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













                p3%A0,-^,
                                  Biennial Report
                                to the Congress on
                        Coastal Zone Management

                           Volume I: Executive Summary

                                         September 1992


                                                                       t -1








                                                             L'-0




                                                       AL=d
                       MEM    MW Gw0A3Nwr_r




                               ar





                                                tl


                                                        %
                                                    % it
                                                     W-5









                                                        -k;-





         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,

                                ï¿½ protecting dunes, the first line of defense against storms,

                                ï¿½ protecting wildlife and fisheries habitats,

                                ï¿½ regulating land use impacts on water quality,

                                ï¿½ 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:

                    ï¿½ develop a mission statement for OCRM,
                    ï¿½ develop a common set of goals for OCRM staff and mana      Igers,
                    ï¿½ define issues and priorities on which OCRM will focus it resources,
                    ï¿½ 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,
                    ï¿½ improve cooperation with other NOAA programs,
                    ï¿½ 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




























                                                                       II I I Ili 11111111101111111
                                                                      M 3 6668 14100 6082