U.S. Commission on Ocean Policy - Joint Ocean Commission Initiative

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• conduct a comprehensive national biological survey and monitoring program for earlydetection, building upon recent progress in this area by academia, the U.S. GeologicalSurvey, the National Oceanic and Atmospheric Administration, and the U.S. EnvironmentalProtection Agency.• determine the threshold needed to trigger a rapid response and develop environmentallysound rapid-response, eradication, and control actions.• designate resources for implementing surveys and eradication programs.• develop partnerships among government and industry to fund and implementresponse actions.Improving the Control of Invasive SpeciesAs biological invasions continue, there is a pressing need to improve the control of invasivespecies by reducing the overlaps and redundancies caused by the involvement of multipleagencies with insufficient interagency coordination. More than twenty federal entities,under ten departments or independent agencies, have some responsibility for invasivespecies management.Coordinated ActionThe Aquatic Nuisance Species Task Force and the National Invasive Species Council havemade a start in coordinating federal agencies and states. Yet different priorities among theagencies constrain full cooperation in funding and implementing invasive species programs.The ability to establish cross-agency goals is limited, and neither the Task Force nor theCouncil has established clear performance-oriented objectives in their work plans.Management of invasive species is particularly complicated because the initial sourceof the non-native species, the path of introduction, and the resulting ecological andeconomic impacts may be quite far removed from each other. This increases the need forclose coordination among different jurisdictions. Although national standards are impor-Box 17.2 Federal Departments and Agencies withRoles in Invasive Species Management• U.S. Department of AgricultureAgriculture Research ServiceAnimal and Plant HealthInspection ServiceCooperative State Research,Education, and Extension ServiceEconomic Research ServiceFarm Service AgencyForest ServiceNatural Resources Conservation Service• U.S. Department of CommerceNational Oceanic and AtmosphericAdministration• U.S. Department of DefenseU.S. Army Corps of Engineers• U.S. Environmental Protection Agency• U.S. Department of Homeland SecurityU.S. Coast GuardU.S. Customs and Border Protection• U.S. Department of the InteriorBureau of Indian AffairsBureau of Land ManagementBureau of ReclamationU.S. Fish and Wildlife ServiceU.S. Geological SurveyMinerals Management ServiceNational Park ServiceOffice of Insular Affairs• National Science Foundation• Smithsonian Institution• U.S. Department of State• U.S. Department of TransportationFederal Highway Administration• U.S. Department of the Treasury260 A N O CEAN B LUEPRINT FOR THE 21ST C ENTURY
tant for ballast water, coordinated regional or state actions may be more appropriate forother pathways. The Task Force promotes the development of state plans, but has hadonly marginal success in bringing resources to the regional panels and local authorities forimplementation.While most management plans focus on unintentional introductions, a noticeable gapin regulatory authority exists in the area of intentional introductions of non-native speciesfor commercial purposes. A recent example is the controversial proposal to introduce aChinese oyster (Crassostrea ariakensis) into the Chesapeake Bay to replace the vanishingnative oyster and revive the moribund oyster industry there. A 2003 National ResearchCouncil report concluded that a rigorous, consistent risk assessment protocol will beneeded to evaluate such proposals, but there is currently no authority or mechanism forconducting such assessments. 15Clearer policies will also be necessary as the aquaculture industry expands. Voluntaryself-regulation by participants in the aquaculture industry is likely to be ineffective becausethe costs of control are relatively high, it is difficult to trace an invasive species to a specificsource, and the negative consequences of an introduction are felt by those outside theindustry. (The need for a marine aquaculture regulatory regime is discussed in Chapter 22.)Recommendation 17–6The National Ocean Council (NOC) should review and streamline the current proliferation ofprograms for managing aquatic invasive species in marine environments, and should coordinatefederal, regional, and state efforts. Consolidated plans should be implemented to develop riskassessment and management approaches for intentional and unintentional species introductionsthat minimize the potential of invasions at the lowest cost.Specifically, the NOC should:• review the effectiveness of existing programs and legal authorities and clarify the linesof responsibility and enforcement authority, including responsibility for intentional introductionsof non-native species.• develop long-term goals and measures for evaluating effective performance.• estimate funding needs to prevent the introduction of invasive species, including supportfor regional and state programs.• determine whether, in the long term, a single agency should be charged with preventingthe entry of, monitoring, and containing invasive species in coastal and marine waters.International PartnershipsThe movement of invasive species is clearly a global concern, and successful programswill require strong international cooperation and coordination. In 2004, the InternationalMaritime Organization (IMO) adopted the International Convention for the Control andManagement of Ships’ Ballast Water and Sediments, designed to control the spread ofinvasive species carried in ships’ ballast water. The convention contains requirements forballast water management, but also allows countries to establish additional, more stringentnational or regional standards. The implications of this new convention for U.S.ballast water policy are currently under discussion. The United States should continueto pursue national legislative and regulatory remedies to limit ballast water introductionsinto the Great Lakes and U.S. coastal waters, while recognizing that international solutionsprovide the best long-term strategy for addressing the global threat presented by ships’ballast water.The United States can work with its closest neighbors, Canada and Mexico, todevelop a North American strategy, craft regional invasive species management programs,and encourage key commercial sectors to develop voluntary codes of conduct and otherself-regulatory mechanisms. Based on national and regional experiences, the United Statescan then promote international progress through appropriate conventions and treaties.C HAPTER 17: PREVENTING THE S PREAD OF I NVASIVE S PECIES 261
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FINAL REPORTAN OCEAN BLUEPRINTFOR T
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THE UNITED STATES IS AN OCEAN NATIO
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1120 20TH STREET, NW • SUITE 200
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U.S. COMMISSION ON OCEAN POLICYChai
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Shirley A. Pomponi, Ph.D.President
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ACKNOWLEDGEMENTSAn effort of this m
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CHAPTER 3SETTING THE NATION’S SIG
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PART IVLIVING ON THE EDGE: ECONOMIC
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Periodic Review and Modification...
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Expanding Research and Education ..
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CHAPTER 26ACHIEVING A SUSTAINED, IN
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Index to the Recommendations ......
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LIST OF FIGURES AND TABLESFigure 1.
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LIST OF BOXESBox 1.1 Defining Coast
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PHOTOGRAPH IDENTIFICATIONAND CREDIT
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The Value of the Oceans and CoastsA
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The message from both experts and t
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Guiding PrinciplesThe Commi
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appropriate national policies, and
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Based on an improved understanding
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Figure ES.5 Many Different Platform
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Figure ES.6 U.S. Students Fall Behi
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ciated with coastal population and
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To ensure good coordination, the In
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liferation of federal and state pro
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Preserving Coral Reefs and Other Co
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pation of all ocean-related federal
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also produce revenues in time, and
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CHAPTER 1RECOGNIZING OCEAN ASSETSAN
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Figure 1.2 The Value of the CoastsJ
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Box 1.1 Defining Coastal AreasThe c
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Figure 1.4 The Shift from Goods to
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Box 1.2 The “Fourth Seacoast”
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chemicals tend to bind to particles
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coastal watershed counties grew by
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One of the most immediate phenomena
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30 Fleming, L.E., et al. “The Epi
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CHAPTER 2UNDERSTANDING THE PASTTO S
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ments. The Navy’s ocean data hold
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The legislation was prompted by the
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The architects of ocean-related pro
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Congress on ocean and coastal issue
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Figure 2.1 Invited Panelists Repres
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CHAPTER 3SETTING THE NATION’S SIG
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USCOP File PhotoThe Commiss
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Figure 3.1 Large Marine Ecosystems
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damage is also high, managers shoul
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Figure 3.2 The Foundations of a New
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PRIMER ON OCEAN JURISDICTIONS:DRAWI
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The Territorial Sea (0 to 12 Nautic
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PART 2BLUEPRINT FOR CHANGE:A NEW NA
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Government agencies work on these a
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Recommendation 4-1Congress should e
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• reach out to state, territorial
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Figure 4.2 Proposed Structure for C
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References1 National Research Counc
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significant initiative by federal a
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The California Bay-Delta Authority
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Box 5.2 Nature and Functions of Reg
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Box 5.3 Moving Toward Improved Fede
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data collection efforts are essenti
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CHAPTER 6COORDINATING MANAGEMENTIN
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nisms for managing new ocean uses.
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sure that disputes are resolved and
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Reserve System, which is made up of
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Regional and Local StakeholdersPart
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Reviewing Previous Reorganization P
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Box 7.1 Improving Ocean and Coastal
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Box 7.2 Federal Ocean and Coastal A
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Box 7.3 Historical Precedent for Pr
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Table 7.1 (continued) Thirty Years
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PART 3OCEAN STEWARDSHIP:THE IMPORTA
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Ocean StewardshipTo successfully ad
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Therefore, the interaction and invo
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NOPP’s Ocean Research Advisory Pa
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Recommendation 8-4Ocean.ED should d
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Figure 8.2 U.S. Students Fall Behin
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Bridging the Gap between Scientists
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Recommendation 8-8Ocean.ED, working
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creativity that has expanded our un
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Recommendation 8-11Ocean.ED should
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Recommendation 8-14The National Sci
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Box 8.5 What Is Informal Education?
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to reach desired outcomes. While fe
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PART 4L IVING ON THE E DGE:E CONOMI
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Box 9.1 Coastal Activities Are Big
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state and local decision making, so
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• goals—State coastal managemen
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Other Relevant Federal ProgramsIn a
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forward. An applicant can appeal su
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References1 Culliton, T.J. Populati
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Improving Federal Managementof Haza
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Box 10.2 New Orleans at RiskPrior t
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Dave Gatley/FEMA News PhotoHomes bu
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that develop excellent mitigation p
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tal and human disturbances such as
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PhotolinkCoastal habitats provide e
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Restoration efforts have intensifie
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Box 11.2 A Community Habitat Restor
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Although it has shown some success
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Box 12.1 Sediment: Friend or Foe?Se
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Changing Sediment QualityOver the l
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One of the difficulties in undertak
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Beneficial Uses of Dredged Material
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The National Shoreline Management S
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CHAPTER 13SUPPORTING MARINE COMMERC
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Figure 13.1 Ports Are the Primary G
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Harbors, Channels, and WaterwaysThe
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Recommendation 13-2Congress should
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Recommendation 13-5The U.S. Departm
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PART VC LEAR WATERS A HEAD:C OASTAL
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Figure 14.1 Report Card on Regional
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sources, such as industrial facilit
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Page 249 and 250: Animal Feeding OperationsMany anima
Page 251 and 252: nants over land, into streams and g
Page 253 and 254: Major Nonpoint SourcesThe majority
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Page 257 and 258: Expanding Uses of State Revolving F
Page 259 and 260: Recommendation 14-11The U.S. Enviro
Page 261 and 262: assisting in the implementation of
Page 263 and 264: References1 U.S. Environmental Prot
Page 265 and 266: Box 15.1 Ocean and Coastal Monitori
Page 267 and 268: EPA’s Environmental Monitoring an
Page 269 and 270: local, and municipal governments, w
Page 271 and 272: System DesignSampling protocols are
Page 273 and 274: Making Data Accessible and UsefulA
Page 275 and 276: and 75 percent of cargo ships opera
Page 277 and 278: Although many flag states take thei
Page 279 and 280: Reducing Vessel PollutionStrengthen
Page 281 and 282: Recommendation 16-5Congress should
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Page 285 and 286: Figure 16.2 The Oil Pollution Act C
Page 287 and 288: developing new regulatory and non-r
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Page 291 and 292: Box 17.1 What Is an Invasive Specie
Page 293 and 294: Figure 17.2 Addressing Aquatic Inva
Page 295 and 296: Global Trade in Marine OrganismsHum
Page 297: Recommendation 17-4The National Oce
Page 301 and 302: 10 U.S. General Accounting Office.
Page 303 and 304: each in the entire world. 3 A study
Page 305 and 306: Research Program), directed by NOAA
Page 307 and 308: established simply on the basis of
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Page 312 and 313: CHAPTER 19ACHIEVING SUSTAINABLEFISH
Page 314 and 315: Figure 19.1 Fishery LitigationGrows
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Page 322 and 323: Figure 19.3 Migratory Fish RequireC
Page 324 and 325: majority of RFMC members, may tend
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Page 328 and 329: Recommendation 19-15Congress should
Page 330 and 331: NOAA Photo LibraryEnforcement Partn
Page 332 and 333: The cost of VMS for fishing vessel
Page 334 and 335: Ecosystem-based management will als
Page 336 and 337: Recommendation 19-21The National Ma
Page 338 and 339: • Major government subsidies aime
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Page 345 and 346: fishing line because they are not a
Page 347 and 348: Reviewing Authorities and Responsib
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The division of endangered species
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PhotolinkHumans love to observe mar
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Although not always caused by human
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Box 20.1 Making a Case for Ecosyste
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9 Flint, E. and Swift, K. eds. Seco
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Figure 21.1 Tropical Waters Are Hom
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appear to be exacerbating other cor
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task force are the U.S. Department
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exploitation by strictly regulating
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CHAPTER 22SETTING A COURSE FORSUSTA
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which are widespread in European sa
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cies, and provides recommendations
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Promoting International Improvement
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tissues of fish and shellfish. When
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Box 23.1 Special Focus on Microbial
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Recommendation 23-1The National Oce
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Figure 23.1 Harmful Algal Blooms on
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waters used for drinking and public
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The FDA is responsible for ensuring
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over control of offshore waters. On
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Figure 24.1 Offshore Oil and Gas Le
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Trends in Domestic Offshore Oil and
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Table 24.1 Federal Revenues from Of
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State Involvement in OCS Oil and Ga
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Figure 24.3 Oil Inputs to theNorth
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The estimated amount of natural gas
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Box 24.3 A Mighty Wind Blows in Cap
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commercial recovery, including offs
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PART VIIS CIENCE- BASED D ECISIONS:
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hydrologic, and atmospheric systems
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down about one-half of the highly-r
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ocean temperature can put the healt
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Natural Hazards• basic understand
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ating valuable information, includi
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The National Sea Grant College Prog
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The Value of Ocean ExplorationAbout
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Box 25.2 Primary Federal Agencies t
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Recommendation 25-7The Federal Geog
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CHAPTER 26ACHIEVING A SUSTAINED,INT
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An integrated ocean and coastal obs
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nation’s coastal and marine resou
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One obvious application of the obse
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Recommendation 26-5Ocean.US should
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Recommendation 26-7Ocean.US should
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Box 26.3 The National Weather Servi
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Box 26.4 An Investment with Big Ret
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Islands, and Palau). Examples of ca
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This chapter does not attempt to pr
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Furthermore, while some facilities
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University of Hawaii Marine CenterT
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cost of approximately $5 million; a
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communication capabilities are also
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A Coast Guard cutter and helicopter
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surface temperature measurements, a
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References1 Office of Technology As
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Box 28.1 Data Management Terminolog
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to gather and integrate data from s
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Figure 28.2 The Growing Demand for
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• coordinate federal agency effor
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Recommendation 28-3Ocean.IT should
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PART VIIITHE GLOBAL OCEAN:U.S. PART
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intergovernmental cooperation, and
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the LOS Convention are in the proce
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Table 29.1 (continued) U.S. Partici
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Meeting International ObligationsAl
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Box 29.1 Selected International Bod
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International Ocean Science Program
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Box 29.2 U.S. Involvement in Intern
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CHAPTER 30FUNDING NEEDS ANDPOSSIBLE
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Table 30.1 Summary of Costs Associa
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Table 30.1 (continued) Summary of C
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also require federal support to bec
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Other Ocean and Coastal Management
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Chapter 24 also addresses the poten
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Nevertheless, the need remains for
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• Multiple Use Management: The ma
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Index to the RecommendationsThe fol
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Department of DefenseArmy Corps of
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Recommendations to Regional BodiesR
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• expand education and outreach e
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Chapter 5: Advancing a Regional App
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Chapter 7: Strengthening the Federa
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• expanding the reach of each cen
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Recommendation 8-15The Office of Na
Page 529 and 530:
Page 531 and 532:
Recommendation 12-4The National Dre
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Chapter 14: Addressing Coastal Wate
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Recommendation 14-12The U.S. Enviro
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Recommendation 16-6The U.S. Environ
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Recommendation 17-5The National Inv
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• the National Oceanic and Atmosp
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Recommendation 19-21The National Ma
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Chapter 22: Setting a Course for Su
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• work with the National Ocean Co
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• an interagency steering group,
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Chapter 29: Advancing International
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PART XA PPENDICESAPPENDIX AOCEANS A
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One Hundred Sixth CongressOf theUni
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(e) MEETINGS—(1) ADMINISTRATION
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Section 5. Biennial ReportBeginning
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ACRONYMS APPEARING IN THE REPORTAAA
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APPENDIX CLIVING NEAR…AND MAKINGA
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growing much faster. The region nea
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2. DEFINING THE COASTWhat is meant
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almost doubled in population over t
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4. THE COASTAL AND OCEANECONOMY OF
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Figure C.5 Changes in the Ocean Eco
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Figure C.7 Regional Distribution of
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5. THE COASTAL AND OCEANECONOMY BEY
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6. IMPLICATIONSThe changes in the c
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7. THE FUTURE OF UNDERSTANDINGTHE C
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Table C.1 Population Change in the
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Table C.4 Population Growth by Coas
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REFERENCESApogee Research and Resou
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NOTES1 “Counties” in this conte
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SECTION 3OCEAN AND COASTAL-RELATED
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SECTION 1PURPOSE OF THIS GLOSSARYTh
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Council on Environmental QualityCre
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SECTION 3OCEAN AND COASTAL-RELATEDF
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Comprehensive Environmental Respons
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Marine Plastic Pollution Researchan
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Outer Continental Shelf Lands ActTh
Page 618 and 619:
Clean Water Act—National EstuaryP
Page 620 and 621:
Farm Bill Conservation ProgramsCong
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APPENDIX EP ROPOSED S TRUCTURE FORC
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APPENDIX FC ONGRESSIONAL C OMMITTEE
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Table F.1 Congressional Committees
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Committee on Transportation and Inf
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Detailed Costs Associated with Reco
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Page 638 and 639:
Page 640 and 641:
Page 642 and 643:
Page 644 and 645:
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INDEXacademic/academia, 260aquacult
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federal area-based programs,34, 150
Page 650 and 651:
integration of multiplesources, 234
Page 652 and 653:
programmatic permitting,312-314prot
Page 654 and 655:
coordination and cooperationin, 100
Page 656 and 657:
Department of Educationinitiative,
Page 658 and 659:
invasive species, 252-263aquacultur
Page 660 and 661:
common heritage of mankind,53deep s
Page 662 and 663:
monitoring programs, 228,230, 231,
Page 664 and 665:
jurisdiction issues, 72, 454nationa
Page 666 and 667:
Mid-Atlantic, 276, 278, 288mission,
Page 668 and 669:
single-hull vessel phase-outs,54, 2
Page 670 and 671:
Service, 215, 260Economic Research
Page 672:
pharmaceuticals and antibiotics,209
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