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CONSERVING THE NATION"S COASTS AND ESTUARIES A Strategic Plan for the National Estuarine Research Reserve System: A State and Federal Partnership P QH 104 January, 1995 Je C66 CONSERVING THE NATION'S COASTS AND ESTUARIES A Strategic Plan for the National Estuarine Research Reserve System: A State and Federal Partnership fanuary, 1995 U.S. DEPARTMENT OF COMMERCE Ronald H. Brown, Secretary National Oceanic and Atmospheric Administration D. James Baker, Under Secretary National Ocean Service W. Stanley Wilson, Assistant Administrator Office of Ocean and Coastal Resource Management Jeffrey R. Benoit, Director National Estuarine Research Reserve System Strategic Plan - National Estuarine Research Reserve System Contents Introduction ...............................................................................I Program History .............................................................2 Importance of Coasts and Estuaries ................................ 2 Status of Coasts and Estuaries ........................................ 4 The Future of NERRS ....................................................7 Mission .......................................................................................8 Goal 1 - Representative Protected Areas ................................... 9 Goal 2 - Partnership .................................................................. 13 Goal 3 - Informed Coastal Management and Stewardship ....... 18 Goal 4 - Scientific Understanding through Research ................ 21 Goal 5 - Education .................................................................... 28 Appendices ................................................................................ 32 Appendix A, Glossary of Acronyms ............................... 33 Appendix B, Recommendations of the Review Panel on the National Estuarine Research Reserve System.. 34 Appendix C, Photo Credits ............................................. 36 Strategic Plan - National Estuarine Research Reserve System THE NATIONAL ESTUARINE RESEARCH RESERVE SYSTEM The National Estuarine Research Reserve System (NERRS or the System), a state-federal partnership, is a nationwide network of state owned and managed coastal protected areas designated and supported by the U.S. Department of Commerce, National Oceanic and Atmospheric Administration (NOAA). The sites (Fig. 1) represent the diverse estuarine and estuarine-like systems of America's oceanic and Great Lakes coasts, setting them aside for long-term scientific and education programs that provide information essential to the public and coastal management decision-makers. The System is authorized by Section 315, National Estuarine Research Reserve System, of the Coastal Zone Management Act of 1972, as amended (CZMA). Padilla Bay, WA #St. Lawrence River, NY Old Woman Creek, OH Huo@on Rl@lver N 1 11-1 ell@, Y ME South Slough OR ludl Bay, NH Waquoit Bay MA Narragansett Bay, Rl #San Francisco Bay lulfica River, NJ Delaware Elkhorn Slough, CA Chesapeake Bay, Maryland hesapeake Bay, Virginia North Carolina Tijuana River, CA @Iorth ln(et/Winyah Bay, SC ACE Basin, SC Sapelo Island, GA East Coast of Florida Waimanu Valley, HI Weeks Bay, AL R kery Bay, FL DESIGNATED SITES Apalachi ola Bay, FL lip Jobos Bay, PR PROPOSED SITES Fig. 1: National Estuarine Research Reserve System as of October, 1994 This plan for the system is a collaborative effort of state and federal NERRS program managers and specialists and clearly articulates the Program's mission, goals, and policies. It is based on the policies and objectives of the CZMA and 20 years of experience in implementing these at each estuarine research reserve and the national program level. It reflects our shared view of the System's future and its significant role in the protection and management of our nation's estua- rine and coastal ecosystems. I 91 Strategic Plan - National Estuarine Research Reserve System PROGRAM HISTORY Section 315 of the Coastal Zone Management Act of 1972 authorized the estab- lishment of "estuarine sanctuaries" to serve as field laboratories for the conduct of research and education related to enhancing coastal management. The first estuarine sanctuary was designated in 1974 by the U.S. Department of Com- merce, NOAA, in South Slough, Oregon, a 4,637 acre sub-embayment of Coos Bay. In 1985 the Congress amended the CZMA, changing the name of the Program to the National Estuarine Research Reserve System and increasing the research dimension of the program. Over the past two decades approximately one new reserve has been designated per year. As of October 1, 1994, 22 re- serves have been designated, placing nearly 425,000 acres of estuarine waters, wetlands, and uplands into active management and stewardship. These 22 reserves represent 17 of the 29 biogeographic subregions identified by the program in 1981 (Fig. 2, page 9). THE IMPORTANCE OF OUR COASTS AND ESTUARIES America's coasts, estuaries, and oceans are among its most valuable natural, economic, and cultural resources. They are a significant generator of economic value, as illustrated by sources cited in the Coastal Ocean Policy Roundtable's report, The 1992 Coastal Status Report: A Pilot Study of the U.S. Coastal Zone and its Resources (September 1992, Newark, Delaware): Domestic commercial fisheries catch in 1989 was 8,463 million pounds valued at $3.2 million. Nearly 22 million people fished recreationally in U.S. marine and Great Lakes waters in 1985 contributing over $4.9 billion to coastal economies in trip expenditures alone. In 1985 approximately $6.1 billion was spent on the purchase of new and used boats of all types; $11 billion were expended on motors, en- gines, accessories, safety equipment, fuel, insurance, docking, mainte- nance, launching, storage, repairs, and club membership. Over 5,000 marinas were in operation in 26 states, territories, and the District of Columbia. America's 190 seaports, with 1,915 seaport terminals offering 3,180 berths for commercial carriers, handled over 60,000 vessel entrances and clearances in 1988, with foreign cargo alone valued at over $400 billion in exports and imports. 2 Strategic Plan - National Estuarine Research Reserve System U.-t 5, Estuaries are important producers of sustainable natural resources America's coasts and oceans are important not only for their obvious economic value in the form of lively urban waterfronts, ports, fisheries, and opportunities for recreation and tourism, but also for their aesthetic value as a source of continual renewal of the human spirit. Whether it's the passing flight of sea- birds, the rush of wind in dune grasses, or the flash of silver-sided fish swim- ming by, these are resources that nourish the human soul as well as the body. They are the very foundation of human culture. We have lived near the seas, used their resources, and worked and traveled on them since before recorded history. Today our challenge is to assure that the growing global population can live in harmony with the coastal and ocean environment while benefiting mate- rially from its richness. We must learn how to coexist with a coral reef, improve our methods of using the land, and develop and encourage an ethic of treating the world's resources with a sense of personal stewardship. 3 Strategic Plan - National Estuarine Research Reserve System THE STATUS OF OUR COASTS AND ESTUARIES TODAY Many of America's coastal and ocean resources, despite their importance to the nation, are declining in quantity, quality, and variety. Wetlands continue to be lost; fisheries are declining; coastal storins inflict serious damage to coastal property and threaten lives; and less land is available for water-dependent uses as our finite coasts are used for noh-water-dependent purposes. Our coastal ecosystems are exhibiting signs of stress: More than one third of the nation's waters classified for shellfishing had some form of harvest restriction during 1990 - an increase of six percent since 1984 - due largely to the impact of poorly planned coastal development. Overfishing, habitat loss, and pollution have reduced populations of vir- tually all estuarine and inshore species of fish to historically low levels. ;ONO.,. AV A. L 31, 4V 4f, t-4 Fc Estuaries serve a variety of uses, many of which may conflict 4 Strategic Plan - Nat ional Estuarine Research Reserve System Demands for coastal resource use continue to increase; competition is fierce and uses are often conflicting. More and more people continue to live and work near the coast, and use our coastal resources. In Florida, coastal towns are growing four times faster than the United States as a whole. In California, populations of ten coastal counties have grown at least 20 percent over the last decade. Population density along U.S. coasts is ten times greater than inland. Trends point towards substantial population growth and other increasing pres- sures on coastal resources into the next century. Although various government management programs have slowed the rate of resource destruction and harmful modification of coastal resources, pressures are increasing and often overwhelm existing institutions and resources alike. As these trends continue, the direct as well as the cumulative and secondary impacts of coastal development on coastal resources will be high and the maintenance of high quality resources will be costly. Coastal development will continue to modify shorelines, change estua- rine and coastal water circulation, increase coastal erosion and thereby increase the risk to lives and property from coastal stonns, and modify or completely destroy important habitats, including wetlands, seagrass beds, and entire coastal ecosystems, such as the coral reef/seagrass/ mangrove ecosystems of the Florida Keys and Florida Bay. Coastal development associated with population growth will increase sediment loads as well as nutrient and toxic discharges which will further degrade coastal waters and areas of important ecological value. Marine recreation is already the fastest-growing sector of the economies of many coastal regions. Demands for the maintenance of a high-quality environment for coastal recreation and access to special areas will increase significantly. 5 5trategic Plan - National Estuarine Research Reserve System The threat of increased stress on resources is significant. NOAA estimates that by the year 2000 in the coastal regions of this country alone: a The demand for potable water will increase by at least 10 percent. & The demand for energy will increase by at least 12 percent. 0 Sewage will increase by 18 percent. a Trash will increase by 19 percent. 0 7 million more houses will be constructed. 0 11 million more cars will be on coastal highways. We must take action if our coastal resources are to be sustained. The National Estuarine Research Reserve System, with its emphasis on resource stewardship, monitoring of estuarine conditions, management-oriented research, technical information transfer, and environmental education is an important part of the solution to these problems. Traditional ways of life, as well as the healthy natural resources on which they depend, are threatened by rapid development 7@ 6 Strategic Plan - National Estuarine Research Reserve System THEFUTURE Both the urgency of need and the role the reserve system can play have been recognized. The Review Panel on the National Estuarine Research Reserve System, in the transmittal of their recent report on the System (Building a Valuable National Asset: An Assessment by the Review Panel on the National Estuarine Research Reserve System, Center for Marine Policy Study, Graduate College of Marine Studies, University of Delaware, Newark, DE, October 1993) to NOAA stated: Given the major importance @f the estuaries of our nation and the wide variety of management problems facing U.S. coastal areas, we find that the NERRS program is even more significant today than when it was created more than two decades ago. Improved cost effective stewardship of our invaluable coastal resources - be they fish, wetlands, or beaches and dunes - depends upon increased scientific understanding of the estuaries and how theyfunction. The NERRS is creating a system of representative estuarine sites to serve exactly thatfunction. The Panel also found that - it is time for a new phase of NERRS to begin - one that moves beyond site acquisition and development tofocus on better definition of the national goals and objectives served by the program, and, at the same ti.me, preserves the state-federal partnership which provides much of the central driving force for the overall effort. Accepting this challenge and considering the recommendations of the Review Panel, state and federal staff have worked as partners to develop this Strategic Plan for the National Estuarine Research Reserve System, clarifying our mis- sion, goals, and objectives to guide program actions as a national system. 7 Strategic Plan - National Estuarine Research Reserve System MISSION The National Estuarine Research Reserve System is a pro- tected areas network of federal, state, and community part- nerships which serve to promote informed management of the Nation's estuarine and coastal habitats through linked programs of stewardship, public education, and scientific understanding. The Reserve System's state and federal partners have identified five goals to guide our actions in support of this mission. GOAL 1: REPRESENTATIVE PROTECTED AREAS Establish, manage, and maintain a national network of protected areas repre- senting the diverse biogeographic and typological estuarine ecosystems of the United States. GOAL 2: PARTNERSHIP Mobilize federal, state, and community resources to mutually define and achieve coastal protection and management goals and objectives. GOAL 3: INFORMED MANAGEMENT AND STEWARDSHIP Operate the NERRS as a national program contributing to informed, integrated management of the Nation's coastal ecosystems. GOAL 4: SCIENTIFIC UNDERSTANDING THROUGH RESEARCH Design and implement a comprehensive program of scientific research to address coastal management issues and their fundamental underlying processes. GOAL 5: EDUCATION Design and implement a comprehensive program of education and interpretation based on solid scientific principles to strengthen the understanding, apprecia- tion, and stewardship of estuaries, coastal habitats, and associated watersheds. 8 Strategic Plan - National Estuarine Research Reserve System Goal I Statutory Authority REPRESENTATIVE The Secretary may designate an area as a national PROTECTED estuarine reserve if... the area is a representative estua- AREAS rine ecosystem that is suitable for long-term research and contributes to the biogeographical and typological Establish, manage, balance of the System ... and the law of the coastal State and maintain a provides long-term protection for reserve resources to national system of ensure a stable environmentfor research. (Section protected areas 315(b)(2)(A) and (B) of the CZMA) representing the For purposes of the NERRS, NOAA has divided the diverse biogeo- coastal United States into I I biogeographic regions and graphic and typo- 29 subregions (see sidebar on page 10 and Fig. 2 be- logical estuarine low). Within these are a wide variety of associated ecosystems of the typologies consisting of two attributes: ecosystem types United States. (types of shorelands, transition areas, and submerged bottoms) and physical characteristics (geologic, hydro- graphic, and chemical). Currently, 17 of the Nation's biogeographic subregions, and important typolog ies within subregions, are represented by the System. F SUb-Arclic 2 6* 2 5 2 4 Greal Lakes C@Iurnbl j 8 @12 0 an 23 2 Acadian 17 2 - _-@ 1 6 3 15 4 - Calffornian 5 Virginian 14 7 C-lini.. -27 .1b. 11 9 * 1 2 * @ Insular (> 1 3 uslanian 10 Lo . West Indian 2 8 Fig. 2NERRS Biogeographic Regions ,_@, I. @*\@ . @ * Regions not currently represented 9 Strategic Plan - National Estuarine Research Reserve System Biogeograpic Classifications States work in cooperation with NOAA to identify as Defined in NERRS potential new reserves. They are officially nominated Regulations by a state's governor for designation by the Secretary of the U.S. Department of Commerce. Completion of the Acadian national system, as currently envisioned, will require: 1. Northern Gulf of Mai .ne the identification of new sites; the designation and 2. Southern Gulf of Maine initial establishment of these sites; and management of Virginian 3. Southern New England new and existing reserves at a fully operational level 4. Middle Atlantic that enables them to meet program mission and goals. 5. Chesapeake Bay Carolinian Complete the Reserve System relative to 6. Northern Carolinas estuarine biogeography and typology. 7. South Atlantic 8. East Florida Evaluate existing biogeographic/ West Indian typologic classification including bound- 9. Caribbean aries of designated sites within the 10. West Florida present system (plus existing marine Louisianian 11. Panhandle Coast sanctuaries and other coastal natural 12. Mississippi Delta areas/programs that affect regional 13. Western Gulf protection). Californian 14. Southern California Convene external review committee 15. Central California composed of scientists, state representa- 16. San Francisco Bay tives, and other members that represent Columbian the various reserve uses to select and 17. Middle Pacific prioritize sites to fill "gaps" in the 18. Washington Coast System. 19. Puget Sound Great Lakes D 20. Lake Superior etermine roles of reserves in protection 2 1. Lakes Michigan & of biodiversity. Huron 22. Lake Erie Support the designation process to ensure 23. Lake Ontario necessary sites are added to the System. Fjord 24. Southern Alaska Work with states containing potential 25. Aleutian Islands Sub-Arctic reserve sites to obtain state and local 26. Northern Alaska support for their designation and long- Insular term management. 27. Hawaiian Islands 28. Eastern Pacific Islands 29. Western Pacific Islands 10 Strategic Plan - National Estuarine Research Reserve System Ensure state commitment to long-term Efficient Management support and management of the reserve and its component program activities. Program performance is a continuing concern for the Provide the state and federal financial System. The program support to ensure sites are designated in evaluation process, as a timely manner. required in Section 312 of the CZMA, is the primary Provide the state and federal staff to means by which NOAA ensure sites are designated in a timely ensures adherence of the reserves to CZMA program- manner. matic requirements. Evalua- Explore options for inclusion of other tions are generally per- formed at each site once protected areas within reserve bound- every three years. The aries or within watersheds to fulfill overall management of each program missions while reducing overall reserve is evaluated on costs to the taxpayer. three general criteria: (1) adherence to the approved i Ensure national system and site standards Final Management Plan are clearly derined and reserves are properly (FMP); (2) adherence to the managed. terms offederalfinancial assistance awards; and (3) adherence to required Provide the federal financial support to actions from previous implement all aspects of a national Section 312 evaluations. program. Specific evaluation criteria include the state's imple- Provide the federal staff support to mentation of: implement all aspects of a national - research plan program. - education and interpre- tation plan Review and revise, as needed, the - public access plan implementing Federal Regulations for - facility development NERRS. plan - acquisition plan Maintain a continuing process of na- - resource protection tional and reserve- specific evaluation plan and review. ------------- ------ - Maintain a continuing, active, participa- tory planning process to proactively address national coastal resource man- agement and program specific issues. Strategic Plan - National Estuarine Research Reserve System Develop staffing, facilities, and service criteria and standards to define when a designated reserve is fully operational. Summary of Designated Reserve Lands and Waters Use these standards and criteria as a Site basis for site development, designation, Acreage operation, planning, and evaluation. Apalachicola 193,758 ACE Basin 136,600 Proactively address reserve stewardship Chesapeake 4,848 issues. Bay, MD Chesapeake 4,434 Recognize resource stewardship as a Bay, VA primary function of reserves. Delaware 8,600 Elkhorn Slough 1,400 Ensure adequate boundaries and/or Great Bay 5,280 levels of state control for each reserve Hudson River 4,838 during management plan revisions (i.e., Jobos Bay 2,800 Narragansett 4,950 every five years) and evaluations under North Carolina 10,000 �312 of the CZMA. North Inlet 9,080 Old Woman Creek 571 Develop programs and partnerships to Padilla Bay 10,700 address management issues within and Rookery Bay 12,550 outside of reserve boundaries including Sapelo Island 6,111 strong linkages to state CZM programs South Slough 4,700 for site protection. Tijuana River 2,500 Waimanu 3,600 Define reserve policies concerning Waquoit Bay 2,250 habitat manipulation, restoration and Weeks Bay 3,028 Wells 1,600 exotic species management. Total 434,198 Serve as an advocate for estuarine health by facilitating information exchange on stewardship issues. Encourage and promote "best manage- ment practices" (BMPs) in all steward- ship endeavors. 12 Strategic Plan - National Estuarine Research Reserve System Goal 2 Statutory Authority PARTNERSHIP The Congress finds and declares that it is the national policy ... to encourage the participation and coopera- Mobilize federal, tion of the public, state and local governments, and interstate and other regional agencies, as well as of state and community the Federal agencies having programs affecting the resources to mutu- coastal zone, in carrying out the purposes of this title; ally define and (and) to encourage the coordination and cooperation achieve coastal pro- with and among the appropriate Federal, State, and tection and manage- local agencies and international organizations ... in ment goals and collection, analysis, synthesis, and dissemination of objectives. coastal management information, research results, and technical assistance to support State and Federal regulation of land use practices affecting the coastal and ocean resources of the United States. (CZMA Section 303(4) and (5)) Interdependence at the ecological level must be paral- leled by governmental systems if we are to address ecosystem protection and management issues compre- hensively. The partnerships between the federal and state government@ are the cornerstones and founding principles of the NERRS under the CZMA. To be successful, reserves must exist as partnerships - with the academic, research, and education communi- A ties; with resource users and private resource protection advocates; with nearby towns and cities; with other state and regional agencies; and with their federal partners. Maintain a strong state component of the NERRS partnership Provide funding, on-site state staff and other resources necessary to implement the management plan including site management, stewardship, operations, education, monitoring, and research functions. 13 Strategic Plan - National Estuarine Research Reserve System Ensure reserves'plans, activities, and Selected NERRS Partners programs will be integrated with those of state coastal zone management and other In addition to a broad relevant state agencies. network of local govern- ments, school districts, States with reserves will plan jointly universities, state coastal, through the National Estuarine Research natural resource, parks Reserve Association (NERRA) to ad- and recreation, planning, dress specific program operational fish and game, environ issues. mental, historic, and education agencies, reserves are involved on a day-to-day basis with a broad range ofpublic and private partnerships including: American Littoral Society Atlantic Coast Conservation. Association Audubon Society Chesapeake Corporation Coastal Ocean Program Coastal States Organization Coast Guard Auxiliary Daedalus Ducks Unlimited Elkhorn Slough Foundation Estuarine Research Federa- Partners in Education: Chesapeake Bay tion NERR (MD), state, and county Falmouth Garden Club Federal Highway Adminis- tration Maintain a strong NOAA federal component Fish & Wildlife Foundation of the NERRS partnership Global Change Program Great Bay Trust Define the program roles of NOAA's The Greenway Conservancy Gulf of Maine Aquarium federal partnership office, OCRM and its Gulf of Maine Council component divisions and staff. Gulf of Mexico Program Hudson River Foundation Define and, when appropriate, standard- Izaak Walton League ize federal program policies and goals, (cont.) 14 Strategic Plan - National Estuarine Research Reserve System Ensure that sufficiently-trained federal MORE PARTNERS staff are assigned to address national Laudholm Trust program and reserve support functions. Marine Advisory Service, Advocate reserve interests in the resolu- NOAA Monterey Bay Aquarium tion of interagency disputes. National Aeronautics and Space Administration Support reserves in resource protection National Estuary Program, disputes. EPA National Marine Fisheries Pursue partnerships for the NERRS with Service, NOAA other NOAA programs. National Marine Sanctuary Program, NOAA Oversee the grant awarding process. National Science Founda- tion National Wildlife Federa- tion Maintain strong NOAA-state activities at the The Nature Conservancy reserve and national program levels Pro Estero PROBEA Continue the NOAA-state dialogue to Prudence Conservancy achieve the long-term vision of the Save the Bay program through the development and Sea Grant implementation of strategic and opera- Sierra Club tional plans. Tacoma Hunting and Fishing Club Identify site and national program Trout Unlimited US Air Force resources available for potential redirec- tion. US Bureau ofIndian Affairs US Bureau of Land Man- agement Establish and use appropriate NOAA- US Coast Guard state consultation groups. US Department of Energy US Environmental Protec- Jointly target specific activities and tion Agency agencies for cooperative action in re- US Fish and Wildlife source management, research, and Service education. US Forest Service US Geological Survey Jointly sponsor thematic conferences and US Navy make presentations at conferences of US Soil Conservation Service other organizations. 15 Strategic Plan - National Estuarine Research Reserve System Volunteers NERRS operations rely on significant volunteer support. The most recent survey (1992) showed nearly 700 volunteers formally participating. Reserve Number ACE Basin 12+ Apalachicola 5+ Chesapeake 30+ Bay - MD Chesapeake 10+ Bay - VA Delaware 0 Elkhorn Slough 100+ Great Bay 100+ Hudson River 10+ Jobos Bay 20 Narragansett Bay 10 North Carolina 5+ Volunteers Assist with Coastal Cleanup, North Inlet - 0 Wells NERR Winyah Bay Old Woman Creek 30+ Padilla Bay 5+ Maintain strong partnerships with our volun- Rookery Bay 20 teer community Sapelo Island 0 South Slough 30+ Reinforce existing reserve-specific and Tijuana River 20+ NERRS-specific partnerships. Waimanu 0 Waquoit Bay 100 Establish linkages Iwith other volunteer Weeks Bay 38 efforts (e.g., Adopt-a-Beach). Wells 150+ This valuable service is Foster positive public visibility by supplemented by countless publicizing the effectiveness of volun- hundreds of others volun- teer programs. teering on an intermittent basis. Provide a national volunteer coordinator function within OCRM. 16 Strategic Plan - National Estuarine Research Reserve System National Ocean Service Maintain Strong Partnerships with the Public and Private Sectors (NOS) Partnership Grants Take federal and state action to form In 1994, NOAA's NOS initiated a program tofoster partnerships targeting specific priority partnerships between NOAA J agencies and organizations at the state and other organizations. and national levels. Tijuana River NERR, one of the initial participants, is Clarify relationships among individual developing a Geographic reserves, state coastal zone management Information System (GIS) agencies, other state agencies, national that will be based on marine sanctuaries, and other federal ecological, rather than i.nternational, borders. A programs. binational team, of educa- Take action to strengthen or forin part- tors, managers, planners, and sociologists will guide nerships with federal, state, and local the development of the GIS agencies, private institutions, academic ,:to provide relevant informa- institutions, advocacy and conservation that will meet the organizations, and the private sector. planning and management needs of all affected com- Design a national campaign aimed at munities. The GIS will be private corporate philanthropy; obtain developed by researchers at "lead gift" to inaugurate it. San Diego State University and El Colegio de la Frontera. Other partners include California Sea Grant, the Planning Depart- mentfor the County of Tijuana, San Diego Associa- tion of Governments, County of San Diego, Centro de Investigacion 1 Cientifica y de Educacion, la Universidad de Baja California, Instituto de Culturas Nativas de Baja California, and the Interna- tional Boundary Water Commission. I------------- ---- --- 17 Strategic Plan - National Estuarine Research Reserve System - --------- - Goal 3 INFORMED Statutory AuthodU COASTAL MAN- The Congress finds and declares that it is the national policy AGEMENTAND ... to encourage coordination and cooperation with and STEWARDSHIP among the appropriate Federal, State, and local agencies and international organizations ... in collection, analysis, Operate the NERRS i synthesis, and dissemination of coastal management infor- mation, research results, and technical assistance to support as a national pro- I State and Federal regulation of land use practices affecting gram contributing to the coastal and ocean resources of the United States. (CZMA informed, integrated Section 303(5)) management of the Nation Is coastal ecosystems. The National Estuarine Research Reserve System's role in strengthening the protection and management of the Nation's coastal and estuarine resources will operate at four levels: national, regional, state, and local. National services will be provided by, or coordinated by, the NOAA headquarters office, with appropriate participation from the reserves. Serve as national, regional, and local centers of information, expertise, and training that support state, local, private, and other com- munity needs Develop the NERRS as a national network of regional testing grounds for applied coastal management techniques. Serve as points of contact and outreach for NOAA, state, and other relevant agencies and organizations. Provide opportunities to test new meth- ods of monitoring, research, education, and restoration management strategies. 18 Strategic Plan - National Estuarine Research Reserve System Species of Concern Reserves provide habitatfor a number offederally and state endangered or threatened species. Among thefauna species identified at reserves so far are: Atlantic Loggerhead Turtle Green Sea Turtle Hawksbill Sea Turtle A Atlantic Ridley Turtle Alabama Red-bellied Turtle Gopher Tortoise Finback Whale West Indian Manatee Shortnose Sturgeon American Alligator Reserves Protect Threatened and Indigo Snake Endangered Species such as this Black Pine Snake Light-footed Clapper Rail Florida Black Bear Florida Panther Develop a strategy for identifying the Indiana Bat needs of coastal decision-makers, par- Gray Bat ticularly state CZM programs, the Southern Bald Eagle NERRS statutory partner. California Brown Pelican Light-footed Clapper Rail California Least Tern Serve as a source of advice to NOAA Least Bell's Vireo and other governmental agencies about Wood Stork mitigation, damage assessment, and Peregrine Falcon restoration of coastal habitats under such Bachman's Warbler authorities as Superfund, the National Belding's Savannah Spar- Coastal Wetlands Protection, Restoration row Southeastern Snowy Plover and Management Act, etc. Piping Plover Serve as a regional source of information Florida Sandhill Crane Scrub Jay for public or private entities to ensure Southeastern Kestrel that ongoing or proposed actions main- Red-cockaded Woodpecker tain long-term sustainability of those resources. 19 Strategic Plan - National Estuarine Research Reserve System Maintain an effective program of techni- Watershed Planning cal assistance, both reserve-specific and Partnerships nationally-coordinated, based on re- search to promote informed coastal South Slough NERR staff management decisions. have been active partici- pants in the Coos Watershed I Serve as a regional source of objective Association, a council and integrated information on the role of established to promote estuaries in marine ecosystems, the role watershed planning and of governments in their protection and enhancement. Members of management, and the need for individual the watershed association I include representativesfirom responsibility and stewardship. the Port of Coos Bay, Develop and implement a sustained Oregon Department Of Forestry, Bureau ofLand relationship between NIERRS and other Management, as well as coastal decision makers. local citizens. The Associa- i tion provides a framework Fully integrate NERRS sites and exper- to coordinate and promote use ofproven management tise into the development and implemen- tation of environmental regulations at the practices designed to national, regional, state, and local levels. support environmental integrity and economic stability throughout the Proactively address land use issues Coos Watershed. The I within reserve boundaries, or that could Association is also imple- potentially affect reserve resources. menting a series of remediation projects designed to restore in- stream structure and winter sto habitatfor dwindling cks of anadromousfish. Many other watershed planning partnerships exist within the System. 20 Strategic Plan - National Estuarine Research Reserve System Goal 4 Statutory AuthorLty SCIENTIFIC UN- The Secretary shall develop guidelines for the conduct DERSTANDING of research within the System that shall include ... a THROUGH RE- mechanism for identifying, and establishing priorities SEARCH among, the management issues that should be ad- dressed through coordinated research within the System ... and (establish) common research principles to guide Design and imple- development of research programs within the System. ment a comprehen- (CZMA Section 315(c)) sive program of The Secretary shall ... promote and coordinate the use scientific research of the System for research purposes including - re- to address coastal quiring that the National Ocean and Atmospheric management issues Administration, in conducting and supporting estuarine and their fundamen- research give priority consideration to research that tal underlying pro- uses the System; and consulting with other Federal and cesses. State agencies to promote use of one or more reserves within the System by such agencies when conducting estuarine research. (CZMA Section 315(d)) The NERRS Strategic Plan for Research, Site Charac- terization, and Monitoring (the Research Plan) repre- sents a comprehensive, interdisciplinary approach to scientific and technical aspects of coastal management problems. This plan is derived heavily from two pivotal NOAA documents: First, the Research Plan reflects the major program- matic initiatives described by the NOAA Strategic Plan's Coastal Ecosystems Health component (1995- 2005) including activities to: (1) integrate operations for coastal ecosystem management, (2) enhance ecosystem assessment activities, (3) develop a national comprehen- sive monitoring program, (4) increase scientific under- standing, and (5) provide a strong information base for infon-ned public policy decision making. Second, the NERRS Research Plan also reflects guid- ance from the draft NOAA/OCRM Strategic Plan (Goal #5 - Research and Monitoring) to "develop an inte- 21 Strategic Plan - National Estuarine Re search Reserve System grated research and monitoring capability that identifies and addresses management questions through the utilization of National Marine Sanctuaries, National Research Synthesis Docu- Estuarine Research Reserves, and federal, state, aca- ment demic, public and private partnerships." A report developed by Sanctuaries and Reserves Division analyzed the first 'decade of OCRM-funded research in the Reserve System. Among the findings: Number of Projects Funded: 156 Diversity of Principle Investigators: Academic 213 Federal 10 State Agency 23 03 Other 12 Diversity of Participating Institutions: Academic 50 Federal 3 State Agency 10 Other 5 Wetland Delineation in Chesapeake Bay NERR in Virginia Length of Project Funding: Length Proiects RESEARCH OBJECTIVES I year 129 2 years 21 The research section of the Research Plan was devel- 3 years 5 oped for the purpose of designing and implementing a 4 years I comprehensive program of long-term scientific inquiry Note: Information on non- to address both fundamental processes and significant OCRMfunded research had coastal management issues within estuaries and estua- not been compiled at the rine ecosystems. time ofplan publication. 22 Strategic Plan - National Estuarine Research Reserve System Promote opportunities for original applied Research Activities research focused on the improvement of coastal zone management through specific Researchers at NERRS sites technical problems have undertaken studies i concerning many significant Develop, refine, and update the NERR basic and applied research system-wide research agenda to focus on topics, including.- the technical assessment and resolution Point Source Pollution of management problems within estuar- Nonpoint Source ies and coastal ecosystems. Pollution Hydrodynamic Modeling 1 Facilitate cooperation and communica- Habitat Mapping tion between coastal resource managers Floral and Faunal and academic researchers (connect Inventories specific questions to general principles). Land Erosion and Accretion Mangrove Restoration Promote opportunities for original basic Salt Marsh Restoration research toward the advancement of a basic Shore Protection understanding of estuarine processes. Measures Water Quality Monitoring Maintain financial and logistic support Weather Monitoring for scientific investigations through Algal Blooms continued operation of the OCRM/SRD Population Dynamics competitive research program. Microbial Processes Sea Level Rise Seek matching fund contributions from Exotic Species Control Health of Commercially- other agencies and organizations to Important Species increase the base of support for competi- tive research awards. Wetland-River Interactions Sediment Encourage other agencies to provide Characterization direct funds and support for research Estuarine Productivity conducted within NERRS, both through Effects of Human the competitive grants process and other Disturbance areas of collaboration'. Bathymetric Mapping Nutrient Cycling Develop and maintain a long-term acts of Management IMP database on reserve habitats, resources, Activities Ecological Succession and environmental trends that will Economic Valuation attract, enhance, and sustain future Archaeological Surveys research projects. 23 Strategic Plan - National Estuarine Research Reserve System Enhance the infrastructure of the Reserve Research Partners System to ensure its long-term utility to agency scientists and outside investigators Universities Auburn University Secure the SRD staff position of Research Boston University Coordinator with responsibilities to pro- California State University mote research opportunities and facilitate Case Western Reserve U. on-site scientific investigations. Duke University Florida State University Develop a program for on-site funding of Heidelberg College graduate-level scholarships or fellowships Kent State University to support estuarine research at the national Louisiana State U. level that is linked to use of the reserves. North Carolina State U. Ohio State University Ensure that all reserves have on-site access Portland State University to necessary field equipment, adequate Rutgers University San Diego State U. laboratory facilities, and suitable overnight Smith College accommodations. Stanford University University ofAlabama Investigate and develop new administrative and University of California at analytical approaches to integrate appropriate Santa Cruz technical information into the coastal resource Univeristy of Florida management decision-making process University of Georgia University of Maine Institute a procedure to communicate the University of Maryland results and implications of scientific inves- University of Massachusetts tigations to the on-site manager and educa- University of Michigan University of New Hamp- tion coordinator. shire University of North Caro- Facilitate the transmission of results in a lina usable form to coastal managers. University of Oregon University of Puerto Rico Promote dissemination of research findings University of Rhode Island through traditional means of scientific University of Washington communication (abstracts, seminars, Virginia Institute of Marine technical reports and publications). Science Woods Hole Oceanographic Institution Periodically synthesize the results of Yale University independent research investigations carried out on related topics at reserve-specific and national levels. 24 Strategic Plan - National Estuarine Research Reserve System SITE INVENTORY AND Additional Research Partners CHARACTERIZATION OBJECTIVES State Agencies The environmental characterization section of the Florida Dept. of Environ- Research Plan seeks to enhance research efforts by mental Protection developing inventory information and synthesizing Maine Dept. of Conserva- baseline data concerning estuarine resources and habi- tion tats administered by the System. Maryland Dept. of Natural Resources New Hampshire Fish and Develop site characterizations for all reserves Game Department within the NERR System New York State Dept. of Environmental Conserva- Identify NERRS-wide information gaps tion to be addressed by the Site Profiles. North Carolina Dept. ofEn- vironment, Health, and Develop a NERRS-wide milestone Natural Resources schedule for the completion of Site Ohio Dept. of Natural Profiles for all sites. Resources Oregon Dept. of Fish and Secure an adequate funding base to Wildlife Oregon Div. of State Lands support writing, publication, and distri- Puerto Rico Dept. of Natu- bution of completed Site Profiles to ral and Environmental agency researchers, academic investiga- Resources tors, and coastal zone managers. Rhode Island Dept. of Environmental Mgmt. Washington State Depart- MONITORING ment of Ecology Other Institutions The monitoring section of the Research Plan seeks to Centerfor Energy and define criteria necessary to maintain long-term site Environmental Research integrity by establishing a national monitoring program Elkhorn Slough Foundation with standardized sampling parameters. The monitoring Hudsonia Limited program will be augmented by monitoring local vari- Inst. of Ecosystem Studies ables to measure effectiveness in maintaining site Institute of Tropical Forestry integrity and link into/support/participate in national/ Marine Environmental regional network. Sciences Consortium Norwalk City Schools Develop, fund, and operate a comprehensive Pacific Fisheries Enhance- System-wide environmental monitoring ment Corporation Smithsonian Institution program designed to describe, track, and 25 Strategic Plan - National Estuarine Research Reserve System predict long-term changes in the status, integ- rity, and biodiversity of estuarine ecosystems 1 Environmental Site and coastal watersheds Profiles As part of the NERRS Assessment and monitoring of estuarine and Research Program, indi- coastal biodiversity vidual reserves are expected to develop a comprehensive Develop a three-phased monitoring I site profile. Development Of program that incorporates information of this document involves direct relevance w the sites, the region, compilation and synthesis o and the national system: contemporary and historical research. Phase I will constitute a compre- The profiles describe the hensive Water Quality Monitoring Pro- biology, geomorphology, and hydrology of the reserve gram, in which basic environmental and surrounding areas. parameters are measured consistently These documents provide across the NERRS, and are compiled, researchers, students, synthesized, summarized, and dissemi- managers, and the public i nated by a Centralized Data Management with a detailed summary of Office operated by a reserve site; what is known about a site, along with a discussion Of Phase 11 will constitute a broad- issues ofparticular concern. based Biodiversity Monitoring Program Site profiles have been completedfor two reserves - in which sites will design ecological Tijuana River, CA NERR surveys to assess the status and trends of and the Great Bay, NH locally, regionally, and nationally impor- NERR, with several more in tant critical habitats, species, and func- i progress. tions; Phase III will constitute a long- term Land Use Change Analysis in which sites will assess patterns of change in human uses of surrounding watersheds, and relate those activities to environmen- tal processes of immediate management concern (e.g., nonpoint pollution, habitat loss, introduced exotic species, etc.). Collect on-site baseline data to establish monitoring parameters and establish a standardized system to record and archive database information. 26 Strategic Plan - National Estuarine Research Reserve System Promote research within reserves through Program Development accumulation of valuable baseline data: Grants Several NERRS sites have Develop a national program for traditionally experienced monitoring selected parameters to difficulty in obtaining compile a long-term database competitive researchfunds. directed towards assessing changes Contributing factors include in estuaries; a lack of (1) basic research infrastructure or equipment; Develop a database management (2) baseline site character- program to provide information for izations and monitoring researchers. data; and/or (3) preliminary project-specific data toform Develop a System-wide program for testable hypotheses. In monitoring protocol and data quality order to correct this situa- assuirance/quality control. tion andfoster a strong system-wide research Implement, test, and refine estuarine program, SRD has initiated habitat assessment protocols to improve a program of grants to ,,address the above deficien- monitoring capabilities within estuarine ciesfor individual sites. ecosystems. Priority consideration is given to sites not receiving Achieve Long-Term Ecological Research competitive research grants (LTER or equivalent) site status for repre- during the previous two sentative NERR sites within coastal biore- year period. The program gions. was initiated in FY93 with widespread supportfrom Integrate results from on-site monitoring, NERRS Research Coordina- aerial photography, satellite imagery, and tors and has resulted in grants to Weeks Bay NERR, relevant research data within the context of Wells NERR, South Stough a Geographic Information System (GIS). NERR, and Jobos Bay NERR in its initial two Integrate NERRS monitoring efforts with years. other programs (e.g., Status and Trends, EMAP, National Coastal Monitoring Act) and support other program application requirements (e.g., Coastal Nonpoint Source Pollution Control). Provide opportunities for volunteers to participate in activities associated with the NERRS monitoring program. 27 Strategic Plan - National Estuarine Research Reserve System Goal 5 StatutoryAutho EDUCATION The Secretary may designate an estuarine area as a na- tional estuarine reserve if -... the Secretaryfinds that ... Design and imple- designation of the area as a reserve will serve to enhance ment a comprehen- public awareness and understanding of estuarine areas, sive program of andprovide suitable opportunities for public education and education and inter- interpretation. (CZMA Section 315(b)(2)(Q) pretation based on Education, training, and outreach activities are con- solid scientific prin- ducted at the national, regional, state, and local level. ciples to strengthen These include a broad spectrum of activities ranging the understanding, from training state and local permit administrators who appreciation, and must apply stewardship principles in daily work prac- stewardship of estu- tice, to assisting teachers in meeting state continuing aries, coastal habi- education requirements while bringing knowledge of tats, and associated estuaries into the classroom, to providing information and assistance to the general public on issues of indi- watersheds. vidual and local importance. The national office coordinates with other federal agencies, national education, scientific and environmen- tal organizations, and interest groups. Each reserve is an active member of the local and regional education community and a representative of the state and NOAA stewardship community. Develop education programs that will further the goals of the System Provide on-site and outreach educational experiences. Educate about estuaries holistically to include ecological, cultural, historical, sociological, aesthetic, and economic perspectives. Promote a sense of stewardship and individual responsibility. 28 Strategic Plan - National Estuarine Research Reserve System Education and Outreach Address local, regional, state, and Programs national coastal issues. Education and outreach programs in the reserves Approach estuarine education through a have taken a number of perspective that includes watersheds, forms over the years, bioregions, and biogeographic regions. including: Increase understanding and appreciation Teacher Training Work- of the National Estuarine Research shops Reserve System. Oil Spill Contingency Training Target a culturally diverse audience of educa- Interpretive Trails tors and students, environmental profession- Coastal Resource als, coastal resource decision-makers, and Management Work- resource users shops Technical Assistance to Coastal Managers Function as a "system of sites" to nationally Visitors Centers coordinate estuarine education efforts School Field Trips Brochures Coordinate education programs among Posters reserve sites and between the sites and Wildlife Guides NOAA/SRD. Nature Walks Guided Canoe Trips Promote partnerships, leverage funds Youth Summer Programs and resources, and coordinate with Curricula Development federal, state, and local agencies and for Schools organizations. Bilingual Materials Mentor Programs AudiolVisual Programs Develop NERRS as resource centers special- Traveling Exhibits izing in estuarine and watershed education University Courses Adult Education Courses Develop and adopt standards to be Conferences- pursued system-wide, taking into ac- Dissemination of Re- count the diversity of differences of each search Results reserve site. Guest Lectures Coastal Cleanups Promote the NERRS as settings to Estuary Day activities engage people in learning about estuar- Earth Day activities ies. 29 Strategic Plan - National Estuarine Research Reserve System Ensure that education programs incorpo- Coastal Resource rate innovative and appropriate technolo- Management Workshops gies and education practices. Coastal Resource Manage- Secure resources for effective and ment Workshops are a series., efficient programs. of one-day technical train- ing workshops that are offered to environmental professionals involved in planning, regulation, and management. Rookery Bay NERR initiated the program and has been conducting these workshops bimonthly Ire -0 since 1989. Topicsfor workshops have included stormwater management, exotic plant control, mitiga- tion banking, and watershed restoration. In 1993, the Florida Coastal Manage- ment Program provided assistance to expand the workshops statewide. Due to the success of these Reserves Develop Education Programs for All workshops, thisprogram is Audiences now being expanded System-wide in partnership Capitalize on NERRS' ability to directly link with state Coastal Zone Management Programs. education, research, stewardship, resource management, and restoration Facilitate an understanding of the scien- tific process and research results. Provide infori-nation and expertise to decision-makers for wise use of coastal resources. Use education as a proactive tool of resource protection and stewardship. 30 Strategic Plan - National Estuarine Research Reserve System Ensure education programs are compat- ible with resource management. System-Wide Education Grants Use historical infon-nation on cultural resources and coastal archaeology to The System offers grants for illustrate the traditional uses of coastal- both education projects habitats. targetedfor specific re- serves andfor education projects that benefit the Ensure education priorities are based on system as a whole. One such program evaluation results 1 system-wide program involves a cooperative effort Continually assess and evaluate educa- with the National Geo- graphic Society. In this tional programs and products and imple- project, coordinated by the ment changes where needed. Great Bay NERR in New Hampshire and involving 15 Continually assess changes in the operat- reserves, NERRS sponsors 1 ing environment (resources, audiences, 75 schools across the technologies, and threats on national and country to participate in the local levels) and respond to these Kids Network 'What's in Our Water?" Program. changes as needed. Through KidsNet, fourth-, !fifth-, and sixth-graders Coordinate the development of a system- w learn about pollution ide evaluation program. sources, sample their local drinking water, exchange Encourage NERR education coordinators to information and observa- be active participants in the education com- tions, andformulate and munity test hypotheses with other i schools using an on-line system designed by National Promote professional development for Geographic. The program education coordinators. allows students to explore Encourage participation in local, re- their estuarine environment through hands-on research gional, state, and national associations. and peer interaction while i teaching telecommunica- tions skills. 31 Strategic Plan - National Estuarine Research Reserve System Appendices 32 Strategic Plan - National Estuarine Research Reserve System Appendi A Glossary of Acronyms CZM coastal zone management CZMA Coastal Zone Management Act NERR National Estuarine Research Reserve (one site) NERRA National Estuarine Research Reserve Association NERRS National Estuarine Research Reserve System NMFS National Marine Fisheries Service NMSP National Marine Sanctuary Program NOS National Ocean Service NOAA National Oceanic and Atmospheric Administration OCRM Office of Ocean and Coastal Resource Management SRD Sanctuaries and Reserves Division of OCRM 33 Strategic Plan - National Estuarine Research Reserve System Appendix B NERRS Review Panel Recommendations 1. NOAA should initiate a focused effort to better articulate and imple- ment a coherent and comprehensive national dimension for the NERRS program 2. NOAA should put in place a process to develop a nationally coordi- nated research agenda of management-related research needs 3. NOAA should design and adopt a "strategic planning process" for the NERRS program 4. NOAA should seek to significantly expand the funding available for management-related research within NERRS 5. NOAA, via NERRS, should provide leadership in creating a national estuarine coordinating capability within the federal government 6. NOAA should strive to develop the NERR System to be fully representative of all the important estuarine types found in the U.S. 7. The NERRS Education Program must be elevated to a more promi- nent position in the planning and operations of the System 8. NOAA should make a concerted effort within the Administration and with Congress to secure substantially increased funding for NERRS 9. NOAA should strive to further strengthen the partnership that exists with the states and with NERRA 10. NOAA should form a NERRS Program Office, possibly in closer organizational proximity to the CZM Program 34 Strategic Plan - National Estuarine Research Reserve System Appendix B (cont.) 11. NOAA should embrace the nonprofit organizations that exist in support of NERRS and solicit their thoughts on ways to strengthen such groups 12. The NERRS Program staff should become acquainted with international programs having similar objectives 13. NOAA should reexamine its policies concerning multiple component reserves so as to ensure that each reserve has some central location and identity Review Panel on the National Estuarine Research Reserve System. The National Estuarine Research Reserve System: Building a Valuable National Asset. A Report to the National Oceanic 7nd Atmospheric Administration Panel Members: Dr. Franz E. Anderson, University of New Hampshire Mr. William Eichbaum, World Wildlife Fund Dr. Rosanne Fortner, Ohio State University Mr. John Humke, The Nature Conservancy Professor Robert Knecht, University of Delaware Mr. Mort Mather, Laudholm Trust Mr. Allen Putney, U.S. Office of the International Union for the Conservation of Nature and Natural Resources Mr. David Slade, Coastal States Organization Research Associate: Mr. Marc Suddleson, University of Delaware 35 Strategic Plan - National Estuarine Research Reserve System Appendix C Photo Credits p. 3 Courtesy of North Carolina Coastal Management Program p. 4 Courtesy of Maine Coastal Zone Management Program p. 6 Courtesy of Virginia Coastal Resources Management Program p. 14 Courtesy of Maryland Department of Natural Resources p. 16 Courtesy of Wells NERR p. 19 Courtesy of Tijuana River NERR p. 22 Courtesy of Chesapeake Bay NERR (VA) p. 30 Courtesy of Apalachicola NERR 36 H i668 14104 IIIIIIIIIII 3( 6716