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Table 7.1 Thirty Years of Proposals to ReorganizeFederal Management of Ocean and Coastal ResourcesBetween 1971 and 2001, there were many congressional, presidential, and federal advisory committee proposals to improve themanagement of oceans and other natural resources within the federal government. Details of these proposals are shownbelow. The icons on the left of each proposal correspond to Figure 7.1.■ Ash Council Proposal (1971) for a Department of NaturalResources: The proposal of the President’s AdvisoryCouncil on Executive Reorganization called for eightcabinet-level agencies, including a Department ofNatural Resources, which would include an Oceanic,Atmospheric, and Earth Science Administration madeup of the National Oceanic and Atmospheric Administration(NOAA) and the U.S. Geological Survey. Theproposal was modified in 1972 to also address thenation’s energy resources in the form of a Departmentof Energy and Natural Resources. Neither proposal wasacted upon by Congress.■ Moss Proposal (1973) for a Department of NaturalResources and Environment: The proposal (S. 27) calledfor the creation of a new Department of NaturalResources and Environment, and transferred all of thefunctions of the Department of the Interior, the WaterResources Council, the Energy Research and DevelopmentAdministration, the Nuclear Regulatory Commission,and the Federal Energy Administration to the newdepartment. Various functions of the Department ofCommerce (including NOAA), the Department ofDefense (civil works and civil regulatory functions), theDepartment of Agriculture, the Department of Transportation,and the Environmental Protection Agencywere also to be transferred to the new department. Theproposal was introduced again in 1975 (also S. 27), butno action was taken on either proposal.■ Dingell Proposal (1973) for a Department of NaturalResources: The proposal (H.R. 3249) called for redesignatingthe Department of the Interior as the Departmentof Natural Resources and moving NOAA to thisdepartment. No action was taken.■ Holifield Proposal (1973) for a Department of Energyand Natural Resources: The proposal (H.R. 9090) calledfor establishing an executive department to be knownas the Department of Energy and Natural Resources,with five administrations to include an Oceanic, Atmospheric,and Earth Sciences Administration. NOAA andseveral other agencies would be transferred to the newdepartment, with a division of functions among the fiveadministrations. No action was taken.■ McDade Proposal (1974) for a Department of NaturalResources: The proposal (H.R. 12733) called for redesignatingthe Department of the Interior as the Departmentof Natural Resources, within which a NationalOceanic and Atmospheric Agency would be established.No action was taken.■ Tunney Proposal (1975) for a Department of NaturalResources: The proposal (S. 2726) called for establishinga new Department of Natural Resources in the executivebranch, transferring all of the functions of the Departmentof the Interior, the Federal Energy Administration,the Federal Energy Research and Development Administration,and the Water Resources Council to the newdepartment. Various functions of the Departments ofCommerce, Defense, Agriculture, and Transportationwould also be transferred to the new department. Theproposal also called for the establishment of an ExecutiveOffice of Resource and Materials Policy and a JointCongressional Committee on Energy, Materials, and theEnvironment. No action was taken on this proposal.■ Ribicoff Proposal (1976) for a Department of Energyand Natural Resources: The proposal (S. 3339) calledfor establishing a Department of Energy and NaturalResources to assume the nonregulatory functions ofspecified agencies dealing with the management andconservation of natural resources and energy research.It also proposed to establish, within the Executive Officeof the President, the Natural Resources Council to facilitatecommunication among federal agencies responsiblefor natural resource management and policy and to recommendimprovements in such management and policy.No action was taken.■ Hollings Proposal (1976) for a Department of the Environmentand Oceans: The proposal (S. 3889) called forcreating a Department of the Environment and Oceans,transferring into this new department existing agencies,such as the Environmental Protection Agency, NOAA,and the U.S. Coast Guard, as well as a number of servicesand programs from both the U.S. Army Corps of Engineersand the Department of the Interior, to deal withthe nation’s “common property resources.” No actionwas taken.■ Percy Proposal (1977) for a Department of Energy Supplyand Natural Resources: The proposal (S. 591) calledfor reorganizing federal energy-related activities in theexecutive branch, temporarily establishing an EnergyPolicy Council and a cabinet-level Committee on Conservationto establish energy policy objectives. The proposalalso called for establishing an executive Department ofEnergy Supply and Natural Resources, transferring energyand natural resources functions from the Departmentof the Interior, the Federal Energy Administration, theEnergy Research and Development Administration, andthe U.S. Forest Service to the new agency, and transferringadditional functions to existing departments andagencies. No action was taken.116 A N O CEAN B LUEPRINT FOR THE 21ST C ENTURY
Table 7.1 (continued) Thirty Years of Proposals to ReorganizeFederal Management of Ocean and Coastal Resources■ Brooke Proposal (1977) for a Department of Environmentand Natural Resources: The proposal (S. 1481)called for creating a Department of Environment andNatural Resources, transferring all functions of theEnvironmental Protection Agency and the Departmentof the Interior to the new department. Additionalauthority with respect to oceans, vessel and facilitypollution control, coastal zone management, andatmospheric services was also to be transferred to thenew department. No action was taken.■ President Carter’s Reorganization Proposal (1978) for aDepartment of Natural Resources: The proposal calledfor a larger governmental reorganization, whichincluded a new Department of Natural Resources, toaddress the problems being faced on a national scalein the area of natural resource development, with themission of “managing the nation’s natural resources formultiple purposes, including protection, preservation,and wise use.” The composition of this new departmentwould be a large part of the Department of the Interior,NOAA, the U.S. Forest Service, and a number of programsfrom the Department of Agriculture and the U.SArmy Corps of Engineers’ Directorate of Civil Works.Within the department would be five administrations,one of which would be the Oceanic and AtmosphericAdministration to include the functions of NOAA; theBureau of Land Management’s Outer Continental Shelf(OCS) program; the U.S. Geological Survey ConservationDivision’s OCS program; U.S. Fish and Wildlife Service’sanadromous fisheries and marine mammal programs;and the Bureau of Reclamation’s Weather Modificationprogram. This proposal was not adopted.● National Advisory Committee on Oceans and Atmosphere(advisory to NOAA) (1971–87): This body, createdin 1971 as a result of the Stratton Commission, made anumber of recommendations for reorganization. In its1978 and 1979 reports, the National Advisory Committeeon Oceans and Atmosphere recommended that “thePresident and the Congress should refashion the nonmilitaryfederal structure dealing with the atmosphere,coastal zone, polar regions, and the oceans…[so as to]centralize programs and federal management elements…to improve control of activities relating to economicdevelopment, environmental protection, and scientificand technological capabilities in the oceans and affectingthe atmosphere.” These recommendations werenever implemented.● Scheuer Proposal (1983) for an independent NOAA: Theproposal (H.R. 3355) called for establishing NOAA as anindependent agency, granting the agency coordinationresponsibility for oceanic and atmospheric matters, andsetting forth the enforcement authority of the administration.No action was taken.● Forsythe Proposal (1983) for an independent NOAA: Theproposal (H.R. 3381) called for establishing NOAA as anindependent agency, granting it coordination responsibilityfor oceanic and atmospheric matters, and settingforth the enforcement authority of the administration.The bill reported to the House from the Committee onMerchant Marine and Fisheries, but the proposal wasnever adopted.● Weicker Proposal (1987) for an independent NOAA:The proposal (S. 821) called for establishing NOAA asan independent federal agency. No action was taken.● Lowry Proposal (1988) for an independent NOAA: Theproposal (H.R. 5070) called for establishing NOAA as anindependent agency to administer features of U.S. policywith respect to civil oceanic, coastal, and atmosphericactivities and programs. No action was taken.▲ Unsoeld Proposal (1993) for transfer of NOAA functions:The proposal (H.R. 2761) called for transferring to theDepartment of the Interior the following NOAA officesand assets: the National Ocean Service, the NationalMarine Fisheries Service, the Office of Oceanic andAtmospheric Research, the fleet of research and surveyvessels, and the NOAA Corps. It also called for the transferof components of the National Ocean Service thatcarry out coastal management and assessment programsto the Environmental Protection Agency. No action wastaken.▲ Chrysler Proposal (1995) for transfer of NOAA functions:After the House and Senate passed the Concurrent Resolutionon the Budget for Fiscal 1996 (H. Con. Res. 67),which called for eliminating the Department of Commerceas part of a congressional effort to streamlinegovernment, increase efficiency, and save taxpayer dollars,Congressman Chrysler introduced H.R. 1756, proposingto eliminate various parts of NOAA and transferother parts of the agency to other existing agencies aspart of an overall proposal to dismantle and wind upthe affairs of the Department of Commerce over aperiod of three years. As with other proposals of thismagnitude, the bill was referred to eleven committees,involving an additional ten subcommittees. Several committeemembers strongly dissented in the House Committeeon Ways and Means report (Rept. 104-260), butno specific mention was made about NOAA. Althoughseveral subcommittees discharged or reported on thebill, no further action was taken.● Abraham Proposal (1995, 1997) for an independentNOAA: The proposal (S. 929) called for re-establishingNOAA as an independent executive entity, following theabolishment of the Department of Commerce and transferringthe functions from the former NOAA to a newNOAA. It also set forth other administrative changes, aswell as the coordination of environmental policy. Theproposal was reported out of committee to the Senatefloor, but action was never taken. Variations of thisproposal were introduced again in 1997 (S. 1226 and S.1316), but no action was taken.C HAPTER 7: STRENGTHENING THE F EDERAL A GENCY S TRUCTURE 117
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FINAL REPORTAN OCEAN BLUEPRINTFOR T
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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
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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 Commission’s
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Figure 3.1 Large Marine Ecosystems
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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 and 130: Box 5.2 Nature and Functions of Reg
Page 131 and 132: Box 5.3 Moving Toward Improved Fede
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: Box 7.3 Historical Precedent for Pr
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
Page 181 and 182: Box 8.5 What Is Informal Education?
Page 183 and 184: to reach desired outcomes. While fe
Page 187 and 188: PART 4L IVING ON THE E DGE:E CONOMI
Page 189 and 190: Box 9.1 Coastal Activities Are Big
Page 191 and 192: state and local decision making, so
Page 193 and 194: • goals—State coastal managemen
Page 195 and 196: Other Relevant Federal ProgramsIn a
Page 197 and 198: forward. An applicant can appeal su
Page 199 and 200: References1 Culliton, T.J. Populati
Page 201 and 202: Improving Federal Managementof Haza
Page 203 and 204: 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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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
Page 521 and 522:
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
Page 527 and 528:
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
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
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• 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
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• 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
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Section 5. Biennial ReportBeginning
Page 572 and 573:
ACRONYMS APPEARING IN THE REPORTAAA
Page 575 and 576:
APPENDIX CLIVING NEAR…AND MAKINGA
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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
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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
Page 608 and 609:
Council on Environmental QualityCre
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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
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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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