Hawaii and the sea--1974

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HAWAII AND THE SEA 1974

Prepared for the Governor' s Advisory Committee on Science and Technology

prc)perty of COC Library

U S DEPARTMENT OF COMMERCE NOAA
COASTAL SERVICES CENTER
2234 SOUTH HOBSON AVENUE
CHARLESTON SC 29405-2413

Published by the

STATE OF HAWAII

DEPARTMENT OF PLANNING AND ECONOMIC DEVELOPMENT

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GOVERNOR'S ADVISORY COMMITTEE ON SCIENCE AND TECHNOLOGY

February 11, 1974
The Honorable George R. Ariyoshi
Acting Governor of Hawaii
State Capitol
Honolulu, Hawaii 96813

Dear Sir:

Your Advisory Committee on Science and Technology is pleased to transmit to you
through the Department of Planning and Economic, Development a report entitled, "Hawaii
and the Sea-1974" for your review and consideration. The fourteen "Most Critical
Recommendations" are reviewed in the Summary Chapter 2 with cost estimates and action
agencies indicated for each recommendation.
This report is an updating of the very valuable and widely distributed report, "Hawaii
and the Sea, A Plan for State Action", published in 1969. It reviews the important actions
taken by the State in response to recommendations made in 1969, emphasizes areas of
urgent concern such as the environment and population growth, explores new economic
opportunities such as manganese nodule processing and takes into consideration in making
recommendations the current fiscal atmosphere of the State and Nation.
This revision of Hawaii and the Sea also represents a further extension of the State's
comprehensive planning process. It follows broad goals established in our General Plan
Revision documents and suggests pragmatic economic development options for both the
public and private sector. It recognizes that marine development can not and must not
proceed without environmental safeguards and long range planning perspective, and plans
are meaningless without a developmental or community enhancement purpose. The
Department of Planning and Economic Development thus urged the Governor's Advisory
Committee on Science and Technology to set up a task force, with departmental planning
and technical assistance, to undertake the study. At a meeting in January 1973, the
Committee approved this recommendation, and George Wilkins of the Naval Undersea
Center's Hawaii Laboratory was appointed Task Force Chairman.
The Task Force members listed in the Introduction included State, Federal, University
and industry representatives and were supported by many professionals from all segments of
the Hawaii community. Of special importance was the participation and inputs of other
State agencies, particularly the Department of Land and Natural Resources, and Department
of Transportation. The Task Force worked on a voluntary basis with staff support from the
Economic Development Division and the Center for Science Policy and Technology
Assessment, both part of the State Department of Planning and Economic Development.
While individual chapters were prepared by subgroups, the Task Force as a whole
reviewed all the material and discussed and rewrote many sections so that the output
represents the consensus of the entire Task Force. The Task Force members have requested
that Hawaii and the Sea-1974 be dedicated to Scott McLeod who made valuable
contributions to the report and whose untimely death c@me during the preparation of the
final draft.

At a meeting on December 19, 1973 your Advisory Committee approved the report
and the recommendations.
The contributors are to be commended on the long hours and extra effort that went
into completing this report on schedule. We wish to express special appreciation to
Chairman George Wilkins and Vice Chairman Jack Harmon for their leadership of the Task
Force and for their contributions to both the organization and content of the report.
Your Advisory Committee takes pleasure in submitting this study to you, and we feel
strongly that the ideas and recommendations put forward will assist you in your continuing
efforts to further marine affairs in the State.

Sincerely,
--ALOU&IS @GNI?KOELL,*Ch Airman
Governor's Advisory Committee on
Science and Technology

goo,
@SHELLEY M MARK, Directo(AO,--<-..
Department of Planning and
Economic Development

Committee Members

Mr. Wilson Cannon Dr. Louis G. Nickell, Chairman
Dr. John P. Craven RAdm. Adrian H. Perry, USN (Ret.)
Dr. Ramon de la Pe5a Mr. Taylor A. Pryor
Mr. James F. Gary Mr. Lloyd Sadamoto
Dr. Eugene M. Grabbe Dr. Albert Q. Y. Tom
Mr. Douglas S. Guild Mr. George Wheaton
MGen. Edmond H. Leavey, USA (Ret.) Dr. George P. Woollard
Dr. Shelley M. Mark RAdm. E. Alvey Wright, USN (Ret.)
Dr. Fujio Matsuda Mr. Ricki Yasui

TABLE OF CONTENTS

Chapter 1: INTRODUCTION 1-1
The Task Force for Hawaii and the Sea-1974 1-1
Objectives . . . . . . . . . . . . . . 1-1
Membership and Approach
Progress Since 1969 . .. . . . . . . . . . . . . . . 1-3
State Policy Considerations . . . . . . . . . . . . . . . . . . . .. . 1-5
Federal Standards . . . . . . . . . . . . . . . . . . . . . . . 1-5
Funding . . . . . . . . . . . . . . . . . . . . . . . . . . 1-5
Population . . . . . . .. . . . . . . . . . . . . . . . . . . 1-6
The Tragedy of the Commons . . . . . . . . . . . . . . . . 1-6

Chapter 2: SUMMARY . . .. ... . . . . . . . . . . . . . . . . . . . 2-1
An Overview . . . ... . . . . . ... . . . . . . . . . . . . . . . 2-2
"Most Critical" Recommendations . . . . . . . . . . . . . . . . . . 2-3
1 . The Manganese Industry . . . . . . . . . . . . . . . . . . 2-4
2. Inter-Island Marine Transportation . . . . . . . . . 2-5
3. Restoration of Kaneohe Bay. . . . . . . . . . . . . . 2-5
4. Sewage Treatment Alternatives . . . . . . . . . . . . . . . 2-5
5. Marine Rapid Transit . . . . . . . . . . . . . . . . . . . 2-6
6. Resource Surveys . ... . . . . . . . . . . . . . . . . . . 2-7
7. Ship and Facilities Support .. . . . . . . . . . . . . . . . . 2-8
8. Archipelago Status . . . . . . . . . . . . . . . . . . . . 2-8
9. Hawaii Ocean Center . . . . . . . . . . . . . . . . . . . 2-8
10. Division of Marine Resources . . . . . . . . . . . . . . . . 2-9
11. Coastal Zone Management . . . . . . . . . . . . . . . . . 2-9
12. Marine Affairs Coordinator . . . . . . . . . . . . . . . . . 2-10
13. Groundwater Injection . . . . . . . . . . . . . . . . . . 2-10
14. Shoreline Development . . . . . . . . . . . . . . . . . . 2-11
List of Recommendations . . . . . . . . . . . . . . . . . . . . . 2-11

Chapter 3: THE ROLE OF GOVERNMENT . . . . . . . . . . . . . . . 3-1
Organization . . . . . . . . . . . . . . . . . . . . . . . . . . 3-1
Marine Resources Division . . . . . . . . . . . . . . . . . . . . 3-1
Marine Affairs Coordinator . . . . . . . . . . . . . . . . . . . 3-1
Territorial Jurisdiction . ... . . . . . . . . . . 3-2
Hawaii's Uniqueness . . . . . . . . . . . . . . ... . . . . . . . . 3-4
Ocean Center 3-5
Facilities and Ship Support . . . . . . . . . . . . . . . . . ... . .. 3-6

Chapter 4: HAWAII'S MARINE ENVIRONMENT . . . . . . . . . . . . . 4-1
The Status of Hawaii's Marine Environment . . . . . . . . . . . . . . . 4-2
Progress in Coastal Water Quality . . . . . . . . . . . . . . . . . 4-2
Agricultural Wastes 4-2
Sewage Treatment and Disposal . . . . . . . . . . . . . . . . . 4-3
Coolant Water Discharges . . . . . . . . . . . . . . . . . . . . 1 4-4

Pesticides and Industrial Chemicals . . . . . . ... . . . . ... . . 4-4
Oil Spills . . . . . . . . . . . . . . . . . .. ..... . . . ....
Sedimentation . . . . . . . . . . . . . . . . . . . . . . . . 4-4
Coastal Water Monitoring. : . . . . . . . . . . . . . . . 4-4
Objectives of Environmental Management . . . . . . . . . . . . . 4-5
Water Quality . . . . . . . . . . . . . . . .. . . . . . . . . . . 4-6
History and Statutory Basis . . . . . . . . . I. . .. . . . . . . . 4-6
Best Practicable Treatment . . . . . . ... .. 4-7
Adequacy of Water Quality Standards 4-7
Biological Indicators . . . . . . .. .. . . . . 4-8
Temperature Standard . . . . . . . . . . . . . . . ...
Sewage Treatment . . . . . 4-9
Levels of Treatment and Their Effects . . . . . . . ..... 4-10
Impact of Settleable Solids . . . . . . . . . . . . . . . . . 4-10
Impact of Nutrients . . . . . . . . . . . . . . . . . . . . 4-10
Impact of Organics. 4-10,
Bacteria, Viruses and Heavy Metals . . . . . . . . . . .... 4-11
Land and Energy Costs . . . . . . . . . . . . .... ...... 4-11
Economic Costs . . . . . . . . . . . . . . . . . . .. . . . 4-11
Higher and Better Uses . . . . . . . . . . . . . 4-11
Kaneohe Bay . . . . . . . . . . . . . . . . ...... . 4-12
Control of Sedimentation . . . . . . . . . . ..... . . 4-12
Groundwater: Underground injection . . . . . . . . . 4-13
Coastal Zone Environment . . . . . 4-14
Beach Sand and Offshore Sand . . . . . . . . . . . . . . . . . . 4-14
Shoreline Development.- 4-15,.
Oil Spills . . . . . . . . . . . . . . . . . .. 4715
Natural Area Reserves . . . . . . . . . 4-15
Coastal Zone Conservation . . . . . . . . .... ..4-16
References 4-16

Chapter 5: MARINE RECREATION . . . . . . . . I. . . 5-1
Marine Parks . . . . . . 5-1
The Need-A Rationale . . . . . . . . ... e i
I, . . . . . . . . . . 5-1
Mechanism for Establishment . . . . . . . . . ..... 5-2
Selection Criteria . . . . . . . . . . . 5-2
Areas for Consideration . . . . . 5-J
Undersea Observation Structures . . . . . . . . . . . . . . ... . :15-4
Unique Natural Recreation Areas . . . . . . . . . . .. -4
5
.Beach Access . . . .. . . . . . . . . . 5-5
..Recreational Use of Coastal Waterways . . . -5
5
Recreational Boating . . . . . . . . ..
5-7
Boating Fees . . . ... . . . . .. . . . . . . ..... . . . 5-8
'Conflicting Uses and Safety . . .. . . . . . . . . . . -8
5

Chapter 6: LIVING MARINE RESOURCES . . . . . . . ...... ... . 6-1
A Fisheries Policy . . . . . . . . . . . . . . ... . . . 6-1
-A Division of Marine Resources .. . . . . . . . . . . . . ... . . 6-2
Sources of Revenue . . . . . . . . . . . . . . 6-3
Northwestern Hawaiian Islands Stock Assessment . . . . . . . . . . . . 6-3

Fishery Resources of the High Seas . . . . . . . . I . . . . . . . . . . 6-4
Inshore and Demersal Fisheries . . . . ... . . . . . . . . . . . . . . 6-7
Recreational Fishing . . . . . . . . . . . . . . . . . . . . . . . . 6-7
Coral Reefs . . . . . . . . . . . . . . . ... . . . . . . . . . . 6-8
Aquaculture . . . . . . . . . 6-8
Production of Food for Hawaii . . . . . . . . . . . . . . . . . 6-9
Production of Food for Export . . . . . . . . . . . . . . . . . 6-9
Production of Industrial Products 6-9
Production of Sport Fish and Baitfish . . . . . . . . . . . . . . . 6-9
Aquaculture Research and Development . . . . . . . . . . . . . . 6-10
Harbors for Fisheries . . . . . . . . . . . . . . . . . . . . . . . 6-10
Loans to Encourage Fisheries . . . . . . . . . . . . . . . . . . . . 6-11
Fisheries Education . . . . . . . . . . . . . . . . . . . . . . . . 6-11

Chapter 7: MARINE MINERAL RESOURCES . . . . . . . . . . . . . 7-1
Sand and Gravel . . . . . . . . . . . . . .. . . . . . . . . . . . 7-1
Offshore Sand . . . . . . . . . ... . . . . . . . . . . . . . 7-2
Precious Coral . . . . . . . . . . . . . . . . . . . . . . . . . . 7-3
Manganese Deposits . . . . . . . . . . . . . . . . . . . . . . . . 7-5
Manganese Nodules . . . . . . . . . . . . . . . . . . . . . . 7-7
Hawaiian Manganese Crusts . . . . . . . . . . . . . . . . . . . 7-8
Other Ocean Resources . . . . . . . . . . . . . . . . . . . . . . 7-10

Chapter 8: MARINE TRANSPORTATION AND INDUSTRY . . . . . . . . . 8-1
The Need for Dispersion . . . . . . . . . . . . . . . . . . . . . . 8-1
Industrial Candidates for Dispersion . . . . . . . . . . . . . . . 8-2
Inter-Island Marine Transportation . . . . . . . . . . . . . . . . . . 8-3
Current Status . . . . . . . . . . . . . . . . . . . . . . . . 8-4
Currently Planned Systems . . . . . . . . . . . . . . . . . . . 8-4
Barge Ship . . . . . . . . . . . . . . . . . . . . . . . 8-4
Boeing 929 Jetfoil . . . . . . . . . . . . . . . . . . . . 8-5
Hulten Ferry . . . . . .. . . . . . . . . . . . . . . . . . 8-5
Semi-Submersible Ship . . . . . . . . . . . . . . . . . . . 8-5
Federal Sponsorship . . . . . . . . . . . . . . . . . . . . . . 8-5
Elements of an "Ideal" Marine Transport System . . . . . . . . . . 8-6
Intra-Island, Marine Rapid Transit . . . . . . . . . . . . . . . . . . 8-7
Harbors . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8-10
Primary Harbors . . . . . . . . . . . . . . . . . . . . . . . 8-11
Kawaihae Harbor, Hawaii . . . . . . . . . . . . . . . . . . 8-12
Kaunakakai Harbor, Molokai . . . . . . . . . . . . . . . . 8-12
Barbers Point Harbor, Oahu . . . . . . . . . . . . . . . . . 8-12
Inter-Island Harbors . . . . . . . . . . . . . . . . . . . . . . 8-12
Harbors for Rapid Transit . . . . . . . . . . . . . . . . . . . 8-13
Marine Industry . . . . . . . . . . . . . . . . . . . . . . . . . 8-14
Manganese Depostis . . . . . . . . . . . . . . . . . . . . . . 8-14
Geothermal/Solar/Ocean Power . . . . . . . . . . . . . . . . . 8-14
Precious Coral ... . . . . . . . . . . . . . . . . . . . . . . 8-15
Shipbuildin& . . . . . . . . . . . . . . . . . . . . . . . . 8-15
Ocean Research and Engineering . . . . . . . . . . . . . . . . . 8-15

Chapter9: KAMALI7oKAI ... . . . . . . . . . . . . . . . . . . . 9-1
Introduction . . . . . . . . . . . . . . ... . . . . . . . . . . 9-2
Environment . . . . . . . . . . . . . . . . . . . . . . . . . . 9-2
Recreation . . . . . . . . . . . . . . . . . . . . . . . . . . . 9-4
Commerce . . . . . . . . . . . . . . . . . . . . . . . . . . . 9-4
Research . . . . .. . . . . . . . . . . . . . . . . . . . . . . . 9-5
Industry . . . . . . . . .. . . . . . . . . . . . . . . . . . . 1. 9-6
Military . . . . . . . ... . . . . . . . . . . . . . . . . . . . . 9-7
Academic . . . . . . . . . . . . . . . . . ... . . . . . . . . .. 9-7
Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9-8

BIBLIOGRAPHY

ACKNOWLEDGEMENTS

APPENDIX A Summary of Actions Based on The 22 Major Recommendations Made
in Hawaii and The Sea, A Plan For State Action, 1969

APPENDIX B* An Evaluation of Public Access to The; Oahu Shore, Samuel Herrick
and Ann Hayward Rooney, Sea Grant Programs, Summer 1973

APPENDIX C* A Survey of Public Attitudes Toward Inter-Island Transportation,
Ann Hayward Rooney and Samuel Herrick, Sea Grant Programs,
Summer 1973

Under Separate Cover

CHAPTER 1: INTRODUCTION Objectives

The objectives of the Task Force
were: (a) to assess developments since 1969
In 1969, Hawaii and the Sea, A Plan for to determine what progress has been made,
State Action was prepared by a Task Force on how funds have been spent and what the
Oceanography at the request of Governor benefits to the State have been; and (b) to
John A. Burns and his Advisory Committee identify problems and new opportunities
on Science and Technology. This which had not been apparent in 1969. At the
comprehensive report made a series of beginning of the study, four constraints were
recommendations for a, five-year action plan adopted:
on marine topics ranging from research to
recreation, to help Hawaii better adapt to, Recommendations would be made
benefit from and coexist with the sea. within the context of austere State and
Federal budgets. In 1969, it had
The.original Hawaii and the Sea was a appeared that the nation was beginning
monumental document, the result of a a major initiative in marine affairs. Our
summer of intensive work and cooperation by recommendations showed this
more than one hundred representatives of influence; and our reach clearly
science, industry, academia and government. exceeded our grasp. The 1974 Task
It made Hawaii the first State to answer the Force has selected realistic goals and has
Federal report, Our Nation and the Sea; and tried to make recommendations which
the State's responses to the recommendations would achieve these goals at reasonable
have precipitated a series of highly beneficial costs. We have given special emphasis to
results. recommendations which can be
self-supporting; several recommended
alternatives to planned actions can save
millions of dollars.
THE TASK FORCE FOR HAWAII AND 9 Where research and scientific surveys
THE SEA -- 1974 are recommended, they are practically
oriented and justified in terms of
existing State needs. Although most of
the Task Force members are strong
The past four years have seen first an advocates of the value of basic research,
upswing in State and Federal budgets for it is almost nonexistent as a subject for
marine programs, a leveling off, and finally, recommendations in this report.
for many projects, an abrupt downward Each recommendation indicates a
trend. Under these circumstances it was specific State agency for action. For
highly appropriate that a Hawaii and the those cases where legislative action at
Sea-1974 Task Force be formed to make a the State or Federal level is needed, a
new evaluation of the technical, economic State agency 'is, indicated for. initial
and political environment for marine affairs in action.
Hawaii. Accordingly, the .1974 Task Force Where possible an estimate of cost is
was established at the request of the attached to each recommendation.
Governor's Advisory Committee on Science These cost figures should be interpreted
and Technology early in 1973, and George, as preliminary estimates.
Wilkins, Consultant at the Naval Undersea
Center's Hawaii Laboratory, was named Membership and Approach
Chairman. The Task Force was requested to
finish its report before the end of 1973 so The Task Force members are marine
that its findings would be available to the affairs experts from State and Federal
1974 Legislature. government, the University of Hawaii, and

1-1

industry. In addition, advice and suggestions Mr. Jack Harmon, Manager
were sought from scores of individuals in the Engineering & Analysis Division
scientific and industrial community. SEACO, Incorporated

The Task Force membership follows: RAdm. William Heaman, USN (Ret.), Consultant
Hawaii Institute of Geophysics
Dr. John Bardach, Director University of Hawaii
Hawaii Institute of Marine Biology
University of Hawaii Dr. Frank Hester, former Director
Honolulu Laboratory
Dr. John Belshe', Chief National Marine Fisheries Service
Environmental Resources Section
U.S. Army Corps of Engineers (Pacific) Mr. Scott McLeod, General Manager
Mr. Gene Blackburn Hawaiian Tuna Packers
Private Consultant Mr. Howard Pennington, Consultant
Dr. Charles Bretschneider, Professor State Office of Marine Affairs Coordinator
Department of Ocean Engineering Mr. Justin Rutka, Advisory Specialist
University of Hawaii Sea Grant Program
Mr. Robert Chuck, Manager-Chief Engineer University of Hawaii
Division of Water & Land Development Mr. Richard Shomura, Director
Department of Land and Natural Resources Honolulu Laboratory
Dr. Salvatore Comitini, Associate Professor National Marine Fisheries Service
Economic Research Center Mr. Cliff Slater, President
University of Hawaii Maui Divers of Hawaii, Ltd.
Dr. Doak Cox, Director. Dr. Manley St. Denis, Professor
Environmental Center Department of Ocean Engineering
University of Hawaii University of Hawaii
Dr. John Craven Mr. John Wheaton, Director
State Marine Affairs Coordinator Corporate Development, Dillingham Corporation
Dr. Jack Davidson, Director Mr. George Wilkins, Consultant
Sea Grant Program Naval Undersea Center, Hawaii Laboratory
'University of Hawaii (Task Force Chairman)
Mr. Andrew Gerakas, Head RAdm. E. Alvey Wright, USN (Ret.), Director
Economic Development Division Department of Transportation
Dept. of Planning and Economic Development

Dr. Eugene Grabbe, Project Manager
Center for Science Policy-Technology Assessment
Dept. of Planning and Economic Development A number of meetings of the entire
Task Force'were held in the spring of 1973;
Dr. Richard Grigg, Assistant Marine Biologist first to review progress on Hawaii and the
Hawaii Institute of Marine Biology Sea-1969 recommendations and then to
University of Hawaii gather ideas on new opportunities and

1-2

strategies for Hawaii and the Sea-1974. especially the first 22, were presented in the
These proposals were classified by subject and belief that Federal support for marine science
used as the basis for establishing a number of would increase rapidly, Hawaii was a natural
Task Groups for specific areas. focus for national programs in oceanic
research and development, and seed monies
Each of the Task Groups was invested by the State would flourish in this
responsible for drafting a chapter in its environment.
assigned subject area. These drafts were
completed and then reviewed by the Task In many critical areas, these
Force as a whole. The final manuscript thus expectations have not been fulfilled. Federal
represents several iterations of rewriting, support for ocean science has remained level
additions and transfer of material from one or, in some cases, has diminished (as
chapter to another. Finally, the draft was evidenced by the pullback and retirement of
submitted to the Governor's Advisory both National Marine Fisheries Service vessels
Committee on Science and Technology for its from their Hawaiian support bases). Federal
review and approval. research interests have retreated, not only
from the frontiers of space and oceans, but
Several valuable contributions have also in an absolute monetary sense.
been made to this study by students of the
Marine Option Program at the University of Until recently, Hawaii's support of
Hawaii. Initially, two of these students had marine activities has been outstanding. All but
been asked to conduct two surveys and to 4 of our 22 major recommendations have
evaluate and report the results. The first was resulted in some degree of action. It is
an on-site appraisal of the true condition of important to be aware of the "multiplier
all legal beach access routes on Oahu. The effect" that projects begun with State seed
second was a survey of Hawaii's residents to money or State matching funds can have in
determine the performance factors considered bringing major Federal, foundation and
most important in an inter-island marine industry funds into the State's economy.
transportation system. The results of both
surveys are included as appendices to this The position of Marine Affairs
report. Coordinator was created and staffed within
the Office of the, Governor in response to a
The students became so interested in 1969 recommendation that the Governor
our task that we invited them to write a appoint an Executive Director for Marine
student chapter- - Karnali'i o Kai, or Children Affairs. To date, the Legislature has
of the Sea--a view from the next generation. appropriated $870,000 and staff funding to
The results appear as Chapter 9 of this report. the Marine Affairs Coordinator's office to
While this chapter duplicates some of the address marine problems in Hawaii.
topics covered in other chapters., the students'
point of view is clearly different from our In response to another major
own. We regard this difference to be of recommendation, a total of $3,300,000 was
considerable value. A description of the appropriated for the planning and
Marine Option Program is given in the construction of a University of Hawaii
introduction to Chapter 9. Oceanographic Expeditionary Center at Snug
Harbor, and construction has started.
PROGRESS SINCE 1969 Response to other recommendations is
detailed in Appendix A with funding details.
A short summary of major expenditures and
The 1969 report contained a list of 22 commitments is shown in the funding table.
major recommendations for State action in Within the Legislature, a vital awareness of
marine affairs, plus a much larger number of marine problems and potential is evident.
subordinate recommendations. All of these, More than 170 Senate or House bills or

1-3

FUNDING OF MARINE AFFAIRS PROGRAMS IN THE STATE OF HAWAII
FOR THE PERIOD 1969 - 1973 ($000's)
Area and (1969 Recommendation) Responsibility State Funding Federal Funding Industry
MAC Other Sea Grant Other
Marine programs (I & 20) MAC 550 32 266 640 165
Research park (2) DPED - I OO(CIP) - -
Floating platforms MAC 50 85 25
Ocean environmental forecasting (3) - - -
Marine expeditionary center (4) MAC - 3,300(CIP) - -
IDOE & manganese nodules (5) MAC & UofH 106 1,411 130
Workshop on geoscience (6) MAC 25 -
Hawaii Marine Exhibition (8) MAC 30 -
Underwater preserves (12) DLNR - 150
Oil spill disasters (13) DOD 3
Fisheries (14, 15, 16) DLNR & DOH 22 132.5
Aquaculture (17) UofH 10 - 220 -
Precious coral (18) UofH 75 104 152 - 62
Geothermal energy UofH 5 100 - 252 16
Total operating value, 873 489.5, 723 2,303, 398
Total Capital Improvement Program (CIP) value 3,400

resolutions dealing with marine affairs were Act 164 Authorizes the Department of
considered in the 1973 session. Some of the Planning and Economic
more significant measures passed are listed Development to prepare plans for
-below. management of the State's coastal
zone which comply with
Act 118 Amends the State's environmental requirements 'of the National
protection laws to comply with Coastal Zone-Management Act of
new Federal water pollution- 1972.
control requirements. This enables
the State to obtain planning and Senate Resolution 151 requests the
construction grants from the Legislative Reference 'Bureau to
Environmental Protection Agency. determine the feasibility of
Act,107 Establishes minimum depth and converting the Waikiki Aquarium
offshore distance limits, within into a marine education center.
which mining of sand, coral, rock
and other minerals is prohibited. Senate Resolution 136 and House
Act 124 Authorizes the Department of Land Resolution 241 request Ahe Land
and Natural Resources to establish Use Commission to reclassify Heeia
and maintain marine reserves and Fish Pond and adjacent lands from
refuges. urban to conservation.
Act-125 Gives legal protection to the "Good
Samaritan" who renders assistance Probably the most conspicuous and
at the scene of a boating accident. important event of the past.four years.has
Act 143 Mandates counties to adopt been the designation of the University of
ordinances requiring a developer, as Hawaii as a Sea Grant College, one of seven in
a precondition to project approval, the Nation. The value of this program cannot
to dedicate rights-of-way from a be overemphasized. Sea Grant funds are
public road to the State beach specifically directed towards projects which
through, his development. address state, regional and national needs. Up

1-4

fii Frl
to two-thirds of the total project funds come
0 fl
directly from the Federal government, and
,?M
the remaining one-third can be supplied by
"METE-
local or state government, or by private
industry--in money, goods or services. In
Hawaii, predominantly outside funds can be
`,:in
used to solve local problems in a way that
encourages pooling of local resources. This is
a most effective way for government, at all
levels, and private enterprise to cooperate in University of Hawaii President Harlan Cleveland is shown
facing and solving marine problems. The signing an official document received from National Oceanic
and Atmospheric Administration Administrator Robert White
excellent work of the'University of Hawaii in on October 17, 1972, formally designating the University a
marine research, coupled with the Sea Grant CoUege. At right is Jack Davidson, Director or the
organization and integration of marine Sea Grant College Program.
programs in Hawaii under the guidance of the fallen backward. The 1970 appropriation by
State Marine Affairs Coordinator, and the the Legislature was $470,000 (nonlapsing),
impact of Hawaii and the Sea-1969 were followed by $400,000 for the 1971-73
important factors in the University of Hawaii biennium. The proposed 1973 project and
becoming a Sea Grant College. facility operating budget of $940,000 for the
Marine Affairs Coordinator stalled in the
Legislature. This leaves the Marine Affairs
STATE POLICY CONSIDERATIONS Coordinator's office with only carryover funds
to continue support Of programs which have
been of great importance to the State.
Several areas of deep concern over
present State policies have set the tone of our At the same time, ship support funds
1973 investigation. These areas are discussed for the University of Hawaii have been cut
briefly below and appear directly or indirectly back to the point that critical research
in all the chapters of this report. projects have been curtailed or cancelled.

Federal Standards We realize that the State has had to
reduce expenditures in all areas due to
Within the State government, there is an projected budget deficits. We would like to
increasing awareness that Federal standards, point out, however, that withholding funds
generally designed for a continental for marine affairs is especially detrimental in
environment, often have little relevance to the case of funds appropriated to match
oceanic Hawaii. Chapter 4, concerning Federal contributions to joint State/Federal
H'awaii's marine environment, provides programs; for example, the water quality
additional areas that should be studied in this programs under Sea Grant. If the State passes
respect. There, it is pointed out that direct up opportunities to participate in matching
adherence to the Federal requirement for fund programs, the serious problems these
secondary treatment of all sewage before programs address will not disappear. What
disc.harge could - cost an additional may disappear is the Federal support which
$20,000,000 for the Sand Island plant alone, has been amounting to over two-thirds of the
but does little more to improve the offshore total program cost.
environment than a much lower-cost system.
The State of California, by recently
Funding appropriating $500,000 specially earmarked
for use as Sea Grant matching funds, has
The upward surge in State support to virtually assured itself of continuing Federal
marine science which followed Hawaii and the -support for its Sea Grant and other marine
Sea-1969 appears to have hesitated and programs.

1-5

most immediate danger lies in overloading the
Population environment.

When Hawaii and the Sea-1969 was Environmental carrying capacity is not
published, the Task Force on Oceanography like a bucket, which fills and then spills. We
recognized the interactions among the land, will not wake up some morning, look outside
its people and the sea. The title of the report and note that our carrying capacity has finally
was selected to reflect these influences. been exceeded. We will gradually find that
Awareness of these interrelationships has there is less space, more crowding, less
expanded tremendously during the past four privacy, more tension; that our eyes water
years as the population of our islands, and, ultimately perhaps, that it hurts to
especially Oahu, has grown. The limitations breathe. Wise planning can expand or make
recently imposed by the energy crisis make better use of our environmental resources;
the problem of population growth critical. however, utilization of each resource beyond
its capacity can only degrade its quality.
The Governor's Temporary Commission
on Environmental Planning (TCEP) Few people would argue with this
deliberated on the subject of population statement; yet, most would resist efforts to
pressures in Hawaii, clearly highlighted the do anything about it. This paradox stems
dangers of excess population and warned of from the fact that what is best for the
an environmental "overload". The Task Force individual is not always best for the group, a
shares the TCEP group's concern. situation which has been referred to by
Garrett Hardin as "The Tragedy of the
We believe that Hawaii, as a whole, is Commons". The tragedy arises when an
not overcrowded at the present time; it is individual overloads the carrying capacity of
Oahu that is overcrowded. While the a common resource--the individual may
population of the Neighbor Islands has long benefit, but only at the expense of the group,
been essentially static, the population of which must collectively share the impact of
Oahu has skyrocketed. This imbalance in our the individual's action.
population distribution will be hard to
overcome. For example, we live in Hawaii because
we want to, because it is a highly desirable
Throughout the studies leading to this place to live. We must expect that, unless laws
report, we have asked the question: "What or public and private attitudes change, people
can marine science, industry and commerce will continue to migrate to and increase in
do to alleviate Hawaii's problems of Hawaii until it is no longer a desirable place to
population and population distribution?" The live. Without controlling laws and changes in
reverse question was also asked: "What can public attitudes, growth will be curtailed only
Hawaii do to alleviate the pressures that by the overall degradation of the
population will place on marine resources and quality-of-life for the people of Hawaii.
marine activities?"
The choice for Hawaii is clear. Either it
The Tragedy of The Commons* will gradually succumb to "The Tragedy of
i the Commons", or steps will be taken to
,Chapter 4 considers the population control both population growth and
carrying capacity of Hawaii, defining it in distribution. Initially, the problem of
terms not only of the capacity set by its overload on Oahu can be alleviated by
44vital" resources, but also in terms of the dispersion of the population to the Neighbor
non-vital environmental resources- -forests, Islands. Eventually, it must be recognized that
beaches, coral reefs, etc.--which make these there is an "optimum" ceiling to Hawaii's
islands such a beautiful place to live. Our population.
"The Tragedy of the Commons", by Garrett Hardin, Science, Vol. 162, page 1243, 1968.

1-6

CHAPTER 2: SUMMARY

Hawaii and the Sea-1974 differs in agencies, which should have (at least) initial
several fundamental aspects from the original responsibility for action, and estimate the
1969 State-planning document. The basis for costs involved in effecting the solutions.
some of these differences was touched on in
the introductory chapter. Funding is more Why do these marine-related problems
austere today than it was nearly five years exist? To some extent, it is because
ago. County, State and Federal budgets are conscientious,. dedicated, public and private
more restricted and restrictive. The trend in citizens cannot agree on the definition of the
public attitudes may be toward increased problem or on the form of the solution. To a
questioning of science and technology; greater extent, it is because, in debating such
toward a feeling that these disciplines must definitions and solutions, many of these
have more than their own allegations of value citizens have shown little awareness of the
as proof of worthiness of public -support. unique, all pervasive role taken by the sea in
influencing Hawaii's historical, cultural and
The public atmosphere in which Hawaii physical environment. This land-oriented
and the Sea-1974 was debated and written attitude was described by one member of the
has changed in other ways since 1969. Task Force as the "Anti-Lemming
Growth is no longer welcomed for its own Instinct"--as an unreasoning drive away
sake. Many citizens of Hawaii have come to from the sea.
realize that indiscriminate growth is like a
cancer that defaces, degrades and ultimately Our recommendations cover a wide
may destroy the vital body in which it range of uses for the sea: from marine
spreads. State and county policy makers have transportation to forge new links among the
begun to question uncontrolled growth islands and to substitute for conventional
although no positive cure has yet been found links on land, to a uniquely Hawaiian "best"
for it. We sense and accept a new ethic in way to treat and dispose of municipal sewage,
Hawaii, a belief that growth must be to new and potential marine resources which
contained, controlled and redirected if it,is to -should be utilized and which are in danger of
benefit the people of the State. uncontrolled exploitation. If these
recommendations only excite argument and
The Task Force expects this report will controversy, we will have succeeded in our
be a controversial document in the sense that minimum objective, which was to bring the
nearly every recommendation will arouse associated problems to the public attention. If
both advocates and opponents. Few of our our recommendations are accepted as
readers will find themselves in agreement with reasonable solutions--not necessarily
all of our recommendations. We believe that "best"--we will have succeeded in our major
this type of reception is meaningful, perhaps objective.
even necessary, because therein lies the
greatest difference between the 1969 and We have tried to be farsighted in
1974 reports. identifying and recommending new paths for
Hawaii to take in more fully utilizing its
Hawaii and the Sea-1974 is a marine environment. At the same time, we
problem-oriented document. It attempts to accept the inevitability that a Hawaii and the
identify the problems--the dangers and the Sea-1979 Task Force w ill find problems and
opportunities-- which face Hawaii and its opportunities we have overlooked, steps we
marine environment. We have tried to be as have recommended that were not in the right
specific as possible in presenting and direction, and distant vistas we have,scanned
characterizing these problems. We have gone that turned out, in retrospect, to be the ends
on to recommend solutions, highlight State of our noses.

2-1

One of these distant vistas, for example, than 70 specific recommendations for State
may lie in the direction of energy and power action, in subject areas ranging from
technology for Hawaii. We are uncomfortably Environment to Roles for Government, from
aware of the magnitude and probable Recreation to Industry, . from Marine
duration of the national energy crisis. We are Resources to Commerce. Of these, 14 are
especially aware of Hawaii's sensitivity, as an highlighted as being of "critical" importance
energy-importing state, to any general energy and are synopsized in this chapter.*
shortage. This factor has helped support our
recommendation of energy -conserving A number of themes appear and
techniques for sewage treatment (Chapter 4) reappear in the various chapters of this report,
and sand mining (Chapter 7). to the point that they warrant special
mention here.
In Chapter 7 we also note that Hawaii
has a unique potential to derive large amounts 0 A Concern For the Environment. All
of power from systems which exploit (1) recommendations have been assessed
energy inputs from geothermal and solar for their real or potential impact on
sources and (2) the higher conversion Hawaii's environment. This has resulted,
efficiencies ("difference temperature" or AT) for example, in a recommendation that
possible when deep, cold ocean waters are the environmental impacts of and
used as the heai sink. In Chapter 8 we discuss effluent water from prototype mining
the added potential of such a sy@tem to of offshore sand should be monitored
support producticin of hydrogen fuels for and analysed before the decision is
local consumption and export. The only made to utilize this resource. It has
recommendation made, however, is that the made the Task Force especially wary of
Marine Affairs Coordinator should "take a alternative futures for the marine
leading role in development of a manganese industry in Hawaii, and
proposal--with shared support from the supports our recommendation that the
State, the Federal government and impact of candidate proce Issing
industry--to demonstrate the feasibility of a techniques should be carefully assessed
geothermal/solar/ocean energy producing to determine whether this potentially
system in Hawaii". huge industry should be encouraged to
settle here. It has led to a plea that
This proposal should draw upon the sewage effluent, on the highest possible
extensive surveys or analyses already done by priority, should be diverted from
the University, the U.S. Corps of Engineers Kaneohe Bay. It has also, however,
and the Department of Planning and resulted in a recommendation that
Economic Development , and upon the high Hawaii's open ocean waters are
level of interest shown by the County of sufficiently robust and self-purifying to
Hawaii. If a partnership can be arranged, the allow sewage treatment and disposal
State should be immediately responsive in techniques which would be
-supplying its share of the costs for the environmentally impossible in the
demonstration project. coastal, riverine and lake waters of the
continental United States. The common
element here is a convi ction-- stated in
Chapter 4 by the Task Force as a
AN OVERVIEW recommendation- -that environmental
standards should be based on a
philosophy of "humanism" .(greatest
Hawaii and the Sea-1974 makes more good for mankind) rather than
We are painfuUy aware that "Hawaii and the Sea-1969" became known primarily for its 22 summary recommendations and
that little action resulted from the many other recommendations stated only in the body of the report. On one hand, we feel it is
necessary to emphasize those recommendations we consider to be "most important". On the other hand, topics which did not
reach this priority level may be nearly as important, or more easily implemented, or have an emerging importance which was not
yet apparent to us. Therefore, in addition to the top 14 recommendations we have included all others in tabular form in this
chapter. 2-2

64naturalism" (return to pristine initial action. In some cases, we may
conditions). We believe these two have pointed the finger in the wrong
standards need not be antagonistic. direction. If so, the nominated agency
9 The Need For Public Education. Many should still respond, at least to the
of Hawaii's marine problems result from point of finding a proper home for the
a genera ,I lack of understanding by the recommendation.
public of the ways in which Hawaii
affects the sea and is affected by it. We Hawaii and the Sea-1974 has one
believe that much greater emphasis on characteristic which may make it totally
education is needed in this area. unique in the annals of advisory reports. The
Recommendations to accomplish this dollar value of those recommendations which
include: (1) addition of an education can save the State money, or which can
function to the law enforcement arm of generate new State income, is higher than the
the Department of Land and Natural dollar cost of those recommendations which
Resources, (2) additional training will require additional expenditures by the
courses for fisherman, (3) a guidebook State. In a year of budget crunches, the
which explains reasons and techniques temptation will exist to skim off the cream;
f or control of erosional runoff, (4) to pay more attention to the first group of
extension of marine-oriented courses recommendations than the second. We hope
down into the primary grades of our this does not happen, and actions instead will
schools, and (5) creation of a "Hawaii be based upon proper assessment of the
Ocean Center" which, among other relative needs of the people of Hawaii.
functions, will display Hawaii's oceanic
past and future. Also, we need to point out that these
9 Protection of our Marine cost savings are a direct result of past
Resources. This has two key elements. research, development and analyses in marine
The first is protection from ourselves science and technology. When research in any
(e.g., by licensing, exclusion and field shows an ability to return a profit,
enforcement); the second is protection industry has learned to continue or increase
of the resources from uncontrolled its support of that research. In the context of
foreign exploitation through extension our report, this should be interpreted as a
of United States or State jurisdiction need to reinvest a part of these cost savings
and control--but not necessarily toward solution of those marine problems we
sovereignty- -over the waters and have identified.
seafloors of the Archipelago.
e Fixiing of Responsibility. We have
examined many facets of Hawaii's
marine affairs and the often confusing "MOST CRITICAL" RECOMMENDATIONS
way in which responsibilities for its
marine problems are allocated among
agencies of the State government. We In its final meeting, the Task Force
have noted that those recommendations selected 14 recommendations considered to
in the 1969 report which most be of such high priority that they warranted
successfully resulted in State action flagging with a "most critical" status. The
were the ones which nominated specific criteria for selection required these
agencies for action responsibility. And recommendations- -in competition with all
we have benefited from these others--to fit in one or more of the
observations. Except for a few following categories.
generalized recommendations in the
student chapter, all of our The recommendation must face a clear
recommendations are coupled with and imminent opportunity or danger of
nomination of a State agency to take considerable magnitude.

2-3

� The recommendation must require This operation, which could be carried
rapid action by the State government. out on any island having a deep-dratt
Such action can be expected to have a port, would have economic and
highly beneficial impact on Hawaii's environmental impacts of yet unknown
future. magnitude.
� The recommendation can result in a At the highest level, refining would also
major cost savings to the State. be done in Hawaii. Expenditures in the
State could approach a billion dollars
1. The Manganese Industry per year. Potential environmental
impacts would increase accordingly.
Recent discoveries of metal-rich manganese
crusts on the seafloor of the Hawaiian At these second and third levels of
Archipelago have excited a high level of impact, the marine manganese industry would
interest among mining companies of the also become a powerful tool to carry out the
United States and several foreign nations. State's announced policy of dispersion of
Japanese, French, West German and United population and industry to one or more of
States industrial groups have already the Neighbor Islands.
supported expeditionary ships to explore this
resource. Preliminary analyses (Chapter 7) The dangers are twofold. First, the
show a metal content with a post-refining beneficiation and refining processes needed
value of nearly $800 per ton of ore at current by the industry are not presently known in
market prices. About one-third of this value Hawaii. Neither are their environmental
lies in the platinum content of the ore. impacts. Timely knowledge in these areas is
critical to a wise decision on the desirability
These manganese crusts are located in of the industry and its,optimum location on
water depths of 3,000 to 6,000 feet, making shore.
them much easier and cheaper to harvest than
the manganese nodules of the deep seafloor. Second, the resource is located on the
The lifetime, at anticipated mining rates, of seafloor, beyond all present limits of United
the identified deposits appears to be at-least States jurisdiction and control. Until this
several centuries. While the economic value jurisdiction is resolved, neither the State nor
(profit potential) of the resource is not well the Federal governments can exercise legal
established, it appears certain that it could be control over the mining side of the industry,
exploited at a healthy profit. An operation even though the resource is located within the
based on three to five mining ships, with the geological boundaries of the Hawaiian
ore processed ashore in Hawaii, could result in Archipelago. This situation will probably
manganese becoming Hawaii's largest single inhibit United States mining of the manganese
industry. Hawaii has several alternative crusts. It may accelerate foreign, involvement.
futures as it faces this new industry.
A detailed treatment of the resource
� As a minimum, Hawaii's role would be value of the manganese crusts is given in
limited to onshore support of the ships, Chapter 7, while Chapter 8 discusses potential
'crews and staff of a totally offshore industrial impacts on Hawaii. In Chapter 7,
industry. Environmental impact should several recommendations are made for State
be negligible, and economic impact action. These deal primarily with (1) rapid
would be both relatively small and evaluation of the plans and processing
limited to Oahu. techniques of all candidate mining companies,
� At the next level, enrichment (2) assessment of candidate industrial sites on
(beneficiation) of the ore would be shore, and (3) recommended steps to an
carried out ashore, but with the final informed State position and policy on control
refining process done outside the State. of the resource.

2-4

2. Inter-island Marine Transportation e The need to monitor sea trials of the
Navy-developed semi-submersible ship,
Chapter 8 assesses the need for a because of the potential of that concept
complete inter-island marine transportation for inter-island ferry operations.
system, and concludes that such a system is * The potential for in-Hawaii
needed to economically and socially unite the construction of such ferry ships if the
islands and to support an infusion of light semi-submersible ship concept proves
industry into the Neighbor Islands. A system feasible for local waters.
having three components is recommended.
3. Restoration of Kaneohe Bay
� A bulk-cargo transportation system.
� A passenger-only transportation system. The flora and fauna of Kaneohe Bay are
� A hybrid or ferry system, able to deteriorating rapidly under the combined
accomodate both passengers and onslaughts of sedimentation, storm water and
roll-on/roll-off vehicles. sewage effluents. The Kailua end of the bay is
now heavily carpeted with fine sediments and
Of these needs, only the first two can has become so overfertilized by discharges
be met by existing (Young Brothers' from the nearby secondary-treatment sewage
inter-island barge) or planned (Pacific Sea plant that even the algae--classic harbingers
Transportation's Jetfoil) systems. Immediate of pollution--are dying or have died. Algae
State action is recommended to create the infestations are now found on the corals of
third system, for operations among all of the outer edge of the barrier reef.
Hawaii's major islands.
Kaneohe Bay is dying. Much of it is
No recommendation is made concerning already dead. It is not certain whether even
the question of State versus private ownership complete cessation of environmental assaults
of the ferry system. It is pointed out that 70 on the bay can, within our lifetimes, fully
percent of the total cost of a State-owned restore life to waters which, less than a
ferry can now be paid by the Federal Aid to generation ago, were world famous for the
Highways Act. It is further pointed out that beauty of their corals and other marine
industry will use the ferry system to support communities.
location or relocation to the Neighbor Islands
only if it has complete trust in continuity of This subject is treated in Chapter 4,
the service. If the ferry system is built and which also makes recommendations dealing
operated under private ownership, the State with control of runoff and sedimentation.
should be prepared either to guarantee Our most critical recommendation for
(subsidize) its operation, or to buy the system Kaneohe Bay deals with sewage effluent,
outright if it proves unable to operate at a because its effects touch the entire bay, and
profit. because it is the most easily acted on. As a
matter of highest priority, it is imperative that
A new survey of public attitudes toward. the State take rapid action to divert effluent
marine transportation, researched and written from the Air Station and Kaneohe/Kailua
by students of the University's Marine sewage treatment plants out of Kaneohe Bay
Options Program, is presented as Appendix C. and into the open ocean. There is no reason
Subordinate recommendations, also included for further delay, and every reason to have
in Chapter 8, deal with the subjects of: done it years ago.

Development of harbors and harbor 4. Sewage Treatment Alternatives
facilities in the Neighbor Islands to
support ferry operations, with special Public Law 92-500, the Federal Water
emphasis on a leeward port for, the Quality Act Amendments of 1972, requires
island of Maui. that all municipal sewage be subjected to

2-5

secondary treatment before discharge into The exemption. should be granted on a
navigable waters. (Today, Honolulu pumps case-by-case @basis, with each case decided by
untreated sewage into relatively shallow water application to the Environmental Protection
just beyond the reef.) The club in the Federal Agency. Certain of Hawaii's coastlines more
law lies in the fact that compliance is closely fit the continental standard than they
necessary before the local government can be do the model described above. We do not
eligible for Federal cost sharing of the wish to see a blanket exemption for the entire
necessary treatment plant. State.

We believe this law is designed for a
continental environment, and is appropriate 5. Marine Rapid Transit
where discharges must be made into rivers,
lakes or the nutrient-fich shallow waters of a The Task Force believes that a
continental margin. It is not appropriate to waterborne rapid transit system is a viable
Hawaii where our offshore waters tend to be: alternative to a fixed-roadbed transit system
* Deficient in nutrients; in fact, almost a for Honolulu. Its advantages include:
marine desert.
* Extremely deep within a short distance It could be built for about 15 percent
offshore, so that deep outfalls can be of the enormous cost presently
used to trap effluent below the proposed for the fixed-roadbed system
thermocline. (approximately $200.milhon compared
o Constantly swept clean by the gigantic with approximately $1 billion).
oceanic currents which flow by the o It would not add another barrier (like
relatively minute land area of our H-1) down the axis of the long thin
islands. strip which constitutes urban Honolulu.
o It would, in fact, require no roadbed at
As Chapter 4 argues in more detail, all. Except for harbor improvements
imposition of the continental standard to and construction of relatively spartan
Hawaii would be more expensive in land, terminal facilities, all costs could be
energy, capital investment and operating invested in "people movers".
costs; and might do more harm to the o Port-to-port transit times should be at
environment than would a much less least competitive with today's express
expensive advanced primary treatment bus system.
system. The total cost difference, for o The marine system could be placed in
Honolulu's Sand Island treatment plant alone, operation one route at a time. It could
could amount to $20 million. For the entire achieve first operations years ahead of
State, additional costs for the first decade of any fixed-roadbed system.
compliance could approach S 100 million.
Candidate craft include the Jetfoil and
Chapter 4 recommends that the State the semi-submersible ship. Both offer a stable
appeal for an exemption to Public Law comfortable ride in high seas and can use
92-500 so that it can be allowed to replace relatively unimproved harbors.
secondary treatment of sewage with advanced
primary treatment followed by deep discharge The system might be put into initial
into the ocean. Such exemption should be operation as an express run between Hawaii
granted without loss of or prejudice to Kai and downtown Honolulu. We recommend
Federal sharing of the cost of the treatment that plans be made to offer fast service also to
plants. the Waianae coast, at least as far as Pokai Bay.
As with present bus systems, government
This will require a modification of subsidy could support lower fares for
Federal law; therefore, active support by students, free transit for senior citizens and
Hawaii's Congressional Delegation is needed. similar incentives.

2-6

Chapter 8 points out that the marine University of Hawaii in a search for deposits
rapid transit system is not recommended as a of offshore sand and development of a
replacement for the current bus system. prototype system to mine these deposits.
Instead, we see it taking enough pressure off Extensive offshore sand deposits have been
conventional land transit that the found and technical feasibility of the sand
combination of buses and ships can handle mining system has- been demonstrated.
the total passenger load without the need for Potentially, these deposits could satisfy the
a third (fixed-roadbed) system. To work needs of Hawaii's construction industry and
efficiently, the marine system must have furnish a viable alternative to crushing of
operating schedules which are closely basalt for sand or further mining of our
,coordinated with local runs by Honolulu's beaches. Several important questions have not
buses. Chapter 8 also contains a yet been answered.
recommendation for harbors to support the 9 Is the sand of sufficient quality for
marine rapid transit system. industrial use?
* What are the environmental impacts of
6. Resource Surveys effluent water which results from the
mining operation? '
Chapt,ers 6 and 7 contain e Is the University's sand-mining system
recommendations that three resource surveys economically feasible?
be carried out within the Hawaiian
Archipelago. The Task Force decided that Chapter' 7 recommends that the State
they should be grouped together and support a resource survey program to answer
presented as a ''most critical" these questions.
recommendation. Each of the three surveys,
however, has its own unique justification. Precious Coral Survey.' Hawaii's
precious coral industry is a highly visible and
Fisheries Survey. The fisheries exotic symbol of the State's close
potential of the Northwestern Hawaiian involvement with the sea. Its size (about $7.5
Islands is.not well known, and little survey million per year) and growth are limited by
effort has been invested in these islands. the availability of the raw material. The only
There is now increasing Federal pressure to Hawaiian beds known to have commercial
have them declared a "natural wilderness feasibility are off Makapuu Head on Oahu and
area", which would effectively close them to on Milwaukee Bank just beyond the
fishing. We believe that Hawaii's increasing northwestern end of the archipelago.
needs for fishery products, coupled with the
recent introduction of vessels able to Japan is the traditional supplier of
economically reach and fish these islands, and precious coral for Hawaii's jewelry industry,
emphasized by their potential loss as fishery but is beginning to limit its exports and may
resources, are sufficient reasons for a survey stop them completely in the near future. Such
of the fishery potential of the Northwestern an action would place the Hawaiian industry
Hawaiian Islands. This survey should be in hazard. It is ironic that most, 'of the
completed within three years. In the precious coral harvested by Japan is obtained
meantime, t 'he Federal government. should be from Milwaukee Bank.
asked to delay any declaration of wilderness
status. for these islands. As an alternative, it A survey effort is needed to discover
should be asked to include a stipulation that additional precious coral beds within the
selected portions of the islands can be Hawaiian Archipelago. The most likely areas
reopened to controlled fishing after the for survey are in the Northwestern Hawaiian
results of the survey have been analyzed. Islands. We believe that a precious coral
survey of these islands could readily be
Survey of Offshore Sand Deposits. For amalgamated with the fisheries survey
several years, Sea Grant has supported the described above.

2-7

7. Ship and Facilities Support To protect these resources, Chapter 3
recommends that the State should press for a
Hawaii and the Sea-1969 national policy of exclusive jurisdiction and
recommended Legislative support for control over all marine resources of the-
operations of the University's research and Hawaiian Archipelago. This control would*be
survey vessels at a level of $500,000 per year. exercised within a boundary which contains
Until recently, this support has been given. In @all islands and channels of the archipelago. If
the 1973 session, ship support was cut back possible, the recommended policy should be
to $300,000. The result, greatly aggravated by put into effect through negotiations at the
the withdrawal of both National Marine 19 7 4 International Law of the Sea
Fisheries Service vessels from their Hawaiian conference. If this is not possible, it should be
port, has been a serious curtailment of the achieved by the Federal government through
University's ability to support resource unilateral declaration.
surveys of the type described in the previous
section. Several aspects of this policy need
emphasis. First, it does not claim sovereignty
In addition, the 1973 Legislature failed over areas not now sovereign territory, but
to authorize the $200,000 for marine only jurisdiction and control. This is the
facilities support requested by the Marine minimum legal position which can give the
Affairs Coordinator. This support had been protection needed for the issuing of licenses
given by previous sessions of the Legislature. for resource utilization, and the exclusion of
Its abrupt withdrawal crippled a number of foreign operators. Second, it allows the
valuable programs in applied marine research. historical right of "Innocent Passage" for any
foreign ship which asks to transit an
We recommend that the Legislature inter-island channel. Finally, it is an inward
restore these funds, to at least the former extension of jurisdiction and control; an
levels of $500,000 for ship support and extension which is solidly based on the
$200,000 for facilities support. This geological continuity of the Hawaiian Islands.
$200,000 is included within House Bill 2263, As such, it need not set a precedent for
the Marine Affairs Coordinator Bill, and is outward extensions of sovereignty,
therefore assigned as a cost to "most critical" jurisdiction or control by other nations over
recommendation Number 12. At the same the waters and seafloors off their own coasts.
time, the University should be instructed to
give a higher priority to allocation of ship 9. Hawaii Ocean Center
support funds toward resource surveys within
the Hawaiian Archipelago.
In 1970, the Legislature appropriated
8. Archipelago Status $ 100,000 for use by the Department of
Planning and Economic Development in
Under current marine law, as subscribed planning toward an oceanographic research
to by the United States, all of the channels park. Because of the State's financial aus-
which separate Hawaii's major islands contain terity, these funds were not released. The
a strip of international waters. The manganese Task Force now believes that events have
and precious coral resources discussed in caught up with the idea and, in Chapter 3,
previous sections lie on international seabeds, recommends that these funds' should be
beyond the limits of United States redirected toward a facility called the "Hawaii
jurisdiction and control, and subject to Ocean Center".
exploitation by any nation which chooses to
do so. These resources also lie within the Chapter 3 recommends also that a
general boundaries of our inter-island nonsalaried committee should be named to
channels. assist in the planning of this center. We

2-8

envision a facility which should eventually be problems will not be solved, and its marine
self-supporting with the characteristics shown opportunities will not be realized, with a
below. philosophy of management which considers
the ocean simply as an extension of the land.
9 It would have an educational function,
one attractive to both residents and As an interim measure, Chapter 3
tourists, to display and teach Hawaii's re 'commends that a Division of Marine
past, present and future involvement Resources be established within the
with the sea. Department of Land and Natural Resources.
It would be sited on the shoreline and Initially, this Division would 'be assigned most
would be an operating facility. Typical or all of the areas of marine responsibility
users of dockside space would include now held by the Department. Ultimately, it
fishing vessels, University research ships, should be raised to Department status--by
and non-Hawaiian or foreign ships of addressing new marine opportunities and
either type. problems, or by accepting responsibilities
It would furnish office and laboratory transferred from other Departments, or by
space to local research and (light) some combination of these.
industrial activities. Similar space would
be offered to firms or activities which 11. Coastal Zone Management
have come to the islands on a
temporary or tentative basis, which In 1973, the Legislature passed Act 164
need or desire to be near a focus of which mandated the Department of Planning
marine activity, or which wish to avoid and Economic Development to prepare a
the expense of setting up an Coastal Zone Management Plan. This plan was
independent facility. to be written in response to the National
It could--but need not--be located Coastal Zone Management Act'of 1972. Its
on a single site. Branch activities or completion would make the State eligible for
traveling displays might be located on Federal sharing of part of the costs of
all, of our major islands. Present management of the coastal zone.
facilities such as the Waikiki Aquarium
@might be brought under the This plan will be difficult to write, and
management umbrella of the Hawaii we have little quarrel with actions taken to
Ocean Center. date. We would like to ask for consideration,
before itis too late to affect the plan, of three
10. Division of Marine Resources points we consider vitally important.

We believe that the State's ability to Except for high altitude regions which
plan and manage its marine activities has been extend above the trade win ds, all of
inhibited by two serious deficiencies. First, Hawaii is part of the coastal zone.
responsibilities in this area are too broadly Whatever happens in any part of our
diffused among nearly all agencies of the watershed is likely, sooner or later, to
State government. This makes communication affect the coastline and offshore waters.
cumbersome, and coordination difficult-- Planning for the coastal zone must not
since it is often not a simple task for stop at the vegetation line, or at the
officials of one agency to know who is or is landward limit of the shoreline setback,
not exercising responsibility in areas of or even at the edge of our palis.
uncertain jurisdiction. At least as much effort should be
invested to determine the goals of
Second, many of these areas of marine coastal zone management as is spent to
responsibility are allocated to agencies or devise the management structure and
Divisions which historically are land-oriented. techniques which will be used to
This approach does not work. Hawaii's marine achieve these goals.

2-9

Too often in our marine experience, we the University.
have been subjected to management
structures and techniques which were In Chapter 3, we recommend that
set up primarily for the convenience of additional staff funds be granted to the MAC
management--to the point that they office, earmarked to increase that office's
interfered with solutions of problems, technical staff. We also recommend that MAC
rather than aiding these solutions. recruit a nonsalaried Marine Affairs Advisory
Council and use it both as a sounding board
Certain of the Federal and State water and an aid to coordination with State, public
quality standards might illustrate this and private marine activities.
problem. It is much easier to manage and
enforce standards consisting (for example) of Finally, we recommend that the
fixed numerical limits for temperature of Legislature pass the Marine Affairs
heated effluent water, oxygen concentration, Coordinator Bill (HB 2263). This bill creates a
or coliform count than it is to enforce fund for rapid response to unexpected
standards based on environmental impacts. problems in marine affairs, administered by a
But the result is (or can be) a totally irrational manager of high technical competence who is
set of standards which, even if achieved, do a subject to close legislative scrutiny on an
disservice to both mankind and the annual basis. In practice, over half of the fund
environment. has also been usable as critically needed State
matching funds for the Federal Sea Grant
12. Marine Affairs Coordinator program.

We believe that Hawaii's Marine Affairs 13. Groundwater Injection
Coordinator (MAC) has performed in an
outstanding manner since that office was With some concern, the Task Force has
created more- than three years ago. He has noted (Chapter 4) an escalation of plans to
ably represented the State's marine interests inject municipal and industrial wastewaters
locally, in Washington and in several foreign into Hawaii's groundwater strata. We also
countries. He, has brought a number of note that pre-injection surveys of the
important, highly visible marine technology characteristics of these strata, migration and
projects to Hawaii, notably the diving alteration patterns for these injected waters,
physiology program and the "Floating City" and possible influences on nearby coastal
program, both at the University of Hawaii. waters have, at best, been sketchy. In many
Through his second position as Dean of areas of the State, these groundwater strata
Marine Programs, he has had a major also serve as primary sources of our fresh
beneficial impact on marine education in the water. We are concerned that an action which
State, especially in educating the student could have serious and lasting impact on the
destined for nonmarine professions. quality of our groundwater is being taken
with inadequate knowledge of the
But the multiversity of his talents and consequences. The risk, based on present
accomplishments is also the source of a knowledge, appears far too great for the
problem. MAC and his small staff are relatively minor economic benefits to be
overloaded, required to be in too many places gained.
at conflicting times, and have too many
responsibilities for the minimal staff resources The Water Resources Research Center
of the office. The Task Force considered a has requested that pre-injection surveys be
recommendation that the MAC and Madne made of marine flora and fauna in adjacent
Programs offices be separately headed, but coastal waters and these areas be periodically
decided that this step would cause more monitored after injection begins so that
problems than it would solve by disrupting a environmental impacts can be quickly
very effective relationship between MAC and discovered. No such actions have been taken.

2-10

In Chapter 4, the Task Force in the report.
recommends that the recommendations of the
Water Resources Research Center should be In the tables, estimated cost savings and
carried out. incomes are shown in parentheses. Entries
that represent additional expenditures are
14. Shoreline Development expressed as total costs--that is, without
further comment on the origin of the funding
Hawaii and the Sea-1969 required. These do not necessarily represent
recommended that' . . on all cost to the State. For example, 90 percent of
publically-owned shoreline lands which are the cost of the Marine Rapid Transit System
less than fully developed, irrespective of and 70 percent of the cost of the Marine
zoning or land-use classification, there should Inter-island Transportation System can be
be 300 feet of open space dedicated to public funded under existing Federal programs, if
use. . . ". these systems are owned by the State.

In 1970, the Legislature passed the The following abbreviations are used to
Shoreline Setback Law. This law prohibits identify the State agency nominated for
sand mining and regulates construction within action responsibility.
a shoreline setback zone not less than 20 feet
and not more than 40 feet inland from the AG Office of the Attorney General
upper reaches of the wash of the waves. CONG Hawaii's Congressional
Delegation
The Task Force believes that an DLNR Department of Land and
additional step is needed beyond the 1970 Natural Resources
legislative action. In Chapter 4, we DMP Dean of Marine Programs,
recommend that environmental impact University of Hawaii
statements should be -required by law for all DOA Department of Agriculture
developments and major construction on both DOE Department of Education
public and private land, within 300 feet of the DOH Department of Health
present inland boundary of the shoreline DPED Department of Planning and
setback zone. Economic Development
DOT Department of Transportation
Such new legislation should not affect GOV Office of the Governor
minor construction, such as would be carried LEGIS The State Legislature
out for or by the individual homeowner. For MAC Office of the Marine Affairs
example, construction of a privacy fence, or a Coordinator
single-family dwelling, would be adequately UH University of Hawaii
covered under existing law. The intent of our
recommendation is to gain a further measure
of -environmental control over large 'Capital Improvement Program costs are
development and civil engineering projects. entered in the tables as "CIP".

LIST OF RECOMMENDATIONS

The two tables which follow synopsize
all recommendations made in Hawaii and the
Sea-1974. The first table lists the 14
recommendations we consider to be most
critical. The second table, which includes
these 14, contains all recommendations made

2-11

Hawaii And The Sea--1974; "Most Critical" Recommendations (Page 1)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)

7-10 A series of recommendations relating to a marine
manganese industry in Hawaii:

* Increase State support for the University of UH 250/yr
Hawaii Manganese Research Program.
o Analyze the manganese industry and its potential DPED 50
econom.icbene fits.
e Analyze potential industrial sites, processing DPED 100
techniques and environmental impacts.
9 Define a legal position for the State in jurisdiction AG 25
and control of this industry.

8-7 Prepare a Bill for the ferry-ship component of -an DOT 20,000 CIP
inter-island marine transportation system. (Cost
estimated' for 4 ships, each of 1,000-to-1,500-ton
displacement. Harbors are recommended separately.)

4-12 Accelerate "as rapidly as possible" present plans to D OH
divert effluent of all sewage treatment plants from
Kaneohe Bay.

4-12 Press , for exemption, on a case-by-case basis, from DOH (20,000)
Federal requirements for secondary treatment. of (1,000/yr)
municipal sewage.

8-9 In cooperation with the City and County of Honolulu, DOT 150,000 CIP
prepare plans and submit Bill for a marine rapid transit (850,000)
system, as an alternative to a fixed-roadbed system.
(Cost and savings are estimated for the complete system,
less harbors which are recommended separately.)

Three surveys of Hawaii's marine resources:

6-4 e To determine fishery potential of the DLNR. 100 CIP
Northwestern Hawaiian Islands
7-3 To determine commercial potential for mining of DLNR 100 CIP
known offshore sand deposits
7-5 Discovery expedition to find new beds of precious DLNR 100 CIP
coral.

3-1 Form a Division of Marine Resources within the DLNR 75/yr
Department of Land and Natural Resources.

3-6 Restore, to pre-1973 levels, State support for UH 200/yr
research/survey ships and marine facilities. Funds for MAC
facilities are included within the Marine Affairs
Coordinator Bill (House Bill 2263) and are listed below.

3-4 Pursue "all possible avenues" toward a Federal policy 'of AG 75
Cost savings are shown in parentheses.
2-12

Hawaii And The Sea--1974; "Most Critical" Recommendations (Page 2)
Action Added Cost Or
Cost Saving*
Page Recommendation Agency ($000's)
jurisdiction and control over marine resources of the
Hawaiian Archipelago.

Use funds already appropriated to plan a "Hawaii Ocean DPED
Center"; to include expositional, educational, research
and light industrial functions.

4-16' Place emphasis on goals and Hawaii's "uniqueness" DPED 200 CIP
factors in preparing a plan for management -of the
State's coastal zone. (DLNR, UH and, County
cooperation is needed.)

3-2 Increase 'technical staffing of the Marine Affairs GOV 60/yr
Coordinator Office, establish a nonsalaried advisory
council, and pass House Bill 2263. LEGIS 460

4-14 Determine environmental impact of injection of DOH 100
wastewaters into the groundwater strata before allowing
large-scale use of this disposal technique.

4-15 Require Environmental Impact Statements for all DLNR 50/yr
development and major construction, on public and
private land, within 300 feet of the shoreline setback
line.

Estimated Additional Costs ($000's): One Time $171,310
Per Year 635

Estimated Cost Savings ($000's) One Time $870,000
Per Year 1,000

For comparison, the costs and cost savings shown below summarize the impact of all
recommendations made in Hawaii and the Sea--1974.

Estimated Additional Costs ($000's) One Time $205,295
Per Year 2,93Q

Estimated Cost Savings ($000's) One Time $870,000
Per Year 2,200

2-13

Hawaii And The Sea--1974; Summary Of Recommendations (Page 1)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)
3-1 t Form a Division of Marine Resources within the DLNR 75/yr
Department of Land and Natural Resources.

3-2t Increase technical staffing of the Marine Affairs GOV 60/yr
Coordinator Office, establish a nonsalaried advisory
council and pass House Bill 2263. LEGIS 460

3-4t Pursue "all possible avenues" toward a Federal policy of AG 75
jurisdiction and control over marine resources of the
Hawaiian Archipelago.

3-4 Establish a "Uniqueness Commission" to safeguard GOV 50/yr
interests of those states and territories which are unlike
the continental standard.

3-5t Use funds already appropriated to plan a "Hawaii Ocean DPED
Center".

3-6 Request that the National Marine Fisheries Service CONG
vessel CROMWELL be returned to its Hawaiian base.

3-6t Restore, to pre-1973 levels, State support for UH 200/yr
research/survey ships and marine facilities. (Costs for MAC
facilities included within House Bill 2263.)
3-7 Develop a long-range CIP marine facilities program, to DMP 25 CIP
include research/survey ships.

3-7 Respond rapidly to Legislative Reference Bureau,s LEGIS ?
recommendations on conversion of Waikiki Aquarium
into a marine education center.

4-5 Supplement water quality monitoring program with a DOH 50/yr
study of biological communities present at each
monitoring station.
4-7 Interpret the phrase "equivalent to best practicable DOH 50/yr
4-8 treatment" (of effluent water) to mean treatment that is
both technologically practicable and best in terms of
long-term human welfare.

4-9 Give higher priority to research concerning impacts of UH
water quality on marine biosystems.

4-9 Revise temperature standards for waste heat to DOH 20
incorporate upper and lower limits, as well as maximum
allowable changes from ambient temperatures.

4-12t Appeal for exemption, on case-by-case basis, from the DOH (20,000)
Federal requirement for secondary treatment of CONG (1,000/yr) -J
Cost savings are shown in parentheses.
t "Most critical" recommendation 2-14

Hawaii And The Sea--1974; Summary of Recommendations (Page 2)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)
municipal sewage.

4-12t Accelerate "as rapidly as possible" present plans to DOH
divert effluent of sewage treatment plants from
Kaneohe Bay.

4-13 Set minimum performance standard for prevention and DOH 50
control of sedimentation due to runoff. Publish DLNR
guidebook on techniques for control of such erosion.

4-14t Determine environmental impact of ffijection of DOH 100
wastewaters into the groundwater strata before allowing
large-scale use of this disposal technique.

4-15 Set new depth/distance limits on mining of offshore DLNR 25
sand, based on conservation of the littoral cell.

4-15 Monitor environmental impact of effluent water from DLNR 75 CIP
initial prototype mining of offshore sand. (See also
Chapter 7.)

4-15t Require Environmental Impact Statements for all DLNR 50/yr
development and major construction, on public and
private land, within 300 feet of the shoreline. setback
line.

4-15 Test Oil Spill Disaster Plan through mock mobilizations. DOT 201yr

4-16 Establish- Marine Natural Area Reserves off the shores of DLNR 200
all of Hawaii's major islands. I 00/yr

4-16t Place emphasis on goals and Hawaii's "uniqueness" DPED 200 CIP
factors in preparing a plan for management of the
State's coastal zone. (DLNR, UH and County
cooperation is needed.)

5-4 Select, and recommend for approval by the Governor, at DLNR 50
least one additional marine park on each of Hawaii's
major islands.

5-4 Determine feasibility of public or privately owned DLNR 10
undersea observation facilities at each of Hawaii's
marine parks.

5-4 Take immediate action to preserve Hawaii's natural DLNR 10
recreational resources; e.g., through concept of zoning
for specific uses.

5-5 Take immediate steps to open all existing publically DLNR 200
controlled beach access routes, and keep them 100/yr
Cost savings are shown in parentheses.
t "Most critical" recommendation 2-15

Hawaii And The Sea--1974; Summary of Recommendations (Page 3)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)
maintained and well marked. Determine need for new
access routes where none now exist. (County
cooperation needed.)

5-5 Press for opening to public access of certain military DLNR
lands that border the ocean.

5-6 Develop plans, priorities and environmental impact DLNR 125
statements for restoring the recreational potential of
Hawaii's coastal waterways.

5-7 Appropriate funds to implement recommendations of DOT 1,400 CIP
Department of Transportation for additional boat
launching ramps for all of Hawaii's major islands. LEGIS

5-7 Conduct a survey, to include non-boatowners, to DOT 50 CIP
determine total State need for additional marinas.

5-7 Precede all construction of new launching facilities and DOT 50/yr
marinas with an Environmental Impact Statement.

5-8 Increase registration, moorage and (possibly) launching DOT (700/yr)
ramp fees for boating to the national average; e.g.,
double or triple current fees.

5-8 Devise a water safety plan for Hawaii; to include DLNR 30.
education, training, enforcement and zoning. DOT

6-2 Formulate two alternative fishery policies; one based on DLNR 50
present State jurisdiction and the second based on
extension of United States jurisdiction over the entire
Hawaiian Archipelago.

6-2 The new Division of Marine Resources (page 3-1) should DLNR 250/yr
include research, advisory service and public education
functions.

6-3 Modify present policy for licensing of fisheries; to DLNR (500/yr)
increase commercial fees, to levy landing fees, to
establish fees for recreational fishing and to establish
limited entry into certain fishery stocks.
6-4t Complete intensive fishery survey of the Northwestern DLNk 100
Hawaiian Islands within three years. (With University of
Hawaii and National Marine Fisheries Service.)

6-4 Request that Federal declaration of the Northwestern DLNR
Hawaiian Islands as a "natural wilderness area" follow
and be based upon survey of the fishery and precious
coral stocks in those islands.
Cost savings are shown in parentheses.
t "Most critical" -recommendation 2-16

Hawaii And The Sea--1974; Summary of Recommendations (Page 4)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)
6-6. Continue to support fishery programs of the Pacific DPED 25 /yr
Islands Development Commission, and press for direct
Federal funding of these programs. CONG

6-6 Explore, with Hawaiian Tuna Packers, ways to continue DPED
operation of this cannery in Hawaii.

6-6 Explore setting State standards for fishery products DOH
landed by Hawaiian vessels and consumed within the
State.

6-6 Investigate possible uses for shark meat in Hawaii. If not DOH I 00/yr
successful, reestablish the nonbounty program for
regional eradication of sharks. (Costs shown are for DLNR
nonbounty program.)

6-7 Develop a "status of the stock" report for inshore DLNR 100
fisheries, together with a plan for management of this
resource.

6-7 Determine population dynamics for snappers, akule, DLNR iso
opelu and Kond crab. Investigate policy of limited entry
to these fisheries.

6-8 In management of recreational fishing, update fish and DLNR I 00/yr
game laws, improve enforcement efficiency and add an
educational function for enforcement officers.

6-8 Accumulate, data necessary to support an effective coral DLNR 100
reef management system.

6-10 Continue support of Hawaii's developing aquaculture DLNR I 00/yr
programs, including a possible demonstration operation DPED
in a fully-restored fishpond. DOA
DOH
-.6-11 Sponsor a series of harbors or basins, throughout the DOT 5,000 CIP
State, for- support of Hawaii's fisheries (to be eventually
self-supporting). DLNR

6-11 Add additional funds to the (self-supporting) Fishing DLNR 1,000
Vessel Loan Program.

6-11 Investigate availability of loans for fishing vessels under DLNR
the Federal Farm Credit Act of 19 7 1.

6-12 Support expanded fishery. training program at the UH 75/yr
Leeward Community College. DPED

Cost savings are shown in parentheses.
t "Most critical" recommendation 2-17

Hawaii And The Sea--1974; Summary of Recommendations (Page 5)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)
7-2 Complete, within 2 years, a report estimating the DLNR 75
volume and quality of all sand and gravel resources, land
and marine, within the State.

7-3t Investigate quality of known offshore sand deposits, and DLNR 100
support prototype mining to determine commercial
feasibility. (See also Chapter 4.)

7-5t Support discovery expedition to find new commercially- DLNR 100
feasible beds of precious coral.

7-5 Develop policies to manage and protect Hawaii's' DLNR 25
precious coral resource on a principle of sustained yield,
and encourage development of low-cost, selective
harvesting techniques.

7-5 Promote identification of Hawaii, and its interest in the DPED
sea, with precious coral.

7-1 ot A series of recommendations relating, to a marine
manganese industry in Hawaii:

e Increase State support for the University of UH 250/yr
Hawaii Manganese Research Program.
* Analyze the manganese industry and it potential DPED 50
economic benefits.
* Analyze potential industrial sites, processing DPED 100
techniques and environmental impacts.
o Define a legal position for the State in jurisdiction AG 25
and control of this industry.

7-11 Develop a proposal to demonstrate economic and MAC is
environmental feasibility of a geothefmal/solar/ocean
energy-producing system in Hawaii.

8-7 Appoint a nonsalaried Hawaii State Transportation GOV 50/yr
Committee to assist the Department of Transportation
in planning a total State transportation system. DOT

8-7 Prepare a master plan for a complete inter-island marine DOT 100 CIP
transportation system; to include ship types, schedules
and harbor facilities.
8-7t Prepare a Bill for the ferry-ship component of an DOT 20,000 CIP
inter-island marine transportation system. (Cost shown
is estimated for 4 ships, each of 1,000-to-1,500-ton
displacement. Harbors are recommended separately.)

8-7 Monitor and evaluate Navy sea trials of its 190-ton DOT 100 CIP
semisubmersible ship model to determine potential of
Cost savings are shown in parentheses. 2-18
t "Most critical" recommendation

Hawaii And The Sea--1974; Summary of Recommendations (Page 6)
Added Cost Or
Action Cost Saving*
Page Recommendation Agency ($000's)
this approach for use as inter-island ferry.

8-9t In cooperation with City and County of Honolulu, DOT 150,000 CIP
prepare plans and submit Bill for a Marine Rapid Transit (850,000)
System for Honolulu as an alternative to a
fixed-roadbed system. (Costs and savings are estimated
for the complete system, less harbors.)

8-12 In the State master plan for primary harbors, assign DOT
highest priority to upgrading the capabilities of
Kawaihae, Kaunakakai and Barbers Point Harbors.

8-13 Prepare and submit a Bill for a series of harbor and DOT 10,000 CIP
terminal facilities to support an inter-island passenger
boat and ferry system, with special response to the need
for a. protected harbor for leeward Maui.

8-13 Prepare and submit a Bill for a series of small harbor and DOT 15,000 CIP
terminal facilities to support a marine rapid transit
system for leeward Oahu.

8-15 If the semisubmersible ship is chosen as an element of DOT
'Hawaii's inter-island or marine rapid transit systems,
explore with local industry the possibility of its
construction in Hawaii.
NOTE: Recommendations summarized from Chapter 9
are those which are unique; ie., not treated in chapters
written by the Task Force.

9-4 Establish breathing-air standards and nonpunitive DOH 25/yr
controls for commercial SCUBA air stations.

9-4 Establish system of emergency, portable decompression DOH 50/yr
units which can be more rapidly available at the site of a
diving emergency.

9-4 Require State licensing of diver training programs and DLNR 30/yr
diving instructors.

9-5 Establish a nonsalaried commission to set guidelines and GOV 20/yr
priorities for State support of marine research and
facilities,

9-6 Establish a commission, similar to the Land Use GOV 50/yr
Commission, to safeguard the public's interests when
proposals are made to develop within the coastal zone.

9-8 Establish marine-oriented education programs at all age DOE 1,000/yr
levels, beginning with the elementary grades.
Cost savings are shown in parentheses.
t "Most critical" recommendation 2-19

CHAPTER 3: THE ROLE OF GOVERNMENT With this in mind, our report confines
its recommendations to institutional changes
which will broaden the awareness of ocean
opportunities and problems on the part of the
The Task Force takes the position that total society- -national, state and private.
institutions should not be lightly changed or
reorganized unless there is a major mismatch Marine Resources Division
between the program goals and content and
the institutional arrangement. As a corollary, In view of the broad interests of the
we believe that modification or adaptation of State, our marine resources must receive
existing institutions @to better match program increased emphasis. The licensing, regulation
goals is a continuing requirement of a and monitoring of the mining of manganese
dynamic society. We sense this philosophy in nodules and sand resources; the development
the original recommendations of Hawaii and of open sea mariculture '; the increasing
the Sea-1969. Those which dealt with the interest in coral reefs for coral, fish,
role of State and local government included recreation, etc.; all suggest a strengthening of
the following: the Department of Land and Natural
Resources in order to anticipate the
� The 'establishment of a Marine opportunities and problems these resources
Executive Director, Staff and Council will create.
to advise the Governor.
� The creation of a Marine Programs Recommendation
entity at the University of Hawaii and
the establishment of a College of Marine A Division of Marine Resources should
and Geological Science. be created within the Department of Land
� The development of a marine science and Natural Resources. Further, the Division
park. should be established with the intent of
� The development of a Pacific Center of eventually expanding into a Department of
Marine Science and Information. Marine Resources as an independent State
� Financial support for marine facilities. agency.

Many of these recommendations have been Marine Affairs Coordinator
implemented, largely (we believe) for the
benefit of the State. The recommendation for the
establishment of an Executive Director for
Marine Affairs in the Office of the Governor
was fully met by the Legislature when it
ORGANIZATION funded the position of Marine Affairs
Coordinator. 'The initial appointee to that
position also serves as the Dean of Marine
In an oceanic state, almost every Programs at the University of Hawaii. This
department of the State, the University, post was created following a recommendation
private institutions and private industry in the 1969 document that the University
should have some interaction with the sea. "gather the parts of its present program in
Industries as land-oriented as the automotive marine sciences and engineering into a single
industry, interior. decoration or gardening and entity".
landscaping, on the one hand, must concern
themselves with protection against the The circumstance that the same
dampness and salt air, while industries such as individual has filled both positions since their
tourism, recreation and transportation, oft the inception in no way alters the fact that the
other, must have a vital and major positions of Marine Affairs Coordinator and
involvement in.the ocean. Dean of Marine Programs are two different

3-1

and distinct areas of duty and responsibility. Recommendation
Both positions have important roles to fill in
reaching Hawaii's objectives in regard to The Legislature should provide
ocean resources and the total oceanic increased, full-time, technical staffing for- the
environment. Office of the Marine Affairs Coordinator.

It is vital that both these offices be The Governor should strengthen the
adequately and appropriately staffed to carry Office of the Marine Affairs Coordinator
out the broad policy making, coordinating, through the establishment of a Marine
advisory and executive functions intended by Advisory Council composed of individuals
Hawaii and the Sea-1969. It is our representing all sectors of the community
conclusion that, within the limits of the having vital interests in the ocean and its
resources that have been made available, potential.
significant progress has been made in carrying
out the policies set forth in the 1969 report. The Legislature should pass the Marine
Affairs Coordinator Bill (HB 2263). In doing
Much remains to be done, and we so, it should add a statement (or separate
believe that the technical staff of the Marine resolution) which recognizes the value of
Affairs Coordinator's office should be aug- these funds as a State match to the Federal
mented so that all sectors of Hawaii's marine contributions to Hawaii's Sea Grant program.
community can be more adequately serviced
in the future.

We also believe that now, more than TERRITORIAL JURISDICTION
ever before, there is need for the
establishment of a Marine Advisory Council
to help guide the Marine Affairs Coordinator The territories of the State stretch
in his long-range planning. Such a Council virtually the full length of an archipelago
should include representatives of all segments extending nearly 1,500 miles from the "Big
of the marine community, both public and Island" of Hawaii to northernmost Kure
private. Island. The submerged portions of the
Hawaiian Archipelago contain many valuable
The council should include geological and biological resources, such as
representatives from industry and the many precious coral, manganese crusts, fisheries and
State agencies involved in marine affairs; in sand. In the administration of such natural
particular the Departments of Land and resources, reliance must be placed upon State,
Natural Resources, Transportation, Health, Federal and international law. It would be
Agriculture, Planning and Economic desirable if the State of Hawaii could have
Development and the University. jurisdiction and management authority over
these biological and geological resources
Finally, we recommend that the which are part of the submerged archipelago,
Legislature pass the Marine Affairs land mass.
Coordinator Bill (HB 2263). This Bill creates
a fund for rapid response to unexpected The primary problem relates to
problems and opportunities in marine affairs, uncertainty of jurisdiction over the resources
administered by a manager of high technical of the deep ocean. States have jurisdiction
competence who is subject to close legislative over the inner continental shelf, i.e., that area
scrutiny on an annual basis. In practice, over between the shoreline and the three-mile
half of the fund has also been usable as a seaward limit of 'the territorial sea
critic .ally-needed State match for the Federal (Submerged Lands Act of 1953). Beyond the
Sea Grant program. three-mile limit, the Federal Government

3-2

exercises exclusive jurisdiction. This These laws are seriously deficient as
jurisdiction, however, is defined in a number they do not take into account Hawaii's island
of ambiguous ways. and archipelago character. Under terms of the
Admissions Act, Hawaii acknowledged the
� The fishery resource is controlled in a Outer Continental Shelf Lands Act as part of
C4contiguous" zone which extends 12 the Statehood Charter. Nevertheless, the
miles from the shoreline. Admissions Act is silent with respect to the
� Under the Outer Continental Shelf width of sea under Hawaiian jurisdiction.
Lands Act of 1953, the Federal Although silence might presume the standard
Government has exclusive leasing three-mile limit for territorial delineation, the
authority over the adjacent seabed. The actual breadth of State jurisdiction may find
Act, however, fails to define a seaward its roots in Hawaiian history.
limit for the "Continental Shelf".
As a signatory to the 1958 Geneva The Kingdom of Hawaii had in fact
Convention on the Continental Shelf, established its jurisdiction over the
the United States has sovereign rights Archipelago on the basis of a line connecting
for the purpose of exploitation of the high points of each island with a zone of
seafloor resources to a water depth of sovereignty on either side of such a line. Such
200 meters (656 feet) or, beyond that a claim of sovereignty over the Archipelago
limit, to "where the depth of the was not abrogated by either the Territorial or
superjacent waters admits the Statehood Acts.
exploitation of the resouree" The
meaning of the emphasized phrase is Early in 1973, the Governor requested
ambiguous and has been the subject of the State Attorney General to make a study
much controversy. Using only the of State rights to resources in Hawaii's
200-meter criterion, however, United Archipelago waters. This is an ongoing project
States sovereignty over its seabed which will consider Hawaii's historical rights
extends more than 100 miles offshore and jurisdictions and study possible positions
from the coast of the northeastern the State might take in establishing claims.
states. The State should also be prepared to take a

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The Hawaiian Archipelago extends from the Island of Hawaii to Kure Island, a distance of nearly 1,500 miles.

3-3

position which supports Federal control over transportation must be by sea or air; our
the waters and seafloor of the Archipelago as island climate is dominated by mountains, sea
an alternative which offers sufficient and trade winds; we are isolated from other
protection for these resources. states and 2,000 miles distant from the
nearest land mass; and almost the entire state
Recommendation is a coastal zone.

The Attorney General should, continue These peculiarities suggest either
to pursue all possible avenues which could blanket legislation permitting Hawaii to set its
lead to State or United States jurisdiction and own standards in lieu of Federal standards
control over the marine resources of the when conditions singular to Hawaii can be
Hawaiian Archipelago. The State should demonstrated or, in the alternative, individual
cooperate with the Federal Government to clauses in each new Federal enactment
ensure that Hawaii's position is strongly recognizing this environment. Examples of
stated in future International Law of the Sea uniqueness legislation include Hawaii's recent
Conferences. exemption from continental Daylight Saving
Time and the specific rider to the Highway Bill
which authorizes Trust Fund monies for
Alaska and Hawaii to be employed for ferry
HAWAII'S UNIQUENESS systems which extend beyond the three-mile
limit.

.There are serious deficiencies in certain Other states and territories of the
Federal-State relationships because Hawaii is United States which find themselves in a
unique and often has needs and problems similar position include Alaska, Guam, the
unshared by the other states. We note that Virgin Islands, Samoa, Puerto Rico and the
Federal standards for the environment, Florida Keys (if not the entire state of
transportation, agriculture, commerce and Florida). Hawaii and the Pacific Territories
industry, the atmosphere, the coastal zone, formed the Pacific Islands Development
and even the ocean, are based on the average Commission (PIDC) in February 1970 to
climate of the North Temperate Zone and on represent cornmon interests. The Commission
a continental configuration of contiguous consists of the Chief Executives of the
states. Such standards may not apply to governments of Hawaii, American Samoa,
Hawaii and may be inappropriate or Guam and the Trust Territory of the Pacific.
deleterious. For example, Federal standards PIDC's first priority has been to stimulate the
for,sewage treatment are contrary to the best development of the considerable latent
interests of our vast, nutrient-poor ocean; skipjack tuna fishery resource of the Central
they establish a mainland standard which and Western Pacific.
initally calls for secondary treatment of
discharges and, ultimately, fresh water We strongly endorse the Pacific Islands
discharge with land disposal of nutrients. Development Commission and its goals and
Such treatment may be appropriate for most encourage its continued support by the State
mainland communities, but local studies (see and Department of Planning and Economic
Chapter 4) indicate that for Hawaii the most Development, which currently is the
environmentally effective form of sewage secretariat for the Commission.
disposal consists of advanced primary
treatment with a deep ocean discharge. Recommendation

Other regulations and standards A noncontiguous United States
established for mainland conditions are not Commission should be created, composed of
suitable for Hawaii because of our unique representatives of the states and territories
characteristics:, all interstate and intercounty outside of the mainland forty eight. Such a

3-4

commission could review the impact of history, the sea in Hawaii's industry and
Federal legislation on the outer states and Commerce, the sea as an inspiration for art
territories and recommend changes to correct and esthetic experiences, and imaginative
any inequities created therein. projections of what the sea will mean in
Hawaii's future (i.e., minerals, energy
generation, new modes of travel, recreation,
OCEAN CENTER transport of goods, mariculture, etc.).
Plans for the 1976 United States
Bicentennial celebration and exhibition, as
Hawaii and the Sea-1969 and this well as those for Hawaii's own bicentennial
report bear witness to the overriding celebration and exhibition in 1978, have
importance of the ocean in the economic, sea-oriented components. These could well be
social and cultural life of Hawaii. Tourism, coordinated with plans for the Hawaii Ocean
trade, fishing, enjoyment of nature, as well as Center.
Hawaii's historic roots, and even the State's
weather, depend heavily on the sea. The Planning 'is needed to evaluate site
execution of many plans and projects selection, determine organization structure
recommended in this updated document on and propose a pattern of administration of a
Hawaii and the Sea will require public phased budget, to include ways to attract
understanding of the State's dependence on industry and other non-state funds into the
the sea. We strongly endorse a venture.
recommendation made in the 1969 report
concerning the establishment of an In this effort; the Department of
oceanographic research park. The earlier Planning and Economic Development should
concept should be expanded, however, to seek inputs from the Department of Land and
include cultural, historic and light industrial Natural Resources, the Department of
marine activities. On the basis of the 1969 Education, the University of Hawaii, the
recommendation, $100,000 was authorized counties of the State (Neighbor Island
for initial planning studies for such a marine subcenters are contemplated which may be
park, but the studies have not been done. more development than information
oriented), the Hawaii Bicentennial
As now envisioned, the oceanographic Commission, the Chamber of Commerce,
park will become the Hawaii Ocean Center, certain Federal agencies, Hawaiian industry,
with functions to include education, Hawaiian art circles and cultural and public'
information exchange, the housing of exhibit organizations such as the Bishop
permanent and temporary exhibits, and the Museum and Sea Life Park.
provision- -together with other State and
private entities--of planning facilities for
mission-oriented, sea-related research Recommendation
developments. Such a Center should be
planned so that it will eventually become The $100,000 appropriated in 1970 to
self-supporting. the Department of Planning and Economic
Development for planning an oceanographic
The Center's education and information research park on Oahu should be released and
exchange functions are to be discharged should include the additional activities
through exhibits which deal with Hawaii's envisioned for the Hawaii Ocean Center.
relation to the sea--past, present and future.
Thus, we envision Center components that Also, the Governor should appoint an
deal with life in the sea, the sea in Hawaii's interim advisory committee to assist the

3-5

Department of Planning and Economic Recommendation
Development in planning the Hawaii Ocean
Center and see the Center through to its Hawaii's Congressional Delegation is
establishment, at which time a more requested to seek the early return and
permanent administrative body would be stationing here of the CROMWELL or a
formed. similar vessel to carry out needed Federal and
State fisheries research and to support
University programs.

In the past the problem of ship support
has been met largely by the $500,000 per
annum legislative appropriation for the
FACILITIES AND SHIP SUPPORT University of Hawaii, as recommended by
Hawaii and the Sea-1969. Currently, the
appropriation has been reduced to S300,000.
Some of the existing private oceanic This amount is inadequate and vital research
institutions of the State have had difficult projects or procurement of vital equipment
times since Hawaii and the Sea-1969 was will have to be curtailed. We believe that the
written. The organizations that occupy the full $500,000 per annurn is essential.
Makapuu complex have all undergone
reorganizations; the most successful venture, Elsewhere, we have recommended a
Sea Life Park, has had a change in ownership number of resource surveys or ."discovery"
for the purpose of obtaining new capital. With expeditions within the Hawaiian Archipelago,
the dissolution of the Makai Range, a central for example, a survey of fishery stocks among
problem has been the maintenance and the Northwestern Hawaiian Islands (Chapter
utilization of the extensive marine facilities 6), a search for additional precious coral beds
associated'with the complex which are, in a throughout the Archipelago (Chapter 7) and a
real sense, State assets. These include the detailed survey of known offshore sand
Makapuu pier, the underwater diving habitat reserves (Chapter 7). Completion of these
AEGIR, the STAR 11 submersible, a surveys will require first that State ship
decompression chamber and numerous support be raised at least to the levels of
ancillary, equipment. previous years, and second that a higher
priority be given to assigning University ships
A similar problem of support has been to operations within local waters.
shared'by the University, with precarious or
inadequate support being available for the In the past, another appropriation of
Aquarium; elements of Look Laboratory, the $200,000 for statewide facilities support was
oceanographic ship KANA KEOKI, a marine made through the Marine Affairs Coordinator.
laboratory support ship and support vessels The appropriation was not made for 1973 and
for research and undergraduate oceanographic no support was given to a number of
demonstrations. important marine projects. We believe that
the facilities support program under the
Acquisition of the new research vessel, Marine Affairs Coordinator should receive a
MOANA WAVE, is a big step forward, but yearly appropriation of $200,000 from the
will not meet all of the University's needs for Legislature.
classroom and research support. The
withdrawal from Hawaiian waters of the Recommendation
National Marine Fisheries Service vessels,
GILBERT and CROMWELL, further depleted The University of Hawaii should
the vessel support available for University request, and the Legislature should fund,
projects. The ship support these vessels research vessel support at the level of
provided is urgently needed. $500,000 per annum. With increased ship

3-6

support, the University should assign a high Recommendation
priority to resource surveys within the
Hawaiian Archipelago. The facilities support The University of Hawaii, through the
program under the Marine Affairs Dean of Marine Programs, should develop a
Coordinator should also be funded at long-range CIP facilities program, including
$200,000 per annum. support ships, for a total integrated marine
system. The Marine Affairs Coordinator
Coordination of the support facilities should provide support as required.
requirements of the various University marine
institutes and agencies (i.e. HIG, HIMB, A Senate resolution, S.R. 15 1, was
PBRC, Look Lab, MEC, etc.) is also needed. passed in the 1973 legislative session dealing
Each agency is presently developing and with the conversion of the Waikiki Aquarium
submitting its proposals for CIP projects into a marine education center. We endorse
separately. Combining these proposals would the resolution and urge that the Aquarium
provide an integrated package for CIIP receive the support necessary to meet the
funding. needs of tourists and residents, as well as the
research and education needs of the
A long-range overall facilities support University scientists and students.
program, encompassing the needs of all the
agencies, should be developed by the Dean of
Marine Programs, with the advice of the Recommendation
University's Marine Council and Legislative
coordination provided by the Marine Affairs The Legislature should respond quickly
Coordinator. The needs of each agency would to the recommendations of the Legislative
be coordinated into one proposal with Reference Bureau concerning the Waikiki
established priorities. Aquarium.

-ALL)

_77
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........ ....

3-7

CHAPTER 4: HAWAII'S MARINE ENVIRONMENT

"A man and what he loves and builds legislation which tends to treat the nation as a
have but a day and then disappear; nature homogeneous ecosystem, we must
cares not--and renews the annual round convincingly make the point that Hawaii's
untired. mid-oceanic environment is unique. It has few
"It is the old law, sad but not bitter. points of comparison to areas on the
Only when man destroys the life and beauty continental margin or deep within the
of nature, there is the outrage. continental interior. In certain cases,
identified within this chapter, this may mean
George Trevelyan, Grey of Fallodon an appeal for exemption from Federal
standards in such areas as effluent discharge.

Third, we make a case for environment
standards which are based on humanistic
(people-oriented) criteria, rather than on the
We believe that the actions taken on the naturalistic (pristine) philosophy of many
environmental recommendations made in State and Federal laws.
Hawaii and the Sea-1969 have been, for the
most part, encouraging. This has been Finally, to the extent that existing
particularly true in the establishment of environmental regulations are not obviously
coastal monitoring stations, the cooperation inappropriate, we believe these regulations
of government and industry in the partial should be rigorously enforced. We know of no
control of runoff and effluent from the sugar better way to test the true value of a law (or
industry and the passage of legislation to to effect the amendment or abolition of
regulate construction in a setback zone 40 improper law) than through enforcement.
feet from the mean high water mark.
In writing the final drafts of this
Concurrently, we believe that new chapter, we have had the benefit of the report
guidelines are needed--to point out areas in by the Governor's Temporary Commission on
which we are perhaps moving, but not Environmental Planning, published in
necessarily in the right direction, to November 1973, and discussions with
emphasize areas of concern which were not members of that Commission regarding their
apparent in 1969, and to reemphasize the concern about population pressures in Hawaii.
need for environmental programs which are We share many of their concerns, perhaps
goal-oriented rather than procedure-oriented. with aheightened awareness, since many of us
are trained in life sciences and know the
First, in the area of population, we are terrible consequences that result when the
much more aware today that Hawaii's population of a biological ecosystem exceeds
carrying capacity is finite; in fact, it is the resources available to it.
disproportionately small in terms of our
attractiveness as a place to visit or live. This We believe the problem is twofold. In
problem has long-term implications in the the long run, there is a clear danger that
need to set a target for Hawaii's ultimate Hawaii's population may exceed the
population limit. It has immediate optimum--not necessarily that it will exceed
implications in the need to more uniformly the carrying capacity of such vital resources as
distribute our population, our commerce and food, employment and housing, but certainly
our industry among all the islands of Hawaii. that it may exceed the capacity of those
6inonvital" resources (open space, clean water,
Second, in the face of Federal clean air, beaches, surfing sites, reefs and

4-1

forests) that contribute substantially to our 3. Where such resources are likely to
enjoyment of life and characterize the Hawaii attract new industry to Hawaii, we
we love. emphasize the opportunity for the State
to divert such industry to carefully
In the near term, we have a dichotomy. selected sites on the Neighbor Islands.
Oahu is approaching, and already may have We also warn of potential
exceeded, the population density that would environmental impacts by such
industry.
4. We recommend a modern marine
transportation system; one with
elements to more effectively tie our
islands together in a symbiotic network,
with other elements to serve as an
alternative to a new fixed-roadbed rapid

4,_
transit system through urban
Honolulu.
,30

@N_ _/&
U

THE STATUS OF HAWAII'S MARINE
ENVIRONMENT

How much growth is enough? In 30 years a sleepy resort
village became the Waikiki we see here. Although coastal water quality
Problems were recognized in Hawaii and the
be optimum in terms of those qualities we Sea-1969, awareness was not keyed to the
associate with life in Hawaii. Meanwhile, most magnitude and variety of the problems that
of the Neighbor Islands, long quiescent in then existed. The discussion and
relation to Oahu's boom, are entering a period recommendations centered on health hazards,
of gradual population growth. However, the detrimental biological effects and esthetic
opportunities they offer for youth are not impacts resulting from discharges from
clear. municipal sewage plants, agriculture and
industry. The problems of oil spills, ship
We have tried, within the context and wastes and sedimentation were also
charter of Hawaii and the Sea-1974, to be considered.
responsive to the near term environmental
problems noted above. This response has Progress in Coastal Water Quality
several dimensions.
Not only have the magnitude and
I .In this chapter, we discuss current variety of these problems been recognized
environmental problems and since 1969, but certain of the hazards have
recommend approaches by which been greatly abated through the water quality
further deterioration of Hawaii's control program of the State Department of
oceanic environment. can be stopped, Health. The substantial abatement of other
avoided or reversed. recognized hazards is now scheduled.
2. In other chapters, we point out marine
resources that can be tapped to relieve Agricultural Wastes
or eliminate certain environmental
stresses on our finite land mass. The most dramatic improvement has

4-2

been in the quality of the water around the From an environmental standpoint, however,
island of Kauai, as judged by esthetic and the most serious problems are those
biological effects. Over many decades the associated with the effects of other sewage
coastal waters had become increasingly components (especially the nutrients) on the
muddied and burdened with trash from the biota in confined waters and estuaries. These
discharges of cane-cleaning plants at the sugar effects have been most pronounced
mills of the island. Regulations for control of (Reference 1) in Kaneohe Bay, into which
this type of pollution had been adopted in both a military system and a municipal
1969. Although enforcement was initially system discharge second ary-tre ated sewage. In
lethargic, the rate of improvement was the southeast portion of the bay, where both
astonishing when effective enforcement was
begun in 1969. Means were provided to store
the cane-cleaner wash water and reuse it in
irrigation systems. Even the tailwater
discharges of the irrigation systems were
brought under control. Water clarity was
restored to a degree beyond our expectations,
and the accumulations of trash on the beaches Percent Cover of
are rapidly disappearing. Before-and-after 6 Dictyosphoeri on
studies have indicated effective reversals of Lagoon Reef Slopes
the marine biological effects of this d I@J
long-continued coastal pollution. a

Less dramatic, but nonetheless
substantial, improvements have been made in
the quality of those coastal waters around the -'M 4
islands of Maui and Oahu which had been @75
affected by sugar mill wastewaters. '0
Substantial problems remain only in the i0o
waters along the Hilo-Hamakua coast of
Hawaii, where the mills are located on the
C,
shore and there are no irrigation systems in
which to reuse the wastewaters. Means for
eliminating the discharge of trash and
b aggasse from these mills are now being
provided. Agreement has been reached on
techniques for the substantial reduction of
sediment discharge, if changes in harvesting Chart shows geographic abundance of algae in Kaneohe Bay.
practices do not essentially eliminate the
problem. outfalls discharge, the corals have been killed,
the algae have been severely depressed, and
Sewage Treatment and Disposal only biological species resistant to the effects
of the sewage, such as certain sea cucumbers
Abatement of problems associated with and sponges, persist. Beyond the area of most
-the discharge of municipal sewage has been intense impact, an encrusting algae has
slower, but some improvements have been smothered and killed the coral. These algae
made and more substantial improvements are are spreading progressively northwestward.
scheduled. Although there are minimal health Similar though less extensive problems exist
hazards associated with the floatables in in Pearl Harbor. Algal growth seems to have
sewage discharged without treatment, been stimulated along a number of Hawaii's
Honolulu's raw sewage discharge at Sand coastlines, in areas where effluent from
Island creates a definite esthetic detriment. sewage treatment plants is discharged in

4-3

shallow water close to shore. occurred in 1972, represents a form of harbor
water pollution not foreseen in 1969. The
The water quality of several natural ecological consequences of the spill appear to
estuaries and estuarine drainage canals is poor have been slight.
from both sanitary and esthetic viewpoints,
but pollution here appears to be derived from Sedimentation
nonpoint sources. Cesspool seepage is' the
most significant source of pollution in some The water pollution problem that may
urban areas, while drainage from intensive be 'most difficult to correct is that of
animal husbandry operations is blamed in turbidity and sedimentation associated with
many agricultural areas. Because they such nonpoint sources as subdivision
exceeded bacteriological standards, the waters development and highway construction. The
of Keehi Lagoon in Honolulu and Kahului magnitude of this problem is illustrated most
Harbor in Maui were closed to contact water dramatically by the finding at Kaneohe Bay
sports in 1971, and the waters of Hanamaulu that, between 1927 and 1969, the deepwater
Bay were closed in 1972. All remain closed. portions of the lagoon had shoaled by an
average of 5.4 feet through the deposition of
Coolant Water Discharges sediments (Reference 1). In contrast,. no
significant shoaling occurred between 1882
Although offshore discharges of cooling and 1927.
water from power plants result in local
exceedences of water temperature standards Overgrazing may also be a major
at a number of coastal points, identifiable contributor to accelerated erosion and
biological impacts by these discharges are sedimentation in areas such as the south coast
rare. The most significant effect has been the of Molokai where fishponds have become
killing of coral over an area of about 8 acres progressively silted over during the past half
by the thermal discharge from the Kahe century.
power plant on Oahu.
Coastal Water Monitoring
Pesticides and Industrial Chemicals
To provide a basis for carrying out its
Pesticide pollution of Hawaii's waters responsibilities for the quality of Hawaii's
appears to be a relatively insignificant coastal waters, the State Department of
problem. In the studies that have been made, Health operates an intensive monitoring
herbicides have been detected, but only in program. The major elements of this program
small amounts and for short time periods. The include: (1) monitoring the quality of
only insecticide widely detected is the ambient waters, (2) monitoring discharges,
ubiquitous DDT--no longer used in Hawaii. and (3) intensive surveys of water quality at
Heavy metal concentrations appear to be selected sites. This statewide program involves
essentially at background levels in the coastal periodic sampling at 148 stations, together
waters off agricultural lands, but high with analyses of physical, chemical and
concentrations of heavy metals have been microbiological characteristics of the samples.
found in the sediments of harbors. Distribution of the stations among the major
islands is shown below.
Oil Spills
Kauai . . . . . . . . . . . 25
No major oil spills have yet occurred in Oahu . . . . . . . . . . . 58
Hawaiian waters, but shore waters and Molokai . . . . . . . . . . 5
beaches are occasionally polluted by clots of Maui . . . . . . . . . . . 20
oil and tar resulting presumably from the Hawaii . . . . . . ... . . 40
offshore pumping of ship bilges. A large spill
of molasses in Nawiliwili Harbor, which Specific parameters monitored include total

4-4

coliforms, fecal coliforms, dissolved solids, extend over a two week period. Effluent as
nutrients, dissolved oxygen and turbidity. well as ambient waters will be sampled, and
the surveys will include reviews of all
In compliance with the Federal Water pertinent historical data.
Pollution Control Act, as amended in 1972,
the Department of Health is installing a A computerized system for the storage,
primary monitoring network to establish retrieval and statistical analysis of all water
baselines and water quality norms for a quality data is being developed for the
broader array of water quality parameters. Department of Health by the University of
This network will include twenty or thirty Hawaii. This system will be compatible with
stations, selected on the basis of intensive requirements of the Environmental Protection
surveys, at, which the sampling and analysis Agency's water quality information system.
will be extended to sediments and biological Finally, to assure quality and consistency of
responses. Thirty percent of this primary the data produced by the total monitoring
network should be operational by mid-1974; system, a quality control program based on
the entire network, by the end of 1975. At Environmental Protection Agency guidelines
that time, most of the present network will be is being instituted.
discontinued. Selected sampling, however,
will continue to be carried out at beaches that Recommendation
are exposed to heavy recreational use and in
other areas which may become critical. The Department of Health's water
quality monitoring program should be
Under provisions of the State permit supplemented with a concurrent study of the
system, those who discharge waste material biological communities which are present at
into coastal and inland waters are responsible each station.
for monitoring their own effluent. The
frequency of sampling and parameters to be This additional investigation is needed
analyzed are prescribed by the Department of so that water quality parameters can be
Health, to which the results must be reported. evaluated in terms of their impact on marine
The Department conducts its own check ecosystems. Only then can standards be set
sampling and analyses at least once each year. which have true relevance to the environment.
This system, modified as necessary to comply The Department of Health should apply to
with requirements of the National Pollutant the Environmental Protection Agency for
Discharge Elimination System, will be Federal support of these additional
continued by the Department of Health. investigations.

Detailed surveys of water quality have
been conducted in a number of offshore and
estuarine areas to establish baseline OBJECTIVES OF ENVIRONMENTAL
conditions. Past surveys have consisted of MANAGEMENT
intensive sampling and analyses for periods of
one to two weeks. In accordance with
requirements of the Federal Water Quality In assessing the adequacy of any
Act (1972 amendments), the Department of program for management of environmental
Health has identified ten coastal segments in quality, it is critical that we determine the
which intensive surveys will be completed by objectives against which the accomplishments
mid-1975. Those scheduled for the current of the program are to be measured. The
fiscal year include Kaneohe Bay, Mamala Bay objectives of water quality management are
and Pearl Harbor on Oahu, and Kahului Bay often expressed in numerical terms, such as
on Maui. Samples will normally be taken maximum coliform count per unit volume.
twice a day, to reflect tidal changes and These have the advantage of being definite
variations in discharge flow rates, and will goals toward which progress may be

4-5

measured; however, the criteria used in setting matter of great concern, even with this
such standards are often suspect and the objective, not only because humans, as
standards poorly represent more fundamental biological beings, are dependent upon a
objectives. considerable degree of environmental
naturalism, but also because humans generally
This is well illustrated by the case of the have innate esthetic and ethical concerns for
standards for nutrients, phosphorus and environmental naturalism. With the
nitrogen in various forms or chemical "humanistic" objective, however, genuine
combinations. At the limiting concentrations requirements for human welfare take priority
prescribed in current water quality standards, over environmental naturalism for its own
these nutrients are not detectable by any of sake when tradeoffs must be made.
the five human senses. The rationale for the
standards, therefore, must lie in their effects
and, in the case of the nutrients, in their
biological effects. The establishment of WATER QUALITY
nutrient standards in the form of maximum
concentrations indicates the intent to avoid
undesirable effec 'ts associated with nutrient For an island state such as Hawaii, both
concentrations. Nutrients are essential to fresh and salt water supplies are of paramount
marine life. Hence-, there are desirable effects importance. Hence, a major portion of this
associated with nutrient concentrations.. The chapter is devoted to water quality and
standards should represent an optimum associated problems.
balance, one for which the effective net
benef its- -represented by the difference History and Statutory Basis
between the desirable and undesirable
effects--are maximized. The determination 'Prompted by Federal water quality
of this optimum requires the assignment of legislation, the Hawaii Legislature in 1965
values to all the effects. broadened the jurisdiction of the State
Department of Health over water quality
The two fundamental objectives implied from a narrow aspect of public health to a
in current environmental quality standards are more general concern for public welfare.
most simply distinguished by the terms Standards applicable to coastal waters and a
"naturalistic" and "humanistic". The permit system applicable to wastewater
"naturalistic" objective can be defined as the discharges to coastal waters were established
greatest possible retention of (or return to) early in 1968 after a lengthy series of public
natural environmental conditions, or as the hearings in 1966 and 1967. Established at the
greatest possible reduction or elimination of same time was a State permit system under
human influences on the environment. There which wastewater discharges that violated the
is no way by which the effects of millenia of standards would be abated over a period of 5
human existence may be eliminated from the years.
environment. The minimization of human
environmental effects would require The implementation of the water
minimization of the human race. Since this is quality control program based on these
obviously unacceptable to the public, the standards and permits was just beginning in
"naturalistic" objective appears inescapably as 1969 when the original Hawaii and the Sea
an improper one on which to establish public was issued. The authority of the Department
policy. of Health was broadened somewhat by the
omnibus Environmental Quality Act of 1972,
The "humanistic" objective is which replaced earlier legislation on air,
considered as assuring the greatest overall, water, noise pollution and solid waste
long-term welfare of the human race. disposal. Under this Act, the authority to set
Naturalism of the environment remains a quality standards was extended to effluents as

4-6

well as receiving waters. Aside from its vagueness, the interim
goal expressed in the Federal Water Quality
The 1968 State water quality standards, Act Amendments should cause little difficulty
and their amendments adopted in 1969 and in the program for quality control in Hawaii's
1971, were subject to the approval of the coastal waters. However, its ultimate goal of
Federal Water Pollution Control eliminating all polluting discharges to the
Administration. However, enforcement navigable waters would have social, economic
authority remained with the Department of and environmental detriments. This goal,
Health until 1971 when the Federal Refuse which is consistent with the purely
Act of 1899 was interpreted as applying to all 44 naturalistic" objective of environmental
discharges Ao navigable waters. Under the quality management as discussed earlier,
authority of that Act, the Army Corps of should be replaced by more "humanistic"
Engineers initiated a permit system for all objectives.
such discharges, including those already
subject to the State permit system. Best Practicable Treatment

In 1972 the Federal Water Quality Act The State water quality standards make
was completely revised. In the revised Act, reference to the "best practicable treatment
the elimination of the discharge of pollutants or control" for various discharges, including
to navigable waters was identified as a goal to those which require the establishment of
be achieved by 1985. In the interim, water zones of mixing. Similar phrases are used in
quality goals were to provide for recreation as various contexts in the Federal Water Quality
well as for the protection and propagation of Act Amendments of 1972. Interpretation of
fish, shellfish and wildlife. The Act: these phrases as meaning the most intensive
treatment practicable is, in some
1. Transferred to the Environmental environments, completely inappropriate. Such
Protection Agency authority over the interpretation fails to recognize that
Refuse Act permits, which were now treatment requires commitments of natural
termed the National Pollution Discharge materials, energy and human effort, and
Elimination System permits. increasing intensity of treatment may actually
2. Prescribed effluent standards for harm the environment. With very intensive
municipal sewage discharges. treatment, these detriments may be greater
3. Required the Environmental Protection than those associated with the untreated
Agency to set effluent standards for discharges. For example, where
other point sources and "standards of partially-treated sewage can be discharged in
performance" for the discharges of deep water off a Hawaiian coastline, there can
certain industries. be local environmental benefits rather than
detriments.
This Act expressed a 'policy which
leaves the primary responsibilities to control Recommendation
pollution in. the hands of the states. Under the
Act,-the states are permitted to establish or In accordance with the "humanistic"
continue water quality standards, so long as objective asked for environmental quality
they do not violate the Act or Federal management, the phrase "equivalent to best
regulations developed pursuant to it, and practicable treatment" should be interpreted
adminis 'ter a discharge permit program to mean treatment that is both
consonant with the National Pollution technologically practicable and best in terms
Discharge Elimination System. Nevertheless, of overall, long-term, human welfare.
the effect of the 'Act has clearly been to
transfer power for the control. of coastal ADEQUACY OF WATER QUAUTY STANDARDS
water quality from the states to the Federal
government. As indicated in the historical discussion,

4-7

the water quality standards have been in rapid enforce Federal standards. It also enables the
flux. This was to be expected considering the State to obtain program grant and
lack of information at the time of their construction grant funds from the
Environmental Protection Agency. Even after
this revision is completed, there will be a
continuing need to update standards to reflect
_7
advances in our understanding of ecosystems
in stress.

Some particular problems with the
standards and their interpretations are
discussed in the following subsections.

Recommendation

The Department of Health, working
with the Environmental Protection Agency,
should reexamine and revise the water quality
Np
standards in the light of the "humanistic"
'W 11
,@A objective of water quality management.

Biological Indicators
8D
U, N N@
In the "humanistic" philosophy of
X,@
environmental management, the purpose of
the control of water pollution is not to make
10
Hg"
the waters "pure", and hence, sterile, nor
arily restore and maintain them in their
MR necess
7@
natural state, but to control their quality with
respect to human needs. In this philosophy,
HIMB scientists continually assess the nutrient requirements the physical and chemical aspects of quality
of algae under controlled conditions to serve as a baseline to are important primarily in relation to their
compare with field conditions. biological influences--their influences on
human health and on the biota of concern to
adoption. Further changes are still due in human welfare in relation to health, the
many respects. For example, the Oahu Water production of food and other material
Quality Study and studies conducted by the resources and esthetic and recreational needs.
University under the Sea Grant Program have
indicated that phosphorus and nitrogen The water quality standards are only
concentrations in the nutrient standards are indirect indicators of the qualities that are of
often exceeded in, nature. The standards fundamental concern, most of which are
should be revised toward more realistic values. biological in nature. The only biological
Plans have been made by the Department of standards now in force are microbiological
Health to reexamine the validity of these and standards, which are merely indicators of
other standards in the light of these findings. human health hazard. The inadequacy of
these standards is wel 'I known, particularly as
At present, State environmental they apply to marine waters, but this problem
standards are being amended to comply with is not peculiar to Hawaii. More deserving of
the Federal water pollution control discussion here are stresses that pollutants
requirements of Public Law 92-500. The might impose on marine ecosystems. Unfortu-
Department of Health will issue permits for nately, relatively few studies have produced
municipal and industrial discharges and results that can be used directly in the

4-8

identification of such biological indicators of 30 and 4' C; and the mortality is complete
stress. One such study, recently completed at with increases in excess of 5' C. A more
the Hawaii Institute of Marine Biology appropriate standard would allow greater
(Reference 3), has shown that larval fishes departures from the natural ambient
may serve as excellent indicators. of stress. temperature, possibly 2' C or even 3' C, as
Similar conclusions have been reached by the long as the temperature did not exceed some
Naval Undersea Center (References 4-7) in stated maximum; e.g., 300 C.
evaluation of response to environmental
stresses by benthic, pile and volume Biological indicators other than coral
biocommunities in Pearl Harbor. could be used to determine ecological impact
of temperature change; for example, greater
Corals are' also known to be excellent than natural abundance of blue green algae
indicators of stress due to sedimentation. and changes in the distribution of algae and
Some biological indicators of thermal stress herbivorous fish.
are discussed in the next subsection.
Increases of temperature beyond the
Recommendation limits of the present standard occur at a
number of coastal sites due to discharges of
The University should give priority to cooling w@ter from steam power plants.
research programs which are concerned with Because the economic and environmental
identification of the impact of water quality costs of alternative means of waste heat
on marine ecosystems. disposal are very great, close adherence to the
present standard is quite unwise at most of
Temperature Standard these sites.

A good @example of an inappropriate Recommendation
water quality standard is the State
temperature standard, which limits The Department of Health should revise
temperature departures to a maximum of 1.50 current temperature standards for waste heat
F (0.83'C) from "natural conditions". The discharge to incorporate upper and lower
regulation is not clear whether "natural limits, as well as maximum allowable changes
conditions" refer to average conditions or to from ambient temperatures.
the natural ranges resulting from annual and
diurnal cycles. Exceedence of the standard is The Department should modify the
probably of greater consequence when the temperature standard in the light of current
departure occurs above the annual and diurnal knowledge of the effects of thermal stresses
maximum than when it occurs below the on marine biota. In the interim, the
minimum. Further, the stringency of the zone-of-mixing provision should be used
standard is unreasonable. Technically, the wherever local conditions warrant.
heated water exhausting from a small
outboard motor violates the present State Sewage Treatment
standards.
The Department of Health regulations
A study of the effects of heated on sewage treatment, revised in 1973, appear
effluents on coral (Reference 2) has indicated to provide an appropriate basis for the control
that no measurable effects result from of sewage discharges into coastal waters.
temperature increases as much as 2' C above However, the requirement for secondary
the maximum natural ambient temperature. treatment of municipal sewage, incorporated
Paling and bleaching (due to loss of in the Federal Water Quality Act
zooxanthellae) are noted when increases are Amendments of 1972, may not be
between .2' and 3' C; heavy bleaching and appropriate when applied to deep-water
some mortality occurs with increases between discharges in the open ocean off Hawaii's

4-9

islands. The rationale for this conclusion is such as the "blooming" of phytoplankton.
given below with special reference to the The surface waters of the open ocean,
appropriate treatment of the discharge of however, are deficient in nutrients and
Honolulu sewage at Sand Island. additional nutrients could result in beneficial
stimulation of the biota in the food chain
Levels of Treatment and Their Effects which provide the sustenance for fish. Good
mixing conditions exist in these surface
Raw sewage, now discharged at Sand waters so that excessive local nutrient
Island, contains many ingredients of concentrations from sewage disposal are quite
ecological significance including floating unlikely in the open ocean.
materials, settleable solids, organic
compounds contributing to biochemical
oxygen demand, nutrients, bacteria, viruses
and heavy metals. Primary treatment,
especially the advanced primary treatment Impact of Organics
now planned for the Sand Island discharge,
effectively removes the settleable solids and Organics are of importance in effluents
floatables. The major effect of secondary primarily because they represent a biochemi-
treatment. i$ the effective reduction of cal demand for oxygen; i.e., the capacity to
biochemical oxygen demand (85 percent exhaust the oxygen supplies in the waters to
reduction is commonly specified). S@condary which they are discharged. The resulting
treatment is ineffective in removing reductions of oxygen may be of serious
phosphorus and only partially reduces consequence in lakes, rivers and estuaries. In
nitrogen. The effective removal of nutrients the open ocean the mixing conditions, the
and heavy metals requires additional oxygen exchange with the atmosphere and
treatment means which are considered the effects of photosynthesis are such that
tertiary. Bacteria and viruses are reduced by only slight reductions of oxygen result even
both primary and secondary treatment, but from very large biochemical demand
chlorination of the effluents is necessary to discharges. Off Sand Island, for example,
eliminate them effectively. approximately 60 million gallons of raw
sewage are now discharged every day at a
Impact of Settleable Solids depth of 40 feet; over an area about 600 feet
in diameter, the dissolved oxygen has been
Settleable solids are known to be reduced only 40 percent from the saturation
e,cologically harmful to the sea bottom level (Reference 9). This area of low impact
(benthic) organisms. Off the Sand Island would be even smaller if the sewage were
outfall, sedimentation from untreated sewage treated by the planned advanced primary
has measurably affected about 300 acres of process.
bottom, although environmental degradation
is significant only in an area of about 10 acres Secondary treatment would effectively
(Reference 9). This situation will be greatly reduce the organic content, and hence,
improved by the advanced primary treatment, biochemical demand of the sewage effluent,
which will remove about 95 percent of the but because the effects -of the already small
settleable solids. biochemical demand will be reduced with the
deeper outfall, no significant environmental
Impact of Nutrients benefit would accrue from the imposition of
secondary treatment. In fact, there may be
Nutrients are essential to life. Their some slight, though probably immeasurable,
classification as pollutants results from the detriment. The nutrients in organic particles
effects of increased nutrien! concentrations in may be assimilated more rapidly into the
the confined waters of lakes and estuaries marine food web, in most cases at least one
where they may stimulate overproductivity full nutritional (trophic) level higher.

4-10

Bacteria, Viruses and Heavy Metals Economic Costs

Pathogenic bacteria and viruses are of A secondary sewage treatment plant on
concern primarily in relation to human health Sand Island would cost about $20,000,000
hazard, although no epidemiological evidences more, in land and facilities, than a modified
of such a hazard have been reported from the primary treatment plant. The additional cost,
discharge of sewage in the open ocean at any if the State is forced to construct secondary
Pacific Island. treatment plants at all sites where modified
primary treatment is environmentally
Measurements made with indicator preferable, could easily approach
bacteria show a die-off rate in ocean water on $100,000,000.
the order of 90 percent fatalities each 30
minutes (Reference 9). The greatest potential
hazard is associated with shellfish, since they Higher and Better Uses?
are capable of concentrating the pathogens.
Sewage outfalls, therefore, should discharge at In reply to the rationale we have stated
depths and distances well removed from above, the argument can be made that the day
shellfish concentrations. It should be pointed will come when we must regard the nutrient
out that secondary treatment without content in our sewage--and the water
chlorination will not eliminate bacteria and itself--as resources too valuable to be
viruses. Chlorination will destroy these, but dumped into the sea. We agree, but we believe
not without imposing its own environmental that the time is not yet here.
detriment.
Hawaii has no present need for the
Heavy metals are a negligible problem in water that could be reclaimed from a tertiary
the municipal sewage of Hawaii, which has a treatment plant and no effective way to store
low level of industrialization. In any case, it. If we injected these waters back into our
heavy metal concentrations would not mountains, or under our coastal plains, they
effectively be reduced by secondary would leak rapidly back into the sea; the
treatment. geological structure of the islands simply does
not permit water storage over times as long as
the period of probable adequacy of present
basal water supplies. The effluent from a
secondary treatment plant could be used in
Land and Energy Costs agriculture, but transmission costs would be
high. If these waters were used to irrigate
Secondary treatment requires allocation sugar cane (our primary agricultural consumer
of additional land for the treatment plant and of water), they could not be applied during
energy for the treatment process. Land is the latter stage of growth because their
scarce in Hawaii, and the worldwide crisis in inherent nutrient content would retard the
energy is well known. Allocation of these buildup of sucrose in the cane. Therefore,
scarce resources to a treatment process which such use would require that two sources of
,has questionable benefit does not, we believe, water be developed for irrigation.
represent wise management. At Sand Island,
where, the planned advanced primary The day may come when Hawaii will
treatment plant (operating at maximum need both the remaining nutrients and the
capacity of 82 million gallons per day) will water from its sewage. When and if that day
require 15 million kilowatt hours of electrical arrives, we believe that our major sewage
energy per year, secondary treatment would plants should be converted to tertiary
require an additional energy consumption of treatment. But let the conversion be based on
almost I I million kilowatt hours 'per year the additional knowledge and the advanced
(Reference 8). technology that will also exist at that time.

4-11

Recommendation development and highway construction and,
on Molokai, overgrazing.
The Department of Health should
press and publicize its continuing appeal Hawaii's most serious example of the
for exemption from those sections of Public impact of runoff and sedimentation is
Law 92-500 which require secondary Kaneohe Bay, where shoaling of as much as
treatment of all sewage before discharge into 5.5 feet has occurred in the last 45 years
an open ocean environment at depth. Such
exemption should be determined on a
case-by-case basis through State application to
the Environmental Protection Agency. When
allowed, it should be without loss of any
State rights to Federal sponsorship.
Since such exemption will require
modification of Federal law, Hawaii's
Congressional Delegation must play a major
rolein presenting our case to Congress. INe

Kaneohe Bay

The case presented above for open
ocean discharge does not apply to coastal P11
waters such as Kaneohe Bay, an estuarine
system with limited circulation. Most of that
Bay's waters already are overfertilized; in fact, Erosion of unplanted highway and construction terraces adds
to the sedimentation blanket that is choking marine life in
much of the marine community there is dead, Kaneohe and Kailua Bays.
dying, or has been severely stressed by the
nutrients and sediments discharged into the
bay by inflows from sewage treatment plants (Reference 1). The combination of nutrient
(Reference 1). The salvation and reclamation and sediment inflows has killed much of the
of Kaneohe Bay requires immediate cessation interior coral in the southern half of the bay.
of dumping sewage into its waters. Erosion of these coral structures has added to
the sedimentation load on the bay. Unless
Recommendation strict controls are effected, the only logical
conclusion we can see to this process is the
The Department of Health should seek the complete, or near-complete, destruction of
earliest possible funding of plans to divert Kaneohe Bay.
sewage effluents out of Kaneohe Bay and into
the open ocean, and the City and County of Sedimentation may be controlled either
Honolulu should give highest priority to their by soil conservation at the source or by
implementation. artificial sedimentation in settling basins prior
to discharge. In Hawaii, conservation of the
Control -of Sedimentation soil to minimize erosion is the most effective
means of control because it retains the soil at
Sedimentation of coastal waters, caused the source. Artificial settling of sediment is of
by natural erosion and activities of man, limited effectiveness because of the
presents a potential threat to our marine life, characteristically small size of the soil
especially to the benthos. Although it is a particles and their consequent low rate of
natural process, sedimentation is considerably settling.
augmented by cane-cleaner discharges at sugar
mills on the Hilo-Hamakua coast, accelerated Effective controls of soil erosion in
erosion associated with subdivision intensive agriculture have been available for

4-12

several decades. Today, even irrigation standard. As with the standard for
tailwaters- have been substantially brought temperature, however, it is ambiguous and
under control in response to Department of perhaps irrational in its incorporation of a
Health requirements. The major problems range centered on the natural level. A
related to intensive agriculture have been potentially more effective basis for control is
those associated with wastewater discharges the prohibition of discharges of soil particles
from the cane cleaners at sugar mills. These from land operations unless these operations
problems either have been, or are being incorporate acceptable soil conservation
brought under control, except on the practices.
Hilo-Hamakua coast of Hawaii. Problems
there are more difficult to solve because there Recommendation
is no potential for reuse of the wastewater in
irrigation systems and the mills are located The Department of Health, in
directly on the coast. coordination with the Department of Land
and Natural Resources, should set a minimum
Schedules have been set for the control performance standard for the prevention and
of sediment discharge from the Hilo-Hamakua control of sedimentation due to runoff. This
sugar mills. The main goal is to effect controls standard should contain enabling clauses to
through changes in harvesting techniques to allow effective monitoring.and enforcement
retain the soil in the fields rather than by of grading and agricultural practices.
treatment of the discharges.
The Department of Land and.Natural
For more than half a century, coastal Resources should prepare and publish a
fishponds on Molokai have been seriously guidebook to educate Hawaii's, public in
affected by sediments derived from erosion of effective techniques to control and prevent
grazing lands. Overgrazing is the most obvious erosional runoff.
cause of the problem, but decreased fishpond
maintenance and climatic changes also are
contributors. Effective controls have not been Groundwater: Underground Injection
publicly proposed.
At present there are no known
The State Division of Highways has problems of coastal water quality related to
recently introduced practices for the control groundwater discharges. For several decades,
of soil erosion associated with highway low-quality surface water has been 'used to
construction that should materially reduce artificially recharge basal groundwater at
the yield of sediments from that source; several sugar plantations and storm water has
however, any quantitative benefits resulting been discharged underground on Maui for
from these practices will be difficult to several years. The marine effects of these
measure. practices are probably inconsequential.
Underground discharge of sewage from
Probably the most difficult part of the cesspools has been practiced on all islands for
control of sedimentation relates to erosion more than a century with little effect on
control in subdivision development. The City coastal water quality. However, underground
and County of Honolulu, in 1972, revised its injection of sewage effluents of considerably
grading ordinance with the aim of reducing greater and more conce'ritrated loads has
erosion as well as providing protection against started at Waimanalo, - Mokuleia and Ewa.
slides and foundation failures. Guidelines for Beach, all of these sites on Oahu. Although
the effective enforcement of this ordinance recommended by the Water Resources
have still to be provided.The other counties Research Center, no preinjection surveys of
do not, at this time, have grading ordinances. marine flora and fauna have been conducted
in adjacent coastal waters and plans to
The Department of Health's water - monitor the effects on the groundwater have
quality standards contain a turbidity not been fully implemented. In the meantime,

4-13

plans are well advanced to inject treated prohibited for 3 years. Legislation passed by
sewage in at least two places on Maui, one on the State in 1973 makes it illegal to take sand
Molokai, and industrial wastewater at Ewa on within 1,000 feet seaward of the shoreline, or
Oahu. in ocean water less than 30 feet in depth.
Commercial mining of sand, coral, rock or
All natural discharges of basal other minerals in the territorial ocean seaward
groundwater in the islands reach the coastal of the prohibited area, or in water deeper
waters. No processes are known by which than 30 feet, will be allowed only with the
certain pollutants of the groundwaters, such written pen-nission of all government agencies
as nitrogen, would be removed by ground- having jurisdiction.
water transport. Hence, the effects of
considerable increases in underground Most beaches are subject to
injection of wastewater must be regarded with considerable changes Jn volume and
concern. configuration. Seasonal changes are generally
the most noticeable. Sand may shift seaward
Recommendation or landward, or laterally from one portion of
a beach to another. The oscillating shifts
The Department of Health should between the dry beach and the shallow water
continue its support of the research program bottom deposits are generally the most
at the Water Resources Research Center, frequent, but sand may be moved to and from
University of Hawaii. This study to evaluate areas inland that are reached infrequently by
the effects of groundwater injections of the waves of major storms and tsunamis.
wastewater should be continued and receive Thus, the beach is not a self-contained unit,
high priority for financial support at both but one element of a dynamic system. It is
State and Federal levels. convenient to discuss the processes of this
system in terms of littoral cells: a littoral cell
is a sea and shore area (containing one or
more beaches) within which the sand
circulation process is essentially interlinked.
COASTAL ZONE ENVIRONMENT
Sand located outside a littoral cell will
not return and may be mined without damage
Topics discussed earlier in this chapter to the associated beach or beaches which are
have dealt mainly with preservation of coastal part of the cell. We believe the present law
water quality and improvements of should be amended so that permits are
environmental standards to ensure that granted on the basis of conservation of the
preservation. We are equally concerned with littoral cell. If an exception is granted, it
procedures for improvement or restoration of should be for the situation where offshore
other aspects of the coastal zone sand is being mined to build up or restore
environment. beaches existing within the same littoral cell.
In all cases, the law we have should be
Beach Sand and Offshore Sand rigorously enforced until, and after, it is
amended.
As recognized in Hawaii and the
Sea-1969, our beaches are priceless resources. The mining of offshore sand is treated
to both the public and the visitor industry. in detail in the chapter on marine mineral
Therefore, strong recommendations were resources. The State should closely monitor
made concerning their preservation, and evaluate the environmental impact of the
management and access. With respect to effluent which will result from the at-sea
preservation, the taking of sand from Hawaii's dewatering of mined sands during prototype
beaches below the high water mark has been mining operations.

4-14

Recommendation systems. Since 1969, the State Department of
Defense has published a book entitled Marine
The Department of Land and Natural Oil Spill Disaster Plan. The Coast Guard now
Resources should seek legislation to modify conducts regular aerial patrols to spot oil
the present depth and distance limits for the spills at sea. The Department of
mining of offshore sand and other benthic Transportation expects, in February of 1974,
minerals. The new limits should be based on to have assembled all hardware elements of a
conservation of the littoral cell. total containment and cleanup system.

In initial (prototype) offshore mining No major oil spills have occurred in
operations for sand, the Department of Land Hawaii. The November 1973 spill in Honolulu
and Natural Resources should closely monitor Harbor--typical of the worst spill we have
and evaluate the environmental impact of had--amounted to no more than three or
effluent waters resulting from the dewatering four barrels of oil. This experience makes it
of the mined sands. difficult to evaluate the effectiveness of either
the hardware or the disaster plan.
Shoreline Development
Recommendation
Shoreline structures may modify the
environment of the land-sea interface by We strongly support the intentions of
alteration of wave and current patterns, the Department of Transportation to test the
interference with the movement of sand, responsivity of the Disaster Plan through a
blockage of public access or scenic vistas and mock mobilization, with all component
contribution to coastal pollution. Hawaii and groups tasked to rapidly respond to a sudden,
the Sea-1969 recommended a 300-foot unexpected "disaster". When all items of
setback dedicated to public use. The cleanup hardware are in hand, the entire
Shoreline Setback Law passed by the 1970 system should again be tested, perhaps with a
Legislature (HRS 205-31) prohibits sand dye slick in the open ocean. This test should
mining and regulates construction within a be repeated, with no advance warning, on at
shoreline setback area of not less than 20 feet least an annual basis.
and not more than 40 feet inlandfrom the
upper reaches of the wash of waves*.
Recommendation Natural Area Reserves
The 1969 report recommended
The Department of Land and Natural optimum conservation and preservation of
Resources should take the necessary steps to coral reefs. Conflicting uses were to be judged
require environmental impact statements for in terms of environmental costs and benefits.
all development and major construction on Since that time, the first natural area reserve
both public and private land within 300 feet has been established at Ahihi Bay, Maui.
of the shoreline setback line, as defined in Recent concern over exploitation. and
Chapter 205, Hawaii Revised'Statutes. depletion of reef table fish and aquarium fish
has stressed the urgency of establishing more
Oil Spills marine natural area reserves to ensure the
continued reproduction of protected
Oil spills were recognized in Hawaii and populations (breeding sanctuaries). These, in
the Sea-1969 as a potentially serious threat turn, would seed adjacent depleted areas.
to our marine environment. A number of
recommendations were made relating to spill Plans are currently underway to
prevention, contingency planning and cleanup proclaim all of the Northwestern Hawaiian

The State Supreme Court in a December 1973 decision established that the boundary of a property is determined by the vege-
tation line,

4-15

islands as a National Wilderness Area. We Zone Management Act of 1972 and is
wish to urge caution here, since the resource authorized by Act 164 of the 1973
value of these islands is still relatively Legislature. In a very real way, the entire
unknown and they may hold considerable State of Hawaii is a coastal zone. Hence, to
potential as a fishery grounds. A better avoid conflict between planning activities, it is.
long-term solution, to be put into effect after 4mportant that coastal zone planning be
the Northwestern Hawaiian Island resource carried out in conjunction with
has been surveyed, might be to intersperse comprehensive planning, including general
wilderness reserves with other areas open to land use planning.
commercial fishing. Recommendations which
relate to Northwestern Hawaiian Island fish- Recommendation
eries are made in the chapter on marine
fishery resources. The Department of Planning and
Economic Development, in cooperation with
Recommendation the Department of Land and Natural
Resources, the University and the County
The Department of Land and Natural Planning Departments, should prepare a plan
Resources should work to establish Marine for management of the State's coastal zone.
Natural Area Reserves off the shores of all of The plan should comply with the
Hawaii's major islands. A goal of one such requirements of the National Coastal Zone
reserve for every fifty miles of coastline Management Act of 1972, as authorized by
appears reasonable. Act 164 of the 1973 State Legislature.

Coastal Zone Conservation

The 1969 report stressed the importance REFERENCES
of preserving- -with accesses--the State's
marine recreational resources such as beaches,
shoreside parks, sailing, surfing and swimming I . "Atlas of Kaneohe Bay: A Reef
areas. For the most part, these resources Ecosystem Under Stress", Stephen V.
represent a strip of land and sea surrounding Smith, Keith E. Chave and Dennis T. 0.
all the islands. This strip is the unexpandable Kam, University of Hawaii Sea Grant
border between land and sea; it is the most Publication, TR-72-01, February 1973.
fragile ecosystem, the most easily polluted
and the most vulnerable to insult. 2. "Effects of Heated Effluent on
Hermatypic Corals at Kahe Point,
In an ideal society, this zone would be Oahu", P. L. Jokiel and S. L. Coles, In
untouched except for minimum corridors at Press, Pacific Science, 1974.
right angles to the coast necessary to carry
commerce, industry and people to and from 3. "Nearshore Distribution of Hawaiian
the ocean. This strip, except for the corridors, Marine Fish Larvae; Effects of Water
would be devoted almost entirely to Quality, Turbidity and Currents", J. M.
recreational uses, or other nonconsumptive Miller, Proceedings of the International
uses which do not degrade the environment. Symposium on Early Life History of
We do not anticipate that Hawaii will be able Fish, Oben, Scotland, 1973.
to attain this idealized situation, but believe it
can be approached through adequate 4. "Surveillance, Sewage, & Surprises", E.
long-term planning'and strong State control C. Evans, pp. 59-75, Navy Action 1972,
and regulation. Environmental Conference on
Monitoring & Surveillance of Pollution
The development of a coastal zone plan Proceedings, 20-21 April 1973, Naval
has been stimulated by the National Coastal Undersea Center, Hawaii Laboraory.

4-16

5. "A Proximate Biological Survey of Pearl 9. "Final Report, Work Areas 6 & 7,
Harbor - 13 May to 18 June", Naval 'Analysis of Water Quality,
Undersea Center Technical Publication, Oceanographic Studies, Part One'
June 1972, Hawaii Laboratory. "Water Quality Program For Oahu,
With Special Emphasis on Waste
6. ''Pearl Harbor Biological Disposal", Report to Department of
Survey-Summary Report for First Public Works, City.and County of
Survey Cycle", Naval Undersea Center Honolulu, by Engineering Sciences,
Technical Note 801, August 1972, Inc.; Sun, Low, Tom & Hara; and
Hawaii Laboratory. Dillingham Corporation, June 1971,
Honolulu, Hawaii.
7. "Pearl Harbor Biological Survey -; Final
Report & Statistical Analysis", Naval 10. "The Quality of Coastal Waters: First
Undersea Center Technical Note, in Annual Progress Report", L. Stephen
preparation, Hawaii Laboratory. Lau, et. al., University of Hawaii, Water
Resources Research Center, Technical
8. "Environmental Quality; How Much Report, No. 60, UNIHI-Sea Grant
Will It Cost, Who Will Pay?", Richard 72-01, September 1972.
Marland, ECOPUSH Conference
Summary Proceedings, University of 11. "A Pldn for Hawaii's Environment",
Hawaii, May 17, 1973, Honolulu, Temporary Commission on Statewide
Hawaii. Environmental Planning, November 1973

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4-17

CHAPTER 5: MARINE RECREATION

Two considerations pervade this chapter preservation of recreational resources. Some
on marine recreation. First, we are well aware recommendations could result in cost savings.
that available State funds are limited and a Others could create additional income for the
multitude of high priority needs@ compete for State.
these funds. Second, Hawaii is rich in
recreational opportunities, especially those
involving the sea.
MARINE PARKS
Many of our recommendations are
directed toward the preservation of our
marine, recreational environment, at little Marine parks are defined here as areas
direct cost, by the cessation of policies which of subtidal land, and overlying waters, which
allow, or even encourage, continued are formally set aside for the conservation of
deterioration. The recommendation to certain ecological features and the public's
establish additional marine /conservation parks enjoyment of them. All consumptive uses are
seeks to -preserve our marine resourc -es. The prohibited 3 but public observation and
recommendation concerning our inland esthetic enjoyment of the park is encouraged
waterways seeks to rehabilitate this resource and aided. Hanauma Bay, on Oahu, is a
for boating, fishing and other public uses. marine park, according to this definition. The
Kealakekua Bay Marine Life Conservation Dis-
Where suggesting expansion of existing trict is not a marine park, because certain
facilities, for example, boat landings and consumptive uses within the park's
marinas, we recommend that the user should boundaries are permitted. The Cape
pay a greater share of the cost. Kinau-Ahihi Bay (Maui) Natural Area Reserve
exists to preserve a unique ecosystem and is
Recreational fishing, not treated here, is more properly termed a marine wilderness
discussed in considerable detail in the chapter reserve than a marine park. While public
on living marine resources. activities are not prohibited in the Maui
reserve, neither are they encouraged. Hence,
We believe that Hawaii is uniquely the distinction between a marine park and a
blessed in the number and variety of marine wilderness reserve: in the former,
recreational opportunities available to its resources are conserved for public
citizens and visitors. We can think of few appreciation and esthetic enjoyment; in the
other states which offer such a combination latter, the preservation of a unique or fragile
of ocean and mountain, coastline and forests, ecosystem is the paramount concern and
warm waters and balmy climate. The problem public enjoyment, a secondary consideration.
is not how to create opportunities for
recreation., but how to preserve recreational The Need - A Rationale
resources from deterioration or destruction
and preserve public access to recreational sites The need for marine parks is widely
despite developmental pressures. recognized. Hawaii and the -Sea-1969
recommended establishing parks on Maui and
Many of our recommendations could be Hawaii. Recently, numerous articles in local
carried: out at little cost, especially the one to newspapers have reported broad support for
establish marine parks and zones of creation of more sites. In addition, the Hawaii
conservation on State-owned sites, or the ones - Council of Diving Clubs is presently surveying
requesting a change in government policies in the Pupukea-Waimea area and intends to
the direction of a deeper concern for the submit a park plan to the Department of

5-1

Land and Natural Resources. exploitation of marine life within areas so
designated may be established with the
To date, however, only one marine park approval of the Governor, following the
has been established along the more than required notices and public hearings.
1,000 miles of State tidal coastline. Hanaurna
Bay is the only location in the State which the Chapter 195, HRS, establishes the
public can easily visit to view a relatively Natural Areas Reserve System for protecting
undisturbed example of Hawaiian reef life. and preserving natural assets and designates a
commission consisting in part of "persons
@,-777
, 7 .. I @
possessing scientific qualification ... in wildlife
or marine biology, botany, forestry, zoology,
or geology" to advise the Department of Land
P
and Natural Resources. No such commission
or committee is provided for the
establishment of marine conservation districts
(i.e., marine parks as defined above). A new
commission, or the existing commission with
an expanded role, could consult with the
Department of Land and Natural Resources
concerning the selection of coastal areas for
designation as marine parks. Manpower for
biological surveys and area mapping could be
provided by Marine Option Stu&nts: from the
University of Hawaii, supported by National
C Science Foundation funds under the Student
Hanauma Bay is an exciting attraction to kamaaina and Originated Studies program.
tourist alike; facilities such as this are important to
community education as well as recreation.
Selection Criteria

Many more parks are needed to provide The selection of sites for marine parks
residents and visitors alike with this should be governed by several criteria. The
opportunity. Parks are also needed to assure site's potential,:,in environmental quality and
the conservation of marine ecosystems as biological significance, should be high.
their decimation by shell collecting, spear Although intensive exploitation may have
fishing, coral collecting, gill netting and other decimated certain species in a prop .osed site, it
practices continues to increase. is almost certain that diversity and abundance
of species will increase after exploitation is
Marine parks help conserve resources prohibited. This renaissance was dramatically
and, simultaneously, allow the public to enjoy exemplified at Hanauma Bay, which is now
these resources in a nonconsumptive manner. rich in fish species that were rare, absent or
In addition, the protected species within park abnormally secretive when the bay was open
sanctuaries provide larvae and migrants for to spearfishing.
adjacent areas open to fishing and shelling.
Safe public accesrs to the site is also an
Mechanism for Establishment important criterion. Land access is preferable,
but sites should not be rejected because
Marine Life Conservation Districts (as transportation to the site is primarily by boat
Hanauma Bay is legally classified) can be (e.g., Kapapa Reef in Kaneohe Bay).
designated by the Department of Land and
Natural Resources in the marine waters of the Sites which at pi@esent are rarely visited
State under Chapter 190 of the Hawaii by the general public, but for which future
Revised- Statutes. Regulations prohibiting use is predicted, should be considered for

.5-2

park status as soon as possible. Anticipated Areas for Consideration
public use should be a positive selection
criterion, rather than a cause for delay on the The following list was compiled on the
basis of lack of present need. basis of personal visits by members of the
Task 'Force and from suggestions from the
Adjacent public land should be included University of Hawaii and Bishop Museum
as adjuncts to the marine parks, although this biologists. It is not a complete list of potential
is not essential. Underwater locales of prime sites and other areas should also be
quality should not be rejected as park sites considered. The sites listed below are also
merely because they are partially or wholly shown on the map.
bounded by privately owned lands. Indeed, a
marine park located near a hotel development Kauai
would make both more attractive to visitors.
Public access to the subtidal area must be 1. Haena Beach area.
guaranteed in such cases. 2. Area northeast of Poipu.
3. Shoreline and reef fronting Kuhio Park,
Park boundaries which are naturally Koloa
delineated will help in enforcement of
regulations and prevention of public Oahu
misunderstanding. Deeply set Hanauma Bay
approaches the ideal in this regard; however, 1. Area north of Laie Point.
the boundaries of other less clearly defined 2. Kaaawa Reef, near Swanzy Beach Park.
sites can be marked by signs and buoys., 3. Kapapa Reef in Kaneohe Bay.

e'Y a bye

'5 Aul

T@ 1,
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'--WL

Early designation of additional marine parks will assure their availability at the least possible cost to the State.
eo

5-3

Oahu Undersea Observation Structures

4. Kahe Point. Sea Habitat Corporation of Hawaii has
5. Waimea Bay-Pupukea Reef. received approval from the Department of
6. Portion of Waikiki Beach. Land and Natural Resources to construct
Hawaii's first undersea observation facility.
Molokai The site selected for the structure is near
McGregor Point on Maui. This area was
1. Area between Laau Point and Puu Koa'i. recommended in the preceding section as a
2. Area between Ilio Point and Kepuhi. site for a marine park. The observation
structure will be located 150 feet offshore, at
Maui a depth of 20 feet, and will be open to the
public for a fee. This type of development
1. Honolua Bay. provides educational and recreational
2. Area between McGregor Point and enjoyment to both the public and visitors to
Papawai Point. Hawaii.
3. Area near Hana.
Recommendation
Lanai
The Department of Land and Natural
1. Hulopoe Bay, including Puupehe Rock. Resources should determine the feasibility of
providing public or privately operated
Hawaii undersea observation facilities at each of
Hawaii's marine parks. Future park plans
1. Reef area south of Kawaihae. should include such facilities Where feasible.
2. Honaunau Bay adjacent to City of Refuge.
3. Manuka Bay.
4. Kumakahi Ponds near Kapoho.

Recommendation

The Department of Land and Natural
Resources should select, and recommend to
the Governor for his approval, a minimum of
one additional marine park for each of
Hawaii's major islands.
gap-,

A commission of interested,
independent citizens, including persons
trained in marine fife sciences, should advise "Picture windows" in the bays afford everyone the opportu-
the Department on the selection of sites. nity to enjoy the reef communities. This viewing facility will
be operated by Sea Habitat, Inc. on Maui.

These marine parks should be operated
as Conservation Districts open to public Unique Natural Recreation Areas
enjoyment. If they are bounded on shore by
private lands, steps should be taken to Recommendation
guarantee free access to the general public.
The Department of Land and Natural
The Department should rigorously Resources should take immediate action to
enforce restrictions against taking specimens preserve Hawaii's unique recreational
from the marine parks. resources.

5-4

This might be accomplished by@ zoning Progress was recently made in this
specific areas for specific uses. For example, direction when the 1973 Legislature passed
Point Panic and Makapuu could be zoned Act 143. This Act mandates the counties to
exclusively for swimming activities by adopt ordinances requiring developers to
categorically excluding boating and surfing. dedicate land for public access to the
shoreline as a condition for approval of any
Another method might be to declare development fronting a shoreline. Such routes
certain unique areas, such as exceptional should be clearly marked to show they are
surfing sites, as ocean parks. A pending House open to the public.
Bill (H.B. 243) employs this approach by
declaring all surfing sites to be ocean parks. The amount of shoreline accessible to
the public could also be increased by opening
certain military lands. The 1971 State
Legislature passed four House and Senate
BEACH ACCESS Resolutions calling for the City and County,
Commander in Chief Pacific and the Marine
.Corps Air Station at Kaneohe to cooperate in
Approximately three-fourths of Oahu's opening North Beach on Mokapu Peninsula
199 miles of shoreline are controlled by for public use. Unfortunately, these
.Federal and _private interests. Of the resolutions have not been acted upon,
remaining fraction, much is relatively although a joint study is in progress.
inaccessible due to geographic obstacles, lack
of roads and., remoteness. A survey of 196 Recommendation
supposedly "legal" access routes on Oahu,
carried out for us during the summer of 1973 The Department of Land and Natural
by students of the Marine Option Program at Resources should press for the opening to
the University, showed many routes were, in public access of certain military lands which
fact, closed to the public by fences, locked border the ocean.
gates, overgrowth and other obstructions
(including, in one case, a house). Some were Representative examples include- North
impossible, to locate. At a time when private Beach on Mokapu Peninsula, Kahoolawe
development is crowding our beaches, and Island and much of the beach at Barbers Point
beach access through purchase is prohibitively N a v a I Air Station. The military might be
expensive, it seems imperative that we should persuaded to run security fences parallel,
open and use all existing beach access routes. rather than perpendicular, to the shoreline, so
that the public could move along a coastal
Recommendation corridor.

The Department of Land and Natural
Resources and County agencies, as
appropriate, should take immediate steps to RECREATIONAL USE OF COASTAL
open all existing publicly controlled beach WATERWAYS
access routes and keep them maintained. All
routes should be marked with conspicuously
placed signs. In addition, these agencies Many of Hawaii's coastal towns are
should publish lists, with maps, of public blessed with natural near-sealevel waterways,
access routes. which meander through the populated areas
between the inland valleys and the coast. The
The Department should determine the scenic and recreational potential of these
need for, and cost of, beach access routes, in waterways--for fishing, boating and
areas where none presently exist. parks--is high. Hawaii's@ record in fulfilling
such potential is, for the most part, dismal.

5-5

As one example (of many) of This gate would normally be open to
nearsighted treatment of an existing waterway divide flow from the swamp between
resource, we offer the case of Kaelepulu the two waterways, but could serve as a
Stream in Kailua. Thi5 stream was formerly partial or total constriction on flow
the main drainage route for Kawainui during times of heavy rainfall.
Swamp--running clean and clear to the 2. Reconstruct the Ka Awakea bridge to
sea--until its waters were diverted through allow sufficient clearance for small
the Kawainui Canal as a flood control boats to pass.
measure. The diversion was complete to the 3. Establish several public access routes
point that upstream from the Pali Highway (and perhaps miniparks) along the
bridge the stream has become a stagnant, waterway.
chocolate brown backwater. The waters of
Kaelepulu Stream are still navigable, except at These changes would literally transform
two points where man has introduced a part of Kailua into an island completely
deliberate obstructions (the Ka Awakea Street bounded by water from Kailua Beach Park to
bridge and the diversion dike which separates the mouth of the Kawainui Canal. They
the stream from Kawainui Swamp). Access to would add miles of protected recreational
the stream is also limited, the only known waterway, inti .mately tied to the planned
public access being at Kailua Beach Park. Kawainui Park, and offer access to the open
sea from any point along the waterway.
The following remedies could restore
Kaelepulu Stream to its full recreational The restorations suggested above may
potential. not be possible in a time' of stringent budgets
and competing priorities. Other waterways, in
1. Insert a flood control gate into the dike other towns, may deserve a higher priority.
that blocks the canal end of the stream. Questions of priority are not, however, the
point we want to emphasize. What is
important is that streams like Kaelepulu
should never have been subjected to actions
that destroyed their potential for public
recreation and such unnecessary destruction
MOKAPU CANAL must never be allowed to happen again.

V KAILUA BAY Recommendation

The Department of Land and Natural
Resources, in cooperation with the County
KA AWAKEA Departments of Parks and Recreation, should
BRIDGE
KA LEFULU develop plans, priorities and environmental
impact statements for restoring the
recreational potential of Hawaii's coastal
ENCHANTED LAKE waterways. This task should be completed
within two years.

With an even higher priority, these
One of Hawaii's inland waterways, Kaelepulu Stream in agencies should cooperate to cherish and
Kailua, needs to be cleaned up and opened for boat
traffic. protect the recreational values of our coastal
waterways from future development
pre@ssures.

5-6

RECREATIONAL BOATING* facilities, tradeoffs must be made which
involve careful evaluation of the total
environmental effect of the proposed
There is an increasing need for the construction.
improvement and construction of marinas and
boat launching facilities in our State. A A study by the Harbors Division of the
comparison of Hawaii with the mainland Department of Transportation has shown
shows that per capita ownership of small that, on Oahu alone, there is an immediate
boats here is less than one-fourth the national need for 20 additional public boat launching
average. This is in spite of the fact that lanes. The cost of a single lane at an existing
Hawaii's lands are surrounded and fragmented ramp is about $20,000. A typical new ramp,
by water. Clearly, our potential for which would include a loading dock, parking
recreational boating is underutilized. We and a comfort station, is about $100,000. The
believe this is due, in large part, to a shortage Harbors Division study has pinpointed areas
of marina facilities and boat launching ramps. where current need is greatest.

Of Hawaii's 12,000 registered boats, Recommendation
about 75 percent are less than 20 feet in
length and are trailerable. This could indicate The Department of Transportation
a greater need for launching ramps than for should be provided with sufficient funds to
marinas, based on a public preference for implement the recommendations of the
boats which can be drystored. We believe Harbors Division survey.
that, equally, it indicates a frustration on the
part of the boat-owning public because of the The Department of Transportation
shortage of marina spaces. should conduct a similar survey to determine
if there is a need for additional marinas. This
Should an either/or situation- develop survey should include non-boatowners to
due to a shortage of funds for capital
improvements, small boat launching facilities
k 0
@A!
should receive priority over marinas relative
k
to the existing demand. Conclusions based
entirely on existing demand, however, should
be treated with some caution. With more -1,
marina space available, we believe the demand
would increase to match the supply. Given a
choice, many boat owners prefer marina K
storage, even though it is more costly, because
1'.',@@, 41 .
of the advantages of greater convenience
7,
ZK
k,
ff "a
larger size, greater choice of potential usage,
increased safety and opportunity for
in
ter-island travel.
Boat ramps such as this one at Kailua Beach Park enable the
If improperly planned, such marinas small-boat owner to operate out of his home.
and launching ramps could interfere with
other valuable uses of the shoreline, such as determine the potential size of the boating
picnicking, swimming, fishing and diving. public and the type of support facilities
With proper planning, we believe that marina preferred.
sites could have valuable additional benefits as
conservation areas for bird habitats and reef To minimize interference with other
preservation. In the design of any new boating coastal recreation and to avoid degradation of
. This section deals only with facilities to support recreational boating. The general classification of harbors is treated in the
chapter on commerce and industry.

5-7

existing shoreline environments, all CONFLICTING USES AND SAFETY
construction of marinas and boat launching
facilities should be preceded by an
Environmental Impact Statement. Rapid population growth, especially on
Oahu, has resulted in competing demands for
marine recreation resources. For example,
water skiing, sailing and swimming are clearly
Boating Fees incompatible activities. Many of these
problems have come to the attention of the
In Hawaii, baseline monthly mooring Mayor's Water Safety Advisory Commission
costs range from about $.15/foot (cable which makes recommendations to the City
mooring) to $.78/foot for a 40-foot boat in a Department of Parks and Recreation. As
slip. These fees are less than one-half of stated - earlier, there is a need for enforced
current charges in such states as California zoning of specific areas for specific uses,
and Michigan, and much less than the especially off Waikiki and in Kaneohe and
facility's cost to the State. Annual registration Kailua Bays. A system of testing and licensing
fees range from $1.00 for a small boat to boat users should be considered, especially if
$9.00 for a 40-footer. These fees are less than coupled to educational programs in boating
the cost of processing the license application. techniques and safety.

We believe that a sharp increase in both Overcrowded surfing sites is another
mooring and registration fees is long overdue problem which frequently leads to injuries.
and both fees should be raised at least to the Perhaps lifeguards should be given the
national average. With the present fee authority to issue tickets to reckless or
structure, the relatively affluent boat owner is incompetent surfers. Usage of surfing areas is
being subsidized by the general public, and highly dependent on the irregular nature of
the State is operating the support system at a wave conditions; therefore, the number of
deficit when it could be generating surplus for surfers who frequent a particular site at a
use in the construction and support of new particular time is highly variable. For this
facilities. reason, lifeguards who are cognizant of these
conditions should be allowed to rove land
Recommendation concentrate effort where it is most needed. It
is advisable at some locations, such as Waimea
The Department of Transportation Bay, for the lifeguard to patrol in the water.
should increase registration and moorage fees The helicopter emergency rescue unit is
at least to the national average. The highly effective in preventing drowning during
possibility of charging fees for the use of high surf on the North Shore. We believe that
launching ramps should also be , evaluated. all surfing areas in the State should be
Funds derived from these fees should prominently identified by signs, which can
continue to be dedicated to operation of also warn of potential unsafe conditions.
existing facilities and construction of new
ones. Recommendation

Moorage fees based on the plan area of The Departments of Land and Natural
a boat, or its displacement, should be charged Resources and Transportation should jointly
to more fairly recognize the impact and devise a water safety plan for marine
cost-to-support of the large craft. recreation in Hawaii. This plan should
include, as a minimum requirement, elements
As a supplemental benefit to both the which deal with education and training,
public and the State, an increase in moorage licensing and enforcement, as well as exclusive
fees should encourage private enterprise to zoning and sign posting for critical recreation
enter this field. areas.

5-8

CHAPTER 6: LIVING MARINE RESOURCES 1969. The intervening years have seen some
upgrading of the Hawz(ii fishing fleet and
more growth in the fishing industry. However,
the mercury scare caused reduced landings of
This Task Force believes, as did the billfish and increased expenses in other
1969 group, that fisheries afford a major fisheries. During this time, government funds
development opportunity for the economy of for resource surveys, research on new catching
the State. In the last four years the world technique 's and market development for
demand for fish and fish products has unused species have greatly diminished.
increased, resulting in supply shortages and
rising prices. Because fish products are an Action has been taken on many of the
international commodity, recent currency fishery recommendations in Hawaii and the
adjustments have resulted in a mote favorable Sea-1969, but they are contingent upon
outlook for American fishermen and boat State and Federal funding of development
owners. projects over a long period of time. Because
of recent severe Federal and State budget
For Hawaii, -as an island state,'fisheries restraints, it appears that many of the
are extremely important; they assure our recommended projects that require continued
residents of a supply of fresh fish and provide funding will be discontinued though they are
exportable products to strengthen our still valid. Therefore, we have suggested
economy. Some United States and Hawaii actions that can be implemented with
fisheries will receive an additional boost if the existing, or limited, additional funds.
next Law of the Sea Conference extends the
fishery zone for the United States. This would
greatly reduce the amount of fishing by
foreign vessels in United States nearshore A FISHERIES POLICY
waters, allowing our restricted range
fishermen a greater share of the resource. A Federal fisheries policy is currently
Hawaii would do well to keep abreast of the being developed through a series of proposals,
position the United States intends to take at several of which may be enacted into law in
the Law of the Sea Conference. the near future. Among the proposals being
considered are:
Despite the more favorable economic
picture and increased interest in fisheries on 9 The extension of Federal control to
..the part of potential investors, Hawaii's Hawaiian waters on an archipelagic
fisheries have not changed markedly since basis.
18 +4+.. 7
+@+ , e Federal management of the marine
resources within this new area.
0 Federal legislation to regulate the
16 6
0
interstate transport of living marine
0
0 organisms.
Z
Federal control and exclusion from the
14
public domain of the lands and waters
of the Northwestern Hawaiian Islands.
UM 12 4mu Additional Federal controls over
contaminants of fish products.
10 3 @1 These Federal plans, while deemed to
be in the national interest, are not necessarily
in Hawaii's best interest. As an isiand state,
8 2 Hawaii differs, in many respects, froth the
1964 1966 1968 1970 1972
Su-ary of co7L7-cial fishing in Haws ii (taken from coastal states.
State of H-ii Data Book, 3.973, published by DPED)
6-1

Recommendation The Task Force also believes that closer
liaison is needed between the research and
The State should formulate two management aspects of the marine fishery
alternative policies for fisheries management. resource. A prime rationale in establishing the
One policy should be based on present State Hawaii Institute of Marine Biology within the
jurisdiction over the waters within the 3-mile University of Hawaii system was that this
limit; the alternative policy should be based Institute would serve as a research tool to
on an extension of United States jurisdiction provide the State with managem@nt-oriented
to an area enveloping the Hawaiian data. Since its formation, the number of
Archipelago (see Chapter 3). problems in marine biology have proliferated.
In addition to fin-fisheries, these problems
State fishery policy should 'also now include coral reef conservation, aku
establish guidelines to ensure an adequate (skipjack tuna), baitfish research, aquaculture
supply of healthful seafood for State and precious coral population assessment. In
consumption and State control over the all these areas, current research is being
importation of living marine animals. directed toward knowledge and technology
which have a high probability of economic
payoff. Transfer of this knowledge to the
decision-making levels of State government
A DIVISION OF MARINE RESOURCES has been hampered by. the many layers of
organizational structure which exist between
The Task Force considered the need to the researcher and the users of the data.
manage and develop our marine resources,
keeping in mind the structure of State An enlightened public is essential to
agencies and the availability of funds. wise, long-term, sustained-yield management
Presently, the Department of Land and of Hawaii's marine resources. We believe the
Natural Resources contains the Fish and State Division of Fish and Game has been
Game, Water and Land Development hampered in the execution of a number of
Divisions, and State Parks. All these agencies very sensible proposals by the- lack of
haVe some responsibility for marine activities, personnel and funds to reach the general
although their historic orientation is toward public. For example, licensing of recreational
the land. Much of the State's long-term fishing has been considered highly advisable
planning for marine resources development is by the Division for years, but, for lack of an
accomplished by the Department of Planning ade 'quate public information capability, the
and Economic Development. The Division has been unable to 'convey its
Departments of Health and Agriculture also message to the public. Its duties should
have organizational responsibilities in certain include liaison with various educational
marine areas. At the University of Hawaii, a institutions and offices of the State and
number of groups and institutes are Federal Governments, and dissemination of
concerned with research on marine resources pertinent information to Hawaii's marine
and fisheries. The overall picture is community.
fragmented, with responsibilities that
sometimes overlap, sometimes leave gaps of Recommendation
unresolved jurisdiction and are difficult to
coordinate. 1. The new Division of Marine Resources
should have a fisheries aquaculture
We believe steps should be taken to reIsearch arm associated with, or part of,
bring these separate elements together into a the Hawaii Institute of Marine Biology.
coordinated organization as recommended in 2. The Division should create a
Chapter 3. As an interim step, a Division of Cooperative Fisheries Unit and give
Marine Resources could be set up in the serious considerat *ion to siting it at the
Department of Land and Natural Resources. Hawaii Institute of Marine Biology.

6-2

3. The scope of work for this unit should an equitable share of the cost of maintaining
be defined to furnish background the fisheries in a healthy, self-sustaining state.
information for proposed regulations,
.or regulation changes, and provide Recommendation
details of management alternatives. The
unit should not, however, engage The Department of Land and Natural
directly in the implementation of the Resources should modify its policy on
regulations or the passage of legislation. licensing marine fishing:
4. The new Division of Marine Resources 1. To adjust present license fees for
should include a competent, adequately commercial fishing to make them
funded, Public Information Branch. equitable and commensurate to the
its accruing to the fisherman.
benefi
2. To levy landing fees at public boat
access sites.
3. To issue a limited number of special
SOURCES OF REVENUE licenses for entry into certain fisheries
that exploit limited stocks (such as
Kona crab).
4. To explore licensing recreational
Fishery resources management. never fishermen to provide adequate
pays for itself directly. Therefore, it statistical coverage of the fishery as well
frequently. does not receive sufficien t support as revenues to offset the cost of its
to safeguard the resource. Such is the case in management.
Hawaii. We suggest generating funds from the
fisheries to help maintain the resource. The Task Force recognizes that there
are many problems associated with these
Funds are needed to collect meaningful recommendations, especially in the licensing
data on fishery yields and populations, of recreational fishermen. These measures
provide an effective management system, seem clearly radical to a populace historically
allow enforcement of state regulations and accustomed to free use of the resource. They
implement all or some of thesuggestions for are, nevertheless, necessary because of the
reorganization suggested here. Income from increasing pressure on a limited resource.
user and license fees currently charged by the Implementation of these recommendations
State does not begin to approximate the cost must be carefully planned by the State and
of maintaining the fishery resource. In certain will involve political courage on the part of
fisheries, especially where the resource is the agencies involved as well as a public
limited in magnitude or extent, fishing could education program. The success of such an
be controlled through a system of special undertaking will depend to a large degree
licenses or limited entry. In the case of upon the ability of the State to document the
recreational fishing, it is currently not need for resource management and the
possible to measure the stress on the resource improvements in fishing that would result.
(number of fishermen), the st!7ain on the
stock (population dynamics), or provide
minimal enforcement of State fishing
regulations.
NORTHWESTERN HAWAIIAN ISLANDS
Our rationale in recommending the STOCK ASSESSMENT
above sources of funds is simple. The fishery
resources of the State belong to the people.
We believe that it is fair for the primary With increasing pressure on the fishery
beneficiaries- -those who profit from the resources of Hawaii's main islands and the
resources either from sales or sport--to bear introduction of long-range fishing vessels, it is

6-3

becoming essential that the State undertake declaration of the Northwestern Hawaiian
an assessment of the status of presently Islands as a "natural wilderness area" should
exploited stocks and the development follow, and be based upon, a survey of the
potential of new areas and latent resources. In fishery and precious coral resources in those
particular, the waters of the Northwestern islands. As a fallback position, the
Hawaiian Archipelago, stretching from Kauai Department should request a stipulation in
to Kure Island, are within reach of the new any such declaration that carefully selected
vessels now entering Hawaiian fisheries. This areas of such a preserve can be opened to
new fishing capability, together with the controlled resource utilization.
recent proposal to establish a marine
wilderness reserve among the Northwestern
Hawaiian Islands, suggests that an effort to
assess the commercial and recreational FISHERY RESOURCES OF THE HIGH
potential of the area should be undertaken in SEAS
the near future. Specifically, information is
needed on the distribution and abundance of
inshore and demersal (ocean bottom) fish, Over 75 percent of the weight and value
shellfish and precious coral among the islands of fish landings in the State come from
of the Northwestern Hawaiian Archipelago, high-seas species, chiefly the tuna. These fish
including the offshore banks. A data base is constitute a global resource and, as such, are
necessary for effective utilization and subject to international management as well
management of this still unknown resource. as international marketing. In recent years,
the value of -tuna to Hawaiian fishermen, on a
Recommendation per pound basis, has more than doubled,
resulting in an incentive to invest in new
The Department of Land and Natural vessels and equipment. The increasing world
Resources, in a joint venture with the demand for. tuna, together with improvements
University of Hawaii and the National Marine in transportation, has resulted in a situation
Fisheries Service, should complete an where the price in the Hawaii marketplace is
intensive fishery survey of the Northwestern independent of local market demand. An
Hawaiian Archipelago over the next three
years.

The new Cooperative Fisheries Unit 1*2
recommended earlier might be assigned active A
responsibility for this survey. The State
should seek matching fund support from the
Federal government, specifically the National
Marine Fisheries Service, the National Science
Foundation and the Sea Grant Office.

We are concerned about increasing
pressures toward a Federal declaration of the
Northwestern Hawaiian Islands as a "natural
wilderness area", a step in advance of any
meaningful knowledge of the extent and value
of marine resources in these islands.
Schools of Skipjack Tuna are the backbone of the local
Recommendation fishing industry.

The Department of Land and Natural exception occurs at times of extreme shortage
Resources should request that any Federal when local prices rise markedly. In other

6-4

words, the price is normally set by Hawaiian consumer can expect to pay a price
international demand, which results in a price comparable to the price paid by the Japanese
floor for all tuna landed in the State. This consumer, less the cost of air transport; the
minimum price is equal to the world price for Hawaiian fishermen will receive a price
the product, less shipment cost to market. comparable to that set by the fish auctions in
Japan. There is little the State can do to
The assurance of a ready market and a reduce the cost, of fish to the local consumer.
favorable minimum price have resulted in However, if the State encourages the
expanded operations for Hawaiian fishermen. construction and operation of new vessels, the
All four of the new vessels constructed under times when extreme scarcity of landed fish
the Hawaiian Vessel Loan Program have cause extraordinary costs to the consumer
entered the tuna fishing industry. Those could be reduced.
vessels fishing for the fresh fish market are
assured of demand and a good price for their There are problems that may limit
catch. Those vessels fishing aku (skipjack expansion of the industry in the near future.
tuna) for the international market and the There is the ubiquitous question of an
cannery are also assured of a constantly adequate supply of suitable baitfish for aku
increasing demand and price. pole and line fishing. The rising cost of
building new vessels will probably require
The devaluation of the dollar, the year-round operations for the pole and line
increased demand for high grade fresh fish in vessels, and year-round operations cannot be
Japan and the increase in air transport confined solely to Hawaiian waters.
between Hawaii and Japan have resulted in a
minimum price for most high quality fishery The first of these problems is being
products in Hawaii that is approximately $.40 addressed by the National Marine Fisheries
to $-50 a pound less than the wholesale Service and the Hawaii Institute of Marine
market price in Japan. The result is that the Biology; the second is addressed in the

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MOKIHANA, one of the newest additions to the fleet is
financed through the Hawaiian Vessel Loan Program.

6-5

prograrh being developed by the Pacific definitive formulation, have barred certain
Islands Development Commission, of "which economically important fish from the market.
the State of Hawaii is a member (Chapter 3). For example, some large pelagic fish have
We believe the programs sponsored by the been barred because of their mercury content.
Commission offer considerable benefit to
Hawaii. Recommendation

Recommendation The Department of Health should
explore the feasibility of setting its own
The State, through the Department of standards for fishery products landed by
Planning And Economic Development, should Hawaiian vessels and consumed within the
continue to support the fishery programs of State. The standard should be such that the
the Pacific Islands Development Commission. health of the public is not in the least
The State's Congressional Delegation should endangered and be based on the best available
support such programs through continuing scientific data.
efforts to obtain direct Federal funding for
the Commission. The State has, on occasion, maintained
a shark control program to assure that the
Concerning the future of the tuna inshore shark population is kept at a low level
cannery, the State is faced with serious for the safety of swimmers, surfers and divers.
choi'ces. The lease for the present cannery site These operations had to be underwritten. by
will be' renegotiated in 15 years, and' the the State because there is no incentive to
cannery will have to compete with other commercial shark fishing. However, if an
demands for ' the Kewalo Basin area. Also, eradication program were undertaken in
increasing labor costs could make it selective areas 'where shark endanger people,
economically impractical to operate a cannery perhaps shark flesh could be used for
in Hawaii in comparison to the cost of food--as shark meat, fishmeal, or in fish
operati.ons on other United States currency cakes..
islands of the Central Pacific, such as
American Samoa. Recommendation

We believe the State should offer every Possible uses in Hawaii for shark meat
reasonable inducement to encourage should be investigated through various
continuation of the tuna canning operation in channels, such as the University, the
Hawaii because of (1) the direct employment Department, of Health and the Division of
provided by the cannery, (2) the direct Fish and Game. Funding to solve this.problem
employment provided by the fishing vessels should be sought from the Sea Grant Office.
which the cannery supports, ana (3) the If these efforts are not successful, the State
increased cost that will have to be paid in the should reestablish, and fund, the nonbounty
local marketplace if fresh tuna is no longer program of regional eradication.
landed in Hawaii.

Recommendation

The Department of Planning and
Economic Development, with the officers of
Hawaiian Tuna Packers, should explore the TUNA PACKERS, LIMITED
problems the canning operation faces and
ways in which the State can encourage its
continued existence.

Another pr oblem that the State faces is
The unique services provided by HTP are essential for the
that Federal standards, still in the process of local fishing industry.

6-6

could be given this task. It is almost.certain
INSHORE AND DEMERSAL FISHERIES' that the report will pinpoint areas, geographic
limits and ma nagement measures for marine
preserves.
In common with most tropical areas, One of the fastest growing fisheries in
the State is blessed with a diverse fauna of the State is the Kona crab fishery. Its growth
inshore and demersal species. Many of these stems primarily from the development of new
are used for food but, with few exceptions, grounds on the Penguin Bank. The extent of
none occur in sufficient numbers to su pport this area, is fairly limited and the sustained
major fisheries. The exceptions are the yield it can support is unknown-The Kona
snappers, some of the Cdrangids, namely crab fishery appears to be one that could be
akule and its young, halalu and opelu. ]Little is controlled to sustain the.resource through a
known about the population biology of these special entry permit system restricting fishing.
species. Although the landings fluctuate from In addition, the Kona crab fishery appears
year to year, most likely due to natural capable of expanding into other areas,
causes, the total catch is such . that it is particularly into the Northwestern Hawaiian
possible that some of the fluctuations are Islands.
fishery related. Management biology studies
of these species should be undertaken, as Recommendation
should food technology research to extend
shelf life and even out prices. The Department of Land and Natural
Resources should carry out the necessary
The populations of the other nearshore population assessment research for snappers,
or neritic'(the seafloor between the shore and akule, opelu and Kona crab. If the outcome
the edge of the continental shelf) species are of this investigation warrants it, entry to any
generally believed to be depressed, or all of these fisheries should be limited by
particularly around the island of Oahu. licensing, regulation and. enforcement
Proposals have been made to improve the procedures which prohibit fishing @by vessels
abundance of these species by closing certain above that number necessary to maximize the
coastal areas around Oahu to fishing for yield. Again, this task could be assigned to the
extended periods of time. It is not known new Cooperative Fisheries Unit.
how productive this would be. Moreover, it is
unlikely that the State presently has sufficient
manpower to enforce such closures. The RECREATIONAL FISHING
recent concern about the capture for export
of colorful reef fish on Maui is an example of
our need to know more about population Surprisingly, for a State completely
biology. The data base does not exist for surrounded and divided by water,
assessing the impact of netting the reef fish on Participation in recreational fishing is
the resource. moderate. For example, it is estimated that
less than 15 percent of the State's population
Recommendation engaged in salt water recreational fishing
during the past year, in part, because a boat is
The Department of Land and Natural needed to get to the better fishing areas. To
Resources should undertake a program of some degree, it is due to depletion of the
management biology of inshore and demersal readily accessible inshore species by heavy
fisheries, coupled with development of a fishing pressures near populated areas.
44 status of the stock" report, in order to Depletion of the inshore species can be
better evaluate various management and alleviated through selected stocking programs.
conservation measures that 'May be
implemented in the future. The new The key to recreational fishing
Cooperative Fisheries Unit discussed earlier management is updated, relevant regulations,

6-7

understood by the public and strictly Recommendation
enforced. Hawaii's record appears inadequate
in some respects. Public education is The Department of Land and Natural
inadequate and regulations need to be Resources should support a program to
reviewed periodically for relevance. accumulate the scientific data necessary to
Furthen-nore, we suspect there are too few design an effective coral reef management
State Fish and Wildlife Enforcement Officers system. Possible funding sources for this
and they are not held sufficiently accountable program include the Sea Grant Office,
for enforcing the regulations. For example, National Science Foundation and the
in 1972, these officers issued an average of Department of Interior (through its
one violation ticket per officer per month. responsibility for the Trust Territory).

Fine structures, license suspension, fish
and game violation tribunals are some possible
approaches for enforcing regulations. AQUACULTURE

Recommendation
Aquaculture in Hawaii has received
The Department of Land and Natural substantial emphasis in the last decade. The
Resources should upgrade recreational fishing husbanding of marine plants and animals has
by: (1) periodically updating fish and game considerable significance for the future and
laws, (2) increasing its educational Hawaii is a suitable place for its pursuit.
capabilities, and (3) examining mainland
enforcement procedures for applicability in Largely as a result of the State's support
Hawaii. These measures will require an of recommendations in Hawaii and the
increase in the number and efficiency of the Sea-1969, Hawaii is generally considered the
officers who must realize that their role center for technology in this emerging
includes education as well as law industry. Much research already has been
enforcement. conducted and many lessons have been
learned that form a solid foundation for the
future of the industry. Several Hawaiian firms
CORAL REEFS now are profitably engaged in commercial
aquaculture and dozens more are in planning.
Hawaii's coral reefs are limited in Important, too, is the fact that State scientists
extent, yet provide an important habitat for are exporting this technology to the Trust
inshore marine fauna. They are also used for Territories, Guam, and many other areas. The
snorkeling, spearfishing and shell collecting. Hawaii Institute of Marine Biology hosted a
Many of our reefs have been subjected to conference in February 1973 to determine
extensive abuse for many years and some are the directions for aquaculture research for
probably past saving. At present, little is greatest benefit to the peoples of the Pacific
known about the fishery productivity of Islands. From this conference, specific
tropical reefs and less is known about how directives were made that will enable the early
they are destroyed. The management of such establishment of a viable aquaculture industry
reefs can be accomplished now only on an in the Islands.
intuitive basis.
Continuing legislative support is needed
Hawaii has the opportunity- -perhaps in some areas, but the aquaculture industry in
even an obligation to most of the Pacific Hawaii has the gratifying potential for
area--to develop fishery and coral carrying its own weight while subsidizing its
management methods for coral reefs. All own research. When this occurs, the State will
classes of reefs--atolls, fringing and reap the benefits of its foresight in nurturing
barrier--can be studied in Hawaii. this fledgling industry which is destined to

6-8

play a critical role in future worldwide food R -1
production.

IM
The development of aquaculture has R!w"
potential in at least five different areas.

Production of Food for Hawaii

Aquaculture can be done in fresh
brackish and marine waters: only the' latter
two will be considered here. Because the value i
and demand for shorelands is high and
aquaculture must compete with other
demands for the land, it appears that
. . .......
aquaculture in Hawaii must produce high
R
value commodities such as shrimp, prawn and A
kumu in order to make a profit. Of these,
u
only the culture of prawn has progressed
h,
sufficiently to be a commercial enterprise.
Channel catfish are being successfully raised
Tap Pryor's Systemculture, Inc. foreseesa $50 million
and marketed on Maui and Oahu, but these industry in the next decade through series-farming of turtles,
markets may_ be limited. In most respects, algae, shellfish, crustaceans and seaweed.
marine aquaculture is at the stage where land
agriculture was a century or more ago.
Therefore, it needs considerable application Feeds for aquaculture production'must
oriented development work. H6wever, the be imported and are costly. Fishmeal and
aquaculture market in Hawaii is relatively vegetable material are the customary feed
,limited because of the State's small size. ingredients. These can be produced through a
type of aquaculture, now being developed, in
Production of Food for, Export which domestic and livestock waste is
recycled through aquatic plants- and animals.
It appears feasible to raise for export a When perfected, these schemes will reduce the
large number of food products of animal cost of aquatic and domestic feed stock while
aquaculture- -again, the high value varieties. helping - to alleviate the costs of sewage, and
This'depends, however, on world commodity waste disposal.
price s,'transp ortation factors and, to a certain
extent, on the development of the Production of Sport Fish and Baitfish
feed-producing schemes outlined below.
Hawaii's stock of sport fish is dwindling
as more people pursue our naturally limited
Production of Industrial Products fish populations and pollution takes its toll.
Demand for sport fish may therefore increase
Attached marine algae furnish valuable their economic value enough to stimulate the
industrial products (phyco colloids). The algae production of juveniles of certain sought-after
can be grown in tropical waters, but require angling fish. The Hawaii Institute of Marine
large shallow areas and a large supply of cheap Biology is engaged in pilot research projects
labor. . Their culture is likely to receive to make possible such replenishment of
emphasis on other Pacific islands. However, Hawaii's waters. As our tuna fishing industry
research and development for the expands, bait becomes a critical limiting
improvement of algae culture has been factor. Su pplemental bait c an either be
undertaken and. will continue to flourish in imported or homegrown. Several sp&cies,
Hawaii. especially mullet, juvenile kumu, and perhaps

6-9

mollies, seem promising for production here. Recommendation
Experimentation is in progress at the Oceanic
Institute and the Hawaii Institute of Marine 1. As a fledgling industry with promise of
Biology to develop reliable, and economically considerable benefits to the State,
sound rearing practices for bait. aquaculture research and development
should receive special consideration for
Aquaculture Research and Development. State support from the Legislature and
the Departments of Health, Land and
The outlook for aquaculture is Natural Resources, Agriculture, and
promising, but the industry needs the support Planning and Economic Development.
of local research and development expertise. 2. The Department of Planning and
Hawaii now occupies a leading position in Economic Development should
aquaculture research and development in investigate the economic potential of,
tropical marine species, and these capabilities and possible sites for, at least one pilot
should be strengthened and expanded. a4uaculture farm to operate in a fully
restored ancient Hawaiian fishpond.
An aquaculture farm in Hawaii may Also, since the Department of the
make sound economic sense when all its Interior, the National Parks Service and
multiple uses are considered. The restoration the United States Geological Survey are
of at least one ancient Hawaiian fishpond to considering a study of ancient Hawaiian
its original physical appearance, and its fishponds, the State should manifest an
subsequent operation as a commercial, active interest in this endeavor.
aquaculture facility, would have many
benefits. First, it would give an impetus to the
restoration of other fishponds which are HARBORS FOR FISHERIES
deteriorating rapidly. Second, it would help
to maintain a viable nucleus of aquacultural
expertise in Hawaii when other pressures are Hawaii .and the Sea-1969
driving this expertise from the State. Finally, recommended that: "The State should (1)
the aquatic plants and animals would furnish formulate and adopt firm plans for a new
another source of locally produced food. The industrial fishery center on Oahu, e.g., at
fishpond, operator could supplement his Keehi Lagoon as proposed in a 1961 Master
income by simultaneously using the pond for Plan prepared by Donald Wolbrink and
commercial recreational fishing. Associates; (2) formulate plans for the

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Floating net cage laboratory is used for experimental rearing
of marine fishes; baitfish availability may be solved through
HIMB *research programs on mullet larvae.

6-10

redevelopment thereafter of Kewalo Basin to in the construction of four new fishing boats
provide increased wharfage for charter boats and will probably help finance more in the
and cruise ships; and (3) initiate long-range future. The Task Force feels that this program
plans for the creation or expansion of similar has been a most important factor in the
fishery-industrial and charter-cruise boat recent growth of Hawaii's fisheries.
centers on the Neighbor Islands."
Recommendation
Neither the 1961 nor 1969
recommendations seem to have resulted in the The Fishing Vessel Loan Program in the
desired action; the situation at Kewalo Basin, Department of Land and Natural Resources
for example, is becoming critical. should be continued and, if possible, should
be expanded.
Recommendation
Under the existing program, there are
The State should sponsor a series of certain limitations on the fishery that these
harbors and commercial marine basins for vessels may enter. We would like to point out
fisheries throughout the State, which should that under the Farm Credit Act of 1971,
eventually become self-supporting or through local Production Credit Associations
revenue-producing. Action responsibility, we or the Federal Intermediate Credit Bank of
believe, should be shared between the Berkeley, which services the State of Hawaii,
Department of Transportation and the it is now possible for prospective fishermen to
Department of Land and Natural Resources. obtain financing through the Farm
Cooperative Bank. This type of financing is
We have been informed that Honolulu's especially favorable for the construction of
fresh fish fishermen feel that Kewalo Basin is, small vessels for inshore fisheries.
and will continue to be, hopelessly
overcrowded and they want to relocate to the
Pier 15-18 area. This would place them nearer The Departments of Land and Natural
the fresh fish.markets, more effectively utilize Resources and Agriculture should investigate
an underused part of Honolulu harbor and the availability of loans for fishing vessels
add a touch of local color to the downtown under the Farm Credit Act of 1971 and
waterfront. We have also been told that the prepare a brochure of this information for
Department of Transportation supports this distribution to active and prospective fisher-
request. The Task Force thinks the relocation men in the State.
request is reasonable and should be granted.

FISHERIES EDUCATION
LOANS TO ENCOURAGE FISHERIES

We noted that Hawaii's fisheries have
The development of viable commercial not been sufficiently profitable to attract new
fisheries depends upon suitable port facilities fishermen; few new vessels have entered our
and favorable market conditions. The latter fisheries. Furthermore, in our largest fishery
condition appears to be developing, but needs (aku), nearly half the fishermen are foreign
further State encouragement. The State nationals. Thus, Hawaii's fisheries will soon be
should set realistic product standards, provide seriously hampered by a lack of technically
training opportunities for potential fishermen skilled manpower. The State has the
and provide financial aid to the industry in capability, through its University system and
form ofloans. assisted by the Department of Planning and
Economic Development, to train citizens in
The State presently has a good Fishing the skills necessary to operate fishing vessels.
Vessel Loan Program, which was instrumental In addition, the State, perhaps through the

6-11

East-West Center at the University of Hawaii, College should be given sufficient support to
has an opportunity, if not an obligation, to turn out 20 graduates of the program per year
provide training in fisheries for people and provide short intensive courses on specific
elsewhere in the Pacific area. subjects to fishermen who wish to upgrade
their skills. Here, action should be the
Recommendations responsibility of the University of Hawaii and
the Department of Planning and Economic
The embryonic commercial fishing Development.
training program at Leeward Community

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6-12

CHAPTER 7: MARINE MINERAL RESOURCES industry representatives now estimate that
total sand consumption in Hawaii will reach
1,200,000 to 1,400,000 cubic yards per year
by 1985.
The material considered here was
presented in Hawaii and the Sea-1969 in a Most of the sand being mined in Hawaii
chapter entitled , Living and Nonliving comes from Papohaku Beach, Molokai.
Resources. The decision to separate this Mining operations there are presently involved
chapter from the one on living resources is in litigation with the State and, in any event,
due to the increased potential now envisioned are scheduled, to terminate in 1975 in
for marine mineral resources and the accordance with the Shoreline Setback Act of
distinctly different management needs for 1970, as amended in 1973. That Act will
these two types of resources. The increased prohibit mining after 1975 between the
potential is evident in the high industrial coastal setback line and an offshore point
interest which has arisen in the mining of which is (1) at least 1,000 feet from shore and
ocean manganese deposits. The management (2) in water at least 30 feet deep.
needs peculiar to seafloor mineral resources
are obvious considering the problems of their Since the cost of importing sand from
exploitation and (territorial) jurisdiction. outside the State is generally agreed to be
prohibitive, the only remaining sources of
In studying marine mineral resources, sand for Hawaii after 1975 will be:
we had a special mandate to examine sand
and gravel, manganese ores and precious I .Dunes or backbeach deposits located
coral. Separate sections of this chapter deal inland from the shoreline setback area.
with each of these resources. An additional 2. Coralline limestone, lithified sand or
section summarizes present opportunities and basalt, via crushing into manufactured
problems for a variety of other nonliving sand.
marine resources; including ocean-derived 3. Offshore deposits of the seafloor, taken
power, minerals of the sea volume and from beyond the exclusion zone.
nonmetallic minerals from the seafloor.
Basalt is currently being crushed for
Precious coral has been included in this gravel and sand on Oahu. After July 1975, the
chapter, though it is a living resource, for four firm that is presently removing sand from
reasons: (1) it is a sessile (nonmobile) Molokai also plans to increase their
resource, (2) it occurs relatively deep, (3) its manufacture of sand from basalt rock on
mode of exploitation has much in -common Oahu. Its plant will have an initial capacity of
with the technologies needed for seafloor 520,000 tons (approximately 500,000 cubic
mining, and (4) its renewal rate is extremely yards) per year and this output could be
slow compared with rates typical of fishery doubled. Another firm has received approval
resources. to mine about 112,000 cubic yards of sand
per year for the next 15 years from
backbeach deposits at Mokuleia, Oahu.

SAND AND GRAVEL It is probable that these sources could
supply Hawaii's construction needs for the
next decade and perhaps for an indefinite
Hawaii's supply and demand situation time. They do have certain disadvantages.
for sand and gravel has not changed 9 Neither of the two planned sites will be
significantly since the 1969 report was directly responsive to the needs of the
published. Approximately 800,000 cubic Neighbor Islands, which must either
yards of sand and gravel were mined from develop alternative sources or pay a
land sources in Hawaii at that time. Local premium for inter-island shipment.

7-1

We have witnessed considerable and Offshore Sand
growing opposition to the use of
shoreside sand for construction. First, it Working under Sea Grant funding,
requires that mining operations take researchers at the Hawaii Institute of
place within the coastal recreation and Geophysics have inventoried sand deposits off
living zone, in just those places which leeward Oahu, Molokai and Maui. Support for
are likely to have the finest beaches. these resource surveys is being discontinued
Second, it may be decided that a higher under Sea Grant. Over 300 million cubic
and better use for deposits of this type yards of sand have been located off Oahu and
would be, because of their consistency, about 4 billion yards of sediment (an
in replenishment of eroded beaches. undetermined amount of which is sand) have
The crushing of basalt, if carried out at been located off Molokai and Maui.
the level now planned, poses potential Furthermore, research personnel in the Ocean
dangers to the environment because of Engineering Department at the University of
dust, noise and aesthetic degradation. Hawaii have de:signed and tested a hydraulic
We are equally concerned about the sand mining system; operated from a small
energy cost required to crush basalt into
sand-sized particles. At a time when
energy is in short supply and becoming
shorter, we believe that a c
oncerted
effort should be underway to avoid
5,
such energy-iiitensive mining
techniques.

The need for benthic (ocean bottom)
A,%%V,4GA
sand must be considered as part of the total
ly
needs for sand within the State. This requires
consideration of the availability of alternate
land deposits, from the backbeach area and
MH
rock deposits suitable for crushing. Some
V
deposits have already been committed to
urban development, which effectively
@'i
removes them from potential use. Many other
areas may be similarly committed to
@developm'ent over the next 30 years.
Furthermore, the noise, dust and traffic
caused by rock-crushing operations generally
make them unacceptable in close proximity
_5
_q,
nnw
Rg'ng z
to urban areas if environmental quality is to
be preserved.

Recommendation The University of Hawan" sand mining dredge has proven
successful in pilot tesM
The Department of Land and Natural
Resources should complete, within the next 2 vessel with minimum crew, which should
years, a report estimating the volume and reduce the adverse environmental effects
quality' of all potential sand and gravel caused by the inore conventional dredges. The
deposits, both land and marine, which are system has yet to be tested and proven
available within the State. The report should effective in an actual sand mining operation.
stipulate any conservation measures necessary A test is planned for execution within the'
to assure their continued availability. next year.

The Shoreline Setback Act, as amended

7-2

by the 1973 Hawaii State Legislature (Act current law be clarified to replace arbitrary
107), permits sand removal in the offshore distance and depth limits for exclusion zones
zone of the territorial sea if the mining takes with limits which are based on specific
place at least 1,000 feet from shore or in knowledge of environmental conditions? The
water depths greater than 30 feet. This last two questions are discussed in Chapter 4.
alleviates a major obstacle to offshore mining
in the 1970 Act. Additional obstacles remain. Recommendation
Doubt still exists as to the environmental
effects and the economics of offshore sand The Department of Land and Natural
mining; much of the sand located has not Resources should begin immediately to clear
been of suitable quality for use in structural the way for an orderly transition to use of
concrete. Also, there appear to be offshore sand by:
uncertainities within the Department of Land 1. Encouraging and supporting small,
and Natural Resources concerning the well-monitored, pilot, sand mining
application of the restrictions to offshore operations by both private and
mining. The intent of the changes to Act 107 University groups.
was to prevent the removal of sand which was I Conducting more detailed resource
part o 'f the natural beach system. Sand surveys and sampling selected offshore
located at depths and distances specified in sand deposits through increased support
the Act is believed to be effectively removed of the University of Hawaii's sand
from the natural system in many instances, research project.
but this premise may not be true for all 3. Supporting additional research by the
environments. This subject is discussed University of Hawaii into the
further in Chapter 4. environmental and technical aspects of
offshore sand mining.
It should be recognized that benthic
sand could, in 10 to 20 years, replace the land
as the major source of sand for construction
and beach nourishment in Hawaii. The use of PRECIOUS CORAL
such sand as a supplemental supply could
begin almost immediately. This is especially
true on Neighbor Islands such as Hawaii, When Hawaii and the Sea-1969 was
where sources for land mining are not published, the precious coral industry in
available. The successful use of these sand Hawaii was about 10 years old. Since that
deposits depends on continued research to time, it has grown from an industry
determine the quantity and quality of the employing about 200 persons and producing
material. retail sales of $2.5 million to one employing
about 500 persons and producing retail sales
We believe that the offshore sand of $7.5 million. This figure compares to the
deposits already discovered under the world annual production at the retail level of
University's Sea Grant research project have $200 million. Clearly, there is considerable
the potential of satisfying State needs for room for continued growth of this industry,
many decades. The recommendations we which at the present time is dominated by
make below address the problems not yet production in Japan and Italy. The very rapid
solved. What is the total volume and thickness recent growth of the precious coral industry
of the most promising offshore sand deposits? in Hawaii is due primarily to three
What is the quality of the sand in these factors: (1) a steady rise in tourism, (2)
deposits and how does it vary with vigorous merchandising efforts by those
sub-bottom depth? Can commercially locally involved in the industry and (3) the
economic mining of offshore sand be results of a current State, Sea Grant and
demonstrated? What are the environmental industry-supported research program at the
impacts of such a mining operation? Can University of Hawaii.

7-3

The precious coral industry in Hawaii and Makapuu beds. All of the occurrences are
began about 1958 with the discovery of a in depths near 1,200 feet. The Makapuu beds
large bed of black coral off Maui. A second have been surveyed extensively, using
impetus to its growth came with the discovery advanced underwater techniques such as
of pink coral off Makapuu, Oahu, in 1966. photography, underwater television and
Both varieties have increased value from submersibles. Estimates of the standing crop
processing and setting in jewelry. The value of of that bed and a description of a method to
the raw material may be as little as 10 percent harvest it have been made by Dr. Richard
of the retail sales price. An economic report Grigg.
on the industry has been prepared by
Kok-Kian Poh. The. potential for growth of the
precious coral industry was emphasized in
The local supply of black coral appears Hawaii and the Sea-1969, which made the'
to be adequate for the current needs of the following recommendations:
Hawaiian industry, although there is a need
for regulations to control the rate of harvest. I .The Secretary of the Interior should be
Recovery of pink coral locally has been informed of the importance of precious
supplemented by Midway coral obtained in coral as a potential growth industry in
Japan (dredged from the Milwaukee Bank at Hawaii and be urged to include corals in
the northwestern tip of the Hawaiian the list of creatures of the Continental
Archipelago). Ironically, a depression in the Shelf.
world market for pink coral, which occurred 2. The State should take the lead in
around 1967, was caused by Japanese conducting a survey of the precious
exploitation of shallow banks off the Midway coral resource along the Hawaiian
portion of the Hawaiian Archipelago. Archipelago, especially in the
Northwestern -Hawaiian Islands area.
In addition to the beds off Makapuu 3. The State should encourage the
and Midway, pink coral has been found off development of a more economical
Kaena Point, Necker Island, Brooks Bank and harvesting technique.
4. The Federal Government should clarify
the ownership status of offshore banks
which geologically form part of the
Hawaii Archipelago.
pj
Considerable progress has been made in
response to these recommendations and in
other aspects of the industry. First, precious
coral was included as a creature of the
Continental Shelf by amendment to the
Bartlett Act (Public Law 88-308) in 1971.

Second, the Sea Grant program at the
University of Hawaii has conducted a partial
survey of the resource. However, considerably
more exploration, especially off islands of the
northwestern end of the chain, is needed
before the entire resource can be accurately
Pink coral colonies have supported a successful jewelry assessed. The economic value of pink coral in
industrV in Hawaii. the Makapuu bed has been estimated at $2
million. The annual maximum sustained yield
French Frigate Shoals. Commercial feasibility of raw coral from that bed is estimated to be
has been demonstrated only for the Midway worth $100,000. Two other species of

7-4

potentially valuable precious coral, bamboo coral beds, the Department of Land and
and gold coral, have been discovered in Natural Resources should encourage
Hawaiian waters. development and demonstration of
techniques (e..g., tethered, controllable,
Third, a technique for harvesting coral unmanned systems) to lessen the
using a manned submersible has been present high costs of both exploration
developed and is currently being used and harvesting.
commercially off Makapuu. This method 4. The Department of Planning and
permits selective harvesting, which is desirable Economic Development, working with
in order not to overexploit the renewable members of the local precious 'coral
resource. Management guidelines currently industry, should promote the
being developed by the University of Hawaii identification of Hawaii with precious
Sea Grant program will result in coral and ensure that this knowledge
recommendations to the State concerning size and other information concerning
limits and annual quotas. quality of the product reaches the
tourists who visit Hawaii.
Fourth, it has been repeatedly pointed
out to the Secretary of Commerce that
precious coral resources are currently being
harvested in 1,200-foot depths in Hawaii. MANGANESE DEPOSITS
Following the definitions and policy of the
1958 Law of the Sea Conference in Geneva,
this fact established, that precious coral in
Hawaiian waters is a Continental Shelf fishery In Hawaii and the Sea-1969, seafloor
resource and should support prohibition of all deposits of manganese were considered to be
foreign vessels engaging in its exploitation. a potentially valuable resource for future
Nevertheless, it is not likely that the United exploitation. Today, pilot programs for their
States will enact specific legislation mining are underway and backed by private
concerning this problem until the next capital. The Pacific deposits appear certain to
International Law of the Sea Convention has be the first to be mined.
convened this year.
Since 1969, knowledge of the origin,
Recommendation distribution, concentration and seafloor
properties of manganese nodules has greatly
1. The future of the precious coral increased. Much of the knowledge which has
industry in Hawaii depends on a reached open literature is due to acceleration
continuing supply of raw material. The of academic studies, many at the University
Department of Land and Natural of Hawaii, caused by the initiation of a
Resources, working with the Office of project supported by the National Science
the Marine Affairs Coordinator, should Foundation's Office of the International
undertake sufficient exploration, Decade of Ocean Exploration (IDOE).
mapping and documentation of the Industrial participation has been related to
total state resource to ensure that the potential of marine nodules for copper,
adequate raw material is available to the nickel, manganese and iron recovery. Such
coral industry and adequate knowledge industrial companies include:
is available in the public domain.
2. In the meantime, the Department of 1. Deep Sea Ventures, InelTenneco, Inc.,
Land and Natural Resources should who have identified several candidate
develop measures to manage and ore bodies, demonstrated a successful
protect this valuable natural resource. airlift hydraulic dredging technique in
3. Concurrent with efforts to promote 2,400 feet of water, provided a
exploration and discovery of precious successful operation of a 1-ton/day

7-5

pollution'-free" hydrochlorination engineering and systems studies for
chemical process pilot plant for the nodule recovery.
extraction of pure metals, and 6. Sumitomo Group (MITI) consists of the
conducted preliminary marine Japanese firms and government agencies
environmental studies associated with which conducted the CLB test in
recovery operations of nodules at sea. conjunction with ORI. This group has
2. Hughes (Summa Company) has proposed the creation of a $227 million
developed a 51,000-ton prototype semi-public venture scheduled for 1977.
ocean mining ship, the Hughes 7. West Germany Group (AMR) has
GLOMAR EXPLORER, and has tested conducted research on nodule mining
a hydraulic dredge head for nodule recovery, origin, distribution and
recovery. metallurgical recovery, and supported
3. Kennecott Copper has participated in the vessel R/V VALDIVIA which has
several ocean survey cruises, has a huge been active in Hawaii since 1971.
data bank on the chemical and physical 8. Societe' le Nickel (CNEXO) has
properties of nodules in the Pacific organized exploration cruises close to
Ocean, has defined mine sites in the French Polynesia, participated in the
Pacific, and is researching processing CLB test, and done work in Hawaii.
technology.
4. Ocean Resources, Inc. (ORD has Each of these :eight major industrial
conducted exploration cruises in companies has been in contact with the
conjunction with the Japan Resources U n iversity of Hawaii Manganese Research
Association (Sumitomo Shoji Kaisha, Project (UHMRP). These contacts are
Ltd.), has developed and successfully normally cooperative research- ventures
tested a mechanical dredging system concerning knowledge of the origin And
using a continuous line bucket (CLB), distribution of manganese deposits in the
and has applied to the State of Hawaii Pacific. The UHMRP is a leading center for
for rights to survey the Kauai Channel Pacific Ocean mining research and
for the purpose of economic recovery development on both a national and
of manganese crust deposits. international scale. Under an IDOE-NSF
5. International Nickel Company (INCO) research program, it is coordinating all
has conducted research, exploration, international exchanges and research in these

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Manganese nodules are generally found at depths much
greater than the "crusts" of the Kauai Channel.

7-6

fields. In 1972 and 1973, international exploitation of the seabed.
conferences on the subject took place in
Hawaii. The legal basis for ocean mining is only
defined in the Convention on the Continental
At this time, there are two types of Shelf agreements made in Geneva. in 1958.
manganese deposits recognized in the Pacific: These agreements, however, are too vague to
I .Deep-ocean nodules with high copper serve as a reliable legal basis for ocean mining.
.and nickel concentrations. This uncertain legal picture regarding the deep
2. Archipelago crust deposits with sea is inconsistent with the- rapid technical
relatively-high cobalt and noble metal development of ocean mining capabilities,
concentrations. land-based pilot plants@ research and mine site
exploration. As a consequence, ocean mining
may well result in international litigations.
Manganese Nodules
Ecological concerns in, ocean mining
The nodules constitute the major deposits. require consideration of the recovery
They are located on the international seabed operation at sea, transhipment and the metal
and have been the principal interest in reduction plant at a land base. in regard to
ocean-mining recovery operations. These the ecological equilibrium in the deep sea,
deposits are generally located between the evidence to date suggests that it will not be
equator and 15'Nlatitude, and from 125'W to detectably disturbed by actual mining
1659W longitude in water depths greater than activities. Monitoring procedures to verify this
6,500 feet. The richest deposits are about 600 premise still need development. In connection
to 1,000 miles southeast of Hawaii. Hawaii is, with a metal reduction plant and its@solid and
therefore, the closest land mass and liquid waste products, the Environmental
@commercial center. Protection Agency, in conjunction with State
agencies, can provide proper guidelines for
The crust types of deposit were recently industrial operations. The technology is
discovered in Hawaiian waters; i.e., in the available to remain within current
channels of the main Hawaiian Islands. So far, environmental constraints. There is some
they have not been fully researched for evidence to show that the by-products of
distribution, element concentrations or ocean mining can be utilized in subsidiary
economic feasibility for exploitation. industries, such as the construction materials
Accessibility and the potential for legal industry.
control enhance interest in these deposits.
I Although the resource is termed
For both types of deposit, Hawaii is the manganese (or ferromanganese) nodules or
central land mass for ocean mining. It ca 'n, if deposits, much of the current industrial
the State chooses, create a social and legal interest focuses on the economic importance
base favorable to investment by this industry. of other metals contained within the ore. The
Investment would involve both the operations deep sea nodule deposits of ore quality in the
and research and development phases of the Pacific commonly contain about 1.4 percent
industry. Research units within the State,. nickel, 1.3 percent copper, 0.5 percent cobalt,
such as UHMRP, would be direct beneficiaries and 30.0 percent manganese. With a metal
of initial industrial investment. Specific recovery of 90 percent, I ton of manganese
problems, such as the legal jurisdiction, of nodules yields about 25 pounds of nickel, 24
deep sea marine deposits in the absence of an pounds of copper, 9 pounds of cobalt and.
international authority vested to grant 540 pounds of manganese.
concessions and control mining activities,
complicate the investment opportunities of Hydrometallurgical processing seems to
private industry. This also complicates State be the best process for metal reduction. The
versus Federal policy in areas of econornic sulfating, ch.lorinating or ammine-carbonating

7-7

reactions lead to concentrated metallic operational costs of mining, handling, or
solutions which have to be further refined. benefaction and hence, the values given are
Copper, nickel, cobalt and other metals can for the gross product and in no way represent
be removed from these metallic solutions by net values.
solvent extraction and electro-winning. Two
plants are in operation today: Ranches Cost of transportation for raw ores to a
Bluebird Mine at Miami, Arizona, and Bagdad plant may run as high as 25 percent of the
Copper at Bagdad, Arizona. This process, total costs for production and mining. Mining
however, may not be cost effective for costs can be as high as 38 percent, or as low as,
manganese nodules. 13 percent and processing can range from 44
percent to 72 percent. In order to minimize
The hydrochloric acid (HCI) leach costs of production, an ideal base of refining
process seems to be the most favorable for operations should:
recovery of Ni/Co/Cu/Mn. This process 1. Be close to the mining site.
includes an HCI leach, then an HCI 2. Have cheap electric power.
roast + leach, Cl, -roast + leach, NaCl + FeS, 3. Have adequate ship dock facilities.
roast + leach, a reducing roast, a NH, /NH4 Cl 4. Have reasonable land prices for the
pressure leach, a chlorinating regeneration metallurgical plant base.
step and, finally, the segregation of metals 5. Be in a trade route to the mainland,
and electro-purification. Japan or6ther markets.
6. Have a research center engaged in a
In order to effectively run a marine nodules project.
hydrochloric acid leach process, chlorine gas,
ammonia and electric power are required. A In addition, the mining site should be in
chemical corporation based in Hawaii is relatively shallow water. Several sites within
planning a chlorine production plant in the the State could provide most or all of the
Islands and probably can supply sufficient ideal conditions necessary to attract a
quantities of chlorine to fully support the complete manganese nodule industry.
hydrometallurgical process. Electric power
would not be economical for the process at A processing' facility for one 'million
the high energy costs of the present rate tons of crust per year might be visualized as
structure of the Hawaiian Electric Company. being the size of an oil refinery, requiring a
Therefore, an energy plant must be deep-draft harbor, needing as much as 200
constructed for the hydrometallurgical megawatts of electrical power, using chemical
process, or present facilities must be made less reagents such as chlorine and ammonia and
expensive. possibly requiring large quantities of fresh
water. The deep-draft ports of Kawaihae and
Hawaiian Manganese Crusts Hilo on Hawaii, Honolulu Harbor,,br the
proposed site at Barbers Point on Oahu and-
To illustrate the potential importance Port Allen or Nawiliwili on Kauai, would be
of these deposits as metal ores, the suitable examples of sites which could be
accompanying table has been prepared. The considered. The Big Island areas have
metal, content is based on actual analyses potential energy. resources that might be
which have been made of samples recovered, developed in future conjunction with this
from the crust deposits of the Kauai channel. need, either from volcanic heat or. from deep
These deposits are of immediate importance ocean thermal engines.
to Hawaii. The quantity of one million tons,
of crust is believed to be representative of
what a projected dredging operation might From the State's point of view, the
recover in one year. The value of the siting and specifications for a refinery must be
recovered metal represents current market environmentally acceptable. To ensure that
prices. No attempt has been made to calculate such a facility is constructed and operated in

7-8

ESTIMATED GROSS PRODUCT VALUE OF ONE MILLION TONS
OF HAWAIIAN MANGANESE CRUST

Projected Concentration Gross Product
Metal* Range Concentration Tons per Value in Millions
ppm* PPM Million Tons $ Ton**** of Dollars
Gold 1.0- 10.0 5 5 2,400,000 12.0
Silver 1.0- 10.0 5 88,000 0.4
Iridium 0.5- 2.0 1 1 8,000,000 8.0
Osmiurn 15.0- 38.0 20 20 6,400,000 130.0
Palladium 5.0- 20.0 10 10 2,600,000 26.0
Platinum 1.0-100.0 50 50 5,300,000 270.0
Cobalt 7500- 14000 8800 8800 6,400 56.0
(Shot Cathode) (0.88%)
Nickel 3500-8000 5000 5000 3,060 15.0
(Cathode) (0.50%)
3
Manganese Metal 150 - 250 x 10 200 x 10' 200 x 10' 660 130.0
Regular Grade (20%)
Iron 80 - 150 x 103 100 X 103 1100 X 103 80 8.0
(10%)
Titanium (Bar) 15 - 45 x 10 3 16 x 1013 16 x 10' 8,300 130.0
0.6%)

Total at 100% Recovery in millions of dollars 785
Total at 50% Recovery in millions of dollars 372

Total at 100% Recovery without Mn, Fe, Ti 515
Total at 50% Recovery without Mn, Fe, Ti 236
Total at 100% Recovery without Mn, Fe, Ti, Ni, Co 444

Total at 50% Recovery without Mn, Fe,Ti, Ni, Co 164

Notes:

This column represents the highest possible grade for each metal considered.
These are the observed ranges in parts per million (ppm) for one deposit in the Kauai
Channel. These analyses are based upon a very limited survey and number of samples.

The projected concentration represents a minable deposit which may be found in the
Hawaiian Archipelago after extensive surveys and analyses. Those concentrations are
calculated as being part of the reducible oxide phase of the ore.
""Metals Week, Oct. 8, 1973

This table does not allow for excessive mining of associated sediment (i.e., the silicate
phases), nor does it imply any analysis of processing techniques or potentials based on
deposit mineralogy. These and other problems must receive attention prior to any
serious approach to exploitation.

7-9

the best interests of Hawaii's citizens, several by the onshore manganese processing
planning steps are needed. If necessary, the plants. These assessments should
State should be prepared to offer the include environmental, social and
potential refiners tax and/or lease advantages economic impacts. . They should
to attract the type of new industry that consid& not only the processing plant,
environmentally concerned citizens can but supporting. plants for power and
accept. Here is an opportunity for the chemicals. The major companies
scientist, the architect, the engineer and the involved might be invited to Hawaii to
industrialist to prove that technological and confidentially discuss their plans and
economic progress can be made without sufficiently disclose their processes,
harm or danger to the. environment. The allowing such assessments to be.made.
recommendations stated below concern: first, 4. The Attorney General's Office should
a demonstration by the State of its interest in assemble a special task force of lawyers
a potential manganese nodule industry for and scientists to define and recommend
Hawaii; and, second, a rapid compilation of a legal position for the State of Hawaii
data on industrial requirements and regarding mineable deposits on the deep
environmental impacts of that industry so seafloor of the Hawaiian Archipelago.
that decisions can be both timely and
informed. For efficiency, economy and spe@ed,
these studies should be closely coordinated;
Recommendation perhaps through a State interdepartmental
council. (Note that specific recommendations
1. Accelerated support should be given by regarding a policy of sovereignty based on an
the State to the University of Hawaii archipelago concept are made in Chapter 3,
Manganese Research Program. The and recommendations concerning harbors are
scope of that program should be made in Chapter 8.)
expanded to produce a group which will
have outstanding competence and
knowledge in - all phases of the
marine manganese industry, especially OTHER OCEAN RESOURCES
mining and processing. Marine
environmental effects of the mining
operations should be researched by the In addition to precious corals, sand and
University and its work coordinated gravel, and manganese nodule/crust enriched
with Federal agencies such as EPA and deposits, there are possibilities of additional
NOAA. economically exploitable ocean minerals or
2. The Department * of Planning and resources near Hawaii. These include such
Economic Development should engage a minerals of the seafloor as zeolites, siliceous
consulting firm to research and write and calcareous oozes, clays and bauxite. They
a manganese industry report similar to also include minerals of the ocean volume,
the OCEAN POTENTIAL FOR such as bromine, chlorine, hydrogen and
HAWAII report made in the 1960's. magnesium. While their economic viability in
The report should look at the total sustaining. new Hawaiian industries is not yet
mining indu 'stry system, from research, clear, it may be that the synergism of a
development and exploration, through Hawaiian manganese industry would furnish
recovery of the ore and processing, to the catalyst necessary to make any of these
considerations of by-products and of resource areas economically profitable.
potential economic revenues.
3. The Department of Planning and The Marine Affairs Coordinator should
Economic Development should begin to monitor developments in the technology of
investigate and evaluate alternative extracting minerals from seawater and from
processes and sites which might be used generalized seafloor deposits. If technologies

7-10

are developed that are in keeping with SEPARATOR TURBINE-GENERATOR
Hawaii's standard of environmental quality
@and offer possibilities of new industry, the COOLING TOWER
WATER &
-Marine Affairs Coordinator should make this PRODUCING SOLIDS CONDENSER
fact . known to the people of the State. WELL
Because of the relationship of this technology REINJECTION
to the interests and responsibilities of the Pru MIP WELL
University of Hawaii Manganese Research
Project, that group might be assigned working
responsibility for this task. Schematic of planned geothermal condensing-type generator.

Hawaii's interest in geothermal energy is believe this geothermal/solar/ocean energy
accelerating rapidly and presently is focused system has even greater potential and national
on a joint Federal/ State/County investigation interest. Hawaii is uniquely blessed as a
of the energy-producing potential of the candidate site for a demonstration project,
volcano area on the Big Island. A more recent since it combines in a single area volcanically
concept would join the high temperatures heated rock, nearby deep water and high solar
available from the geothermal rock mass to elevation angles.
the low temperature of nearby deep ocean
water, to increase the difference temperature Recommendation
and, therefore, the effectiveness of the power
conversion system. Additional features of the The State Marine.Affairs Coordinator
concept include. an input of solar heat to should take a leading role in development of a
increase ;energy flux, and generation of proposal--with shared support from the
nutrient flows from deep water to the surface State, from the Federal government and from
in support of aquaculture. Local and Federal industry--to demonstrate the feasibility of a
interest in, and funding of, the geothermal geothermal/solar/ocean system to produce
research project is high; in fact, considering energy in Hawaii. The demonstration should
the general austerity of research and determine both economic and environmental
development budgets, it is very high.. We feasibility, of the system.

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7-11

CHAPTER 8: MARINE TRANSPORTATION a more versatile inter-island transportation
AND INDUSTRY system. This system, in fact, must precede the
development needed by the Neighbor Islands.

We believe that Hawaii's economic
health is closely tied to its ability to wisely THE NEED FOR DISPERSION
and completely utilize its many marine
resources. As these resources are developed,
we also believe it is an environmental Data from the recently published "Atlas
imperative that the goals and methods chosen of Hawaii" and the "State of Hawaii Data
be in a direction to divert future increases in Book" show that the Neighbor Islands are
economic opportunity and population away apparently just reversing a long downward
from Oahu and toward the Neighbor Islands. slide in population. Molokai and Maui have
approximately the same population they had
Marine opportunities to support such in 1832. Hawaii and Kauai have populations
diversion are especially evident in those equal to the levels of 1920. Oahu, on the
industries for which Hawaii has, or can have, other hand, has more than 20 times the
an essentially "throughput" role; i.e., as a way population it had in 1832 and more than' 5
station for minerals or foods which touch our times the population of 1920. Some
shores only for processing, then are exported enlightening statistics are summarized below.
to foreign or mainland consumers. Primary
candidates for such industries include While Oahu has a highly diversified
processing of manganese nodules and employment base, the Neighbor Islands are
crusts, refining of crude oils, conversion primarily dependent on industrial agriculture
of geothermal/solar/ocean energy into (sugar and pineapple) and tourism. Both
exportable fuels such as hydrogen and, to a industries have a high dem 'and for unskilled
lesser extent, processing of fish, shipbuilding and slightly-skilled labor and are noted for
and fabrication of jewelry from precious their relatively low wages. The median family
corals. income in the Neighbor Islands is uniformly
$3,000 per year lower than on Oahu.
We therefore suggest that marine
industries described here and in Chapter 7 be Another insight is gained from a look at
considered both for their absolute economic population-age statistics for the islands.
value to Hawaii and their potential value as Compared to Oahu, the Neighbor Islands are
tools for the wise development of the characterized by a higher percentage of
Neighbor Islands. For this development to children (through high school age), and a
take place, we suggest that Hawaii must have much higher percentage of adults above age

Indicators and Trends Oahu Neighbor Islands

Population Large and growing Low growth rate, except for Maui
Age Distribution Normal curve Low in the age group 20-40
Labor Base Diversified Agriculture and tourism
Employment Increasing Declining, except for tourism
Family Income High Uniformly $3,000 less per year than Oahu
Income Trend High Falling farther behind
Density (people'per square mile) More than 1, 150 About28
People Per Mile of Shoreline More than 3,300 About 190

8-1

5 5. They have a sharply- lower percentage of if it can be entered at the level of the small
residents in the 20 to 40-year-old entrepreneur).
wage-earning age group. This implies that
many residents of the Neighbor Islands We are accustomed to thinking of
emigrate to Oahu (or out of state) in order to Hawaii as a "pocket market", one for which it
find employment. The median population is normally easier to import a product than to
ages are 4.3 - to 5.1 years greater in the produce it locally. This attitude has been
Neighbor Islands than on Oahu. With the particularly true in the case of table-crop
higher percentage of children on the other agriculture. We submit that if Hawaii is a
islands, this difference should be almost 14 pocket market", it is a very large one. In
reversed. 1970, for example, the islands imported
$172,000,000 worth of food. The percentage
Industrial agriculture, as practiced in distribution of sources for a number of fresh
the past, does not seem to hold the answer to foods is listed below.
the needs of the Neighbor Islands. If
anything, the employment trend in sugar and Note the hicrh dependence on imports
pineapple seems to be accelerating downward. for many products that could readily be
Replacing their single-industry economy with produced in the islands. Note also that
another (tourism) leaves little freedom of crowded Oahu, in the face of high land costs
choice and vulnerability to the peaks and and encroaching urbanism, equals or out-
valleys of that industry. We advocate a strong produces all the other islands put together,
continuing effort on the part of the State to except for beef products.
infuse enough varied industry into the
Neighbor Islands so that, for their citizens, Chapters 6 and 7 discuss a number of
the place and type of employment can be a new or growing industries which could
matter of choice, not of necessity; so that logically be located on a Neighbor Island. For
median family incomes can provide normal example:
living conditions; so that some of the pressure Hawaii's fishery industry should extend
of increasing population can be removed from its ' reach into the Northwestern
Oahu. Hawaiian Islands, as well as into the
equatorial upwelling zone to the south.
Industrial Candidates for Dispersion The northern fishery could be
supported from Kauai. The Big Island
Possible immediate candidates for such harbor at Hilo should be considered as a
dispersion include diversified agriculture support base for equatorial fisheries.
(especially truck gardening), light Oil refining was described earlier as an
manufacturing (especially of goods for export example of a "throughput" industry,
or as alternatives to goods now being and need not (in fact, should not) be
imported), education and research (as located near a population center. Once
Aransfers from Oahu) and tourism (especially the constraints of an adequate harbor or

Imported From Produced in Hawaii
Mainland Foreign Oahu Non-Oahu
Fruit/Vege tables 56% 5% 19% 20%
Beef/Veal 26% 26% 4% 44%
Pork 64% - 25% 11%
Poultry 68% 27% 5%
Butter 9317,, 7%
Rice 100%
4gs 417o I % 69% 26%

8-2

offshore terminal and suitable INTER-ISLAND MARINE TRANSPORTATION
environmental safeguards are met,
plants of this type could be located on
any of our islands.
Hawaii is unique among the fifty states
The ocean manganese industry seems in that it is an archipelago, a small group of
certain to come to Hawaii, although the land masses separated from the continents
time and magnitude of its coming is not and isolated from each other by broad
yet known. This industry, and the expanses of open ocean. The economic,
supporting industries it will require, are commercial and cultural integration of our
major candidates for location on a islands must take place with only two
Neighbor Island. alternative inter-island links--the airplane or
marine transportation.
The Big Island should be a "best"
(perhaps only ) site for a Two other states, Washington and
geothermal/solar/ocean energy complex Alaska, have environments which pose
and the hydrogen export industry it analogous problems. Both have a geography
could support. which interposes broad stretches of water
between and among their population and
A number of other examples are readily industrial centers. While they do have the
found where industry is economically ripe for alternative of building roadbeds around the
location or relocation on the Neighbor water barriers, both have responded directly
Islands. But creation or installation of these to the challenge through the construction and
industries cannot precede the transportation operation of thriving marine transportation
system which must sustain them. This is systems. The multi-purpose ships of these
especially true for the truck farmer, whose systems carry foot traffic, cargo, automobiles,
natural market will continue for the indefinite buses and trucks, and do so at a fair profit.
future to be located on Oahu. The Neighbor Hawaii, on the other hand, has at present only
Island farmer must have access to an efficient a barge system in operation.
transportation system which can help reduce
the number of commercial interfaces between This has not always been the case.
him and the consumer. Presently, he must Regularly scheduled service among the islands
operate remotely from that consumer, began in the 1850's with the steamships
separated by the shipper, jobber, wholesaler CONSTITUTION and AKAMAI. Between
and retailer. Often he must ship produce by 1877 and 1949, as many as a dozen
consignment to the Honolulu wholesaler, steamships operated in inter-island service.
where it is placed in competition with World War 11 curtailed inter-island surface
mainland produce already purchased and traffic. The postwar impact of inexpensive air
owned by the wholesaler. Understandably, in service, with low cost surplus aircraft,
such cases, the local produce is given a lower subsidized rates and short travel times, finally
sales priority and may suffer severe wastage or resulted in the discontinuation in 1949 of
deterioration. commercial steamship service among the
islands.
As a goal, the Neighbor Island truck
farmer should be able, individually or as part Two abortive attempts have been made
of a cooperative, to take his own product to to reestablish this service. In 1950, Hilo
the market and deal directly, if he so desires, Navigation Company attempted to operate a
with the consumer. Understanding that other surplus ship from the' now-defunct
fundamental changes in farming technique are Inter-Island Steam Navigation Company.
necessary, we believe that a comprehensive Service was terminated in 1952. In 1958 and
inter-island transportation system will help 1959, Hawaiian Water Transportation
achieve this goal. Corporation operated four converted patrol

8-3

boats in inter-island ferry service. ways to travel (21 percent). In looking at
surface alternatives to air transportation,
Current Status respondees felt that such systems should offer
comfort, safety, cost savings, dependable
'Today, Hawaii's primary inter-island scheduling and the ability to carry
surface transportation service is that offered automobiles, sports equipment and boats.
by Young Brothers' tug/barge cargo system.
That company is not allowed to carry The main conclusions reached by the
passengers aboard either tug or barge, so survey were that Hawaii's citizens are ready to
Hawaii has had no inter-island marine accept and use inter-island surface
passenger service since 1959. This has forced transportation, if it can offer a comfortable
the islands into a commercial and cultural safe ride and can be operated at reasonable
relationship totally unlike that of any other fares.
state. On the mainland, and in most foreign
countries, people and goods can travel by air, Currently Planned Systems
auto, truck, bus, train or ship--singly or in
any combination of these. In Hawaii, people Four additions to Hawaii's inter-island
must travel inter-island by air, with no surface transportation capability are either
commercial options. Commerce must move nearing reality or have reached the stage of
by ship, except for tfiat small percentage of public discussion of plans.
high value freight which can be carried by our
airlines. People and goods cannot travel Barge Ship
together.
Young Brothers, Ltd., is studying the
We have described the impact of this concept of a self-propelled barge to replace its
situation on the truck gardener or small older barges in inter-island commerce. These
manufacturer. The same situation affects the ships would probably serve all harbors now
private citizen. Today's Hawaii resident pays reached by the existing tug/barge system and
more to travel inter-island than a tourist, yet would make direct round trips between
disembarks with the status of that tourist, Honolulu and each destination.
supported only with the hand.baggage he can
carry with him. A family could ship its The barge ships would be designed
automobile by barge while traveling by air, and scheduled -to carry cargo, including
but suffers a number of logistic obstacles in roll-on/roll-off heavy vehicles, but may be
the process- - different departure and arrival
times, for example, with different departure
and arrival ports.

During the summer of 1973, two h
students from the University of Hawaii's
Marine Option Program conducted a public
opinion survey of citizen attitudes toward -,E
-island transportation. Their report is
inter
included in this document as Appendix C.
The survey attempted to determine what
factors were considered most important by
residents as they traveled or planned to travel
among the islands. The students found that
more than half of those interviewed were
dissatisfied with the present (air) system,
primarily because of its expense (37 percent) Dillingham's Youn Brothers barges serve the bulk and
and a feeling that there should be alternative container needs 7 the Islands. The tug, MALANAE, is
owned by Hawaii Tug and Barge Company.

8-4

designed to carry passengers and vehicles.
Their slower and rougher ride and their cargo
scheduling emphasis, probably, would not
,allow them to compete freely with the
hydrofoil for passengers or with. a more
conventional ferry ship for auto/passenger
traffic.

Boeing 929 Jetfoil
7n;

T
Pacific Sea Transportation, Ltd. expects
to have the first of these crafts operating in
Hawaii by late 1974. Two additional units are
on order and should arrive early in 1975.

Advantages expected for the jetfoil
include high speed (45 knots) and a smooth
ride in moderate seas. The jetfoil will carry Pacif ic Sea Transportatio'n"s Jetfoils are under construction
passengers and their hand baggage, but no And planned for passenger service in 1974.
heavier cargo. Present plans call for travel
between Oahu and Maui, Kauai and Hawaii. If
traffic conditions warrant, Molokai and I flnai
could be added to the trip schedule.
Semi-Submersible Ship (SSS)
Hulten Ferry
The semi-submersible ship is being
Under the leadership of Senator John developed by the U. S. Navy as a potential
Hulten, Hawaiian Inter-Island Ferry System, replacement for conventional monohull ships
Ltd. plans to operate two conventional in the 200 to 10,000 ton displacement range.
ship-type ferries, each having approximately Stability at all speeds is gained through the
6,000-tons displacement. The ships will be use of fully submerged buoyancy hulls. This
equipped with roll stabilization devices that approach also reduces wave drag, allowing a
should provide a comfortable ride under most higher speed-to-power ratio.
weather conditions. Without major harbor
improvements, Senator Hulten's ships cannot A 190-ton seagoing model, designed by
provide service to Molokai, Lanai or the the Naval Undersea Center's Hawaii
leeward side of Maui. They will be designed to Laboratory, has been built at the Coast Guard
carry automobiles and trucks. shipyard in Baltimore, Maryland. This craft is
presently undergoing sea trials, the results of
which should be available early in 1974.

House Bill 1518, introduced in the
1973 legislative session, but not yet passed,
A"
would build a c o p y of the Navy model for
demonstration in Hawaii and at the 1975
Okinawa Marine Fair. The primary advantages
of the ship concept include: (1) a high degree
of stability in heavy seas, (2) the ability to use
Hulten Ferry concept offers roll-on/roll-off capability. relatively unprotected harbors, (3) a box-type

8-5

superstructure for more efficient packing of this year, such funds could not be used for
cargo and (4) a design based on simple any system whose ships crossed international
cylinders and box frames which might allow waters. (All of the channels between Hawaii's
i
lands are wider than six miles and therefore
s
""J
v
contain a section of international waters.)
-5,
Z,C
The new law makes a state-owned ferry
system, including highway approaches and
terminals, eligible for Federal sponsorship of
70 percent of its design and construction cost.
4- If the ships are privately owned, only the
access roads are eligible for Federal support.

Elements Of An "Ideal" Marine Transport
System

Here, "ideal" is defined as a best
working compromise among (1) where we are
today, (2) the marine transportation system
The Navy's Semi-Submersible Ship (S S) should be closely we believe the State needs and (3) those
monitored for the unique solutions it offers in high speed, private and government resources which
rough water operation. should be available to close the gap. The
general characteristics which are desirable for
the ship to be built in Hawaii. Its primary all ships of the system include:
disadvantage is the current lack of verified
data on performance in high seas. (At least) those, ships carrying
passengers should offer a comfortable
Federal Sponsorship ride in Hawaiian waters, e.g., in the 8 to
12-foot waves of a fully developed Sea
An important new factor entered the State Five.
picture this year when the President signed The system should allow stops at least
Public Law 93-87, the Federal Aid to once a day at each of Hawaii's six major
Highways Act of 1973. This law specifically islands. This minimum service should be
grants to Hawaii the right to apply for Federal guaranteed so users can count on its
support for an inter-island ferry system. Until long-term continuance. On the same
basis, runs should be scheduled to
connect the Neighbor Islands.
The combination of ship speed and
scheduling should allow daylight service
(12 hours maximum) between Oahu
and any Neighbor Island.
Fares must be set to take into, account
the needs of the low-income citizen and
the small businessman.
The total system must be able to
accommodate cargo, foot passengers
and roll-on/roll-off vehicles.
It would be highly desirable if the
design of each ship allowed it to be
built in Hawaii, to retain funds within
Proposed inter-island route would provide daily service to the State and to foster a local
each island. shipbuilding industry.

8-6

We believe that a close approximation estabhshment of the complete inter-island
of this "ideal" system can be put together if it transportation system.
is based on three primary marine transport
components. Recommendation

Primarily Cargo Ships.' This need can The Governor should appoint a Hawaii
be met by the present tug/barge system State Transportation Committee, similar in
(suitably expanded), or, preferably, the function to the Oahu Transportation Policy
planned Young Brothers barge ship. It would Committee, to assist the Department of
be used primarily for bulk and nonperishable Transportation in planning a total State
cargos and need not operate on a daily transportation system.
schedule.
With the assistance of the Comn-dttee,
Primarily Passenger Ships. This type is the Department of Transportation should
exemplified by Pacific Sea Transportation's quickly develop, and put into action, a master
Jetfoil and should offer an exciting scenic ride plan for inter-island marine transportation,
among the Hawaiian Islands. While its greatest including ship types, schedules and harbor
appeal will be for the tourist, most Islanders support facilities. This plan should take into
will probably make at least one trip just for account current industry commitments,
the experience. The greatest value of the Public Utilities Commission authorities
Jetfoil may lie in the fact that, in the already granted, Coast Guard licensing
relatively near future, it will entice many options, the 1973 Federal Aid Highway Bill
Hawaii residents and tourists into making a and possible new State/industry partnerships
trip to sea. in order to provide the citizens of Hawaii the
best possible marine transportation system to
Ferry Ships. These ships would have a meet present and future needs.
hybrid nature; able to carry passengers as well
as r,oll-on/roll-off vehicles from automobiles Based on the best available information,
to trucks. Key ship features would include a the Department of Transportation should
comfortable ride in Hawaiian waters, prepare and substantiate, for submission to
moderately high speed (perhaps 25 knots), the 1974 Legislature, a bill to authorize and
rapid turnaround in port and the ability to appropriate the State's share of the cost of a
operate out of at least one port on every Federally-sponsoted inter-island ferry system,
major island. As is the case in Washington, including the cost of design and construction
ships of this type would support primarily the of both ships and shore facilities.
passenger-with-automobile and the trucker
carrying perishable or high value cargo. Because of the unique potential of the
semi-submersible ship as a ferry ship
We note that the first two of these three component of the inter-island transportation
ship systems are either well established or are system, the Department of Transportation
well underway with private funding. We should closely monitor and evaluate results
believe that the 'third system named, the ferry obtained by the Navy during sea trials of the
ship, is a critically-needed addition to 190-ton model of that ship.
Hawaii's marine transportation capability, and
the State should move rapidly to develop
plans and obtain Federal sponsorship for this
element. If private enterprise. can convincingly INTRA-ISLAND MARINE RAPID TRANSIT
demonstrate its ability to create and operate
the ferry ship component of the system, the The State of Hawaii and the City and
State should give whatever assistance it can; County of Honolulu are both deeply involved
but the State should not delay planning the in - a transportation debate which will have

8-7

profound impact on the citizens of this State bounds. At the same time, there are factors
for many decades. At stake is a rapid transit we have not seen publicized in past debates;
system for Honolulu, specifically the arterial factors which involve marine transportation
route which is planned for operation between and, therefore, State responsibility. We think
the Pearl Harbor area and Koko Head. these factors must be considered:
Alternatives include a fixed rail system,
expanded busing with.special highway lanes 1. Urban Honolulu, at least that portion

The Honolulu fixed-ioadbed transportation concept entails the dedication of many acres of valuable real estate; yet the City's
shape and geographic setting is ideal for a unique marine rapid transit system that would link up with shoreside bus terminals.

for rapid transit and a water-borne directly influenced by all proposed
transportation system. -forms of the rapid transit system, is a
strip city. In a 25-mile corridor between
We recognize that the issue is complex, Hawaii Kai and Pearl City, it is never
that it goes deeper than the technical more than 5@ miles wide, and in many
background we can bring to bear and we may places is much narrower.
be trespassing beyond our assigned political 2. All proposed transit systems would run

8-8

along this corridor. We are not recommending that only a
3. The proposed fixed-rail transit system, marine rapid transit system be built. We are,
like the Lunalilo Freeway, will form a however, suggesting that the marine system
permanent wall the length of this could take up such a large fraction of the
narrow corridor. Like that freeway, it total transit load that the remainder could
could have a degrading impact on readily be handled by conventional buses. It
population and housing trends in urban must be emphasized that our
Honolulu. recommendation does not touch the question
4. The proposed fixed-rail system will have of trans-Koolau transit, since it is highly
an estimated construction cost (1974 doubtful if marine transport around the island
dollars) of $1,000,000,000. Of this oan 'compete for passengers with a direct
amount, a minimum of $500,000,000 is cross-island route.
estimated to obtain rights-of-way and
build the roadbed. (San Francisco's For the marine rapid transit system to
experience with the BART system work, it must be closely integrated with bus
would lead, us to double or triple these routes and schedules ashore. This problem
figures.) was described to us as one of the most serious
5. If a marine rapid transit system were yet unsolved at the Seattle terminus of the
built as an alternative *to the fixed-rail Washington State Ferry Systm, (Nearly a
system, the roadbed would be free with -million passengers a year are put ashore on
an essentially unlimited number of lanes the Seattle waterfront, then must walk three
available. Almost all funds expended uphill blocks to the nearest bus stop.)
could be invested in people movers. Cooperation between State and City and
6. Additional costs would primarily County governments will 'be required to
involve terminal facilities and ensure that bus and, ferry stopping points and
improvement of ocean access channels. times are closely coordinated 'and a bus
The only major dredging requirement system is developed to connect homes to the
would be for the channel to Hawaii Kai marine terminals.
and - could be included in the boat
harbor already authorized by the We believe that the hydrofoil, or
Federal IRiver and'Harbor Act of 1965. -perhaps the semi-submersible ship (190-ton
7. The marine rapid transit system would class), would work well in this marine rapid
operate parallel to -the shoreline, but transit system. During off-peak, hours, the
well makai of established surfing zones. boats might be, operated on short,runs to
Its acoustic and visual impact on the other islands or on short round trips around
shoreline and land would be minimal Oahu under charter as excursion craft. As an
and it would transit the reef only initial test of the system, we suggest that a
through well established channels. marine "bus" be operated between Hawaii
8. The marine rapid transit system could Kai and downtown Honolulu to alleviate the
be installed one section or route at a traffic burden that exists on Kalanianaole
time. Its flexibility would allow Highway.
reallocation of vehicles as needed.
9. It seems likely that a marine rapid Recommendation
transit system able to compete in
passenger capacity with the fixed-rail The Department of Transportation
system could be built for 10 percent to should,. in close cooperation with appropriate
20 percent of the latter's cost. All offices of the City and. County of Honolulu,
systems should have equal access to private industry and the Oahu Transportation
Federal mass transit support, although Policy Committee, prepare a design, cost and
the uniqueness and environmental operating plan for the marine craft, terminals,
compatibility of the marine system access channels and intersystem connections
might give it an advantage. necessary to provide an integrated

8-9

Marine/Shore Rapid Transit System for Oahu. HARBORS

This Marine Transit System should be
planned to give service along the entire In the interviews and deliberations
leeward coast of Oahu from Pokai Bay t 0 leading to this report, we have noted a
Hawaii Kai. Longer term plans should be tendency@ to regard the State as-uniquely
made to (1) bring Molokai into the network blessed with a system of natural harbors
and (2) establish an independent marine which offer sanctuary for ships of all types
commuter network to connect Molokai, Maui and drafts against the seas and winds of our
and Lanai. mid-oceanic climate. This is not the case.

Tr
7"

,A
Y @4
i _0 -7
?@ go"m
V

-7-

W*
%
N
"WN
Ak
it
AN

V.'

PIERS P IERS PIERS PIER
1 5&6 8,99&10 PIERS 31 to 34 51
Container Falls of Clyde/ General CargD/ container Bert hS/
Berths PIER @loaTing Passenger Petroleum Petroleum
Restaurant Terminal Complex/ 19 to 23
Irter- sand General Cargo/
2 Ferry System Suga,/Gra,n
Shedded area PIERS PIER
is util@zed for
General Cargo/ PIERS
Conlamer Berths 35&36 40
15 to 18 Pineapple General Cargo
Commerc at
Fishing Fleet

PIERS PIER
P I @ER @Pl'r-'R -.4;

Honolulu Harbor, one of the world's finest port systems. 24to29 39
Generai Cargo Foreign Trade Zone
8-10

Today, the State does have an extensive efforts on the part of the State, the Federal
harbor system, but it is not natural and its Government and private enterprise, Hawaii
achievement has not been simple. has what can best be described as an
44 adequate" system of harbors- -adequate,
Pearl Harbor, for example, has been that is, in terms of our past and perhaps our
described as the largest natural harbor in the current needs. We submit that major
Pacific. But the deep channels and extensive improvements are needed to support Hawaii's
anchorages that we know today in Pearl needs over the next one or two decades.
Harbor did not exist at the turn of the
century. In fact, nearly a decade of dredging 9 1 Additional primary harbors will be
and blasting was required before the first needed to support transoceanic
capital ship could transit the entrance channel shipping. This will be especially true if
and enter the protected waters of the inner the Neighbor Islands are to break free
harbor. of the historic, pattern which has forced
their lines of commerce to flow through
Oahu, and Kauai to a lesser extent, have Honolulu and if they are to
been blessed with a series of drowned valleys accommodate the "dispersion"
which could be converted into spacious industries noted in the introduction to
harbors. This is not true of the other this chapter.
Neighbor Islands. There, the construction of * Inter-island harbors and terminals will
harbors began with geographic assets which be needed to support the marine
seldom consisted of more than an open bay, a transport system described earlier.
slight concavity in the shoreline, or the e Small local harbors and terminal
leeward side of a headland. On these less facilities will be needed for the Marine
fortunate islands, protected water was created Rapid Transit System.
through construction of costly breakwaters. 9 Additional marinas for recreational
Consider Kahului Harbor, Maui's only boating are required, as are more, fishery
deep-water port, for example. That harbor, as harbors. These have been described in
it is today, is the result of decades of Chapters 5 and 6, respectively.
continuing war against the elements; of
reconstruction following storms which These needs should not be considered
independently. It is possible, in fact, highly
probable, that a typical primary harbor might
simultaneously accommodate each of the
other functions noted above, or that an
inter-island harbor might also support craft
@yQ
for recreation, fishing and rapid transit.

Primary Harbors

As a goal, Hawaii should plan to have at
least one primary, deep-draft harbor on each
of its six major islands. These harbors may
Kahului Harbor, Maui differ considerably in shoreside support
capability and in total area of protected
damaged or destroyed earlier breakwater water, but all should be able to dock and
construction; of storms so intense that 30-ton protect transoceanic shipping. In both plan
concrete tetrapods were torn from the and practice, the Department of
-breakwater and thrown on the beach. Transportation is approaching this goal. We
believe priority emphasis should be given to
Today, as a result of often heroic the three harbors described below.

8-11

Kawaihae Harbor, Hawaii

The logical future of the northwest
corner of the Big Island, we believe, lies in
industrial d6velopment. This is especially true

Kaunakakai Harbor, Molokai

Barbers Point Harbor, Oahu

With major new developments being
Kawaihae Harbor, Hawaii planned for the Ewa plains, Oahu's center of
population is expected to move westward.
Also, expansion of Campbell Industrial Park
indicates a need for a second primary harbor
in the Barbers Point area. This appears logical
for those "throughput" industries identified from two points of view. First, with the
earlier, including oil refining, processing of requirement for increased shipping to support
ocean manganese ores and production of Oahu's economy, Honolulu Harbor will
hydrogen for fuel. To support this future, a become overcrowded. Second, the increasing
major expansion of Kawaihae Harbor is shipment of industrial materials in and out of
needed, including more docking space, Oahu will overload our urban transportation
additional support facilities and installation of system unless an alternate harbor is
offshore terminal pipelines. developed.

Kaunakakai Harbor, Molokai Recommendation

This harbor seems destined for multiple In completing and implementing its
usage, including functions as Molokai's only Master Plan for primary harbors, the
primary harbor, as a harbor for inter-island Department of Transportation should assign
commerce and as a potential link with an highest priority to upgrading of the
Oahu Marine Rapid Transit System. To- capabilities of Kawaihae, Kaunakakai and
support these functions, the harbor needs Barbers Point Harbors.
'additional support facilities and protection
from Kona storms. Because of the potential Inter-island Harbors
of such a harbor in helping to reverse
Molokai's current economic depression, we Each of Hawaii's six major islands
believe its construction should be given high should have at least one harbor which can
priority. accommodate and support inter-island

8-12

passenger and ferry ships. The Big Island Recommendation
should have two such harbors; initially
Kawaihae on the Kona side, with Hilo The Department of Transportation
planned as a destination port when the system should prepare and submit for approval and
funding a Master Plan for a system of harbors
to support an inter-island passenger and ferry
PF
system. The most critical point to be resolved
in this plan is the location of a leeward harbor
for Maui.

Harbors for Rapid Transit

@. . . . . . . . . . .
A series of harbor facilities will be
needed to support the Oahu Marine Rapid
Transit System recommended earlier. Since
this system will carry only foot passengers,
docking and terminal facilities can be
Hilo Harbor, Hawaii relatively simple and inexpensive. These
harbors should extend from Pokai Bay to
is expanded. A second harbor should also be Hawaii Kai and include several stopping
considered for Oahu--e.g., at Barbers Point, points.
Kaneohe Bay or Haleiwa--to relieve
congestion in urban Honolulu. Recommendation

Kauai (Nawiliwili), Molokai The Department of Transportation
(Kaunakakai) and Lanai (Kaumalapau) offer should prepare and implement a plan for a
straightforward choices of sites for series of small harbors for marine rapid transit
along the leeward coast of Oahu. Close
coordination with the City and County of
Honolulu will be needed to ensure that these
facilities interface effectively with land transit
systems. The harbors should be sized to
support craft of the approximate size and
draft of the Boeing J&tfoil and the (190-ton)
semi-submersible ship.

Nawiliwili Harbor, Kauai

inter-island harbors. The choice is much more
difficult in the case of Maui, whose -only
adequate harbor is on the windward side,
subject to storm waves and isolated from the
most direct lines of inter-island traffic. A
major planning effort is needed to locate,
design and construct a harbor and inter-island Port AUen, Kauai
terminal on the leeward side of Maui.

8-13

MARINE INDUSTRY water. It would also force the State to
face the question of environmental
impact. It is possible that the residue
The potential benefits to Hawaii of such from this beneficiation process might
ocean-derived resources as sand, manganese, have considerable economic value as a
geothermal/solar/ocean power, precious coral partial replacement for sand.
and fishery products have been discussed at Finally, the entire ocean manganese
length in Chapters 6 and 7. A number of industry, including refining, might be
recommendations for State action were made located in Hawaii. At this stage, by
in those chapters. Discussion here will be adding in the chemical industries
limited to comments on potential impacts by necessary for support, it could become
some of these industries on Hawaii and Hawaii's largest industry. The potential
considerations of industrial siting. environmental impact would
correspondingly increase.
Manganese Deposits We lack the background to fully assess
It appears certain that a manganese these alternatives, or recommend which path
industry, or at least major elements of it, is Hawaii should follow. We do feel that the
coming to Hawaii and its impact will probably opportunities and the dangers are great. The
be felt within five years. The major Pacific State must move rapidly to prepare itself for
deposits d this resource are located closer to 'the time when decisions concerning the future
the Hawaiian Islands than to any other land of this industry in Hawaii must be made and
mass offering an industrial base. In the case of to ensure that these decisions are as wise as
the manganese crusts which lie within the possible.
Hawaiian Archipelago, the resource is located
in relatively shallow water (3,000 to 6,000 One factor seems certain if the second
feet). This allows mining to be carried out or third of the alternative futures discussed
with technology much less complex and less above comes to pass. Wherever this plant is
expensive than will be needed for mining of located on shore, it will become the center of
deepsea nodules. a very large industrial complex. If the State
Government is really serious in its desire to
What is less certain is the total impact disperse industry, opportunity and population
of this industry on Hawaii. We have a number away from Oahu and toward the Neigh-
of alternative futures and a great deal of bor Islands, the manganese industry is a
choice in which path to follow. powerful tool with which to effect this
policy-
� The minimum impact would result if
mining of the ores were to be followed Geothermal/Solar/ocean Power
by beneficiation (enrichment) at sea,
transfer to bulk ore carriers and direct This concept, which is more fully
shipment to a mainland facility for final described in Chapter 7, should be considered
refining. Hawaii's role would be limited as an industrial area with long-term potential,
to ship support; maintenance, refueling, on the order of 10 to 20 years. Its application
recreational leave for crews and support may be limited to the geothermal reservoirs of
of staff operations ashore. This could the Big Island, although localized areas of
still be a multi-million-dollar industry. high temperature rock may be found else-
� At the next level of impact, where, for example, in the Haleakala re-
beneficiation would be carried out on gion of Maui.
shore in Hawaii, with final refining still
done elsewhere. This would increase On the island of Hawaii,
support requirements for harbors, geothermal7solar/ocean power potentially
physical plant, work force, power and could supply all requirements for power,

8-14

including those of major new industries such a sizable shipbuilding program in Hawaii. That
as manganese. Second, it could serve as program should be able to continue through
the energy source to disassociate water into the construction of similar craft for local
oxygen and hydrogen, supporting a major commercial use or for export.
hydrogen fuel export industry.
Recommendation
Precious Coral
If the serni-submersible ship is chosen as
In dollar volume, this industry will an element of Hawaii's inter-island, and/or
probably never be a large one in Hawaii, marine rapid transit systems, the Department
although annual sales at the retail (jewelry) of Transportation should explore with local
level could amount to tens of millions of industry the possibility of its construction in
dollars per year. The industry's chief values Hawaii.
may lie in its symbolism of our State's exotic
marine environment and Hawaii's dedication Ocean Research and Engineering
-to the sea.
Research laboratories, "think". factories
The growth and health of the precious and design shops are a clean, high-salaried,
coral industry are . tied to two constraints. desirable industry. Hawaii's growing
First, additional commercially viable. sources capabilities, talents and know-how in
of coral must, be found. This is especially marine-related fields deserve continued
important as Japan, our historic source of-the encouragement and support by. the State and
raw material, begins to restrict its exports. Jocal governments. The 1972 Directory, of
Second, less expensive techniques to harvest Hawaii's Scientific Resources, published by
precious coral are needed- -techniques which the Department. of Planning and Economic
still allow harvest to be both selective and Development, details these'capabilities.
controllable. The most promising approach,
we believe, would be to use an unmanned Some efforts are underway to tie the
system, cable-controlled from the surface,and needs and objectives of this industrial group
sized to operate from a relatively small fishing together with those' of the Bicentennial
or charter boat. This system sho *uld be Exposition Commission (1976), the Hawaii
considered as a candidate for development Marine Exposition (1978) and several
under Sea Grant funding, or perhaps as a joint culturally oriented institutions., This unity of
project between State and local industry. The direction has great merit and is probably
relatively low development cost involved necessary for real progress to be made by any
might allow local industry to do it alone. of the groups involved. Specific
recommendations related to a Hawaii Ocean
Shipbuilding Center are made in Chapter 3.

X
A major economic benefit to the State
would be achieved if some or all of the ships R
needed for the inter-island and marine rapid
transit systems could be built in Hawaii. Of all
the ship types considered earlier in this
-submersible ship @,-Ytlhiak
chapter,. only the semi
appears to be a likely candidate for such local
construction.

If the semi-submersible ship is chosen as
a component of Hawaii's marine M
transportation systems, a sufficient number Oahu's other deep water port at Barbers Point. Dotted lines
would be needed to sustain, for several years, depict planned expansion.

8-15

CHAPTER 9: KAMALI7 o KAI

Introductory Note From the Task teachers. Through a special arrangement with
Force. The Marine Option Program (MOP) the Department of Education, a selected
was established at the University of Hawaii in group of high school students fill the majority
the spring of 1971. Its primary objective is to
provide the opportunity for any
undergraduate student at the University (or
its community colleges) to achieve a basic
familiarity with"the marine environment. This
familiarity is gained through a combination of
class work (a minimum of 12 credit hours for
a MOP certificate) and field tours or work J
experience. The typical MOP student is not a
science or engineering major, in fact, will
normally be in a nontechnical field.

The interests and activities of these
students have been highly pervasive since the
program was founded. Fifteen students
conducted a detailed ecological study of the
WO
proposed Kailua Bay outfall. A second group
of twelve performed an onsite study of a
possible artificial reef site at Pokai Bay. On
their own initiative, eight MOP students R/V TERITU is being used to introduce high school students
installed an offshore, underwater pipeline for to the ocean; the Blue Water Project, supported by Sea Grant,
ensures the continuation of this effort.
the Pacific Biomedical Research Center--at a
cost to the State of $ 10,000, compared to the
lowest contractural bid of $150,000 for the of Cruise Instructor positions and receive a
same job. Probably the most visible service formal science credit for their considerable
these students have given the State has been efforts. One offshoot of the program was the
the development of a guided snorkeling tour recent formation of the Hawaii Council of
of Hanauma Bay' and the introduction of Marine Science Teachers, which acts as an
more than 4,000 -students and adults to the advisory group for the BWML. The program
subsurface life in that marine park. at present is booked solidly, with more
interested teachers and students than it can
Perhaps the most impressive and serve with its present level of funding. (To
far-reaching program originated and run by keep the BWML program going after the
MOP is the Blue Water Marine Laboratory spring of 1974 will require additional funding;
(BWML). This is a program that takes high we hope it is forthcoming.)
school and community college students to
sea, aboard the University's R/V TERITU and The Task Force initially encountered
the specially-equipped research schooner the MOP students when two of them
MACHIAS, for several hours of instruction volunteered to carry out two surveys for us.
and actual participa'tion in such The first was an onsite evaluation of the true
oceanographic activities as plankton tows and condition of all public beach access routes on
bottom sampling. All instruction is by student Oahu. The second was a poll of public
Cruise Instructors. To date, 1,000 students attitudes toward inter-island surface
from Oahu, Maui, Molokai, Hawaii and Kauai transportation. Both reports are included as
have participated, as. have 100 science appendices to this document.

9-1

In working with students of the Marine ENVIRONMENT
Option Program-, there is no way to limit
one's' contacts to two, three or a dozen of
them. Soon, many of our members were Given present planning practices and
involved in exciting discussions with most of economic priorities, it is our consensus that
the MOP students and were increasingly the attendant inevitable increases in Hawaii's
impressed by the ways in which their points population via immigration and natality make
of view differed from our own. These it inconceivable that the general quality of the
differences were not necessarily environment will show any trend toward
disagreements- -any more than one can say improvement.
that the south end of an elephant necessarily
"disagrees" with the north end. We concluded Almost one-half the total land area of
that 'it was important for these different Hawaii lies within five miles of the coast.
points of view to be included as a part of our Considering this, and the fact that population
document. centers have traditionally been associated
with these narrow coastal margins, it follows
Their work is presented here with the that man's activities (e.g., grading,
appropriate chapter title Kamali'i o construction and agricultural practices) which
Kai--literally, "Children of the Sea", or a have led to the accelerated alteration of the
view from the next generation. terrestrial biome have subsequently
influenced the ecology of the marine
community.

INTRODUCTION State and local governments, time and
time again, have ignored sound environmental
considerations when dealing with the
Hawaii's youth have traditionally been problems associated with management of the
identified with close involvement with the coastal zone. Witness the modification of the
sea. We all hold, from local-born to Kaneohe Bay watershed (Keapuka, H-3
"transplanted local", a deep-rooted extension, etc.).
appreciation for the sea as a place to swim,
surf, sun and dive. Many of us engage in the "Man has reigned supreme on this
prudent commercial exploitation of its planet primarily due to his ability to adapt to
resources. Whatever the interest, we share changing environmental conditions and, still
equally in Hawaii's heritage in the sea and in further, to modify the conditions existing in
our dedication to the maintenance of its his habitat, hence, ecosystem. Whatever else
unique integrity. this may be, it does present us with a grave
situation, recognizing that, historically, man's
Rather than demand, using the premise ability to initiate changes has often far
that the sea will be our heritage, an input to exceeded or preceded his understanding of
today's policy planning process, we instead the results.
have asked for the opportunity to showcase
our commitment to the sea. This chapter is In Hawaii, many case histories can
the result. We will suggest plans for future be cited illustrating the deleterious effects of
directions to be taken by the State, based on man on the ocean environment, but none can
our knowledge and competence in a subject approach the state of degradation exhibited in
area; this, in turn, usually based on Kaneohe Bay, Oahu.
empirically-oriented accomplishments as
students.

"Biochemical Considerations in a Marine Aquatic System: The Role of Marine Microorganisms in the Ecology of
Kaneohe Bay", Kelvin Char, Senior Honors Thesis, University of Hawaii, 1973.

9-2

priorities; e.g., population growth, within the
constraints of sound environmental policies as
determined by the carrying capacity of the
system.

Review and, if necessary, revise
traditional planning policies which, too often,
are landbased in concept and, consequently,
are inadequate when applied to problems of
the coastal zone and ocean. (The City and
County of Honolulu's grading ordinance and
the Coastal Zone Management Act of 1972
are positive steps in the right direction.)

In reference to the paragraph above,
avoid proposing stopgap solutions when
dealing with long-term problems. The Kapuku
Plan and the idea of conservation districts are
offerings which do not win the confidence of
the community.

Marine life abounds in the waters off Papaloa MU Establish and ensure the maintenance of
reasonable water quality standards; i.e., the
Federal Water Pollution Control Act of 1972,
It is grossly unfair to violate the Public Law 92-500.
inheritance of Hawaii's future generations by
permitting such laissez-faire attitudes to Assess the State's offshore sand
persist in government. At the same time, we resources; e.g., commercially valuable deposits
'11, environmental
are convinced that there are other alternatives for construction and beach fi
in planning to the "preservationist" attitude qualities (not part of a known beach system),
of Life of the Land, Save Our Surf and similar rates of attrition and accretion. 'this may
organizations. require changes in present laws and the
initiation of comprehensive (statewide)
The State would be well advised to resource surveys.
work harder at providing attainable
compromises between interest groups desiring Recognize the needs for population
the maintenance of environmental quality and controls and move to establish immigration
those wanting the exploitation of coastal and and birth control policies. (Seek ways in
open-ocean or seabed resources. This would which Hawaii can be given special
include living, as well as nonliving, and consideration under the Constitution?)
renewable, as well as nonrenewable resources.
In essence, there must be a comprehensive, Seek an exemption by which the State
long-term plan to meet the needs of Hawaii's may construct ."advanced" primary sewage
future environmental/commercial/industriaI treatment facilities, recognizing that the
requirements--an "open boat" case, in characteristics of the Hawaiian marine
which moral and legal questions are raised, environment are dissimilar to mainland areas
requiring judicious appraisal and just and, therefore, not necessarily affected by the
solutions. introduction of such wastes. (Secondary
treatment,_ in addition to being much more
Recommendation expensive to construct and operate, is also
detrimental to natural waters due to the
Realistic appraisal of socio-economic introduction of treatment chemicals.)

9-3

RECREATION diagnosis and treatment.)

Identify potential underwater park
In this highly mobile society of ours, areas and submit them to evaluative process;
where the trend is toward shorter work weeks e.g., present use, access, safety and other
and more free time, the increasing need for socio-economic considerations.
recreational areas is quite obvious.
Marine-related 'recreational areas should Require State licensing of Diver
include improved as well as unimproved Training Programs and instructors, now
beaches, parks and rights-of-way. It would be required for chauffeurs and Department of
ideal for the State and local governments to Education certification.

Ensure the maintenance of and- safety
standards at public, small craft launching
f"T .. .. .... ..
facilities.
A"

COMMERCE

When one speaks of commerce in,
Hawaii, one should think about
transportation throughout this island state.
Water sports are exciting enough! Zones should be clearly We are not unique; our population
marked to separate surfers from swimmers from boats. concentrations are distributed along routes of
trade. We do experience a problem
take every step necessary to ensure the uncommon to the other 49 states; that is, the
maximum availability and utilization of terrestrial discontinuity which eliminates
marine recreational sites--the problem of overland, vehicular traffic among the islands
public access being considered a priority. of the State. It is primarily for this reason
that the greatest population densities occur in
Recommendation the City and County of Honolulu. Unless
there is an expansion of the types of
Evaluate proposed public recreational, inter-island transportation available to the
areas, as outlined in the SCORP Report, public, it would be absurd to expect any
especially the section dealing with ideal major shifts in present demographic
recreational acreage per capita and the trends--in advance of the means that would
proportion of land areas to coastal/beach make such population redistribution possible.
areas.
The cost of materials on the Neighbor
Establish breathing-air standards and Islands could be lowered considerably if ships
non-punitive controls of commercial SCUBA of trade were routed to any number of
air stations. suitable ports; e.g., Kawaihae, Kahului
Kaunakakai and Nawiliwili. This would serve
Establish additional hyperbaric units to attract and encourage industry, followed
(decompression chambers) throughout the by the subsequent immigration of workers
State. All Neighbor Islands require these and residents.
facilities. (This might be accomplished by
having one-man, portable units and trained Recommendation
medical personnel ready to be flown to
emergency sites to shorten the time between Increase the number of suitable

9-4

deep-water ports throughout the State. (This constraints, before we task it to make possible
would include preparation to receive such an ambitious plan for development. The
container craft, drive-on/drive-off loading, State must judiciously apply its resources in
etc.) support of the various domestic and
exportable research projects conducted by
Encourage and support a marine State agencies, recognizing that funds for
transportation system; one with freight, support are limited.
auto/passenger and passenger configurations.
Furthermore, it has been recommended
Seek an exemption for the State of by a number of persons in State and local
Hawaii from the articles of the Jones Act. government that an evaluative process be
(Hawaii's geographical location, and its applied to assess research projects supported
dependence upon the maritime lifelines that by the State. Members of the scientific
support the economy, should be reason community have strongly objected to this
enough for this request.) form of control, suggesting that it would be
an encroachment upon their academic
freedom. Apparently, there will have to be
some compromise effected to maintain a
RESEARCH balance between academic and economic
priorities.

Hawaii's role in the area of Recommendation
marine-related research programs should be,
by virtue of its geographical location, Encourage investigators to solicit
manifold. As a member of the Pacific Ocean technological assistance from areas outside
community of islands, Hawaii should play a the United States, primarily to avoid
uplication of research efforts. (For example,
apanese "know how" in the area of
aquacu
Iture should be tapped by local
researchers to shorten research and
development times and maximize production.
A similar operation can be tapped involving
sea turtles, with a current operation in the
Caribbean serving as a resource area.)

Establish a commission to set priorities
and guidelines for research er/ins titu tional
support. (This commission would determine
the needs (short- and long-term) for marine
development in the State and, to a lesser
Students harvest prawns at Oahu prawn farm in an East-West degree, the State's commitment to the other
fishing program. islands of the Pacific. Hopefully, it would
include members from the academic
lead role in the development and export of community as well as government planners.
marine-related technology throughout the Since Federal assistance would be called for in
vast Pacific basin. Hawaii and its people the many phases of operation, it is strongly
should accept this mandate to provide the suggested that a representative (i.e., Sea Grant
initiative required to bring economic stability or National Science Foundation) be
to other islands of the Pacific. considered for membership.

However, do not forget the realities of Encourage cooperation between the
our own economic system, and its funding agencies of the State to prevent unnecessary

9-5

dispensation of research monies. support marine-related industries, thereby
Traditionally, there has been a sad lack of stimulating a necessary diversification of the
cooperation between the University of Hawaii State's economic base.
(and its research institutions) and agencies
within the State administration (i.e., Division Establish a cooperative program
of Fish and Game, Board of Agriculture). between industry and government in the area
of marine development and, conceivably, in
the long-range planning process.
INDUSTRY
Industry, as well as other groups,
requires a sound policy for planning and
Marine-related industry in this State has management. This can be developed through
suffered as a result of the same kind of the efforts of well-informed, knowledgeable
thinking (or lack of understanding) that has (about marine systems) people. Our policy
contributed much to the degradation of planners must be able to recognize the
natural marine ecosystems. As we have uniqueness of the ocean, as well as its
witnessed the slow deterioration of our similarities to the land. The State must strive
near-shore marine resources (coral reefs, sand, to reduce the influence of traditionalists who
floral/faunal communities) due to the don't "think ocean" when dealing with
increasing pressures exerted by man-induced problems intimately involving the sea and its
modifications, so have we witnessed slow resources. A commission, similar to the Land
growth, or no growth, in our marine-related Commission, should be established to
industries. We believe this is mute testimony "watchdog" the public's interests whenever
to the State's traditional, land based concepts proposals are made to develop within the
of development. coastal zone.

The State's economy is becoming, with Combine the efforts of all State
ever increasing dependence, based on the marine-related administrative agencies to
tourist-related industry. Agriculture, eliminate the overlap in authority that now
specifically sugar and pineapple, is presently exists. For example, why should the Board of
struggling to maintain its position as a major Agriculture deal with aquaculture permits and
industry in the State, hurt primarily by rising not the Division of Fish and Game? Look at
costs and the encroachment of urban all the similarities that exist in the
requirements upon limited fertile agricultural Department of Planning and Economic
areas. This dependency upon a single industry Development, the Department of Land and
can lead to a very unstable situation. Natural Resources, Health, and
Diversification has been the answer, in other Environmental Quality and, still further, the
areas, to the problem of oversimplication and confused web within the Department of Land
instability. Hence, the State should attempt and Natural Resources --Parks and
to broaden its economic base to include Recreation, Agriculture, Fish and Game,
non-tourist-related industries. Water and Land Development, and Land
Management. Why not establish a separate
In this island state, we should address department dealing with all marine-related
ourselves and our energies to. the development matters? Such a department could handle all
of marine and coastal resources; e.g., fisheries, matters involving aquaculture, marine
aquaculture, seabed mining (precious corals, research, marine recreational areas, marine
manganese nodules), etc. water quality, marine resource development,
coastal zoning and management, etc. Hawaii
Recommendation should lead, not lag, the nation in marine
management.
Provide tax incentives to encourage and

9-6

MILITARY of people seeking recreation and livelihoods in
the sea), education should play an important
role in the search for solutions to
The military, and its related civilian ocean-related problems.
work complement, represent a large segment
of the population and economy of the State. For example, one can't imagine a
As such, the Federal government should be successful enforcement program without an
called upon to contribute to the planning equally successful community education
process. In addition, of the 1,050 miles of program. Will increasing fines for violations,
tidal shoreline in our major islands, some and/or the number of wardens, provide better
7 percent is owned by the military or other enforcement, given today's attitudes? Given a
Federal agencies. Nine percent of all sandy greater number of wardens, we might
shorelines are in this Federal category. It is statistically create a veritable crime wave.
important that this factor be considered by
the state in any comprehensive plan for the Also, Hawaii should be the first to
coastal zone. recognize the -need for specialists in the field
of applied ocean sciences. Hawaii should once
Recommendation again assume a leadership role in educational
trends. For example, we should establish
The military should contribute heavily marine courses in areas of traditional
to the planning process; e.g., the joint use of
existing recreational areas owned by the
military and the establishment of additional
recreational areas in presently unimproved
military beach properties.

The military should continue to transfer J
coastal properties to the State, but with the
requirement that these be developed for
marine-related recreation and/or industries
(e.g., research facilities, aquaculture).

In the long run, debug Kahoolawe and
render it and its surrounding waters safe for
use by the public. Planning processes should
include the eventual return of the area to the
State.

ACADEMIC

Students learn differences between coral specimens at
Hawaii is a unique blend of eastern and Hanauma Bay.
western attitudes which are manifested in the
life styles, cultures and traditions of the nonmarine involvement --marine law, marine
people. The State should enhance this quality business, marine humanities, etc. This could
by emphasizing educational systems be established at several levels: a "Sesame
sympathetic to the needs of the community. Street" approach in the elementary grades,
Since the sea has always played a part in the relating to simple marine concepts, becoming
lives of Hawaii's citizens (witness the number more problem oriented as a student progresses
through intermediate and high school levels.

9-7

At the university level, programs similar to Establish a statewide public community
the Marine Option Program would ensure the education program to carry the message from
continued "marine orientation" of the government to the people. This open access is
student. vital if government is to win support for
programs and policies. In these efforts, the
Recommendation State must not forget that it consists of more
than one county. For example, more than 55
Establish a "game plan" for the marine percent of the personnel employed by the
education of Hawaii's youth. The Department Division of Fish and Game are situated on the
of Education should recognize the important island of Oahu. This. is typical of many
role that the sea plays in the lives 'of Hawaii's agencies within State government. Also, why
youngsters and tailor an educational program is the College of Tropical Agriculture located
that would encourage success (by allowing for on the Manoa Campus? Doesn't it make more
an individual student's identification with the sense to move this operation and its affiliated
theme). services to an area that would be better served
by its programs?
The Department of Education should
recognize that an educational program that
works in the Honolulu district might not have
the same results in the Leeward district, SUMMARY
where the program degenerates into a
confinement process for "student inmates"
up to age 16. Reflected in this chapter are,attitudes
that students of the Marine Option Program
Emphasize marine-oriented programs felt deeply enough to share with the people of
such as the Marine Option Program at the Hawaii. We have tried to remain as objective
university level. as possible and accurately represent the
consensus of our peers--both those in the
Emphasize, once again, the importance Marine Option Program and, hopefully, those
of selecting the right personnel to administer throughout the -State of Hawaii. We
marine-related programs. Too often, program respectfully submit to the evaluation process
goals are not met due to a program manager's and thank the State for the opportunity to be
inability to relate to marine problem areas. heard. Mahalo!

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9-8

BIBLIOGRAPHY

Chapter I
Hawaii and the Sea -A Plan for State Action, Governor's Task Force on
Oceanography, Department of Planning and Economic Development, State of Hawaii,
1969

Chapter 3
Ist Annual Report from the Marine Affairs Coordinator, State of Hawaii to the
Governor and Legislature, State of Hawaii, John Craven, December 19 71

2nd Annual Report from the Marine Affairs Coordinator, State,of Hawaii, to the
Governor and Legislature, State of Hawaii, John Craven, December 1972

Spheres of Influenee in Hawaii's Coastal Zone. V. 1: Federal Agency Involvement,
Justin Rutka and Chennat Gopalakrishnan, University of Hawaii Sea Grant Program,
1973

Chapter 4
(See reference list at end of Chapter 4)

Chapter 5
State Comprehensive Outdoor Recreation Plan (SCORP), Department of Planning and
Economic Development, Consultants - Marshall Kaplan, Gans, Kahn, and Yamamoto,
Department of Planning and Economic Development, 1971

Immediate Action Program, Comprehensive Outdoor Recreation Plan, Department of
Planning and Economic Development, State of Hawaii, 1969

Recreational Fishing - Its Impact on State and Local Economics, by Robert Hoffman
& Hiroshi Yamauchi, University of Hawaii College of Tropical Agriculture,
Department Bulletin 3, August 1972

Chapter 6
The Grey Mullet - Induced Breeding and Larval Rearing, Oceanic Institute, Ziad H.
Shchadeh, National Sea Grant Program 01-72-76-1, June 1972

Legal and Administrative Aspects of an Aquaculture Policy for Hawaii, An
Assessment, Gordon Trimble, Hawaii State Center for Science Policy and Technology
Assessment, Department of Planning and Economic Development, December 1972

Economic Feasibility of Fresh Water Prawn Farming in Hawaii, Yung Cheng Shang,
Economic Research Center, University of Hawaii, Honolulu, Hawaii, June 1972

Commercial Fish Landings, by Species, Pounds and Value, State of Hawaii, Honolulu,
Hawaii, Division of Fish and Game, Department of Land and Natural Resources,
Honolulu, Hawaii, 1973
Chapter 7
Reconnaissance Sand Inventory: Off Leeward Molokai and Maui; J. 17. Campbell, B.
R. Rosendahl, W.T. Coulbourn, and R. Moberly, Jr., University of Hawaii
SEAGRANT Publication, TR-71-02, October 1971

BIBLIOGRAPHY (continued)

Status of the Precious Coral Industry in Japan, Taiwan, and Okinawa: 19 70, by Rick
Grigg, University of Hawaii Sea Grant Program, 1971
GRANT-AR-71-02

Potential of Offshore Sand as an Exploitable Resource in Hawaii, Frederick M.
Casciano and Robert Q. Palmer, University of Hawaii SEAGRANT Publication 69-4,
December 1969

Reconnaissance Sand Inventory: Off Leeward Oahu, J. F. Campbell, W. T..
Coulbourn, R. Moberly, Jr., a:nd B. R. Rosendahl, University of Hawaii SENGRANT
Publication, 70-2, June 1970

Investigations of Ferromanganese Deposits from the Central Pacific, J. E.Andrews, et
al, Hawaii Institute of Geophysics, 72-23, 1972

Hawaii Institute of Geophysics Data Banks for Manga nese Collections and
Hydration-Rind Dating, J. E. Andrews, C. W. Landmesser, and Maury Morgenstein,
Hawaii Institute of Geophysics 73-5, March 1973

Manganese Nodule Deposits in the Pacific - Symposiuml Workshop Proceedings, State
Center for Science Policy and Technology Assessment, Department of Planning and
Economic Development, State of Hawaii, October 1972

Sedimentary Diagenesis and Manganese Secretion on Submarine Platforms, Kauai
Channel, Kauai, Maury Morgenstein, University of Hawaii Ph.D. dissertation, 1974

Manganese Resources in the Hawaiian Region, J. E. Andrews and Maury Morgenstein,
Marine Technology Society Journal, Vol. 5, No. 6, p. 27-30, 1971

A New System for the Commercial Harvest of Precious Coral, Richard Grigg, Boh
Bartko, and Claude Brancart, University of Hawaii Sea Grant Program 73-01, 1973

Distribution and Abundance of Precious Coral in Hawaii, Richard Grigg, Second
International Symposium on Coral Reefs, University of Queensland, Brisbane,
Australia, June 1973

Economics and Market Potential of the Precious Coral Industry in Hawaii, Kok-Kian
Poh, edited by Richard Grigg, University of Hawaii Sea Grant Program 71-03, 1971

Chapter 8
Statewide Boat Launching Facilities Master Plan, Harbors Division, Department of
Transportation, State of Hawaii, 1972

The Executive Budget for the Fiscal Biennium 1973 - 1975, Volumes H, III, and IV,
State of Hawaii, December 1972
Hawaii, The Most Vulnerable State in The Nation, by Thomas Hitch, First Hawaiian
Bank, March 1973

The Proposed Hawaii Inter-Island Sea Ferry System, by William A. Dymsza, Fred C.
Hung and Chris A. Theodore, Economic Research Center, University of Hawaii, March
1965

BIBLIOGRAPHY (continued)

Economic Feasibility of the Hawaiian Inter-Island Ferry System, Ltd., by Philip F.
Spaulding & Associates, Inc., August, 1968
Fast F@rries For The State of Washington, a Hoverprojects, Ltd., London,
England, 1969
Honolulu Rapid Transit Preliminary Engineering Evaluation Program (3 Volumes),
by Daniel, @Mann, Johnson and Mendenhall Company, submitted to Honolulu
Department of Traffic, September 1972,
Proposed Inter-Island Ferry Systems (Impact Summary), prepared by Pacific Urban
Studies and Planning Program, University of Hawaii for the Department of Planning
and. Economic Development., July 1973
Proceedings of The Governor's Conference on Developmen t of Mass Trans it Statewide,
published by Hawaii Department of Transportation, December 6/7 1973

ACKNOWLEDGEMENTS

The Task Force wishes to express its appreciation to the following individuals and
organizations who contributed their time and talent in support of the preparation
of this document.

Mary Chaney
'Betty Fun4yama
Barbara Garrett
Mardi Stewart
Norrie Thompson
Walter Uchida
Marian Wilkins
Michele Wilkins
Teresa Wilkins
Wanda Williams

Coast Guard.0mega Navigation System,
Operations Detail, Kailua
CDR George P. Asche, Commanding

Windward Graphics, Kailua

Jeanne Halpin Brady, who was responsible for all that was
good about the style for this document.

Contributors to Kamali'i o Kai - Hawaii and the,Sea- 1974

Barry Hill - Director, Marine Options Program
Kelvin K. Y. Char - Chapter Coordinator
Ann Hayward Rooney - Interior Design
Joanne Kushima - Zoology
Robert Wong - Engineering
Kevin Hansen - Zoology
Janice Auyong - Biology
Alan Hong - Engineering
Art Challacombe - Communication
William Thomas, Jr. - Zoology

Photocredits

4-17 Hawaii Visitors Bureau
5-2 Earl Correa, Kailua
5-7 Earl Correa, Kailua
6-12 Hawaiian Tuna Packers Association
8-8 DMJM Report to Honolulu DOT
9-1 Honolulu Star Bulletin
9-4 R. Grigg, Honolulu
9-7 W. B. Robinson, Honolulu

APPENDIX A

SUMMARY OF ACTIONS BASED ON THE 22 MAJOR RECOMMENDATIONS MADE IN
"HAWAII AND THE SEA, A PLAN FOR STATE ACTION", 1969

As a result of, the 22 major $50,000 funding from the MAC Office.
recommendations made in Hawaii and the (Recommendation. No. 2). The design
Sea-1969, the following actions have been studies resulted in an $85,000 grant
taken. from the Sea Grant Program for
construction of a scaled-down model of
� A State of Hawaii Marine Affairs a floating platform. The unit has been
Coordinator (MAC) was established in constructed and tested. A Japanese
the Office of the Governor, by expert on floating marine communities
Legislative Act 137, 1970 in response to 'worked -on this project as a visiting
Recommendation No. 20. A professor. He is now involved in
Coordinator was appointed in building a -floating platform for the
September 1970 and his office has been Okinawa Marine Exposition to be held
active in marine programs since that in 19 7 5.
time. The MAC office staff of four is
supported separately from project e The Legislature appropriated $100,000
funding. for design studies of a land-based
Oceanographic Research Park.
� As the result of this document, effective (Recommendation No. 2). These funds
coordination by the MAC Office, have not been used as of this date.
excellent research work by the
University, and strong State support, 0 The State has appropriated $3,000,000
the University of Hawaii was designated for construction and $300,000 for
as a Sea Grant College--one of seven in planning for a new University of Hawaii
the nation. The Sea Grant program Oceanographic Expeditionary Center at
provides substantial impetus to Hawaii's Snug Harbor (Recommendation No. 4).
marine ambitions. Ground was broken for construction in
1973.
The total marine programs
appropriations by the State has been 9 The State, through the University of
$870,000. An initial appropriation of Hawaii Institute of Geophysics, has
$470,000 (non-lapsing), was earmarked received substantial support from the
in the original Act that created the State of Hawaii, the National Science
position of MAC for specific purposes Foundation, International Decade of
or areas of marine studies, surveys, Ocean Exploration (IDOE) Office and
coordination, research and from industry for deep-sea explorations
development. The following year the of the Pacific. The total funding has
Legislature appropriated $200,000 per been $398,000 with the following
year for each year of the 1971-1973 breakdown: State, $130,000; Federal,
biennium (total of $400,000) for the $106,000; and industry, $130,000. The
support of marine programs in Hawaii. work has included research on
Except for about $23,000, all of these manganese nodule deposits and two
funds have been allocated., major international conferences on
(Recommendation No. 1). manganese nodules have been held in
Hawaii (1972 and 1973) with joint
The study of the use of a floating support from the State and IDOE.
platform for a State Oceanographic (Recommendation No. 5).
Research Park was carried out with'

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An "International Workshop on Marine Plans for coordinating efforts to sense
Geosciences" was held in Hawaii on and avoid oil spills and other hazardous
September 20-24, 1971. The workshop materials in Hawaiian waters are under
made recommendations to UNESCO's way. The State Department of Defense
Intergovernmental Oceanographic has published a booklet entitled,
Commission and to IDOE. Funding of Marine Oil Spill Disaster' Plan. Total
$25,000 came from the MAC Office cost has been $3,000.
and was specifically authorized by the (Recommendation No. 13).
Legislature in Act 137. Support by
NSF/IDOE from 1971 to December,
1973 (not including manganese nodule Some standards for water quality have
programs) was $1,281,000 to HIG. been revised. (Recommendation No.
(Recommendation No. 6) 14). The Water Resources Research
Center of the University of Hawaii has
A study of the feasibility of an been the focus of water quality
International Marine Exposition in prograrns in the State and a
Hawaii in 1978 is in progress. computerized data system on water
(Recommendation No. 8). MAC Office quality is being developed under a
funding is $30,000. $30,000 contract with -the State
Department of Health. The State Office
The East-West Center sponsored a of Environmental Quality Control was
"Giant Prawn Culture Training formed in 1970 to provide statewide
Program" from June to October 1972. coordination.
The training was done by the State
Department of Land and Natural
Resources, Fish and Game Division. The e The State has supported industry in
East-West Center also has made s:tudies developing new fishing methods and
of fisheries and aquaculture programs assisting Hawaiian fishermen to increase
for the Pacific Island region and their catch of skipjack tuna and other
Southeast Asia. (Recommendation No. fish. (Recommendation No. 15)
9). The Hawaii New Vessel Construction
Loan Program (1965 and 1968 Acts):
A Shoreline Setback Law has been Act 175 appropriated $750,000 for
passed which prohibits mining of sand fishing. vessel construction loans. In
from beaches and regulates construction 1971, $250,000 was loaned to Angel
in the 40 feet setback area. Legislative Fishing Company to build the ANELA.
Act 123 1970, amended 1973. In 1972, a loan of $270,000 was made
(Recommendations No. 10 and No. It). to Honolulu Fishing Company to build
the MOKIHANA, and $240,000 was
Underwater parks and reserves have loaned to Gengo Nabeshima to build
been studied for Hawaii, Maui, Molokai the BETTY N. This totals $760,000,
and Kauai. A total of $150,000 has but of course loan repayments will
been appropriated to DLNR. There was build the fund back up again. DLNR
-understanding that $100,000 of this estimates that program operating costs
would be for Kealakekua Bay on the were about S.12,000.
Big Island, and $50,000 for Hanauma Other expenditures have included:
Bay on Oahu. So far, only .$17,000 has Monitoring of commercial catch statis-
been spent or encumbered all for tics, $32,000; projects to develop bait,
Hanauma Bay.. The Hahauma Bay $15,000; joint-effort programs in tuna
marine park on Oahu has been highly purse seine fishing, $52,500; and shark
successful. (Recommendation No. 12). control, $48,000.

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The MAC has supported a $7,000 A list of-the major recommendations
study of fishing by SCUBA divers in made in Hawaii and the Sea-1969 appears
Hawaii (Recommendation No. 16). below.

The -MAC, Sea Grant Program, HIMB,
the Fish and Game Division (DLNR)
and DPED have been active in support Hawaii and the Sea 1969
and implementation of aquaculture Recommendations of the Advisory Group
programs. An Aquaculture Revolving I. we endorse the . idea of combiruing many of the
Loan Fund was established by Act 18 1, interelated studies, surveys, and marine research and
1971, and is administered by the development activities recommended in this report
State Department of Agriculture. . An into a- single integrated program which could be
As.sessment of the "Legal and called the Hawaii 5-MProgran@ for Five Marine-
Administrative Aspects of an Science Years.
Aquaculture Policy for Hawaii" was 2. We recommend that the State complete a determi-
carried out by DPED. The current Sea nation of need for an Oceanographic Research Park
Grant Program provides $220,000 for by the beginning of the 1970 session of the State
aquaculture projects. Recycling of Legislature so that research park requirements can
sewage for aquaculture is being studied be learned, considered, and provisions made for
u.nder research grants. meeting them.
(Recommendation No. 17).
3. We recommend that the I State. organize and assist
e Regulation of the precious coral public and private oceanographic interests in seeking
industry is being studied by the State the establishment of an Ocean Environmental Fore-
Attorney General's Office. A total of casting Center in the Islands.
.$393,000 has been spent on discovery 4. We recommend the allocation of- land at Snug
and. research programs as. follows:
Federal -Sea Grant $152,000, State Harbor to'the University offlawaii for an Oceano-
graphic Expeditionary Center be made as soon as
$179,0,00 (including $75,000 MAC possible. Further, we recommend that $1.5 million
funds); and industry $62,000. The be included in the next State Capitol Improvements
Governor of Hawaii commissioned a Budget for construction of urgently needed facilities
study of - possible rights to offshore there.
minerals in January 1973.
(Recommendation No. 18). 5. We recommend that the Governor urge the Presi-
de'nt and the Congress to take appropriate actions to
University of Hawaii Marine Science -bring the International Decade of Ocean Explora-
programs have been partially combined tion into being.
and coordinated. The Marine Affairs
Coordinator for the State is also Dean 6. We recommend that the Governor convene a meet-
of Marine Affairs at the University. ing of the leading scientists, technologists, and
(Recommendation No. 19). businessmen -from the nations of the Pacific Basin
and from the West Coast States in order to
No actions have been taken on recommend a program for the exploration of the
Recommendations Nos. 3, 7, 21 and 22, Pacific Basin as part of the International Decade of
due to the lack of Federal funding or Ocean Exploration.
because they were not considered
7. If the National Administration does not endorse the
necessary.
International Decade of Ocean Exploration, then we
urge the Governor to seek a.Pacific Decade of Ocean
Exploration in order for the State to reap the
benefits of an intensive, study of the Pacific Ocean
as soon as possible.

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8. We recommend that the State study the feasibility will help Hawaiian fishermen increase their catch of
of an International Marine Exposition in Hawaii in skipjack tuna.
1980. 16. We urge the State to make a thorough study of the
9. We recommend that the State create a Pacific tablefish industry and make recommendations that
Center for Marine Sciences to aid developing nations will help it establish itself and grow.
in the Pacific Basin as well as local fishermen. 17. The State should continue to encourage research in
10. We strongly urge Hawaii's Counties to initiate a aquaculture. At the same time, the Federal Govern-
program to assure their people that beaches will not ment should take the lead in sponsoring research
which would show how to recycle sewage into food
be waited out by buildings, and to develop addition- through fish farming.
al permanent public rights-of -way and access routes
to Hawaii's shorelines. We also recommend that the 18. The precious coral industry in Hawaii needs the
Counties inspect present and future routes on at support of the Federal Government to dissuade
least an annual basis to insure that they are properly foreign coral fishermen from operating in waters
maintained and unobstructed. near the Hawaiian Islands, and the help of the State
11. We recommend that on .ail publicly-owned shoreline in conducting a survey of the precious coral
lands which are less than fully developed, irrespec- resources along the Hawaiian Archipelago.
tive of zoning or land-use classification, there should 19. We recommend that the University of Hawaii gather
be 300 feet of open space dedicated to public use; the parts of its present program in marine sciences
and that this setback be measured from the most and engineering into a single entity. We also
inshore on-record line of wave action, or from the
tIop of the pali landward, should that type of recommend that the present level of funding of the
topography be involved. State's contribution of approximately $1 million for
operating funds for marine activities be accelerated
12. We recommend that the program of establishing on a 25 percent annual incremental basis for the
underwater parks and preserves be expanded to next five years.
include Maui, Molokai, and Kauai. 20. We find that there is a definite need for an
Executive Director for Marine Affairs in the State
13. We recommend that the Hawaii Civil Defense Government. He can do his job effectively only in
Agency be appointed to organize and head a the Office of the Governor, and we recommend that
coordinating body of State and Federal agencies to he be placed there.
plan and implement the required sensing and res- 2 s
ponse to spills of oil and other hazardous materials 1. We recommend that the scope of the Governor'
in water. Task Force on Oceanography be enlarged, and that
its name be changed to the Governor's Advisory
14. We recommend that the State give high priority to Council for Marine Affairs.
its rigorous enforcement of State water quality 22. We recommend that the Governor create a Cabinet
standards.
for Marine Affairs designating as members the heads
15. We recommend that the State give increased assist- of those departments having responsibilities in the
ance to industry and give further encouragement to marine field. We further recommend that its staff
the U.S. Bureau of Commercial Fisheries to accel- arm be the Office of the Executive Director for
crate their development of new fishing methods that Marine Affairs.

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DATE DUE

GAYLORDiNo. 2333 PRINTED iN U,S.A

3 6668 14107 3025