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

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                                      Biennial Report
                                    to the Congress on
                            Coastal Zone Management

                               Volume I: Executive Summary

                                             September 1992

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             14T              U.S. DEPARTMENT OF COMMERCE
             392
             .U558b      National Oceanic and Atmospheric Administration
                   N-41

             V1                       National Ocean Service
           FY 1990/91
             1992         Office of Ocean and Coastal Resource Management

                                          cck."     UNITED STATES DEPARTMENT OF COMMERCE
                                                    The Under Secretary for
                                                    Oceans and Atmosphere
                                                    Washington, D.C. 20230
                                         Of

              The President
              President of the Senate
              Speaker of the House of Representatives

              Sirs:

              I am pleased to submit the Biennial Report of the Office of Ocean
              and Coastal Resource Management, National Ocean Service, National
              Oceani'c and Atmospheric Administration, pursuant to Section 316
              of the Coastal Zone Management Act of '1972, as amended (16 U.S.C.
              1451 et sect.) for fiscal years 1990 and 1991. The report
              discus's-es the progress made during these years in administering
              the coastal zone management and estuarine research reserve
              programs and the problems encountered.

                                                  Sincerely,

                                                  John A. Knauss

                                                                             A'jV

                                                            THE ADMINISTRATOR

                                                        The National Oceanic and Atmospheric Administration (NOAA) is
                                                required to submit a report to Congress not later than April I on the admin-
               INTRODUCTION                     istration of the Coastal Zone Management Act (CZMA) of the preceding
                                                two fiscal years. Pursuant to Section 316 of the CZMA, as amended, this
                                                report discusses the progress made during Fiscal Years 1990 and 1991 in
                                                administering the National Coastal Zone Management (CZM) and National
                                                Estuarine Research Reserve Programs and the problems encountered.

                                                        The document is comprised of two volumes. Volume I provides a
                                                summary of the CZM and estuarine reserve programs and describes the
                                                accomplishments of state CZM programs in selected national interest areas
                                                   coastal hazards, wetlands protection, coastal water quality, public
                                                access, and waterfront redevelopment. In addition, Volume I describes the
                                                highlights of CZMA administration during the biennium, including imple-
                                                mentation of the Coastal Zone Act Reauthorization Amendments of 1990
                                                (1990 CZMA Amendments), and delineates future directions for these
                                                efforts, including coastal management issues of national importance and
                                                administrative planning.

                                                        Volume 11 highlights NOAA administration of the CZM and
                                                estuarine reserve programs and states' accomplishments during the bien-
                                                nium. Chapter I includes a brief description of the CZM program and
                                                details NOAA's implementation of the key provisions of the 1990 CZNLk
                                                Amendments, including the Coastal Nonpoint Pollution Control Program,
                                                the Coastal Zone Enhancement Grants Program and the new procedures
                                                for evaluating state CZM and estuarine reserve programs. This chapter
                                                also describes NOAA's activities during the biennium regarding Federal
                                                consistency actions.

                                                        In Chapter 2, individual state CZM programs are described, high-
                                                lighting significant accomplishments made during the report period. Each
                                                state listing includes a summary of program accomplishments, significant
                                                program changes and evaluations of the state's performance. Chapter 3
                                                presents a description of the National Estuarine Research Reserve System
                                                (NERRS), including its mission and structure. Program accomplishments
                                                during the biennium are provided in detail, as well as reflections on future
                                                program directions. Chapter 4 describes each estuarine reserve. Informa-
                                                tion is provided on reserve resources and facilities, important improve-
                                                ments during the biennium, education, research and monitoring activities,
                                                and state performance in managing the reserve.

                                                        The status of state CZM programs is provided in Appendix A.
                                                Appendix B itemizes state funding under sections 306, 309 and 315 of the
                                                CZMA during fiscal years 1990 and 1991. Appendix C summarizes
                                                Federal consistency appeals. Guidance regarding processing fees for
                                                Federal consistency appeals is provided in Appendix D. Proposed regula-
                                                tions implementing sections 309 and 312 of the Coastal Zone Act
                                                Reauthorization Amendments of 1990 are printed in Appendix E. Finally,
                                                a list of the estuarine reserves, the reserves' acreage and the year of desig-
                                                nation is provided in Appendix F.

                                                      TABLE OF CONTENTS
                                                         Biennial Report, Volume I

                   Introduction

                   1.     The Value of the Coast and its Resources     ...................................          1

                   H.     Coastal Management Program Overview          ........................     I ..........    2

                   III.   Coastal Management: Contribution to the Nation      .......................               4

                                  Protecting Life and Property from Coastal Storms   ........................       5
                                  Wetlands Protection and Preservation  ..................................          7
                                  Coastal Water Quality  ..............................................             8
                                  Public Access   ....................................................              9
                                  Waterfront Redevelopment    ...........................................           10
                   IV.    National Estuarine Research Reserve System        ................................        11

                   V.     CZMA - The New Agenda           .............................................             14

                                  Coastal Water Quality - Tackling Nonpoint Source Pollution     ..............     15
                                  Focusing on Priority National Issues  ..................................          16
                                  The Future Agenda    ...............................................              17

                                                            The Nation's coasts are among America's most valuable and diverse
                                                                 resources. Extending over 95,000 miles and bordering three oceans
                          The Value of                  and the Great Lakes, this narrow strip of continent, where land meets the sea,
                            the Coast                   is used for diverse, critical and often competing uses. The waters off the coast
                                                        are among the most biologically productive regions in the Nation. Coastal
                              and its                   wetlands and estuaries provide the nutrients, nursing areas and spawning
                           Resources                    grounds for 70 percent of the commercial and recreational fisheries harvest in
                                                        the United States. In addition to providing critical habitat for fish and wild-
                                                        life, coastal wetlands help reduce flood damage and serve as natural filtering
                                                        systems to protect water quality.

                                                                Fish and wildlife are not the sole inhabitants of the coastal zone. Over
                                                        50 percent of the Nation's population already lives along the coasts, which
                                                        comprise only 11 percent of the total land of the United States. Coastal areas
                                                        are the most densely populated in the U.S., supporting more than 750 people
                                                        per square mile. This figure is expected to increase by 15 percent over the
                                                        next 20 years. Most of America's large metropolitan centers, such as San
                                                        Francisco, Seattle, Chicago, New York, Boston, Miami and New Orleans, are
                                                        also located in coastal regions. These centers bring a vast array of industrial
                                                        and service activities to this limited resource area.

                                                                The recreation and tourism industries, which stimulate billions of
                                                        dollars in economic activity, also have a large stake in coastal areas. Along
                                                        some coasts, recreation and tourism are the dominant industries, attracting
                                                        millions of Americans annually to coastal beaches and estuaries for recre-
                                                        ational enjoyment. Several of the Nation's manufacturing facilities are also
                                                        drawn to coastal areas, due to the dependence on access to water transporta-
                                                        tion and port facilities. These leisure and trade industries are vital to the
                                                        Nation's economy and provide jobs for many Americans, but also put addi-
                                                        tional strain on valuable coastal resources.

                                                                Concern for the condition of America's coasts has grown rapidly over
                                                        the years, spurred by accelerating demands for development in coastal areas,
                                                        population increases along the coast, and severe degradation of the environ-
                                                        ment. Burgeoning population creates growing demands for commercial,
                                                        residential, and recreational development, placing tremendous pressure on the
                                                        Nation's coasts and coastal resources. Lives and property are continually
                                                        placed at risk from coastal storms and natural erosion processes. Coastal water
                                                        pollution has increased and the productivity of estuarine ecosystems continues
                                                        to decline. The influence of coastal development is observed in the increase
                                                        of closed shellfish growing waters, which are affected by urban runoff and
                                                        malfunctioning septic systems. A recent National Oceanic and Atmospheric
                                                        Administration (NOAA) study disclosed that 18 of 23 coastal states are
                                              k         experiencing an increase in closed shellfish beds.1 Coastal wetlands loss also

                                                                'The report, entitled "1990 National Shellfish Register of Classified Estuarine Waters," was
                                                        prepared by the Strategic Assessment Branch, Office of Ocean Resources Conservation and Assessment,
                                                        National Ocean Service, NOAA, 6001 Executive Boulevard, Rockville, Maryland 20952.

                continues. The U.S. loses 40,000 acres of coastal emergent wetlands annu-
                ally. The State of Louisiana is experiencing the largest loss, with over 50
                square miles (approximately 32,000 acres) disappearing each year.
                     T    o address these issues, Congress passed the Coastal Zone Manage-
                          ment Act (CZMA) in 1972. The goal of the CZMA is to promote                          Coastal
                orderly development and protect the Nation's coastal resources to provide
                suitable housing for people and areas for recreational enjoyment, opportunities           Management:
                for maritime and commerce, and preserve and protect living resources. With-                   Program
                out rational, balanced management, the economic growth and development of                    Overview
                the coasts could be jeopardized. Since 1974, the Federal government has
                invested over $700 million in the CZMA, which recognizes that all levels of
                government - Federal, state and local - have a common interest in the
                coasts and must share the responsibility for effectively managing coastal areas
                and resolving conflicts between competing uses.

                        The CZMA established a voluntary partnership among these units of
                government, with states and their local partners on the front line. States have
                the lead role in developing coastal zone management (CZM) programs which
                are specifically tailored to meet their individual needs, but also take into
                account the broader national interest in wise management of coastal resources.
                The Federal government provides financial assistance and policy guidance
                and assures that the broader national interest is considered in the framing of
                state and local decisions.

                        Two kinds of Federal incentives are built into the CZMA to foster state
                participation: (1) Federal matching funds, which help states meet the cost of
                implementing and enhancing CZM programs, and (2) Federal consistency
                authority, which requires that Federal actions and federally permitted activi-
                ties be consistent with a state's federally approved CZM program if those
                actions or activities affect natural resources, land uses or water uses in the
                state's coastal zone.

                        At the Federal level, the CZMA is administered by NOAA2, which
                provides financial assistance, policy guidance and technical assistance to
                states in establishing and implementing the CZM programs. Additionally,
                NOAA assures that state programs comply with Federal guidelines and na-
                tional goals by providing continuous oversight of the programs, with in-depth
                formal evaluations of state performance at least every three years. NOAA
                encourages public involvement in this evaluation process.

                        2The National Oceanic and Atmospheric Administration is part of the U.S. Department of
                Commerce. Within NOAA, the CZMA is administered by the National Ocean Service's Office of Ocean
                and Coastal Resource Management.

                                                         2

                                    To date, 29 states and U.S. island territories (hereafter, "state" refers to
                            states, territories and commonwealths) have developed federally approved
                            CZM programs, which balance local, state and national interests. NOAA
                            expects the number of participating states to increase in the near future. Over
                            the past two years, NOAA has assisted the States of Ohio, Minnesota, Georgia
                            and Texas with the development of CZM programs. The State of Indiana and
                            the Republic of Belau (formerly Palau), a trust territory, have also expressed
                            an interest in joining the national program.

                                     STATE COASTAL AMNAGEMENTPROGRAMS

                                    NOT PICrURED                                                KEY

                                     N. Mim 1d.0"                                             APP-A
                                     Gum Pm Rik          0 29 Approved Programs
                                     V.& Id..d.                                               -PM ps-
                                     A@ S@
                                     Pb.                 0 Cover 94% of Nation's Coastlne
                                                            (84,117 miles)

                                    The approved CZM programs encompass 94 percent of the Nation's
                            coastline. These comprehensive, state-operated programs seek a balance
                            between preservation and protection of coastal resources and the development
                            of those resources. The programs cover a wide range of issues, including:

                                    - reducing the risk to life and property from coastal storms and erosion
                                    by directing coastal development away from hazardous areas and
                                    developing evacuation plans and early warning systems,

                                    � protecting dunes, the first line of defense against storms,

                                    � protecting wildlife and fisheries habitats,

                                    � regulating land use impacts on water quality,

                                    � increasing public access to our Nation's coastal resources for recre-
                                    ational enjoyment,

                                     assisting cities in revitalizing urban waterfronts,

                                                                   3

                              assuring that industries dependent on coastal locations, such as ports,
                             marinas, commercial fish landings and boat repair yards, are not pre-
                             empted by land uses that do not require a waterfront location, and

                              resolving complex interagency conflicts that can arise in land use
                             decisionmaking.
                          A
                                Imost two decades have passed since the establishment of the
                              . coastal zone management program. The experiences of the last 19               Coastal
                     years demonstrate that this Federal-state partnership is working well and is       Management:
                     producing measurable, beneficial changes in the management of coastal
                     resources. Despite the continuing challenges, the 29 states with approved          Contribution to
                     CZM programs have made substantial progress in responding to threats to               the Nation
                     coastal resources, including the loss of marine resources and wildlife habitat,
                     and decreased public open space. State CZM programs have also made sig-
                     nificant strides in addressing shoreline erosion problems, including planning
                     for the effects of future sea and Great Lakes level rise.

                             The state programs also promoted water dependent uses of the coast,
                     such as ports and marinas, commercial fisheries and recreation. Examples of
                     this progress over the last two years are documented below. States have made
                     improvements in ocean resource planning, special area management planning
                     and improved government operations. Volume 11 of the Biennial Report on
                     the CZMA for FY 1990-91 provides detailed information on these and other
                     state accomplishments.

                                                                 r It
                                         el" @,Rjtw=4'   @ "@'a

                                                          oastal states play a positive role in reducing the risk to life and
                   Protecting Life                   C property from coastal storms by detering development in highly
                                                 vulnerable areas of the shoreline. States adopted setback regulations (cur-
                     and Property                rently, 13 states have setback requirements for coastal development), laws to
                           from                  protect dunes, construction standards, evacuation plans, and early warning
                   Coastal Storms                systems in an effort to protect coastal development from natural Ihazards.
                                                        Perhaps the most notable progress over the last two years was in
                                                 response to a series of major storms along the east coast and in the Caribbean.
                                                 For example, throughout 1990 and 199 1, CZM program offices in the Virgin
                                                 Islands, Puerto Rico, and South Carolina responded to the disastrous effects of
                                                 Hurricane Hugo, which struck in September 1989. CZM efforts included
                                                 streamlining the permit process for reconstruction, providing technical assis-
                                                 tance through workshops, evaluating evacuation techniques based on storm
                                                 surge models, and modifying and implementing a South Carolina law enacted
                                                 to prevent reconstruction in high hazard areas. In response to Hurricane Bob
                                                 (summer of 199 1) and a severe northeaster (fall of 199 1), mid-Atlantic and
                                                 North Atlantic state CZM programs assisted with coastal cleanups, damage
                                                 assessments, and the revision and implementation of shoreline protection and
                                                 mitigation measures.

                                                                                                               .77'

                                                        One highly successful effort that developed into a new initiative for
                                                 the national program was the volunteer technical assistance provided to the
                                                 Virgin Islands in February 1990, in response to the crisis created by Hurricane
                                                 Hugo. The storm ravaged homes, businesses and infrastructure in the terri-
                                                 tory. NOAA, in cooperation with the Coastal States Organization, dispatched
                                                 a team of state coastal permit experts to the Virgin Islands to assist in recovery
                                                 efforts. John Meyer from Florida, Michael Slattery from Maryland, and

                                                                                         5

                Charles Jones from North Carolina, spent three weeks in the Virgin Islands
                working with Virgin Islands' staff. The team conducted field inspections,
                evaluated environmental assessment reports, and processed major and minor
                coastal permit applications. Tlese collective efforts helped reduce the over-
                whelming workload that resulted from the widespread damage, thereby speed-
                ing recovery efforts.

                       A legislative outcome of this well-executed response to the Virgin
                Islands crisis was the inclusion of a provision in the 1990 Amendments to the
                CZMA which authorized NOAA to provide emergency assistance to states in
                the aftermath of disasters. This provision has proven extremely useful. One
                year after the amendment passed, NOAA assisted American Samoa in the
                aftermath of Hurricane Val, which struck the territory in December 199 1.
                NOAA provided travel funds for emergency personnel from the Hawaii and
                California CZM programs to assist in the territory's rehabilitation efforts, and
                sent a scientific assessment team to the territory to evaluate impacts of the
                storm on the Fagatele Bay reef system.

                       Over the past two years, state CZM programs have also addressed
                coastal natural hazards through the following mechanisms:

                       - The American Samoa CZM program worked with the U.S. Soil
                       Conservation Service to develop a strategy for mitigating the effects of
                       potential landslides. In addition, American Samoa trained other territo-
                       rial agencies on methods for reducing risks from landslides.

                       - Florida conducted research projects to implement post-disaster
                       redevelopment planning along its beaches. Information generated from
                       this research will be used to develop a statewide policy for redevelop-
                       ment after disasters.

                         The Hawaii CZM program completed a shoreline management plan
                       for Oahu, which lays the foundation for preserving the Island's natural
                                                                                                             STAY Wcf
                       resources and certain beaches threatened by erosion. This activity is                  DUNE$,. N1 @1;
                       part of a multi-year statewide beach management program aimed at
                                                                                                                        .0N
                       identifying coastal erosion trends and developing plans to preserve
                       Oahu's 66 miles of sandy shoreline.

                         The Puerto Rico CZM Program assisted in the development of hurri-
                       cane evacuation plans for the San Juan metropolitan area. Areas of the
                       territory that followed the draft plan suffered no deaths during Hurri-
                       cane Hugo in 1989.

                         The Rhode Island Coastal Resources Management Council adopted
                       regulations which established post hurricane and storm permit proce-

                                                        6

                                                     dures. A 30-day moratorium is now imposed to provide time to assess
                                                     damages, determine changes in natural features, and identify mitiga-
                                                     tion opportunities, including purchase. These emergency procedures
                                                     were effectively implemented during the two major storms that struck
                                                     the Rhode Island coast in late 1991.

                                                     - The Virginia CZM program developed regulations for barrier islands
                                                     that address cumulative and secondary impacts of development. The
                                                     state will submit the policy to NOAA for incorporation into the Vir-
                                                     ginia CZM program.

                                                      The Washington CZM program developed a sea level rise response
                                                     program, which forms the nucleus of the global warming component
                                                     in the state's Environment 2010 project. Program activities included
                                                     conferences, workshops, technical and policy studies and public
                                                     information efforts.

                                                      n recent years, state CZM programs have placed a renewed emphasis
                    Wetlands                          on wetlands protection. In the late 1960s and early 1970s, the states
                                             focused on establishing basic wetlands protection programs. However, the
                                             basic programs, even if implemented well, were not enough to totally protect
                                             valuable wetland resources. In many states, vast acreages of the most critical
                                             wetlands were destroyed long before regulatory programs were put into place.

                                                     During the last two years, many new statutes, regulations and initia-
                                             tives for wetlands protection and restoration have been developed and passed
                                             by the states, signalling a growing level of state interest. American Samoa
                                             and the Commonwealth of the Northern Mariana Islands, for example, devel-
                                             oped comprehensive management plans for wetlands. These plans identified
                                             and classified wetlands, defined authorities and established strategies to
                                             enhance the protection and management of these important ecosystems. In
                                             addition, Maryland and South Carolina established new programs to address
                                             non-tidal wetlands.

                                                     The focus in many states shifted to restoring lost wetlands and enhanc-
                                             ing those that have been damaged. Connecticut and Delaware are both imple-
                                             menting multi-year wetlands restoration projects. To date, thousands of
                                             wetlands acres have been restored by these states; much larger areas are
                                             scheduled for restoration.. In the Great Lakes, Michigan adopted a new wet-
                                             lands policy with a goal of creating 150,000 new acres of coastal wetlands by
                                             the year 2000.

                                                     States also developed plans and guidelines for mitigating wetlands
                                             damage. These guidelines have proven useful to the development community
                                             by explaining what is allowable and how developers can become active

                                                                                     7

                  participants in wetlands protection programs. Wetlands management and
                  mitigation plans similarly assist the states in laying out priorities for preserva-
                  tion and restoration. In the past two years, Alabama, Delaware and Missis-
                  sippi created new wetlands mitigation manuals. State CZM programs
                  launched education and technical assistance programs to increase public and
                  local government awareness of the value of wetlands protection. Washington
                  State, for example, focused on providing improved technical assistance, public
                  infort-nation workshops and educational materials to local governments.

                         States deemed some wetland areas so valuable that the CZM programs
                  established wetlands preserves and created special area management plans.
                  Since 1990, New York designated preserves on Long Island, along the Hudson
                  River and adjacent to the Great Lakes. Wisconsin conducted a special wet-
                  lands inventory of lower Green Bay and plans to prepare a special area
                  management plan for the area.
                     A.    Ithough coastal pollution was not a major focus of concern in the
                           early stages of CZM program implementation, some states made                          Coastal
                  significant contributions to water quality improvements through their CZM                        Water
                  programs. Existing water quality programs focused on point sources, yet in
                  many instances, the sources of pollution are not as easily identified. Since                    Quality
                  state CZM programs have been directly involved in managing land use and
                  development activity since program inception, they provide a unique ability to
                  address the more diffuse
                  nonpoint pollution, which
                  accounts for half of the
                  pollution in coastal and
                  estuanne waters.

                         Congress recog-
                  nized this strength by'
                  creating the Coastal                                         3@7_
                  Nonpoint Pollution Con-
                  trol Program, a joint
                  NOAA and Environmental
                  Protection Agency initiative, as part of the 1990 Amendments to the CZMA.
                  States will develop these programs through 1994 (see the following section,
                  "The New Agenda," and Volume II of the CZMA Biennial Report, for more
                  information on the coastal nonpoint progam).

                         Many coastal states have already begun to address issues related to
                  water quality. Methods used by the states range from developing stronger
                  linkages between CZM and water quality agencies to creating extensive citizen
                  water quality monitoring programs; for example, in the past two years, several
                  states, including New York, Rhode Island and South Carolina, made
                  stormwater runoff an integral part of the state development review processes.

                                                           8

                                                     Recognizing the widespread nature of the water quality problem and
                                             the lack of state capabilities to deal with all facets of the problem, some states
                                             developed programs to involve citizens and local government in the CZM
                                             programs. Alabama and Virginia initiated citizens' water quality management
                                             programs for Perdido Bay and Chesapeake Bay, respectively.

                                                     Coastal nonpoint source pollution is not easily controlled using exist-
                                             ing jurisdictional boundaries, whether state or local government. To address
                                             this problem, state CZM programs engaged in the following activities:

                                                     - Maine developed an estuary-wide water quality education and man-
                                                     agement program that involves several local governments.

                                                      Wisconsin and Washington developed management programs based
                                                     on watershed boundaries, rather than local government boundaries.
                                                     Wisconsin identified priority watersheds to focus attention on realistic
                                                     projects. The State of Washington directed new attention at sharing
                                                     watershed management information with local governments.

                                                     - Delaware developed an Inland Bays Recovery Initiative focused on
                                                     controlling nonpoint source pollution.

                                                     Coastal states also targeted problems created by specific land uses; for
                                             example, Michigan and South Carolina adopted siting criteria and operational
                                             requirements for marinas, and New Jersey mapped critical water quality areas
                                             that might be affected by marina development.

                                                       s the demand for public access to the Nation's shoreline increases, so
                Public Access                    A. do the pressures for development on the coast, leaving fewer public
                                             access opportunities. State CZM programs, while lacking !he financial re-
                                             sources to acquire large tracts of land, nevertheless have improved both the
                                             quality and quantity of public access. Under the CZMA, states acquired
                                             parcels of land for access and funded low-cost construction projects, such as
                                             boardwalks, piers, bike paths, and dune walkovers. Federal CZMA funds
                                             have often been used to develop public access plans and guidebooks. During
                                             the past two years, several activities have been undertaken, including:

                                                     - The Maryland CZM program developed a comprehensive plan for
                                                     establishing a Greenway network for the Patapsco River watershed.
                                                     The goal.was to improve water quality, expand and enhance wildlife
                                                     habitat, and develop and improve non-impact recreation areas.

                                                      The New York CZM program is currently working with nine re-
                                                     gional advisory committees to develop a draft plan for conserving
                                                     critical open space. Special priority is being given to conserving open
                                                     space in coastal areas.

                                                                                      9

                          The New Jersey CZM program completed a manual on Waterfront
                        Public Access: Design Guidelines. The publication details planning
                        and design considerations for public access. The state also published a
                        beach access booklet, a marina siting and design handbook, and a
                        survey of beaches accessible to the disabled, all of which are publica-
                        tions designed to increase accessibility to the waterfront.

                           Through the acquisition of properties and several small-scale public
                        access projects, the Oregon CZM program maintained a strong com-
                        mitment to increase public access. The state produced a field guide,
                        which presented a photograph, map, and description for each public
                        access project. In a cooperative effort with the Parks and Recreation
                        Department, the Oregon CZM program also developed a detailed
                        inventory of over 1,000 public access sites along Oregon's coast.

                        - The Rhode Island CZM program supported development of a state-
                        wide Coastal Access Guide, which not only identified all access points
                        to the shore, but also detailed the condition of each site and the associ-
                        ated facilities, such as parking and sanitary facilities.

                        - The Washington CZM program contributed to public access, public
                        education, and shoreland acquisition by funding projects for floats,
                        docks, boat ramps, footbridges, boardwalk, stairways to beaches,
                        waterfront pathways, and shoreline acquisitions.

                          n the mid-20th century, many urban waterfronts became deteriorated
                          and abandoned due to polluted water and changing port and cargo                     Waterfront
                needs. CZM grants assist local governments in preparing waterfront land use                Redevelopment
                plans that serve as catalysts for revitalizing waterfronts throughout the country.
                These plans have led to billions of private investment dollars for urban water-
                fronts in cities as Philadelphia, Jersey City, Norwalk CT, Biloxi MS,
                Wilmington NC, and New York.

                        State CZM programs focus on directing and managing growth and
                development in areas where unwise development would have negative envi-
                ronmental consequences. As the various state programs evolved, new methods
                of encouraging redevelopment of waterfront areas have been implemented.

                        - In Connecticut, the concept of harbor management planning is a
                        valuable tool. The Connecticut CZM program adopted the Harbor
                        Management Act as a part of its approved program. Several communi-
                        ties are involved in preparing plans each year. The Rhode Island CZM
                        program also initiated a harbor management planning program.

                         In 1990, Massachusetts adopted final regulations to implement the
                        Public Waterfront Act. These regulations address public access,
                        priority for water dependent uses and setbacks.

                                                         10

                                                                              Oregon developed a waterfront development guidebook to assist
                                                                            small cities and towns with redevelopment and revitalization of their
                                                                            waterfront areas.

                                                                            * South Carolina launched a multi-year special area management
                                                                            planning process for Charleston Harbor.

                                                                              he need to preserve estuarine areas from pollution and the pressures
                                National                               T of development and to study natural and human processes within
                               Estuarine                         these coastal ecosystems was recognized by Congress in the passage of the
                                                                 CZMA. The National Estuarine Research Reserve System (System) is a
                               Research                          Federal-state partnership, administered by NOAA. The System protects
                        Reserve SysteM                           representative areas of the estuarine environment for long-term monitoring
                                                                 and research and provides opportunities to enhance public awareness through
                                                                 education and interpretation of the values of these resources. Known as
                                                                 National Estuarine Research Reserves (NERRs), these field laboratories
                                                                 provide opportunities to study the natural and human processes that affect
                                                                 estuaries so that stresses on these highly productive areas can be minimized.

                                                       Padlla Bay. WA                                                                                   St. Lawrence
                                                                                                                                                        Rive Basin, NY
                                                                                                                                         Old Woman
                                                                                                                                         Creek, OH              Wells. ME
                                             South Slough, OR
                                                                                                                                                                feat     NH
                                                                                                                                                              Waquoit        MA
                                                                                                                                                              a      ansett  y, Rl
                                                                                                                                                          H   son Ner, NY
                                                 San Fran '11140                                                                                          M   lica 'ver, NJ
                                                 Bay, CA        I                                                                                       Chesapeake Bay. MD
                                           Elkhorn Slough, CA                                                                                           Chesapeake Bay, VA
                                                                I                                                                                       North Carolina
                                                     Tijuana River. CA                                                                               North Inlet. SO
                                                                                                                                                  ACE Basin, SO
                                                                                                                                                 Sapelo Island, GA

                                                                0 Designated Sites                                                                  East Coast. FL
                                                                0 Developing                                         Weeks Bay, AL                 0
                                                 Waimanu Va     f,ley, HI                                               Apalachicola a     FL       Rookery Bay, FL
                                                                                                                                                                qJobos Bay. PR

                                                                            Since 1974, the national System has grown from one 4,400 acre site in
                                                                 Oregon, an arm of the Coos Bay estuary called South Slough, to a 19-site
                                                                 System managing almost 300,000 acres of estuarine lands and water in 17
                                                                 states. The newest reserve is the Chesapeake Bay NERR in Virginia which
                                                                 comprises four sites along the York River tributary of the bay. This reserve,
                                                                 which encompasses nearly 3,000 acres of wetland and upland habitat includ-
                                                                 ing the Goodwin Islands, Catlett Islands, Taskinas Creek and Sweethall
                                                                 Marsh, was established through the use of land acquisition, use of existing

                  park resources and management agreements with private landowners. NOAA
                  expects to double the acreage in the System by 1995, with two new reserves in
                  the State of South Carolina and new reserves in the States of New York,
                  Delaware, California and Florida.

                          A reserve site must be nominated by the Governor of a state. To be
                  designated as a national reserve, the proposed site must meet criteria estab-
                  lished by OCRM. The reserves are owned and managed by the individual
                  states with OCRM providing guidelines, financial assistance, technical assis-
                  tance and national program definition and support for research, monitoring

                  and education activities. States receive Federal financial assistance on a 50-50
                  (Federal-state) matching basis for acquiring reserve lands, and a 70-30
                  (Federal-state) matching basis for managing a reserve and constructing facili-
                  ties, conducting educational or interpretive activities and research, and
                  monitoring. Private researchers are frequently used to conduct research and
                  monitoring at reserve sites.

                          Reserve areas are chosen to reflect regional differences and a variety of
                  ecosystem types. They are primarily used for long-term scientific and educa-
                  tional programs that provide information essential to coastal management
                  decisionmakers. Each site offers opportunities for monitoring changes within
                  the estuarine system and the effects of human activity on these resources,
                  while protecting the integrity of the site for long-term research projects. The
                  reserves also provide opportunities for the general public to learn about coastal
                  and estuarine ecology in an outdoor setting.

                          When complete, the System will represent all 13 of the Nation's bio-
                  geographical coastal regions. A biogeographical classification scheme ensures
                  that the System includes at least one site from each region. There are 29
                  subregions, 11 of which are not yet represented in the System. NOAA intends
                  to complete the major biogeographic components of the national Syste     m by
                  the year 2000.

                          Since inception, the program has emphasized research and education
                  projects in order to produce information that is useful for coastal resource
                  management decisionmaking. To meet this goal, NOAA established national
                  guidelines in 1989 and provided funding for baseline characterizations and
                  long-term monitoring programs at reserves. The research program supports
                  about $600,000 for competitive grants annually, and an additional $380,000
                  for baseline characterization and monitoring. Among the priorities for re-
                  search are sediment management, water management, chemical and other
                  inputs, coupling of primary and secondary productivity, and fisheries habitat
                  requirements.

                                                          12

                                      NOAA also instituted an education grants program for the reserves.
                              NOAA's guidelines set uniform standards of excellence and establish system
                              identity. The reserve sites are developing education materials and programs to
                              promote an awareness of estuarine resources and to provide opportunities for
                              public understanding of the need to preserve, protect and utilize these signifi-
                              cant natural resources.

                                      For the first time, education grants funded completely by NOAA were
                              awarded in 1991 to projects and
                              programs that benefit the entire
                              NERRS. A national education
                              grant was awarded to allow 40
                              elementary schools from around
                              the country to participate in the
                              National Geographic Society
                              (NGS) Kids Network. The schools
                              test local water supplies and share
                              the findings via telecommunica-
                              tions with over 250 schools from around the world. Each class

                              tests tap water for nitrate levels and shares the results with "research team-
                              mates" around the world. A unit scientist collates data from all the teams and
                              transmits a summary of the results to all participants. Throughout the unit,
                              students are encouraged to think about solutions to pollution problems.

                                      "What's in our Water?" is one of the several units of study on the NGS
                              Kids Network - an international telecommunications-based science and
                              geography curriculum for fourth to sixth graders. This innovative use of
                              technology allows students to experience firsthand the scientific process while
                              they broaden their knowledge of the world beyond the classroom. The re-
                              serves participating in this project are the Apalachicola NERR in Florida,
                              Chesapeake Bay NERRs in Maryland and Virginia, Great Bay NERR in New
                              Hampshire, Hudson River NERR in New York, Padilla Bay NERR in Wash-
                              ington State, South Slough NERR in Oregon, Wells NERR in Maine and
                              Elkhorn Slough NERR and Tijuana River NERR in California. NOAA hopes
                              to continue and expand the program this year to include more sites in the
                              NERR System and to incorporate water testing at the estuarine reserves.

                                      The 1990 Amendments to the CZMA made minor modifications to the
                              NERRS. Among other things, the Amendments changed the name of the
                              program from the National Estuarine Reserve Research System to the Na-
                              tional Estuarine Research Reserve System. In addition, the Amendments
                              revised procedures for selecting, designating and operating estuarine reserves:

                                       reduced match requirements from 50 percent to 30 percent for the
                                      following types of financial assistance awards: operations, research,
                                      monitoring, facility construction and education/interpretation;

                                                                      13

                       - increased the maximum amount of Federal financial assistance that
                       can be awarded for the acquisition of land and waters for any one
                       reserve from $4 million to $5 million;

                       - eliminated the ceiling of $1.5 million per site for development associ-
                       ated with facility construction; and

                         established the authority and process for instituting sanctions includ-
                       ing partial or full withdrawal of financial assistance if a reserve's
                       performance is inadequate.

                       NOAA is currently drafting regulations to implement the 1990 Amend-
               ments to the NERRS program.
                    F
                         or 19 years, the CZMA has given NOAA an opportunity to partici-
                         pate in a valuable management program - the only national program            CZMA             The
               charged with comprehensively addressing all coastal issues. In this decade of           New Agenda
               international environmental awareness and cooperation, the United States is
               seen as a leader in the management of coastal resources. As a Nation, the
               United States can be proud of its recent achievements. In many countries and
               in America's past, vast coastal marshes and swamps were seen as wastelands.
               However, the United States is moving toward a deeper understanding of the
               value of these wetlands and other coastal resources.

                       Nevertheless, the Nation cannot rest on its achievements. Despite the
               accomplishments made by states to address the ties between the life within the
               sea, the lives of the people who wish to live near the sea and those who make
               their living from the sea, the Nation must preserve and enhance the coastal
               environment to assure that these resources are here and in good condition for
               future generations. The United States must learn more about managing human
               use of the coastal environment. As coastal populations increase, the demand
               for intensive development of the coastal zone will increase, creating conflict-
               ing and competing demands for housing, harbors and recreational facilities on
                                                                these finite resources.

                                                                      The states continue to
                                                                develop and implement CZM
                                                                programs that fit the individual
                                                                needs of the states. Some
                                                                programs move to strengthen
                                                                regulatory powers; other states
                                                                move to educate their young
                                                                and old in the value of their
                                                                coastal environment. Some
                                                                states do both. Furthermore,
                                                                NOAA continues to assure that
                                          W.                    these programs meet national
                                                                objectives.

                                                  When the Coastal Zone Management Act (CZMA) was enacted in
                                           1972, it was seen as a model that would test the abilities of Federal, state and
                                           local governments to work together. Now, much of this "radical" cooperation
                                           is seen as commonplace. Local governments, reacting to demands from their
                                           citizens, can look to state programs for guidance and can rely on Federal
                                           agencies to be consistent with local plans. The partnership doesn't always
                                           work perfectly, but it has resulted in positive returns for the Nation's coastal
                                           resources and continues to expand.

                                                  In 1991, Congress ambitiously renewed the CZMA for another five
                                           years to propel the Federal government and the states along new paths of
                                           coastal management. The tasks ahead are very ambitious.

                                              r-"-. he 1990 Amendments to the CZMA place the problems of coastal
                     Coastal                   1'. water quality directly into the states' path, recognizing that much of
                      Water                the problem does not come directly from a pipe and cannot be dealt with by
                                           edicts from Washington, D.C. The new Coastal Nonpoint Pollution Control
                   Quality                 Program is unique in a number of ways. For the first time, coastal states must
                    Tackling               specifically address land uses generally known to cause or contribute to
                                           coastal nonpoint pollution by prescribing management measures that are both
                   Nonpoint                remedial and preventative. In addition, these management measures will be
                     Source                made mandatory through enforceable policies and mechanisms. While afford-
                                           ing flexibility to deal with regional differences, each state coastal nonpoint
                    Pollution              program must, at a minimum, provide for the implementation of management
                                           measures in conformity with national guidance provided by EPA. Examples
                                           of management measures include buffer zones along streams and coastal
                                           waters, density limits which can be applied to adjacent land development,
                                           improved construction practices, erosion and sedimentation controls, and
                                           farming and pesticide management practices to reduce polluted runoff.

                                                  In addition, the coastal nonpoint program combines the strengths of
                                           several programs at both the state and Federal levels. At the state level, the
                                           program will be crafted jointly by the CZM and nonpoint source agencies.
                                           This joint effort will bring together the water quality expertise of the nonpoint
                                           agency and the land use expertise of the CZM agency. The result will be to
                                           build on existing programs and capabilities, to avoid duplication of effort, and
                                           to more effectively address the problem of runoff affecting coastal waters. At
                                           the Federal level, the program is administered jointly by NOAA and the
                                           Environmental Protection Agency (EPA), thus coordinating the programs and
                                           requirements of the CZMA and the Clean Water Act.

                                                  Since November 1990, NOAA and EPA worked closely to draft
                                           guidance for states in developing the coastal nonpoint programs. Draft Man-
                                           agement Measures Guidance, prepared by EPA in consultation with NOAA,

                                                                                15

                  specifies economically achievable measures that are the best available prac-
                  tices, technologies, processes, siting criteria, operating methods, or other
                  alternatives for the control of nonpoint sources of pollution from existing and
                  new categories of nonpoint sources. In addition, NOAA, with EPA's assis-
                  tance, prepared proposed Program Development and Approval Guidance,
                  which describe how states should develop the coastal nonpoint programs and
                  the criteria NOAA and EPA would use for approving the programs. NOAA is
                  also reviewing the landward boundaries of each state CZM program in order to
                  recommend changes to enable states to more effectively manage land and
                  water uses to protect coastal waters.

                       T
                            he 1990 Amendments also encouraged states to assess their pro-
                            grams and uncover their priority needs, as well as their achieve-         Focustn-g@'on
                  ments. A new Coastal Zone Enhancement Grants Program provides states                    Pliority
                  with additional incentives to address important national coastal issues. This
                  effort promises to shape the future of states' coastal management efforts.        National Issues

                         The new, voluntary program encourages each state with a federally
                  approved CZM program to improve its program by addressing one or more of
                  eight national interest enhancement objectives:

                         (1) coastal wetlands management and protection;
                         (2) natural hazards management;
                         (3) public access improvements;
                         (4) reduction in marine debris;
                         (5) management of cumulative and secondary impacts of coastal
                             growth;
                         (6) special area management  planning;
                         (7) ocean resource planning; and
                         (8) facilitation of coastal energy and government facility siting.

                         This new program encourages states to achieve these objectives by
                  changing their CZM programs to increase protection for coastal resources.

                         Since the new program took effect immediately, first-year grants were
                  issued to the states to assist in identifying their priority needs for improvement.
                  In 1991, states put tremendous effort into identifying their priority needs.
                  They solicited the views of the public as to the most pressing coastal issues in
                  their state and the best ways to tackle the issues. Many states moved aggres-
                  sively to seek public input in this process. The Massachusetts CZM program,
                  for example, circulated a comprehensive survey to Massachusetts citizens on a
                  wide variety of issues, ranging from public lateral rights of access along the
                  shoreline to the adequacy of existing laws and enforcement for protecting
                  coastal resources. Other methods employed by the states to involve the public
                  included public notices, coastal commission or citizen advisory group meet-
                  ings open to the public, brochures, TV interviews and information packets.

                                                        16

                                                         The information collected by the states laid the foundation for the
                                                 development of state Assessments, which examine how states are addresing
                                                 each of the enhancement objectives, how significant issues are in the states,
                                                 and what possibilities exist for improvement. The Assessments provide the

                                                 factual basis for NOAA, in consultation with the states, to determine the
                                                 priority needs for improving state CZM programs. Once this process is com-
                                                 plete, and NOAA approves a state's assessment, the state will develop a multi-
                                                 year Strategy, which describes how the state will deal with its priority issues.

                                                         NOAA is now ready for full implementation of the program in FY
                                                 1992. States will submit grant applications for activities related to these
                                                 national priority areas. NOAA expects to have final regulations on the en-
                                                 hancements program in 1992. The final regulations will establish guidelines
                                                 for the implementation of the new program.

                                                     N      OAA has the opportunity to use the agency's vast resource informa-
                      The Future                            tion and management network to move all levels of government
                        Agenda                   along the path of better coastal management. The various offices of NOAA
                                                 can join together to focus on management issues that are crucial to the success
                                                 of the Nation's efforts. NOAA has several opportunities, including:

                                                          Taking the lead in managing the sources of nonpoint pollution
                                                         through the implementation of the new Coastal Nonpoint Pollution
                                                         Program - With NOAA's vast information base, geographic areas
                                                         will be better defined to enable coastal states to effectively address the
                                                         issue. Work already has begun in NOAA on this combined office
                                                         approach to problem solving and implementation. NOAA will use the
                                                         knowledge of the various state CZM programs to assist states in the
                                                         establishment of management programs that will produce results and
                                                         yet be achievable by state and local governments that are routinely
                                                         short of funds.

                                                         - Forging new and innovative approaches to dealing with national
                                                         priority issues -Through the new Coastal Zone Enhancements Pro-
                                                         gram, NOAA will assist states in focusing on critical national issues,
                                                         such as coastal wetlands management and protection, management of
                                                         cumulative and secondary impacts of growth, natural hazards manage-
                                                         ment and public access improvements.

                                                          Encouraging research directly related to coastal management issues
                                                            Through the National Estuarine Research Reserves, NOAA can
                                N  4.                    focus research on problems occurring in similar coastal areas. Specifi-
                                                         cally, research conducted at National Estuarine Research Reserves can
                                                         focus on nonpoint pollution to assist state CZM managers in address-
                                                         ing this growing problem.

                                                                                          17

                         Encouraging new methods of integrated planning - Through the
                        development of special area management plans, NOAA can focus on
                        small, significant areas and all aspects of the problems affecting the
                        quality of these coastal areas.

                        - Providing technical assistance to state and local government as they
                        attempt to grapple with their coastal management problems - By
                        using technical and management experts, NOAA can provide a vast
                        breadth of knowledge that is unavailable on a state or local level.
                                                                                                             JAMB
                        To assu re that these actions are taken in a thoughtful, integrated man-
                ner, NOAA's Office of Ocean and Coastal Resource Management (OCRM) is
                developing a long-range plan for the office and its programs. The plan is
                scheduled to be complete in Spring 1992, and stands as the first such planning
                effort undertaken by the office since its creation in the 1980s. The ongoing
                effort includes participation by state CZM managers, state NERR managers,
                and National Marine Sanctuary managers. The purpose of the long-range
                planning effort is to:

                        � develop a mission statement for OCRM,
                        � develop a common set of goals for OCRM staff and mana      Igers,
                        � define issues and priorities on which OCRM will focus it resources,
                        � improve the ability of OCRM's programs to work cooperatively and
                        more effectively with each other on common issues,
                         integrate OCRM's programs into NOAA-wide planning efforts such
                        as the NOAA Strategic Plan,
                        � improve cooperation with other NOAA programs,
                        � improve the ability of OCRM's programs to work with the programs
                        of other local, state and Federal agencies and private groups on
                        common issues, and
                         provide a framework for action.

                        The need for comprehensive coastal management is more urgent than
                ever. Over the past 19 years, the Nation has realized a great return on the
                national investment in state CZM programs. The next decade presents a score
                of new opportunities to improve the quality of life in the coastal zone, despite
                the greatest population increase in U.S. history. The Federal-state partnership
                must stand ready to meet these challenges and ensure that the Nation's coast-
                lines are healthier than ever.

                                                             7

                                                        18       *U.S. G.P.O.:1992-313-153:60352

                                   US Department of Commerce
                                   NOAA Coastal Services Center Library
                                   2234 South Hobson Avenue
                                   Charleston, SC 29405-2413

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