to teach or c onduct re- provincial environmental agencies, should encourage search in the states or provinces a sound understanding of environmental sciences by a sound und erstanding of environmental msciences by 4.4.4 the Gulf Council should work with the state Sea the media through specific educational programs, in Grant College Programs, state and provincial educa- order to promote accurate writing about the sciences Grant College Programs, state and provincial Estuarine tion departments, and the regional National Estuarine 4.3.2 the Gulf Council should compile a roster of Reserves to support a marine teachers/docents pro- scientists who are willing and able to speak articulately gram for the region to bring marine sciences into public about Gulf science issues to elected officials and the schools in order to improve regional knowledge of media to improve public understanding of current marine topics Gulf research 4.3.3 the Gulf Council should request the Governors' and Premiers' offices to sponsor Gulf educational events for legislators within the state or provincial capitals in order to promote an informed perspective on the Gulf within the legislatures 4.3.4 the Gulf Council should work with public agen- cies and private organizations to establish a program that places elected officials and the media on scientific research vessels for short periods of time in order to foster a practical understanding of the natural proc- esses of the Gulf page 18 GULF ACTION PLAN ongoing priority 4.5 to actively support public participation in coastal resource management issues at the local level Actions 4.5.1 the Gulf Council should encourage citizen volun- teer programs, in conjunction with existing education or research organizations, to involve the public in local stewardship and water quality protection (for monitoring programs, state must use the volun- teers data; need more technical support from the state, p. 56) 4.5.2 appropriate state, provincial and federal agen- cies, through their non-point source pollution control programs, should identifymethods to work with public and private entities to create a multi-media education program on non-point source pollution effects and controls for homeowners throughout the region 4.5.3 the Gulf Council should request the Governors' and Premiers' offices to investigate the feasibility of establishing a transboundary Coastal Conservation Corps which would provide technical and construc- tion assistance to towns for coastal improvements (i.e. NPS projects, beach clean ups, fishway construction, public access maintenance) and job-training for mem- bers '; page 19 GULF ACTION PLAN PROTECTION OF PUBLIC HEALTH 5.0 Protection of Public Health, goal: to minimize public health risks from use of Gulf of Maine natural Introduction, resourcesW The uses that we make of the Gulf of Maine are Objective: many. We depend on Gulf water and natural resources to fulfill industrial, commercial and recreational needs. 1997 priority Yet general confidence in the safety of Gulf waters and 5.1 to support development of an integrated public natural resources seems to be diminishing. Increasing health protection strategy related to human uses of the acreages of shellfish beds, closed due to pollution, Gulf of Maine raises public fears concerning the quality of all shell- fish. Similarly, studies indicating high levels of toxic Actions contaminants in Casco Bay or Boston Harbor taint the 5.1.1 the Gulf Council will work with federal, state and public perception of all seafood. Incidents of marine provincial agencies to improve the interaction of public debris on beaches or closure of public swimming areas health monitoring activities and management activi- due to poor water quality further harm the public ties' perception of the quality of the Gulf of Maine. 5.1.2 state, provincial, and federal public health agen- The solution to this dilemna, however, is not to cies should evaluate existing programs and develop minimize testing of the water and natural resources, or new programs for monitoring and predicting offshore to cloud the results in language confusing to the public. marine biotoxin events The human health risks from Gulf resources and water must be accurately assessed, using a variety of meth- 5.1.3 appropriate state, provincial and federal agencies ods. The public perception of the quality of Gulf re- should evaluate existing and developing monitoring sources must be firmly linked to the actual conditions. techniques for Gulf waters and shellfish habitat and It is imperative that coordinated strategies for im- determine the possibility of compatible regional tech- proved testing and monitoring programs be developed niques by state, provincial and federal agencies, for the eco- nomic and, to some extent, cultural life of the Gulf 5.1.4 appropriate state, provincial and federal agencies W coastal communities depends upon public consump- should produce reports that recommend methods for tion of the Gulf's many resources. more accurate and/or expanded monitoring of patho- gens, biotoxins and other contaminants in Gulf waters and habitats to minimize human health risks 5.1.5 the Gulf Council should encourage the U.S. Food and Drug Administration and the Canadian Health Protection Branch and with the Interstate Shellfish Sanitation Conference to promote adoption of more meaningful indicators than the fecal coliform bacteria standard used to assess human health risks from shell- fish consumption. page 20 TIME LINE FOR ACTION PLAN OBJECTIVES 1991-92 1992-93 1993-94 4 highest priority objectives 3 next highest priority ob- no objectives initiated jectives 1.1 generation of informa- begin reevaluation of tion 2.3 evaluation of existing Action Plan 2.1 point source reduction laws 3.1 protection, restoration, 2.4 non-point source enhancement of habitat reduction 4.1 public education and 2.2 marine debris participation 1994-95 1995-96 1996-97 3 next highest priority ob- no objectives initiated begin reevaluation of jectives Action Plan 1.2 QA/QC agreements re: ~nnitoring 2.5 federal cooperation with state/provincial actions 3.2 identification, classifica- tion, protection of regional habitats ongoing priority 1997-98 1999-99 2000 objectives 4 next highest priority no objectives initiated begin reevaluation of 3.3 improve communica- objectives Action Plan tion on management of marine resources 1.3 coordinate marine 4.2 create educational research activities materials 1.4 harvesting method 4.3 foster communication effects among scientists, media, 2.6 prevention and response officials to environmental catastro- 4.4 improve understanding phes of Gulf issues 2.7 minimize impact from 4.5 support public partici- pation at local level THE GULF OF MAINE WORKING GROUP MEMBERS NOVA SCOTIA FEDERAL REPRESENTATIVES Peter Underwood Environmental Protection Agency Department of the Environment Rosemary Monahan Arthur Longard Region I Department of Fisheries National Oceanic and Atmospheric Administration NEW BRUNSWICK John Pearce Bill Ayers Northeast Fisheries Center Department of the Environment Don Scavia Barry Jones Coastal Ocean Program Department of Fisheries and Aquaculture Environment Canada MAINE Wayne Barchard and Alan McIver David Keeley Marine Assessment Division Maine Coastal Program James Bernard Department of Fisheries and Oceans State Planning Office H. Brian Nicholls and Andre Ducharme Bedford Institute of Oceanography NEW HAMPSHIRE David Hartman New Hampshire Coastal Program MASSACHUSETTS Patricia Hughes Massachusetts Coastal Zone Management Office Draft Action Plan Reviewers New Brunswick Nova Scotia Janice Harvey, Hunstman Marine Science Center and the Daniel N. Paul, Executive Director, Confederacy of Main- Conservation Council of New Brunswick Coastal Conver- land Micmacs gence Project Coordinator Raymond Cote, Associate Director, Dalhousie School for David Coon, Policy Director, Conservation Council of New Resource and Environmental Studies, Co-director, Marine Brunswick Affairs Program Lee Sochasky, St. Croix International Waterway Commission Ishbel Butler, The Maritime Fishermen's Union Director Ian Christie Clark, President, Nova Scotia College of Art Mary Majka, Environmental Council of New Brunswick and Design Inka Milewski, Montreal, Quebec (formerly with Huntsman Jack MacIsaac, Department of Mines and Energy, Office of Marine Science Center) the Minister Steven Backman, Aquaculture veterinarian, Moore-Clark Co. Gordon Gillis, Department of Municipal Affairs Edith Miller, Sackville Ken Streatch, Department of Small Business Development Muhammad Arif, Department of Municipal Affairs, Land Blenis J. Nicholson, Department of Education Use Planning Office Donald P. MacInnes, Department of Transportation and J.E. Henri Legare, Assistant Deputy Minister, Department of Communications, Office of the Minister Fisheries and Aquaculture J.M. MacLennan, Department of Advanced Education and John Kershaw, Department of Fisheries and Aquaculture, Job Training Aquaculture Office John Murphy, Senior Advisor, Board of Commissioners of Maine Public Utilities David Stevenson, Department of Marine Resources Labora- D.F. Trivett, Department of Consumer Affairs tory M.J.A. Butler, C.B. Fay, P.J. Hartling, C. LeBlanc, A.N. Brian Marcotte, Director, Bureau of Marine Sciences, Depart- Montgomery, on behalf of the Council of Maritime Pre- ment of Marine Resources miers and the Land Registration and Information Service Walter Anderson, Maine Geological Survey Derek Davis, Nova Scotia Museum Complex, Department of Education John Sowles, Department of Environmental Protection John K. Underwood, Environmental Quality Control Charles Whimore, Maine State Conservationist Manager, Nova Scotia Power Esperanza Stanicoff, University of Maine Cooperative Peter Butler, Council on Higher Education *_ xtension M.R. Lester, Director, Emergency Measures Organization R. Clifton Thomson, Chairman, Fisheries Sector, Voluntary Chris Mooers, University of New Hampshire Planning Kirk Stone, Environmental Affairs Director, New Hampshire H. W. Doane, President and Chief Executive Officer, Waterfront Audubon Society Development Corp. Ltd. Thomas Orfe, Chief Harbormaster, New Hampshire Port Author- Brigitte Neumann, Director, Women's Directorate ity John MacGregor, Sector Coordinator, Environment and Economy, Massachusetts Voluntary Planning Karen Steuer, Center for Coastal Studies B. E. Rogers, Liquor Commission Steve Halterman, Water Pollution Control Division, Department Margaret Swan, Literacy Nova Scotia of Environmental Quality David J. C. Waterbury, Chairman, Criminal Injuries Compensation Richard Gallo, Masschusetts State Conservationist Board Federal Agencies Martin H. Bushell, Public Trustee Canada Canada Duff Montgomerie, Executive Director, Sport and Recreation Duff Montgomerie, Executive Director, Sport and Recreation Neil A. Bellefontaine, Regional Director General Scotia-Fundy Commission Region, Department of Fisheries and Oceans Shirley Nicholson, Chief Executive Officer, Environmental David J. Scarrett, Benthic Fisheries and Aquaculture Control Council Division, Department of Fisheries and Oceans New Hampshire K.C. Curren, Regional Director General, Canadian Coast Guard, Maritimes Julie Mawson, New Hamsphire Sea Grant Marine Advisory Guard, Maritimes Service Extension Specialist and Program Director, Odione United States Estuarine Reserve Philip R. Harris, Colonel, Army Corps of Engineers, Planning Robert Varney, Commissioner, Department of Environmental Directorate Services Thomas Bigford, Chief, Habitat and Protected Resources Frank Richardson, Wetlands Bureau, New Hampshire Coastal Division, National Marine Fisheries Service Division, National Marine Fisheries Service Program William Hartwig, Regional Director, Fish and Wildlife Service John R. Bush, Wastewater Engineering Bureau Richard Flanders, Jr., Water Supply and Pollution Control Divi- Other sion, Department of Environmental Services Jack Sobel, Director, Habitat Conservation, Center for Marine Paul Raiche, Environmental Sanitation Program, Division of Conservation, Washington, DC Public Health Services Donald Normandeau, Executive Director, Fish and Game Depart- ment AGREEMENT ON CONSERVATION OF THE MARINE ENVIRONMENT OF THE GULF OF MAINE BETWEEN * THE GO VERNMENTS OF THE B ORDERING STA TES AND PRO VINCES The Governments of Maine, Massachusetts, New Brunswick, New Hampshire, Nova Scotia, as Parties to this Agreement and; Considering that the shoreline, seabed, waters and associated natural resources of the Gulf of Maine region, including Georges Bank and the Bay of Fundy, constitute precious O ~~public natural resources shared by the contiguous States and Provinces and; Considering that the natural resources of the Gulf of Maine are interconnected and form part of an overall ecosystem that transcends political boundaries and; Considering that the sustai nable development and use of these resources for recreational and aesthetic enjoyment activities as well as fish and wildlife habitat is dependent on the ecological integrity of the Gulf ecosystem and; Considering that the planning and management of human activities which may affect the Gulf ecosystem should recognize and be based upon an understanding of the systems' integrity and; Considering that the Parties to this agreement recognize a shared duty to protect and conserve the renewable and non-renewable resources of the Gulf for the use, benefit and enjoyment of all their citizens, including generations yet to come and; Considering that the most effective means of protecting, conserving and managing0 the region's resources is through the cooperative pursuit of consistent policies, initiatives and programs and; Considering that studies conducted by National, State and Provincial governments and other agencies have found that, without prudent management, the future development * ~~and use of the Gulf resources may have significant adverse impacts on the environment, economy, and general welfare of the Parties and have agreed to the following: 1. The Parties agree to establish a Gulf of Maine Council on the Marine Environment to discuss and act upon environmental issues of common concern including but not limited to: the protection and conservation of the ecological balance within the Gulf of Maine ecosystem; the problem of marine debris and medical waste; the relationship between land use and the marine environment; the sustainable use of resources within the Gulf of Maine; cooperative programs to better protect and conserve the Gulf's natural resources. 2. The Gulf of Maine Council on the Marine Environment will be composed of two representatives from each of the Gulf of Maine States and Provinces to be appointed by their respective Governors and Premiers within 60 days of the effective date of this Agreement.. 3. The Gulf of Maine Council on the Marine Environment will produce its first annual report on environmental trends and conditions including specific recommendations on a Gulf of Maine Action Plan within 15 months of its appointment. 4. The Parties agree to minimize actions that would result in degradation of environmental quality or depletion of resources that individually or cumulatively could result in significant adverse impacts on resources leading to loss of sustainable use or environmental viability. 5. The Parties agree to design and develop a coordinated monitoring program to provide improved information for future decisions concerning the Gulf. 6. The Parties agree that the successful conservation of Gulf resources will require the development of additional agreements or protocols on specific issues or concerns that may be raised from time to time. SIGNATURES: oorallel ohn. R. McKetan, Jr. nodable John M. Buchanan ernor, Maine mier, Nova Scotia ble J ddM reg Honourable Frank McKenna ew--Iam ir Premier, New Brunswick / 6norable Micl er'S. Dukakis Governor, Masbc/husetts