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Enhancing Federal Support for a Regional ApproachFederal Agency CoordinationFor coastal states, it’sdifficult enough tofigure out how todeal with the manyoffices and programswithin NOAA, letalone the complexinteractions of all theother federal agenciesof jurisdiction.—The Honorable MaryNichols, Secretary ofResources, State of California,testimony to theCommission, April 2002Federal agencies play an important role in the management of ocean and coastal resourcesby addressing issues of national significance, supporting state and local management efforts,and encouraging environmental stewardship among all citizens. Within each of the nation’sregions, federal policies and programs are carried out that affect common resources. Often,these activities overlap, conflict, or are inconsistent with one another, impeding efforts atall levels to effectively address regional concerns. For example, navigation projects, highwaydevelopment, and other federal infrastructure activities often conflict with environmentalprotection goals. Several federal agencies oversee habitat protection and restoration programs,but in isolation from one another. Furthermore, federal regulations and permitrequirements are typically applied on a project-by-project basis, without adequate considerationof the cumulative effect of these decisions on ocean and coastal ecosystems.Federal agencies can support regional progress by immediately improving their owncoordination at the regional level. Systematic collaboration will lead to better integrationof federal policies, strategies, plans, programs, and other activities within the region. Itwill also help the agencies identify inconsistencies in agency mandates, policies, regulations,practices, or funding. The agencies can then communicate these and other regionalconcerns and priorities to the National Ocean Council, which may in turn recommendchanges to existing laws, regulations, practices, and funding.Equally important, regionally coordinated federal agencies will provide a visible pointof contact for nonfederal entities, enhancing communication in both directions—federalagencies will be able to reach out to local and state governments and other stakeholders,while nonfederal groups will know where to convey regional priorities, issues of concern,and information needs to federal agencies. All interested parties will be able to exchangeinformation more effectively, develop regional goals, and mitigate the cumulative impactsof activities in the region.A regionally coordinated federal presence will provide an additional incentive for theformation of regional ocean councils that can serve as clear counterparts to work with thefederal agencies. The recent creation of a Great Lakes Interagency Task Force is oneattempt to improve federal coordination at the regional level (Box 5.3).Recommendation 5–2The President, through an executive order, should direct all federal agencies with oceanandcoastal-related functions to immediately improve their regional coordination and increasetheir outreach efforts to regional stakeholders.To initiate this process, NOAA, EPA, USACE, DOI, and USDA should:• collaborate with regional, state, territorial, tribal, and local governments, andnongovernmental parties to identify regional priorities and information needs.• identify inconsistencies in agency mandates, policies, regulations, practices, or fundingthat prevent regional issues from being effectively addressed and communicate these tothe National Ocean Council.• improve coordination and communication among agencies, including the possible developmentof interagency protocols to guide regional decision making.• coordinate funding and grants in a manner consistent with regional priorities.Moving Toward Common Regional BoundariesMany federal agencies already divide their nationwide operations and managementresponsibilities along regional lines. For example: the U.S. Environmental Protection92 A N O CEAN B LUEPRINT FOR THE 21ST C ENTURY
Box 5.3 Moving Toward Improved Federal and Stakeholder Coordinationin the Great Lakes RegionThe five Great Lakes and their related waterways span eight U.S. states and two Canadianprovinces. They comprise the largest freshwater system in the world, containing 20 percentof the world’s freshwater and occupying a nearly 200,000 square-mile basin. The GreatLakes have been the focus of regional management for more than a century, originatingfrom the need to avoid and resolve disputes over control of water levels and flows in thebasin. The United States and Canada have also joined together in bilateral treaties and agreementsto address shared concerns. Numerous regional intergovernmental organizations havebeen established to address basin-wide issues, many of which have binational representation.Examples include the International Joint Commission, Great Lakes Fishery Commission, GreatLakes Commission, Council of Great Lakes Governors, Great Lakes Cities Initiative, and theInternational Association of Great Lakes and St. Lawrence Mayors. There are also several nongovernmentalorganizations, such as Great Lakes United, that are concerned with the healthof the Great Lakes ecosystem.A plethora of government programs help fund and implement environmental restorationand management activities throughout the Great Lakes region. A 2003 report by the U.S.General Accounting Office (GAO) found that there are over 140 such programs administeredby federal agencies, and another 51 at the state level. i Despite the abundance of regional initiativesand government programs, the GAO found a lack of coordination among the GreatLakes environmental strategies being used at the international, federal, and state levels. Thelack of a coordinated strategy hinders progress toward establishing priorities, assessingprogress, and applying ecosystem-based management throughout the Great Lakes basin.Recent developments show promise for improving coordination among federal agenciesand regional stakeholders in the Great Lakes. In May 2004, President Bush signed an executiveorder creating the Great Lakes Task Force. The Task Force will bring together ten federalagencies with responsibilities in the Great Lakes basin to better coordinate their policies andprograms at both the national and regional levels. The executive order also calls on the federalagencies to collaborate with Canada, Great Lakes states, tribal, and local governments,communities, and other interests to address nationally significant environmental andresource management issues in the basin.The executive order should benefit the many intergovernmental bodies in the basin byenabling more systematic collaboration and better integration at all levels. Establishment ofthe Task Force may also spur the development of a complementary process of collaborationamong the existing intergovernmental bodies in the region to create a more unified regionalvoice in support of ecosystem-wide goals and priorities for the Great Lakes.iU.S. General Accounting Office. Great Lakes: An Overall Strategy and Indicators for Measuring Progress Are Neededto Better Achieve Restoration Goals. GAO–03–515. Washington, DC, April 2003.Agency (EPA) has ten regional offices throughout the nation, mapped along state lines;the U.S. Fish and Wildlife Service has seven regions, also following state lines but differentfrom the EPA regions; and the U.S. Army Corps of Engineers is organized into eightregions defined by the boundaries of watersheds, not states (Figure 5.1). The structuresand functions of regional offices also differ among agencies, with some possessing moreindependence and authority than others. In some cases, regional offices have not hadstrong ties to their agencies’ national management, and it is common for the regionaloffice of one agency to operate in isolation from the corresponding regional offices ofother agencies. The current structure hinders the ability of federal agencies with oceanandcoastal-related responsibilities to effectively interact on a regional basis with eachother and with state, territorial, tribal, and local entities.C HAPTER 5: ADVANCING A R EGIONAL A PPROACH 93
Page 3 and 4:
FINAL REPORTAN OCEAN BLUEPRINTFOR T
Page 5:
THE UNITED STATES IS AN OCEAN NATIO
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Page 2—The Presidentocean educati
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Page 2—The Honorable William H. F
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Page 2—The Honorable J. Dennis Ha
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SCIENCE ADVISORY PANELDonald F. Boe
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COMMISSION STAFFThomas KitsosExecut
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Robert Richmond, Robert Ross, Amy S
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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 Commission be
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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
Page 80 and 81: coastal watershed counties grew by
Page 82 and 83: One of the most immediate phenomena
Page 84 and 85: 30 Fleming, L.E., et al. “The Epi
Page 86 and 87: CHAPTER 2UNDERSTANDING THE PASTTO S
Page 88 and 89: ments. The Navy’s ocean data hold
Page 90 and 91: The legislation was prompted by the
Page 92 and 93: The architects of ocean-related pro
Page 94 and 95: Congress on ocean and coastal issue
Page 96 and 97: Figure 2.1 Invited Panelists Repres
Page 98 and 99: CHAPTER 3SETTING THE NATION’S SIG
Page 100 and 101: USCOP File PhotoThe Commission’s
Page 102 and 103: Figure 3.1 Large Marine Ecosystems
Page 104 and 105: damage is also high, managers shoul
Page 106 and 107: Figure 3.2 The Foundations of a New
Page 108 and 109: PRIMER ON OCEAN JURISDICTIONS:DRAWI
Page 110 and 111: The Territorial Sea (0 to 12 Nautic
Page 113 and 114: PART 2BLUEPRINT FOR CHANGE:A NEW NA
Page 115 and 116: Government agencies work on these a
Page 117 and 118: Recommendation 4-1Congress should e
Page 119 and 120: • reach out to state, territorial
Page 121 and 122: Figure 4.2 Proposed Structure for C
Page 123 and 124: References1 National Research Counc
Page 125 and 126: significant initiative by federal a
Page 127 and 128: The California Bay-Delta Authority
Page 129: Box 5.2 Nature and Functions of Reg
Page 133 and 134: data collection efforts are essenti
Page 136 and 137: CHAPTER 6COORDINATING MANAGEMENTIN
Page 138 and 139: nisms for managing new ocean uses.
Page 140 and 141: sure that disputes are resolved and
Page 142 and 143: Reserve System, which is made up of
Page 144: Regional and Local StakeholdersPart
Page 147 and 148: Reviewing Previous Reorganization P
Page 149 and 150: Box 7.1 Improving Ocean and Coastal
Page 151 and 152: Box 7.2 Federal Ocean and Coastal A
Page 153 and 154: Box 7.3 Historical Precedent for Pr
Page 155 and 156: Table 7.1 (continued) Thirty Years
Page 159 and 160: PART 3OCEAN STEWARDSHIP:THE IMPORTA
Page 161 and 162: Ocean StewardshipTo successfully ad
Page 163 and 164: Therefore, the interaction and invo
Page 165 and 166: NOPP’s Ocean Research Advisory Pa
Page 167 and 168: Recommendation 8-4Ocean.ED should d
Page 169 and 170: Figure 8.2 U.S. Students Fall Behin
Page 171 and 172: Bridging the Gap between Scientists
Page 173 and 174: Recommendation 8-8Ocean.ED, working
Page 175 and 176: creativity that has expanded our un
Page 177 and 178: Recommendation 8-11Ocean.ED should
Page 179 and 180: 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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meet water quality goals. Decisions
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Animal Feeding OperationsMany anima
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nants over land, into streams and g
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Major Nonpoint SourcesThe majority
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USCOP File PhotoUSCOP File PhotoAs
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Expanding Uses of State Revolving F
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Recommendation 14-11The U.S. Enviro
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assisting in the implementation of
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References1 U.S. Environmental Prot
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Box 15.1 Ocean and Coastal Monitori
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EPA’s Environmental Monitoring an
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local, and municipal governments, w
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System DesignSampling protocols are
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Making Data Accessible and UsefulA
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and 75 percent of cargo ships opera
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Although many flag states take thei
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Reducing Vessel PollutionStrengthen
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Voluntary actions can provide a use
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Figure 16.2 The Oil Pollution Act C
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developing new regulatory and non-r
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25 Ibid.26 Center for Environmental
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Box 17.1 What Is an Invasive Specie
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Figure 17.2 Addressing Aquatic Inva
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Global Trade in Marine OrganismsHum
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Recommendation 17-4The National Oce
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tant for ballast water, coordinated
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10 U.S. General Accounting Office.
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each in the entire world. 3 A study
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Research Program), directed by NOAA
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established simply on the basis of
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References1 U.S. Department of Comm
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CHAPTER 19ACHIEVING SUSTAINABLEFISH
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Figure 19.1 Fishery LitigationGrows
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While determining allowable biologi
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Although the Secretary of Commerce
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platforms to expand the scope of da
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Figure 19.3 Migratory Fish RequireC
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majority of RFMC members, may tend
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entrants to a fishery. However, the
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NOAA Photo LibraryEnforcement Partn
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The cost of VMS for fishing vessel
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Ecosystem-based management will als
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Recommendation 19-21The National Ma
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• Major government subsidies aime
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oad regions of the seas, the existi
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References1 U.S. Commission on Mari
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fishing line because they are not a
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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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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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Page 391 and 392:
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
Page 429 and 430:
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
Page 438 and 439:
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
Page 448:
Islands, and Palau). Examples of ca
Page 451 and 452:
This chapter does not attempt to pr
Page 453 and 454:
Furthermore, while some facilities
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University of Hawaii Marine CenterT
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cost of approximately $5 million; a
Page 459 and 460:
communication capabilities are also
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A Coast Guard cutter and helicopter
Page 463 and 464:
surface temperature measurements, a
Page 465 and 466:
References1 Office of Technology As
Page 467 and 468:
Box 28.1 Data Management Terminolog
Page 469 and 470:
to gather and integrate data from s
Page 471 and 472:
Figure 28.2 The Growing Demand for
Page 473 and 474:
• coordinate federal agency effor
Page 475 and 476:
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
Page 485 and 486:
Table 29.1 (continued) U.S. Partici
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Meeting International ObligationsAl
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Box 29.1 Selected International Bod
Page 491 and 492:
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
Page 504 and 505:
Other Ocean and Coastal Management
Page 506 and 507:
Chapter 24 also addresses the poten
Page 508:
Nevertheless, the need remains for
Page 511 and 512:
• Multiple Use Management: The ma
Page 513 and 514:
Index to the RecommendationsThe fol
Page 515 and 516:
Department of DefenseArmy Corps of
Page 517 and 518:
Recommendations to Regional BodiesR
Page 519 and 520:
• expand education and outreach e
Page 521 and 522:
Chapter 5: Advancing a Regional App
Page 523 and 524:
Chapter 7: Strengthening the Federa
Page 525 and 526:
• expanding the reach of each cen
Page 527 and 528:
Recommendation 8-15The Office of Na
Page 529 and 530:
Page 531 and 532:
Recommendation 12-4The National Dre
Page 533 and 534:
Chapter 14: Addressing Coastal Wate
Page 535 and 536:
Recommendation 14-12The U.S. Enviro
Page 537 and 538:
Recommendation 16-6The U.S. Environ
Page 539 and 540:
Recommendation 17-5The National Inv
Page 541 and 542:
• the National Oceanic and Atmosp
Page 543 and 544:
Page 545 and 546:
Recommendation 19-21The National Ma
Page 547 and 548:
Page 549 and 550:
Chapter 22: Setting a Course for Su
Page 551 and 552:
• work with the National Ocean Co
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• an interagency steering group,
Page 555 and 556:
Page 557 and 558:
Page 559 and 560:
Chapter 29: Advancing International
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PART XA PPENDICESAPPENDIX AOCEANS A
Page 566 and 567:
One Hundred Sixth CongressOf theUni
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(e) MEETINGS—(1) ADMINISTRATION
Page 570 and 571:
Section 5. Biennial ReportBeginning
Page 572 and 573:
ACRONYMS APPEARING IN THE REPORTAAA
Page 575 and 576:
APPENDIX CLIVING NEAR…AND MAKINGA
Page 577 and 578:
growing much faster. The region nea
Page 579 and 580:
2. DEFINING THE COASTWhat is meant
Page 581 and 582:
almost doubled in population over t
Page 583 and 584:
4. THE COASTAL AND OCEANECONOMY OF
Page 585 and 586:
Figure C.5 Changes in the Ocean Eco
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Figure C.7 Regional Distribution of
Page 589 and 590:
5. THE COASTAL AND OCEANECONOMY BEY
Page 591 and 592:
6. IMPLICATIONSThe changes in the c
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7. THE FUTURE OF UNDERSTANDINGTHE C
Page 595 and 596:
Table C.1 Population Change in the
Page 597 and 598:
Table C.4 Population Growth by Coas
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REFERENCESApogee Research and Resou
Page 601:
NOTES1 “Counties” in this conte
Page 604 and 605:
SECTION 3OCEAN AND COASTAL-RELATED
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SECTION 1PURPOSE OF THIS GLOSSARYTh
Page 608 and 609:
Council on Environmental QualityCre
Page 610 and 611:
SECTION 3OCEAN AND COASTAL-RELATEDF
Page 612 and 613:
Comprehensive Environmental Respons
Page 614 and 615:
Marine Plastic Pollution Researchan
Page 616 and 617:
Outer Continental Shelf Lands ActTh
Page 618 and 619:
Clean Water Act—National EstuaryP
Page 620 and 621:
Farm Bill Conservation ProgramsCong
Page 623:
APPENDIX EP ROPOSED S TRUCTURE FORC
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APPENDIX FC ONGRESSIONAL C OMMITTEE
Page 629 and 630:
Table F.1 Congressional Committees
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Committee on Transportation and Inf
Page 634 and 635:
Detailed Costs Associated with Reco
Page 636 and 637:
Page 638 and 639:
Page 640 and 641:
Page 642 and 643:
Page 644 and 645:
Page 646 and 647:
INDEXacademic/academia, 260aquacult
Page 648 and 649:
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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