An Ocean Blueprint for the 21st Century - California Ocean ...

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The federal governmentshould eliminatesubsidies andincentives for developmentand redevelopmentin coastalhigh hazard, floodand erosion areas.This is a matter ofprudent fiscal andemergency managementas much asenvironmentalprotection.—Jane Stahl, DeputyCommissioner of EnvironmentalProtection,State of Connecticut,testimony to theCommission, July 2002financial resources to move or elevate the home. 10 Absent this designation, many of theseproperties have been rebuilt in place, leading to repeated claims. Although only 2 percentof NFIP covered properties have received repetitive-loss payments, they account for 40percent of overall NFIP payments, many at cumulative totals exceeding the property’svalue. Although a national problem, between 1978 and 1995, Louisiana and Texasaccounted for $1.1 billion, or 40 percent of the $2.75 billion in total repetitive-loss claimspaid by the NFIP. 11Approximately 90 percent of repetitive-loss payments are for buildings that predate NFIPmaps. 12 This demonstrates the effectiveness and success of NFIP building standards for newconstruction in flood-prone areas, but also underscores the program’s lack of authority forreducing the vulnerability of older buildings. Many property owners underestimate their risk,resist investments in structural improvements that do not directly translate into higher homeprices, and then rely on federal disaster assistance as a fallback when floods occur. For someproperties, the most acceptable and economical solution for all concerned will be voluntarybuyouts at prices that allow property owners to relocate out of harm’s way.Eliminating Incentives for Development in Floodplains and Eroding AreasThe NFIP was created both as a more desirable alternative to federal disaster relief in thewake of flooding and as a tool to guide development away from flood prone areas throughstate and local floodplain management. However, of the 6.6 million buildings located in the100-year floodplains of participating communities, more than a third were built after theNFIP maps were created and floodplain management requirements imposed. 13 As one ofthe federal government’s principal tools for influencing development in high-hazard areas,the NFIP’s risk assessment, mitigation, and insurance components should be revamped tobetter achieve the original goal of discouraging communities from building in harm’s way.Recommendation 10–3The National Ocean Council should recommend changes in the National Flood InsuranceProgram (NFIP) to reduce incentives for development in high-hazard areas.Specifically, NFIP changes should:• establish clear disincentives to building or rebuilding in coastal high-hazard zones by requiringproperty owners at risk of erosion to pay actuarially sound rates for insurance.• enforce measures that reduce vulnerability to natural hazards, including assistance inretrofitting older structures and buyout programs for susceptible structures with repetitive-losshistories.• create enforceable mechanisms to direct development away from undeveloped floodplainsand erosion zones.Hazards Mitigation PlanningHazards mitigation planning—the process of assessing potential hazards and evaluatingand identifying actions to reduce or eliminate vulnerabilities—has been required of statesfor nearly two decades as a condition of receiving disaster relief and other FEMA funding.However, the quality of those plans, and the degree to which they are based on a soundprocess with adequate stakeholder involvement, vary widely. Major disaster losses in the1990s led FEMA to increase its attention to hazards mitigation planning, establishing aunit dedicated to that purpose in 1998.Congress also recognized that deficiencies in mitigation planning prevented the mosteffective use of disaster assistance funds. Communities recovering from disasters receivelittle guidance during the rebuilding process to improve their resilience to future disasters.In the Disaster Mitigation Act, passed in 2000, Congress directed FEMA to impose morestringent mitigation planning requirements on states. States that fail to meet FEMA’s newcriteria can be denied disaster assistance and some other types of funding, while states168 A N O CEAN B LUEPRINT FOR THE 21ST C ENTURY
that develop excellent mitigation plans are eligible to use a greater proportion of theirdisaster funding to implement further hazards mitigation projects.Effective hazards mitigation planning is fully consistent with watershed and ecosystembasedmanagement approaches because they all attempt to consider communities and theeffects of human activities within the broader environmental context. Effective watershedmanagement plans that include a hazards component can be used to satisfy FEMA’s mitigationplanning requirements. The agency has also expressed a goal of integrating sustainableredevelopment into its program, recognizing the interdependence among economicopportunity, community well-being, and protection of the natural environment.In 2002, FEMA issued regulations implementing enhanced mitigation planning standards,with compliance required for most state and local governments by October 2004.However, many state and local governments are struggling to comply with the new criteriabecause of severe fiscal constraints, technical difficulties, and relatively low levels of federalsupport. In addition to providing greater technical and financial assistance, it may beappropriate to withhold other forms of hazards-related federal financial assistance untilmitigation plans are in place. For example, the U.S. Small Business Administration hasnarrowed eligibility for its low-interest Pre-Disaster Mitigation Loan Program to communitieswith approved plans.Recommendation 10–4The Federal Emergency Management Agency (FEMA) should enhance technical assistanceto state and local governments for developing or improving their hazard mitigation plans.The National Ocean Council should identify opportunities for conditioning federal hazardsrelatedfinancial and infrastructure support on completion of FEMA-approved state and localhazards mitigation plans.References1 Mileti, D.S. Disasters by Design. Washington, DC: Joseph Henry Press, 1999.2 Consumer Federation of America. “America’s Disastrous Disaster System.” Posted January 30, 1998; accessed October 22, 2003.3 The H. John Heinz III Center for Science, Economics and the Environment. The Hidden Costs of Coastal Hazards.Washington, DC, 2000.4 National Research Council. Review Procedures for Water Resources Project Planning. Washington, DC: NationalAcademy Press, 2002.5 U.S. General Accounting Office. Flood Insurance: Challenges Facing the National Flood Insurance Program. Testimonybefore the Subcommittee on Housing and Community Opportunity, Committee on Financial Services, House ofRepresentatives. GAO–03–606T. Washington, DC, April 1, 2003.6 Federal Insurance and Mitigation Administration. National Flood Insurance Program: Program Description.Washington, DC: Federal Emergency Management Agency, August 1, 2002.7 Sharrocks, F., and A. Lichtenfels, Federal Emergency Management Agency, Mitigation Division. PersonalCommunication to the U.S. Commission on Ocean Policy, July 21, 2003.8 Federal Insurance and Mitigation Administration. National Flood Insurance Program: Program Description.Washington, DC: Federal Emergency Management Agency. August 1, 2002.9 The H. John Heinz III Center for Science, Economics, and the Environment. Evaluation of Erosion Hazards.Washington, DC, April 2000.10 Federal Insurance and Mitigation Administration. National Flood Insurance Program: Program Description.Washington, DC: Federal Emergency Management Agency, August 1, 2002.11 National Wildlife Federation. Higher Ground: A Report on Voluntary Property Buyouts in the Nation’s Floodplains.Washington, DC, 1998.12 Burby, R.J. “Flood Insurance and Floodplain Management: The U.S. Experience.” Environmental Hazards 3, no. 3 (July 2002).13 Ibid.C HAPTER 10: GUARDING P EOPLE AND P ROPERTY AGAINST N ATURAL H AZARDS169
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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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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
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
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
Page 205: Dave Gatley/FEMA News PhotoHomes bu
Page 209 and 210: tal and human disturbances such as
Page 211 and 212: PhotolinkCoastal habitats provide e
Page 213 and 214: Restoration efforts have intensifie
Page 215 and 216: Box 11.2 A Community Habitat Restor
Page 217 and 218: Although it has shown some success
Page 219 and 220: Box 12.1 Sediment: Friend or Foe?Se
Page 221 and 222: Changing Sediment QualityOver the l
Page 223 and 224: One of the difficulties in undertak
Page 225 and 226: Beneficial Uses of Dredged Material
Page 227 and 228: The National Shoreline Management S
Page 230 and 231: CHAPTER 13SUPPORTING MARINE COMMERC
Page 232 and 233: Figure 13.1 Ports Are the Primary G
Page 234 and 235: Harbors, Channels, and WaterwaysThe
Page 236 and 237: Recommendation 13-2Congress should
Page 238 and 239: Recommendation 13-5The U.S. Departm
Page 241 and 242: PART VC LEAR WATERS A HEAD:C OASTAL
Page 243 and 244: Figure 14.1 Report Card on Regional
Page 245 and 246: sources, such as industrial facilit
Page 247 and 248: meet water quality goals. Decisions
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
Page 255 and 256: 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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Recommendation 16-5Congress should
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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
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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
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
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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
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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,
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Page 557 and 558:
Page 559 and 560:
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
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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,
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jurisdiction issues, 72, 454nationa
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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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