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

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              ~~~~~~~~~~~~~~~JN141977
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         symposium on

    coaslal zone

    management
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          of wes! floiida

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

            Property of cSC Library

    No portion of this document may be reproduced without the
           expressed permission of the individual authors

    This document was financed through an Institutional Grant
         under Title IX of the Higher Education Act, 1965

             Printed at The University of West Florida
                     Pensacola, Florida, 1977

      The coastal areas have always been a source of sustenance
    for the human community. They have provided food,
    freedom of movement and aesthetic satisfaction as well as
    ingress to the great land masses of the world. They have also
    been a force of uncontrollable natural power which has
    often devastated human settlements.
      The magnitude of the mutual impact of the coastal zone
    and the human community, while great in the past, is
    increasing rapidly. Energy demands argue for more offshore
    oil production. ,Populations require more food, recreation
    and services as cities disgorge increasing amounts of
    residential and industrial waste into the coastal areas. Never
    before have so many overlapping, and often conflicting,
    demands been placed on the coastal zones. Regularly the
    complex and powerful forces of the sea and weather
    demonstrate the dynamic nature of the coastal areas. Often
    these forces are in direct conflict with human demands for
    resources and stability.
      The management of the coastal zones is becoming an
    activity of great human concern. In a very real sense,
    however, the management of the coastal zones is a reflection
    of the human communities' ability to manage itself. The
    effort on the part of the human community to meet the
    challenge of management has varied both in form and
    success. In the United States this effort has involved the
    activities of' federal, state and local governments as well as
    private interest and industry. Sometimes this effort has been
    creative and effective; often it has been plagued by an
    appalling lack of communications and planning.
      It is our hope that this symposium has highlighted some
    of the more difficult problems facing the management
    process at various levels of government. We further hope
    that by highlighting these problems we have encouraged the
    development of creative and balanced management of the
    coastal zone in the United States.

                                     LUTHER W. SKELTON
                                                      Editor

             program agenda          ~~~VII

    coastal resource Mainagmn"*.

    biographical Information  *....

                                    Symposium on Coastal Zone Management
                                               The University of West Florida

                   Sunday, August 8, 1976

    9:00 - 11:00    Registration
                   Howard Johnson's Motor Lodge
                    14 Via DeLuna Drive
                   Pensacola Beach, FL 32561

    12:00- 1:00    Lunch

                   Presentations and Discussions

     1:00- 1:10    Introduction

     1:10 - 1:40    William F. Tanner, Ph.D.
                   Dept. of Geology
                   Florida State University
                   Paper: "Our Mobile Coast."

      1:45 - 2:15    Arthur J. Butt
                   Department of Environmental
                   Regulations
                    Paper: "Coastal Development Along
                    Estaurine Shorelines."

     2:20 - 2:50    David R. Worley
                    Bureau of CZM Planning
                   State of Florida
                    Paper: "Remote Sensing Application
                    in Florida's CZM Program."

      2:50 - 3:20    Panel Discussions
                    (Questions from the Floor)

      3:20 - 3:40   Break

      3:40 - 3:45    Introduction

    xiii Program Agenda

                                                  3:45 -4:15    John G. Cowley
                                                                President, Florida Shore and Beach
                                                                Preservation Association, Inc.
                                                                Paper: "Beach Preservation and
                                                                Restoration."

                                                 4:20 - 4:50    Michael C. Applegate
                                                                Department of Environmental Regu-
                                                                lations
                                                                Paper: "The Management of Coastal
                                                                Wetlands: Perspective, Enforcement
                                                                of State Regulations Governing
                                                                Dredging and Filling of Wetlands."

                                                  4:55 - 5:25    George W. Allen
                                                                 Corps of Engineers
                                                                 CZM Liaison
                                                                 Department of the Army
                                                                Paper: "The Role of the Army Corp
                                                                of Engineers in the Coastal Zone."

                                                  5:30 - 6:00    Panel Discussions
                                                                (Questions from Floor)

                                                  6:30 - 7:30    Social Hour

                                                  7:30          Dinner

                                                                Monday, August 9, 1976

                                                  7:00 - 8:00    Breakfast

                                                                 Presentations and Discussions

                                                  9:00 - 9:10   Introduction

                                                        Program Agenda ix

     9:10 - 9:40   Patrick W. Ryan
                    Director
                    Louisiana State Planning Office
                   Paper: "Louisiana Coastal Zone
                   Management Program Development."

     9:45 - 10:15    Daniel Penton
                    Bureau of CZM Planning
                   State of Florida
                   Paper: "Coastal Zone Planning."

    10:20- 10:15    John Hall
                   Area Supervisor
                   National Marine Fisheries Service
                    Paper: "An Application of Coastal Re-
                    source Management and Conser-
                    vation."

    11:00 - 12:00    Panel Discussions
                    (Questions from Floor)

    12:00 - 1:30    Buffet Luncheon

                   Presentations and Discussions

     1:30 - 1:35   Introduction

      1:35 - 2:05    Sneed Collard, Ph.D
                   Department of Biology
                   University of West Florida
                   Paper: "The Surface Fauna of the
                   Outer Continental Shelf of the Eastern
                   Gulf of Mexico and its relationship to
                   oil production."

     2:10 - 2:40    Luther W. Skelton, Ph.D.
                   Coordinator, CZM Program

    x   Prograin Agenda

                                                                 University of West Florida
                                                                 Paper: "A Range of Policy Strategies
                                                                 for Offshore Oil."

                                                  2:45 - 3:15    Jerry D. Ham, Ph.D.
                                                                 Assistant Director
                                                                 Oil and Gas
                                                                 ERDA's Fossil Energy Program
                                                                 Paper: "Energy Research and Devel-
                                                                 opment Administration's perspective
                                                                 on Outer Continental Shelf Develop-
                                                                 ment."

                                                  3:30 - 4:00   Panel Discussions
                                                                 (Questions from Floor)

                                                  4:00 - 4:30    General Discussion

                                                  4:30 - 5:30   Light Dinner

                                                                 ifl NdIC

      The symposium was divided into four very general           Dr. Jerry D. Ham, began this section. Dr. Ham is Assistant
    discussion topics and there were three presentations in each  Director for Oil and Gas in ERDA's Fossil Energy Program.
    group. In most cases, the presentations were formally        Following Dr. Ham's discussion was a presentation by Dr.
    prepared papers. Following each group of presentations was   Sneed Collard of the Faculty of Biology at the University of
    an open discussion during which the entire symposium was     West Florida. Dr. Collard discussed- some of the problems
    invited to participate.                                      associated  with offshore oil production.  The last
      The first group of presentations focused on aspects of    presentation in this section was presented by Dr. Luther
    coastal mobility and management. We were fortunate to    Skelton who is the Coordinator of the Coastal Zone
    have had Dr. William F. Tanner of the Department of    Management Program at the University of West Florida.
    Geology at Florida State University lead off our program     Dr. Skelton discussed policy strategies for offshore oil.
    with his presentation on beach mobility. Arthur J. Butt of     We have attempted to reproduce the discussions which
    the Florida Department of Environmental Regulations          follow each of these sections as accurately as possible. In
    elaborated the topic in excellent detail and David Worley of    some cases, it has been necessary to shorten and /or clarify
    the Florida State Bureau of Coastal Zone Planning            some of the discussion, but in all cases we have tried to
    described some of the complex techniques which are used to    protect the essential meaning.
    evaluate and plan coastal zone activity.                       Finally, a word must be said concerning the selection of
      The second group of presentations dealt with the    symposium participants. Every attempt was made to secure
    administration in the coastal zone. John G. Cowley, head of    the participation of both practicing administrators and
    the Santa Rosa Island Authority, began this section. Mr.     academicians. We feel that the communication linkages
    Cowley represented the position of the Florida Shore and     developed out of their dual participation has been of great
    Beach Preservation Association in his presentation. He was   value and should be encouraged, where appropriate and
    followed by George W. Allen of the U. S. Army Corps of    possible, in other major discussions of natural resource and
    Engineers who discussed the Corps' role in Coastal Zone      environmental policy.
    Management. Mike Applegate of the Florida Department of
    Environmental Regulations represented aspects of State-
    level administration.
      The third section of the program centered on planning
    and was introduced by Patrick W. Ryan, Director of the
    Louisiana State Planning Office. Mr. Ryan discussed the
    development of the Coastal Zone Planning effort in
    Louisiana. He was followed by Daniel Penton from the
    Florida Bureau of Coastal Zone Planning who discussed
    Coastal Zone Planning in Florida. John Hall, Area
    Supervisor of the National Fisheries Service completed this
    section with a discussion of coastal resource management
    and conservation.
      The final section of the symposium was devoted to
    Coastal Resource Management, particularly offshore oil.

      Coastal mobility refers to the actual motion of the coast
    itself. The first group of papers and the ensuing discussion
    considers this mobility and its effects upon the environment,
    coastal development planning and management.
      Dr. Tanner, in the first presentation describes very clearly
    some geological reasons for coastal mobility. He
    concentrates on beach mobility and outlines a range of
    management options for beach erosion. Neither the
    management options nor the process itself can reasonably be
    ignored by the responsible planner.
      Arthur Butt concentrates on the estuarine shoreline, that
    area along a coast where the mutual effects of river currents
    and tides are most pronounced. Mr. Butt defines clearly a
    very difficult value conflict between coastal development
    interests and commercial fishing interests with regard to the
    estuarines. He discusses this conflict with regard to
    Escamnbia Bay.
      David Worley discusses the use of remnote sensing in
    Coastal Zone Planning. He outlines how this technology has
    been instrumental in forming the base line data for the
    Coastal Zone Plan in Florida and how it has been used as an
    environmental sensor. Of importance in this regard has been
    the application of color water-penetration imagery to aid in
    analysing adversely affected health of coral in the
    environmentally critical coral reefs.
      The discussion surrounding this section of the symposium
    focused on beach erosion, which perhaps indicates how
    important this issue is to economic and environmental
    interests alike. Much concern was expressed over the
    techniques available for mitigating or reversing erosion and
    the long range effects of these techniques. Of particular
    interest seemed the discussion of the replacement of sand on
    beaches which have eroded. This process occurs naturally as
    a result of unrestricted river flow but is interrupted as a
    result of damming because sand which would ordinarily
    replenish eroded beaches is trapped in inland reservoirs.

                                                                                                        Coastal Mohilit v   3

                                                                                                           William F. Tanner
                                                                                Geology Department, Florida State University

                                                                                                        "Our Mobile Coast"

                                                 Introduction      relatively small and slow, and should not provide for
                                                                   profound changes in sea level within the life time of any one
      The coastline is not a fixed line; in most places, it moves  individual.
    in a complicated fashion. For the last few decades this           Much more important than sedimentation and tectonics is
    movement has been visible as coastal erosion. During times      the growth and melting of the great ice sheets which have
    of severe storms, such as hurricanes, this movement can be     characterized the surface of the planet for the last few
    spectacular.                                                    millions of years. Two of these ice caps still exist today: one
      However, coastal erosion is not the only process at work.    in Antarctica, and the other in Greenland. Two more, which
    There are three main groups of processes which provide that     were fully developed as recently as 20,000 years ago, were
    the coastline will not be fixed in space and time. Coastal     located in North America and Europe. The European and
    zone management must be predicated on at least a general       Canadian ice sheets have now melted, but it is quite likely
    understanding of these processes, and how they affect the      that they will return again, in view of the fact that the most
    shore.                                                         recent melting was only one event in a long sequence.
      The three groups of processes are (1) sea level changes, (2)   The total fluctuation of sea level, in response to changes
    land level changes (uplift and depression), and (3) coastal    in the ice cover, has been roughly 200 meters, up and down.
    erosion and deposition.                                        That is, if the two remaining ice caps were to melt, sea level
                                                                  would rise by roughly 70 meters (about 220 feet), and if the
                                                                  other two ice caps were to return, sea level would drop by
                                            Sea Level Changes      approximately 130 meters (about 400 feet). The second
                                                                  possibility (sea level drop) is much more likely than the first
      The surface of the world -- although certainly not "level"   (sea level rise): the two existing ice caps have not melted for
    in the popular sense -- tends to maintain a constant surface   the last few millions of years, but the other two ice sheets
    shape. This shape is a reflection, among other things, of the  melt and then grow again at much more frequent intervals.
    shape of the basin which holds the ocean waters. Sediment         The last big melting started a little after 20,000 years ago,
    delivered to that basin, such as the material carried by the   and was more-or-less complete at about 5,000 or perhaps
    Mississippi River, has the long-term effect of reducing the    6,000 years ago. During this part of earth history,
    volume within the basin, and therefore of raising sea level.   tremendous quantities of meltwater poured into the oceans,
    This effect, by itself, is extremely important geologically,   raising MSL* roughly 130 meters in a little more than 13,000
    but operates at such a slow rate that any one person would     years. This is an average rise of one centimeter per year.
    not see any alteration of the shore line in his life time.     Such a rise would mean a horizontal movement of the
      Tectonic movements within the solid earth, such as those     shoreline of 2.29 m/year, on a slope of 0�15', or a
    responsible for mountain-making, also reshape the ocean        horizontal movement of 4.58 m/yr, on a slope of o 7.5',
    basin, from time to time, thereby modifying its volume and     which are rather common slope values. It is likely, however,
    hence the position of sea level. The magnitude and rate of    that at times the rise of MSL was even faster, but the
    this process are not known very well, but apparently are       maximum value is not known.

                                                                   *Mean Sea Level

    4  Coastal Mobility

      For the last 5,000 years, MSL has been almost stable, with   Every uplift of this kind must be countered by a down-
    fluctuations of two to four meters. These fluctuations were    warp of some kind, some where -- perhaps under the ocean
    in the larger part of the range during the first half of the    surface, thereby changing the shape of the ocean basin, and
    interval, and have been smaller in the second half. During    hence changing sea level. If the land movement is upward,
    the first half of the present century, MSL rose a small    the compensating movement must be downward, and if the
    amount, but that rise appears to have stopped. It would not    latter occurs in the ocean, sea level will drop a small
    be economically wise, with present knowledge, to base our    amount.
    plans on the possibility of future large changes in MSL,       Not all vertical motions of the continents are upward,
    although such changes are certainly in store for us, perhaps    however. Some are downward, perhaps compensating for
    centuries or even millenia in the future.                    uplift elsewhere. The Mississippi River delta plain is located
      As sea level rises, and large water masses are placed on the    in an area of subsidence. At the moment, this downward
    edges of the continents, increased weights are added to    adjustment appears to be due to the compaction of the
    continental rocks. The latter adjust downward under this    tremendous volume of river sediment which has been
    weight, and the result is another change in the shape of the    deposited there, but land movements must also be
    ocean basin. Changes in this category may account for one    considered, perhaps in the form of uplift in the headwaters
    or more of the fluctations of MSL during the most recent    of the Mississippi system, thereby providing for greater
    5,000 years.                                                 erosion, and hence more sediment to be dumped into the
                                                                 Gulf of Mexico.
                                                                   The combination of downward adjustment due to
                                                                 loading, and downward adjustment due to compaction of
                                         Land Level Changes      sediments, produces the result that the shoreline in eastern
                                                                 Louisiana is now migrating landward. This migration is
      The rock masses which make up our continents are,    quite obvious in the Chandeleur Islands, where no one lives,
    geologically, constantly moving. Such movements may be    less obvious in the delta country proper. Not only is the
    very rapid, by geological standards (perhaps 5 or more       shoreline moving landward, but land areas behind the shore
    centimeters per year), or very slow. By human standards,     are sinking, which should be of considerable importance to
    uplift and depression are relatively slow. Such movements   the planner, especially in areas such as New Orleans.
    of the rock basement may be spectacular at times of major      Outside of the Mississippi River delta plain, most of the
    earthquakes, when displacements of a meter or more may be    eastern half of the United States is, by-and-large, stable.
    observed in a few seconds. Japan, the Andes Mountains of    There are relatively small up and down movements here and
    South American, and the West Coast of North America    there, but they are typically only a fraction of a millimeter
    have been subjected to such movements for a long time,    per year (at present), and hence should not be made the basis
    mostly upward. Therefore it is not surprising that old       for short-range planning.
    shorelines can be identified, in these areas, hundreds of      Geological history is filled with examples of changes in
    meters above present MSL. As in the case of water level rise    rates, and it is certainly conceivable that vertical movements
    due to melting of ice, a rise of one centimeter in one year, on    in the eastern United States will be faster at some future
    a slope of 1/8 of a degree, means a horizontal translation of    date; there is now no rational basis for making any such
    the shoreline -- seaward -- by more than 4 meters.          predictions.

                                                                                                       Coastal Mobility 5

                                      Erosion and Deposition     belt, which runs primarily in one direction. Because we see
                                                                 only the sand, and one grain looks pretty much like any
                                                                 other grain, we do not ordinarily note that the conveyor belt
                                                                 is moving. But moving it is, and the effects can be
      The changes reviewed up to this point are erratic and, in    catastrophic.
    the eastern part of the United States, generally small at      It must be kept in mind that this particular conveyor belt -
    present (exception: Louisiana). Erosion of our beaches is    along sandy shores -- never runs empty. This means that, as
    quite a different matter.                                    the system continues to operate, at least one of two actions
      Erosion and deposition are the two end effects for a single  will be required: either new sand is dumped onto the
    process: sediment transportation. Where a sand beach is    conveyor belt, in the source area, or sand will be obtained
    marked by breaking waves sufficiently large to be of interest  from the beach itself, to keep the belt fully loaded. When
    to tourists, one can be sure that the sand is geologically in    the latter happens, we say that the beach is eroding.
    motion. That is, the grains of sand which make up the beach    Somewhere there must be a deposit, where the conveyor
    in front of a given motel today are not the same grains of    belt track ends. At first glance it would appear that the
    sand which were present in the same area 25 years earlier.    amount eroded, along one part of the belt, will equal the
    Only if there are no breaking waves can one be reasonably    amount deposited along another part. However, we must
    sure that the sand is not in motion. "Zero energy" coasts    now recognize that onshore and offshore motions, at least at
    are known, but they don't make popular tourist resorts.      the present, represent losses to the system, and therefore
      Along most moving beaches, the motion is predominantly    that we can have serious erosion without compensating
    in one direction, although there may be excursions in other    growth of land elsewhere.
    directions from time to time. It is common for beach sand to   This seems to be the situation today, throughout most of
    move the length of the beach (in one direction or the other),    the world. Perhaps 70-80%o of our coast is eroding, and part
    but transportation also occurs in the landward and/or        of the rest is stable. Only a small fraction is aggrading. Most
    seaward directions.                                          of the sand, lost by erosion, is carried into deeper water,
      The quantity of sand moved, and the rate at which it       from which it is not being returned.
    moves, depend on the wave climate: wave height, wave
    period and wave approach direction. Small waves which
    approach head-on, or nearly so, move relatively little sand.
    Large waves, which approach at an angle, move a great deal                                              Erosion Rates
    of sand.
      In the Mississippi-Alabama-Florida region, small waves
    approaching from the south provide for only small              The preponderance of coastal erosion, over coastal
    transport quantities and  rates. Very  large waves,          growth, is our present "crisis of beach erosion." Where
    approaching from the southeast, on the other hand, can do    vertical movements of the land are rapid, this erosion may
    a tremendous amount of damage; this was the pattern    be offset, or perhaps -- as in Louisiana -- it will be
    during Hurrican Camille.                                     compounded. In more-or-less stable area, however, beaches
      Excluding onshore and offshore transport for the    generally are retreating. The beach at Cape San Blas, on St.
    moment, the beach can be though of as a giant conveyor       Joseph Peninsula, has been retreating at an average rate of

    6 Coastal Mobility

    11.2 m per year since about 1875. This is more than one       erosion. It is, indeed, the culprit in some cases, but cannot
    kilometer since the Civil War. The Cape San Blas lighthouse    be responsible for the pronounced recent erosion of the
    has had six different locations or potential locations, and at  shores of the state of Rio Grande do Sul, in southern Brazil,
    least two of these locations are now out in the Gulf of        for example, where the most permanent structure has been a
    Mexico (one of the six was an error in judgment, which was     grass hut.
    rectified before construction was completed). The erosion        Sea level rise is also widely blamed for beach erosion, or
    rate from 1770 to 1870 was, apparently, about the same, and    at least for coastal retreat. At times of marked rapid MSL
    perhaps a bit faster. This is not a record rate, but may well    rise, there must be retreat of the shoreline. However, MSI. is
    be the fastest in the Florida Panhandle.                       essentially stable now, and has been for a few centuries, and
      At other places in the Panhandle, erosion rates vary from   hence cannot be responsible for the present beach erosion
    "very small" (e.g., undetectable) to values greater than 1.0    crisis.
    m per year.                                                      Depression of the land surface may lead to beach retreat,
      In one study of 135 km of open Gulf beaches in the          as in Louisiana today, but cannot explain beach erosion in
    Florida Panhandle, 34% of the total was judged to be more-     essentially stable areas.
    or-less stable (erosion not more than 20 cm/yr), and 14%         A change in the wave climate, from lower energy levels to
    was aggrading. Outside of the so-called stable areas, the      higher, may cause increased beach erosion, but at the
    ratio between eroding and aggrading beaches was roughly 4-     moment we do not have enough data to state whether or not
    to-l (km vs km). The deposition, however, took place in        we now live in a time of more energetic waves, and we are
    restricted localities, and generally did not involve seaward   certainly not able to predict such changes for the next 20 to
    growth of the beach, but rather lengthening of spits and       30 years.
    points.                                                          The maturing of the sand-transport system may also be
      Rates of erosion and deposition do not hold constant with   responsible for increased beach erosion. In this concept,
    time. Studies in three different areas, controlled by carbon-  erosion is something of a symptom of "beach senility." A
    14 dates, show that deposition rates peaked more than 500     more precise statement of this idea is founded on physical
    years ago, and that erosion has been replacing deposition      reasoning, as well as observation, but the "aging" analogy
    subsequently. The shift from deposition to erosion has not     is adequate here. If this concept is correct, we can say that,
    been synchronous from place to place. In one study area        in general, coastal erosion is going to grow more severe --
    (Pacific coast of Mexico), the deposition rate has been        barring another major change in MSL.
    declining for more than 1,000 years; projections indicate
    that the shift to erosion will take place at some time perhaps
    100 years into the future.
                                                                                                           The "a-b-c " Model

                                            (Causes c/f Erosion       In this construct, the shoreline is divided into cells, or
                                                                    compartments, each of which is thought to act more-or-less
                                                                    independently of its neighbors. Wide inlets, river mouths,
       Human activity is widely held to be responsible for beach   and major capes, among other features, commonly separate

                                                                                                      Coastal Mobility 7

    adjacent cells.                                              but is hardly the basis for sound planning.
      Within any one cell, five critical points can be identified,  Another approach, very close to the first, is to
    designated "a" through "e." The point "a" is the drift    acknowledge the problem, but to classify beach damage as
    divide, such as on a cape, which separates two cells. Erosion    an "act of God" and therefore simply one of the risks which
    occurs throughout the "a" to "c" segment, with a    people must run.
    maximum value at "b." All of the material eroded in the        A third approach is to attempt to eliminate, or at least
    :'a-b-c" segment passes the "c" point, except for sediment    greatly reduce, the incident wave energy, thereby cutting the
    lost to the system (such as by being transported offshore).    erosion problem down to manageable size. This may not be
    Deposition marks the "c-d-e" segment, with maximum          desirable from a tourist point of view (most tourists are not
    deposition at the point "d." The end of the cell is located at    interested in wave-less beaches), but in any event is
    "e" which is probably also the end of the adjacent cell; this   'financially out of reach.
    dividing line commonly is found near bay heads.                A fourth approach is to try to stop the transport of sand,
      The amount of erosion in the "a-b-c" segment should    usually by building a set of structures known as groynes.
    balance the amount of deposition in the "c-d-e" segment,    These may be temporarily successful, but generally create
    except where there are losses and gains to the system (mostly    even worse problems along some other part of the beach.
    losses, today). It is not always possible to get records       A fifth procedure is to surrender the beach entirely, and
    suitable for confirming the balance, but fortunately in many  to try to defend the adjacent city or town by building a sea
    instances depositional features in the "c-d-e" segment      wall. This has been the recourse in various places, such as
    permit the investigator to make a statement about that    Atlantic City, N.J., Jacksonville Beach, Fla., and
    balance. In general, such areas have passed from "excess of    Galveston, Texas. It is expensive, and it has the obvious
    deposition" to "excess of erosion." That is, the "c" point    disadvantage of permanently degrading the esthetic value of
    has been shifting farther from "a" and toward "e."          the coast.
      Although the "a-b-c..." model cannot be applied to all      A sixth method is to nourish the beach artificially. This
    coasts, it is extremely useful in many areas, particularly    requires dredging of suitable sand from some location where
    where barrier islands are present. By use of the model, based    the dredging will not in itself be injurious, a point which has
    on a few historical data, one can project future erosion and    been missed in some previous studies. The volumes of sand
    deposition sites, and even make reasonable estimates as to    needed are very large, commonly tens or hundreds of
    rates.                                                      thousands of cubic meters, per year, for a few kilometers of
                                                                  beach. At present prices, this might mean as much as
                                                                  $1,000,000 per year for one strip of beach. Furthermore, in
                                             Erosion Defense    certain areas, adequate volumes of sand are not available
                                                                  within economic transport distance. Nevertheless, this is
                                                                  probably the most widely-favored method at the moment,
      There are several different ways of approaching the beach    especially by those who don't have to pay for it.
    erosion problem. One is to ignore it, unaware that beach       A seventh approach is to provide a buffer zone, located
    erosion is actually taking place, and considering the    seaward of all construction, where the sand is considered to
    occasional destructive hurricane as an unusual event that    be expendable. If this zone is sufficiently wide, storm
    probably won't be repeated. This is the prevalent attitude,    activity can be absorbed without appreciable damage to the

    8 Coastal Mobility

    adjacent structures. The mechanism for establishing such a
    buffer zone is known as a "coastal set-back law." In theory
    it is a perfect solution, because the buffer zone can be made
    very wide (100 meters or more), and further it can be shifted
    landward from time to time, so that it never gets
    dangerously narrow. In practice, few legislatures or
    regulatory bodies wish to provide a meaningful width to the
    zone, because of the unpleasant choice which they then must
    face: either pay for the expensive land involved, or
    undertake to confiscate it without payment.
      From one point of view, actual confiscation is not
    necessary; but if the land owner, who holds a water-front lot
    70 meters deep, is told that no buildings may be erected
    within 100 meters of the beach, the result is, for all practical
    purposes, the same as confiscation.
      It can be seen that none of the solutions are really
    attractive. All of them are expensive, either in terms of
    immediate monetary outlay, or in some other way.
    Nevertheless, along eroding coasts, erosion is -- with the
    present wave regime -- inexorable. Planners should be fully
    aware of this process, and should be doing everything they
    can to make the socio-economic impact as light as possible.

                                                                                                       Coastal Mobility 9

                                                                                                            ArthurJ. Butt
                                                                                                   (and Michael Applegate)
                                                                                   Department of Environmental Regulation

                                                                                                      Coastal Development
                                                                                                 Along Estuarine Shorelines

      There are an estimated 17,000 to 20,000 miles of    cordgrass and black needlerush marshes. These shore types
    estuarine* shorelines along the Gulf Coast of the United     may suffer beach losses in excess of 20 feet per year;
    States. In Florida alone, there are over 8,000 miles of tidal    however, greater losses can occur as a result of a single
    coastlines, more than any other of the 48 contiguous states    hurricane. Hurrican Eloise of last September resulted in a
    (Collier, 1975). In recent years, the monetary value of    loss of 360,000 to 400,000 cubic yards of low, bluff lined
    Florida's shorelines has increased rapidly and continues to    sand along only a few miles of protected beach. Average
    do so as a consequence of population increases of 5,000    shore erosion, however, is approximately two to three feet
    people a day. As a result, various special interest groups are    each year.
    competing for the right to develop or otherwise use the         The inland sheltered shorelines are of three general types;
    dwindling stretches of undeveloped shore to accommodate       one-five foot sandy banks, grass marshes bermed as
    this growth. Aside from the ecocatastrophies caused by Soil    described above, or open marshes. The latter constitutes the
    Conservation guttering of all of the meandering streams that  major type. Erosion occurs in these areas, however, it is
    are too little for the larger regulatory agencies to bother   limited to moderate losses of two-three feet per year, and
    with, the DOT** has an allegiance to rectalinear surveying;   usually along exposed shorelines only.
    the private land developers and non-developers have cut up      It should not be understood that shoreline erosion is a rule
    coastlines and swamps on paper to sell to starry-eyed private    rather than an exception. Where existing shorelines are
    investors who hope to win a piece of Paradise by speculating  subject to erosion or are otherwise unsuitable in their
    in land. The purpose of this talk is to present the mystique  existing conditions, the shore has been stabilized by
    and demise misfortunes of waterfront development along    construction of seawalls, or bulkheads. As the value of
    the Gulf Coast, and the impact such development has upon     waterfront land increases, the protection of the shoreline
    our natural resources. It is hoped that some light may be    becomes proportionately more important.
    shed upon the status of presently undeveloped shorelines        Presently, the bulkhead line for the state is the mean high
    before they succumb to the rigid and unnatural contours of    water line, except when land loss is excessive and involves
    subdivision plots.                                           "artificially induced erosion" over a short period of time.
      There are two general shoreline types along the estuarine    In such cases, shore reclamation can be accomplished. This
    systems of the northern Gulf Coast; open and exposed         type of shore protection, however, is often exploited by
    beaches characterized by shallow sand flats and inland       waterfront property owners in order to "improve" their
    sheltered estuaries characterized by vegetated shorelines.   property by filling a marsh or expand their real estate
    The former shorelines are normally located along open bays    seaward. As a result, extensive wetlands have been
    and sounds and respond strongly to the forces of wind,       destroyed or rendered less productive.
    waves, currents and tides. Shore types in the areas             Another major objective of coastal zone construction is to
    correspond to: sand and clay banks, typically one-five feet    check or impede existing erosion conditions. These shore
    or higher, scarps in excess of five feet, or sandy berm fringes    protections typically protect only the land directly behind
    overlying peat soil along low flat uplands or lower smooth   them and represent a hidden cost burden to the owner, for it

    *A water passage where the tide meets a river current.
    **DOT--Department of Transportation

    10 Coastal Mobility

    may cost as much as $1,000 to protect just 50 feet of          It is estimated that 90 percent of the total harvest of
    waterfront. If the seawall is not built properly with    seafood comes from continental shelf fisheries, and two-
    wingwalls and other protective features (e.g. rip-rap, tie    thirds of the species involved depend on estuaries for their
    backs, dead men, back fill, etc.) the structure may last only    existence. This value is even higher in the Gulf of Mexico for
    a short time, resulting in financial loss. To shortcut ever    the standing crop of zooplankton (a primary constituant of
    increasing prices, about one-third of the walls are    the food chain) and is second only to that of Peru (Austin
    improperly built and last from only six months to three    and Jones, 1974). Ninety percent of the commercial catch in
    years. Usually, such structures aggravate the erosion    the Gulf is made up of fish and shellfish which spend some
    problem along natural or "unprotected" beaches. Once one    part of their life in these estuarine waters (Thompson, 1967;
    protective measure has been taken to stabilize the lot, it   Gunter, 1967).
    neccessitates continued shore protection measures in a         The chief fisheries of the Gulf are: menhaden, mullet,
    domino effect until the whole shoreline has to be    flounder, croaker, seatrout, oysters, blue crabs, stone crabs,
    bulkheaded. The exposed sand-clay banks supply the bulk    and shrimp. Shrimp are the most important species landed
    of sand for the stretches of beach within the estuaries. As    along the coast. Most of these animals enter the lower
    more of the beaches are bulkheaded, more and more of the    salinity nursery grounds to develop and escape predation
    source material for sand beaches is cut off resulting in the    from more salinity-tolerant predators.
    loss of the water-upland interfact--the intertidal zone. As a  The State has recognized the importance of these waters
    result, property owners lose that magical stretch of white    as necessary to maintain a balanced system for the
    beach they invested in, experience unexpected hidden costs    continued propagation and management of fish and
    of continual wall maintenance, and the public loses that    wildlife. Florida has established water classification types
    shoreline guaranteed to them under the state constitution.   ranging from public water supplies (Class I) to waters used
       Barrier islands characterize much of the southern Atlantic    for utility and industrial usage (Class V). This classification,
    and Gulf state shorelines. Along Florida and most of the    however, has failed to stop continued degradation of our
    other Gulf states these islands are typically long, thin stips    coastal waters. For example, Class II waters for shellfish
    of white beaches that separate river waters from open       harvesting are degrading to Class III waters (recreational
    oceanic waters. This mixing zone is one of the most    and resource management) and these to Class IV for
    productive areas in the aquatic environment. Tidal marshes    agricultural and industrial supply. Escambia Bay is a good
    fringe much of the coasts, and submerged vegetation    example to study. Industrialization and growth have
    blankets much of the clear, shallow-water bottoms.          resulted in the destruction of one of the most significant
    Southern Florida has dense mangrove swamps with the    estuaries along the northern Gulf states. All of the 1500
    more northern coastlines consisting of black rush and        acres of submerged grasses that once supported well-
    smooth cordgrass marshes. The submerged vegetation    balanced fisheries have been destroyed (McNulty, et al
    consists primarily of turtle grass, widgeon grass and cuban  1972). The Florida Game and Fresh Water Fish Commission
    schoalweed in higher salinity waters, and tape grass in freshr    iin 1970 estimated a decrease in fishing value in the bay of 80
    schoalweed in higher salinity waters, and tape grass in    percent since 1952. Over the past six years, the bay has
    fresher waters. Such grasses thrive in clear waters as found    suffered mass mortalities of fish and shellfish and now the
    in the sounds, bays, and bayous behind the protective    production of shrimp and oysters is almost zero as
    barrier islands.                                            compared to production in the 1950's. Escambia Bay is not

                                                                                                     Coastal Mobility 11I

    atypical in its growth; on the contrary, it represents a    conditions. The systems must be maintenance-dredged at
    general pattern that is occurring all along the Gulf Coast,    increased expense. As local water conditions deteriorate,
    particularly, in the now productive estuaries of Mississippi,    channelization across islands is thought to help flush the
    Louisiana, and Texas.                                       bays and sounds. When dug, such canals result in higher
      Relative to the United States, Florida's commercial       salinities and greater saltwater intrusions.  Between
    marine landings in 1972 ranked seventh among the same    freshwater runoff and increased salinity introduction, the
    over the past 20 years; however, the average price is twice    estuarine system must now cope with rapid fluctuating
    the average U. S. PRICE (Prochaska, 1976). Pensacola    stresses establishing conditions for "anastrophes" or mass
    fishermen must now travel to Louisiana or as far as Yucatan    mortalities of aquatic life. Stresses that were once seasonal
    to catch much of the tonnage that they once collected in these    are maintained year round. Continued stressful conditions
    bays.                                                       tend to lower an animal's resistance to diseases. This is
      The inshore bays and bayous have become developed or    typified by the presence of "fin rot" on fishes associated
    are rapidly undergoing present modifications, as discussed    with polluted waters and an increased incidence of
    above. As a result, aquatic production in many of these    parasitism.
    areas has declined. Many of the largest remaining nursery      We now have laws to prevent the destruction of entire
    grounds are now located in the lower bayous and sound    estaurine systems, and our presentation was not intended to
    waters just inside barrier islands. As land increases in value,    be a preservationists'plea. We note in closing, however, that
    new and viable real estate resources are being sought for the    the laws are effective only when they are enforced without
    ever growing population. The barrier islands with their    consideration for special interest groups. To date, this has
    white beaches, clear and quiet sounds, and close proximity    not been the case.
    to Gulf waters makes them very attractive to development.
      As development encroaches along the coastal plains and
    wetlands, upland clearing and drainage of lowlands occurs
    to facilitate development of otherwise "useless" land. The                         Conclusions and Recommendations:
    result is a lower water table and increased runoff into the
    estuarine systems. As exemplified in Santa Rosa Sound,
    there has been a general lowering of the salinity followed by  Water-front property can be expected to experience
    a general reduction in water quality. We are destroying what    continued development. Detailed shoreline analyses for each
    we moved here to enjoy.                                      coastal county should be made. Vegetated fringes, sandy
      With the development of coastal areas and specifically    berms, swamp forests, resistant clay bluffs and peat
    barrier islands, people look for ways to improve their    marshlands all function as natural barriers to shoreline
    original designs. To facilitate the fast growing sport of deep    erosion. Such areas should be designated areas of
    sea fishing, new and quicker means of access to and    environmental concern. Most of these areas are well within
    channelization across barrier islands allows quicker access    flood-prone areas or transitional zones, and developmental
    to deeper waters.                                            reviews by both state and federal agencies should be
      What  do  such  activities change  in an  aquatic    critical. In areas where shoreline protection or natural
    environment? Dead-end canals typically result in stagnant    erosion barriers prove unsuccessful or are unfeasible due to
    or slow circulating pools, resulting in poorer water    ecological or economic conditions, setback regulations may.

    12 Coastal Mobility

    provide the only solution. Such setbacks are generally
    unpopular due to the obvious reasons of condemnation or
    ''grandfather"' rulings. The alternative is unacceptable
    ecological, economic and visual chaos, as each property
    owner does ai he pleases without regard to the effect it may
    have on adjacent or downshore property. Natural beach
    segments must be planned as units rather than as individual
    disasters. In areas where shoreline protection measures are
    essential, building codes should be established to maximize
    the efficiency and longevity of protective structures and to
    prevent the present exploitation of unknowing property
    owners.
      As long as there is coastal development in and near
    wetlands, there will be local degradation of water
    conditions. Therefore, certain precautions can be made to
    minimize the impact and allow the aquatic environment
    more time to adjust. "Green belts" should be implemented
    to reduce sedimentation along natural drainage patterns or
    newly constructed ditches. More productive waters with
    submerged grasses need to be classified as areas of
    environmental significance. Not only are these nursery
    grounds sources for today's resources, but they must also
    serve as such for our children, and theirs. The state needs to
    reevaluate the water classification as presented in Chapter
    17-3 FAGC. Reclassification of water bodies will help assess
    statewide water changes. Our nursery grounds are rapidly
    dwindling with the advancing forces of man's alterations.
    Soon, we will have to make a decision: surrender our
    fisheries to ultimate shore development, or preserve that
    which remains in hopes of maintaining our natural
    resources. The latter is our constitutional right in Florida
    and surely is in the public interest.

                                                                                                      Coastal Mobility 13

                                                                                                          DavidR. Worley
                                                                                          Technical Services Administ ration
                                                                                          Bureau of Coastal Zone Planning
                                                                                                           State of Florida

                                                                                    Remote Sensing Application As Utilized
                                                                            In Florida's Coastal Zone Management Program

                                                Introduction     decided to use physical characteristics selected on the basis
                                                                 of terrestrial areas influencing the adjacent waters in
      The Florida Coastal Coordinating Council (FCCC)* was      combination  with  boundaries  of  selected  Census
    established by the Florida Legislature in 1970 (Florida      Enumeration Districts. Physical characteristics involve
    Statutes 370.021 1) to carry out the following primary       defining an area by such factors as drainage basins, coastal
    charges:                                                     swamps and coastal marshes, selected fresh-water swamps
                                                                 and marshes, flood zones, etc. Defined in this way,
    (1)  To, "... develop a comprehensive state plan for the    Florida's coastal zone has an inland boundary varying from
         protection, development and zoning of the coastal zone,    two to twenty-five miles from the coastline, with the
         making maximum use of any federal funding for this    seaward boundary being the limit of Florida's territorial sea.
         purpose. "                                                Within this coastal zone, the Council staff has proposed a
    (2)  To, ..... conduct, direct, encourage, coordinate, and    state zoning system for land and water areas which
         organize a continuous program of research into    recognizes three basis categories of management areas:
         problems relating to the coastal zone."                       Preservation (no further development)
    (3)  To, ..... review upon request, all plans and activities       Conservation (limited development permitted)
         pertinent to the coastal zone and  to provide                 Development (suitable for intensive development)
         coordination in these activities among the various       Preservation areas would protect ecologic units of
         levels of government and areas of the state."          sensitive flora and fauna as well as areas of dunes, marshes,
    (4)  To, .".... provide a clearing service for coastal zone    swamps. Conservation areas would include those lands with
         matters by collecting, processing and disseminating    soils and topography suitable (or suitable with minor
         pertinent information relating thereto."               corrections) for intensive development.
                                                                   Areas throughout the coastal zone have been designated
      Mindful of these legislative charges, the staff of the    one of these three zoning categories by the FCCC after
    Coastal Coordinating Council recognized the necessity for a    consideration of the following eight factors:
    planning/management methodology that would illustrate              (1) Soils suitability of the area.
    the need for a flexible coastal management plan and provide        (2) Ecological significance of the area.
    a basis for a multiple range of data input. The first task was     (3) Susceptibility of the area to flooding, both from
    to define the State's coastal zone and then develop a                  runoff and hurricane-driven tides.
    planning/management process for that area. Lengthy                 (4) Historical and archaeological significance of the
    research revealed that the most practical method for                   area.
    defining the coastal zone is to use physical features in           (5) Unique features that may warrant protection.
    combination with boundaries of areas for which socio-              (6) Water quality standards.
    economic data is readily available. On this basis, it was          (7) Present land cover and/or use.

    *The Florida Coastal Coordinating Council is now the
    Bureau of Coastal Zone Planning, Florida Department of
    Natural Resources.

    14 Coastal Mobility

          (8) Geological factors to the extent possible with    eight county sets (four maps each, i.e., Preservation,
              existing information.                             Conservation,Development,Composite) were prepared in -
      There are twenty-nine subcategories that constitute       house at a map scale of 1 inch to 1 mile. These in turn, were
    coastal phenomena within the FCCC zoning categories.        photographically reduced to 1 inch to 2 miles, resulting in a
    Many of these subcategories are considered representative   final printed map format size of 22 inches by 26.
    of coastal phenomena essential to Florida's coastal           The basic purpose of this atlas was and continues to be a
    environment, such as: freshwater marshes and swamps,        means to provide decision makers and concerned citizens
    saltwater marshes and swamps, marine grass beds, beach      with an overview of the components that make up the
    and dune systems and buffer zones such as adjacent          coastal environment of Florida. At the same time, this
    woodland-upland areas to the wetland-marine systems. The    Council would have a means by which the FCCC
    proper management of such coastal phenomena has become      planning/management approach could be disseminated and
    critical in Florida as pressure on these coastal resources has  evaluated by potential users. As a reflection of the FCCC
    continued to grow with increased population, wealth,        methodology, the atlas delineates those areas already
    mobility and leisure time.                                  developed by our rapidly expanding coastal population but
      To date, only the photographic remote sensors have been   at the same time indicates those areas physically suited to
    utilized in support of FCCC planning/management             accommodate further development where such activity will
    methodology. To illustrate how these sensors have been      have a minimum detrimental effect on the environment.
    utilized the following products are described reflecting their    Following the proposed FCCC methodology format, the
    use on the broad application format to and including        Atlas contains an inventory of coastal phenomena still
    specific  application  as  needed  for data  support        relatively undisturbed, i.e., Preservation subcategories, and
    requirements.                                               recommends that essential, indicated segments of these be
                                                                "preserved" in order to insure the maintenance of living
                                                                marine resources, the aesthetic qualities of the coast and the
                  The Florida Coastal Zone Management Atlas    physical integrity of the shorelands. Additionally, a buffer
                                                                or "caution zone" between development  and the
      This document was received from the printer in December    preservation areas are designated for "Conservation" where
    1974 and widely distributed during 1973 and 1974. To date,    limited development with controls can occur, but whenever
    over 600 full atlases and more than 1500 county sets have   possible such conservation lands would be considered as a
    been sent to governmental officials at all levels, planning    land bank for future generations.
    groups, developers and real estate interests, consultants,    Response to the Atlas has been widely favorable and the
    environmentalists and private citizens. Panchromatic    planning approach used has been accepted and is being
    imagery with a range of dates from 1965 through 1971 and a    implemented by planners throughout the state in private and
    photo scale of 1 inch to 2000 feet was the primary data    public capacities.
    source used for the inventory requirements, with
    supplemental data and ground truth verification utilized
    when necessary. Standard photo-interpretation procedures                Florida Keys Coastal Zone Management Study
    and cartographic application for map compilation were used
    in preparing the FCCC methodology base maps. Thirty-          In  April  1973  Council  members  approved  the

                                                                                                      Coastal Mobility  15

    development of a Florida Keys coastal zone management         a map scale of I inch to 2000 feet. The maps were then
    plan. Because of the many unique features and problems        photographically reduced and printed at a map scale of I
    involved in planning for the Keys, and because of the    inch to 4,000 feet. The format size was the same as the
    development pressures in the region, it was felt that it would  previous Coastal Zone Atlas, 22 inches X 26 inches.
    make an excellent area for the development of a pilot
    management plan. Beginning in May, the full Council staff
    began work on the Keys study. The study format consisted
    of the following major sections.                                                     Present Remote Sensing Application
    of the following major sections.
           1. Biographical Analysis.
          2.  Socio-Economic Analysis.                            The FCCC and the state's regional planning councils which
          3.  Environmental Quality Analysis.                     include coastal counties are now working jointly on a Level
          4.  Planning Analysis.                                  II analysis of the 1972 CZM atlas following the format
          5.  Summary and Conclusions.                            developed by FCCC for the Florida Keys Management
    This study was completed and published in July, 1974, and     study. FCCC is doing this biophysical analysis in-house
    widely distributed to local, regional, state and federal      using color infrared imagery (photo scale: 1:80,000) which
    agencies. This study represented a major extension of the    the state purchased in 1973. Panchromatic imagery (photo
    FCCC methodology that had previously been developed for    scale L:24,000) is available as a supplementary data source
    the Coastal Zone Atlas of 1972, particularly in terms of    for a majority of the coastal counties with exposures dated
    remote sensing and mapping requirements, while the 1972       1974 and into 1975. Ground truth checks are being made in
    Atlas was essentially a Level II (U.S.G.S. Land Use           addition to the supplemental data used.
    Classification System) data analysis, the Keys study required    The state regional planning councils are using 1:24,000
    a Level III analysis. Two primary base maps were required:    photo quads, supplemental imagery and other data sources,
    (1) a land cover or vegetation map of upland and adjacent     as well as ground truth checks in order to provide data for
    marine vegetation and (2) a land use inventory mapping        the social-economic analysis phase for input into the jointly
    effort with a minimum Level II analysis.                      prepared coastal zone management plan. Land use, land
      In a joint funding and mapping effort between the FCCC      ownership, primary and secondary support services, are
    and the State Department of Transportation, Topographic       some of the data that are currently being generated in part
    Office, color infrared imagery was obtained (photo scale:    through the use of remote sensing imagery.
    1:24,000) for stereo analysis and the primary base maps         Map preparation for all in-house work by the regional
    preparation. Thematic maps then generated from the    councils and FCCC will have data delimited at map scales of
    completed primary base maps were the standard FCCC             I inch to 2,000 feet. The regional coastal zone management
    methodology maps, i.e., Preservation Conservation,            atlases will be printed at this scale or photographically
    Development and Composite maps, and a Land Availability    reduced up to 50%, depending upon complexity of data
    Map, all of which were basic to the Biophysical Analysis      representation. Atlas formats will again be 22 inches X 26
    Section. Land Use maps and support services maps were         inches.
    generated for the Social-Economic Analysis section. The          Another important on-going remote sensing application is
    remainder of the analysis sections were then developed from   the use of a color water-penetration imagery (photo scale:
    these data sections. Work maps were prepared in-house with     1:24,000) to provide a synoptic overview of the Coral Reef

    16 Coastal Mobility

    Tract off the Florida Keys. This mapping effort is a
    preliminary step to a coordinated federal, state, regional,
    local effort for long term study of the Reef Tract in an
    attempt to obtain some answers as to what is affecting the
    health of the coral; i.e., is degradation being caused from
    natural occurrences or man's activities in and adjacent to
    the Reefs, or a combination of both influences?

                         Future Remote Sensing Requirements

      Implicit in the FCCC planning/management
    methodology, whether a Level II or Level III analysis is
    used, are the requirements for continuous data updating and
    a rapid means of data dissemination. Systems for
    acquisition and dissemination of remote sensing
    information are less than adequate, or non-existent at the
    state/regional/local governmental levels, particularly for
    the data presently in demand, as well as known future
    requirements. The problems facing remote sensing users
    who seek information are many and varied, given their
    respective data requirements, data display and/or
    dissemination format, in-house expertise, access to
    necessary funding, etc.
      In Florida, governmental agencies are awakening to the
    fact that these varied problems exist and that expansion of a
    centralized capability for remote sensing activity is necessary
    if various program requirements are to be met. The focus of
    the interest is presently with the State Department of
    Transportation and its Topographical office. In the last two
    years, by working through inner-local agreements, data
    derived from a variety of remote sensors, including
    photographic, thermal and SLAR have demonstrated the
    need for remote sensing application. Gradually, a multiple
    remote sensing program will be in demand as greater
    numbers of present and potential users learn what segment
    of remote sensing technology can benefit their own
    program's data requirements.

                                                                                                       Coastal Mobility 17

                                                                                                           John G. Cowley
                                                                                                                 President
                                                                                                   Florida Shore and Beach
                                                                                                  Preservation Association
                                                                                                       Tallahassee, Florida

                                                                                         The Economics of Erosion Control

      I want to make one point at the outset. Perhaps it should   The situation is similar in many other parts of Florida.
    be the title of my talk today.                               Instead of the wide, magnificent beaches that are featured in
      And that is when you think of coastal zone management,    our tourist brochures, we see in all too many places a narrow
    please don't forget to consider fully the role and importance    strip of sand with hardly room for a beach blanket.
    of our beaches.                                                The one big exception is right here in extreme Northwest
      I say this because it's my distinct impression that all too    Florida. By and large, our beaches are wide and beautiful --
    many professionals in coastal zone management and    the way they should be. But let me emphasize that we are the
    planning seem to quickly skim over beaches in their scheme    exception. The erosion problem statewide is serious. Our
    of things. At least, very little seems to get said about beaches    beaches are disappearing. Some areas are losing beach at the
    in the context of coastal zone planning.                     rate of 10 to 15 feet a year.
      Yet in Florida, our beaches are perhaps our most             Along the upper east coast of Florida, The Florida
    important single coastal asset. Certainly they are from an    Department of Natural Resources says 90 miles of beach are
    economic standpoint. Repeated surveys have shown that    in a critical state of erosion.
    beaches are the number one attractor of tourists to Florida.   Along the lower east coast, it is 137 miles. Along the lower
    And we all know that tourism is our number one industry in    Gulf coast, it is 90 miles. And there are large stretches of the
    the Sunshine State. Beaches are also the number one defense    Panhandle coast that also are in a bad state.
    against damage to coastal property from storms and             It's not just an esthetic problem. It's also an economic
    hurricanes. And that in itself is a tremendous economic      problem for the whole state. Let me tell you why.
    value.                                                         Tourism is far and away our number one industry, our
      Beaches are also the most significant geographic feature    number one revenue-producer. Last year, more than 27
    of our coastline. Some 1160 miles of our shoreline is    million tourists came to our state. They spent over 9 billion
    composed of sandy beaches.                                  dollar. They contributed 414 million dollars in direct state
      So I don't think I am being unreasonable when I ask that    taxes and generated another 386 million in collateral fees
    our beaches be given full and fair consideration in coastal    and revenues -- a total of some 800 million dollars for our
    zone planning and management.                                state treasury.
      If this sounds overly defensive, so be it. The fact is, I'm  The point is that tourism is very important to our
    very concerned about the state of our state's beaches. And   economy.
    I'm hopeful that the new emphasis on coastal zone              What does this have to do with our beaches? Simply this:
    management will help alleviate the problem.                 Our beaches are Florida's number one tourist attraction, the
      According to the State Department of Natural Resources    number one reason tourists come to Florida in the first
    and the Corps of Engineers, some 500 miles of Florida    place.
    beaches are in a critical state of erosion. Much of this       This is borne out in every tourist survey taken over a
    serious erosion is taking place in heavily-populated resort    period of many years by the State Department of
    communities.                                                 Commerce.
      At Miami Beach, at high tide, there is virtually no beach    Two out of three tourists say they come to Florida to
    remaining. The ocean laps right up to the seawalls of luxury    enjoy our beaches. No other recreational activity comes
    hotels.                                                      close. That includes fishing, golf, tennis, nightclubbing and
      Jacksonville Beach is almost gone.                        visiting attractions such as Disney World.

    18 Coastal Mobility

      On the average, these visitors say that they use our    absorbing the brunt of the hurricane force.
    beaches about five times during their stay in Florida.          Let me give you a good example of what I mean.
      It's no accident that the majority of our resort centers are  Last September, Hurricane Eloise lashed the Panama
    located near a beach.                                        City area causing an estimated 150 to 200 million dollars
      Our beaches are, in truth, "the goose that lays the golden    worth of damage.
    egg of tourist dollars in Florida."                            As hurricanes go, Eloise was strictly average. Compared
      The point is that if we want tourists to continue coming to    to some of the storms that have hit our state, Eloise was a
    Florida in ever-increasing numbers, we'd better hurry up    weak sister.
    and do something about our eroding beaches. We'd better         But Eloise demolished or damaged a high percentage of
    hurry up and restore those postage stamp size beaches in    hotels, motels and other structures along the Gulf Coast.
    some of our major resort areas and make them once again      And the reason was that the beach there had become so
    into the wide, magnificent beaches we see in the tourist    eroded that it offered little protection to coastal properties.
    brochures..                                                  Most of the damage to the buildings occurred not because of'
      Otherwise, it's possible the tourists may stop coming in    the wind but because the storm surge from  Eloise
    the volume we need to sustain a healthy economy.             undermined the foundations of the buildings.
      If we want to expand tourism, it's not enough for us just    This wouldn't have happened with a good beach system.
    to increase the advertising budget for tourism.                 I talked to an engineer with the Corps of Engineers who
      Advertising puffery is no substitute for a beautiful beach  surveyed the damage and he told me this:
    if the beach is what brings the tourist to Florida in the first  He said, if the beach restoration project proposed several
    place.                                                       years ago for the Panama City area had been completed
      Our beaches, themselves, can and should be Florida's best    prior to Eloise, damage to coastal properties probably
    advertising.                                                 would have been a tiny fraction of what it was.
      The Department of Commerce estimates that during 1976        In other words, with a comparatively small investment in
    tourists will spend 10.2 billion dollars in Florida and      beach restoration, we could have saved many millions of
    generate almost 900 million dollars in direct and collateral    dollars in property losses. That's a good investment.
    tax revenues. That's a lot of money.                            We might as well face it. Florida is a hurricane prone
      And our beaches play an important role in generating it.    state. Over the past hundred years, an average of two
    Shouldn't we then be good businessmen -- as well as good      hurricanes a year have struck Florida. And we've had as
    stewards of our natural resources -- and allocate a small     many as five hurricanes in a single year.
    portion  of this 900  million  dollars  into  product           So you'd think we'd want to take all possible precautions.
    improvement -- into rebuilding our eroding beaches?           And a good beach is the best defense against hurricane
      And if that isn't enough economic justification for    damage.
    spending more to save and rebuild our beaches, let me give      I'd like to emphasize that the Panama City area isn't
    you another important economic reason -- hurricane           alone in being especially vulnerable to damage from
    protection.                                                  hurricanes.
      The simple fact is that our beaches are our best protection  There are many resort cities in this state which are
    against hurricane damage.                                    needlessly exposed to severe hurricane damage--simply
      A good dune and beach system is nature's way of    because of badly eroded beaches.

                                                                                                        Coastal Mobility 19

      A concrete sea wall or similar fixed structure is poor        And the prognosis for that beach holding up against
    protection against hurricane waves. And they're expensive     erosion is good. Part of the project involved construction of
    to build.                                                     a specially designed jetty at the entrance of Haulover Inlet.
      A good beach, on the other hand, is the best and cheapest   That seems to have solved the primary erosion problems.
    protection we can provide against hurricane damage.              Artificially pumping sand to rebuild an eroded beach may
      Despite the growing erosion problem--despite the great      not appear to be a strikingly imaginative solution to our
    economic importance of our beaches to Florida--we're          disappearing beaches. But the fact is that it works very well
    doing precious little to preserve and protect our number one  if it is done right.
    natural resource. In fact, beach erosion is taking place at a    In the near future, Miami Beach will be rebuilt in just this
    faster rate than the state's beach restoration program.       way. And so will the beaches of Duval County and other
      Since the creation of the State Bureau of Beaches and       areas which have suffered severe erosion. Construction on
    Shores in 1966, 10 years ago, the State of Florida has spent  both projects is scheduled to get underway next year.
    the grand total of $11,864,613 in state matching funds for      It's expensive. But it's a good investment. It's a good
    beach erosion projects.                                       investment because it enhances recreational opportunities
      That's an average of a little more than a million dollars a  for our citizens ... it enhances Florida's attractiveness to
    year to protect Florida's number one tourist magnet--not to    tourists ... and it provides vital protection against hurricane
    mention our best hurricane insurance.                         damage.
      It's a pittance when you consider that the Department of      Beach restoration, however, is only part of the effort to
    Commerce estimates that tourism will generate, this year,      preserve and rebuild our beaches.
    about 900 million dollars in state taxes and fees.               Even more important are the efforts to use "preventive
      What's worse, the level of state support is declining.      medicine" to reduce erosion to a minimum.
    We're spending only 1.9 million dollars this year on erosion     It needs to be emphasized that we can't eliminate erosion
    control--a reduction of one-third from the amount allocated    entirely. It's a natural process. The wind and tides and
    two years ago.                                                current shift sand back and forth through the year and over
      It doesn't make sense. It's not logical. It's not realistic.  the years.
      Happily, our beaches can be saved. Eroded beaches can         The problem has been man-made interference with the
    be rebuilt. And erosion can be reduced. The technology is    forces of nature which creates unnecessary erosion has been
    available. And so are the conservation techniques.            the unfortunate tendency to build homes and hotels too near
      A good example of what can be done in the way of beach      the water. In the process, dunes have been flattened,
    restoration is the beach at Bal Harbour, just north of Miami  vegetation destroyed, and seawalls built and as a result the
    Beach. Two years ago, the beach at Bal Harbour looked         coastline's natural resiliency to the erosion process has been
    exactly like Miami Beach. It was almost non-existent. The     destroyed.
    ocean washed against the seawalls.                               We can't undo what's done. It's not feasible to tear down
      Bal Harbour is a wealthy community. It was able to    all the buildings that have been constructed too close to the
    sponsor a major beach nourishment project which pumped        water along the coast of Florida. But we can do the next best
    sand along the shoreline and artificially built a magnificent  thing -- prevent it from happening in the future.
    new beach over 200 feet wide. Today Bal Harbour has one          Largely, at the prodding of the Florida Shore and Beach
    of the finest beaches in the State of Florida.                Preservation Association, the 1971 Legislature adopted

    20 Coastal Mobility

    landmark legislation known as the Setback Line Law. This        So we are now singing a song of economic benefits to try
    act gives the Department of Natural Resources the    to achieve the same ends.
    responsibility for establishing a safe buffer between new        It's a valid argument if our representatives in the
    construction and the sea.                                     Legislature will only pull out their pocket calculators.
      The setback line ranges from about 100 feet inward from       Good beaches are important to the tourist economy.
    mean high water to over 500 feet. Its location depends          They're important for recreation of our own citizens.
    entirely on local conditions. It is based on a complicated --    And they're important from the standpoint of hurricane
    but sensible -- formula which considers such factors as    protection.
    "historical storm and hurricane tides, predicted maximum        The benefit to cost ratio is enormous.
    wave uprush, erosion trends, the dune or bluff line and
    existing upland development."
      Needless to say, some property owners aren't happy at the
    restrictions to developing their coastal lands. But the new
    setback line is doing a good job or preventing unnecessary
    future erosion and we think the Department of Natural
    Resources is doing a good job in its implementation.
      The effectiveness of the line was proven in Hurricane
    Eloise. Properties located behind the line suffered only
    superficial damage. And that was from wind and rain, not
    tidal surge.
      In closing, I'm happy to report that we're making
    progress in our fight to protect our beaches from the ravages
    of erosion.
      At long last, we're headed in the right direction.
      Of course, we still have a long way to go before Florida's
    beaches look as good as the picture postcards.
      We have a lot to learn from research. We have much
    rebuilding to do to undo the damage of our past follies.
      But with the right kind of support from the State of'
    Florida for erosion control programs ... and with the right
    kind of decisions in coastal zone planning ... Florida can
    once again enjoy the most beautiful beaches on-the North
    American continent.
      I make no apologies for emphasizing the economics rather
    that the esthetics of our beaches.
      Frankly, our experience in promoting erosion control has
    been that sheer beauty doesn't do much to generate needed
    state support.

                                                                                                       Coastal Mobility  21

                                                                                          Coastal Mobility and Management:
                                                                                                            Panel Discussion

    Bruce Johnson: (Bureau CZM Planning, Florida) Question        material could still be present and start color on the upper
    to Dr. Tanner:                                                beach years from now. (From a color point of view now, if
    Dr. Tanner, what is your professional opinion concerning      they are lucky enough to have pretty good wave activity
    the material that is being processed in Panama City Beach as    with high tides in the next month or so, we could have it all
    a result of harbor deepening and harbor dredging in Bay       washed out in short order, but it will not bleach. Thank you.
    County.                                                       Shirley Gade: Question to Arthur Butt
    Dr. Tanner: As far as I know, none of that is being obtained  Mr. Butt, I don't know if I heard all of your statement, but
    by harbor dredging. The only dredge operation that we have    when you were showing the wetland marsh areas and
    observed down there have been from dredging immediately       tidepools, you made the statement that we have a protective
    on or immediately offshore of the outer bar. This is a mix of  legislation for development of the backpart of that area.
    quartz sand and some peaty material and some humate. The      Which legislation are you referring to?
    quartz sand is apparently just a little bit coarser than the  Arthur Butt: The legislation analysis referred to is Florida
    quartz sand that was removed from the beach during            Statute 253 and 17-4, 17-3 Florida Administrative Codes
    Hurricane Eloise and for this reason should be at least as    related to dredging and filling activities and water quality
    stable.as the original sand was. I doubt that the size        maintenance. Chapter 17-4 (Seventeen-four) dredge and fill
    difference is great enough really to make a whole lot of      gets into the application for permits of dredging or filling
    difference, but at least it isn't so fine that it should be lost    within wetlands or within the sovereignty or jurisdiction of
    instantly. The peat will be bleached and broken up and        the state are waters or areas of less than the mean high water
    spread out very quickly. It composes as a guess, perhaps two  line. Water transitionals require permits from the state and
    or three percent of the total. The humate is a different      if a project is deemed environmentally significant or
    matter. Again, it composes one or two or maybe three          detrimental to the propagation and management of wildlife,
    percent of the total. We do now know yet, because as far as   then the department, particularly in Class II waters will
    I know, there is no experience whatsoever for putting         recommend denial of the project unless the economic
    humate on the beach. I have never heard of this under any     implications could outweigh the public interest of
    circumstances and in this case apparently, it was an          propagation and management of wildlife.
    accident. The humate, however, is although less resistant     Shirley Gade: Does the Cabinet determine this or does
    that quartz sand, much tougher than peat, and other organic   DER?
    mucks. It does not bleach in natural exposures of humate      Arthur Butt: The applications are based upon a two-form
    that are 30 or so years of age; or this is, if they were exposed  platform. There is a short-form application and a long-form
    by dredging or cutting operations 20-40 years ago. There has  depending upon the size of the operation. The short-form
    been no detectable bleaching over that period of time. On     application is based in the district level and the long-form
    the other hand, the humate is not tough in the sense that     application is reviewed in Tallahassee. A denial or approval
    quartz sand is, and, therefore, wave action when it gets to it,    can be ascertained at either one of the local levels. If an
    will break it up and when it gets it small enough, particles of  individual, I believe, does not like the determination by the
    it will be carried away. How fast that will occur will depend  department, he can petition the Cabinet. Mike Applegate
    on what combinations of tide, high tide levels and the storm  will present a little more on this legal aspect further along in
    waves we happen to have in the next year. Without storm       the program.
    wave activity combined with high tides, some of this          Tom Bell: Question to Dr. Tanner:

    22 Coastal Mobility

    Dr. Tanner, In relation to the dam on the Apalachicola, will    point. There are some other factors that enter into it, but
    that have any or some adverse environmental effects?          those are the main ones.
    Dr. Tanner: I am a geologist, and I speak as a geologist and  Joan Ren: Question to Dr. Tanner.
    I make no pretense of being able to evaluate what the    Dr. Tanner, I noticed, in the paper, that there is going to be
    biologist for example should be evaluating. Geologically,    some rather major renourishment programs in Duval
    they have already done all the damage to the Apalachicola    County and in the Miami area. Is there any precedent for
    that they can do.                                             this type of project and if so, how successful would it be for
    Jane Marques: Question to Dr. Tanner:                         the renourishment of the beaches?
    Dr. Tanner, since the area around the Gulf of Mexico has    Dr. Tanner: Yes. This is not a new project. This has been on
    only two tides per day, in contrast to the area along the    the way for quite some time. I think you have Army Corps
    North Atlantic Coast where there are four tides per day, will    of Engineer representatives here for these two days, and
    our area suffer less beach erosion than in that area?         they can certainly give you data on the programs that they
    Dr. Tanner: You will find that the mixed tide that we have,   have taken part in and this is our number one agency for this
    particularly in this part of Florida's coast considering the    purpose. I'm not sure when the first beach renourishment
    various small tidal range that we have, I don't think makes a    program was undertaken, but we have been doing it in the
    great deal of difference. The primary factors that enter into    United States for a number of years. In a small way, for 40
    the amount of erosion are first the wave climate. This is the    years to my knowledge. In my opinion, they are extremely
    size of the waves at the angle at which they approach. The    successful although not completely so. I can give you an
    wave  that approaches  head  on  so that  it breaks           analogy that I think will wrap is up beautifully. Its like
    simultaneously all up and down the beach with some            asking somebody if eating dinner ends hunger and the
    exceptions doesn't cause any erosion problems. It's the    answer is, well, only momentarily. After erosion takes place
    breaker that comes in from an angle so that it breaks on one  next year, then you need another renourishment program.
    part of the beach, and then this break point slides along the    Furthermore, we have serious problems as to the quantity of
    beach and drives sand in the direction in which the break     sand available for nourishment. In many parts of the state
    point is moving. This is primarily the important factor.      we do not have enough sand to carry on successful
    However, there are some other things involved. One is    nourishment programs. What we will do next after this is a
    whether or not we have any new sources of sand to nourish    more difficult problem.
    the system. When we started putting dams on rivers, we
    began cutting out maybe our number one source of sand
    because this sand is trapped in the reservoirs behind those
    dams; and it may take quite a while like say 10, 50 or a 100
    years before we recognize that we have had a serious loss
    there. If I wanted to run for President, on a platform of just
    one plank that pleases me very much from a narrow
    professional point of view, it would be on a platform of
    dynamiting all of the dams in the United States. I recognize
    that that would have some bad effects in other ways so I
    won't really run on that, but I hope you understand my

      It is one thing to understand the delicacies and natural    emphasis  on  restoration  and  maintenance.  Some
    caprice of a mobile coast and quite another to live on one.   consideration was given to restoration of vegetation and to
    The difficulties of living in a coastal area are often focused,  the policy which might be adopted by state and federal
    with no small degree of frustration, on the administrator,    agencies regarding the authorizing of industrial permits on
    whether that person is a representative of a major federal    restored land.
    agency involved in Coastal Zone Management or leader of a
    local government. The administrator is frequently required
    to share the difficult burden of a community, firm or
    individual attempting to protect an investment made in good
    faith, but also made with little real understanding of the
    coast. The administrator faced with such a problem is often
    forced to deal with past financial commitments, and
    presently occuring environmental deterioration which may
    be its result.
      John Cowley is very much concerned with many of these
    problems in the first paper of this section. Mr. Cowley also
    emphasizes the importance of beaches and Coastal Zone
    Management and he indicates that the cost benefit ratio
    suggests that much more money should be spent on beach
    restoration. Mr. Cowley points out the great economic
    importance of tourism in the State of Florida and the
    dependence of that industry upon beach upkeep.
      Mike Applegate and Arthur Butt in their paper very
    clearly outline another aspect of coastal zone
    administration; the relationship between state and federal
    administration of Coastal wetlands. They clarify aspects of
    the state's perceived role regarding the administration of
    public law 92-500, particularly section 404 which, as
    interpreted, assigns new and important environmental
    responsibilities to the U. S. Army Corps of Engineers.
      George Allen describes the official attitude of the U. S.
    Army Corps of Engineers toward Coastal Zone
    Management quite well. He also expressed the very
    interesting and important role change which the corps is
    experiencing as a result of the increasing environmental
    concern on the part of the general public.
      The discussion surrounding this section again focused
    primarily on beach erosion and restoration with particular

    24  Administration of theCoastalZone

    George W. Allen
    South A tantic Division
    U. S. Army Corps of Engineers
    Atlanta, Georgia

    The Role of the U.S. Army Corps of Engineers
    In the Coastal Zone Management Program

      Mr. Webster defines management as the judicious use of     to develop an argument based on semantics when the
    means to accomplish an end. Coast Zone Management is an      objectives are so important. Very simply, the objectives of
    effort to manage the coastal zone, but the definition of the    this program are to organize, plan and instill logical and
    coastal zone is more complicated than the definition of      orderly development in a very important but limited area,
    management. The wide range of what is considered the         where heretofore such development could best be described
    Coastal Zone is best exemplified in the diverse methods that    as on the first-come, first-served basis.
    the states have developed to describe their own coastal zones  What is the mission of the Corps of Engineers in the
    for the purpose of their proposed management. Some states    Coastal Zone as assigned to it by governmental authority?
    utilize methods involving geographic elevations, others        Lt. General W. C. Gribble, Chief of Engineers, perhaps
    appear to consider socio-economic involvement, and others    condensed the assigned responsibility into a concise package
    merely use political boundaries. There are reasons for such  in a recent publication.
    choices, of course, for administrative procedures relating to  "During June, 1975, both the United States Army and the
    certain practical and very real problems must have           Army Corps of Engineers commemorate their two-
    recognized parameters of applications.                       hundredth anniversaries. And for the past century and a
      The Corps of Engineers is not the principal administering  half, the Corps, at the direction of Congress, has planned
    agency of the Coastal Zone Management Act of 1972. Its    for the wise use and proper development of America's water
    activities are not confined to any one state: therefore, its    resources.
    consideration of what constitutes the Coastal Zone must be     "Since 1814 the Engineers have been charged with
    broad enough to encompass the areas which will be within     improving rivers and harbors, with the responsibility for
    the legal definition of the Coastal Zone as developed by the    both the coastal work and the nation's emphasis on
    many states with which the Corps becomes involved in    environmental and developmental needs of the nation."
    coastal programs.                                              The key to the entire environmental situation, as it exists
      For the purpose of this program the Corps of Engineers     today, lies in the last portion of General Gribble's
    considers the Coastal Zone as the band of dry land and       statement: "...serving the people of the United States and
    adjacent ocean space in which land ecology and use directly    responding to their needs."
    affect ocean space ecology, and vice-versa. The Coastal        In order to understand the position relative to the Corps
    Zone is a band of variable width which borders the    and our environment within the Coastal Zone one must
    continents, the inland seas, and the great lakes.            recognize that public agencies are prime examples of cause
    Functionally, it is the broad interface between land and     and effect. Over and over again can be seen the political
    water where production, consumption and exchange             application of Newton's Third Law of Mechanics, For
    processes occur at high rates of intensity. Ecologically, it is    every action there is an equal and opposite reaction.
    an area of dynamic biochemical activity with but limited       In some respects reaction can be seen by immediate
    capacity for supporting various forms of human use.          response to action. The Continentals on Bunker Hill needed
      Necessarily, this definition is not specific, but it does  their first fortifications, and the Engineers built them in
    include all of those lands on our continental margins, and   immediate response. When Camille visited the Mississippi
    the adjacent waters, in such a manner that it will include the    Gulf Coast, the Corps of Engineers was on the scene while
    specific definitions as developed by the administering states    the debris was still flying about. However, reaction to social
    within their program. The Corps of Engineers does not wish   changes or new social demands appears to be much slower.

                                                                                  Administration oftheCoastal Zone  25

      In 1802 the Corps of Engineers, as it exists today, was   program. These meetings were called for the single purpose
    formed by congressional act. President James Monroe had     of informing the public of what was being considered, and
    two objectives in mind for the new organization: advancing  to provide that public with an opportunity to present its
    the continental frontiers and protecting the nation's sea    views on the proposed program. During that time this
    coasts. The Corps did both. This period of the 1800's was   speaker was an administrator of a state resource agency, the
    the nation's Expansionist Period. The American public and   president of a large conservation organization, and active in
    Congress needed and demanded the exploration of the    conservation programs throughout the Southeast. When
    continent,  and the Corps  of Engineers responded           notice of such a meeting was issued, the bushes would be
    accordingly. They guided, surveyed and mapped while they    shaken and the woodwork pounded to arouse attention
    broke trail for the westward migration. They surveyed the    among those individuals and organizations who should have
    Chesapeake and Ohio Canal. They extended the National       been interested and informed of such programs. When the
    Road from Cumberland to the Ohio. They made the Ohio,       meeting was held, seldom was the time when there would be
    Missouri and the Mississippi safe for navigation. They      over three or four interested sportsmen or conservationists,
    opened harbors in the Great Lakes and maintained the    and many times this speaker would be the sole representative
    lighthouses.                                                of conservation interests.
      In the late 1800's the U. S. Army Corps of Engineers        On the other side of the aisle would be forty or fifty
    developed and administered Yellowstone National Park.       farmers, industrial leaders, chamber of commerce officials
    They moved on from Yellowstone and established,             and usually a congressman or two. It was a most
    administered and protected Yosemite, Sequoia and General    disheartening experience, and one to which many of us
    Grant National Park. Even as late at 1933 there were a    became well accustomed. Obviously the public pulse was not
    number of national monuments, battlefields and historic    beating for the interests relative to the total resource
    areas under the protection of the Corps of Engineers. As the    management problems. Certainly, no other group or
    national park objectives became more acceptable and         individual is as responsive to the interests of the public as is
    widespread, the military was withdrawn and the National    a congressman when surrounded by his constituents, and in
    Park Service assumed total control.                         most cases he would be there to receive the plaudits of the
      The history of the Civil Works Program of the Corps of    crowd and not the disparagements of a minority.
    Engineers is but a reflection of public interest in           In 1969 the sudden love affair of the public for the
    management of the nation's resources. There has been        environment resulted in the National Environmental Policy
    much said about the "new" image of the Corps relative to    Act, and the affair has not cooled down as of this date.
    resource planning. This "new" image has been brought        Shortly thereafter; Lt. General Clarke, then Chief of the
    about by the continued application of the Corps' initial    Corps of Engineers issued a policy statement on the
    policy, to reflect the needs and desires of the people.     environmental considerations relative to Corps projects.
      Those of us who have worked within the parameters of    The objectives of the policy were as follows:
    coastal zone interests for any period can remember only too
    well how "good" the "good old days" were when related to      (A) To preserve unique and important ecological,
    Coastal Zone Management.                                    aesthetic and cultural values of our national heritage;
      Many were the public meetings that would be called for      (B) To conserve and use wisely the natural resources of
    the purpose of reviewing a new coastal development    our nation for the benefit of present and future generations;

    26  Administration oftheCoastal Zone

      (C) To enhance, maintain and restore the natural and        the back pasture. This is up to you and me because the
    man-made environment in terms of its productivity, variety,    Congress has not, of course, authorized the Corps to build
    spaciousness, beauty and other measures of quality;            political fences or shape national policy by decreeing
      (D) To create new opportunities for the American people     policies of "no growth".
    to use and enjoy the environment.                                It is difficult, therefore, to specifically point to any single
    This policy, among  other things, emphasized  the              "new posture" relative to environmental matters by the
    determination and evaluation of alternatives and strongly      Corps of Engineers. Increased public participation has been
    encouraged broad public participation in Corps planning.       due to increased public interest, and the desire to express
      Roland Clement, who describes himself as a field    this interests. Be it building national parks, exploring
    ornithologist, a generalist in environmental science, is an    frontiers, building waterways or flood protection, the
    individual of high-standing in the conservation community      activities of the Corps have always been a reaction to the
    and served as vice-president of the National Audubon           public  and  national  demand.  The  increased  and
    Society. He was also a member of the Corps of Engineers        demonstrated efforts of the Corps in environmental matters
    environmental advisory board. After two years with this    is due to a continued effort to respond to the stated and
    board, Mr. Clement arrived at a conclusion that has been      demonstrated desires of the American people. In this
    held by many environmentally concerned Corps personnel.       respect, the passage of the Coastal Zone Management Act
    After 200 years of serving a public demand for materialistic   of 1972, was a demonstrated desire of these people, and the
    growth, the Corps had to react overnight to the social        Corps of Engineers will respond to that demand in the
    readjustment of the nation which suddenly realized that       manner directed by the Congress of the United States. This
    materialistic objectives were not necessarily those which     being the case, what is the direct interest of the Corps of
    brought about the fullest life or the greatest happiness to the  Engineers in the coastal areas of the United States?
    individual or perhaps to the entire nation.                      This interest may be expressed in terms relative to one of
      To quote Mr. Clement, "Two years of Corps' watching         three planes of interest; monetary investment of federal
    has convinced me--and most of my colleagues--that the          funds; social well-being of the residents of the coastal area;
    Corps is more scape-goat than culprit in the current          and the environmental concern of the area.
    environmental controversy. The general confusion that            While it would appear to be rather prosaic and mundane
    plagues public discussion of these matters seems to be a    to consider the economics in relation to environment in
    result of naive political outlook, more specifically, of a    some circles, the facts of life still dictate that dollars and
    failure to identify the 'structural' causes of what disturbs us.    cents must contribute to the final outcome of projects, even
    We  seldom inquire into an agency's congressional             though they be called public works.
    mandates, for example, or into what is possible and what         It is of interest to note that the Corps of Engineers, in the
    impossible, especially given the defined statutory procedures  Coastal zone contained in the Gulf and South Atlantic
    and the 'public demands' the Corps was organized to    states, from North Carolina to and including Texas, has a
    satisfy. Those who do not realize the distortions of public   responsibility for over 1.5 billion dollars in public works
    demand inherent in our present form of government are    developed through their programs. The coastal counties of
    doomed to belabor scape-goats to the end of their days.       this area include approximately 75,000 square miles and
    Correcting these abuses calls for the much more demanding     over 10.5 million people. Applied arithmetic will show that
    task of building fences to keep the neighbors' cows out of    this is an investment of approximately $150.00 per person,

                                                                                     Administration of the CoasatalZone 27

    and $21,536.00 per square mile. It must be kept in mind that  and harbors, the Corps of Engineers has contributed
    these expenditures were made at the request of the American   towards the total development of an area, sometimes in a
    taxpayer. Naturally, such investments must be protected       direct manner, and certainly more often in an indirect
    and preserved, providing of course that the public desires to  manner. The development of the coastal area is due to the
    maintain them. There is every indication that not only do     fact that it provides water transportation to the ports of the
    they wish to maintain existing projects, but the demand for   world.
    additional projects to satisfy what they believe as their needs  There are those who would state that many people are in
    of the area continues to increase each year.                  the coastal area's primarily for the aesthetic enjoyment they
      The impact of management programs on the coastal area       receive. This may be true. However, the thing that makes
    in relation to the continued existence of this large investment  the coastal areas so desirable to many individuals is the fact
    is obvious.  Protection or preservation of previous           that in this area they can "have their bread and eat it too."
    investments is a concern of the Corps in relationship to the  The sign-painter or the bank executive in Houston, Mobile
    Coastal Zone Management Program. The compatibility of         or Pensacola does not find it necessary to work all week,
    developed projects to Coastal Zone Management Programs        then drive hundreds of miles to sail his boat, hunt for
    of the States will result in a more fulfilling program from   waterfowl, or catch a fish. He can do it in his front yard for
    both points of view. This will involve trade-offs and         all practical purposes.
    compromises on the part of all interested parties, but with     Such circumstances contribute towards the social welfare
    the stated objectives of the Coastal Zone Management Act      of the people involved, and the Corps of Engineers is closely
    of 1972 in mind, it can be done and it will be done.          associated with the very basics of the situation that made
      The second plane of interest that can be used when          this geo-social niche possible. It is responsible for its actions
    considering the Corps' interest in the Coastal Zone concerns  and therefore is very interested in any activity that would
    the social well-being of the people of the area. A healthy and  have an effect on these developments.
    viable community, regardless of its location, requires          The third plane of interest upon which the Corps of
    diversity of interests. As with man who cannot live by bread  Engineers bases its concern for Coastal Zone planning and
    alone, a community cannot live in a satisfactory manner on    administration is the most reasonable and logical, that of
    industrial development alone, but neither can it exist as a   total concern for the overall environment of the Coastal
    pristine wilderness and still be considered as a community of  Zone. The concept of total concern for the overall
    man.                                                          environment is full of popular appeal. It embodies the
      Social necessities must be provided in the form of sewage   principles that all worthwhile objectives must contain, but it
    treatment plants, school systems, law enforcement agencies    is most difficult to achieve. John Muir stated the problem
    and other such public services. So also must there be social  very succinctly when he said, "When you try to pick out
    amenities which make life worthwhile. It is about as difficult  anything by itself you find it attached to the Universe."
    to have an enjoyable picnic in the middle of an active steel  Total absorption of interests includes total absorption of
    foundry as it is to have a school system supported by a       ideals, philosophies, economics, social equity and the entire
    whooping crane rookery.                                       spectrum of human activities. Practically, it is next to
      Common to both industrial efforts and recreational          impossible to combine such a potpourri into a totally
    pursuits is a system of communication and transportation.     satisfactory unit, but the Coastal Zone Management
    By the development of its waterways, improved channels        Program has been directed to do this, and the Corps of

    28 Administration of the Coastal Zone

    Engineers, while not the administering agency, has been      soil type determination, socio-economic situations and
    directed to cooperate in every way possible.                 water quality considerations.
      The first step in this journey is to develop a generally     Granted, much of this information is retrieved from
    acceptable series of definitions in order that everyone      existing records, but it is compacted into a single document,
    involved be headed in the same direction. We must            readily available to anyone who is attempting to understand
    determine what it is that we are trying to do.               the Coastal Zone system.
      Our concern for the continued existence of the natural       Once this understanding of the Coastal Zone system is
    processes of the Coastal Zone is essentially the recognition  reached, the next step in the development  of the
    of man's ability to protect himself from the results or    management process is the utilization of this understanding
    impacts of his own activities as related to the utilization of    in plan development.
    coastal resources. Logical and rational decision making,       The Corps of Engineers will be the first to admit that in
    relative to these areas, can only be achieved after a thorough  the Coastal Zone the environmental unknowns exceed the
    consideration of the means at his disposal for exercising    environmental knowns to a considerable degree. In their
    such admrinistrative power. A management process should    particular sphere of specialization, that of coastal
    be developed to achieve a set of instituted objectives. Such    engineering, the Corps has entered into the sequential
    objectives should be directed towards maintaining and        engineering and development efforts with close observation
    improving coastal usefulness by improving the parameters    and considerations of their previous activities in a studious
    of the natural system he desires to use as a foundation for    attempt to avoid adverse consequences that may have
    his activities. Consideration of the present and future should    developed in the past. In some situations the consequences
    be done in a manner most benefiting the economic, social    can be avoided, in others they cannot. Astute coastal
    and environmental objectives. If we utilize the best-use    planning must consider the positive and negative effects of
    concept, it is possible to develop a basic definition of coastal    its developments upon the total environment of man.
    zone management in the process of (I) understanding the        The Corps of Engineers was the first public agency to
    coastal zone as a system, (2) utilization of this    enter the field of public works in the coastal areas. Its
    understanding in the development of a viable plan for its    records and reports relative to the Southeastern States and
    best use; and (3) application and enforcement of the plan.   their coastal areas go back to 1815 when the first Civil
      Where does the Corps of Engineers fit into the above      Works Commission in this area was a coastal survey of the
    process? The recognition of the Coastal Zone as a system    Carolinas, south of the Cape Fear River, and a coastal
    can only be done by developing a composite of accumulated    survey of the area around Mobile and Pensacola. Thus, the
    data from its components. Many of these parts are presently    Corps of Engineers is a good source for material collected
    available through data obtained in the development of    over the years that is of inestimable benefit to planners. As
    Corps of Engineers projects in the Coastal Zone.             an example, some of the states have already utilized old
      As an example, the environmental impact studies relative    coastal charts and records in determination of coastal
    to the ICWW  maintenance dredging through North              variations over the years.
    Carolina points out the many eco-types and eco-systems         Research and resulting developments relative to the
    through which the waterway extends, the situation relative    establishment of coastal marshlands from dredge material is
    to endangered species, and to the extent and location of    a program of the Corps of Engineers. This program has
    nesting sites and rookeries. It contains sediment analysis,  opened a cornucopia of opportunities for marshland

                                                                                      Admininistration of the CoasltalZone 29

    development and management.
      The state of Florida and the Corps have cooperated in
    disposal area locations to make such areas suitable and
    desirable for nesting sites of the brown pelican. In so doing
    the nesting range of this endangered bird has been extended
    into areas where heretofore there were not nesting activities
    on record.
      The Corps research with Clemson University on the
    feasibility of using dredge materials for the manufacture of
    ceramic building material has lead to development of the
    industrial manufacturing of brick and other such building
    material in areas where appropriate clays were not available.
      Such projects as these have developed a potential for
    coastal management that should be considered in the
    planning processes. The data needed is already available for
    utilization by interested parties.
      The third phase, that of application and enforcement, is
    primarily a state responsibility, but this phase can be
    successfully developed only through the cooperation of all
    private and public bodies involved in the Coastal Zone
    activities. The Corps of Engineers can assure the involved
    states of this cooperation. Certainly there will still be
    specific actions within the management program that will be
    retained within the federal sphere of responsibility, even
    though the state program is fully effective. In such programs
    the Corps of Engineers can promise these states that the
    Corps appreciates their program objectives, and every effort
    within reason will be made to remain within the parameters
    set forth in the states' program.
      Lastly, and perhaps to the greatest extent of all other
    reasons, the Corps is sincerely interested in the state Coastal
    Zone M'anagement Program. Hopefully it will result in a
    specific and detailed management effort into which the
    Corps of Engineers can mold its coastal programs to the
    benefit of all concerned. In so doing, Ithe Corps of Engineers
    can continue to serve its primary function, to respond to the
    desires of the people within its. spheres of' assigned
    respoflsebility.

    30 Administration of the Coastal Zone

    Michael Applegate
    (and Arthur Butt)
    Department of Environmental Regulations

    Management of Coastal Wetlands
    Perspective Enforcement of State Regulations
    Governing Dredging and Filling of Wetlands

      By rights of sovereignty, the State of Florida owns all    promulgated to carry out these constitutional mandates.
    submerged lands below the line of mean high water of           The Environmental Reorganization Act (Chapter 75-22 of
    navigable water bodies except for those lands conveyed by a    the Laws of Florida) as outlined in Chapter 403 of the
    submerged land deed or specifically through Spanish grant.    Florida Statutes and implemented by Chapter 17-4 of the
      As many of you may know, the State of Florida in its    Florida Administrative Code, provides for certain water
    infancy promoted the sales of submerged swamp and            related projects which do not require a permit for the State.
    overflowed  lands  for the purposes  of promoting            These include: 1) bulkheads on artificial water bodies, 2)
    development and growth. Many of these lands were    private docks and boat shelters with less than a total of 500
    conveyed to the railroads in the 1870's for as little as 25� per    square feet over water surface area, 3) mooring dolphins, 4)
    acre. For example, in the Hamilton Disston Railroad Deeds,    the repair or replacement of existing bulkheads as long as
    4 million acres of sovereignty lands were sold for one million    they remain within one foot waterward of or behind the
    dollars. Subsequently, many acres of wetlands have been    existing structure, and...5) the installation of boat ramps on
    conveyed into private ownership. Current demand for    artificial water bodies, 6) replacement or repair of existing
    waterfront property has escalated values of even marginally    docks (in original configuration), 7) maintenance of existing
    developed property to as high as $400 per waterfront foot.   dikes and ditches, 8) maintenance dredging to maintain
      Therefore, land speculators and waterfront taxpayers    navigability of previously permitted projects*, 9) repair of
    place a high premium on the highest and best use of their    storm water runoff pipes, 10) the installation of overhead
    land. The highest and best use frequently does not coincide    transmission lines which will not create a navigational
    with the preservation of coastal wetland resources, since    hazard and 11) the construction and maintenance of swales.
    development often requires land alteration consisting of    All projects must adhere to water quality conditions
    dredging upland canals or access channels or filling to meet    established under 17-3 of the Florida Administrative Code.
    local, State, and Federal building requirements.               Those water related projects not specifically mentioned
      According to a recent article in Newsweek, about two-    above  require  permits  from  the  Department  of
    thirds of the coastal wetlands of the Gulf of Mexico have    Environmental Regulation.
    been destroyed by developmental exploitation. This             State  Permit  Requirements  and  Federal  Permit
    destruction has invariably caused the demise of our    requirements are generally overlapping with certain
    commercial fisheries which depend so greatly on the coastal    exceptions. Those items listed above as not requiring
    wetlands and estuaries.                                      permits by the State of Florida do require permits from the
      Increased population and growth in the State of Florida    Corps of Engineers if the project requires dredging or filling
    have created the necessity for more stringent coastal    within waters of the United States.
    regulations.                                                  It is unclear at this writing what the waters of the United
      Consequently, the State of Florida has provided in its   States include. Previously Corps' jurisdiction was governed
    Constitution for the preservation of its natural resources    by the Rivers and Harbors Act of 1899, which included
    and beauty. Laws enacted by the State have been    navigable waters used for commerce.

                                                                 *Projects permitted previously by the Trustees of the
                                                                   Internal Improvement Trust Fund

                                                                                    Administration of heCoastalZone  31

      Public Law 92-500 enlarged the jurisdiction to wetlands      Had environmental laws and proper coastal management
    contiguous to navigable waters of the United States.    and planning been available prior to the sales of such lands,
    Presently Congress is debating the implementation of    these sour deals could have been avoided.
    Phases 11 and III of a plan to expand the Corps jurisdiction   Presently, the enforcement of Florida's dredge and fill
    to all tributaries and certain lakes. Phase I has been    laws is accomplished in several ways: I) through permitting
    implemented and extends from coastal waters and wetlands    2)through informal administrative enforcement 3) through
    to inland navigable waters and freshwater wetlands subject    civil or criminal litigation 4) through education.
    to periodic inundation by saline water.                        Permits for dredging or filling coastal wetlands may be
      Dredge and fill permitting and enforcement jurisdiction    obtained upon application and environmental review and
    extends throughout the waters of the state and the adjacent    approval. Projects of small size require a "short form"
    transitional zone and on sovereignty lands.                 application and a $20 nonreturnable application fee. Short
      Waters of the state may generally be defined as waters    form permits can be granted from the District Office of the
    traversing the lands of more than one owner and, of course,    Department of Environmental Regulation.
    the sounds, bays, bayous and Gulf (within the three mile       Citizens wishing to take an active part in the permitting of
    limit). Dredging is the excavation by any means of    projects may request a public hearing in accordance with the
    submerged lands or the transition zone of a submerged land.    Administrative Procedures Act, Chapter 120 of the Florida
    Filling is the deposition by any means of materials onto    Statutes.
    submerged lands or the transitional zone.                      Larger projects require an extensive biological, ecological
      The transitional zone is determined by certain vegetative    and often hydrological, review prior to permitting. Both
    species found on the lands lying between submerged lands    projects require water quality certification in areas deemed
    and true uplands.                                            environmentally significant.
      Sovereignty lands, as have been mentioned, are those         Permits from the Army Corps of Engineers are generally
    submerged lands lying waterward of the high water line of    required in addition to the state permits.
    the navigable waters of the state.                             When an unauthorized coastal construction project is
      Frequently, citizens from out of state buy a piece of    noticed, informal measures are initially taken to notify the
    Florida waterfront from uninformed or unscrupulous land    owner of the necessity for permits or restoration.
    salesmen. Such purchases bought in good faith and              Generally, citizens are surprised that authorization for
    accompanied by high hopes for making a retirement home    their project was required by law, and are usually willing to
    or making a fruitful investment, often are soured by the    apply for a permit or to restore the damaged area.
    land's unsuitability for development and the purchaser's too   More formal procedures are required when a violator is
    late education concerning Florida's environmental laws.      reluctant to cooperate on an informal basis.
      The recent land fraud cases in south Florida are             In such cases, administrative procedures are initiated with
    representative of such speculation. Much of the lands    a warning letter from the district, and, if that fails, a case
    involved were submerged lands bought, sight unseen, by    report is prepared and forwarded to the Office of Counsel
    people from out of state. As people moved south to occupy    for review.
    their "paradise," they found their lots in the midst ofa       Additionally, criminal charges may be initiated at the
    giant savannah unsuited for the construction of roads,    local level through an information to the State Attorney.
    sewers, septic tanks or even proper foundations.               Criminal conviction of Chapter 403.161 could result in a

    32  Administration oftheCoastalZone

    maximum fine of $25,000 per day per violation, however,       water related projects, yet there are certain projects which
    such high fines are rarely implemented.                       are exempt. The U.S. Army Corps of Engineers requires
      The Office of Counsel may decide to issue a Notice of    permits for dredging and filling in the the waters of the
    Violation (N.O.V.) and Corrective Orders requiring the    United States.
    respondent to initiate restorative measures. The N.O.V.          Some discrepancies exist in permit requirements of the
    normally includes a fine to pay for the cost of processing the    State of Florida and the Corps of Engineers.
    case.                                                            Enforcement of violations of Florida Statutes may be
      However, a civil case may be initiated if there are    through informal conferences, formal administrative
    sufficient conditions meriting such actions.                  procedures, criminal prosecution, and/or civil prosecution.
      Civil conviction could result in a maximum fine of            Education is thought to be the best enforcement tool.
    $10,000 per day per violation as well as restoration.         Progress must be made in advancing this valuable
      Is restoration successful? Oftentimes a site is so changed  enforcement tool.
    by fill or dredging and subsequent restorative measures that
    it is artificially reverted to a secondary pioneer status.
    Ecological succession in such cases may take several
    pathways over a period of years prior to the development of
    the original climax community. Since this is the case, we       Thanks are due to Mr. George E. Hoffman, Jr. for his
    cannot yet be sure if restoration is successful ecologically;    review of this paper and to Mrs. Karen Martin and Mrs.
    however we are certain that a quasi natural area in an        Susan Davis for their patience and kind assistance in typing.
    environmentally significant area is better from an
    environmental standpoint than most developments.
      Finally, and most importantly, education through public
    information is paramount to effective coastal management
    and to effective law enforcement.                              1.  Article II, Section 7, Constitution of the State of
      Therefore, it is necessary to "get the word" to the public.     Florida, Florida Statutes, Index 1975 Supplement, page
    This can be accomplished through increased dissemination          4.
    of knowledgeable information from local and regional
    planning bodies, new releases, publications and a better    2.  Federal Register, 1975, Permits for Activities in
    state public information system.                                   navigable waters or ocean waters, Volume 40, number
                                                                     144, Part IV.
                                                   Summary
                                                                 3.  Federal Water Pollution Control Act, Section 404,
       Evolution of population and growth in Florida has               Public Law 92-500, 86 Stat. 816. United States Code,
    resulted in regulations governing construction projects in         1344
    waters of the State, sovereignty lands and transitional zones.
    I nforcement of the laws are implemented in many ways.    4. Florida  Administrative  Code,  Chapter  17-3,
     P'rmits from the State of Florida are necessary for certain       Supplement number 25, pages 7-12A.

                                                                                  Admninistrition of the Coatal Zone  33

    5. Florida Administrative Code, Chapter 17-4,
       Supplement number 62, pages 13-16JJ.

    6. Florida Statutes, 1-380. 1975, Chapter 120, Pages 477-
       488.

    7. Florida Statutes, 1-380, 1975, Chapter 253, pages 1190-
        1249.

    8. Florida Statutes, 381-959, 1975. Chapter 403, pages
        132 to 163.

    34   1 dilin is 'ration oJ/lhe Coa,'sal /loe

    Administration of the Coastal Zone:
    Panel Discussion

    Shirley Gade: Question to Mr. Cowley:                        forces of nature will gradually take it away and you will be
    Mr. Cowley, Using the example of Bal Harbor, you             back where you started, and I think all of these communities
    mentioned that the restoration was about 200 feet in depth,    that have used this type of beach nourishment have built
    but you never mentioned what the length of Bal Harbor        into their budget plans for maintenance of the beaches.
    was, and also, what other part of the country this might take    Bruce Johnson: Question to Mr. Cowley:
    place in. Also, isn't there usually an ideal of accretion and  How do you feel about introducing legislation to expand the
    attrition on one side and I wonder who is losing out next to    setback line to cover an estuarine beach of selective
    Bal Harbor, and you never mentioned what the cost of such    recreational potential? Now we have suggested that
    an operation would be.                                       legislation three years in a row and I wondered if your
    Mr. Cowley; I am not sure that I can answer it fully. I've    association would back that sort of thing.
    been to Bal Harbor and I would estimate that the length of    Mr. Cowley: Mr. Johnson had reference to an annual
    the beach is approximately one mile, perhaps a little bit    meeting of our Florida Shore and Beach Preservation
    more. The techniques in building the protection at the inlet--    Association which is going to be held probably right here in
    I'm not familiar with them. It is a new type of cone-shaped  October. We have not, to my knowledge, considered any
    protection structure there. Usually, when you have a    support of this issue so far, but this may be a good subject
    problem like this, they use what they call a nourishment     for you to bring up at our meeting. We don't want to
    program. They will construct a pumping station which will    proliferate our work too much. We have been concentrating
    pick up the sand that is deposited on one side of the groin    with a good deal of success on beaches. Now I can see where
    and pump in over on the other side so that it will flow down  our support of some of your work might help, particularly if
    the beach. If you don't do this, you will pick up an excess    it is going to assure us of a continuing supply of sand for the
    amount of sand on one side of the groin and you suffer an    beaches or something along that line, but I think that you
    extreme loss of sand of the other side. In many cases they    can find that our association will be extremely interested in
    have done this by pumping the sand that is accumulated    anything that will improve the preservation and protection
    back down and letting it deposit back on the beaches. I    of our public beaches.
    don't think that this is the type of protection they have used    Bruce Johnson: Does your organization take any stand on
    at Bal Harbor. This is something new. Of course, I'm not    the impression of public right of access to the beach?
    an engineer as you all know, but I do know that so far they    Mr. Cowley: We haven't taken a stand on that as yet. There
    are very pleased with the way it has performed. As to the    has been a serious problem, however, in obtaining funds,
    cost, I wish I had that information. The last information I    especially federal funds to restore some of the upland
    had was somewhere in the neighborhood of six to eight    owners to give access to the public. I think, that in Bal
    million dollars. The one in Jacksonville is in the    Harbor, they required public entrances to the beach every so
    neighborhood of $20 million, if I'm not mistaken. Maybe      many 100 feet; however, I'm not sure about the details.
    Mr. Allen will know that. It's being done by the Corps of       Frankly, our association has been trying to stay our of
    Engineers.                                                   anything controversial where we would not be needed. We
    Shirley Gade: Is it a continuous beach nourishment            have to work closely with the legislature, and we would like
    program?                                                     to keep our working relations with the legislature as smooth
    Mr. Cowley: Yes, all types of beach nourishment program      as possible. If we go too far aficld, and gel caught into an
    work requires maintenance. If you don't maintaini it, the    argument as to who is going to use the beaches, alter they

                                                                                     Admiiini.5trattion of'the Coatial Zone 35

    are restored, we are going to be getting out of our field.    in the future on all coastal zone areas are required by law to
      I don't want to discourage you from bringing that up,    conform to the State's Coastal Zone Management Program.
    Bruce; you are certainly welcome to do it. I'm just saying,    We now venture into the field of federal consistency which
    that what we are trying to do is to rifle in on our objective,  we better back away from. However, if all of a sudden this
    the beaches, and not to use a shotgun, and perhaps get    industry, we will say for instance, violates even what you
    bogged down with some political problems.                     might consider a reasonable industrial utilization, the first
    Sneed Collard: "I was wondering if I could ask you about      question might be "How did the marsh get classified as an
    the beach restoration program -- is any effort being made to    industrial area?" Somebody in the state fell asleep when
    restore vegetation?                                           they were supposed to be down there looking at the marsh.
    Mr. Cowley: Yes indeed, that is one of the primary subjects    There are so many ramifications to this thing. Are you going
    of our annual meetings each year. How to vegetate the sand    to be issuing the permit at this time or are we going to be
    areas and consequently restore the dune areas because we all    issuing the permit at this time? Who is going to have the
    know dunes are built by vegetation and either vegetation or    authority? I mean, that this is all in the mill. Well, lets
    some type of protection that will cause the sand to    assume that we retain the authority for permits. We
    accumulate, and in addition to having our annual meetings,    certainly wouldn't issue a permit based on a map. We would
    like we are going to have here in October, we have a seminar    still continue, I am sure, to go directly to the source of the
    each year at the University of Florida and the Coastal        Coastal Zone Program. Now, how is that done? I am afraid
    School of Engineering down there and there are a number of    that what we would do is stand back and tell you, the State
    experts in this field that have put a lot of stress on the    government, to make up your mind about what you want to
    importance of revegetating you might say, the beach areas     do with it and then let us know about it because the ultimate
    to build up the dune preserves, which are your primary        purpose of the Coastal Zone Management Act when you get
    protection. Now, like everything else, all of this takes money  right down to the nitty-gritty, is to let the States handle their
    and this has been the problem. I remember we did some         own coastal zone in the best way they feel it is to be handled.
    beach restoration along the Sound here a number of years    We (The Corps) are not a big brother in this deal. We have
    ago and we have pumped in quite a bit of sand out of the    got enough problems of our own without asking for more of
    Sound and put it up on the beaches and we rolled it up in    them, and I still think that the ultimate decision would be
    sort of a dune and we put snow fence in there and planted     with the State. Does that answer your question?
    sea oats in and along the entire length of it and then    L ether Skelton: to Mike Applegate:
    fertilized it. Once it became vegetated I would say that it   I-ow would you handle that Mike?
    maintained that beach 10 to 12 times longer than it would     Alike Applegate: We have had recent experience in that; a
    have if it had not been vegetated. It is very important.      ten-acrearea up onEscambiaBay.lt was outof ourjurisdiction
    It is very important.                                         actually because of indices that were not right with our laws,
    John Hall: Question to Mr. Alien:                             but in any event, a man came in for a Federal 404 permit to
    How would the Corps of Engineers handle the problem of    fill a wetland area and the flood plain and there was marsh
    industry trying to come into a region that has been restored    %vegetation there, and there was a public uproar. Once the
    in regard to the permitting of land?                          public announcement had beeai made and the project
    Mr. Allen: The first most direct answer to how would the      became so controversial, then I think that the public
    Corps handle it: With a great deal of confusion. Our permits  pressures on the State on an instance such as an industry in a

    36 Adiministr-ation ofthe('oastcl Zonie

    marsh would be such that they would never get a permit.
    John Hall to Mike Applegate:
    This is how it stands right now, but I am talking about after
    the Coastal Zone Management Plan is approved a~nd
    effected by the State.
    Mike Applegate: If a marsh area were to be designated as an
    industrial area, I don't believe that designation would
    exceed the present environmental laws that the State has.
    Am I wrong?
    Darryl Segraves. Question to Mr. Cowley or Mr. A lien:
    Are there any proposed dredge and fill operations for the
    Port St. Joe area, and if so, what is the extent of such a
    proposal?
    Mr. Cowley; I'm afraid I can't answer that, so I'll pass the
    buck down here.
    Mr. Allen: To the best of my knowledge, the answer is
     "No." Now I may be wrong on that, but there is something
    that you should appreciate on this beach nourishment,
    beach erosion problem, and that is the local participation
    that is involved. There are a lot of times your representative
    may recommend that the Corps go ahead and make such a
    project, and the locality involved has to put up a
    considerable wad of money, sometimes greater than the
    community can afford. I mean it is just physically
    impossible to do it. In such a case, I believe they go to the
    legislature and get a State appropriation for this problem if
    the community itself cannot handle it, and these are all the
     millstones of democratic action and they grind slowly, but if
    it is going to be a severe problem, I am quite sure that
    eventually, at the request of local interest, things are going
    to be done.
    Mr. Cowley: I might elaborate on this just a bit. The federal
    government in most cases will put up anywhere from 60 to
    75 percent of the cost of these erosion projects. The State of
    Florida will put an additional amount, but the States
    requires that the local community match whatever amount
    the State has to put up and sometimes this will cause a
    -project to bog down. Now, I have not heard of one in the
     Port St. Joe area.

                                                                              planni ng

      Planning is a subtle and often dangerous profession--    urban planning in the coastal zone. In the process, the
    frequently for the planner. Of all aspects of public    extreme  dependence  of the human  community  on
    administration it involves the most delicate balance of the    environmental balance was indicated in the case of New
    various dimensions of management and the allocation of    Orleans, Louisiana.
    value. Patrick Ryan is well aware of this balance and the
    fact that planning may in some cases be a severe political
    process involving who gets what, when and how. In his
    paper, Mr. Ryan indicates that much more than the present
    is at stake and that the future may be quite difficult to
    evaluate, especially when projects of very important short-
    term benefit may lead to long-term disaster. A case in point
    is the fact that the state of Louisiana is losing sixteen and
    one half square miles of land per year and suffering
    pronounced salt water intrusion of delicate estuarine
    systems as a result of flood control measures which serve
    important social and economic objectives.
      Dan Penton echos this concern with the long and short
    term view in planning as he reviews the Florida Coastal
    Zone Planning effort. Mr. Penton sees this effort as a
    necessary balance of development and environmental
    interests which is multidimentional in approach. He
    describes the use of test studies in the development of a
    general planning procedure which must adjust to particular
    demands of particular situations.
      John Hall focuses on the management and planning of
    one natural resource---fish habitats. He develops case
    histories which demonstrate that planning and resulting
    management involve a great deal of negotiation. He
    indicates persuasively the danger of a "piecemeal approach
    to planning." Finally he outlines a range of potential
    research efforts regarding fish habitats which could be of
    value in negotiating planning directors.
      The discussion of this section concentrated to some extent
    on the interrelation of federal, state, and local agencies in
    planning and management. It highlights the extreme
    complexity of the federal process and opened the question
    of "one stop shopping" for development permits.
      For a time the discussion centered on the problems of

    38 Planning

    Patrick W. Ryan
    Director, Louisiana State Planning Office

    Louisiana Coastal Zone Management
    Program Development

      The opportunity for me to talk with you today on what is   management setup or administrative arrangements and
    happening administratively in coastal zone management has    authorities and boundaries which would have been the
    come at a key time, because the Louisiana Legislature    operating force in Louisiana. We felt that this would be
    adjourned last week and we have our marching order for the    healthier to do this year rather than next year so that we
    coming year.                                               could gear up for the management phase. However, the
       I see that most of you are from Florida and only a few are    Legislature felt that they would rather wait another year so
    from Louisiana, so I thought that before we get too serious,    we will have to do it without the guts of the legislation.
    I might tell you a story about some of the people we have to  We formed what we called a study management team
    deal with on occasions in Louisiana. Many of them are from    composed of four agencies: State Planning, Louisiana Sea
    south Louisiana and live in the coastal zone, so when you    Grant Program, the Louisiana Wildlife and Fisheries
    get involved in public participation programs you have to  Commission and the Louisiana Coastal Commission. The
    learn a few of their stories.                              Wildlife and Fisheries Commission is our present marine
       It seems that Alphonse and Gaston were building a house    and coastal management agency which reviews and
    outside of Breaux Bridge, which is in the heart of the Cajun    comments on Corps of Engineers applications, does marine
    country, and Old Alphonse told Gaston, he say, "Gaston,    research, and in essence, has an army of biologists and
    go down there to the lumber yard and get us some 2x4's."    enforcement individuals out in the field maintaining the
    Old Gaston he go down there to the lumber yard and told    coastal environment. We also have the Louisiana Coastal
    that man, "Pardon me, I need some 2x4's." The man say,    Commission, a commission that in the past has dealt
    "OK, how many 2x4's you want?" Gaston said, "Goshdog,    primarily with water resource activities surrounding the
    I forgot to ask Alphonse that." So he went on back down    Gulf Intercoastal Waterway. These four agencies have
    there and asked Alphonse, he say, "Alphonse, how many of    worked over the past couple of years toward evolving the
    them 2x4's you want?" Alphonse say, "We going to need    coastal management program, and along with the legal
    about 150 of them 2x4's." So Gaston he went on back there    research section at Sea Grant, we proposed a bill to the
    to the lumber yard and he said, "Pardon me, I need 150 of    Legislature.
    them 2x4's." The man said, "All right, how long do you       This bill could have done several things. One, it would
    want them 2x4's?" "Goshdog man, I forgot to ask    have placed the administration, what we call Section 306, in
    Alphonse that." So he went to ask Alphonse, and you    the Louisiana Department of Wildlife and Fisheries. We
    know, Alphonse told him. Gaston went back once more to   felt that this was important and Governor Edwards also felt
    the lumber yard and the man said, "How long do you want    that this was important because of the administrative and
    them 2x4's?" Gaston said, "Pardon me, he said I want    economic impacts of creating a new agency in government.
    them 2x4's a long time; we're building a house, you know."    Louisiana has recently completed a reorganization of state
      As you can see, things can get a little confused down there    government and is in the process of consolidating agencies.
    in Louisiana. What I might do briefly today is tell you what    So in that spirit, we recommended that Wildlife and
    has happened relative to the development of our coastal    Fisheries should be strengthened to handle the 306 Program
    zone management program. I suppose that administratively,    and that the planning agencies and research agencies would
    as far as folks from Washington are concerned, we are going    be involved in continuing planning aspects. As of now, the
    into our third year, as are most states. We presented a bill to    State Planning Office has been designated as contact for
    the Legislature this year which would have established the    Section 305 of the planning program. The designation for

                                                                                                              tlannlin.  39

    306 will move from State Planning to Wildlife and Fisheries,  permits must be consistent with the state's activities in its
    which is where we feel it ought to be. So that was one        programs, to the maximum extent practical.
    significant point.                                               I suppose I have encountered one question more than any
      Another point I would like to make is that our Wildlife    other: If we set up a program in Louisiana, will that mean
    and Fisheries Commission has perhaps the largest review    that the Corps of Engineers are going to back off? The
    load of any state in the nation. Louisiana receives around    language in the amendments in Congress at the present time
    3,000 permits a year for review and comment and around        would clarify this point and specifically give the authority to
    3,000 Corps of Engineers permits. In fact, 60 percent of all    the Corps to delegate this type of authority to a state which
    permits issued by the Corps of Engineers in the United Sates    has an adequate program. We worked out a tentative
    are issued in Louisiana. This is because our 10 million acres    arrangement with the Corps in which they allow the state to
    of coastal wetlands comprise 25 percent of the nation's    provide the initiative, leadership and actual decision on local
    total. So Louisiana, we feel, does have a great deal at stake    and state matters, while they maintain the national type
    in how its coastal resources are handled. As a matter of      activities. We feel that is the way it should be. The Corps
    fact, we in Louisiana call our program the Coastal            requires a permit for any construction in the marsh, even for
    Resources Program rather than Coastal Zone Management.        such as a fishing camp, a boat dock, or a duck blind. Cease
    We don't want the terminology to frighten our citizens.       and Desist orders issued by the Army appear almost weekly
      A great deal of activity exists on the Louisiana coast. In    in newspapers across the state. This angers local people who
    fact, as far as the fishing industry goes, we are the number  would rather deal with state and local government. Solving
    one state in the nation in pounds of fish and shellfish    this problem will be difficult because traditionally we have
    production. It is because of the Mississippi River's extensive    had no support from state and local government. This is
    estuarine system that the delta has built up over the years.    why we need strong guidelines for the agency to utilize.
    This is an extremely productive area. It is also an extremely    These are some of the things we are building on.
    active area as far as oil and gas is concerned. We have been    We plan to establish a permit authority within the
    interested in the new federal amendments, particularly those    Wildlife and Fisheries Commission. Presently this authority
    dealing with outer continental shelf development, because    exists nowhere in Louisiana law. We can only comment on
    oil and gas production is moving further offshore. In the     permits. Of course, policy has been that the Corps turns
    past we had a great deal of oil and gas development activity    down  any permits about  which  the state or local
    in the coastal marshes. Now production is moving offshore    governments comment adversely and agrees with those
    into federal waters where we have absolutely no taxing    which do not conflict with the national interests; however,
    authority but at the same time are called on to support these    the people in Louisiana would prefer a state and local
    industries. So this is one of the reasons that we have been so    permitting system rather than a federal system. I feel that if
    interested in it.                                             we pass substantive legislation in this coming year, we will
      I might mention that we had recommended in our    have worked out a liveable arrangement with the Corps. The
    legislation that the state have a permitting authority similar    Corps has agreed to work with us but wants to refrain from
    to that of the Corps or Engineers for dredge and fill    any agreement until a permitting procedure has been
    operations. We had hopes that we could make a federal    established and approved by the Legislature. This year we
    consistency provision of Section 307 of the federal act work,  passed a commission-type bill. In essence, it is a study
    which means that any federal activity, project or program     commission with the charge to come back next year to

    40 Plann

    present the Legislature with a substitute bill dealing with   and Fisheries Commission  is final member  of the
    boundary permits and agency designations.                     commission. The balance of local government appointees
      Let me just move over to the map and I will explain. This    versus the governor's appointees was a problem. Local
    dark black line is a boundary recommended in our              government wanted the majority but the governor refused to
    legislation which is approximately five foot contour; in    have an imbalanced commission.
    Louisiana this is generally a break between the wetlands and    Louisiana's highly productive wetlands environment is
    the nonwetlands environment. We based this delineation on     quite different from those of other states. The Mississippi
    research done through Louisiana Sea Grant. They considered    River, which drains more than one half the continental
    all of the different biophysical characteristics of the area--    United States, has over geologic time built an extensive delta
    saltwater content, species distribution, salt characteristics  in southeast Louisiana. However, levees built in recent years
    and other breakdowns such as salt, brackish, intermediate     to control flooding have resulted in deterioration of this
    and fresh marshes and swamps. Based on the language of        delta and the extensive marsh system. This controlled river
    the federal act, we have delineated what we feel is a         situation is causing Louisiana to lose 16.5 square miles of
    boundary acceptable to the federal government. A major        land a year. In addition, the system has robbed estuaries of
    point of controversy in the Legislature was the vast area     their freshwater flow, which causes saltwater intrusion into
    included, about ten million acres. We had excluded New        previously fresh or brackish areas.
    Orleans even though it is within the boundaries, and we had     The legislation has proposed a one-half mile boundary
    excluded what we call "fastlands," which are the areas that   from the Supreme Court decision laying out the land from
    are levied off, drained, and developed. In essence, this      which the state's ownership three-mile limit would be
    excludes most municipalities. We are primarily aiming our     measured. The legislators agreed to the three miles, which
    bill at the wetlands in this area on the map. This area is the  would have been maybe one half inch on this map.
    Atchafalaya Basin, the largest inland swamp (hardwoods)       However, federal law does not refer to mileage, rather to the
    and delta in the United States. The area goes as far as the   measurable amount of seawater and intertidal basins. This
    inland delta, but this area here is 77 percent dryland. For   limit inevitably would have left out 90 percent of the viable
    this reason, we use Interstate 10 as the cutoff. This is most  coastal wetlands in Louisiana. Robert Knecht from the
    of the wetlands and swamps in the Atchafalaya Basin. Lake     National Office of Coastal Zone Management came to
    Charles is here, and below are a series of game management    testify before the Legislature, and Congressman John
    areas and federal refuges along the coast. Over here are the  Breaux also testified, but our Legislature was not convinced.
    Rockefeller Refuge and Marsh Island.                          Legislators were not concerned with using contours as
      The bill that received final passage set up a study        measurement. They asked, "Why not the three footer, the
    commission composed of the ten coastal parishes, or    four footer, why not the two foot contour; why the five
    counties, which are the Gulf-fronting parishes including      foot?" Our answer was that the five foot is the one mapped
    New Orleans. Each parish has one representative from their    and that it approximates the wetlands, drylands, and
    police jury (governing body of a parish) on the commission.   boundaries. However, the mileage concept was, in the end,
    The governor has ten appointees who include interest groups   what the Legislature agreed on.
    such as Oil and Gas, Outdoor Recreation, Ports and              Negotiating the boundary of the coastal zone is going to
    Shipping,    Municipalities,    and    Industry   and        be our biggest task this coming year, that is, determining the
    Environmentalists. The director of the Louisiana Wildlife    area to be included in order to meet federal requirements. It

                                                                                                            Planning 41

    will be a year of negotiations between the state and federal    Legislature it failed because we did not have the meaningful
    authorities on the federal-state consistency question, as well    approval of the key elected leadership, both local officials
    as a year of developing guidelines to qualify for loans and    and state legislators. Apparently we did not work hard
    grants under the Outer Continental Shelf Program. It will    enough, so we will be going at it again.
    also be a year of negotiating between state and local         One of the series of negotiations we have been involved
    governments. There was a tremendous battle in Louisiana    in this year has been with federal agencies, the Army, Air
    with local government officials who did not want to be    Force, Navy, Coast Guard, Corps of Engineers, U.S. Fish
    dictated to. We referred to the language in the federal law    and Wildlife Service, National Marine Fisheries Service, and
    which permits local implementation but requires state    Environmental Protection Agency. These meetings have
    criteria and guidelines and state enforcement of those    been sponsored by the Southwest Federal Regional Council,
    guidelines. The local governments cannot receive more    a conglomerate of federal agencies brought together to
    authority than the federal law allows. The state has to be in    address specific programs to assist the states. Willard Lewis,
    the program for the maintenance and enforcement of    the regional director of the Department of the Interior,
    guidelines to prevent local governments from any violations,    chairs these meetings. The Department of the Interior
      Another point that is important is that the local    assumed the lead role since the Department of Commerce
    governments are very lucky to have received end-of-the-year    had no regional offices. Since that time, the Department of
    funding with OCZM. We will be able to provide funds    Commerce has set up offices in the federal regions, and Rick
    directly to these coastal parishes so they can begin the    Montoya of the Department will assume these duties for
    development of their own parish coastal management    Willard. These meetings have succeeded in identifying
    program. Identifying their issues, goals and problems and    federal ownership in Louisiana by size and by classification
    solutions to those problems at the local level, we feel, is   of ownership and have clarified the federal decision making
    extremely important. Presently there is a little money    role in Louisiana. The initial data gathered showed that the
    available for them, and the interest in the situation is    Corps controlled around 250,000 acres of land in Louisiana.
    changing. We feel that this is very important. Previously    When the information was compiled and presented, even the
    they felt left out, not that they were left out. We had co-    Corps of Engineers was surprised to find that they
    sponsored public participation in interest group meetings and    controlled almost 400,000 acres.
    elected official meetings all over the coast. Anyone can       From our meetings we have learned that federal agencies
    agree that this program is a good idea, but when a bill is    seem to want to work with states. They have been very
    written, i.e., put in the form of a proposed piece of    cooperative, and I would suggest that it might be helpful to
    legislation, it is often opposed. I would suggest that you in    other states to work with the federal regional council in their
    Florida who are working toward the same goals as we are in   respective federal regions.
    getting a program initiated should get ideas down on paper     In the development of our program we have utilized the
    and begin negotiating on legislation. I recommend this    assistance of various state agencies and state universities in
    because elected officials are attracted and interested in these    gathering technical information. The Louisiana State
    plans. A most extensive public participation effort, which  University Sea Grant is doing a good deal of work in the
    includes slide shows and presentations all over the state,    biophysical and environmental characteristics and the
    have been going on for quite some time, and these have been    writing of guidelines. We are also getting the legal research
    well-received.  However,  when  Ihe bill reached the    from the Sea Grant Legal Program. The University of

    42 Planingj,

    Southwestern Louisiana has worked with us on agriculture
    and forestry research, and we are also doing a
    characterization of the development of oil and gas industries
    in the south central part of the state around Morgan City,
    Louisiana, an area which is becoming an exporter of oil and
    gas technology, particularly offshore. Other universities
    from which we are receiving assistance are Nicholls State
    University and the University of New Orleans. UNO, until
    recently a branch of Louisiana State University, has an
    excellent planning school, the only one in the state, and a
    group there has done a characterization of the history and
    suggestions for future expansion of interface between
    growth in the urban areas and the wetlands. They are also
    studying the effects of shell dredging in Lake Ponchartrain
    on fishing and recreation, as well as the effects that
    hurricane protection devices such as levees and locks would
    have on productivity in Lake Ponchartrain and Lake
    Maurepas.
      These are the areas the State Planning Office is and has.
    been working in toward coordinating the coastal
    management effort. We are trying to involve local, state and
    federal agencies, as well as universities, interest groups, and
    individuals. If last year and the legislative sessions were an
    indication of what lies ahead, this should be an exciting
    year.
      I appreciate being with you. If there are any questions, I
    would be happy to answer them. Thank you.

                                                                                                           Planning 43

                                                                                                          Daniel Pen ton
                                                                                        Bureau of Coastal Zone Planning
                                                                                                        State of Florida
                                                                                                    Tallahassee, Florida

                                                                                                  Coastal Zone Planning

      I want to give you a brief overview of how Florida has    social return." I think that statement alone is a guiding
    addressed the Coastal Zone Management program and then    principle that we in Florida have operated under. We are not
    concentrate on where we are now and the kind of problems   an environmental program, we are not a development
    that we are facing as we approach the finalization of the    program, but we are a balanced, rational program for the
    State Coastal  Management  Plan and  prepare for    allocation of our coastal resources. The second comment
    implementation of that plan. As George Allen indicated    regards the concept that the coastal zone authority should be
    yesterday, anybody can plan and some people can plan well,    organized to prevent domination by State agencies charged
    Very few people have the inclination or the guts to    with narrower responsibilities. As we enter into the phase of
    implement what they plan. I think our agency does. I won't    trying to define the State's existing management authorities
    take the credit for this since I am a newcomer compared    and work out a relationship which will successfully meet the
    with the originators of the planning methodology and    requirement of the federal CZM program, we find that is the
    approach. The intent of the people who founded the CZM     single greatest problem we face. Very few agencies are
    program in Florida was not to develop a plan for the sake of    willing to come forth and give up their legislative
    planning, rather, from day one, the intent was to set up a    responsibilities. They are very prickly about this and it
    management system that could be rationally realized and    causes no end to the excitement that we face on a daily basis.
    effective in managing the coastal resources. You've heard    In the presentation by Dave Worley you had an indication
    people mention the Stratton Commission report off and on,    of the state statutes which established, in Florida, the
    yesterday and last night. The formal name of that group was    Coastal Coordinating Council; the first effort at the state
    the Commission on Marine Science Engineering and    level in Florida to address CZM and planning. This was
    Resources. It was a blue ribbon committee established by    Chapter 370.0211 of the Florida Statutes and it set out four
    Lyndon Johnson; I believe the date was around 1966. In    primary legislative directives and programs which have
    1968, and 1969 they issued a report called Our Nation and    resulted in programmed efforts on our part. These planning
    the Sea. This report is the single document that you can    efforts were directed toward'development of the State CZM
    point to which turned the federal government around in    Plan, utilizing available federal money as appropriate. We
    dealing with environmental resources and resource    were directed to conduct a continuous program of research
    management. Reading through the report you can see the    concerning coastal problems. We  were directed to
    basis, not only for the CZM Act, but for the National    coordinate this program with all levels of government and
    Environmental Policy Act and a full disclosure of federal    we were directed to make available coastal management
    agencies and the accountability of federal agencies. You can    information to any member of government or the public,
    also see some of the 1976 amendments which were added to    upon request. This has formed the basis for the internal
    the CZM Act expressed in this document. I would like to    organization of our agency. As a result of some funding
    mention a couple of comments  from the Stratton    changes at the State level, the research effort, conducted
    Commission to give you some indication of the thoughts of    over the last four or five years, has been cut back
    the people who actually coined the term "Coastal Zone    consistently. Our state legislature does not have a great deal
    Management," and the intent behind their program. "The    of understanding or tolerance for the funding of research
    principles for the state coastal zone authorities were    projects. Some of the causes behind this have been the
    designed to include the concept of fostering the widest    number of research projects in the past which were poorly
    possible variety of beneficial uses so as to maximize net    justified and poorly executed. As a result we all suffer.

    44 Planning

    We've seen the research/technical assistance program swing   Management Atlas. It had some errors in it because of the
    from primarily research to primarily technical support data  material that we were working with, but for the first time
    management, which is reflected in the maps that we have      people could see what we had in the coastal zone and how
    generated and in all the visuals that you have seen off and  the existing legislation, rules and regulations of state and
    on this year. After our methodology was established, which   federal agencies impacted upon these resources. Shortly
    was basically a modified overlay system, we began to map     thereafter, we published the Recommendations for
    the Coastal Zone in a manner that depicted the situation on  Development Activities in Florida's Coastal Zone. This
    the landscape and the way management and legislative         again, was an attempt to pull together in a single document
    actions affected these resources. The second thing that was  the existing policies that were implemented on a day to day
    done was to define a planning boundary. This boundary was    basis by state agencies. This had never been done before.
    a combination of the biophysical situation as well as some   Many of the state agencies knew what their policies were but
    aspects of a political delineation, in that we used the census  they never bothered to write them down and we felt that it
    enumeration districts that most closely approximated the     was impossible for a developer, for another state agency, or
    realistic physical environment that we were dealing with,    interested citizens to adequately react to a given
    The first test case or pilot study that demonstrated this    development activity unless he knew what existing state
    methodology was done in this area. It was the Escarosa       policies were determining those activities. All of these
    Study, which was a detailed, primarily biophysically         efforts, were well received, but in 1972-1973 the force of the
    oriented study dealing with Santa Rosa and Escambia          environmental awareness that swept the country was
    Counties. This area was picked because it had most of the    beginning to diminish at the state level. We were peaking out
    natural elements that we felt the coastal management         on our economic assets.The building boom was beginning to
    program should address. It has also experienced some of the    top out; we were beginning to get too many condominiums
    most severe problems that a coastal environment could        and the mood of the legislature began to shift. It made us
    experience. We, at the outset, determined that it was        realize that there were missing elements in the data that we
    inappropriate to re-create data. We preferred to utilize data  were  gathering  which  inhibitied a comprehensive
    where it did exist and delve into the generation of new data  presentation. We had not, up until that point in time, had
    only when there was a defined need. The first report on that    the opportunity to consider environmental quality and socio-
    effort was the Escarosa Study. Then, in 1971, a report to the    economic considerations and to plug these into our basic
    1972 legislature was completed and was called the "Coastal   methodology. So we decided we would pick a test study
    Management in Florida-1971." That study demonstrated         area, in the same manner as the Escarosa area was chosen,
    that the methodology was appropriate, it did work, and we    to test the expanded methodology. The Florida Keys were
    felt that it was time to move on to a State-wide basis. As of    chosen as the study area. The reason behind this choice was
    1972 there was not one single source that one could go to    that the keys were subject to a great many development
    that showed the physical situation in Florida, what we had   pressures, they were an extremely fragile and unique area as
    in the way of coastal resources, and what we could afford to    far as the state was concerned and something had to be
    give up. There was not one single document that gave you     done. In 1974 we published the Florida Keys Coastal
    the comprehensive picture. Consequently,  in 1972,    Management Study. It indicated problem areas, it indicated
    utilizing some old and new aerial photography, among other    a great deal of state and federal jurisdictional overlap, it
    tools, we published the 1972 Florida Coastal Zone            indicated certain development potentials, it indicated certain

                                                                                                            Planning 45

    development constraints and it created an uproar. We like to    was passed by the 1975 Florida Legislature. We feel that a
    feel that we have been fairly successful because, based      viable state coastal management plan has to be a type of
    primarily on that report, the Governor and Cabinet           two-tiered approach. There are certain areas where the state
    designated the Florida Keys as an area of critical state    already exercises jurisdiction; areas such as submerged
    concern. We've been catching it over that ever since.        bottoms, certain wetland areas (the state has water quality
      In 1974 the monies made available under the 1972 Federal    certification responsibilities as a result of 92-500 federal
    Coastal Zone Management Act were first brought into the    laws) but there are certain adjacent areas which are
    state of Florida. At that point in time we expanded our staff    important to intelligent coastal management and which are
    to accommodate the additional requirements in meeting the    outside the states normal regulatory responsibility. We feel
    federal program and established a formal mechanism of    that the best, most efficient way to expand rational control
    working with local governments. In the cases that we         and management over these adjacent areas is through local
    handled, the biggest problem was that we didn't have         government. We don't feel that the state legislature is of any
    enough money or staff to work directly with the 38 coastal   mind to create a greatly expanded state authority for
    counties and some 250 coastal cities within our planning     managing these adjacent areas and local government does
    boundary. The next best alternative was to work through the    have the necessary tools for effective management
    regional planning councils as instrumentalities of local    programs. The one thing that we are hoping that the
    government. This has been fairly successful the first two    legislature will do is readdress the Local Government
    years and we're now finishing up our second year and         Comprehensive Planning Act, especially the coastal
    approaching our third year. In the first two years the       protection element, and put in some additional language
    regional planning councils developed base line data on -   and some specific requirements for consistency between the
    socio-economic considerations, land use, land ownership,     developing state coastal management program and the
    support services, etc. They are working at the present time  coastal protection element. I can give you some sort of
    on an environmental quality analysis. They are assisting us  overview of how we see the draft plan developing, and give
    in the development of areas of particular state concern and  you some idea of the steps that we need to go through from
    they are also working on power plant siting, deep water      this point in time. I realize that I haven't addressed some of
    ports, and outer continental shelf activities.               the impacts that were generated by the 1975 Environmental
      As we enter into our third year, we are regrouping now     Reorganization Act, but from 1974 up through May 1975,
    from a standpoint of data collection and trying to develop a  the state agencies and the citizens at large were just
    state coastal management plan that we can submit to the      beginning to understand how the state permitting and
    Governor and Cabinet, then to the Governor as Chief          management system operated. The legislature decided it was
     Planning Officer, and then to the legislature as required. In    time to change. Perhaps in two or three years we may again
    the third year, the regional planning councils will continue  understand how the state management and permitting
    to be involved, but the extent of the involvement will be    system works. It has created quite a problem for us. We've
    somewhat different from what it has been in the past. Their  had to revamp our governmental authorities organizational
    primary responsibility will lie in increasing the citizen    charts and quite frequently when we talk with management
    awareness of the state coastal management program and        agencies or regulatory agencies at the state level, they don't
    assisting local government in meeting the requirements of    know what their legislative responsibilities are. That has
    the Local Government Comprehensive Planning Act that    created something of a problem. Our draft state plan will

    46 Planning

    consist of four or five chapters and I will list these briefly to  together a draft plan, then the fun really starts and I can give
    give you some idea of the content. The first chapter will be  you sort of a step by step walk through on this. This is where
    dealing with the coastal management program in Florida,       we get into the political arena with both feet and I think it is
    the historical overview  and  the intent and federal          appropriate to remember the story that Abraham Lincoln
    requirements behind it. The second one will be the proposed   remembered in one of this biographies. It was 1863, the dark
    standards, policies and criteria that need to be established to  years as far as the union was concerned, in the Civil War,
    have an effective state management plan, and within that,     and they had just received information that the Union had
    we would have a discussion of recommended priority uses in    won one of those rare battles. The soldiers around the War
    the coastal zone, as required by the federal legislation. A   College were ecstatic, one soldier was esctatic and he ran
    discussion of areas of particular state concern is also       after Lincoln and said, "Mr. President, I feel very patriotic
    required. The third chapter will deal with the existing roles  and politically inclined." Lincoln was a little disconcerted
    and responsibilities related to coastal management and        with the apparent incongruity of the term politically
    we're presently working with a consultant group at the        inclined. He said, "I mean I either want to run for office or
    University of West Florida to develop a compendium of    steal something." I think this is the attitude we have to keep
    state and federal laws, local ordinances, and court cases     in mind when we move to obtain state approval of the plan.
    which relate to coastal management. The intent behind this    We're beginning the third contract year under the federal
    is to understand what tools are available to us now that can  program, and by January 1977 we will have a draft set of
    be brought to bear on managing coastal resources and not      state policy recommendations on coastal zone management
    go out and set up an independent coastal management           and a status report on how we intend to go through the
    agency that duplicates activities already ongoing. We think   development process as far as the Legislature and the
    that this is a more intelligent use of the resources. The     Cabinet are concerned. This will be submitted internally for
    fourth chapter would be a proposed state managerial           departmental view and then it will be submitted to the
    networking and, in essence, is how the coastal management     Governor and Cabinet for their review and instructions
    plan would be implemented at the state level. I have alluded  prior to preparing a final draft of the state plan. After we
     to a two-tiered approach, with the state assuming certain    have received the Cabinet's instructions, suggestions, and
    roles in those areas which have traditionally been considered  criticisms, and have taken those into consideration, then we
    sovereign responsibility, and the local governments           will develop the first draft of the state comprehensive
    assuming the adjacent responsibilities. The last chapter      coastal management plan and this would include published
    would deal with continuing program development. We            copies with pertinent supportative data. Then we will hold a
    don't want this plan to be static. We want it to reflect the    series of public meetings, public workshops and finally
    real life situation and we feel the only way we can do this is    public hearings as required by state and federal guidelines.
    to establish a standardized method of updating the plan on a  Our intent behind having public meetings and public
    regular basis. This means updating not only the policy        workshops is to attempt to reach those people who we
    recommendations that have been developed jointly with         haven't reached in the past. We have gone out of the way in
    citizens groups, regional planning council, and state         the two years that we have been in the federal program to
    agencies, but also maps and the supportative technical        solicit all coastal community users input into the program.
    documentation that are important to local and regional        We have tried conscientiously to take their comments into
    planners as well as other state agencies. After we pull       account on a rational systematic basis. Miost people don't

                                                                                                             Planning 47

    get concerned until we get right down and say, hey, we are    problem for us is the time schedule for the 1976 Coastal
    going to regulate you or its going to impact you directly.    Management Amendments. I think these amendments are
    We're going to try and flush out a lot of people from the     good; they are needed; they increase the funding level and I
    woodwork before we get to the formal public hearing so that   think all these things are fine, but they throw us into
    the public hearing would  be nothing more than a              somewhat of an awkward period. I would like to point out
    perfunctory occurance. Concurrent with the public meetings    the things that were specifically mentioned  in the
    we will be submitting our coastal management plan to the       amendments which directly impact upon the planning
    A95 clearing house process in an attempt to get as much       process. They listed nine things in the amendments which
    public input at one time as we can and make the appropriate   have to be specifically addressed by the state during the
    modifications to the draft plan. Then we will have what       planning phase and six of these have already been done, in
    would be referred to as a "second draft"' document that        reaction to the guidelines established by the office of
    would again go to our departmental review. At that point,      Coastal Zone Management. I think we have a good start on
    it will be placed as a formal item on the Cabinet agenda and   the other three, but they will take some additional effort.
    will be submitted to the Governor and Cabinet for their        The first one is management boundaries. This requires
    adoption. We hope that we have taken care of all the           defining those boundaries which you intend to manage;
    concerns raised by the Governor and Cabinet as a result of     permissible land and water uses, areas of particular state
    their first review and there won't by any hitches there. After  concern, means by which you intend to implement state
    we have received adoption from the Cabinet, the plan will be   coastal management controls, priority uses of the coastal
    submitted directly to the Governor as the Chief Planning       lands and waters, including those of lowest priority uses,
    Officer for the State of Florida. We assume that he needs to  and the organizational structure for implementation. I think
    vote in the affirmative on the Cabinet action, so therefore,  we have a good hand on all of these and there is no real
    when its submitted to him as a planning officer there won't    problem. Now there are three additional things which
    be any unforeseen problem. At that point, the Governor         requires some additional work from the standpoint of our
    determines whether or not additional state legislation is    planning efforts and these include planning for beach
    needed, and if so, submits that plan to the legislature and    protection  and  public  access  and  other  selected
    recommends the action that they need to take in order to    environmentally significant areas, energy facility sighting,
    give us an implementation system at the state level. He will    and associated impacts, and shoreline erosion. All of these
    also, at that point, send an information copy of the draft     things are included in our program planning efforts but not
    plan to the Office of Coastal Zone Management. I don't         as distinct efforts, so they will require some additional
    know how long it will take the legislature to act. I don't     attention.
    know the kinds of actions they are likely to take. I've given    In general, that is the status of our coastal management
    up betting on the legislature. I lost a lot of money last year.  program. I know that we have a long road ahead of us and
    When we get the necessary legislative action to implement      there is one main thing that I hope to get across to the
    the program, it will be returned to the Governor and then      decision makers. We have to learn to live in a way that will
    passed on to the Office of Coastal Zone Manmagement; and       benefit the social environment as well as the natural
    the  Secretary  of Commerce  with  the  Governor's            environment. Remember one principle, "Nature Bats
    certification that the required elements of the Federal Act    Last."
    are met. Now one thing that is creating somewhat of a

    48 Planning

    John R. Hall
    National Marine Fisheries Service
    Southeast Region
    St. Petersburg, Florida

    An Application of Coastal Resource
    Management and Conservation

                                               Introduction    Fish and Wildlife Coordination Act. As an indication of the
                                                                regional work load under the Act, the Southeast Region
                                                                receives each month, an average of about 470 public notices
      Under the Reorganization Plan Number 4 of 1970, the        advertising permit applications for work in waters of the
    U. S. Bureau of Commercial Fisheries became the National     United States. We are further involved in meetings with
    Marine Fisheries Service (NMFS) and was transferred from     applicants, and in planning processes leading to new federal
    the Department  of Interior to the Department of    projects (channel deepenings, dams, for example) and
    Commerce. The NMFS is a branch of the National Oceanic       maintenance of older ones (Pensacola Harbor, Mobile Bay,
    and Atmospheric Administration (NOAA) which includes         Tampa Bay, for example). Other agencies seeking responses
    agencies such as the National Ocean Survey (NOS),            are the Coast Guard, Bureau of Land Management, Forest
    National Weather Service (NWS), and the Office of Coastal    Service, Federal Highway Administration,  Nuclear
    Zone Management (OCZM).                                      Regulatory Agency, and the Environmental Protection
      One of the goals of the NMFS is to restore, maintain,      Agency. The EPA for example, solicits commentary on an
    enhance and utilize in a rational manner, fisheries resources  average of 150 National Pollution Discharge Elimination
    of the United States. Achievement of this goal is in large   System Permits (NPDES) each month. Added to these totals
    measure charged to the Environmental Assessment Division     are requests for review of Environmental  Impact
    (EAD), an organization of which I am a part.                 Statements, statements at public hearings, coordination
                                                                with various state agencies, and review and commentary on
                                                                Coastal Zone Management plans. On an annual basis, over
            Mission, Responsibilities, and Work Opportunities    14,000 opportunities for response are made available in the
                                                                Southeast Region alone. Obviously, we cannot respond to
                                                                each work opportunity with equal alacrity and detail, and
      The Environmental Assessment Division's major mission    priorities must be set. The potential irreversible impact of a
    is protection of fishery habitat. This is accomplished by    project on the Nation's living marine and estuarine
    reviewing, evaluating, and providing comments and            resources is a major criterion determining a priority work
    recommendations on projects controlled or initiated by    situation.
    constructing, licensing, and permitting agencies. This task is  Following determination of a priority work situation, two
    undertaken by a total of 55 biologists and other    requirements must be met:
    professionals stationed throughout the country in five
    regions. The Southeast Region has 12 EAD biologists: 3 in      To specifically identify problem areas in relation to
    the regional office in St. Petersburg, Florida; 3 in Beaufort,  protection and/or enhancement of fishery habitat and,
    North Carolina; 2 in Panama City, Florida; and 4 in
    Galveston, Texas.
                          Xn accordance wihurmisinnTo formulate constructive, innovative, and attainable
      In accordance with our mission, numerous requests for
                                                                  recommendations designed to accomplish a resolution of
    commentary, suggestions, revisions, and recommendationss deti
    concerning water development projects arrive each day. The
    primary user of our responses is the U.S. Army Corps of        To fulfill the first requirement, we call upon personal
    Engineers who seeks our response under provisions of the    knowledge, experience, and training. We will also involve

                                                                                                            Planning 49

    personal contact, coordination with other arms of the        revised application reducing the proposed losses of
    Service, or other agencies, such as the Fish and Wildlife    waterbottoms and marsh to 40 and 5 acres respectively. The
    Service (FWS), and searches of the literature. The second    fuel oil facility was deleted from the revised proposal.
    requirement involves the constructive interaction between    Recognizing these concessions, the Corps urged speedy
    our interests in protecting habitat and those described in the    commentary  by the NMFS and  other agencies.  A
    request for commentary and recommendations. Eventual        discomfiting aspect was that a draft EIS of questioned
    resolution of a problem may involve negotiations, and       thoroughness had been circulated and the final EIS had not.
    occasionally a certain amount of verbal combativeness. In    It also appeared that the facility was a small portion of a
    some cases it does not. As an indication of the former       long-term, large-scale, harbor deepening. Wary of a
    process, two abbreviated case-histories are presented.      piecemeal approach to planning, it was almost unanimously
                                                                concluded that the role of the facility in the Port's long-
                                                                range plans should be discussed, and in June 1975, and
    Case Histort' I: Coal handling, spoil disposal, and
                           maintenance of estuarine resources    interagency workshop was formally proposed. By October
                                                                 1975, the workshop had not been scheduled and the Corps
      In 1972, a prospering Mississippi seaport disclosed an    sent telegrams to commenting agencies requesting final
    interest in providing a site for a 526-acre combination coal    recommendations. The almost uniform reply was that a
    and fuel oil handling facility. The harbor was a successful    joint workshop would be held, that the final EIS was not at
    shipping center and the labor, finances, and social climate    hand, and that current plans clearly depicted irreversible
    were generally favorable to such a project.                  losses of 45 acres of estuarine habitat.
      An industrially zoned upland site was available but the      In December 1975, the workshop was held. The Port
    facility would also require filling of about 180 acres of    described its long-range plans in relation to the project. The
    estuarine waterbottoms and 50 acres of saltmarsh, and        developers of the coal handling facility described their
    dredging of 10 acres of saltmarsh. These activities required a  needs. The EPA, NMFS, FWS, and state agencies described
    Department of the Army permit, and an application was        their concerns. A face-to-face encounter allowed each party
    made and circulated for review. Due to the size, location and  to make its position, responsibilities, and needs known. It
    potential  impact  on  the  human  environment,  an          was agreed that problems associated with the permit
    environmental impact statement was later prepared and        application could be resolved.
    circulated for review in early 1974. Responses to the          One month later, in a space of one hour, the losses of 45
    statement were mixed. Local sponsors were aware that the    acres of waterbottoms and marsh were reduced to 10 acres
    facility could possibly be shifted to another location and   of marsh. The 40 acres of fill was eliminated since the
    urged that the permit be given priority status. They also    transfer of the coal to ships could be successfully and
    notified their congressman who similarly urged resolution of    economically undertaken from a system of trestles and
    the application.                                             piers. It was also agreed that 15 acres of new saltmarsh
      Meanwhile, the Corps had been evaluating responses to    would be created from uplands adjacent to the facility. The
    the original application and the draft EIS. Facing a    basic capabilities of the coal handling facility were
    questioning analysis regarding the necessity of losses of    unchanged. The originally proposed filling and dredging of
    some 240 acres of waterbottoms and wetlands, the Corps       240 acres of marsh and waterbottoms were eliminated.
    initiated discussions with the applicant that resulted in a    Following circulation of a letter from the Corps outlining

    50 Planning

    these conditions, uniform responses of no objection were    permanent destruction of 1 18 to 150 acres of marshlands.
    received and the permit was issued. The final EIS filed with   Telephone and written communications by several state
    the Council of Environmental Quality included the    and federal agencies noted their understanding that the
    alternative plan after which the permit was issued.          bridge could not be built from itself but reiterated that an
                                                                 environmentally less damaging spoil disposal solution
                                                                 should be sought. Another workshop was convened with the
    Case History 2: The bridge across the bay: Economics and    development of additional alternatives: (a) disposal in a
                                             ecology interact    borrow pit six miles from the bay and 150 feet in elevation;
                                                                 (b) use of the material to create a marina and convention
      By public notice dated October 8, 1973, the Corps of    facility in the bay near the city; and (c) use of nearby sites
    Engineers identified a project to dredge and fill in Mobile    that were already diked or upland and held by various state,
    Bay, Alabama. Dredging was to take place to a depth of 9    federal, and private property owners.
    feet below mean low tide to construct a barge work channel     Following joint field investigations, an upland location
    139 feet wide and 6.9 miles long. The purpose of the work    near the site was purchased by the Federal Highway
    was to allow construction of a four-lane bridge for    Administration, enclosed by dikes, and spoil from the work
    Interstate Highway 1-10. Approximately 863,000 cubic    channel was pumped inside. Construction of the bridge
    yards of material would be removed by hydraulic dredge       began immediately following this action. Losses of wetland
    and was proposed to be placed on any of three wetland sites    habitat were reduced to that removed by construction of the
    in a state park. Review of the notice and field inspections  work channel. These losses were not regarded as irreversible
    revealed that the dredging would remove about 18 acres of    since the channels would probably fill in over a reasonable
    coastal marsh and 200 acres of shallow waterbottoms.         length of time. It was also recognized that the work channel
    Disposal of dredged material would bury some 200 acres of    became the only access route across upper Mobile Bay at
    marsh.                                                       low tide. Generally too shallow for commercial traffic, the
      Faced with these losses, a joint FWS and NMFS letter was    channel is used by fishermen and hunters utilizing the
    issued in December 1973. The response detailed the value of    estuarine resources safeguarded by the habitat protection
    the habitat to be impacted and recommended that    effort.
    construction be undertaken by building from the bridge         It is apparent that many of the problems, philosophies
    itself, thus, obviating requirements for either dredging or    and viewpoints governing actions described in these case-
    disposal of dredged materials.                               histories will affect coastal zone management. The CZM
      On March 7, 1974, participants at an interagency          Act provides that competitive interests be given a voice.
    workshop discussed construction and disposal alternatives.   Management decision however, should be made on facts
    The following disposal alternatives were considered: (a)    and informed opinion. Writing in the May-June 1976 issue
    refilling the work channel after construction, (b) open-water    of Fishersies, Robert H. White-Stevens quoted Sir Peter
    disposal in the bay and (c) use of Corps of Engineers' sites    Medewar:
    used for maintenance dredged materials from Mobile
    Harbor. The highway department however, concluded that             "There is a strange ambivalence abroad today in
    disposal on the park represented the most economical               scientific and  philosophical circles as if the
    method of handling the spoil although this would entail            insufficiency of precise evidence and man's reasoning

                                                                                                           Planning 51

          has curiously bestowed a paradoxical validity to        5.  It is most probable that navigation channels act as
          nonsense."                                            passageways for subadult fish and shellfishes, especially in
    We shall probably never overcome an insufficiency of    areas such as Mississippi Sound. Accordingly, are there
    precise evidence. However, answers to the following    acceptable or totally unacceptable dredging periods based
    questions should diminish some of the uncertainty in the    on seasonal passages of estuarine dependent organisms?
    decision making process.

       Research Efforts Of Value To The Management Process        6.  Studies should be undertaken to describe various
                                                                physical modifications that would increase marsh
      1.  Comparative  productivity values of differing    productivity. Cutting shallow channels through marsh
    substrata and waters should be determined. For example,      vegetation, such as Juncus, to increase tidal flushing could
    how much biomass or productivity would be lost by filling    become a fishery management practice.
    an acre of sand, mud, or marsh? Can this be turned into
    pounds of fish or shellfish or into dollars? Also, by knowing
    comparative values, mitigative measures can be specifically    7.  Are there long-term effects (or problems) of placing
    proposed. A counterbalancing might involve, for example, 3    oil and gas well drill cuttings and/or drilling muds in
    acres of mud bottom being replaced by 2 acres of oyster reef    estuarine and marine waters although petroleum residues on
    on another mud bottom. Perhaps 1.5 acres of grass bed        the cuttings and muds are within water quality criteria
    could be created on a sand substratum.Perhaps 3.7acres of    limits?
    estuarine pond could be established on a comparable
    acreage of fastlands adjacent to the shore.
                                                                  8.  We should know annual and seasonal average and
                                                                minimum freshwater flows needed to sustain or enhance the
      2.  Comparisons should be developed that more fully    present levels of production of oysters, shrimp, and other
    describe contributions to estuarine productivity by marsh    estuarine-dependent organisms. Answers to these questions
    plants such as Spartina patens, Distichilus sp. and Juncus    could exert a powerful  influence  on coastal zone
    sp. to that of Spartina alterniflora at various elevations in    management decisions, mainly because of the competitive
    relation to tidal inundation. Also, the elevation at which    requirements of industry for the same fresh water.
    optimum growth and density of each species occurs should       In conclusion,  we  see the evolution  of mutual
    be determined. Again, answers describing pounds of fishes    consideration by both developmental and environmental
    or recreational or commercial dollars based on their    interests. We are reminded that state and federal legislation
    existence and perpetuation may be required.                  has set forth the rules and thus the roles of this mutuality.
                                                                The National Marine Fisheries Service acknowledges the
      3.  Can impoundments of high marsh or upland be used    challenges of this undertaking and will carry out its mission
    as tools for mitigation and enhancement?                     in an informed and equitable manner. By doing so, the
                                                                concept of restoration, enhancement, and rational
      4.  Can successional phases of a community be managed    utilization of the fisheries resources of the United States will
    to produce greater output  of desirable species or    become a functional reality and a significant aspect of
    commurities?                                                 coastal management.

    52 Planning

    Planning:
    Panel Discussion

    George Alien question directed to Pat Ryan:                   trying to work out arrangements with the Corps and the Fish
    Pat, how does your CZM program handle, at the present         and Wildlife Service to protect this natural habitat here. in
    time, such problems as the proposed use of the Bonne Carre    the Bonne Carre Spillway, after every flood, they let people
    Spillway for the release of waters through Lake Borne to    go in there and haul out filled material. Again, there is a
    enhance water quality.                                        tremendous buildup of fill in there, but it's a situation that
    Pat Ryan: For those who  are not from  Louisiana,             we are just going to have to live with and do the best we can
    periodically folks up North have to contend with a lot of    with because without  opening  Bonne  Carre or the
    rain and snow; but we in Louisiana have to contend with the    Atchafalaya Basin, you are going to flood New Orleans. It is
    water from that rain and snow. Periodically, we have flood    also the reason they put locks or darns up on Old River.
    stages that require some outlet in addition to the Mississippi  Without that setup, the Mississippi River would have
    River.  Basically, there are two outlets. One  is the    changed its course and gone down the Atchafalaya Basin
    Atchafalaya Basin that I mentioned to you. The Corps built    isolating Baton Rouge and New Orleans. You would also
    it as a result of the 1927 flood and put locks on the    have had a tremendous influx of saltwater up the river. So
    Atchafalaya River. The other outlet is the Bonne Carre        this is what the situation is with the flood control structures.
    Spillway which is utilized to run flood waters from the    They are required--in fact, even with them open, New
    Mississippi River through Lake Pontchartrain out to Lake      Orleans really is on the brink of flooding. If a situation
    Borne. They have had to use these-in fact, they used both of    would arise where flood waters were coming down from the
    them recently in the 1973 flood that we had. What this does   North and a hurricane were coming from the South, New
    is change the salinity and productivity in the Lake           Orleans would be wiped out. There are just not enough
    Pontchartrain area. We felt that this short-lived decrease in    control mechanisms to handle that much water. As a
    production due to the large amounts of freshwater from the    geologist at Louisiana State University told me, he said,
    Mississippi River would, in the long-run, be beneficial due   "Man, it is really a very' dangerous situation. If that
    to the addition of nutrients. One of the disadvantages the    circumstance were to ever happen, there would be a
    spillways have is the fact that they (use the Atchafalaya     tremendous loss of life and everything else in that area." So,
    Basin for example) reduce in capacity because when you let    basically, the reason the Atchafalaya Basin is so productive
    the water out into the basin, the rate of flow slows down,    is because of the annual overflow that spills in there. We feet
    and a lot of silt drops out causing tremendous siltation in the    the same, as a result of Bonne Carre utilization for the
    basin areas. This causes two problems. One, from the Corps'   spillway, about the park and range system.  It does
    standpoint, is that it reduces the ability of the floodway to    temporarily knock back the productivity of those people
    handle flood waters. And, from the fisherman's-hunter's       who require the salinity balance, but in the long-run, we feel
    standpoint, it fills up a lot of the natural lakes and swamps  it is beneficial.
    and areas that have traditionally been outstanding hunting    Dr. Skelton: You know, yesterday, the first presentation we
    and fishing areas. In fact, there is a gradual filling of the  had was Dr. Tanner's. He mentioned, in passing, that New
    basin from north to south; and as it fills, it changes from a  Orleans was sinking into the Gulf. At other times, several
    wetland habitat to an upland habitat and is then available     people who talked here at the symposium have mentioned
    for things like agricultural production. So they pull the trees    the same thing. Now, as Planning Director of the State of
    out and put in beans. This is something that is causing a lot    Louisiana, what do you have in mind?
    of people concern. The Atchafalaya Basin Commission is    Pat Ryan: We've got a number of sinkage problems in

                                                                                                             Planning 53

    Louisiana. In Baton Rouge, some areas have sunk six feet in    looking at various studies that have been completed
    industrial areas. This is the result of extreme high rates of    regarding the cost of development, both to the homeowner
    freshwater pumping in the industrial areas. It just changes  and the public.
    the hydrostatic pressure holding the area up, and it sinks    Geraldine Bachman:  Well, what  about  responsible
    when you pull that water out. New Orleans sunk two feet in    developments? Are they grouped in various categories?
    the past thirty years--again, from the freshwater pumping    Pat Ryan: Well, we hear most from Harold Cook with the
    below the city. They don't have too much freshwater to    New Orleans East or Eden Isles type of development. They
    pump out below it, but they get a lot of their water out of    are trying to work with us, as best they can, to minimize
    the Mississippi River. They have that type of subsidence     damage, and they realize the obvious opposition they can
    problem in the outlying areas. New Orleans was built on a    run into. The greatest problem is the New Orleans area.
    natural levee; and as the population has expanded, they    Too, around Morgan City area, where there is a lot of oil
    have gotten further and further away from the natural levee.    and gas development, the city has not space for expansion
    Because of expansion, marshes have had to be drained for    without ring leveeing, pumping out and filling.
    subdivisions. Sometimes these areas will catch on fire    Amy Ferdinand: You mentioned a seawall in the Lake
    because they are such high organic heat-generating areas. In  Borne Area that we were discussing. How is this compatible
    order to develop this area, the houses have to be built on    with the Bonne Carre Spillway? Would it back the waters up
    pilings. However, the driveways and sidewalks are not built    in the Lake Pontchartrain?
    on pilings. Therefore, everything sinks, but the house. If    Pat Ryan: Well, there are provisions to open the gates to let
    you drive around Metarie, you will notice that the older    the flood waters escape. The Corps of Engineers handles
    houses look like they were constructed on hills. However,    both of them. They would naturally not create a dam that
    they were built flat and everything else around them has    could not handle the flood waters.
    sunk. Because of the sinking problem, gas lines will become    Bruce Johnson: I've got a question, and I'd like to make a
    dislodged causing minor explosions. This has happened       comment. First the quesion. Pat, I understand you to say
    several times in the outlying areas of New Orleans. Gas and    that you have a supplement to your grant this year, and you
    water lines cannot withstand the sinking. Movement of the    were able to fund some parishes. Could you give us a sample
    earth is also causing problems with the streets and sidewalks    amount for a typical parish because we are now looking at
    buckling. Dan Earl of LSU conducted a subsidence study,    the same problem.
    and he estimated an annual maintenance cost of $600 per    Pat Ryan: We are talking about approximately $15,000 with
    year (per house) to maintain these homes built on unstable    the parishes putting up the matching funds. We feel by
    soil or wetlands areas of the state. You will see where some  providing the matching funds and participating in the
    people have boards leading to their garage because their    planning phase of the program, the parishes will feel more a
    driveways have sunken  and  they cannot  afford to    part of our program. Twenty-two parishes are included in
    reconcrete. The price of developing wetlands, I think, is    the coastal area. However,  I don't believe all will
    becoming prohibitive.                                        participate.
    Geraldine Bachman: Does the managerial program include    Bruce Johnson: Have you got enough money for 15 x22?
    regulations and guidelines about where building can occur?   Pat Ryan: The amount of money distributed to each parish
    Pat Ryan: Yes, we are designing so-called development        will depend on the wetland area in each parish. We are going
    guidelines with the University of New Orleans. We are    to base the distribution primarily on the acreage of wetlands

    54 Planning

    in the parishes. Some parishes only have a small area.       we've got to bite this business." They have a way of sort of
    Geraldine Bachman:  With regard to funding local    getting down to rock-bottom issues there in the legislature.
    governments, I think that is one of the best ideas you can   Bruce Johnson: I wanted to elaborate on just one point that
    have when you are trying to develop your program. In the    Dan Penton touched in our program. He mentioned the
    new amendments, there is a new provision on 305 called    organizational structure to implement the plan, and this is
    "Partial Implementation." It is, or it can be coded, 305 and  the real toughy in the whole program. We got our feet wet in
    1/2. It is implementation money to implement certain parts    this in the Florida Keys in the very memorable public
    of the program before the whole program is approved. It is    hearing down there that started about 7:30, a public meeting
    like contingent approval for certain segments. You can get    actually, and went well past midnight to standing room only
    implementation money for that and it seems one idea to-feed    audiences; We were presenting our findings. We had
    into the process in doing rules and regulations would be to    researched the various agencies controlling part of the
    try to get some of that early implementation money for local    marine and terrestrial resources in the Florida Keys. So we
    governments to develop and implement their programs. I    looked at them and went out and got the largest piece of
    know that in the state of Washington, that is the program    paper we could find, and we started plotting the name of the
    that has been approved into 306 now. The money thatthey    agency, what they did, and what their authorities were.
    were passing through the local governments was really an     Then we went out and got another sheet, and we
    important incentive to the state to get the program on line.  scotchtaped that to the other sheet. The thing ended up like
    It was so important that they had local government pqople    a window shade. It would go from the top of the ceiling to
    in Washington DC lobbying to get that program approved,      the floor; there were 42 agencies from the federal level down
    because they wanted that money at the local government       to the local government level that were separately
    level. I think that could be a very good handle, and I think    controlling, or managing part of the puzzle down there. We
    that when you all come to Washington and give your views     unrolled that in front of all these people and a "Conch" (for
    on the new provisions, that might be something you could     those of you not from Florida, Pat Ryan's got his "cajuns"
    think about.                                                 we've got our Florida "Conchs") from the back of the room
    Pat Ryan: I will agree with that. It is amazing when you     jumped up and shouted, "Never have so few been governed
    have money available how this will change people's           by so many," and he stormed out. This has been a real
    opinions.                                                    problem since the 1960's and continuing in the 1970's.
    Geraldine Bachman: It is a way to get at the whole political  Congress and the state legislatures, in other states and
    participation, or whatever we want to call it, effort, because  especially in Florida, have been spewing out agencies to
    the local government (that is really where the people are)--    solve a special problem that comes up. It's a reaction.
    and the local people, when they can begin to see how they    Nobody has taken a big step backwards and looked at what
    are going to benefit, that when they really start backing    we've done. So they're all stepping on each other. We try to
    Coastal Zone Management.                                     consider each executive director. He is looking down a
    Luther Skelton: You don't mean sort of a payoff?             tunnel. There are so many things going on, yet he has got to
    Geraldine Bachman: No, I don't!                              mind his own business. As a result, he has tunnel vision. We
    Pat Ryan: There was a lot of talk about the carrots, and they  try to take a picture of what he is seeing at the end of the
    even mentioned bribes in the legislative testimony. One guy  tunnel, put it on a wall and then we get a mosaic. In effect,
    said, "Look, we want to know how big the bribe is before     we see some guy saying the same thing three times. Well,

                                                                                                            Planning 55

    thats the guts of coastal management--to weed something    development, rather than having discouraged it.
    out and to take an overview position. Let's streamline this    Pat Ryan: Well, there is a tremendous amount  of
    confusion, and get a role for local government for regional    controversy over the Federal Flood Insurance Program in
    overview, state, and federal roles and put it together.That's  Louisiana. I'm not sure if it is a result of the extent that the
    all I have to say.                                           communities are using the Block Grant Funds to offset these
    Phillip Tallon: I am here representing the Florida Area      types of development costs. In fact, I sort of doubt that they
    Office of the United States Department of Housing and    could be. We've had a number of problems with it and with
    Urban Development, and we have a number of programs in    the Flood Insurance Program, particularly the mapping of
    HUD that may be related to some of the things you talked    what is and what isn't a flood area. They've utilized a lot of
    about here and this is what Bruce said, I guess HUD is    core data and information. We  feel there is better
    taking some steps backwards in as much as we've done away    information available that would provide the people in
    with a lot of our individual consolidating programs. We      Louisiana with less hardship in development. Federal Flood
    have a new program that was created a few years ago called    Insurance people were in our office a while back. They're
    "Community Development Grant Program." It covers all    kind of frustrated with their efforts to get something going
    the previous things that were separately covered under    in the state; the Department of Public Works is the one that
    Urban Renewal, Open Space and Public Facility Grants and    handles the flood insurance effort from the state standpoint,
    Loans and things of that nature. But I wanted to ask Pat    and they're sort of not doing it--not going after it too strong
    something. I'm not familiar with the situation in Louisiana,    and hard because it is against their basic philosophy. They
    but I have heard that you have some special provisions       wanted us to get involved in the thing, and we told them
    under the "Federal Flood Insurance Program" which is    "Well, we would be happy to help you if you would pay us
    administered out of Federal HUD, particularly as far as    to help you," but they didn't seem to have any money for
    New Orleans and some of these other very low areas are    us to help them with, so we just kind of told them to come
    concerned. New Orleans, I understand, or at least a good    back when they had funds. I can't see the Block Grant
    portion of it, is below sea level. And I was wondering if    Program subsidizing homes that are in flooded areas or
    you know of any situations in which any of the HUD           flood-prone areas, and this is the thing that they're having a
    communities have used development Block Grant Funds to    difficult time with--laying out what are the flood-prone
    cover any of these subsidence costs that are involved in    areas and what aren't the flood-prone areas. This is the area
    development,  either existing development or future    that we've got the problem with at the moment. We've done
    development in relation to insuring development in low-      a great deal of mapping in soil-data and flood data
    lying areas, or so-called high-hazard flood areas, under the    information that's contrary to the maps put out by HUD.
    Federal Flood Insurance Program? And the reason I'm    So, I don't deal directly with the administration of either the
    asking that is because I understand that in some places and    Flood Insurance Program or the HUD Community Block
    in Florida in particular, which Iguess has the bulk of the    Grant Program. We are participating in the 701 Statewide--
    communities involved and certified under the Federal Flood    as far as the land use and housing--Program; but I know
    Insurance Program, the coming about of the Federal Flood    that there are severe problems with it, and we're trying, if
    Insurance Progam has had an impact on the shoreline and      HUD can come up with some funds to help. HUD wants to
    the coastal areas, which is just the opposite from what was    develop guidelines and manuals for communities to go by in
    originally anticipated in that it sort of spawned some    implementing their flood insurance program which don't

    56 Planning

    exist right now. There is just a lot of confusion you know,   Insurance Program and the Block Grant Program as a local
    on behalf of the people.                                      program and decisions on how communities are going to use
    Luther Skelton: I echo that a little bit. I was in charge of the    it are made locally and the community decides if they want
    program in the state of Missouri when I was Director of    to use it to correct some subsidence program or something
    Planning for the Department of Natural Resources there.    else. You would have to figure out your role in relationship
    One of the problems we had was that, frankly, we didn't get    to that.
    enough federal financial support to the state to make it    Pat Ryan:~ One of the reasons the states are not that much
    worthwhile to really get into the Flood Insurance Program.    involved in this is because money is poured down to the local
    We couldn't afford it. And I think that is one of the    community and the states look at it as a local matter. I see
    problems that you all are going to have to get through        weaknesses in that. I don't think it ought to be moved from
    somehow. There is going to have to be some federal support    a local problem to a state problem at all. However, having a
    for the states in order to make it worthwhile in terms of time  100'percent local program with zero state involvement, is
    and people.                                                   not going to work either. I think the state could provide
    Phillip Talton: The Block Grant Program has really just    HUD and the communities with the needed data and
    gotten off the ground. Even though it's about two years old,    mapping type things neither one of them have now.
    we're really in the first implementation year, and we're    Phillip Talton: Well, this sort of points out the need for state
    beginning to see what communities are really doing. They      agencies like yours and the other that are here.
    really just got their funds a short while ago. In the state of    Pat Ryan:~ It is going to take some money because no state
    Florida, the bulk of the funding seems to have gone either    agency anywhere in the United States will go out and spend
    into housing rehabilitation efforts--which you all are not too    their money to do it for you--unless they dearly love that
    concerned with here--or into things like drainage and public    kind of thing.
    facilities, utilities and to a certain extent, into canal activity    Phillip TalIon: And the regional agencies to get involved;
    and things of that nature in the coastal areas. And           they are doing that thing here in Florida.
    presuming this program will continue, and it will get    Pat Ryan: About tunnel vision: HUD has just gotten a new
    additional funding after the third year--and who knows        brand of tunnelitis. The 701 program used to be a
    what will happen if we get a democratic administration-- we   comprehensive program. Well, Congress beat them about
    really might take off. We may see more funding going into    the head and shoulders so they decided to concentrate on
    these kinds of things.                                        land use and housing. I have a Ph.D. Sociologist doing
    Luther Skelton: It has to be one of the more important        studies involving human resources. I advised her that under
    programs, federal programs involved in coastal zone           our HUD grant she could no longer work on human
    management. There is no question about that, but I'm          resources--she must concentrate on doing housing work.
    reminded of Bruce's view of the projected  Federal            "But,"  she  said,  ''It's  important  to  the  overall
    Organization Chart on the wall, and how you (HUD) fit in    comprehensive view." I advised her that because of our
    the mosiac, and I guess we're all trying to figure that out.  HUD funding, she would have to work on housing or she
    You know it is one of the things we've got to communicate     would be out of a job.
    more about--so that some kind of coherent view of the    Jeff Fisher: I would like to ask Dan Penton a direct question
    Federal coastal zone direction emerges.                       that relates to what Mr. Johnson was saying-by the way, I
    Phillip Tal/on: One final thing. We  view the Flood           happen to be a "Conch" and I was at that meeting that

                                                                                                              Planning 57

    night-what specific mechanisms are being contemplated or    presently does, going through three or four agencies to get a
    are going to be tried to get all these state and federal local    permit to build?
    agencies with specific or narrower roles in coastal zone     Dan Penton: No what we envision especially as it relates to
    management to relinquish some authority and to get    Federal actions, is that with an approved  coastal
    something done in a management sense?                        management plan, Federal actions, for example in the Corps
    Mr. Penton: We have about four or five suggestions or    case, they won't issue a dock permit or a dredge and fill
    alternate ways of approaching the problem. One is that, at   permit for a project that is found to be inconsistent with the
    the present time, we are identifying the existing, regulatory    adopted and approved state plan. What we anticipate and
    authorities at the state level--those that will require the least    would like to see in Florida would be a one-stop effort from
    amount of legislative tinkering to realize the comprehensive    the standpoint of a coastal management certification and
    plan. It appears that the state level of the Department of    permitting that would be issued at one point in time based
    Natural Resources with their coastal construction setback,    on  one  application.  Without  coastal  management
    their land ownership responsibilities and marina permitting    certification being separate at the state level, you may get a
    or releasing; the Department of Environmental Regulations,    permit from the Department of Environmental Regulations
    from the standpoint of their permitting program and water    for a marina, but it its on sovereignty waters, you've got to
    quality certification program; and, the state Division of    go back to the Department of Natural Resources and get a
    State Planning, which has the authority as a result of 1972    lease to use that land or buy it or what have you. And so, in
    legislation to develop a comprehensive land and water    Florida, the Environmental Reorganization Act--which was
    management plan for Florida, are all involved. Now we can    intended to streamline the permitting system--really didn't
    either opt to go with either one of those programs and build    do anything except shuffle people around. It is still the
    the coastal management program around that; we can    biggest mess you've ever seen from the standpoint of an
    operate from the standpoint of an interagency agreement or    individual application. A similar problem but in another
    legislation to that effect, saying these people will meet    area--fisheries--John Hall, maybe you would like to feel
    together and reach broader-based coastal management          this. What is going to be the agreement among state and
    decisions as a unit. I suppose, we could establish a separate    federal agencies in managing fisheries? Another question
    coastal management agency which I don't think will ever    relates to your research items. I'm wondering about
    happen in Florida. It is against our basic philosophy of    offshore fisheries' resources that might be affected by
    creating additional layers of red tape. But basically, what    coastal activity. I noticed that all your research ideas related
    we're striving for is to have a management system that    to estuaries, bays and marshes. What about snappers and
    utilizes what we have at hand and makes each of these    groupers and other valuable offshore fisheries--codfish in
    agencies, which has narrower responsibility, cooperative    the northeast.
    through a vehicle of intergovernmental agreements,    John Hall: Well, the way I look at it, if we can streamline
    interagency agreements or a specific legislative act to, in    any of these processes its fine with me. I've got a territory
    effect, broaden their vision to incorporate economics for the    that runs from the East Pearl River in Louisiana all the way
    social environment as well as say water quality. There's got    through Mississippi and Alabama, both coasts in Florida
    to be some balancing there, that that's our primary    and Puerto Rico and the Virgin Islands. That's all right, I
    approach right now.                                          have an assistant; a part-time secretary. If we can find some
    Mr. Fisher: Will a citizen have to operate the way he    ways to handle these permit problems as they relate to

    58 Planning

    fisheries and other forms of natural resources, that's fine with  up our minds what kind of percentage of population change
    me. If coastal zone management is going to do this, I'm all     we are going to describe. So it's a tough, tough problem. I
    for it. Just in day-to-day operations, I find that this is a   envision a greater role on the part of NOAA offshore, using
    terribly complicated process, just trying to deal with people,  vessels. The National Fisheries Service, for heaven's sake,
    because I don't think we're ever going to get away from         has laboratories and a lot of people who deal specifically
    situations where a permit will be required. And once we get     with these resources, and I think we ought to get their
    into situations like this, tradeoffs of industrial municipal    efforts involved in this too.
    recreational activities for long-term naturally producing       Luther Skelton: I had a question to tack on to some of the
    resource systems, we've got a serious conflict of interests. I    concepts that were mentioned here, John. You know it
    :hink those interests must be strongly represented. I also      almost appears that commercial fishing is at about the stage
    have a slight problem in trying to get it all under one roof.   of advanced food gathering in a historical sense. Now, as it
    Once it all gets under one roof, a person can find the          makes a transition from a hunting and gathering economy in
    pressure point in that roof, the whole building might come      a highly diverse eco-system, sort of skimming off the top, to
    down. I do appreciate the way things work right now with        an intense farming system, and that system becomes
    the separation of power, because, frankly speaking, the        extensive enough to begin to interfere with  eco-system
    state takes certain actions that we find incomprehensible. As  diversity, how will you preserve system stability. I wonder if
    a result, we'll strongly argue for permit activity at a federal  you give this problem any consideration as you are
    level, and, in some cases, it happens. Most of the time,       developing your economic tradeoffs. Do you do that?
    things go rather smoothly. So, I'm just a little bit worried   John Hall: We are talking about tradeoffs. We have seen in
    about the pressures and implementation of it. Then your         the past situations where a developer will come in and he will
    second question dealt with who is going to take care of the     say, "O.K., State, I've got 400 acres here and 300 acres in
    resources offshore. Well, we've got this 200 mile legislation,  Mangrove. If you will let met develop 150 acres, I'll give
    200 mile extended jurisdiction business. I'm not too familiar   you 150 acres in Mangrove, which you can maintain for the
    with how we're going to implement the regulations and          joy of the people of the state." The way it works out, the way
    permitting involved in that. I would suspect that there will    the legislation reads it, you do have defacto control, so we
    be a concerted attempt to try to license people in these areas  don't consider it as a tradeoff. Instead, if we see a situation
    and share the resources. One of the problems we have is that    like in this coal handling facility where the actual physical
    we really don't know what the populations are of fishes. We     constraints of the facility require that they had to fill in 10
    have rough estimations but we don't know how many              acres of salt marsh, well, we said "O.K. We're going to
    kingfish there are, how many mackeral, how many red             lose the productivity of a productive salt marsh grass for
    snapper.  So  when  you're  talking about  managing            some time." And we said, "Why don't you build us some
    something, you had better find out what you've got first.       out there on these uplands? We are not going to build it on
    And I think there is some step made in this direction with      these lowlands. We'll just build some marsh in this area."
    regard to depleting resources like the blue fin tuna; we're    They agree because the technology exists for building
    getting an idea of what it looks like, but things like the red  marshes, and after a few years, we are very hopeful that the
    snapper; there aren't many red snappers out there. There is    productivity will return.
    so darn much natural variation in population to begin with      George Allen: All this talking we were doing about one-stop
    that we run into some serious problems just trying to make      shopping for the permit application (i.e. one permit which

                                                                                                             Planning 59

    would satisfy the requirements of all concerned agencies)--I    responsibility? And if you don't think it is, you try to do
    think  the permit  applicant  is probably the most           something that steps on the state's prerogatives and see what
    longsuffering, lenalized, confused individual that there is in    happens. I don't believe the one-stop shop, as much as it is
    the United States today. All of us sitting here are talking  desired, will ever be an accomplished fact, and in some
    about our bureaucratic processes and how difficult they are  ways, I hope to God it never will, although it would
    going to be. Woe unto us! 1 often times wonder how many      certainly be convenient. Who wants to be a dictator? Do you
    times we have considered the position of a man who wants     Dan?
    to put a fencepost or a lightpost out in his front yard and  Dan Penton: I'd rather be King! George, I think maybe we
    because it happens to be in front of a navigable waterway,   have sort of a misunderstanding, but I know you well
    he has to have a permit to dig a posthole. But, I don't think  enough to know that maybe we don't. I think that in
    the one-stop shop will ever work. It's a utopia that everyone  Florida, for example, at the present time at the state level
    hopes for. Its not practical as long as you are dealing with  we've got the damnest mess you've ever seen in trying to get
    human beings on boards such as we serve on. The human        an application through. There is no reason for it except
    prerogatives are such that I don't want John Hall telling me  legislative oversight. That is the only reason. When the state
    how to design a bridge, and conversely he doesn't want me    of Florida issues a permit under the present system, (for
    to tell him how to save an estuary. If I'm going to tell him  example, DER), and if it involves sovereignty lands, DNR
    how to save an estuary, I had better not do it in a public    goes ahead and issues a lease, that action is always  affable
    forum. I had better do it over a martini at a bar somewhere  and it can be affilable to the governor and cabinet for
    where we can sit down and talk as individuals and not    example. But somewhere, somebody in the state has to
    representatives of agencies. Another thing that is against the    make the decision on the total action. Whether we do it at
    one-stop shop is that you eliminate the check and balance    the permitting agency or somewhere else. We can have one
    system, and the check and balance system is entirely what    agency issuing water quality certification, another agency
    this system of government is founded on. If John doesn't    issuing coastal management  certification,  a third
    like something and I do, if I try to railroad something      administering dredge and fill regulations, a fourth doing
    through then John tries to stop it; conversely, the other way  land ownership of sovereignty lands, etc. Somebody at the
    around. If that system is destroyed, we are going to find    state has still got to put those together, ultimately, to make a
    ourselves not only environmentally but politically in a    state commitment, be it pro or con. All we are saying is that
    system I don't think any of us want to live in. Now with    it is easier to get that broader-based input in coastal
    regard  to  his  comment  about  the  oil problem.           management perspective, which the Straton Commission
    Unfortunately, the Corps of Engineers has to write these    called for, at the bureaucratic level. If therearesome
    confounded environmental statements even if the projects     additional considerations, let the governor and cabinet or
    themselves are being built by a private enterprise. To a    some elected policy board address those extraneous
    certain degree, we are stuck with the job of writing the    considerations to make the normal paperwork processing,
    statement. Congress has so directed. Now there are so many   bureaucratic input system as administerable as possible.
    things that go into these environmental considerations that    Geraldine Bachman: I disagree with George Allen a little bit,
    we wonder sometimes, is it our prerogative to comment on    too. I certainly think that more streamlining is possible, and
    it? If the state is willing to do it, and its not a hindrance to    we're going to try for it. It's important to many of the states
    navigation, should we bother with it? Is not this the state's    to do that kind of a job; we've got a project going on in

    60 Planning

    North Carolina to try and do that as part of their coastal    specific time limit involved for returning comments (20 to 30
    management program. I think this is part of what we're all    days) and then a decision was made. The local government
    about here. I don't think anybody would argue that it's not    would make the decision. The local decision would hold
    needed and it's not time to try. It's part of our act and it's a    unless there was some conflict with the statewide criteria and
    good place to start. I certainly agree with the checks and    guidelines. If there was conflict, the state could override the
    balances, and I don't think it will ever disappear from our    decision. There was also an appeal procedure involved in
    system. I think we have it, maybe not in the permitting    any decision that local government or state government
    authorities, but certainly in the different levels of    made. The appeal went to the commission we talked about.
    government--local, state, and federal. There will certainly    There was a balanced local government interest group body.
    always be an override by the Corps of Engineers at the    Anyone who disagreed with the decision, either from the
    national level, as happened on Marco Island. There will    public or the applicant, made by the administrator or the
    always be the override in our own office with relation to a    local government, would appeal to this body and it would
    matter of national interest and security. So I think that we    make a decision. If there was disagreement with the
    need that check and balance; I think we've got it and will    commission's decision, then it would go to court. I think
    continue to have it. But the streamline of the permitting    streamlining is important, and we tried to design a system
    process makes so much sense, and the time seems so right for    whereby the paperwork could be quickly handled.
    it, from many points of view, and many states want to try it.   Luther Skelton: We approached it somewhat similarly in
    I think we should try it.                                   Missouri. We set up a concept of lead agency that would do
    Pat Ryan: Let me add a comment. Louisiana permitting is a    the same kind of thing in most cases. The only trouble we
    major issue in coastal zone management. Really, if you look    had occurred when we were faced with a commission or a
    at the 3,000 permits that are issued each year, about 95-96    constitutional body that had occurred when we were faced
    percent of these permits are automatically issued with no    with a commission or a constitutional body that had a
    problems associated with them. The remaining three to four    particular statute responsibility and then the system fell flat
    percent are controversial so to speak. I think that we have    because of the inherent veto. It depended upon the issue.
    recommended sufficient appeals and an open procedure on    There were as many as six or seven possible vetoes through
    all of them that the conflicting points of view would come    the process. I think it's time for some experimentation. I
    across. I would never recommend any system where you    think, George, of the poor man who is trying to get a
    have only one voice and all the battling and everything took    lightpole built and has to go to 18 different people to do it.
    place in the back of a smokefilled room and you never know   George A lien: Well, the problem is, has any system been
    whether it was a controversy or not. You just knew that the    devised where you won't have to go to 18 different people.
    action took place. The system we recommended in    You could be just changing names of a lot of agencies.
    Louisiana was that the Louisiana Department of Wildlife      Luther Skelton: Well, one wonders why we need 18 different
    and Fisheries would be the permitting agency and the    agencies to build a lightpole.
    administrator for coastal zone management. The applicant    Phil Tallon: I couldn't resist commenting on this situation.
    would request a permit from Wildlife and Fisheries. As soon  Before I came back with the Feds, I would say for about the
    as Wildlife and Fisheries received it, they would send a copy    last 15 years, I've been operating at the state and local level
    to the local government and to the Corps of Engineers and    and just recently up in the city of Baltimore we had a very
    anyone else who would wish to comment on it. There was a    serious problem with this business of getting permits and

                                                                                                               Planning 61

    reviews and things like that from quite a few different
    agencies--not only federal agencies--but state agencies--and I
    am sure this is characteristic of just about any place in the
    country. But we set up a--this involved larger projects,
    larger activities--dredge and fill permit review process and a
    coordinating program which made it possible for everybody
    to sit around the same table. Whereas previous to this, they
    were going to individual agencies and getting conflicting
    reactions, and things of that nature. The magnitude of this
    project was pretty extensive. It involved Bethlehem Steel's
    largest steel-producing plant in the country. It involved the
    development of a new containerization terminal for report
    administration. It involved dredging a channel which ran
    quite a ways down the Chesapeake Bay, including the
    establishment of a spoil disposal area which is probably
    going to create a new island in the Chesapeake Bay. It
    involved a multi-million dollar sewage treatment plant that
    was going to be built and it took about a two to two and
    one-half year period--and it was precipitated by a demand
    and I guess started with the Fish and Wildlife Service up in
    Boston and came through the Corps of Engineers to force
    the Port Administration to develop a plan. What the Port
    Administration viewed as a plan, and what the federal
    agencies viewed as a plan was about 1800 different. We did
    manage to get this thing going and get it started. And as a
    result of it, the more critical things were freed up, and we
    managed to negotiate on both sides and enable some of
    these developments to go ahead with the same type
    preservation of the more critical environmental features that
    people were concerned with. Now this did not end up with a
    one-stop shopping permit office. The permits still came
    from the same places--the same people were involved--but it
    shortened the time considerably. It got everybody on the
    same wavelength. Maybe that sort of thing could be done.
    Luther Skelton: That technique, as well as the one John Hall
    mentioned earlier as the workshop concept, is a good one
    for shortening permit time.

      Natural resource management has become a focus for
    much of the value negotiation characteristics of what has
    recently been termed the development/environment
    dichotomy. Whether or not this dichotomy really exists is
    moot; it does, however, resound behind much of the present
    day policy dialogue.
      In this section of the symposium we considered off shore
    oil as a natural resource very closely related to both the
    energy shortage and the environment. Dr. Jerry Ham in his
    paper describes the role of ERDA (The Federal Energy
    Research and Development Administration). He restates the
    currently accepted federal policy which holds that off shore
    oil production is a necessity in view of the present energy
    shortage. Dr. Ham argues for further technological
    research which can make offshore oil drilling safer
    environmentally.
      Dr. Sneed Collard, from another point of view, describes
    the delicacy and importance of the neuston community, a
    part of the marine eco-system , near the oceans surface. He
    indicates that this community among others, is very
    vulnerable to the effects of petroleum. Finally, he points out
    that the problem of oil, spilled or leaked into the oceans,
    may be the most serious problem to be dealt with by Coastal
    Zone Managers.
      Dr. Skelton reconsiders the question of offshore oil
    production as a policy. He briefly traces the development of
    the present policy, then outlines a range of policy
    alternatives and projects and some of their possible
    alternative futures.
      The discussion surrounding this section was relatively
    short due to lack of time. It was indicated that research
    results appear to be mixed regarding the deleterious effects
    of oil spills. In some areas there were no appreciable effects,
    in others, the effects were tremendous and long term.

                                                                                       Coastal Resource Management 63

                                                                                                           Jerry D. Ham
                                                                                                       Assistant Director
                                                                                          ERDA's Fossil Energy Program
                                                                                                       Washington, D.C.

                                                                                                            Introduction

    The increase in the consumption of energy worldwide, and    national security, balance of payments, and public sector
    in particular in the United States, over the past twenty years,    energy supplies. The nation is committed to reduce
    has caused the potential for serious national energy    dependence on imports as rapidly as possible by increasing
    shortages.                                                 our domestic production substantially. Where are these
      In response to this acute problem, Congress established    large volumes of domestic oil and gas coming from?
    the Energy Research and Development Administration           There is a consensus that most of the future discoveries
    (ERDA) in January 1975.                                    will be through exploration and development of potential
      ERDA is charged with the responsibility of initiating and    resources under the Outer Continental Shelf (OCS). It is
    coordinating with the private sector research, development,    also conceded however, that the problems associated with
    and demonstration (RD&D) programs, that will assure    the development of potential petroleum resources in these
    adequate supplies of energy for the future. ERDA is further    frontier areas are complex and a great deal of care will be
    charged with the responsibility of assisting the private sector    exercised in their orderly solution.
    in the development  of these energy sources in an            The technology for exploration and production of
    economical, environmentally and socially acceptable    offshore oil and gas reserves worldwide has been developed
    manner.                                                    primarily by the U. S. petroleum industry, mainly at its own
      Figure 1 displays the actual, through 1975, and the    expense. Exploration and production in frontier OCS
    projected, through 1990, consumption of energy in this    hostile environments (deep, rough seas and ice) will require
    country. Various solar, synthetic fuel, geothermal, and    extension of existing technology as well as new technology.
    nuclear processes currently are under development, which    Many evaluations, such as the University of Oklahoma's
    will reduce our dependence on a rapidly diminishing world    "Energy Under the Ocean," have discussed the past
    supply of oil and gas. Figure 1 shows that in 1975, 76% of    performance of the petroleum industry and its suppliers in
    our energy came from oil and gas. This trend will continue    demonstrating initiative, resourcefulness, and financial
    well beyond 1990 before these alternate processes begin to    strength in developing basic technology to meet exploration
    contribute sufficient quantities of energy to reduce our    and development needs. The historic self-reliance of the
    dependency on petroleum.                                   petroleum industry is being taxed by the compression of
      Between 1960 and 1975, the Nation's consumption of    time schedules brought about by the urgent need for
    energy increased from 50 quads to 75 quads. (1 quad is    offshore oil and the additional research, development, and
    roughly equal to the energy available from 175 million    demonstration necessary to operate in the relatively
    barrels of oil). By 1990 national energy consumption is    unknown frontier areas.
    projected to reach 115 quads per year, or more than twice    ERDA has been designated by the Congress in Public Law
    the consumption in 1960. Although by 1990 the percentage    93-577 as the leading energy research, development, and
    of contribution by oil and gas will be reduced to 61%, the    demonstration agency and has been given responsibility to
    increased demand for energy will require that substantially    integrate and coordinate national efforts. This requires that
    larger quantities (70 quads) be available for this interim    ERDA address both technical and nontechnical constraints
    period,                                                    that may pose barriers to meeting energy goals. The
      During 1975 our petroleum imports averaged nearly 40%    legislative mandate requires ERDA to define those barriers
    of our yearly consumption and 1976 will clearly exceed that    that would restrict the availability of economical energy to
    mark as shown by Figure 2. This has severe impacts on    the American public and which would provide less than

    64 Coastal Resource Management

    optimum benefit to the consumer. Hence, ERDA must            field tests or demonstrations of such sensor and downhole
    consider transportation, resources, manpower, capital    telemetry systems. If successful, these projects will
    availability, public acceptability, institutional constraints,    significantly advance the time at which this capability is
    and environmental compatability, as well as selected    available to lower the cost of drilling and reduce the risk of
    technology areas.                                            blowouts.
      The ERDA offshore program currently is in the definition     In another ERDA project, downhole drilling motors are
    phase. During the past year, ERDA has been conducting        being developed. These motors will provide much greater
    joint meetings with industry, government, academic, and      penetration rate and control than that obtained in a
    public-interest groups to identify high priority RD&D        conventional drill-string operation. This increased efficiency
    projects which would help accelerate the development of    is achieved by applying the drilling torque just about the bit,
    offshore areas in a safe, reliable manner. Needs for RD&D    rather than on top of several miles of drill pipe. Here too,
    activity in drilling and instrumentation development were    both cost to consumers and reduction in risk are major
    identified early and programs were initiated in response to    objectives.
    these needs. First, this paper discusses the ongoing           In other projects, work is underway to improve fluids and
    projects, that is, the existing drilling activities and the    drilling practice which will more effectively clean the hole
    ongoing instrumentation development. This paper also         and gain practical information on optimizing fluid pressure,
    discusses the ERDA  Offshore Technology Program              weight on bit, revolution per minute (r.p.m.) and bit design
    planning activities.                                         and selection for ultra-deep drilling.
                                         Drilling Technology                                          OCS Program Areas

      Drilling, both onshore and offshore, is clearly a high      Offshore oil production in the United States largely has
    priority area in need of improved technology. There are    been limited to the Gulf of Mexico and the Santa Barbara
    hostile "frontier" conditions in drilling deeper, higher    area of California. Fifteen additional areas of the Outer
    pressure, hotter, more corrosive formations. In deep, rough    Continental Shelf have been identified as having good
    seas, and in the Arctic, it is the drilling operations, including    potential for substantial undiscovered reserves (see Figure 4).
    providing a place from which to drill, that are most    Each of these frontier areas has, in general, a more hostile
    dangerous and expensive. Drilling is the largest element of    environment than the Gulf and Santa Barbara areas. New
    the cost of oil and gas to the consumer. Drilling costs have    technologies are required for safe, reliable operation in these
    been rising steadily from inflation and additional cost    environments. New shore based support facilities will be
    increments will result from different frontier area    required to support the offshore development, many of
    conditions, as shown in Figure 3. It is the drilling    them in the Arctic.
    operations, particularly exploration drilling, that causes the  The urgent national need for accelerated development,
    most environmental concern. The unexpected encounter of    the need to provide environmental  and  ecological
    high pressure fluids is a major contribution.               safeguards, the need to supply petroleum products to the
      A "breakthrough" in improving drilling cost and safety    consumer at the lowest possible cost, the need to reduce oil
    can be achieved if the driller can obtain real-time    imports dramatically, and the need to assist affected state
    information on downhole conditions while drilling. ERDA     and local planning groups in the socio-economic and
    is supporting, jointly with a number of oil companies, two    environmental assessments required for planning and

                                                                                         Coastal Resource Managemenl 65

    decision making all contribute requirements which together   oil-spill detection and protection responsibilities and
    exceed R&D  requirements normally expected from              activities.
    Government and industry. ERDA's role lies in the
    development of RD&D activities to assist in the satisfaction                                         Data Acquisition
    of these requirements. Figure 5 reflects the program areas
    that have been identified and that provide the basis for       In the joint meetings mentioned previously and in all of
    ERDA planning in the offshore program.                       the literature published on offshore development, there is a
                                                                 continuous theme of the lack of data and information.
                                  Planning and Coordination     Some years ago the phrase "information explosion" was
                                                                 coined. A critic of this phrase said, "The information
      ERDA planning and close coordination of the offshore       explosion is not here yet. There is an abundance of data
    oil and gas program with industry and other Federal          available in the world but few people know where it is and
    agencies is essential for the successful introduction of the  no one has put it together to provide information." This
    technology needed to enhance development of the U.S. oil    appears to be part of the prevailing condition in the offshore
    and gas reserves as well as striving toward National energy  technology field. State and local governments need
    independence. This will establish and maintain effective     information to perform environmental, ecological and
    lines of communications and accelerate the development of    socioeconomic assessments of offshore operations and their
    offshore resources in the most technically, economically and  related onshore support facilities. The petroleum industry
    environmentally feasible manner within the near-term time    needs environmental force data (winds, tides, wave heights,
    frame.                                                       sediment stability, etc.) to design safe, reliable structures
      This program activity will be conducted by ERDA, other    and support facilities such as pipelines.
    government agencies, and industry participation in the         Current planning at ERDA includes the development of a
    definition and implementation of the following areas:        data acquisition, analysis and dissemination system. This
            Needs Assessment                                    system would in no way duplicate existing systems, such as
            Technology Transfer                                 the NOAA Environmental Data Services, Bureau of Land
            Nontechnical Considerations (viz. Ecological and    Management, U.S. Geological Survey, etc. Rather, it would
              Socioeconomic)                                    identify user needs, identify and index data sources and
            Coordination of Government RD&D                     establish procedures to provide specific summaries of
            Coordination of Government, Industry, and           information to the requesting user organization.
              University Cooperation                              In the frontier areas of the Outer Continental Shelf the
    The Needs Assessment area, for example will include          requirements to gather the detailed data required for
    conduction cost-benefit studies of drilling technology,      extensive development and operation was not previously
    definition of the state-of-the-art of offshore storage       urgent, as it is now. ERDA planning includes sponsorship of
    technology, identification and development of high-priority    expansion of this frontier area data base, including the
    technologies that will reduce delay times associated with    development of appropriate instrumentation as required to
    offshore development. Technology Transfer will include       provide the diverse family of users with complete, relevant
    ERDA  involvement in conducting and coordinating             data sets in a timely manner. Provision of these data and
    symposia and publications, and definition of joint-agency    information, with adequate lead time for planning should

    66 Coastal Resource Management

    minimize the development delays experienced in the past,    chemical properties. The new project will make these raw
    due to decisions or indecisions influenced by the lack of    data available to any interested investigator through direct
    reliable data. For example, as the industry moves into    access to a user-controlled computer system for analysis and
    deeper waters (beyond 200 meters), additional new            interpretation of effects of oil and gas operations.
    technologies are required. Figure 8 displays the range and
     potential distributions of reserves and the related bottom                        Testing Evaluation and Demonstration
    characteristics.
       From the 200 meter mark (or the edge of the Continental      ERDA's support and sponsorship in the OCS Test
     Shelf) to the bottom of the Continental Slope, an estimated  Development and Demonstration area is desirable to assist
     30 to 35�01 of the potential resources reside. Much of the    in the development of OCS hardware and technology that
     ocean bottom in this slope area is characterized by unstable  usually must go through the developmental process of
     sediment deposits. Structural design is highly dependent on  testing, demonstrations and evaluation before they will be
     the availability of detailed, reliable data on this new ocean  adopted for use offshore. Because the process of applying
     bottom environment. ERDA, through Sandia Laboratories,       new technology involves substantial risks and cost,
     has  a  substantial  project  underway  to  develop          companies often form joint industry groups to acquire
     instrumentation and methodology for acquiring data on the    information and to develop, test, and evaluate equipment
     ocean floor. Sensors, packaged to embed themselves in    and procedures. Small contractors cannot, in general afford
     seafloor sediments when dropped from ships or aircraft, will    to assume these risks and often their use of new technology
     measure on site properties, such as oil strength, pore       or equipment is delayed unnecessarily. ERDA's role in
     pressure, movements (mud slides and motion in response to    sponsoring test facilities such as laboratories, test wells,
     seismic events), along with wave and current data. Data will    instrumented platforms, etc., has been strongly endorsed
     be partially processed, selectively stored and transmitted to    and encouraged by groups with various interests. Such
     the surface on command. Data from this instrumentation       testing has already become a useful tool to the offshore
     package will provide inputs to industry structural designers  petroleum industry through the availability of facilities such
     and will also be useful to other agencies such as the    as the David Taylor Model Basin. This enables systems to be
     Department of the Interior in the development of standards   verified and performance tested under realistic operating
     for regulation, certification, and inspection. For example, a    conditions. It also fills an important industry need and
     project has been proposed to develop and publish design      established a sound basis for cooperative efforts. Currently,
     recommendations for offshore structures, based on onshore    Exxon is conducting tests, with a small scale test structure,
     earthquake experience. As data on seafloor earthquake        over a six-month winter period in the Gulf of Mexico to
     induced motions are obtained, this design methodology will    develop oceanographic, meteorological, and structural data
     be improved.                                                 required for scale-up. This is a prime type 6f endeavor
       ERDA also is starting a project that should be of great    which ERDA might cosponsor over a two year, or longer,
     interest and value to those concerned with long-range        period so additional data can be acquired over an extended
     ecological effects of offshore oil and gas development.      time period, which includes hurricane seasons.
     Samples of Gulf of Mexico waters and shallow sediments         This program area will consist of: (!) sponsoring common
     from locations both near and remote from oil operations    test facilities; (2) sponsoring a certified materials testing
     have been taken and analyzed for physical, biological, and   program; (3) conducting equipment evaluations; (4)

                                                                                       Coastal Resource Management 67

    conducting laboratory and field demonstrations, and (5)      technological problems will be examined to determine the
    coordinating joint industry programs.                        appropriate ERDA role and funding permitting, projects
                                                                will be initiated on a priority basis to assist in the
                    Basic Technology and Advanced Concepts      devel opment of the high-priority energy-resource area.
                                                                   In conclusion, the urgent national need for offshore oil
      Basic technology is required to develop a better           and gas in the near term time frame (1985-2000) has led
    understanding of the behavior of materials, mechanical       ERDA to plan an RD&D program to assist the petroleum
    systems, and biological systems in the OCS environment.      industry in the development of these vital resources.
    The need for some types of advanced research, such as        Particular attention will be paid to the environmental,
    knowledge of the fate and effects of oil on marine biology,  ecological and  socio-economic aspects of offshore
    is urgent to minimize environmental road blocks. Advanced    development. We realize that data needs vary from region to
    research is pertinent to OCS frontier areas scheduled for    region and we will welcome suggestions from all Coastal
    development. Two such projects are the measurement of        Zone Management Groups.
    Arctic environmental forces, and the development of
    effective methods for cleaning up oil spills in ice-infested
    waters. Other vital technological concerns related to
    development of offshore petroleum resources in the Arctic,
    have to do with ice formations and movement and
    permafrost.
      Enhanced recovery techniques may have to be applied to
    the OCS to bring marginal-resource fields to a commercially
    viable stage. ERDA has been very active in the basic
    technology of enhanced recovery onshore. These tests
    generally are less that 100 acres in size and may be regarded
    as large pilot projects. Due to the variability of reservoirs,
    the ERDA program incorporates a sufficient number of
    tests to develop and prove technologies that are applicable
    to principal reservoir types. As results from these projects
    are made available, further evaluations will be conducted,
    preparatory to increasing projects to commercial size (several
    thousand acres). These techniques (it' feasible) may be
    applied to offshore discoveries which are considered
    marginal for commercial development, thus adding
    previously unattainable oil to our domestic producton.

                                                 Conclusion

    As the ERDA Program Definition Phase continues many

    68 Coastal Resource Management

    Sneed Collard
    University of West Florida
    Department of Biology

    The Surface Fauna of the Outer Continental Shelf
    of the Eastern Gulf of Mexico
    and Its Relationship to Oil Production

      Whether planner or scientist, few of us know enough    extends from the surface to about 200 m. in depth. This
    about the complex interactions between high seas and beach    zone is wind-mixed, and relatively homogenous with respect
    environments to be able to make accurate predictions    to temperature and salinity. Light intensities allow
    regarding the form, magnitude, or impact of stress imposed    photosynthesis above the compensation point. This layer of
    upon one environment because of stress or perturbation in    water is also called the euphotic or eutrophic zone. Animals
    the other. While the open sea and the coastal zone are    with which you are all familiar (jelly fish, tuna, whales) live
    geographically and in many other ways distinct, the sea and    in the epipelagial.
    its shores are but parts of a single system. I would like to   The mesopelgic zone extends from some 200 m. to 1,000
    persuade planners and managers among you that what    m. in depth. This layer includes the permanent thermocline
    happens to the environment over the horizon may ultimately    and halocline. It is a layer of marginal light (the disphotic
    have more far-reaching affects on the coastal zone than    zone) and it supports an unusual and important fauna.
    those short-term problems that plague the more proximate    Mesopelgic animals are uniquely adapted to migrate from
    and highly visible beaches with which you usually work.      great depths to the surface of night, where they feed upon
       The sea is almost incomprehensibly vast, yet it can be    the rich plankton found there. In so doing, they cycle energy
    divided into workable and real zones or realms defined by    and pollutants into deepwater eco-systems.
    their physio-chemical, biological or even bathymetric          Beneath the mesopelagic zone lies the bathpelagical layer,
    characteristics. While my remarks today deal primarily with    which extends from about 1,000-4,000 m. in length. This
    air-water interface, or pleusal zone, surface-to-bottom      zone is one of perpetual cold and darkness, and its included
    water column interactions are as important as sea-to-shore    fauna is bizarre in comparison to what we are used to seeing.
    relationships. I shall introduce this presentation with a    For purposes of this paper, suffice it to say that
    brief discussion of the subdivisions of the open seas.       bathypelagic animals eat mesopelagic animals, and by so
       The seaward edge of continental shelves occurs at an    doing further cycle energy - and pollutants - into the deep.
    average depth of about 200 m. Shelf edges may occur near    Beneath  the bathypelagic  zone  lie poorly  defined
    the beach (e.g. the Straits of Florida) or hundreds of miles    abyssopelagic and hadopelagic zones, discussion of which
    offshore (e.g. TheArcticOcean). Hydobionts living in waters    would not be useful here. It is obvious that the neritic realm
    overlying the continental shelf are referred to as neritic.    influences and is influenced by the oceanic realm. Each of
    Shelf waters are turbit, green, brown, or red in color, and    the vertical zones of the oceanic realm influence the entire
    are extraordinarily productive. All of our major sea fisheries    water column. The shore is, sooner or later, affected by
    depend upon the health of the neritic zone, which serves also    what happens in the ocean at all distances from shore, and
    as the most immediately accessible sink for the residues of    at all depths. The cycling of energy - and pollutants - in the
     human activities. It may be relevant here to point out that    sea, is not (as popularly thought) a matter of fallout; it is an
    what leaves the beach not infrequently, finds it way back...    active process, that, if interrupted, could result in disaster in
       Seaward of the continental shelf and the neritic    the ocean and its margins.
    environment lies the enormous oceanic realm of the ocean.       Keeping this almost heroically brief introduction to the
     Its waters are blue as the sky, and for the same reason: it is    classification of marine environments in mind, allow me
     barren.                                                      now to return to the surface of the sea and the subject under
       In the oceanic realm some four bathymetric zones have    consideration.
     been recognized. The uppermost layer, or epipelagic zone        Regardless of salinity, the air-water interface of water

                                                                                          Coastal Resource Management  69

    bodies is biologically referred to as the pleustal zone.       the fragile neuston community that first suffers from the
    Organisms that live on the surface of the water are referred    effects of this stress. It is not my purpose here to describe an
    to the epineuston; those that live partly submerged are        oily disaster scenario, but I can tell you from personal
    known as pleuston, and those species that live just beneath    observation, that the entire surface of the world ocean is
    the surface film are the hyponeuston. Organisms that live in    covered with oil and tar, and that this debris is increasing in
    the surface (or foam) are simply called "neuston" (e.g.    area and volume. Adverse biological affects of oil pollution
    bacterio neuston).                                             notwithstanding, this material will begin to accumulate in
      Species which live only at the air-water interface are       the coastal zone at an accelerated rate. How will Florida
    "euneustonic;" those (e.g. mesoplagic migrators) that          planners react, for example, if oil is found below the Destin
    regularly visit the surface are called "faculatative neuston,"  Salt Dome and piped ashore to a refinery in the Pensacola
    and those species whose main population densities lie    area? How will you prepare the coastal zone for a tanker
    beneath  the  surface  but  include  it comprise  the          breakup at the head of de Soto Canyon? Perhaps the
    "pseudoneuston." Planners will soon be familiar with these    greatest challenge facing coastal zone planners is for them to
    terms.                                                         anticipate and take steps to mitigate what humans might do
      Marine neuston investigations began less than 20 years       to the surface of the offshore sea. You will not be able to
    ago with the work of Zaitsev in the Black Sea. These           see, or taste, or smell the results---for awhile.
    investigations conclusively demonstrated that the marine
    pleustal environment was unique in all respects and that it is,
    without question, the most extensive and important nursery
    area on earth.
      Zaitsev's studies and my own in the eastern Gulf have
    shown that 60-80 percent of all of the animals captured at
    the surface are crustaceans. Of these, half or more are
    copepods. Other common members of the neuston
    community are arrow worms, coelenterates, larvaceans, and
    larvae and juveniles of virtually all marine taxa. While a
    technical account of neuston systematies is not appropriate
    in the present forum, a single example will give you a feeling
    for the abundance of organisms that occur on the surface. It
    requires little imagination to understand how important
    these organisms are to marine food webs. At one station off
    the coast of Mississippi, I caught 849 million animals in four
    minutes, and a million or more animals per minute using a
    one meter net, is common.
      With the recent increase in oil exploration, production
    and transportation comes an increased chance of accidents.
    Most at-sea petroleum related accidents, (including
    deliberate overboard spilling) occur on the surface, and it is

    70 Coastal Resource Management

    Luther W. Skelton
    Coordinator, CZM Program
    The University of West Florida
    Pensacola, Florida

    A Range of Policy Strategies for Offshore Oil

      The purpose of this paper is to describe some very broad    only their own methodology.2
    policy strategies for the management of offshore oil in the     The description of policy strategy is supported by both of
    outer continental shelf of the United States. These strategies    these two approaches to policy projection. We need to be
    are designed to span approximately the next decade.           continually aware that policy is dynamic and that it does not
      The description of such strategies is not a task for        move with consistency over time; that it is in many ways a
    "angels treading," and I am well aware of the risk of being    reflection of the human interactions which combine with
    assigned the opposite role. These strategies are very general    existing and potential technology to bring it about. It is as
    and done in very broad strokes, but I think they can, to    often capricious and truly unpredictable as our human
    some extent, indicate some of our alternative futures with    interactions and as filled with surprises as developing
    regard to this very important natural resource,               technology itself. Our view of policy strategy must be, in the
      Policy strategy is not a term which is commonly used in    end, an indistinct vision of a pattern of competing wills, past
    the literature of political science, nor is it often used in the    momentum, and technical opportunity. Broadly defined,
    more recent and developing literature of policy science. It is    the construction of policy strategy for the purposes of this
    indeed more related as a concept to the theories and          paper is an attempt to outline a series of potential patterns
    activities of planning since it indicates a central concept of    of events related to decisions which may be made by
    projection and a corollary concept of future alternatives.    commission or omission and which are constrained by
       We who are involved professionally in policy science in    logical  patterns  of  past  activities  and  potential
    one or more of its many forms are often engaged in policy    developments. This method is one approach in attempting
    analysis or policy impact studies, or in attempts to describe    to rationalize decision making. It is one tool for viewing
    for ourselves and for others what policy science is. These are    policy possibilities, and as are all such tools, is limited.
    valuable and important endeavors because they help us
    understand some of the reasons that we have the policies we                                                  Background
    have. However, these endeavors, while safe and often
    interesting, are also often sterile because of their lack of     We are generally familiar with oil as perhaps the chief
    utility and lack of projection. '                             source of energy in use today. It heats us, cools us, transports
       The concept of policy strategy is not missing from the    us, lights our homes, runs our factories, and with other
    literature of political science. Amitai Etzioni in his    hydrocarbons, provides us with clothing and building
    description of mixed-scanning strategy discusses a means of    materials. We know that it is of limited supply but we don't
    examining a potential policy direction. His method requires   know what the limit really is. Those of us who are somewhat
    us to use long vision and is of necessity indistinct, but it does  familiar with the turbulent history of the oil industry are
    project.' Braybrooke and Lindblom with their science of    aware that the limited supply of oil and the unpredictability
     "muddling through" use a shorter vision and show how          of its discovery have left an indelible mark on the industry,
    policy is incremental and disjointed, but they do project, if    and upon its relations with the political system. We are

       'Amitai Etzioni, The Arctive Society, A Theory of Societal    2David Braybrooke and Charles E. Lindblom, A Strategy
    and Political Processes (New York: The Free Press, 1968),    of Decisions (Glencoe, NY.: The Free Press, 1963).
     pp. 283-306.

                                                                                           Coastal Resource Management 71

    aware of the interrelated, very complex technologies which    Energy Administration, indicates that exploitation of all our
    demand a high degree of coordination between all stages of     domestic sources of oil as well as development from other
    production and distribution. Some have argued that this        sources is imperative if we are to decrease our foreign oil
    required high degree of coordination has led to a "natural    dependency to 6 million barrels a day by 1985.' We are
    monopoly" and that oil's particular market has required a     informed that about 50 percent of the undiscovered oil in
    different definition of free enterprise than the definition    the United States is located either in Alaska or off of our
    which fits the traditional market model of supply and         shores .4
    demand. We are aware that this particular market system          The  above  is a very general description  of our
    has let to the development of a few multinational             conventional wisdom about oil. The picture is far more
    corporations which act in many ways like nations have acted    complex in detail. We can be sure, however, that oil is a very
    in the past. We are all aware of the energy crisis and our    crucial, very valuable resource and that we all share in its
    dependency upon sources of oil outside our national           future. The future of oil may very well be our own, at least
    boundaries. This dependency has led to a complicated series    in the short run, and that future is tied closely with the oil
    of international events which involve United States foreign   that lies in the outer continental shelf. Because of where it
    policy as it relates to the Middle East and to the conflict    lies and who owns it and how we get it, offshore oil has its
    between Israel and the Arab nations.                          own particular policy constraints.
      We are aware of the necessity of becoming energy self-        Oil has been mined off the shores of the United States for
    sufficient and we know that this means we need new sources    many years. It is not a new phenomenon nor is it without a
    of oil within the boundaries of the United States. A          history of heated political controversy. When World War 11
    conference of Americans for Energy Independence (a group      ended, offshore oil was an important energy source and
    of energy experts, industrialists, citizens, and union leaders)  projected to become even more important. The question of
    estimates that the United States consumed 74.6 quadrillion    who owns this oil was a serious issue. In 1945 President
    BTU's of energy in 1973. Projecting the growth of the         Truman decided that this resource was the property of the
    United State's energy consumption at a conservative 2.3       United States. Many states disagreed and even though the
    percent annually this group estimates a need of over 98       administration stated that the federal government was to be
    quadrillion BTU's by 1985. This is a very conservative figure    the only legitimate leasing agency, some states continued to
    and it represents a shortfall or a deficit of energy of between  lease the rights to this oil themselves. The problem was so
    21 and 33 quadrillion BTU's. This deficit, after all existing    intensely negotiated that it became a major issue in the 1952
    and potential sources are projected (wrongly or rightly),     election, during which Eisenhower promised to stern the
    must be made up by a large new source such as nuclear         power of the Federal bureaucracy at that very point. After
    energy or by imported oil. New statistics assume that oil    the election the Eisenhower administration was successful in
    consumption will increase to 10 to 14 million barrels a day   getting two pieces of legislation which seemed to resolve the
    by 1985. Mr. Frank Zarb, administrator of the Federal         problem. Oil resources within the three-mile coastal limit

                                                                     'The Christian Science Monitor, Friday, June 25, 1976.
                                                                    'David S. Freeman, Energy, the New Era (New York:
                                                                  Vintage Books, 1974).

    72 Coastal Resource Management

    and in some cases (particularly the Gulf Coast) within a     than the pollution of beaches and the destruction of fish and
    three-league limit were the property of the state. Oil       fowl. There are indications that oil spilled in the ocean may
    resources further out on the outer continental shelf were the  become part of the delicate food chain in the ocean with
    property of the Federal Government and the leases to that    extreme deleterious effects. Over 3,000 barrels of oil are
    source were to be made by the Federal Department of          discharged every year into the Gulf of Mexico alone as a
    Interior. Most of the offshore oil was therefore legally    result of offshore operations.'
    retained by the Federal Government. The Department of the
    Interior was not slow to grant leases as they were a welcome                                          Policy Strategies
    source of federal income.
      The method of extracting this oil, as we know, involves in   There are several assumptions which we can extract fromn
    most cases drilling offshore. Recently, drilling has been    the conventional wisdom which relates to offshore oil
    conducted far offshore. The oil is then piped or shipped     policy. These assumptions are public beliefs which have
    ashore for refining and then the refined material is shipped  momentum: (I) The total amount of oil available is limited;
    for final distribution. Offshore oil production grew rapidly    (2) Consumption of oil and our subsequent dependency on it
    and in some states particularly Louisiana, Texas, and        will not decrease over the next 10 years; (3) Unless new
    California, it became an important part of the economic      domestic sources of oil are found, the United States will
    structure. The dangers of offshore oil mining were not       remain dangerously dependent upon foreign sources; (4) it
    widely recognized until the disaster at Santa Barbara in 1969    is particularly dangerous for the United States to be
    when a major oil rig blew and dumped 235,000 gallons of    dependent upon Middle Eastern nations for oil because oil
    crude oil into the ocean and along the beach. Many           can be used as an economic weapon in the conflict between
    organizations, particularly environmental organizations,     Israel and the Arab nations; (5) Offshore oil is perhaps the
    protested the dangers of continued offshore oil drilling and  greatest single potential domestic source of oil.
    President Nixon appointed a special commission to
    investigate the Santa Barbara disaster. The commission                                                Policy Strategy I
    recognized the danger and recommended that the oil
    resource be pumped dry as the only overall solution to the     National emphasis is placed on the conservation of
    problem, and the only solution which would prevent further   nonrenewable resources, particularly oil. A system of
    leakage. On the basis of the commission's recommendation,    priority exploitation is designed which encourages the
    the Department of the Interior allowed unlimited drilling to    exploitation of particular sources over others for a
    continue.'                                                   predetermined length of time. Within this system offshore
      The Santa Barbara disaster focused on the environmental    oil is assigned a low priority.
    dangers of offshore oil mining using existing technology.                                     Primary Policy Controls
    Subsequent research has indicated, though not proven, that     The Department of Interior reduces new offshore oil
    the dangers of offshore oil mining might be more serious    leases for drilling to zero, but continues to encourage

       'David Howard Davis, Energy Politics (New York: St.         'Freeman, Energy, the New Era.
     Martin's Press, 1974).

                                                                                                (~xUil c~orue 4'auge~ent73

    exploration of potential offshore oil fields. This exploration   3.  Because of the cooperative aspect of the primary
    can be encouraged either by: (I) Granting preleases to         policy control there is the possiblity of a mixed future in
    private corporations which require exploration, but which      which the basic policy strategy fails and there is an
    withhold exploitation privileges for a predetermined length    exploitation of all sources.
    of time, or (2) by developing government-sponsored               4.  The U.S. Government involvement with private
    exploration technology which matches or exceeds that of the    industry increases but not from a regulatory position. The
    oil industry.                                                  Federal Government and the private industry jointly
                                          Alternative Futures    develop a natural resource policy.
      1. Offshore oil remains a national reserve which may or
    may not have to be used for fuel depending upon the                                                     Policy Strategy 3
    development of new technologies for energy sources.
      2.  The ecology or the coastal zone is protected from oil      National emphasis is placed upon conservation of
    spills resulting from exploitation.                            nonrenewable  resources, particularly oil. Focus of
      3.  U.S. Government involvement in the regulation of        conservation efforts emphasis is the consumer and/or oil
    private industry (particularly multi-national industry) is    consuming industries. Traditional mercantile market
    increased as the Federal Government becomes involved in    economy of supply and demand is assumed to govern so that
    the management of natural resources.                          as demand is voluntarily decreased there will be more oil for
                                                                  future use. Offshore oil is exploited on the basis of the oil
                                             Policy strategy 2    industry's market strategy and its various negotiations with
                                                                  the United States Department of the Interior, the United
      National emphasis is placed upon conservation of            States Environmental Protection Agency and increasingly,
    nonrenewable natural resources, particularly oil. A system    the independent states which charge a rental fee for pipelines
    of priority exploitation is designed which encourages the    crossing state lands.
    exploitation of particular sources over others. Within the                                       Primary Policy Controls
    system offshore oil is assigned a high priority.                 1.  Federal and state publicity campaigns will focus on
                                     Primary Policy Controls.     the consumer and encourage conservation.
      The Department of the Interior greatly increases the          2.  Various tax breaks and penalties imposed on oil
    number of offshore oil leases being granted. The Congress     consuming industries encourage conservation.
    and the Administration encourage the exploitation of these                                            Alternative Futures
    leases by creating tax benefits for private oil companies        1.  Consumer response to the conservation campaign
    based on the amount of oil extracted from offshore sources.   may be limited. Oil consuming industries respond to
                                           Alternative Futures    proportion to tax benefits provided. Real conservation of oil
       1.  Offshore oil may be depleted faster than other          may be minimal.
    sources of oil leaving other, perhaps more convenient,           2.  Oil industry provided great flexibility to manage
    sources for future use.                                       resource. Activities of EPA  and state governments
      2.  Because offshore oil may be depleted relatively         encourage industry to exploit land sources in preference to
    rapidly the ecological damage to the coastal zone while       offrshore sources except in those areas where offshore oil
    significant, might be lessened.                               production is already well-developed.

    74 Coastal Resource Management

                                            Policy Strategy 4       This may become a major political issue.

       National emphasis is placed upon discovery and Plc esblt
     exploitation of new domestic sources. Discovery and
     exploitation are viewed inseparably. Except for token           "Between the idea and the reality lies the shadow." This
     programs to appease certain groups, conservation of           quote from T.S. Elliot perhaps better than any other
     nonrenewable natural resources (particularly oil) is not      statement defines policy feasibility. The reality of policy is a
     regarded as a real possibility within the current political and  great mix of actions and counter actions. Many of these
     economic structures.                                          actions are known only to the individual actors. Many are
                                      Primary Policy Controls     the product of conflict negotiations between interested
       I1.  Increased federal dollars and technology are injected    parties. Many are accidents and errors, some serendipitous
     into the oil industry to help develop new technology for      and some unhappy. These actions share a shadow zone
     discovery and drilling of oil.                                between design and fact.
       2 .  Environmental standards are relaxed where they          To a great degree the feasibility of any policy strategy
     seriously conflict with the discovery and exploitation of new  depends on the present policy. In the case of offshore oil we
     sources.                                                      find it rather difficult to determine exactly what the present
                                           Alternative Futures    policy actually is. Offshore oil is the last major source of
       1.  Offshore oil discovery and exploitation increase as oil    domestic oil which can be extracted at what is called a
     corporation~s are given maximum flexibility. Market           "moderate cost." We know that President Nixon embraced
     considerations dictate priorities of exploitation.           a general policy of energy independence. He ordered the
       2.  Offshore oil is transferred either into immediate use  Department of the Interior to triple the annual acreage
     or into the reserves of multinational corporations at an      leased on the federally owned outer continental shelf by
     increasing rate as more oil leases are purchased. Offshore oil    1979. In 1974 President Ford ordered an increase by a factor
     leases increasingly become a form of private reserve as the    of 10 by 1975.' The assumption seems to be that we will
     technology of oil exploitation becomes more developed.       exploit our least expensive domestic sources Of oil
       3 .  Negative environmental impact is moderated to some    (particularly the offshore sources) and when these arc
     extent by the need of the oil industry to maintain good      exhausted, we will exploit other more expensive sources
     public relations. This moderation can be measured by the    until we run out of domestic oil. All the while of course, we
     extent of public information and understanding of the    will be exploiting other resources such as coal and
     activities.                                                  developing new energy technologies which will hopefully be
       4.  Multinational character of oil industry poses serious    ready for us when the oil and the other nonrenewable
     questions concerning national sovereignty as more natural    resources are gone. This seems to be the national emphasis
     resources leave the public domain of the nation and are    of our policy for offshore oil. Conservation of domestic
     transferred to the control of extranational organizations.   nonrenewable resources does not seem to be part of this

                                                                    'William R. Ahern, Jr., Oil and the Outer Coastal Shelf
                                                                  (Cambridge, Mass.: Ballinger Publishing Company, 1973).

                                                                                           CoastlalRc,.oiir-e Managemient  75

    policy. The argument that it might be reasonable to conserve
    our resources by using foreign sources is seldom heard. If
    our current policy is based on the uncontrolled exploitation
    of domestic nonrenewable resources then the feasibility of a
    policy strategy which emphasizes conservation of offshore
    oil seems slight.
      The range of potential policy strategies I have outlined is
    defined to some extent by the degree of conservation of
    nonrenewable natural resources, particularly offshore oil,
    involved in the individual policy strategies. Based upon a
    projection of the current apparent policy, it must be
    assumed that the feasibility of these policies is the reverse of
    their listing with Policy Strategy One being the least feasible
    and number Four being the most feasible. But, of course,
    policy feasibility is a "shadow zone."
      In designing the above strategies I have attempted to
    outline one method of thinking about a policy issue in terms
    of some of the decisions which could be made and what
    might happen if those decisions are made. I have based these
    policy strategies and their potential alternative futures on
    the conventional wisdom of what could be considered a
    reasonably well-informed public. There are obvious
    limitations to this methodology. It is general and, some
    might argue, oversimplified. I would be the last to disagree.
    It does, however, indicate some dimensions of a serious
    policy problem and may provide one more way of viewing
    ourselves as we go about making public policy.

    76 Coastal Resource Management

    Coastal Resource Management:
    Panel Discussion

    John Hall. Question to Dr. Collard
    Do we know of any effect of oil spills on the Pleuston out
    there; have we recorded these and quantified any of these
    factors?
    Dr. Collard: The people at the University of California at
    Santa Barbara found no appreciable deleterious effects
    directly attributable to oil, which was kind of strange, not
    *anticipated at least. The major adverse impact of the oil spill
    off Santa Barbara was largely aesthetic and the detergents
    applied and the mechanical means used to clean the beaches
    caused the death of the organisms largely. The same was
    found in the Torric Canyon accident, but to the contrary in
    Massachusetts in the Buzard's Bay oil spill, tremendous
    deleterious and long-lasting effects were found both in the
    plankton and the penthos. As far as adverse effect in the
    open sea, I know of no studies that have ever been
    attempted to show adverse effects of oil. I think the
    bacterial studies now in progress will be the key to that, to
    find out just what place they are occupying in the food
    chain.
    Mike Lopez: Question to Dr. Skelton:
    In your policy alternative #1, you mentioned oil
    In your policy alternative #1, you mentioned oil
    exploitation. Are there any areas in particular for
    exploitation that you had in mind?
    Dr. Skelton: Yes, the question is how much it would cost.
    And we must use the term relative expense. It would cost
    more in the short-term to exploit remaining land resources.
    But this could be done.

      It was earlier mentioned that we hoped this symposium
    would clarify some problems in the policy-making process
    related to Coastal Zone Management. We feel that it has
    done so, primarily by re-emphasizing the need for balanced
    management and careful planning in the Coastal Zones.
    Perhaps the most pronounced demand for such planning
    and management is focused as a result of the conflict
    between human requirements for stability in the coastal
    zones and the natural dynamics of coasts. Beaches move,
    hotels do not (except as a result of hurricanes and other
    forces related to coastal mobility). There are no simple
    management techniques which can resolve this conflict
    which seems to go to the heart of the concept of
    Environmental Management itself. Also of great
    importance is the interrelatedness of so many of the
    problems in the coastal zones. Not only are these problems
    related to each other, they are also often related to values
    which conflict with each other over time. Beaches are
    permanently eroded because they are not replenished as they
    would be naturally, if rivers were not dammed to protect life
    and property.
      These considerations and many others seem to point out
    once again that there are no simple solutions to complex
    environmental problems over time and that the demands for
    careful, well informed and balanced planning and
    management will continue to grow~.

    George W. Allen                                               Filling of Wetlands."
    Corps of Engineers
    CZM Liaison
    Department of the Army                                       ArthurJ. But(
    Atlanta, GA                                                   Department of Environmental
                                                                  Regulations
    Mr. George Allen attended Michigan State University and      Gulf Breeze, Florida
    Cornell University. He was a Federal Aid Coordinator for
    the CGeorgia Game and Fish Department. He was a Chief of    Mr. Butt attended the University of West Florida where he
    the Division of Marine Resources  in the Alabama              received his Bachelor of Science Degree and his Master of
    Department of Conservation. He was a District Biologist in    Science in Biology. He has done extensive work as a research
    the Corp of Engineers in the Mobile District and he is    assistant at The University of West Florida, and was
    currently a division biologist for the South Atlantic Division.    previously employed as a biologist in  orthwest Florida for
    Currently, Mr. Allen is consulting editor with the Journal of    the Board of Trustees of the Internal Improvement Trust
    Environmental Education of the University of Wisconsin in    Fund, State of Florida. He is presently a Field Inspector for
    Madison.                                                     the Department of Environmental Regulations for the State
    Mr. Allen's paper was entitled:                              of Florida.
                                                                  of Florida.
    "The Role of the Army Corp of Engineers in the Coastal    Mr. Butt's paper was entitled:
    Zone."                                                       "Coastal Development Along Estaurine Shorelines."

    Michael C. Applegate                                          Sneed Collard
    Department of Environmental                                   Department of Biology
    Regulations                                                   University of West Florida
    Gulf Breeze, Florida
                                                                   Dr. Collard received his B.A. degree in biology, an M.S. in
     Mr. Applegate attended the University of Alabama,             zoology, and a Ph.D. degree in immuno-parasitology (1968)
     majoring in biology and is a graduate of the University of    from the University of California, Santa Barbara; post
     West Florida with a Bachelor of Science in Marine Sciences.   doctoral studies were undertaken at Harvard University, the
     He was employed with the Trustees of the Internal             Woods Hole Oceanographic Institution, the University of
     Improvement Trust Fund before the 1975 Environmental          Jerusalem, and the Steinitz Marine Laboratory at Eilat,
     Reorganization Act. Then, he was transferred to the office    Israel. At the University of West Florida, Collard
     of enforcement of the northwest district of the Department    specializes in biology of high-seas animals, with emphasis on
     of Environmental Regulation. He is presently enrolled at the  mesopelagic fishes and neuston communities. Collard
     University of West Florida working towards his Masters        currently teaches oceanography, biological oceanography,
     of Science in Biology.                                        evolution, medical parasitology, and graduate seminars in
     Mr. Applegate's paper was entitled:                           evolution and oceanography.
     "The Management of the Coastal Wetlands: Perspective,         Dr. Collard's paper was entitled:
     E-nforcement of State Regulations Governing Dredging and        I le c Surfaace [autna o the It )liter tonlinillnleal Shell ol i1 e

                                                                                          Bi(.1raPhical In/ofrincalion 79

    Eastern Gull' ot' Mexico and its Relationship to Oil       Dr. Ham attended the University oflTexas where he received
    P'roduction.'                                              his Bachelor of Arts degree and Master's of Arts degree in
                                                               Petroleum Engineering. He received his Ph.D. at the
    John G. Cowley                                             University of Tulsa while working full-time for the Bureau
    Florida Shore and Beach                                    of Mines, Department of the Interior, Bartlesville,
    Preservation Associaton, Inc.                              Oklahoma.  In Fall,  1971, he  was  transferred  to
                                                               Headquarters where he was responsible for managing Oil
    Mr. Cowley has been the general manager of the Santa Rosa  and Gas Production for the Bureau of Mines. In January
    Island Authority since 195 1. He has been a resident of    1975 he was transferred to ERDA by the Non-Nuclear
    Pensacola since the early 1920's. His education was in    Energy and Research Act of 1975. He is presently the
    Escamnbia County schools and was supplemented by further    Assistant Director for Oil and Gas for the ERDA.
    studies in accounting and business administration. Mr.     Dr. Ham's paper was entitled:
    Cowley is the President of the Florida Shore and Beach     "ERDA's  Perspective on Outer Continental  Shelf
    Preservation Association; he has been a member since 1959.  Development."
    Mr. Cowley's paper was entitled:
    "Beach Preservation and Restoration."                      Daniel Penton
                                                               Bureau of Coastal Zone Planning
    John Hall                                                  State of Florida
    Area Supervisor
    National Marine Fisheries Service                          Mr. Penton attended Florida State University where he
    Mr. Hall attended the University of Iowa where he received    received his Bachelor of Arts degree and his Master of Arts
    his Bachelor of Arts degree majoring in zoology and        in Anthropology. Mr. Penton has done a great deal of
    freshwater ecology. He furthered his education at the    archeological field work including working at excavations in
    L'Alliance Francaise School in Paris where he received his    such areas as Leon County, Citrus County, Madison
    second degree. He received his Master's  degree at the    County, and Tallahassee. In addition, Mr. Penton has also
    University of South Florida, where his major field was     written and presented several papers on the subject of
    marine biology with emphasis on invertebrae, ecology and   archeology.
    behavior. Mr. Hall has written and co-authored several     Mr. Penton's paper was entitled:
    publications and manuscripts in his field of expertise.    "Coastal Zone Planning."
    Mr. Hall's paper was entitled:
    "An Application of Coastal Resource Management and          Patrick W. Ryan
    Conservation."                                              Louisiana State Planning Office
                                                                Director
    Jerry D. Ham
    Assistant Director, Oil & Gas                               Mr. Ryan attended Louisiana State University where he
    Energy Research and Development Administration              received his Bachelor of Science degree in Zoology and
    Fossil Energy Program                                      subsequently received his Master of Science in Fish and

    80 Biographical Information

    Wildlife Management. Prior to holding his current position     his Doctorate  Degree  in Geology  fro m  Oklahoma
    as Director of the Louisiana State Planning Office, Mr.        University. Dr. Tanner had commercial experience with
    Ryan was in charge of the statewide outdoor recreational       such firms as Carter Oil, Shell Oil, and Exxon, as well as the
    planning for the Louisiana State Parks and Recreation          Oklahoma and Arkansas Geological Surveys. Dr. Tanner
    Commission. Mr. Ryan has also been extremely active in         has more than 200 professional publications and is a
    professional activities and has held positions such as         contributor to various encyclopedias. He has held various
    President of Louisiana Wildlife Biologists Association,        distinguished  positions  such  as National  Program
    President, Southern Council of State Planning Agencies. He     Chairman, Geological Society of America, 1964, Vice-
    is currently President elect of the National Council of State  President National Highway Geology Symposium, 1960.
    Planning Agencies.                                             Dr. Tanner's paper was entitled:
    Mr. Ryan's paper was entitled:                                 "Our Mobile Coast."'
    "Louisiana Coastal Zone Management Program
    Development."~                                                 David R. Worley
                                                                  Technical Services Administration
    Luther W. Skelton                                              Bureau of CZM Planning
    Coordinator, CZM Program                                       State of Florida
    University of West Florida                                     Tallahassee, FL

    Dr. Skelton received his Bachelor of Science degree at the     Mr. Worley is a Planner with the Florida Bureau of Coastal
    U. S. Naval Academy. He received his Masters degree and        Zone Planning Department of Natural Resources. He is
    Doctoral degree in political science from the University of    manager of the Remote Sensing/Cartographic secton. He
    Missouri  in Columbia  with emphasis  in Asian  and            received his B.S. and M.S. in Geography from Florida State
    environmental studies. Prior to joining the faculty of The     University. His interests are in the practical application of'
    University of West Florida, he was Director of Planning for    remote  sensing  techniques  as  related  to  resource
    the Missouri Department of Natural Resources. He is            management problems, in particular as required for coastal
    currently Assistant Professor of Political Science and         zone management application.
    Coordinator of the CZM emphasis in the Masters of Public       Mr. Worley's paper was entitled:
    Administration program at The University of West Florida.      "Remote Sensing Application as Utilized in Florida's CZM
    Dr. Skelton's paper was entitled:                              Program."
    "A Range of Policy Strategies for Offshore Oil."

    William F. Tanner
    Department of Geology
    Florida State University

    Dr. Tanner received his Bachelor of Arts degree at Baylor
    University; his Masters degree at Texas Tech University and

    This public document was promulgated at an annual
    cost of $2,469.00 or $2.469 per copy including prepa-
    ration, printing, and distribution to give details of the
    symposium on coastal zone management sponsored by
    The University of West Florida, August 8-9, 1976.
    UWF 77807.