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GC 1020 .T87 1999 c.2 L111 '-7 M `00' 41@' 17 0 build A -tyregional, Al economi and to-ther interests a C ay -ag da f sm, el;p bring i eft6f� in MM of wmih- vaisi ve ocean, s, -ev or t 75. Offi cial White H ho!Ography MR-M @Re have to, ds -.1=7 ..".5w., =7@ U I I ty9 a"T T79T . .. . ...... --Actk 0@ ,It r@y A /AX., F: John Pisani, QWIM e Ua. bepartment of C Bria nkuA Ron Pouls OmIrl'a c,e f icAdm' sttaitio OR Eric,Cha'pman, USCG* mlichaef'P'@r` N atibnal Go0aftic and, AllhosPlid!@ iff"i n @en or e'. Nev'v'' Erika Clark SI. D'e'Ipaff t f th u H. Larry Clark S. be aftftlienti6f. Aug,itc-u4TM0, Wayne Raabe p Elizabeth-My Mithael ReeV U.S. DepdMOnt of Defenge e ZFI Elliot Diringer 0.8-Alpiy Corps of trigin9. s @-uzanne Schw.-Aftz U.S.'D'OpArtmentof the thteridr Or., SVIVU.A@ Emarle @Fra,h Sharples k-fiD.Evans Russell,Sm iith" murrehimane Feld, Milte Soul it, 'T, @' 1.11' - M Dr., R-fchaM Mfl- t,;@r "RO-Q'i 7Zh ME, "Imp A mm@@ "Hope, creativity, and imegination will be required to meet the challenges that we face with our oceans. But they are, after all, the traits that first enabled and inspired explorers to take to the sea. They are traits that allowed us to look at our inextricable ties to our environment and invent new ways to protect our natural wonders....In the 21st century, these traits must lead us to preserve out living oceans as a sacred legacy for all time." President Williams Jefferson Clinton --------------------------------- --------------------------------- --------------------------------- --------------------------------- --------------------------------- --------------------------------- --------------------------------- --------------------------------- --------------------------------- --------------------------------- wc 00 6, 2-0 [email protected] 22 8ioteChh<rqfy 24 Offflibte, 04 and b 29c Tfti@"Laid of the 'on 9 j avi-ti n If N , iga, io -e Law'Eh @32 Mbritfrei forc!@@, 36 S_wJlkrff6rg6d Herita.06 Rl@s_b_Wdffes 38 Coral- Rbdfs 46 BtUaries 4z matimb P.roteeteSLaM JAW. % 44"A 2- 4 A Look to the Future September 2, 1999 To The President: In June of last year, you and Vise President Gore presided over the National Ocean Conference in Monterey, which drew together for the first time the full array of ocean interests-from government to industry, science to conservation. Among the many initiatives you and the Vce President's launched at that historic gathering were new steps to restore coastal reefs, rebuild marine fisheries, preserve freedom of the seas, provide public access to military data and technology, enhance the competitiveness of America's ports, and protect our national marine sanctuaryies from oil drilling. In your address to the Conference, you also directed your Cabinet to report back to you with additional recommendations fora coordinated, disciplined, long-term federal ocean policy. Today, on behalf of the Cabinet and independent agencies with reponsibility for ocean affairs, we are pleased to submit this report with our recommendations for a comprehensive policy to guide federal efforts into the 21st century. The national dialogue begun in Monterey reflects the diverse, sometimes competing values inherent in our oceans. The seas are not only a source of economic benefit and a major avenue of world trade, but they are also a vital component of our national defense, a natural treasure to be preserved, and a fascinating frontier with secrets yet to be discovered. Our recommendations build on the broad consensus among Conference participants on the vital importance of the oceans to our nation's future-our economy, our security, our health and well-being-and the challenges we face in ensuring that all the ocean's many resources are protected and sustained. There is growing awareness among Americans of the many ways the oceans influence our daily lives. Farmers in the nation's heartland depend on weather systems driven by the interaction of the oceans and atmosphere to nourish their crops. Citizens who have never seen an ocean may benefit from energy and food from the waters off our coasts. Marine organisms provide the cure for many diseases and the promise of many more cures. Ocean-going vessels carry the bulk of our world trade, linking us to the global marketplace and keeping our economy strong. Our naval forces, which preserve the international freedoms of navigation so crucial to maritime commerce and global stability, use ocean data daily in their worldwide operations. A strong national security is essential to our nation's ocean policy. At the same time, we have come to understand that the "boundless" oceans have limits. They cannot provide unlimited fish to feed the growing populations of the world, nor can they absorb unlimited wastes from human activities. We also are beginning to realize the importance of preserving the oceans'complex and deh- Cate balances. Non-native species discharged from ships'ballast tanks into U.S. waters can irrevocably alter an ecosystem. Toxic algal blooms are degrading many coastal areas; knowing how they form will be key to preventing future out- breaks. And unchecked coastal development risks destroying ocean habitats that sustain economic activity and the natural splendor that for ages has drawn us to the sea. t One thing is dear: if we truly are to protect our oceans - and the many benefits they provide - we first must better understand them. We only recently discovered whole colonies of previously unknown types of life surviving at great 4- ocean depths, drawing their life energy - not from the sun like other known /4". 410 life forms - but from chemicals under the seafloor. We have dis- C overed that life exists in every drop of sea water, and we have -.Mal w'- @ryop Wsea,@7a@er, e @ave WarlyneMurawskil NGS image collection S Cirn @fiture 3 refined our understanding of the way the oceans drive climatic patterns like El Niho, which shape the weather across the globe. Yet, despite such advances, the seas remain largely unexplored. More ocean data and research are critical for identifying new resources and economic opportunities, maintaining our military readiness, and ensuring healthy oceans for future generations. In developing the recommendations contained in this report, we have been guided by the following core principles: SUSTAINING THE ECONOMIC BENEFITS OF THE OCEANS - Future generations deserve to inherit healthy, bountiful oceans. STRENGTHENING GLOBAL SECURITY - Freedom of the seas is integral to the strength and security of our nation. PROTECTING MARINE RESOURCES - Strong protection of our ocean and coastal environ- ment, using a precautionary approach and sound management, is no longer a choice, but a necessity DISCOVERING THE OCEANS - Exploring and understanding the oceans is critical to our well-being and survival. In the pages that follow, we offer specific recomrnendations in twenty-five subject areas. For example: L' To sustain economic benefits, we recommend working with coastal communities on plans for sustainable development; creating new incentives to reduce overfishing and develop guidelines for environmentally sound aquaculture; and increasing support for identifying and harvesting marine resources with pharmaceutical benefits. To strengthen global security we recommend working with the U.S. Senate to ensure CMC F. early ratification of the Law of the Sea Convention; improving our ability to detect and deter maritime threats before they reach our shores; expanding efforts to maintain and exercise traditional freedoms of navigation and overflight around the world; and extending to 24 nautical miles the "contiguous zone" for enhanced federal law enforcement purposes. to the,-S@a@ @,4 To protect marine resources, we recommend coordinating federal efforts with state and local "smart growth" initiatives in the coastal zone; taking new steps to reduce urban and agricultural runoff; strengthening efforts to protect and restore essential fish habitat; and exploring the concept of marine wilderness areas. To better understand and use the oceans, we recommend expanding coastal, open-ocean, and seafloor observations; integrating satellite, buoy and other observing networks; advancing basic and applied research to increase our knowledge of ocean and coastal areas; supporting exploration in underwater areas; k4 and establishing a coordinated effort to promote ocean science education. ensive To ensure a coordinated, focused, federal effort to imple- AdPr P. ment this report, we recommend establishment of a W 61ky to ore, pro - high-level task force composed of undersecretaries of 'aCeans t6ct 0041 ow relevant agencies and departments to be chaired by the Deputy National Security Advisor and the Chair of the t hotewt in .,,n ium. council on Environmental Quality We believe this report makes an important contribution to the national dialogue begun last year in Monterey We look forward to .4 working with you in developing and implementing a comprehen e federal policy to explore, protect, and sustain our oceans in the new millennium. Sincerely, ,110,01 Richard Danzig William M. Daley Secretary of the Navy Secretary of Commerce 4,4 America's Ocean Pdture5 I I PIP 1.11 "Seventy-one percent of our planet is ocean, and seventy-one percent of our body is salt water....There is this extraordinary connections between who we are as human beings and what happens in this magnificent body of water." --------------------------- Sustaining the Economic Benefits of the GM, IM Z lilip Oceans 7771 -NI ML M d IQ N., Future geiieratims deserve to inherit healthy, bountiful oceans. America's 11"Min 0 0 ur marine transportation system - which consists of waterways, ports and Build the world's their intermodal connections, vessels, vehicles, and system users - supports most technologically our economy and national security through dependable all-weather trans- portation for the movement of goods and people. it is the most flexible, most cost- advanced, safe, secure, effective, and safest mode of domestic and intemational freight transportation, "A efficient, effective, accessible, providing competitive access to suppliers and markets in an increasingly global economy. It enables the swift mobilization and supply of America's military both globally competitive, dynamic, through military assets and through the sealift and logistical support provided by the private commercial U.S. flag merchant fleet. And it also provides recreational and environmentally responsible value to millions of boaters, fishermen, and cruise passengers. system for moving goods and people. By 2010, U.S. foreign trade in goods is projected to more than double today's value, reaching $5 trillion in constant dollars, with the volume of foreign trade cargo increasing by more than 30% to 1.7 billion metric tons. This rise in marine trade is expected to fuel demand for increasingly flexible and less expensive marine transportation services. This demand, as well as increases in recreational use, h -speed ferry transportation, cruise ship traffic, commercial fishing, and igh expanded U.S. military needs for force projection and supply, will strain the marine transportation system's services and infrastructure. However, the ability of today's system to handle tomorrow's emerging needs is severely challenged. V In response to a Congressional mandate, the Coast Guard, the Maritime A ]wow Administration, the Army Corps of Engineers, the National Oceanic and Atmospheric Administration, the Environmental Protection Agency, and nine other federal agencies collaborated with stakeholders T@, to assess the marine transportation system and present their findings in a report to Congress. The report of the Marine Transportation System Task Force addresses several concerns and recommendations to be implemented by the combined efforts of the private, local, state, and federal sectors. JOL Ai Highlights of the report are presented here. 8 Turning to the Sea 0 pro Ongoing concarns R, � Many federal agencies, state and local governments, port authorities, private industries, and labor groups share respon- sibilities for managing safety, security and environmental 0 Create a protection, making coordinated responses to challenges and national coopera- opportunities very difficult to achieve. tive marine transportation � Innovative U.S. financing, regulatory changes, and tax system research program. mechanisms may be needed over the long run to spur the 0 Achieve environmental protection and safe- substantial public and private capital investments needed to ty through improving local coordination, ballast meet growing demands. water management, and design and system man- � The marine transportation system infrastructure and support- agement of &edged channels. ive information systems may be stretched to their lin-Lits to 0 Establish supporting information management cope with projected increases in both the system's users and and infrastructure in: hy&ographic and weather the size, speed, and diversity of vessels. information; tracking cargo, passengers, and vessels; � Growth in vessel traffic will increase risks to sensitive ocean, and waterways traffic management information. coastal, and inland environments. 0 Meet national security objectives by balancing com- mercial demands with safeguards and inspections to /'rnecommendat@ons protect against security threats and support military @_M mobilization. � Facilitate coordination among all stakeholders by establishing a federal Interagency Committee for the Marine Transportation For irnore @ngormaVon System, a nonfederal Marine Transportation System National o http://vvwwuscg.mil Advisory Council, as well as regional and local committees. Ei http://wwwmarad.dot.gov � Explore funding strategies that coordinate public funding F-i http://vvwwnos.noaa.gov processes and maximize the effectiveness of public and F-i http://vvwwusace.armyrnil private investments. Ei http://wwwepa.gov/ � Improve competitiveness and safety by establishing infra- owow/oceans structure and information systems that streamline vessel inspection, reporting and port clearance procedures, and that improve the marine transportation system traffic forecasts. America's Ocean Future 9 he recent rapid expansion of trade, wealth, and recreational opportunities has led to a corresponding growth in vessel traffic and in the potential for accidents. About Provide tools for 3,500 ships are involved annually in accidents on our nation's waterways, and 50% safe n a viga tion to of waterborne cargo contains hazardous materials. Human error is the cause of eliminate deaths, injuries, approximately 8o% of those accidents. Educating mariners, pilots, crew, and res- cuers about navigational concerns and maintaining a continuing dialogue among and environmental marine user groups will facilitate the creation of a safer operating environment. andproperty To reduce the risk of accidents and spills, U.S. mariners and harbor pilots Premised need information derived from new integrated electronic technolo- damage. on mutual respect and gies, such as seafloor mapping, detailed large-scale digital vector ellI shared commitment by govern- charts, precise positioning systems, and real-time and predict- ment, industry, and labor, the Coast ed oceanographic and meteorological data. Expanded over- 7@ Guard's Prevention Through People pro- seas charting services are also needed to support U.S. mih- gram promotes marine safety and environmen- tary and commercial navigation in foreign waters. tal protection by addressing the human element -Because most of the nation's harbors and channels are the root cause of approximately So% of marine not naturally deep enough to accommodate modern ves- accidents. Through this program, the Coast Guard sels, the U.S. dredges an average Of 275 million cubic yards works with mariners to develop innovative, non- of sediment a year to maintain and improve the 299 deep- IMP regulatory solutions to human element issues, such as publishing advisory risk management draft (greater than 14 feet) and 626 shallow-draft naviga- guidelines and other "lessons learned" tion projects. However, routine dredging can be environ- documents. . mentally destructive, and many of America's greatest sea- http:wwwuscg.mil/hq/ ports have contaminated sediment that cannot be dredged g-m/runc/ptp/ /without harm to the environment. The nation's need for safe, effi- cient marine transportation must be balanced with the priority of healthy coastal waters. (Ongc@ng tc@pncerns 0 The rapid advance in the technological capabilities of navigational aids has out paced the government's ability to provide the quality-controlled, standardized need In gies c )ro- Lronmen Air data streams needed to "fuel" new navigation products and systems. 10 Torning to the Sea elm M M M M M M M M9115- _dMIR rib" 14' W_ � Many areas of U.S. coastal waters have not been mapped in 50 years, including 35,000 of the 43,000 square nautical miles identified in 1993 as critical to U.S. ports and their approaches. � Although increased maintenance dredging for existing navigation channels and additional dredging N@ requirements for port improvements are required, better dredging techniques have not been identified. � The greatest threat to safe navigation is human error. Yet, too few educational programs exist to teach commercial and recreational mariners the importance of human error in accident prevention. (Vecommendavons � Eliminate the hydrographic survey backlog of 35,000 square nautical miles of critical areas in U.S. ports and their approaches, and map the one-third of the 9 5,000 miles of U.S. coastline that has never been mapped using photogrammetric methods. � Complete the production of electronic charts for U.S. and overseas waters, and develop an electronic sys- tem for disseminating timely updates and corrections to U.S. military and civilian mariners worldwide. � Deploy real-time environmental observation and prediction systems, such as the Physical Oceanographic Real-Time System (PORTS), in U.S. high-traffic areas, and complement them with high-resolution predic- tions of all navigationally significant weather and oceanographic conditions. � Expedite the development of technologies for maintaining navigation channels to improve the reliability and safety of federal navigation projects. � Conduct research on effective and environmentally sensitive management of sediment, reduction of 'W77, the flow of sediment into waterways, remediation of contaminated sediment, and disposal of dredged spoil in an environmentally sound manner. � Develop educational programs to teach commercial and recreational mariners the importance of AN avoiding human error in accident prevention. For more @ngonrnaUon o http://chartmaker.ncd.noaa.gov Ei http://wwwusace.armymil Ei http://vrvvwopsd.nos.noaa.gov/d_ports.html Ei http://wwwuscg.niil/ Ei http://marine.er.usgs.gov Ei http://wwwepa.gov/owow/oceans/dmmp Arnerka's Ocean Future 6 .. Q-166- Oil he travel and tourism industry is the nation's largest employer and second- largest contributor to the U.S. gross domestic product, generating over $700 Create long-term billion annually. Coastal tourism and recreation comprise the largest and tunides for fastest-growing sector of the U.S. service industry accounting for 85% of all Oppor coastal tourism through tourism-related revenues. sustainable practices and Many coastal communities depend on healthy coastal ecosystems and clean coastal waters for their survival. Yet rapidly growing coastal populations, effective environmental increasing numbers of visitors (18o million annually), and unsustainable coastal 10 protection. development are degrading the water quality and destroying the habitats that are the main attractions of coastal areas. Although tourism and recreation- related development are major factors shaping the use and management of U.S. ocean and coastal resources, this sector has not been regarded as requiring policy@ management, planning, and resources. The federal government can help tribes and states, which have key roles in managing coastal tourism, achieve their goals of protecting vital coastal ecosystems while promoting economic growth and economic stability (Ongo5ng bancerns 0 Federal efforts to help tribal, state, and local partners promote and implement sustainable practices for coastal recreation and tourism are fragmented or limited. 0 There is no systematic data collection on the magnitude, value, and impacts of coastal tourism and recreation, which should be the foundation of sound planning and sustainable management. 0 Federal efforts to educate tourists and recreational users about safe and sus- "R @@ tainable use of coastal resources are expanding, but the lack of coordination and resources significantly limits progress, and key opportunities are missed. 0 Current financial and technical resources available to federal, tribal, state, and local entities are inadequate to effectively manage and safeguard many of the AL, 40 4 x J coastal and marine protected areas and other tourism and recreation resources (e.g. national marine sanctuaries, national and state parks, city beaches) that are the foundation of coastal tourism and recreation. There are too few areas for marine tourism use. Recommendations Collect and provide access to information on the magnitude, value, and impacts of ocean and coastal recreation and tourism, including information on a coastal-country basis and studies on the dynamics of tourism in coastal and marine areas. Build on existing groups to coordinate relevant federal, tribal, state, and other programs dealing with ocean and coastal resource management to foster a sustainable tourism industry. Mobilize public/private partnerships to develop coordinated and effective policies and public outreach programs related to coastal recreation and tourism. Provide guidance and technical assistance to tribal, state, community, and private-sector partners to helpl them sustainable manage coastal recreation and tourism. Evaluate current federal, tribal, state,and local programs related to recreation and tourism, and develop best management practices as part of general guidelines for managing sustainable recreation and tourism industries in the nation's coastal zones. Working with tribal, state, and local governments, create new areas for sustainable marine tourism, and provide access to these areas. For more information http://state-of-coast.noaa.gov/ http://www.epa.gov/surf2 http://www.mms.gov/intermar/marineac.htm http://www.whitehous.gov/PCSD/ In South Florida, the environment is the economy. A recent study found that over 2.3 million visitors spent --------- in 1997 on recreation and tourism in the Florida Keys. -----economic impact of the visitors was $2.9 million in cutput/sales, $1.7 billion in income, and almost --,000 jobs. Ninety-four percent of all receating visitors were concerned about protecting the environment of the Florida Keys. ------------------------------------ ------------------------- -------------------------- J ur coastal communities are the most densely populated and fastest growing areas in the U.S.: 14 of the nation's 20 largest cities are coastal, over 40% of new Create coastal commercial and residential development is along the coast, and approximately communities with 3,6oo people move to the coast every day. Over 50% of the U.S. population lives by the coast today; by 2025, this figure is expected to reach 75%. sustainable economies Coastal communities contain some of the nation's most productive and diverse nat- based on well -planned ural resources, including valuable habitats, fisheries, recreational areas, and natural treasures. However, growing demands for access to the coast have resulted in habi- development and health Y tat loss, water pollution, increased polluted runoff, and sprawl. Helping communi- coastal ecosystems. ties reduce damage from natural disasters, address contamination sites (e.g., brown- fields), and revitalize waterfronts will make better use of existing developed areas "A@ and reduce unwise new development. In addition, some portions of the U.S. coastline are severely eroding, threatening the property and livelihoods of coastal communities. Federal offshore sand resources, which are used for beach nourishment projects, are needed to address erosion prob- lems. However, there are concerns about environmental harm from. sand collection and replenishment activities, as well as potential conflicts with other users of the coastal ocean, such as fisheries. (Ongp@ng (Canceirns) 0 Many coastal communities lack the tools, resources, and information to strategically and sustainably address the impacts of rapidly growing coastal populations, including increased runoff from developed areas. 0 Some federal and state development policies and practices have unintentionally encouraged suburban sprawl and disinvestment in urban cores, or building in disaster-prone areas. 0 Some policies have allowed for public and private investment in coastal areas prone to natural disasters, increasing the risks of loss of life and property and damage to natural habitats. - ldoo@`_ 5, 14 Turning to the Sta A' Thirty- 0 No overall management framework exists to ensure three of the thirty-five X that federal offshore sand resources are used in a US. coastal states and territories timely, cost-effective, and environmentally now have coastal zone management plans to help coastal communities improve sound manner. long-term planning and sustainable use of their natural resources. This state-federal partner- region- ship helps communities implement poRution con- � Promote comprehensive management by trols, land-use planning, waterfront revitalization, al sand helping tribal, state, and local goverrun ts education and other efforts to address growing coastal manage- en populations and to reduce habitat destruction, harmful ment initia- adopt and implement sustainable develop- algal blooms, runoff pollution, and vulnerability to ment management plans for coastal zones. storms and other hazards. For example, in Florida, tives; analyze � Examine and revise policies and programs, coastal management is helping revitalize waterfront the potential such as flood insurance subsidies, that pro- areas, and plan and implement the South Florida impacts associated Ecosystem Restoration Wtiative, the largest with the use of fed- mote unsustainable or hazardous development. coastal restoration project in history. eral sand resources; � Increase support for tribal, state, and local efforts http-//wwwnos.noaa. and identify possible to plan for and mitigate the impacts of natural haz- gov/Programs/ocrm. mitigation measures to ards on communities and natural resources; to redevel- htmI offset these impacts. op brownfields appropriately and revitalize waterfronts in coastal communities; and to reduce the flow of polluted runoff Fair more @nqarmaVan into coastal watersheds, bays, and estuaries. Ei http://state-of-coast.noaa.gov/ � Work with tribes, communities, states, nongovernmental organi- ii http://wwwmms.gov/intermar/ zations, and across federal agencies to produce useful indices of marineac.htm sustainable development to measure and track progress at local, Ei http://wwwepa.gov/win regional, and national levels. Ei http://vvwwepa.gov/surf2/ � Work with tribes, communities, states, nongovernmental organi- 11 http://marine.er.usgs.gov zations, and across federal agencies to create a coordinated Ei http://vvwwwhitehouse. "digital coast" electronic information system for coastal decision gov/PCSD/ makers that provides easy access to comprehensive data on such o http://wwwhvable topics as community vulnerability to natural hazards, impacts of communities.gov land-use changes, and maps and descriptions of coastal habitats. � Form closely coordinated partnerships among the federal gov- ernment, tribes, coastal states, and communities to develop _7 @ _i; 11 Ell I aters under U.S. jurisdiction contain more than one-fifth of the world's most productive marine areas. However, fisheries resources in these waters, the Increase the ecosystems that support them, and the communities that depend on them are long-term economic under increasing pressure to meet a growing demand from consumers, who spend about $46 billion a year on fish products. and social benefits to the In the past, U.S. government subsidies fostered increases in capacity in the fisheries nation from living marine sector, and until recently, many fisheries in the U.S. had unrestricted access. As a resources b eliminating over- result, too many boats were chasing too few fish. Several other factors have exacer- bated the problems facing domestic fisheries. Bycatch (the incidental capture of fishing and rebuilding overfished nontarget species) has significantly harmed many species of fish and endangered sea turtles, marine mammals, and birds. In addition, much of the bycatch is dis- stocks important to commercial, carded because it is less valuable than the target species. Other human stressors, recreational, and subsistence such as coastal development, pollution, anchoring on coral reefs, and some types of fisheries. fishing gear, have substantially degraded habitat essential for fish productivity. With strong management in recent years, such as the federal implementation of programs controlling access to fisheries, many stocks are beginning to recover. Several fisheries have also begun to address the bycatch issue by requiring turtle- and fish-excluder devices, and the regional Fishery Management Councils are involving broader communities in the management of the nation's fisheries. But r even with current efforts, 33% of federally managed fish stocks are overfished, and it will take ten years or more before some fisheries fully recover and become com- mercially viable and sustainable. New fisheries management practices will require a more broad-based ecosystem approach. (Onga@ng Concerns 0 Fishing overcapacity continues to exist in many U.S. fisheries. 0 Bycatch of nontarget species, although declining, continues to threaten marine biodiversity and reduce economic opportunities in other fisheries. 0 Current harvest restrictions may have to be even more stringent to @@qe Pe rM eliminate overfishing and rebuild stocks to 0 Develop tedi- achieve sustainable economic benefits. U@ La f@ @4 nologies to improve % � The status of 65% of federal marine fisheries fisheries science and further reduce bycatch a 0 0 nd stocks is unknown, hampering our ability to 'tt. WA @A wa ste. manage fisheries sustainably. 0 Explore the scientific and conser- L � There are major data gaps on bycatch levels in many fisheries and on the impacts of fish- vation. benefits of marine harvest 4' ing activities on most essential fish habitats. refugia and other protected areas. � The short-term effects of much-needed 0 Support the development of an ecolabelling system that marine conservation measures may severely provides consumers with strain the econornies of local communities. � Consumers are unaware of how their con- additional information so that they have the option of sumption drives fishing pressure, and are unable to distinguish between sustainably purchasing sustainably harvested fish. and nonsustainably harvested fisheries products. 0 0 0 Seek Congressional support for the Chnton/Gore Lands 0 Legacy Initiative, which calls for significant funding to help � Evaluate and apply creative measures to reduce fishing overcapacity including estore U.S. fisheries. leveraged buy-outs and rights-based fishing. Fou- mou-L- bn9ormaUon � Create short- and long-term opportunitie's to o http://wwwnmfs.gov decrease the economic burden on fishing com o http://wwwuscg.rnil munities by redirecting fishing effort into supporting activi- . ... .. ci http://wwwst.nmfs. ties, such as fishery research. -d gov/sti/index.htn � Provide fisheries managers with the best available technolo- ;W gy to survey and properly assess fish stock levels, enabling Ei http://wwwnmfs.gov/councils/ @''. 1:, ), Ei http://wwwnmfs.gov/sfa/ 6.1 them to better set appropriate fishing limits. 46, 1 , � Create incentives to reduce adverse effects on nontarget species and marine habitat. op tedl- es to. 1mprove 'nes sclence and" _MAP, America's Ocean Future 17 M@ @ M = M M M kiP 16LAIL @-x 1:, ncreasing world population and wealth have led to higher demand for edible fish and excess capacity of fishing boats. The United Nations (UN) Food and Work wf th Agriculture Organization (FAO) forecasts that by 2010, worldwide demand for other nations to seafood will top no million tons, but catches will fall short by 40 million tons. Nearly 70% of the world's marine fish stocks are overfished, fully exploited, or protect and conserve rebuilding only under protective management regulation. Pressure to increase pit- shared fiving marine production already has the industry fishing farther down the food chain, causing resources. potential imbalances in the ecosystem. The race for fish also leads to high rates of bycatch - of nontarget fish species and vulnerable marine mammals, turtles, and wasted discards. and seabirds alike 7 Though a growing number of regional organizations are charged with managing specific fish stocks, the future of the world's fishery resources is uncertain. At the 1992 Earth Summit in Rio de Janeiro, all nations joined in the call for new international agreements and mechanisms to achieve sustainable marine fisheries. The U.S., as one of the world's leading fishing nations, plays a key role in 6@ f@ I I'M ftf expanding international cooperation to manage and conserve global fishery resources. For example, the U.S. has successfully ta, mit, used trade measures - or the threat of trade measures - to convince exporting nations to end wasteful and destructive fishing methods. Focused effort can be especially effective because only ten coun- 1-4 4V @- tries, including the U.S., account for 70% of total global production. (Ongoing t-wn-c-er-n-@s) 0 The two key tools for international fisheries management - the :-P -lighly Migratory Fish Stocks Agreement 1995 UN Straddling and I OW (Straddling Stocks Agreement) and the FAO Agreement on High- Seas Fishing Vessel Compliance (FAO Compliance Agreement) - have yet to enter into force. Also, the FAO Code of Conduct for Responsible Fisheries (Code) is not yet widely implemented by 18 Turning to the Sea fishing nations. 0 Take a leading role in � Nations continue to subsidize their fishing industries, leading to implementing the new FA0 action plan on fishing fleet overcapitalization of fishing fleets and increasing pressure to maximize harvest. overcapacity � Conservation and management schemes are undermined by ille- 0 Strongly encourage the members of gal, unregulated, and unreported fishing. A number of nations the World Trade Organization to eliminate also offer "flag of convenience" registry to fishing vessels with subsidies that lead to overcapacity as part Of no accompanying oversight of their fishing practices. the new round of negotiations set to begin in 4_=__ � Conservation and management schemes have not always been November 1999. successful in averting overfishing or allowing for the rebuilding 0 Support and develop means (including trade-based of depleted stocks. means) bilaterally and through regional fisheries � Parties to international agreements and regional fishery man- organizations, to ensure compliance with fishery agement organizations often exceed agreed-upon quotas or are management initiatives. Identify and negotiate out of compliance with those organizations'conservation and new regional, multilateral agreements to eliminate management regimes. destructive fishing practices. 0 Work with other countries to evaluate vulnerable (Recommendations marine species, and take an active role in international decision-making on listing � Promote ratification by signatory nations of the Straddling new marine species under the Convention on P Stocks Agreement and the FAO Compliance Agreement, and International Trade in Endangered Species implementation of the FAO Code at all appropriate bilateral of Wild Flora and Fauna. 7 meetings. irY` RL-lib 4, � Develop proposals to implement key provisions of the above For more @nqormaVon agreements, such as a precautionary approach and trans- Ei http://wwwnmfs.gav parency (openness in the decision-making process), through Ei http://wwwstate.gov/www/global/oes regional fishery organizations and arrangements. El http://wwwuscg.mil/ 04 � Increase bilateral pressure to foster agreements to rebuild over- fished species and to deter illegal, unregulated, and unreported Ej http://wwwfao.org/waicent/ 474-4 faoinfo/fishery/ fishing. Participate actively in FAO initiatives to develop an 44, international plan of action to address such fishing practices. PON K@ L L, J xpected increases in world population are projected to intensify the global demand for edible seafood. The aquaculture industry which propagates and Prom o te th e rears aquatic plants and animals, can provide consumers with high-quality; safe, development of and affordable seafood and other important fish products, and thereby reduce '0 pressure on wild stocks and help their recovery environmentally safe The global aquaculture industry, whose production is valued at nearly $1 billion in and sustainable aquaculture the U.S. and $4o billion worldwide, currently supplies less than lo% of the nation's to meet the growing national seafood demands. Improving U.S. aquaculture production can simultaneously pro- vide more seafood to domestic markets and help offset the U.S. trade deficit in edi- and global needs forprotein ble seafood products, which has increased by 139% since 1992 and now stands at from seafood and to relieve $6 billion annually - the largest for any agricultural commodity Aquaculture can press ure on wild fish stocks. also make major contributions to U.S. local, regional, and national economies by cre- ating business opportunities both here and abroad and by providing employment in a new and diverse industry The U.S. has the opportunity to lead the world in developing sustainable aquacul- ture technologies based on renewable resources and advancing international guide- lines for the industry which provides 25% of the world's fish supplies. However, the continued growth of aquaculture in land-based systems and coastal environments and any expansion of aquaculture into the U.S. Exclusive Economic Zone must be conducted in an environmentally sound manner. Although coastal environments are primarily under state control, the federal government can play a significant role in assisting tribal and state aquaculture efforts through research and the regulatory process. (Ongo@ng Cancerns 0 U.S. aquaculture development is restricted by a lack of species ready for commer- AJ, *.0F, cial culture, sophisticated engineering requirements, sparse information on dis- eases and ways to treat them, and marketing and distribution concerns. 0 Concern exists about the potential environmental impacts of some aquaculture 20 Turning to the Sea operations, especially genetic and disease consequences for wild stocks, introduction of nonindigenous spedes, coastal habitat alternation, effluent effects on habitat, and interactions with marine mammals and endangered species. No comprehensive regulatory framework exists for permitting aquaculture operations. Although, aquaculture has proven to be a valuable tool to increase salmon populations, its effectiveness remains unknown for other fish and shellfish stocks. Recommendations Support research and develop pilot projects for hatchery and nursery development, closed-system production techniques, processing, and marketing. Work with stakeholders to develop guidelines for environmentally sound and sustainable aquaculture by the end of the year 2000, and promote domestic and international compliance with them. Work with stakeholders to create an integrated regulatory framework for coastal or inland aquaculture. Develop a comprehensive federal permitting and certification process for the open-ocean aquaculture industry in the U.S. Exclusive Economic Zone, consistent with the U.S. policy on nonindegenous species. Integrate aquaculture development with wild stock management and environmental stewardship. Evaluate wild stock enhancement through aquaculture as a method of accelerate recovery of depleted stocks, and implement stock enhancement programs where practicable. Through the joint Subcommittee on Aquaculture, improve coordination of U.S. government aquaculture research and assistance to tribal, state, and local governments, and industry. For more information http://swr.uesd/edu/fmd/bill/aquapol/htm http://www.susdev.noa.gov/aqucult/html http://www.fac.org/waicent/facinfo/fishery/ -------------------------------------researcg----------------crab industry has ------------- a multi-million dollar investment --------from New Jersey to Florida. Working with the fishery industry, researchers, students, and others, aquaculture specialist have provided seed oysters and expertise to rebuild oyster bars in the Chesapeake Bay. And in New England, many community partnerships are underway to develop small-scale, low-impact economic opportunities in shellfish aquaculture for local fishermen using new information and technologies. http://www.nsgo.seagrant.org/research/aquaculture/index.html j- n 199o, leading scientists predicted that the application of the modem tools of biotechnology and molecular and cellular biology to marine organisms and Tap the enormous ecosystems would create a revolution in the ocean sciences that would be funda- potential of marine mental in nature, exponential in pace, and unprecedented in its scientific and eco- species for developing nomic impacts. In the decade that has followed this prediction, stunning results have been reported as the tools of marine biotechnology have been applied to new pharmaceuticals and solve problems in the areas of public health and human disease, seafood safety biomaterials, and apply the and supply, new materials and processes, and marine ecosystem restoration and remediation. tools of biotechnology to restore Many classes of marine organisms demonstrate a wide variety of compounds and monitor the marine with unique structural features that suggest medicinal, agricultural, and industri- environment. al applications. However, even though 8o% of all life forms on Earth are present only in the oceans, their enormous potential as the basis for new products remains largely unexplored. The U.S. government has traditionally invested less than 1% of its total biotechnology research and development budget in marine biotechnology Productive new avenues for the commercial development of marine-derived compounds will enhance the use of aquatic resources and con- tribute to the global economy. 0 There may exist potential risks related to the release of genetically altered species within the marine environment. 0 Current technology is inadequate both to access remote marine biotechnology sites and to commercially develop marine biotechnology products. 0 A lack of information about baseline conditions of the marine environment makes it difficult to assess the environmental impacts of biotechnology. 0 There is no mechanism currently in place to ensure that profits derived from publicly owned resources will be shared with the public and used appropriately. lvokottRenry 22 Turning to IT*G6 V_ CRecommendat-oons For more � Increase support for sustainable harvesting and testing of @nqormaz@on marine compounds by both government agencies and commer- o http://wwwimb.nrc.ca/imb/ cial pharmaceutical companies as possible treatments for AIDS, imb.htn-d 4 inflammatory or infectious diseases, and cancers. F-i http://wwwnsgo.seagrant.org � Assess the potential risks of genetically modified marine Ei http://wwwumbi.umd. organisms to human health, marine diversity, and the umd.edu/ environment, and communicate any concerns to Ei http://wwwbioter-h. the public. D wisc.edu � Develop investment incentives to encour- o http://wwweng.nsf. age partnerships with acaden-da and gov/bes/ 7 industry in marine biotechnology r made default.htm � Support research on the environmen- Ei http://wwwgeo.nsf M=-M 4tfl M-MAVL@,, f r 0 M tal effects of extracting marine organ- w @I -.as an an gov/oce/biotheme. peft-et sue'th ti- htm#tech isms for biotechnology purposes. i'hild-, atoty drug, extiaded from an � Support the application to marine organism called the Caribbean sea whip, are o http://www. sciences of modern biotechnology under review by the U.S. Food and Drug nucb.org/ tools commonly used in the Administration. biomedical arena. � Develop technologies to access and http://www.fda.gov/ develop marine biotechnology sites, such fdac/features/1998/ as remote and manned submersibles, and igg_deep.html techniques to screen products and commercially reproduce chemical compounds without requiring more raw material. � Focus on organisms found in extreme environments to identify unique products with high commercial potential. � Consider establishing a federal marine environment fund to benefit from royalties and payments from commercial uses of federally owned resources. 9-nsf- Amerio's O(ean Future 23 [INS 11111111 IM 7:, C@ r he outer continental shelf contains significant oil and gas resources that are vital 2@ to our domestic energy supplies and national security needs, contributing 22% Of _Iri i Maintain safe -4 domestic oil and 27% of natural gas production. Natural gas reserves in the outer and environmentally continental shelf are particularly important because natural gas has major envi- ronmental benefits over other fossil fuels. Cleaner burning, it is increasingly sound domestic energy being used in the conversion of electrical power-generating stations from oil- supplies andalternative or coal-fired facilities. fuel sources. The federal share of offshore oil and gas revenues averages about @4 biwon a year. Much of the existing leasing and development @t' occurs in the central and western Gulf of Mexico. In recent years, the rapid development of deep-water technology has led to a strong move by industry to both lease and operate in ever-deeper waters. Over 4,ooo platforms are operating in waters up to 3,900 feet deep, and over 3o rigs are drilling in water deeper than 1,ooo feet, including one deeper than 7,700 feet. By the end Of 2000, tath year, however, production from Gulf deep-water fields is expected to account for Congress does not one-half of the total Gulf of Mexico outer continental shelf oil fully use these funds production and one-third of the total outer continental shelf gas for conservation. The production. Clinton/ Gore Lands Legacy proposal Advances in technology have made offshore oil and gas produc- would ensure that the tion cleaner and safer than ever. Since 198o, 6.9 billion barrels of monies are spent only outer continental shelf oil have been produced with a spillage for their original pur- rate of less than 0.001%. Despite these advances, however, envi- PF__ pose - improving and ronmental concerns have led to congressional and executive protecting our moratoria since 1981, and many of our coastal areas are now nation's lands and closed to new leasing through the year 2012. In addition, new waters. leases are permanently banned in National Marine Sanctuaries. Many coastal states and communities object to oil and gas devel- opment off their coastlines. One way that coastal states and the public can par- en 24 Torning to the Sea ticipate in decisions on federally regulated offshore activity is 0 Continue efforts to through the coastal zone consistency process, which allows provide states and other sta e- them to review and comment on proposed projects or permits holders with early information on that may affect state coastal management programs. Federal proposed outer continental shelf oil and actions likely to affect any land/water use or other natural gas exploration and other activities. resources in the coastal zone must be consistent with the states' 0 Encourage production of natural gas, as a Y@ enforceable policies. cleaner source of energy from areas where production is still permitted under the outer continental shelf moratoria. (Pngo@ng (concerns) 0 Join the United Nations Law of the Sea Convention. � Multiple-use conflicts can arise between outer continental 0 Accelerate scientific research on marine gas hydrates shelf oil and gas activities and other ocean-based activities, (methane and other gases existing in a frozen state such as commercial and sport fishing, tourism and recreation, below the ocean floor) as a potential long-term vessel traffic, military operations, and marine protected areas. energy resource. � While outer continental shelf oil and gas development brings employment and revenue to coastal states and communities, For moire @ngormaUon it also may result in accelerated coastal development with its Ei http://wwwmms.gov attendant problems, including additional demands on infra- o http://marine.er.usgs.gov structure and the environment. Ei http://wwwgomr.mms. � Uncertain outer continental shelf boundaries may lead to dis- putes with other coastal nations regarding ownership of cer- gov/homepg/regulate/ environ/rigs-to-reefs/ tain oil and gas reserves unless the U.S. joins the United information.html Nations Convention on the Law of the Sea. � Increase research on methods and technology to minin-dze risks to human safety and to coastal and ocean environments. � Through meetings, workshops, and negotiation, work with all ff; stakeholders to ensure environmentally sound and safe outer continental shelf energy extraction. C) Wolcott IRTITY cean America's 0 All yj" -vnli !Y C(t Im _rj LJ .rj J -ri JL Li J ab:-@-j J r .&L"edom Of -rhe is ifiregr-al to dje trL,-.fjg-rlj -an Jr 5ecurity of our ma blorl. 7,.@ 7: or The Law of the Sea Convention he United Nations Convention on the Law of the Sea provides a compre- hensive international legal framework governing the world's oceans. Preserve strong Currently, 131 nations are party to the Convention, including all of the US influence and major maritime powers (except the U.S.), most of our key allies, and many important nonaligned states. The Convention supports the full range of leadership in global ocean U.S. interests in ocean activities, law, and policy It preserves our rights of affairs, and encourage military mobility in the world's ocean and coastal waters; ensures free movement of global maritime commerce; secures our national jurisdiction international adher- over living and nonliving resources off our shores; clarifies our high-seas en hat ce to concepts t freedoms for laying cables to support communications; establishes an At- support US interests. internationally agreed-upon framework for national efforts in maritime law enforcement, marine environmental protection, and marine scientific research; and creates a framework for settling international disputes. In the late 198os, there was widespread agreement among the industrial- ized nations that the Convention's deep-seabed mining regime required basic changes. Recognizing that the Convention would soon enter into 7@ force without the U.S. and other major western powers as parties, the Secretary General convened informal negotiations aimed at amending Part XI of the Convention. These negotiations concluded in 1994 with an Implementing Agreement that amends the formerly flawed Part )[I and meets all of the specific objections previously expressed by the U.S. and other industrialized nations to the Convention's deep-seabed mining pro- visions. All sectors of the U.S. ocean community represented at the National Ocean Conference affirmed their support of the Convention, and the President, in his June 12, 1998, keynote speech at the Conference, reasserted that accession to the Convention and ratification of the Implementing Agreement is a high-priority objective of U.S. ocean policy r-A @7- L11 = = = M M M @ @ @ @ @ (Recommendit =Gn ) 0 Though the Law of the Sea Convention and its reforming 0 The President, the Vice agreement have been placed in the highest priority category President, and the Cabinet 4- of agreements requiring Senate action, the Senate Foreign should continue to work "7- Senate has been unable to review the Convention and support particularly the Senate Relations Committee has not scheduled hearings. Thus, the with the Senate - and the U.S. becoming a party to it. Foreign Relations 0 The U.S. position as a nonparty to the Law of the Sea Committee - to ensure Convention is increasingly undercutting U.S. influence over that the U.S. joins other nations'implementation and adherence to the provi- the Law of the Sea sions that support our interests. Examples of excessive mar- Convention as soon itime claims that are counter to U.S. interests are extended as possible. V* boundary claims that could affect U.S. access to offshore resources, and requirements for coastal state permission to transit through territorial seas or international straits. � The U.S. position as a non arty often slows or complicates P approval for U.S. ship and aircraft access to conduct marine scientific research in foreign jurisdictional waters. -tinate judges for the Law of the Sea � The U.S. cannot non Tribunal, optimize U.S. influence on maritime dispute resolu- tion, or participate fully in the International Seabed Authority. N � The U.S. is at risk of losing its influence and leadership posi- J1. tion in critical international fora for dealing with the oceans, For more @ngorrnat@on such as the International Maritime Organization. U.S. propos- als for maritime safety and environmental protection guide- o http://wwwstate.gov/www/global/ oes/oceans/indexhtml#law lines are increasingly met with open skepticism because of -.Mimi the U.S. position as a nonparty to the Law of the Sea Convention. America's Ocean Future 29 Freedom of Navigation Maintain US national and economic security and leadership in promoting global stability and preserving global navigational freedoms. he U.S. has always recognized and defended the traditional freedoms of navigation and overflight on and over the world's oceans for military and commercial purposes. Internationally agreed-upon freedoms of navigation - key to our ability to import raw materials and export finished products to 000 global markets - are essential to our economic security Freedom of naviga- tion is also essential for national security, enabling the worldwide movement of U.S. military forces and the sealift and airlift needed for their support. The complex global political/military environment of the post-Cold War era puts a premium on forces that can move quickly anywhere in the world's oceans, including through more than 250 international straits, to provide mili- tary presence for diplomatic purposes without infringing on any nation's sov- ereignty to project power from the sea, to enforce United Nations sanctions, of @@O or to conduct humanitarian operations. In the past decade, there have been 406 twelve U.S. and coalition military operations that were critically dependent on internationally recognized transit rights and high-seas freedoms of naviga- tion. Forward presence of ocean-based military assets supports U.S. intelh- 'AV gence, surveillance, and reconnaissance activities, providing a better under- standing of developing international tensions and potential threats, deterring cf hostilities, and promoting global stability and security The customary international freedoms of navigation that are critical to economic, national, and international security are codified in the Law of the Sea Convention. Continued exercise of our navigational rights and freedoms A.- is essential to the future strength of our nation and to global stability 3 0 M, � Continued failure to join the Law of the Sea Convention could diminish U.S. influence and leadership in international ocean affairs and undercut our ability to resist excessive maritime claims worldwide. � Failure to conduct our domestic ocean affairs and global opera- tions consistent with the Convention could restrict U.S. naviga- tonal rights and freedoms critical to our economic and national security � Many nations make maritime claims and other proposals - such as military exclusion zones or nudear-free zones - that could -.At- have the effect of limiting or denying U.S. military and commer- cial ship mobility in critical areas of the world's oceans. � Domestic and international ocean initiatives and the U.S. mili- tary's ability to test, train, exercise, and operate in the marine environment have the potential to conflict. AL C6iecom rn@endat*oo @ns � The President, the Vice President, and the Cabinet should continue to work with the Senate - and particularly the Senate Foreign Relations Committee - to have the U.S. join the Law of the Sea Convention. � Expand the U.S. freedom of navigation program using Navy@ Coast Guard, and other national assets to exercise openly the For more 5nqormazion traditional freedoms of navigation and overflight in areas of unacceptable claims. Ei http://wwwnavymil � Work within an interagency structure to coordinate initiatives Ei http://vvwwdefensehnk.mil Pi to maintain fTeedom of navigation and national security. America's Ocean Future A41 time Law Enforcement 'R drug t I he U.S. is a world leader in the enforcement of laws concerning Maintain the securi and illegal immigrant smuggling, customs regulations, harvesting of living marine resources in our Exclusive Economic Zone, and marine of US coastal borders, safety and environmental protection. International maritime crimi- ports, and harbors nal activities pose clear threats to our borders, our economy, our environment, and our national security and require strong offshore through improved law enforcement. Additionally, the post-Cold War era has brought L maritime ]a w emerging threats, such as terrorism, arms trafficking, evasion of international trade sanctions, and piracy, each with potential mar- enforcement. itime components. Critical U.S. ports and waterways infrastructure, 'UIP @Jf commercial carriers moving U.S. military cargo, and large numbers of U.S. citizens aboard cruise ships may be at risk. The marine transportation system is especially vulnerable to illegal and terrorist activities because its scale, complexity and pace of activity often overwhelm local, state, and federal detection and enforcement capabilities and private-sector protective measures. Increased cooperation with our international partners is needed to disrupt illegal activity before contraband is loaded onto vessels des- A P% tined for the United States. Enforcement efforts must also take full advantage of maritime transportation choke points and challenge suspect vessels before they reach U.S. ports. As governments remove barriers to trade and travel, U.S. officials need more information on the cross-border flow of people and goods and on other maritime activities to better identify criminal and other illegal actions. 0 International criminal and terrorist threats are constantly chang- ing and adapting to current law enforcement capabilities. Today's communications and integrated intelligence systems lack the 32 Turning to the Sea sophistication to support real-time monitoring of vessels, people, and cargomovements. High-level awareness of the emerging threats to the marine transportation system is requied, along with the interservice, interagency, and international coordiantion needed to address them. The U.S. currently claims a 12-nautical-mile contiguous zone, yet customary international law, as reflected in the United Nations Conventions on the Law of the Sea, allows states to claim a 24-nautical-mile contiguous zone. Recommendations Improve cooperation at the interagency, intreservice, and internatoinal levels to address threats to our maritime interests, including collecting and sharing key information, and developing and integrating real-time intelligence systems for tracking cargo, personnel, and commercial vessel operations. Improve U.S. capability to conduct survellance, detection, identification, classification, and interdiction of maritime threats before they reach U.S. coasts and harbors. Acknowledge the low level of current security awareness in the marine transportation system, and initiate a national education campaign to improve federal, state, and local awareness of the growing threats. Declare a 24-nautical-mile contiguous zone consistent with international law, as reflected in Article 33 of the Law of the Sea Convention. For more information http://www.uscg.mil/hq/g-o/gopl/lawweb2/homepage.htm htt;://www.whitehousedrugpolicy.gov http://www.uscg.mil/deepwater/data/threats/forward/htm http://www.navy.mil -------------------------- -------------------------- -------------------------- -------------------------- -------------------------- those who do. Fisheries enforcement boardings have increased by 50% over the last four years, providing critical support to rebuilding and main- taining fish stocks threatened by overfishing. In addition drug interdiction efforts in 1998 resulted in the seizure of more than ------- pounds of -------------some 374 millions hits with a value of $1.9 billion off of our streets and out of our schools. "There is a window in time, and that is now, when we could forever lose a priceless ocean heritage, or we could develop the foundation for an enduring legacy - an ocean ethic - an inspired gife from the 20th century to all who follow us." Dr. Sylvia ----- Protecting Marine Resources Srong protection of our ocean and coastal environment, using a precautionary approach and sound management, is no longer a choice, but a necessity. ------------------------ ---------------------------- L Submerged Heritage Resources n estimated 50,000 shipwrecks, including the ironclad civil war vessel, the US.S. Preserve and A.", Monitor, are scattered throughout the U.S. territorial sea and the Exclusive Economic Zone. These shipwrecks and other sunken artifacts are time capsules protect submerged of the world's history. Until the advent of scuba diving equipment and other tech- heritage resources for nological developments in the 1950s, submerged heritage resources were largely undisturbed by humans. Advances in deep-sea technology have created unprece- current andfuture derited opportunities for discovering, reseaTcl-iing, accessing, and preserving resources, and for educating the public about the history, people, and cultures generations. associated with these unique and irreplaceable sites. Unfortunately, new capabilities make these sites highly vulnerable to exploitation and destruction by treasure hunters and souvenir collectors, resulting in their loss AfF and destruction. Even submerged heritage resources in state waters, which were to be protected from treasure hunting under the Abandoned Shipwreck Act, are still subject to commercial exploitation. Special care must be taken to preserve and protect these precious resources for scientific study and public interpretation and appreciation. Special care must also be taken to respect human remains, including tribal sites. (Cngc)@ng (Conceirns 0 Submerged heritage resources are often treated as commodities for private financial gain, rather than managed as public scientific resources in need of protection under laws based on historic preservation and environmental protection. 0 In certain situations, submerged heritage resources cannot be removed from the marine environment without risk of harm to natural and cultural resources. 0 Submerged heritage resources include diverse prehistoric and historic sites. The interests of tribes in such resources are often overlooked. 0 The extent of damage caused to the environment by reckless recovery activities C111hiz, is unknown. tWGSJOqe Collection 36 Turning thqS-111 While protection exist in many state waters and in federal marine protected areas, submerged heritage resources are exploited and destroyed outside of these areas. Certain sunken vessels and aircraft may be dangerous (e.g. contain unexploded ordnance), or should not be disturbed out of respect for the crew members who died on board. There may also be national security reasons why a sunken vessel or aircraft should not be disturbed. States do not always preserve submerged heritage resources, and states that want to do so are often unable to because of the historical law of salvage and finds. Recommendations Enact federal legislation that will prohibit the destruction and loss of submerged heritage resources; punish those who injure or destroy these and associated natural resources; provide for appropriate public access; develop a research and recovry permitting process; require adherence to scientific standards; provide for the conservation and disposition of recovered matericals in qualified repositories; ensure sensitive treatment of any human remains; and portect severeign immune vessels and aircraft that hve not been expressly abandoned. Clarify, though legistlation, the meaning of "abandoned" in the Abandoned Shipwreck Act so that states can better preserve submerged heritage resources. Support cooperation and collaboration with tribes, states, and communities on ways to protect submerged heritage resources, including legal regimes, consistent gidelines and procedures for evaluating best preservation and recovery plans, exploration and monitoring programs, and efforts to educate the public about the value and fagility of these resources. For more information http://monitor.nos.noaa.gov http://www.nps.gov/scru/home.htm http://www.nps.gov/usar/ http://www.history.navy.m-l The federal government is proposing to designate Thunder Bay and surrounding waters on Lake Huron as a National Marine Sanctuary. The proposed sanctuary area off the coast of Alpena, Michigan, contains approximately --- shipwrecks that span more--------- --- ----- tury of Great Lakes marine history. http://----.noaa.gov/glsr/thunderbay Coral Reefs Our nation's coral reefs cover approximately 17,000 square kilometers. Ninety percent of them are accociated wit U.S. islands in the Western Pacific (Hawaii, Guam, American Samoa, and the Commonwealth of the Northern Marianas); the remainder are located off Florida, Georgia, Texas, and U.S. islands in the Caribbean. These coral reefs support thousands of jobs and billions of dollars in annual revenues from tourism, recreation, and fishing; are valuable sources of new medicines and blochemicals; help prevent shoreline erosion; and provide life-saving protection from storms. Despite their unique value, coral reefs in the U.S. and around the world are quickly being destroyed by a powerful combination of stresses, such as polluted runoff, sedimentation, unsestainable fishing practices, collection and trade in reef species, groundings and other damage caused by commerical and recreational vessel traffic, diseases, marine debris, and climate change. During the past two year, unprecedented levels of coral bleaching and mortality associated with abnormally high sea temperatures and other factors have occurred. As a result, approximately 60% of the world's coral reefs are at medium or high risk from human impacts, and many have been degraded beyond recovery. As part of the National Ocean Conference in June 1998, President Clinton signed the Coral Reef Protection Executive Order (13089) to preserve and protect the biodiversity, health, heritage, and ecological, social, and economic values of U.S. coral reef ecosystems and teh marine environment. To fulfill its protection efforts, the Order also created the interagency U.S. Coral Reef Task Force. Additional efforts are now required to effectively protect, restore, and sustainably use valuable U.S. coral reef ecosystems for current and future generations. Ongoing Concerns The U.S. has not yet developed a coordinated national strategy to protect and resotre coral reef ecosystems from the effects of human activities and natural stressors. Protect and sustain the biodiversity, health, heritage, and ecological, social, and economic values of coral reef ecosystems. The U.S. lacks a comprehensive mapping or monitoring program to assess or track the condition of U.S. coral reefs. Financial and technical resources are inadequate to help states, territories, communities, and other nations sustainably manage their coral reefs. As the world's largest importer of coral reef species, the U.S. may be driving the unsustainable use of coral reefs in other nations. Recommendations Implement Executive Order 13089 as quickly as possible through joint efforts of federal, state, and local agencies; nongovemmental partners; and other nations as needed. Implement priority actions of the U.S. Coral Reef Task Force, including the committment to prevent federal agency degradation of reefs consistent with Executive Order 13080. Increase research efforts to understand the causality behind the current worldwide deadline of coral reefs and how it relates to disease, temperature change, and pollution. Assist in the design and implementation of local and regional reef management plans that integrate protected areas and fishery management with coastal zone and marine management planning efforts, and increase support for local actions. Increase monitoring protection, and sustainable use of reefs worldwide by supporting international partnerships at national, regional, and global scales. Increase efforts to stem the problem of trade in nonsustainably harvested corals. Work with the International Maritime Organization and other international partners to prevent destructive ancharing of ships on coral reefs and provide safe, alternate anchorage for marines. Seek Congressional support for the Clinton/Gore Lands Legacy Initiative, which proposed $10.3 million - a 30 fold increase over current funding levels- for coral reef protection. For more information http://state of coast noaa.gov/bulletine/html/ http://coralreef.gov/ http://www.epa.gov/awow/coral http://www.wri.org/indictrs/reef.html/ -------------------------- -------------------------- -------------------------- -------------------------- -------------------------- -------------------------- tor andmanage these valu- able resources. For example, the Reef Ecosystem Condition Project (ReCon) is training volunteer divers to collect important data on the tem- perature, salinity, and visibil- ity of coral reef waters. And, in 1997-98, Reef Check used volunter divers to survey over 300 reefs in over 30 contriesl http://www.ReefCheck.org/ http://www.cmc-ocean.org/pressrelease.html Estuaries stuaries, where fresh water from rivers n-Lixes with salt water from the oceans, Recognize the are among the most productive environments on Earth. These transition zones from land to sea provide unique habitat for more than 75% of the U.S. commer- value of our nations cial and 85% of the U.S. recreational fisheries. Estuaries are also popular places to estuaries, andprotect live, work, and enjoy outdoor activities. More than 28 million jobs in the U.S. are created in association with estuaries, and more than 70% of Americans swim, and restore them for current boat, and fish in them. gen and future era tions. Increasing pressures from inland activities and coastal development are causing habitat loss and degradation, fisheries declines, and overall reductions in estuar- ine health and productivity Associated physical alterations, such as dredging, damn-Ling, and bulkheading, change the natural flow of fresh water to estuaries, affecting water quality fish spawning, and the survival and distribution of living resources. Removal of vegetation can also affect water quality by causing increased erosion and siltation. Toxic substances and excess nutrients con- ri u e o s eases, a ga ooms, an ow sso e oxygen an can pose a threat to the health of humans and estuarine wildlife. The introduction of nonindigenous species is also affecting the ecological diversity of many estuarine environments, eradicating naturally occurring species and destroying essential habitat. (Onga@ng Gancau-ns 0 Federal activities that affect estuaries are 4 not always well integrated. 0 Monitoring efforts in estuaries are often fragmented and not incorporated into overall monitoring data and analysis, hindering the ability of managers to evaluate and modify the effectiveness of their programs. 40 Turning to the Sea W, AIVY � Information on estuaries is often collected without reference to overall national research goals, or without the technologi- t, cal means to share and combine the data with other research efforts. � Many people living inland and at a distance from the coast are unaware of how their The t estuaries. actions affec National Estuarine Research Reserve System is a (N@Com m @end a z @ @on S network of field laboratories that � Improve communication and study and improve the health of degraded coordination among the various coastlines, linking programs of stewardship, federal agencies and programs public education, and scientific understand sharing responsibility for ing. The National Estuary Program uses a estuarine protection. collaborative approach to protect estuaries by @7 � Coordinate federal programs encouraging states, communities, business- with tribal, state, and local,smart es, and the public to work together to Fair moire @nqormaUon growth" initiatives to more effectively manage, restore, and pro- M efficiently implement on-the- tect their valuable estuarine o http://wwwnos.noaa. ground solutions. resources. gov:8o/ocrm/nerr/ welcome.html 0 Improve estuarine monitoring activities Ei http://wwwepa.gov/ and data reporting to facilitate an "adaptive owow/estuaries/ management" process. nep.html � Create a national framework for estuarine research. Ei http://wwwfws.gov/cep/coastweb.html � Increase public understanding of the connections between Ei http://marine.usgs.gov human activities and estuarine health through improved 11 http://wwwnwrc.usgs.gov education and outreach. Ej http://wwwepa.gov/emap/html/ pubs/docs/midatl/ � Seek Congressional support for the Chnton/Gore Lands Legacy cond-mae.htm Initiative, which would provide essential funding for the National Estuarine Research Reserve System and the National Estuary Program. 0@1 Marine Protected Species ii7 uring the past century, marine marru-nals, birds, turtles, fish, invertebrates, and other marine species have been overhunted or overfished, causing extinction or Reduce the risks extreme population declines. Today interactions with commercial fishing opera- of extinction, and tions, overharvest for international trade, and degradation and loss of important recover marine protected feeding and nursery habitats have depleted many marine species. As coastal and marine waters have become increasingly polluted, many species have shown species and the ecosystems increases in diseases, infections, and tumors. Combined with increased distur- 00 bances from ship traffic, noise pollution, and other impacts, the cumulative effects on which they depend. of these stresses have reduced many marine species to extremely low levels and possible extinction. Specifically, between 1975 and 1999, the num- ber of marine species or stocks listed as threatened or endan- gered under the Endangered Species Act increased from 20 to 61. Another 42 marine species or stocks are cur- rently considered "candidates" or are proposed for listing under the Act. There is serious concern for the future of a number of marine species protected under the Marine Mammal Protection Act or the vM, A Cape Cod, V Endangered Species Act, including Steller tie Georgia/Florida. 'htdek fthist contact a U.S. Coast Guard-operated shore sea lions, North Atlantic and North Pacific right whales, Hawaiian monk seals, West station. The ships provide the station with their course, Indian manatees, southern sea otters, and speed, location, destination, and route, and the station all six species of sea turtles. Destructive col- responds with information on local right whale lecting practices and unsustainable collection sightings and procedures that may help prevent collisions. levels have also severely depleted the popula- http://wwwwh.whoi.edu/ tions of a number of species (e.g., seahorses and cgi-bin/rwhale.pl coral reef species). And habitat destruction is prob- ably leading to the loss of less-studied marine organ- isms before they are even identified, much less protected. efttion to the Sea 0 Consider the impacts of � There is a lack of information on the population sizes and trends marine noise pollution on of marine wildlife, as well as on the threats to marine wildlife. marine mammals, and develop 4 TwO � The lack of coordination, especially in the international arena, solutions as appropriate. reduces the effectiveness of recovery and protection actions. 0 More effectively implement the � Delays in addressing population trends can dramatically increase Convention on International Trade the cost of recovery efforts. in Endangered Species of Wild Fauna A and Flora, and improve cooperation with ReccDmm domestic and international partners, � Increase research and monitoring activities to provide informa- including increased training and capacity tion on populations of marine wildlife, and threats and solutions building for other countries. to their decline. 4-4 � Develop and implement national goals and coordinated action Fair mau-e @nqc)=at@an plans to recover marine protected species. Ei http://wwwnmfs.gov/ � Increase coordination with tribes and states on research, prot-res/prot-res.html recovery and management of marine protected species. El http://state-of-coast.noaa.gov/ � Address key existing and emerging threats, including modifica- Ei http://wwwfws.gov/r9endspp/ tion/destruction of coastal and estuarine seafloor ecosystems endspp.htn-d by fishing gear, coastal habitat destruction resulting from shore- Ei http://wwwfws.gov/r9dia/ global/cites.html line protection efforts, and watercraft collisions with marine _ AV mammals. 13 http://wwwheritagetnc.org/ , All � Develop a coordinated policy and action plan for dealing with interactions between the public and expanding seal populations, the growth of marine aquaculture, and the use and effectiveness of marine preserves. � Develop solutions to safely deter marine mammals, sea turtles, and seabirds from becoming entangled in fishing gear; prevent incidental bycatch in commercial fisheries; and reduce the impacts of ship traffic on marine mammals. 0 America's Oce Futar'4 3 w 4P, Marine Protected Areas ational parks, wilderness areas, wildlife management areas, state forests, and city parks are all examples of land-based "protected areas." The designation of protect- ed areas on land has a long history and proven track record for providing long- term protection, resource management, recreational opportunities, and other uses. Establish a strongly Marine protected areas are defined as any area of intertidal or subtidal terrain, linked, scientifically together with overlying waters and associated flora and fauna, and historical and based, comprehensive cultural features, that have been reserved by law or other effective means to protect part or all of the enclosed environment. Categories of marine protected areas can network ofprotected areas range from strictly protected wilderness areas to multiple-use areas. representing diverse There are approximately 300 marine protected areas in the U.S. managed by federal US marine ecosystems. agencies, state governments, or nongovernmental organizations. U.S. marine pro- tected areas include National Marine Sanctuaries; selected National Parks, Seashores, Monuments, and Wildlife Refuges; National Estuarine Research Reserves; National Estuary Program areas; and certain areas designated for rebuilding fish stocks in Fishery Management Plans. Marine protected areas are important management tools with unique potential to help communities protect and sustainably use their valuable marine and coastal resources. They have been used effectively to conserve and manage natural areas, reduce user conflicts and impacts from user activities, provide educational opportuni- ties, enhance commercial and recreational opportunities, and provide undisturbed areas for scientific comparison with nearby degraded habitats. Despite these bene- fits and the fact that oceans cover over 71% of the Earth's surface, internationally, less Ar than 1% of the sea is designated as marine protected areas. Domestically, about 1% of the ocean area under U.S. jurisdiction is designated as marine protected areas, and less than 1% of these areas protect marine life flom fishing and other impacts. Many "Mo natural treasures on land have been given special protections to allow them to remain as undisturbed as possible as part of the National Wilderness Preservation System. No such system exists for U.S. ocean environments. 4 4 lurning to i6e Sea MR ecosys- tem functions or � The U.S. does not have an integrated, compre- contain significant hensive network of sites representing the U.S. historical or cultural nation's major ocean and coastal environments. resources. � There is no comprehensive approach to desig- tof!ITHTW4@, 0 Examine the concept of marine nating, evaluating, or monitoring marine pro- WMLIrkorm wilderness areas and its applica- tected areas at either the state or the federal level. tip to bility to U.S. marine protected areas. � Marine protected areas have not been used ',.a d, evaluate solu- 0 Evaluate the ability of existing marine n 4#-" to I A effectively for the long-term protection and ,4@ o 7ns he p protect this protected areas to protect unique or sustainable use of commercial and recreational I', sensitive area. This group, representative examples of biological, 4P 1 fisheries. usin g ecological data, cultural, or historical resources; identify N-r � Limited funding prevents adequate enforcement 7% socioeconomic informa- new areas of important ocean diversity and monitoring in existing marine protected areas. tion, and public input, and productivity; and add sites and capaci- � There are too few areas that preserve marine It unanimously recommend- ties to address specific local, tribal, regional, biodiversity by limiting fishing and other ed establishment of a new national, or international issues and needs harvest activities. marine protected area for 0 Leverage public dollars to encourage pri- k the Tortugas marine com- vate donations by corporations and indi- (RecommencoaVoins munities. viduals to support national marine sanctu- aries and other marine protected areas. � Increase linkages among existing marine pro- http://fpac.fsu.edu/ 0 Seek Congressional support for the tected areas within the U.S. and with those in tortugas/index.titmi neighboring Countries to create a well-cooidinat- Chnton/Gore Lands Legacy Initiative, ed network of sites for long-term monitoring, public which proposes to more than double education, sustainable use, research and exploration, and the funding to strengthen our nation's twelve protection of natural resources. national marine sanctuaries. � Establish criteria to evaluate the effectiveness of existing Foir moire @nqormaVon marine protected areas, and improve individual site perform- o http://wwwsanctuaries. nos.noaa.gov ance and the success of the overall network. 0 http://wwwnps.gov/ � Identify areas of important ocean biological diversity and ci http://www/iucn.org/themes/ productivity and habitats for endangered species and commer- wcpa/ppa.html @14 cial and recreational fisheries species, including essential fish 01"e habitat and coastal and marine areas that provide key Cfioxc America's Ocean Future 45 Ocean and Coastal Habitats Ocean and coatal habitats ae very diverse, ranging from coastal streams and sandy beaches to seagrass beds and kelp forests, and from coral reefs and arctic ice shelves to open ocean waters and deep ocean canyons. The nation's ocean and coastal habitats support some of the most valuable and diverse biological resources on the planet, including 66% of all U.S. commercial and recreational fish and shellfish, 45% of all protected species, 50% of nongame migratory birds, 30% of migratory waterfowl, and thousands of other species. These habitats also provide important services, including flood control, watre filtration and storage, storm protection, food production, and recreation and tourism. While it is clear that human activities have degraded or destroyed many ocean and coastal habitats, in some cases, the scope and magnitude of these impacts are largely unknown, and we do not fully understand the complex processes related to ocean and coastal habitats. Recent scientific examination of the effects of bottom trawling on the seafloor shows evidence of large-scale habitat alteration, particularly within less resilient seafloor communities. Other activities, such as dredging, although necessary to maintain our nation's waterways, can also harm valuable riparian and estuarine habitats and raise ancillary problems associated wit contaminated dredge material and its disposal. Human activities, such as residential and commercial development, can alter or destroy valuable coastal wetlands, which are critical habitat for many species of fish, shellfish, birds, and other marine wildlife. The port of Oakland has until recently been unable to dredge its channels because it could not find an environmentally acceptable site to dispose of the dredged material. An innovative wetlands restoration project in the Sonoma Baylands helped find a creative solution by hydraulically pumping clean dredged material onto former marshlands that had subsided. Oakland is now more competitive in the deep-draft Pacific container trade, and the future marshland is prime habitat for intertidal plants and animals. effect on-the-ground Nk. � There is limited understanding of the causes of recently change in coastal areas. observed changes in ocean chemistry and their potential 0 Implement coordinated, comprehen- impacts on ocean and coastal habitats. sive efforts to reduce the impacts of � The nation's ocean and coastal habitats have never been com- dredging and fishing on coastal habitats. prehensively mapped or described. 0 Develop cost-effective, environmentally 0 No coordinated monitoring program exists to track the health acceptable regional sediment management and condition of ocean and coastal habitats and integrate procedures that speed remediation of contami- federal, state, and local data. nated sediments and increase beneficial reuse of � There is no comprehensive, long-term planning and tracking both dean and remediated dredged material. of permits and use of ocean and coastal habitats, including 0 Assemble and disseminate information on the social impacts on essential fish habitat. and economic values of ocean and coastal habitats. � Ocean and coastal habitats have tremendous social and 0 Develop and implement new technologies to respond economic values that are not captured in any assessment. to threats and restore damaged coastal habitats. � Technical and financial resources are not available to adequate- 0 Support community-based partnerships to identify, t;,, 4&_ 1@W ly restore most damaged habitats or respond to emergency design, and implement coastal habitat restoration situations. projects. 4 0 Increase research to understand the ongoing � Contaminated sediment, dredging, and the disposal of dredged material pose a threat to ocean and coastal habitats. changes in ocean chemistry For more @nqormaUon � Implement a coordinated, comprehensive effort to map and Ei http://wwwnmfs.gov/habitat monitor the condition of U.S. ocean and coastal habitats, such as E:i http://vvwwarcpartners.org the Aquatic Restoration and Conservation Partnership. 11 http://www.fvvs.gov/cep/coastweb.htmI � Produce an annual report card on the health of the nation's El http://state-of-coast-noaa.gGv/ ocean and coastal habitats. bulletins/htrrd/chr lo/ � Fully implement the essential fish habitat requirements of the chr.htn-d Magnuson-Stevens Fishery Conservation and Management Act. Ei http://wwwepa.gov/owow � Work with other federal, tribal, state, and local agencies to encourage the use of existing wetland restoration programs to W-@ A, e@n- fbiu'@ Water Quality oxic and nutrient pollutants, sedimentation, and disease-causing organisms are degrading ocean and coastal water quality and threatening public health, the Protect and environment, and the economic well-being of communities that depend on fish- restore coastal and ing, tourism, and marine commerce. While "point" sources of pollution, such as marine waters to safe- discharge pipes, continue to be a problem, the leading cause of water pollution today is "nonpoint" source pollution, which includes runoff from farmland, subur- guard human health, ban lawns, and city streets, as well as pollution that is deposited from the air. sustain the rich diversity of Increasingly, excess nutrients in polluted runoff are contributing to harmful algal blooms and robbing coastal and marine ecosystems of life-sustaining oxygen, cre- wildlife, promote a thriving ating "dead zones" that cover huge areas, such as the 7,7oo-square-mile dead zone economy, andpreserve a in the Gulf of Mexico. Pollution can also alter the chemistry of the coastal ocean, recreational and aesthetic which scientists fear is happening in the Bering Sea and other areas. A@ resource for safe enjoy- As pollution continues to contaminate our waters, more and more people are faced with the risk of illness from exposure to toxic contaminants and disease- causing microorganisms, either when eating the fish they catch or through direct -,;7 @,7- contact with polluted waters. In 1998, approximately 30% of all beaches surveyed reported an advisory or closing, and 6o% of coastal waters were under fish- consumption advisories. Ir dwfta 0 Water quality improvement efforts to protect human health and the environ- ment have been focused primarily on inland and coastal waters. As a result, the impacts of pollution on the marine environment are not as well understood. 0 While the federal government has developed national guidance on fish-con- sumption advisories and recreational water quality monitoring, many tribes and states do little or no monitoring, and variation in their methods and stan- dards persists. 0 Contaminated sediments along our nation's coasts are degrading water quality 0 Many former ocean disposal sites are unmonitored, and their impacts on 49 Tarning to the Sea marine and coastal waters and ecosystems are largely unknown. 0 Assess the impacts of military, industrial, and other coastal and ocean disposal sites, � Implement the Administration's Clean Water Action Plan and identify and implement appropri- a e monitoring, protection, and to effectively address polluted runoff and other remedial measures where sources of pollution, as well as improve coordi- nation among federal agencies. Ptesidont'g and Vice necessary *40 � Increase research on the effects of water President's igg 8, Clean Water 0 Work with international quality and ocean discharges on the 'P Actidn Plan uses collaborative partners to reduce the flow watershed strategies to protect and of pollutants from land into marine environment, including on restore water quality. Action items under oceans by implementing marine wildlife, and use this informa- AY the plan include developing a multi-agency the Global Programme of tion to improve protection for ocean and coastal resources where necessary Coastal Research Strategy, creating a coordi- Action for the nated monitoring plan for coastal waters, Protection � Assist tribes, states, and territories in and issuing a report to the public on the ofthe adopting fully protective fish-consump- condition of the nation's coastal waters. tion and beach water quality standards, Marine ___\ -"' , I-.--- T http://vTvvw. Environment conducting adequate fish tissue and beach cleanwater.gov from Land-Based water quality monitoring, and developin Activities. effective public notification and education pro- grams. Consider legislation that promotes these goals. For more @nqormaUon � Improve detection of pathogens in fish wildlife, and recreation- al waters through research on new technologies, and reduce the o http://wwwepa.gov/water occurrence of contaminants in coastal waters through improved o http://state-of-coast.noaa.gov N controls on sewer overflows, stormwater runoff, and other 1:1 http://wwwfws.gov/cep/coast/ IN web.html sources of pollution. Ei http://marine.usgs.gov � Effectively manage and remediate both inland and coastal Ei http://wwwnos.noaa. contaminated sediment sites to reduce their impact on coastal water quality gov/programs/ ncos.html � Work with tribes and states to identify and address the health of coastal waters that are not meeting clean water goals. @@reac Nonindigenous Species -V ilk he spread of nonindigenous species, such as zebra mussels, Asian clams, ship- Prevent worms, and aquatic weeds, is one of the most serious threats to the nation's ocean and coastal ecosystems and the communities and economies that J introductions and depend on them. one of the primary sources of aquatic nonindigenous species control existing is discharge of ballast water in ships arriving from foreign ports. Every minute 40,000 gallons of foreign ballast water that may contain exotic species, indud- populations of nonindigenous ing disease-causing pathogens, are discharged into U.S. harbors. other sources species in US ocean and include aquaculture, introductions of stocks for sportfishing, ship hulls, and coastal waters. floating debris. Hundreds of nonindigenous species have now become established in the nation's coastal waters; over 240 nonindigenous species are found in San Francisco Bay alone. Once established, these species are almost impossible to eradicate. Nonindigenous species have displaced and eliminated native species, impacting fisheries and costing communities billions of dollars every year in control measures. For example, in 1996, foreign viruses reduced U.S. aquaculture production of shrimp by 50%, and failure to control the nonindige- nous ruffe fish in the Great Lakes may cost over $500 million in losses to sport and commercial fisheries by 2005. Some nonindigenous species, such as cholera bacteria and some algae, have also had negative impacts on human health. In February 1999, President Clinton established the U.S. Invasive Species Council through Executive Order 13112. The Council, chaired by the Secretaries of Interior, Agriculture, and Commerce, is responsible for fulfilling the Executive Order's mandates, including the development and implementation of a national action plan to address invasive nonindigenous species. While the action plan is a significant start, immediate and substantial progress is still required. __ jlc 50 Turning to the Sea onga@ng Concerns 0 Fully implement the National Ballast Water � The U.S. lacks comprehensive, coordinated strategies and Information and the National actions to prevent the introduction and spread of nonindige- An nous species in ocean and coastal ecosystems and to identify Aquatic Nuisance Clearinghouses to pro- vide a centralized location for information and respond to nonindigenous species present in coastal on ballast water treatment, coastal non- areas. � Little information is available on the potential threats of non- indigenous species, research, and education. indigenous species, how to prevent their introduction, or their 0 Develop effective monitoring, education, research, costs to marine and coastal ecosystems. and rapid-response capabilities to quickly identify � U.S. efforts to date have focused on controlling existing intro- and eliminate nonindigenous species before they ductions, and relatively little has been done to effectively become established. reduce the continuing influx of nonindigenous aquatic 0 Support international efforts to prevent the introduc- species into coastal areas. tion of nonindigenous marine species, such as the International Maritime Organization's Marine � There is no international system for controlling introduction of marine nonindigenous species. Environmental Protection Committee's Ballast Water Working Group. For more @nqormaVon � Increase efforts to prevent and control introductions of non- Ei http://wwwgreat-lakes.net/envt/exotic/ indigenous species into marine and coastal ecosystems exotic.htnil through the Aquatic Nuisance Species Task Force established � http://wwwanstaskforce.gov/ under the Non-Indigenous Aquatic Nuisance Prevention and � http://wwwuscg.mil/hq/ Control Act of 19go. g-m/ms04/first.htm � Increase support for existing regional initiatives in the Great El http://wwwnfrcg.gov/nas/ Lakes, Pacific, and Gulf of Mexico to control and prevent intro- ductions of nonindigenous species. � Develop and implement coordinated regional strategies in other areas, and integrate all regional efforts into a national 7 strategy as part of the national nonindigenous species plan required under Executive Order 13112. 1c, okmeinez- AL 'WIN 7 4A*# Marine Debris ften called "beach litter," marine debris is a major problem on beaches and in V11 coastal waters, estuaries, and oceans. Close to 8o% of debris is washed, Protectpublic blown, or dumped from shore, while 20% is from recreational boats, ships, health and the fishing vessels, and ocean platforms. Most marine debris is man-made and slow marine and coastal to degrade, such as cigarette butts, soda cans, plastic bags, and fishing gear. Studies have shown that marine debris threatens over 265 different species of environment by increasing marine and coastal wildlife through entanglement, smothering, and interference public awareness of the with digestive systems. "Ghost fishing" - entrapment of fish and marine mam- mals by lost or abandoned nets, pots, and gear - is reducing fish and wildlife impacts of marine debris populations. In addition, certain types of marine debris, such as broken glass and and by working creatively to medical waste wash-ups, can pose a serious threat to public health, causing eliminate it from our beaches beach closures and swimming advisories and robbing coastal communities of significant tourism dollars. The U.S. Army Corps of Engineers spends $9.4 million J and waters. annually to remove drifting and floatable debris from the New York/New Jersey Harbor alone. (Onga@ng 0 Implementation of effective marine debris control measures is currently hampered by a lack of consistent monitoring and identification of sources of debris. 0 Implementation and enforcement of local anti-litter regulations and manage- ment of debris entering and e)dting sewer systems are inadequate to effective- ly address the marine debris problem. 0 Marine debris can be the result of small-scale pollution by individuals who consider their discharges or littering to be of negligible impact compared with large-scale polluters. However, the cumulative impact of continuous, small-scale pollution can be dramatic. 0 Plastic makes up about 6o% of the debris found on beaches. The increase in the use of various kinds of plastic as durable, lightweight packaging has heightened the need for proper management and disposal. 52 Torning to the Sea Recommendations Reestablish an interagency marine debris working group to coordinate development and implementation of monitoring source identification, control, and education programs to address and find creative solutions to the marine debris issue. Improve controls on potential sources of marine debris, including working with communities to implement and enforce anti-litter laws, improve floating controls for local sewer systems, and employ statistical marine debris monitoring protocols. Accelerate cooperative efforrts with industry, with tribal, state, and local governments, and fishing groups to find creative ways to prevent and clean up marine debris and to increase public awareness of its impacts. Support and encourage research efforts to pursue new packaging technology, and increase recycling opportunitie, particularly for plastics. For more information http://www.epa.gov/owow/oceans/debris/idex.html http://www.uscg.mil/hq/g-m/nmc/seapart.htm http://www.yotoy8.noaa.gov/books/debris/debris.htm LI "Ireally don't know why it is that all of us are so committed to the sea, except I think it's because in addition to the fact that the sea changes, and the light changes, and ships change, it's because we all came from the sea.... We are tied to the ocean. And when we go back to the sea - whether it is to sail or to watch it - we are going- back from whence we came, Kesidiffil JUIIII I. JIVIIIIctly 54 Turning to the Sea Discovering the Oceans Exploring and understanding the oceans is critical to our well-being and survival. V .tO hboat an,&Iabordt@ry rIUMISI, - UpIld America's Ocean Future 5 5 L Ocean Education eople are drawn to the oceans by their beauty power, and infinite possi- bilities. Their inspirational power is demonstrated in centuries of litera- Use ocean ture, art, and music. Yet relatively few people understand the complex relation- discoveries to ship between the oceans and the Earth's atmosphere, or grasp the magnitude of human impacts on fragile marine resources. 44y heighten public aware- A recent survey found that many Americans have misleading ideas about the ness of the full range of ocean and coastal environment. For example, only one in six knows that the ocean issues and inspire leading source of petroleum pollution in rivers, lakes, and bays is car oil washed off streets into local waterways; most people think the leading sources are oil the next generation of ocean rigs, tankers, and refineries. Similarly, the majority of adults recently surveyed scientists and explorers. are unaware that the leading cause of entanglement of marine wildlife is aban- doned fishing lines and nets. And four out of five Americans do not identify pollution running off the land as a problem for the oceans, although it is the leading source of marine pollution. Irk Continuing intensification of human activity near the coasts presents complex issues about marine and i@_ duty, reserve, coastal ecosystems and societal choices. Comprehen- ,and Aa*ifisfy Coa9t Guard members sive ocean awareness is critical to effective citizen have b-dip-dJa over2looo,doo peopple participation in decision-making processes. Citizens understand the effects of oil, hazardous have increasing needs for informal education and hemicals, waste, debris, and what specif- c lifetime learning, as well as basic scientific literacy ic actions they can take to protect the to be capable of making sound choices. Children in marine environment. particular need to be engaged in ocean and coastal http://www,uscg.mil/hq/ marine science. Young students have been motivated by hands-on experiences, such as the National Ocean gmni,/,nInc/seapart.htrnl Sciences Bowl(O, aquarium programs, GLOBE, Sea Partners, and Sea Camp. The ocean science community has the opportu nity to make the oceans a major context in which to study the inter- 04 actions of science, technology and society it 4 0., 11"'."'! q:7 MEMO M M M M M M M M M = � Although the government and private institutions support ocean current ocean science W science education and outreach programs, these efforts are rarely and policy problems, driven by a specific plan to assess and improve the quality of 0 Expand efforts to create discovery- ocean science education for students, teachers, and the general driven, interactive web sites for all feder- public. al ocean programs to engage children and � Current ocean and coastal educational materials are not as adults in a lifetime of ocean discovery effective or useful to educators as they could be because they are 0 Expand partnerships between the federal gov- often not closely related to mandatory curricula and are highly ernment and private entities, such as the variable in quality National Geographic Society; to leverage resources � Teacher education is critical, yet opportunities for it are limited. and increase ocean and coastal educational oppor- � Federal agencies often have very specific educational responsibih- tunities for the public. ties, such as boater education, safe handling of seafood, conserva- tion, and pollution prevention. Many of these can benefit from For moire gnqormat@on and contribute to basic ocean educational materials and o http://wwwmarine-ed.org/ programs, 0 http://wwwvims.edu/bridge/ 0 http://wwwglobe.gov o http://wwwtamug.edu/-seacamp 13 http://core.cast.msstate.edu/ � Establish a nationally coordinated effort to improve and promote 0 http://wwwaza.org/ ocean science education. _0( � Make ocean science education materials widely available to educators and the general public, � Develop partnerships and networks with education groups, 41 such as the National Marine Educators Association, the National Science Teachers Association, and the American Zoo and Aquaria Association, to facilitate interaction between the ocean cornmunity and educators. 0 Develop model programs, such as the Model Congress program, 2 . that bring students together to debate and create solutions to Ocean Observations ecent technological developments have significantly improved ocean-observing Bevelop a systems. Satellites, ships, and buoys collect many kinds of data on and within the ocean, but these observations are not comprehensive. Gaps exist in coordinated, coastal, open-ocean, and seafloor data sets. in addition, the federal programs comprehensive system collecting ocean observations are poorly integrated. By improving the coordina- tion of data coliection, storage formats, and dissemination processes, an integrat- of worldwide ocean ed ocean-observing system would provide comprehensive near-real-time infor- obser va tions to s uppor t mation on ocean and coastal conditions for the full range of users. Such a system would improve weather forecasting, detect and forecast oceanic components 6 a wide range Of of climate variability, facilitate safe and efficient marine operations, make U.S. Amk -dhtary operations societal ports more competitive, and provide daily tactical support of n worldwide. eeds. Marine ecosystems and living marine resources would also be better protected if more complete and accurate data were coEected on ocean temperature, salinity, and dissolved chemicals and nutrients that affect commercial fish stocks, marine mammals, marine ecosystems, and coastal habitats. An integrated system would make more accurate predictions of natural hazards possible, allowing for mitiga- IVA tion of damage from hurricanes, coastal flooding, icebergs, tsunamis, and seafloor disturbances causing pipeline and telephone cable ruptures. The advanced warn- ing derived from observing systems and climate predictions saved an estimated $1 billion in California alone from losses related to El Nifio, which totaled $15 bil- 0 lion nationally in 1997-98. Global ocean observations could even protect public health by collecting the necessary data to understand the fate of pollutants, pathogens, harmful algal blooms, and other health hazards that dose our beaches and shellfish beds. This system would also support fundamental scientific research and enhance public education and awareness of ocean issues. 0 Current ocean-observation efforts are limited in scope. For example, volunteer merchant vessel observations are limited to shipping lanes; most satellites can only make surface-water or very shallow-water measurements; research k&A. AL age, Sea 'g! o b - M-4 Flo indude vessels are limited to short- 0 0-_ I'& water s below the ocean's term, small-area observations; Pit, The Argo array will be a criti- the full range of and Navy data are not always cal addition to an ocean-observing sys- physical, chemical, and publicly available. where data biological measurements to the existing atmos- 4r. to support all coastal users. do exist, there are no mecha I pheric observation system; and in com 0 Encourage a strong n nisms to fully integrate them bi ation, these systems will collect '7! partnership among federal 0 No clear mechanisms exist for data necessary to forecast weather, translating large-scale, interna- ocean agencies and their I predict phenomena that influence r, tional ocean experiments into global climate, and support national range of public users to improve coordination 4 long-term, operational observa- security and basic research needs. tion efforts, or for transitioning http://www.argo.ucsd.edu in technology devel- emerging new ocean-observa- opment and the tion technologies to operational use. management of ocean-observation programs, 0 Data from different sensors, such as satellites, drifting floats, resulting in an integrated, "W: and buoys, do not share commonalities in data format, access, t and dissemination, and cannot be rapidly integrated to serve sustained, national ocean- observation system with the many different users. common data standards, 411- formats, and dissemi- Recommencoa)uons) nation techniques. � Expand open ocean-observing capabilities to enhance sam- pling of the full water column. In complement with satellite For moire observations of the ocean surface, this will advance our understanding of ocean circulation and air/sea interactions to Ei http://core.cast.msstate. 0 improve weather prediction and our understanding of climate edu/NOPPpbsplan.htn-d change, and support basic researdi, fisheries, and national security. ii http://ocean.tamu.edu/GOOS Ei http://ioc.unesco. � Expand and integrate seafloor observation capabilities to 10 improve basic knowledge of the EartlYs temperature, chem- org/goos istry, and structure. This will support pipeline and cable- laying operations, national security and research needs, and improved disaster warnings from seafloor disturbances. � Expand and coordinate coastal-observing capabilities to America's Ocean Future 59 Over the last century, human activities have increasingly produced serious chemical, physical, and biological changes in the oceans. Water and air pollution are adding to the oceans vast quantities of fertilizers and persticides that modify the chemistry of ocean water, particularly along the coasts. Overfishing, habitat destruction, invasive species, and pollution are contributing to the decline of fish, marine mammals, and other species and reducing the biological diversity of marine ecosystems. And climate change has the potential to produce changes in ocean temperature, salinity, sea level, circulation patterns, and other physical characteristics vital to marine and terrestrial life. Issues such as Pfiesteria outbreaks, red tides, brown tides, the "dead zone" in the Gulf of Mexico, introductions of nonindigenous species, and present scientific understanding. Fortunately, powerful new technologies are enhancing our ability to manage our precious marine resources and answer immediately pressing and long-term questions about preserving biodiversity, climate change, and other critical issues facing us in the 21st century. We can harness advanced information theory and computational systems to assemble and analyze data. We can use new tools- from gene sequencers to autonomous vehicles and global satellites- to simultaneously explore questions about the oceans at subcellular and global sits. Because the oceans are characterized by complex interacting physical, chemical, and biological systems, research to understand ocean processes cuts across many different scientific fields. A number of federal agencies have interests in ocean research, and each agency funds research, and each agency fund research that meets its specific mission needs. Deveop a vigorous, interdisciplinary ocean and coastal research program and cutting-edge research infrastructure. ------------------------------ ------------------------------ ------------------------------ ------------------------------ ------------------------------ Ocean research could benefit from ensure the integrity coordinated research programs across agencies and disciplinary boundaries. and accuracy of large, complex, and To encourage such coordination, in widely distributed 1997 Congress established a new National Ocean Partnership Program. data sets. The heads of twelve agencies oversee 0 Our coastal and ocean a program that provides funding for research infrastructure, from submersibles and research ves- new government/industry/university sels to laboratories, is aging and partnerships in research and education. y cannot meet the technological In addition, the National Science and demands of the 21St century. Technology Council's Comn-dttee on 4 Environment and Natural Resources is focua ing on improved interagency coordination with its FY 20oo budget initiative, "Integrated Science for Ecosystem 0 Develop an integrated, interagency science program Challenges." One component of this program is slated to with the necessary infrastructure to meet ocean and increase research on harmful algal blooms and other coastal coastal ecosystem challenges, using a coordinated water quality issues. The National Ocean Partnership Program research strategy that integrates relevant ocean sci- V and the Committee on Environment and Natural Resources ence disciplines and advances both basic and applied '*A. provide mechanisms by which agencies can agree on priorities research in ocean and coastal issues. for cooperative ocean research. Early efforts have been 0 Actively develop cooperative agreements with aca- 4 promising, but more needs to be done. demia and the private sector to expand access to specialized exploration and research infrastruc- VW_ (GngcD@ng Concerns) ture and data. � oceanography and marine ecosystem science need an 41, increased interdisciplinary approach, linking the fields of For magp_ 6nqarmat@an - physics, biology chemistry, and geology and allowing a better El http://wwwaon-d.noaa.gov/ N ocd/globec/ view of the Earth as an integrated system. o http://wvvwfhiri.usf edu/ � Current ocean and coastal research efforts do not take fall Mr advantage of opportunities for increased coordination, both in ecohab/Default.htm AI- 11 http://wwwhpl. research objectives and in shared research infrastructure. umces.edu/coop/ � There is a lack of standardized practices and procedures to the @X :A d A@ Se4- now Ocean and Coastal Exploration xploring the oceans has been an J unportant human goal for Expiore and centuries. Yet, while we discover the unknown have spent much of our history leaming about regions of the oceans. what lies at the ocean's surface, we stiH know relatively little about what hes below In just the low past 50 years, we have discovered that the greatest mountain chains and canyons on lu Earth exist beneath the sea. Only 20 years ago, we discovered totally new chemosyrithetic life forms that exist around deep-sea hydrothermal vents. Considered by some to be one of the most significant biological discoveries in the latter half of this century these organ- isms derive energy from chemicals - not the sun, revolutionizing theories of pho- tosynthesis as the basis of aU life. These organisms have adapted to living in a highly pressurized, sunless, superheated environment, and may provide insight into our understanding of the origins of life on Earth and other planets. Such discoveries demonstrate that the deep ocean remains the last great fTontier of our planet for exploration and discovery Although no one can predict what exploration wjU yield, exploration and research have led to discoveries that have changed our lives fundamentaRy and have provided knowledge critical to sus- tainably managing our natural resources. � There is a lack of information about many ocean ecosystems, "Sit 4; including the ocean's deepest regions, affecting our ability to manage them and to develop new uses and potential products. � Only four manned submersibles in the world, none of them operated by the U.S., are capable of descending to half the ocean's maximum depth. The deepest-diving U.S. manned submersible currently operating (the ALVIAI) can reach only an estimated 63% of the ocean floor. part- ftets, launc,hed the his- � Not enough effort is made to bring the excitement I toric.Sustafitable Seas of ocean exploration - truly the last frontier on Earth - to the public and to popular media. Ekp6d1fion to explore and map the nation's 12 National Marine (Recommendaz@ons Sanctuaries, providing � Establish a national strategy to expand exploration the first comprehensive study of some of the For more 5nqormat@on of the oceans, including more in-kind support by federal agencies for private ocean exploration ini- organisms and physical o http://wwwnurp.noaa.gov characteristics in these tiatives. o http://wwwnational � Support exploratory research in geographic areas, areas. academies.org/nrc such as the deep-sea vent sites, and topical areas, http://www.sustainable Ei http:wwwwhoi.du/ such as undiscovered deep-sea species. seas.noaa.gov index.html � Invest in the development of cutting-edge tech- nologies and vehicles to observe and explore the oceans from the surface to the seafloor. � Develop ways to explore the oceans remotely, including new 0 A observatories and sensors and innovative uses of technologies. Wq?. 15 The America's Ocean Future 63 "Oceans are critical, not just to our economy; not just to our food supply; not just to America's trade and security; but to the fabric of life itself. Those dark-blue waters are perhaps the single greatest natural treasure on God's Earth." Vice President Al Gore .1112111111110 1 ,., 3 6668 14103 4563 , I I I I I I I I I I @ I.- 1- I- U U I- I- I