Coastal problems and resource management a secondary social studies course

[From the U.S. Government Printing Office, www.gpo.gov]

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A Secondary Social Studies Course,

SAM PLER

curriculum Rmwarcb and Developmout Group
University of Hawaii at Manes'.
t

1978

Thii sa:--.n Ler iltrodu@:e@ !I:_ -!I ri'ne )o': i StUJI 'es ;vc t i:l'! tho
COASTA!, AND RESCU@'F: The .1
overview of the project and t
hrt@e s mpf-e- lessons fror, tile ri*lot ma-L,-rials.

1 . PROJEC-F 01,'FRVIEW

This 1-nn cains a I rip tion L) f t I, pro) -2c an d
a j-2t-l@ 1-J on
teacher tra.;.-.iii.@: iri'-rniation@ 1:1
each unit -In,i 2 ta:':::@ of contei@:< for th.- pi-*'%

I I . SAM P L H L E: S 5 0 N

These lossons @-@ce c:io@en @-.-@@ause thcy- reEloc-' a Of
formats an@i cl3ssiaom activitic@z '@-und in CPP.'.,,. Teachers' @;,,-structio-isl
visual matnr-ials, an! studei,.t rcadings and wocksheets J:-t., i7,--;,,-,@.ieJ.

A. "Gai.riin-.7

h i S I eS SCT' L s part t ' 2 w'@ i i c h d e ta i I a nu mi, e r 'of :C;rlmon
co.i@,zal problems. SLudent mat-:@rial is ill a new,;-LI'lpcr
to (@--;@enT:-, read a @z e --i e s o f 3 .I t e 71,; " C' n -I Tl g @")'D 10 l-I
accc-:,s. S c,, L T- u es t i 0 n @' a r e Z@ t f'or 7@le
@o :-ise in zhe @'O@ I S S .1;
. 0 r. . S J h
to '.hi--h @'roups are conflict ari,l tl@c- @-on-
C r 5 "x .@;t.

B. ".A.1alYzing a Co2stil

Th.:.:-, is the final in Unit and Ls
ticr of @ze,-ral idelis preserlt@.! ill tile fir@zt t-I-C
,ip p I -,- wl-lat -ho), ha , z@ i L a abcu 'L --oa sta
i m. L'a C t s 0 t . '. aric)L's C':)L@i act i-vi t to tile '1:'IL:
S 1 0 f 1 L
coa5tal scene. Th,,, @-ion@, For
0

"Poli!-ical

The fi na I I vsson in the samp 1 er i !@he open i n P- a.-- t
Pol i L ics and Resource -,emont 0 f the .,O,,.,,t z I' p, i
tz- 'es. StLidel
I , r:iaior elements involved i @Ithe
to t iL
m,akino process. S i rip I c systems diacrams are LlSe@l tO "'.2ent F" thez;"@
r'-Iajor components and the relationshiDs between [email protected] I n s c,,@ n
lessons, stuJents appl,.- this understL'inding ot@ the Jccisjojj-:,Ijkj-lg
arena to the analysis of other case studies.

Sevei%il other instructional <t73teg .Les present in t1l'-' -:0L.ItSe, -@JiC@ -.s
role-playifig activities, simulation games, Mid a slide-tuPc Pre@@o ntation are
not includcul in the sampler.
The -,iaterials arc preserltl,, un-jorgoing a f;rial revl ic- @iationil
dissomination begins in the fail o-,' 'Proil"Icted coS'iS T'.@@ a
te:ic;-.er'-s 'JUIJe5 , 'StUdent:
set of materials, rcading@@ and
and all SLIPPO.-t materialls (simlit:-Ition
games and audio -visua

CPR-kl t,-ill be distribUted @v the Curr'culum Research and
Gr@,Lip, Uni;,erz;I:ty of @j@lwaij. Fc:, Further information, collitact:

DI'. Francis POtte-iger
Co-birector.. @iSSP
Curriculim Rescarch and Development
Universitv of lixaii
Hono I U I U, HaWa i i 96822

Ms. Linda Sadler
Office of Coastal Zone Management
2001 Wisconsin Ave. NW
Washington, D.C. 20235

marine social studies project
University of Hawaii at Manoa
Curriculm Research and Development Group
University High School Library 1776 University Avenue Honolulu, Hawaii 96822
Telephone: 918-7779

OVERVIEW: Coastal Problems and Resource Management (CPRM) is a one semester
course for secondary school students being developed by the
Curriculum and Development Group of the University of Hawaii. It
is part of a larger Marine Social Studies Project, which will
ultimately include international and open ocean issues to compli-
ment the national environmental and citizenship education themes
emphasized in CPRM. The course focuses on the coastal region
of the United States and the political, economic and ecological
factors involved in the development of coastal resources. The
growing demands of an increasing population, a society seeking
new energy sources and an environmentally conscious citizenry
often collide in coastal areas. This special environment pro
vides a rich and interesting setting for the analysis of many
of these most pressing social problems.

PROGRAM 1. To increase students appreciation for the beauty, fragility
and utility of coastal environments.
GOALS: 2. To identify major social, political, and economic problems
involving coastal areas.
3. To identify key elements in the political, legal and economic
decision-making process as it relates to management of coastal
resources.
4. To relate specific local coastal problems to broader national
issues.
5. To investigate the opportunities for citizen participation
An decisions affecting coastal resource management.

CURRICULUM The course contains approximately 70 days of instruction, orga-
FORMAT: nized in 5 units:
1. Introducing Coastal Regions
2. Coastal Problems
3. Politics and Resource Management of the Coastal Region
4. Management Problems in the Coastal Region
5. Politics and terriorities: Managing Our Coastal Future
A complete Teacher's Guide accompanies the materials. Various
instructional approaches are used including filmstrips, over-
head transparencies, slides, in-class debates and discussions,
case studies, field trips, readings and worksheets, simulation
games, and role-playing experiences.

Several lessons in CPRM can be supplemented and enriched with
activities that refer to local issues and concerns. A Resource
and Instructional Guidebook accompanies the course and suggests
ways for teachers to localize the materials by developing case
studies, map exercises, field trips and other activities.

TEACHER Teacher training is required. Training sessions will last three
to five days and are to be conducted by members of the project
TRAINING: staff. Workshops will be conducted in several states' this fall
and winter.

FUNDING: Funding for the Marine Social Studies Project comes from the
Office of Coastal Zone management, National Oceanic and Atmos
pheric Administration in the Department of Commerce; Sea Grant,
University of Hawaii; and the Hawaii Coastal one Management
Program, Department of Planning and Economic Development.

COASTAL PROBLEMS AND RESOURCE Nt NAGEMENT

CONTENT OUTLINE*

UNIT 1: INTRODUCING COASTAL REGIONS

In the opening unit, students are introduce(' to major features of
coastal areas. Topics briefly explored are: the geography of coastal
regions, representative ecological systems and human uses of coastal
resources. A color filmstrip and other visual aids are used to heighten
a sense of the natural beauty and uniqueness of coastal dreas, and the
fragility of many of their ecosystems. The treatment throughout is
designed to increase student interest in coastal areas, and to deepen
their concern for the future use and development of these regions.

1. National Seashore Quiz
2. Coastal Region Filmstrip
3. Coastal Geography
4. Coastal Ecology
S. Food Webs
6. The Watershed
7. Coastal Resources
8. Our Coastal Region
9. Slide Show Activity

UNIT 2: COASTAL PROBLEMS

The second unit explores disruptions of coastal environments. Indi-
viduals and communities do not always use coastal resources wisely. The
resulting pollution, destruction and depletion have served to focus national
attention on the endangered coastal areas. The Coastal Resource Development
Game begins the unit. This simulation exercise allows students to partici-
pate in the uncontrolled development of a bay community and face the re-
sulting environmental chaos. The remainder of the unit explores, in more
depth, the problems generated by the game experience: coastal water pollu-
tion, sewage and waste disposal, destruction of estuaries and wetlands, loss
of historic and aesthetic resources, restricted recreational access, and
natural hazards in coastal areas. Students investigate recent case studies
from across the United States and their own localitites that illustrate
these problems.

1. Coastal Resource and Development Came
2. Game Debriefing
3. Land and Water Uses in the Coastal Region
4. The Problem of Sewage and Waste Disposal
S. The Sky Blue River
6. Oil Pollution
7. Wetlands and Marshes: Problem or Resource?
8. Views, Views, Views
9. Recreational Access
10. Natural Hazards
11. Tsunamis and Hilo, Hawaii: A Case Study
12. Analyzing a Coastal Scene

UNIT 3: POLITICS AND RESOURCE MAINAGEMENT OF THE COASTAL REGION

Unit 3 describes and analyzes the development of government intervention
in the distribution of coastal resources. The market, once the chief alloca-
tion agent, has no@ b,en joined by a myriad of regulatory governmental agencies
and offices, at the local, state and federal levels. Students are introduced
to the politics of coastal areas through systems diagrams. These identify
judicial, legislative, regulatory and other public institutions involved in

Pilot Materials 1978

coastal resource decisions, and show their relationships to each other. The
development and rationale behind these various institutions and their
management strategies are described and illustrated by case studies.

1. The Political System at Work
2. Resource Allocation and Management
3. Growth and the Environment: A Florida Ca: Study
4. Management Tools and Options
S. Politics and Management of Coastal Development: The Seaside Case

UNIT 4: MANAGEMENT PROBLEMS IN THE COASTAL REGION

Unit 4 details a number of pressing management problems interfering
with the optimum utilization of coastal areas. In many instances the best
efforts of planning and management agencies have failed because of lack of
coordination, understanding and implementation. Management problems in
clude jurisdictional disputes, agency conflicts, piecemeal planning and
lack of a sufficient data base concerning coastal ecology. A major role-
playing exercise involving students, in decision-making about the future
of Boston Harbor concludes this unit.

1. Limits to Regulation: The Taking Issue
2. Jurisdictional Limits
3. Ignorance of Coastal Ecology
4. Incrementalism
5. Parochial Interests: Local, vs. Regional interests
6. Conflicts Between Governmental Agencies: Boston Harbor Case Study

UNIT 5: POLITICS AND PRIORITIES: MANAGING COASTAL FUTURE

This unit focuses on current political aid management strategies aimed
at confronting the several problems illustrated in previous units. Federal,
state, and local legislation is described and evaluated for its potential
impact in solving coastal problems. The unit closes with a discussion of
the future of coastal areas, encouraging students to weigh important issues
of economics, environment, developmen and preservation. Finally, students
participate in a simulation activity designed to increase their awareness
of various public and personal participation strategies that can affect
decision -making in coastal regions.

1. Coastal Management: National Legislation
2. Coastal Management: State Initiatives
3. Comprehensive Planning: Is It The Answer?
4. Trade-Offs in the Planning Process
5. The Great Debate: Development or Restoration?
6. Possible Coastal Futures
7. Citizen Involvement Game
8. Evaluating Coastal Studies Course

UNIT 2: COASTAL PROBLEMS

LESSON 7: GAINING AcCES3

TIME: I DAY

PURPOSE

To introduce students to-the concept of access.

To review several @iys in .hi-ch the lack of access can become a serious
problem..

MAI@:RIALS NEEDED

In Unit Additional Nlateriils

Student Reading, "The [)aiiy Splash"
(All articles are fictitious,
but are based on actual stories.
The information in the pie-chart
is authentic,,

PROCEDURE

1. Announce that you have received several copies of a now newspaper which
reports on various activities in Hawaii's coastal regl.on.

Hand out a copy to each StUdent and have them read it.

2. After they finish reading, build a class discussion around the following
questions (or you may wish to have students first write out the answers
to the questions):

A. Ask: Which groups seem to be in conflict.in the stories? Over what
problems?

Malakana Story:

(Groups: Malakana Community Association vs. hotel and condominium
developers)
(Problem: the hotels are ruining the view for local residents--people
can no longer see the view)

Surf ing-Site 5tory:

(Groups: Surfers vs. hoLising developers, industry and hotels-,
Kehu Beach home owners vs. the state; public in general vs. private
land owners on beach)
(Problem: Too few surfing sites, too little beach space for recreation)

Lanoaku Story:

(Groups: Lanoaku residents vs. hotel and condominium builders)
(Problem: Newcomers are taking over the beach; local residents feel
uncomfortable with newcomers aid tourists staring at them)

Lilo Beach Story:

(Groups: public vs. developers)
(Problem: not enough parking--developers failed to build parking spaces)

(Groups: people who bity Kona estate homes vs. general public who
wants to use the beach)
(Problem: the beach area may be closed off to the general public)

B. Ask: What general issues are involved in all these stories? How
could you summarize the problem-c written about in the newspaper?

(Generally, the actions of certain groups of people are preventing
other groups of people from using beach areas or viewing scenic
spots. The common term is "thrc problem of access".)

C. Ask: In Hawaii, who can own the'beach area?

(The shore area below the mean high tide mark is owned by the state;
nobody owns it and it is supposed to besavailable to all. Above this
point, the beach may be owned by private individuals or groups.)

D. Ask: In these stories, how were people prevented from using shore areas?

(Through lack of parking, through high buildings blocking visual access,
through development of areas ruining popular beach spots.)

E. Ask: Were the actions of any of these groups in these stories illegal?

(It is likely that no laws were broken, yet the results in each case
were to prevent people from having access to beach areas.)

F. Ask: Do you know of areas where development or construction has pre-
vented you or others from gettin,,Y to certain beaches. or where scenic
views have been blocked?

THE DAILY SPLASH
vol. 1 1977 Hawaii Coastal Newspaper
RESIDENTS PROTEST LOSS SURFING SITES DECLINING; NEW RECREATION
OF SCENIC VIEW AREAS NEEDED FOR HAWAII'S GROWING POPULATION
"These new developments are 5%, easily
ruining the view--not just for accessible for
us, but for everybody!" That public recreation
opinion was expressed by sever-
al hundred members of the
Malakana Community Association
last night as they protested Total shoreline Hawaii's
the continuing development of in Hawaii - 750 miles shoreline
the rural Malakana Beach area.
Malakana Beach offers one of
the most scenic views on the
island. It has long been an
attraction for sight-seers,
picnickers and campers. But A recent survey by the easily accessible to the public
construction of new homes, Hawaii Surfing Association for recreational purposes.
condominiums and hotels along shows that the number of Everyone on the islands,
the two mile beach threatens good surfing spots is rapid- whether they are long-time resi-
to destroy the scenic beauty ly declining. Housing de- dents or newcomers, is affected
of the area. Even people velopments, beach-front by this problem, said one state
driving along the coastal hotels and new industrial planner. "We simply need more
highway no longer have much plants have eliminated over park space, but finding the land
of a view of the beach. 50% of the best surfing and paying for it won't be easy."
The Surfing Association Meanwhile,
A new vacation resort property owners on
planned for the north end of announced that they would Kehu Beach announced today they
the beach caused these latest protest any now development would fight the state's attempt
complaints from Malakana res- along surfing areas. to buy their land for a public
idents. The quarter mile State officials said the beach. "We've saved for years
long complex would have an 8 decline in the number of to build a home here," said one
foot high hedge running along surfing sites was part of Kehu Beach home owner. "If
the highway. a larger problem in keeping people want a park, they should
"It's not fair for only the enough beach recreation look somewhere else."
tourists and the rich to have space for the public.
this view", said one Malakana 37 miles of Hawaii's 750
resident. miles of shoreline are
LACK OF PARKING CREATES SERIOUS
PROBLEM FOR BEACH USERS
NEW DEVELOPMENT MAKES LOCAL RESIDENTS "UNCOMFORTABLE"
Local residents of the lee- necks". Harry Oiki doesn't go to Lilo
ward shore met yesterday to One surfer said, "It used Beach anymore. Neither does Sue
announce their opposition to to be we could go out alone Montgomery. And they aren't
further development in the But, now all those tourists the only ones. It's not that
Lanoaku area. up there looking down, I people like Harry and Sue don't
Several beach users claimed just don't feel comfortable want to go, it's just that they
they were unwilling to con- coming here any-more." can't get there anymore.
tinue sunbathing and swim- Other Laonaku residents, Lilo Beach used to be one of
ming next to the new hotels including fishermen, com- the favorite swimming and diving
and condominiums because plained that the newcomers beaches on the South Shore. The
the new residents and tourist to the area were taking over area was crowded every weekend.
are "always staring down our the beaches. But then came the new shopping
center. And then the new sub-
-------------------------- Advertisment --------------------- division.
The developers were careful to
build in several access points
so that long-time local residents
could get into the area. But they
forget one thing. Parking.

There are simply isn't any place
to park a car within a quarter
mile of the beach. The road is
too narrow and there are no open
City officials admit the park-
ing problem has helped turn this
once popular beach into what
amounts to a private beach for
the few nearby residents.

Teacher's Guide

UNIT 2: COASTAL PROBLEMS

LESSON 9: ANALYZING A COASTAL SCENE

TIME: 1 DAY

PURPOSE

To allow students to apply information from Unit 1 and Unit 2 to the
analysis and understanding of a coastal scene.

kt-@TERIALS NEEDED

In Unit Additional Materials

Coastal Scene Drawing

PROCEDURE

This activity is designed as an evaluation for Units 1 and 2. The strategy
is to confront the students with a coastal scene and have them apply what
they have learned about coastal geography, ecology, and problems to the
analysis of this drawing.

1. Pass out the drawing to each student.

2. Put the following directions on the board, or on ditto:

List 3 common geographical features of the coastal region found in
this picture.

(Estuary--at the mouth of the river)
(Sand dune--near the bulldozer)
(Ntarsh--along the estuary)
(Sandy beach--in front of the resort)
(Wave-cut cliffs'--in front of hotel and industry)
(Harbor--top cen 'ter of picture)
(Breakwater--near sailboat)

List 10 different us,@s of the coastal area found in this drawing.

(Tourism, re-%reatlonal fishing, commercial fishing, industry, recreation,
transportation, residential, agricultural, lumber, energy production,
hydro-electric power, oil refining, marina, harbor, home for wildlife,
scenic viewpoints, waste disposal --- students may find other legitimate
answers)

Explain 3 ways in which the natural ecology of this coastal area is threatened:

(Logs are damming the river, preventing fresh water from reaching the
estuary; the large dam may also be )reventing fresh water from reaching
the estuary--both will change the Etlinity of the estuary)
(Construction may be causing silt tc enter the ocean)
(Sewage outfall is dumping raw sewag,@ into the ocean)
(Oil poullution is possible from tar-ers, refineries, and the oil drilling
platform)
(Fertilizers and/or pesticides being sprayed from the airplane may wash
downstream to the estuary and into --he ocean)
(Construction threatens to fill in tie little marsh land remaining)

Which groups of people in this scene are likely to be in conflict with each
other? Name at least 4 such conflicts. (For example, the timber owners may
be in conflict with conservationists)

(Oil companies vs. resort owners)
(Oil companies vs. touri'sts)
(Oil companies vs. fishermen)
(Resort'developers vs. farmers)
(Harbor users vs. recreational groups)
(Residential vs. agricultural)
(Conservationists vs. airport owners
(Conservationists vs. fishermen)
(Conservationists vs. oil companies)

(Students may find other legitimate (.onflicts).

T,-@acherls Guide

UNIT 3: POLITICAL AND MANAGEMENT SYSTEMS AT WORK IN
COASTAL REGIONS

LESSON 1: THE POLI.TICAL SYSTEM (PART 2)

NIATERIALS NEEDED

In Unit Additional Materials

.1 Reading, "The Case of Overhead Projector
Blue Neck Bay" Grease pencil
1 Transparency for "The
Case of Blue Neck Bay"
I Student Worksheet for
"The Case of Blue Neck
Bay"
1 Student Handout, "Major
Steps in the Case of
Blue Neck Bay"

PROCEDURE

1. Assign students the reading, "The Case of Blue Neck Bay". Contrast this
story with the fable "A Fish Story" by noting that this reading is based
on a true case in the Great Lakes region.

2. After students have read the story, pass out the student worksheet. Tell
them that their assignment will be to construct another systems diagram.
The first step will be to identify the resources and all the major actors
in the story. Ask the students to name these resources and major-actors.

(There are nine: coastal resources, users, public, special interest groups,
coal and railroad lobbies, Respect Our Bay, regulatory agenices, legislative
body, and the court)

STUDENT WORKSHEET after major actors haVe Deen identified

COLIR7

REGULATORY AGENCY
LAKE CONSTRUCTION
ACENCY

SPECIAL
INTEREST
UKQUPS

1
COAL A
RAILROAD
COMPANIES1

3. After all.the major actors have been identified, and the boxes on the
worksheet.filled in, hand out 11@ijor Steps in the Case of Blue Neck Bay".

Working individually, either in 21ass or at home, students should use
this handout to help them COMPlEte the systems diagram. Each of the
steps summarizes a major activity in the story and links together two
or more of the major actors. Students should read each step and then
draw in the relationship arrows on their worksheet.

You may want to go over steps I and 2 with the students to make sure
that they start correctly. Use the overhead transparency to do this.

4. After students have completed their diagrams, go over them with the
class to insure that there is general understanding about how the
system operates. Do this by completing the overhead transparency.
Students should follow along and make sure their worksheets correspond
to the completed transparency.

COMPLETED WORKSHEET
L
COURT DECIS.'ONS
LAWS DECISIONS USES up COASTAL
LEGISLATURE
BENEFITS RESOURCES

PERMIT
@AW RE( S
REGULATORY AGENCY ,,,; Pf I @ON -
LAKE CONSTRUCTION $ BENEFITS
AGENCY

OLITICAL POLITICAL
PRESSURE PRESSURE

COAL &
R.O.B. RAILROAD
COMPANIES

LEGAL ACTION
PRESSURE PUBLIC
(@@LEGISLATt

Student Reading

THE CASE OF BUE NECK BAY

Blue Neck Bay rests in the upper r(aches of the Great Lakes, surrounded

by the tall evergreens that border the take's shore. Some vacation homes and

several small villages line the bay. liring the hot summer months, tourists

and summer residents flock to Blue Necl Bay to enjoy swimming, fishing and

camping in the quiet wilderness area.

But Blue Neck Bay is not just a vacation playground. The bay is also

a major transportation link for the coal mining industry in this region. A

major coal field lies about 75 miles from Blue Neck Bay. Railroad cars haul

the coal from the mines to the town of Pine Grove in the upper portion of the

bay. Here is is loaded on barges and hauled across the lake to several ports

on the industrial eastern shore.

In the mid-1970's the demand for coal greatly increased. Collins Coal

Company, which operates the Blue Neck lay coal field operation, doubled the

amount of coal it mined. This meant ircreased business for Collins Coal, but

it could make even more profits if its loading and dock areas in Blue Neck

Bay were increased in size. These were too small to handle the growing demand

and barges often backed up for several days waiting to be loaded. A new

facility would permit more and larger barges to be serviced at the-Pine Grove

dock.

The Collins Coa,l Company would not be the only party to benefit from new

dock and pier facilities. The Northern Bay Railroad, which transports the coal

from the mines to the Blue Neck Bay dock also favored dock expansion. This

would permit the railroad to haul more coal, and thus make more money.

To enlarge the dock facilities, the railroad company and Collins Coal had

to get approval from the state agency responsible for construction projects

on the Lake. Concerns about the environmental impact of such a construction

Thi s case is based on a real incident in the Great Lakes area.

project would likely be raised. But the two companies believed this would not

be a problem, because in the past they had been successful in getting permits

for construction activities.

For example, the state legislature had passed several environmental laws

over the pa st 20 years. One of these laws created the Lake Construction Agency

which was empowered to protect the lake against unnecessary construction projects.

But Collins Coal and the Northern Bay Railroad Company lobbied the legislature

and received exemptions from.every one of these statutes. A water pollution

statute states: "This lawshall not apply to'coal mining companies".. Further,

persons favorably disposed toward Collin!; Coal Company were ranking members of

the Lake Construction Agency (LCA). The LCA had never turned down any previous

construction request-from Collins Coal or from the railroad. Environmental

protection laws or regulations which might have restricted their bUsinoss opera-

tions had not been applied to Collins Coal or the railroad. They felt confi dent

that this time would be no different.

[,ast September, Collins Coal ard the Northern Bay Railroad companies asked

the LCA for a permit to expand the dock and pier facility at Pine Grove. The

LCA said it would study their request and issue a decision in a few months.

In the past, few citi zens of Pine Grove had objected to the activities of

the two companies. But a year ago, the town of Pine Grove built a new marina

and park about one-half mile from tho barge facility. Many residents and visitors

in the Pine Grove area felt that tho new dock area proposed by the coal and

railroad companies would interfere with this recreation area. More important,

they feared that the essentially qziiet and rural atmosphere of the town and

the upper part of the bay would he forever changed if expansion was approved.

During the autumn months several citizens in Pine Grove formed the Respect
Our Bay Association (ROB). Its primary goal was to halt the expans ion of the

dock and pier facility.

In January, the state legislature opened its annualsession. ROB members

got their representatives to introduce a new Lake Protection Law which would

make it illegal to build large structures out into the lake. If this law

were to be passed the new dock and pier facility proposed by the railroad and

coal companies would not be permitted.

Representatives supporting the coal and railroad interest, however, were

too strong, and the law did not pass.

A few weeks later, the Lake Construction Agency (LCA) announced it would

hold its last public hearing on the pier and dock facility. If no one brought

up serious objections at this meeting, the agency would immediatly issue permits

to allow Collins Coal and Northern Bay Railroad to begin construction.

ROB made a long presentation at the hearing, explaining how the noise and

"industrial nature" of the enlarged loading-unloading facility would disrupt

the quiet nature of the bay. Several residents from Pine Grove also testified

that the new facility would interfere with the Pine Grove marina. Others argued

that the new dock area would seriously pollute the lake environment.

Spokespersons from the coal and railroad companies also made presentations

They argued that the new facility would not disrupt the marina and recreation

area, and they said the bay was big enough for all kinds of activities. Out-

lawing industrial uses would be detrimental to further economic growth of the

region.

A week later the LCA announced approval from the construction project.

ROB had been defeated twice in it's efforts to save the bay. It had one

last alternative--to take legal action through the courts. Three days before

construction was to begin, ROB filed a lawsuit against the Lake Construction

Agency for failing to adequately study the situation. The court oredered a

temporary halt to all construction until LCA could demonstrate that it had

considered all the data before granting the permit. After listening to testimony

from both the agency and ROB, the court ruled that LCA had not performed fairly.

The court halted all construction.

Student Handout

MAJOR STEPS IN THE CASE OF BLUE NECK BAY

1. Some users use the bay as a recreation and transportation resource.

2. These users benefit fr their use of the bay.

3. The general public also benefits from both of these uses.

4. The state legislature passed laws concerning use of coastal resources.
(One of these laws created the LCA)

S. The coal company and tile railroad put pressure on the state legislature
to pass certain kinds of laws.

6. A concerned group of recreational users of the bay formed a special
interest group called ROB to protest the building of tile dock.

7. ROB put pressure on the legislature to pass a new law.

8. Coal and railroad companies put pressure on the legislature to not pass
the law. (The legislature failed to pass the law).

9. ROB put pressure on the LCA to deny the permit.

10. Coal and railroad companies put pressure on the agency to allow the permit.

11. The agency granted the permit to the coal and railroad comapanies for use
of the bay.

12. ROB went to court and filed a lawsuit against the agency.

13. The court made a decision to halt construction. This affected the users
of the bay, the LCA, and the general public.

BLUE NECK BAY STUDENT WORKSHEET

COASTAL PROBLEMS
-AND RES. OURCE "MA.-NAGEME-N.T,"..

A SECONDARY SOCIAL STUDIES COURSE

'00@
0

SAMPLER

CURRICULUM RESEARCH AND DEVELOPMENT GROUP
UNIVERSITY OF HAWAII AT MANOA C 1979

Coastal Problems and Resource Management

produced by

Curriculum Research and Development Group
University of Hawaii

Ronald L. Mitchell Project Coordinator
Francis M. Pottenger Project Coordinator
Gregory L. Rhodes Project Manager and Author
Ronald F. Turner Author

Contributors: Ray Conrad, Carol McCord, Susan McKay, Norman
Okamura, Faith Paul, Vicki Viotti

Production
Staff: Cathy Cloud, Peter Guido, Sheri Horiuchi, Norine Ige,
Wendy Kuba, Lisa Luke, Constance J. McCurdy, Jean
Millholland, Vera Torres, Doreen Yamane

Illustrators: Wesley Chun, Ann Howard, Brian Morishige, Dennis
Saito, Paula Tanji

COASTAL PROBLEMS & RESOURCE MANAGEMENT is distributed by the
Curriculum Research and Development Group, University of Hawaii. For
further information contact:

Marine Social Studies Project Ms. Linda Sadler
Curriculum Research and Development Group Office of Coastal Zone Management
1776 University Avenue 2001 Wisconsin Avenue NW
Honolulu, Hawaii 96821 Washington, D.C. 20235
(808) 948-7910

Copyright: 1979 by the Curriculum Research and Development
Group. University of Hawaii. All rights reserved. No part of
this publication may be reproduced. Stored in a retrieval system
or transmitted in any form or by any electronic, -
chemical photocopying, recordeing or otherwise without the prior
written permission of the publisher. Printed in the United States
of America.

The development of Coastal Problems and Resource Management
was approved by the Office of Coastal Zone Management NOAA
Department of C ce. Number 04-7[58-4-035. and the
Hawaii Coastal Zone Management Program. Department of Planning
and Economic Development Scales of Hawaii

V=1

Coastal Problems and Resource Management (CPP-M) is a one semester course
for secondary school students. The course focuses on the coastal region of
the United States and the political, economic and ecological factors involved
in the development of coastal resources. The growing demands of an increasing
population, a society seeking new energy sources and an environmentally conscious
citizenry often collide in coastal areas. This special environment provides a
rich and interesting setting for the analysis of -any of these most pressing
social problems.

PROCRAM GOALS:

1. To increase students appreciation for the beauty, fragility, and
utility of coastal enviro=ents?

2. To identify major social, political, legal and economic problems
involving coastal areas

3. To identify key elements in the political, legal and economic
decision-making process as it relates to management of coastal
resources,

4. To relate specific local coastal problems to broader national issues.

5. To investigate the opportunities for citizen participation in
decisions affecting coastal resource management.

CURRICUMI FORMAT:

The course is organized in 4 units:

Unit 1: At The Water's Edge
Unit 11: Understanding Coastal Ecology-
Unit III: Resource Management: Politics and Plinning in the Coastal Region
Unit IV: Case Studies in Resource Management
I

Various instructional approaches are used including filzstriPs, overhead
transparencies, slides, i:i-class debates and discussions, case studies, field
trips, readings and worksheets, simulation games, and role-playing experiences.
Several lessons in C?.RM can be supplemented and enriched with activities that
refer to local issues and concerns. The course materials include: Teacher's
Guide, Student Readings, Student Worksheets and the Coastal Resource Development
Game (Ostrich Bay).

Teacher Materials: A complete set of procedures acc '="panies each lesson.
e procedures can be followed exactly as urritten, or teachers can adjust them
to better fit their classes. All lesson plans use a si--ilar format, each having:

1. a unit a-ad lesson title
2. an estimated ti=e for the activity
3. a purpose of the lesson
4. a list of =aterials needed
5. an overview of the lesson.

Student Materials: Student materials fall into two categories, student
worksheets and student readings. Worksheets are typically filled out by
students and then collected by the teacher for evaluation. The readings include
case studies, reference materials and other descriptive information that can be
handled as in-class or homework assignments.

CONTENT SUMMARY:

Unit I: At the Water's Edge

The initial lessons confront students with activities designed to intro-
duce a variety of important coastal features. The activities orient students
to the coast and turn their thinking toward the uses and values of the coastal
area. The many benefits of the coast are examined from both a national and
local perspective.

Lesson Five, "The Coastal Resource Development Game," personally involves
students in several problems and conflicts centered in the coastal area and the
interactions of ecological, economical and political concerns. This simulated
experience has students participate in the development of a bayside community,
and provides opportunities to confront complex problems facing coastal commun-
ties. The game introduces many important themes and concepts which are then
explored more fully in the remainder of the course.

Unit II: Understanding Coastal Ecology

This unit begins with an introduction of the important ecological pro-
cesses which take place in the coastal region. Systems diagrams are used to
display the basic relationships between producers, consumers and decomposers.
the natural process of the coastal ecosystem is described and the effects of
certain disruptions to this system are introduced. Oil pollution, sewage and
waste disposal, and the destruction of estuaries and wetlands are among impor-
tant ecological problems studied.

Natural hazards are also discussed in this unit, and Lesson Eight,
"Tsunamis and Hilo, Hawaii: A Case Study," provides a specific example of how
the presence of tsunamis has affected one coastal community. Students take
the roles of citizens of Hilo, who, in the aftermath of a devasting tsunami,
try to decide what protective measures to take regarding future disasters.

Unit III: Resource Management: Politics and Planning in the Coastal Region

Emphasis now shifts from ecological concerns to political processes and
problems. This unit describes and analyzes the role of government involvement
in the coastal region. Two short lessons about the destruction of scenic views
and the loss of beach access introduce students to the idea that government
decisions affect the ways coastal resources are used. Students are then more
formally introduced to the politics of the coastal area through systems diagrams.
They identify judicial, legislative, regulatory and public roles and interests
as they relate to the coast. Lesson Four, "The Case of Blue Neck Bay," allows
the application of these general principles to a specific case. Common strate-
gies for governing coastal resource use are presented in lessons five and six.

The remainder of the unit focuses on management problems and the effects
of governmental regulation and influence on effective planning and optimum use
of coastal areas. For example, Lesson Ten, "The Taking Issue: Legal Limits
to Regulation," examines the delicate balance between the rights of government
to regulate land use and the rights of property owners to use land as they see

fit. A final activity has students apply their understanding of resource =anage-
ment strategies and problems to planning the future of a coastal county.

Unit IV: Case Studies in Resource Management:

This unit brings together the previously separated ecological and politi-
cal arenas in the analysis of several case studies. Through a series of different
types of activities, studints are involved in the processes and concerns faced by
participants in the debates over energy, economics, ecology, and government in-
volvement. Lessons five and six present the general status of national and state
legislation as they affect coastal zone management efforts. A final lesson,
IlCoastal Futures: A Personal Case Study," encourages students to utilize the
strategies and concepts introduced throughout the course by developing their
vision for the future of the coastal region.

TEACEER TRAINING:

Teacher training is required. Training sessions will last three to five
days and are to be conducted by members of the project staff or other designated
trainees.

SA'MPLER LESSONS:

This sampler contains 4 lessons fro= COASTAL PROBLEXS & RESOURCE
MANAGEHENT. These lessons demonstrate a variety of instructional strategies
and student activities. Teacher's Guides, Student Readings, and Student
Worksheets are included.

THE NATIONAL SEASHORE QUIZ: opens the course and is designed to
stimulate awareness of coastal topics. This is not intended as a
testing exercise, but as a device to encourage discussion and arouse
student interest.

OSTRICH BAY: A COASTAL SIMULATION: Only the Came Overview is
included in this sampler. Complete game instructions and game
materials come with the classroom package. This and other simulation
and role-playing activities in the course allow students to experience
planning processes, management conflicts, and citizen involvement
strategies.

GAINING ACCESS: discusses a major problem in nearly all coastal
areas, that of maintaining adequate public access to the shore. This
lesson also exemplifies a unique feature of the national course desigm
--the insertion of local materials into the course. The ac "cess lesson,
for example, contains Hawaii stories and has been used in several Hawaii
Schools. For other states, newspaper articles relating their particu-
lar access problems would replace the Hawaii version.

ENERGY AND THE ENVIRONMENT: THE NORTHEAST ATLANTIC:
examines the impact energy resource explanation and development can
have on a coastal area. Students examine the differences in com-
munity needs and interests and how these relate to coastal resource
use. They read an account of oil exploration in the Northeast At!a-ritic
and examine the reactions of three areas to the possibility of oil
discoveries in "their back yard."

Teacher Page

UNIT 1: AT THE WATER'S EDGE

LESSON 1: THE NATIONAL SHORELINE QUIZ

TIME:. 1 DAY

PURPOSE

To introduce students to the topic of coastal studies.

MATERIALS

In Package:

Worksheet I-1, "National Shoreline Quiz"

OVERVIEW

In this short introductory lesson, students take and score a quiz
on their present knowledge of shoreline topics. The quiz is designed
to raise interest and preliminary discussion. It is not to be graded.

PROCEDURE

1. Pass out the "National Shoreline Quiz". Tell students that you
want to determine their "S-Q" (Shoreline Quotient) before this
course begins. This short quiz will provide you with the necessary
information.

2. Have students complete the quiz.

3. Review student answers to each question. Correct answers can
be found in step 5. Where appropriate, have students explain
why they answered the way they did. Encourage discussion between
students with conflicting answers.

4. Have students score their papers and determine their "S-Q".

Teacher Page

5. "National Shoreline Quiz" Answer Key.

(1) 30 states

(2) 50Z

(3) b - A place along the coast where fresh water and salt water
mix.

(4) c - Salt marsh (coastal wetlands)

(5) 99%

(6) 2_%

(7) False. (However, in 1975, 70,000 school children in New
Orleans ate 12 tons of shark meat for lunch and loved it!)

(8) Fish and shellfish -in descending order of economic value
to the Uaited States (1977 statistics)

Shrimp
Salmon
Crabs
Tuna
Cl-S
Menhaden (chiefly used for industrial purposes)
Lobster
Flounder
Oysters
Scallops

(9) A-laska, 5,580 m1les; Michigan, 2,900 miles; Flor-ida, 1,2510 miles;
Califo=ia, 840 miles; Hawaii, 750 miles; New Ha=pshi-.e has the
shortest coastline, only 13 miles.

(10) 97%

t '_Z4 E:: C
Worksheet 1-1

NATIONAL SHORELINE QUIZ

(1) How many of the 50 United States are considered by the U.S.
Government to be "coastal states"? (The definition of a coastal
state is one that borders the oceans or the Great Lakes.)

states

(2) What percentage of the population of the United States lives
within 50 miles of the coastline?

10% 25% 33Z 50% 65%

(3) An estuary is:

a. an iceberg that floats too near a coastline.
b. a place along the coas; where fresh water and salt water
mix.
C. the scientific name for a rock crab.
d. a machine on a whaling ship used to haul whales out of the
water.

(4) W19'ich is the most productive in termi of tons of organic matter
produced per acre?

a. desert
b. wheat field
C. salt marsh (coastal wetlands)
d. deep oceazx*

(5) What percentage. of trade between continents is carried by ships?

10% 25% 53% 75Z 902

(6) Vhat percentage of the U.S. shoreline is set aside by the govern-
=ent for pubLic recreation?

22 14% 251 532 65%

S
Worksheet 1-1

(7) Sharkburgers are likely to become the next most popular sand-
wiches in seafood restaurants.

True False

(8) From the following list, name the 5 fish or shellfish which are
of most economic value to the U.S.:

Crabs 1.
Tuna
Lobsters 2.
Menhaden
Scallops 3.
Shrimp
Oysters 4.
Flounder
Clams 5.
Salmon

(9) Which state in the U.S. has the most miles of coastline? (Coast-
line refers to the length of the general outline of the Seacoast.)

(10) What percentage of the world's water is salt water?

St 28Z 50% 70% 97:

S--Q score (Nu=ber correct)

.S-Q rating 10 A real shoreline genius
7-9 Knows a lot about the shor-eline
5-6 Can recognize the shoreline when they see it
3-4 Can recognize the shoreline if so=eone points
it out
0-2 Will probably drown within 10 feet of the share-
11-ne

Teacher Page
UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 2: GAINING ACCESS

TIME: 1 DAY

PURPOSE

To introduce students to the problem of lack of public access to
shoreline areas

To understand that politica1 action influences the extent of
public access

MATERIALS

In Package

Reading 111-1, "The Daily Splash"

OVERVIEW

Students read several simulated news stories about loss of public
access to the shore, and discuss each case. Students consider whether
government action or inaction helps produce access problems, and how
government action might protect or restore public access. This lesson
and the previous "Views" lesson, are intended to alert students to the
role of government in allocating shoreline resources.

PROCEDURE

Part I: The Access Problem

1. Assign Reading 111-1, "The Daily Splash."

2. Call on one student to sumarize each story. In this summary, have
the students answer the following questions. You may want to make
this a written assignment first, or just have them answer the
questions orally in class.

a. What groups are in conflict in this story?

b. What is the basic problem or conflict in this story?

[(1) "Park Department Survey" story:

Groups: Homeowners, condiminum residents, and industry
vs. beach users
Problem: Too little beach space for recreation; increase-
ing population increases pressure to develop

Teacher ?age

the waterfront plus overcrowded recreational
sites

(2) "Lack of Parking" star-y:
Groups: Developers and homeowners vs. public
Problem: Not enough parking--developers failed to
build parking spaces
(3) "Castle Beach" story:

Groups: State goverr=ent, public beach users
vs. Castle Beach land owners

Problem: Landowners don't want to give up their
land for public park

(4) "North Shore" stor7:

Groups: Local residents vs. tourists and newcomers
Problem: New residents and tourists are crowding
out long-time beach users

(5) "Advertisement"

Groups: Public vs. developers and prospective
buyers
Problem: Beach area will be closed off to general
public]

3. Ask the following series of questions to bring out how gover=ent
is involved in the access problem. As with the "Views" lesson,
note goverx=e-nt's involvement, but do not detail its role at this
time.

a. 'What general issues are involved in all these stories? Or,
what is the coz=ork problem riported in the newspaper?

(The actions of certain groups of people are preventing
other groups fro= using beach areas. Some people are being
denied access to the beaches.]

b. In these stories, which groups denied or restricted access to
recreational areas?

[Private landowners, real-estate developers, hotel ou-ners-1

c. is there anything that can be done about this?

(In -any areas, state and local &cver-n-_ezts have attempted
to provide adequate recreation sites and =aintaim beach access.]

Student
Reading III-1

THW DAILY SPLASH

Vol. 1 1979 Coastal Newspaper
LACK OF PARKING PARK DEPARTMENT SURVEY FINDS
EMPTIES BEACHES LACK Of PUBLIC RECREATIONAL SITES
Frank Mitchell doesn't go
to Clearwater Beach anymore.
Neither does Jean Guido. And
they aren't the only ones.
It's not that people like
Frank and Jean don't want to
go, it's just that they can't
get there anymore.

Clearwater Beach used to
be one of the favorite swim-
ming and camping beaches in
this area. But then came the
new subdivision. And. then
the new shopping center. The
developers put in a public
access pathway so that long-
time local residents could
easily get to the beach. But
they forgot one thing. Park- A recent survey by the "All signs indicate the pop-
ing. County Part Department shows ulation will keep increasing
that the amount of recrea- in the future. Finding the
There simply isn't any tional beach Space easily land for beach parts and pay-
place to park a car within a available to the public is ing for it will not be easy.
half-mile of the beach. The declining. Housing develop- If the public wants more
road is too narrow and there ments, beach-front condomin- beach recreation, taxes will
are no open spaces to use. iums and new industrial surely have to increase."
plants have closed over half
City officials admit the of the county's best
parking problem has helped recreation sites to the New Developments Ruin
turn this area into what public. Beach For Local Resident
amounts to a private beach
for the few nearby residents. One park official com- Local residents in the
One official admits, "Quite plained that long-time pop- North Short area met yester-
frankly, I don't know what we ular beach spots are being day to announce their opp-
can do about it. Somebody in ringed by "Private Property - sition to further devqlop-
city government should not Keep Out" signs. "The simple ment. Plans for A new condo-
have allowed the developers fact is that developers have minium and beach-front hotel
to build along that entire sold off our beaches." along the North Shore prompt-
teach front area. A state planning spokesman ed the resident's opposition.
Beach Owners Fight Plan said today that the loss of Several beach owners
For Now State Park recreation sites is not claimed there were already
unique to this area. 'All too many hotels and comdomin-
Owners of several unde- along the coast, communities iums in the area. One life-
veloped lots at Castle Beach are faced with the problem of long resident complained,
announced they will fight the inadequate recreation space. "The tourists and newcomers
state's attemt to buy their Last weekend, Point Eagle are always staring down our
land for a new state park. Seashore Part closed its necks. It's been a local
gates at 10:00 in the morning beach for a long time, but
We've saved for years. to because they had no more now I just don't feel comfor-
build a home there." said one parking space. table coming here."
beach-front property owner. Another resident said, "It
"If people want a park, let Most officials predict the
them look somewhere else." problem with get worse if used to be we could go out on
nothing is done to accuire the North Shore beaches any-
The owners will send a more park areas. "We've had time. But now there's so
petition to the Governor's a 30% increase in population many people that I can't get
office expressing thier oppo- here in the past 15 years," into it."
sition to the park plan. reported one county planner. Other North Shore resi-
dents, including fishermen,
complained that newcomers
were taking over the beaches.

Teacher Page

UNIT: AT THE WATER'S EDGE

LESSON 5: THE COASTAL RESOURCE DETELOPMENT GAME

TL4E: 7-10 DAYS

PURPOSE

To demonstrate how and why coastal 'development occurs.

To have students confront typical problems associated with rapid
economic development in coastal areas.

CAN THE COASTAL WETLANDS BE PRESERVED? Will the Mock
Orange Ocellated Ostrich and the Great Grizzly Cator become extinct?
What happens when PETROCK (Petrochemical) industries locate on the
waterfront? Should a new power plant be approved?

These issues, and other, confront participants in the Coastal
Resources Development Came (CRDC), an exciting and informative eco-
nomic stimulation for 6 to 40 people. CRDG takes players through 5
periods of economic development in Ostrich Bay, a coastal area W-ith
t@-pical coastal features and resources. Came players form development
co=panies, buy and sell land, earn income from coastal enterprises,
and =ake political decisions.

Players experience boom periods, economic depression, and war
during the Same's five rounds of play. Developrent activities create
pollution and other environmental probler-s, which in turn affect de-
velop=ent patterns. Political decisions made by the local County
Council control or ignore impending natural calamities and on-going
enviro=ental problems. The ever present "Voice of Destiny" announces
consequences of political decisions and economic activities. In the
end, one group of players is declared Game Winner. But, at what cost?

The post-game debriefing spotlights environmental issues and
i--portant historical trends in coastal areas. Debriefing questions
generate ani=ated discussion about development strategies, gover=.ent
controls, the costs of pollution, citizen action, preferred futures,
and the issues of growth versus conservation and profits versus public
interest.

UNIT 4: 'CASE STUDIES IN SliORELINE MANAMENT

LESSON 3: EMCY AND THE F-14VIROMMENT: THE NORTHEAST ATLANTIC

TME: 1 DAY

PURPOSE

To examine the impact energy resource exploration and
development can have on a coastal area

To examine differences in community needs and interests
and how these relate to coastal resource use

MATERL41S

In Package

Transparency IV-2, "Pacific Coast"
Transparency IV-3, "Atlantic Coast"
Reading IV-4, "The Atlantic Oil Sweepstakes"

OVERVIEW

Scudents view two transparencies of the continental shelf
which show the location of present and future oil
exploration. They then read an account of oil exploration
in the northeast Atlantic and examine the reactions of
three areas to the possibility of new oil discoveries
in their "back yard."

PROCEDURE

1. Re%iew infor=ation presented earlier about the continental
shelf. Ask:

a. What is the continental shelf? Miere is it'located?

(The continental shelf is the rilatively shallow ocean
floor bordering the contine=tal land mass. Along the
Atlantic Coast Of the U.S., the shelf descends gradually.
off the Pacific Coast, the shelf is marrow and steep.)

b. what valuable coastal resources are associated with the
c-ontimental shelf?

(The shallow waters above the shelf are a pri=e breeding
ground for fish; millions of barrels of oil and natural
gas are located below the surface of the =%tinental shelf.)

2. Show the transparencies of the continental shelf - Point Out

Teacher Page

where oil wells are presently located. Indicate where new oil
leases have just been awarded to begin exploring for more oil
sources. Concentrate particularly on the East coast of the
U.S. Ask students:

A. Why are so many new areas being opened up for oil explora-
tion?

Me U.S. is highly dependent on oil as an energy source.
The U.S. government is atte:mpting to find more sources of
oil in this country so that we have to depend less on for-
eign oil. The U.S. consumes 302 of the total world demand.
In 1976 the U.S. consumed 6.4 billion barrels of oil; the
U.S. produced 3.5 billion barrels, or 552 of its de-nd.
We i=ported 45%. Oil accounted for 472 of all U.S. energy
needs; natural gas accounted for 27.32. These two total
al=st 75% of all U.S. energy needs. Coal, water power,
and nuclear energy account for the rest.

Explain that there is about a 252 chance of finding major oil
deposits in these new exploration areas.]

b. If major oil discoveries are made along the East coast, how
Might this affect coastal areas?

(Support facilities and services that oil co=panies need for
e s e
ex-ploration and production will be needed onshore. I
include refineries, petrochemical complexes, enlarged ports
and harbors, storage and warehouse facilities for supplies,
office space for corporate headquarters, ccnstruction sites
for building production rigs and other needed equip=ent,
helicopter and other airport facilities, storage tanks for
oil, etc.]

C. What are so=e advantazes and disadvantazes that =4g@,t cc=e
to a coastal area that is near a =aJor oil find?

(Increased supply of oil and natural gas, increased popula-
tion for some areas, increased pollution of coastal waters.
increased shipping t-raffic, increased e=ploy-ment opportuni-
ties, more industrialized areas, disruption of wetlands and
estuaries, etc.]

3. Pass out the reading "Atlantic 011 Sweepstakes".

After the class has finished, have students co=pare their predic-
tions about coastal i=pacts with the projections r-ade in the ar-
ticle.

a. Were there suvDort facilities =entioned in the article that
students fai2ed to list?

eacne: Page

b. Were there advantages or disadvantages that East Coast com-
Zn-ity planners are considering that students failed to
note?

c. Did your class think of certain important factors not
covered in the article?

d. What are the positions of the citizens of CaDe Mav, New Jer-
sey, Cape Charles, Virginia, and the state of Rhode Island?

e How do thev differ in their attitudes toward oil cc=anies
locating supDort facilities in their areas?
[Cape May, anti-developmen t; C;pe Charles, split'; Rhode Is-
land, pro-development.]

f. 'Which factors does each seem to consider the most Important:
economic, environmental, or political-social factors?

[Cape May, environmental and political-social; Cape Charles
political-sccial; Rhode Island, economic.]

ART I C OCENI

FUTURE DRILLING SITES

TRANS-
FIS
ALASKA
Al-ASKA PIPELINE
AN610RAGE

V
LI)
A EZ

OIL bJUNEAU
FISHING OPERATIONS
GROUNDS
FISIIING
GROUNDS

S
PACIFIC OCENI

CONTINENTAL SHELF

'r IV-2 PRESENT OIL

BOSTON

DAVISVILLE

NEw YORK

CONTIN
CAPE MAY

WASHINGTON
10E.
BALT.
CAPE CHARLES

SOUTHEAST GEOF
EMMYMEMI

I AM
NEw ORLFMIS

J6
F1 ELDS
CURRENT OIL TINENTW

GULF OF

HIGH STAKES FOR EAST COAST COMMUNITIES

T H E A T L A N T I C 0 1 L S W E E P S T A K E S

The continental. shelf is the oil exploration art the Georges Bank
"front porch" of the United States. area off Massachusetts, and new sites
Stretching away from the shoreline a- in the Gulf of Mexico and off the
long the Gulf, Atlantic, and Pacific Pacific coast.
coasts, the water of the shelf is
shallow, nutrient-rich, and teeming How much oil is in the shelf,
with fish. Nearly 90% of all the fish and whether the oil companies can ex-
we eat are caught in this valuable tract it are unknowns at this point.
"front porch." But the odds are high enough that com-
panies like Exxon will be betting up to
Beneath the continental shelf $100,000 a day for the exploration ga---
lies other kinds of wealth: oil and ble. In the Baltimore Canyon alone,
gas. These resources may possibly pro- the oil sweepstakes could yield as much
vide important new energy sources for as 1.4 billion barrels of oil and 9.4
a nation sorely in need of additional trillion cubic feet of natural gas.
petroleum supplies.
The possibility of a major oil
One oil=n says, "The future discovery is enough to make-many areas
of the world's oil industry lies under along the east coast take a serious loo';
water." The oil industry already at the possible impact of this "good
pumps over 20% of the world's oil fortune." For several co=unities, the
supply from continental shelves. Along results of the "Atlantic Oil Swee?stake-,
the Culf of Yexico and off the Cali- may mean core than just plentiful oil
forniA coast, oil ccmpanies have oper- and gas. What happens if these driller
ated oil rigs for =any years. Some 160 strike it rich?
platforms dot the Gulf, one-third of
all those operating in the world. Oil rigs =ust be fed-with
supplies, with people, and with =any
New areas of the U.S. conti- other i=portant support services. A--d,
nental shelf are now being made avail- in turn, when oil and gas are prc-duced,
able for oil ex-ploration. After long they must be sent ashore somewhere to
court battles, the U.9.. Department of b-e refined, processed, and transported
Interior, finally gave the go-ahead
for drilling in 1977. The Environ-
mental Protection A.&e_-%c7 has approved
drilling -e-.=its for 10 companies, THE FUTURE
Fri=ary areas for investigation are
the Baltimore Canyon(about 100 m1les OF THE WORLD S OIL INDUSTRY
east of Delaware and New Je:_-_-i) and
the Southeast Georgia E--ba)-ment(a LIES UNDERWATER'
similar distance off the Georgia
Coast). other new areas likely to see

to eager customers. Whtre will these
activities be located? How will all of
this affect the shoreline of many East 60 MILES AWAY,
coast communities? A look at three OIL DRILLS BITE INTO THE
areas along the Atlantic seabcard gives
some idea of the kinds of opportunities CONTINENTAL SHELF
and problems they may face if oil comes
to town.
RHODE ISLAND May. Says one local official, "Cave
For many communities in this May's economic base is inextricably
small state, the possible oil bonanza bound to a hizh quality natural environ-
may be the solution to some serious ment.
economic problems. The U.S. Navy re-
cently closed down bases in the state- By virtue of geocraDhy, Cape Xay
at Davisville, the Navy pulled out may also be bound to the oil boom on
leaving behind warehouses, fueling the East coast. 60 miles away the oil
piers, landing strips, a deepwater drills bite into the continental shelf;
port, and many unemployed civilians. if oil is found it must be transported
to the mainland, and the Cape May area
Several city and state official& is the closest--and thus cheapest--
includinz the Governor. convinced oil point. Oil companies have already
comranies to use the Davisville facil- expressed interest in Cape May as a
ities for surDly headquarters durinz likely location for a deepwater.port.
the two to three Years of exploration. New refineries have been considered.
Industrial construction and port
Over 30 support companies have activities in -his region could bring
moved into Davisville: Rhode Island in 30,000 new jobs by 1985.
exrects $50 million a Year from the
Davisville business. In addition. Planners in Cape May County con-
maior discoveries in the Baltimore sider these potential additions to
Canyon could =ean 2,000 more iobs for their cc=-unity: refineries, natu7al
local people. gas processing and t-rea=ent plants,
temporary and permanent support bases,
steel platform fabrication yards, pipe-
CAPE MAYj NEW JERSEY lines, tanker and pipeline port fac-;-'-
There is a community slogan that ities, and pipe-coating yards.
describes Care May: '7he Nation's Their analysis predicts that s,,;ch
Oldest Seashore Resort." Six American activities will darage the resort indL;s-
Presidents, inclucting Lincoln, have t-ry and seriously alter the marshland
,vacationed there. Located on the
Southern t4p of industrial New Jersey, envirorL--ent that =akes up one-third of
less than three hours from the New York- the county shoreline. An official plan-
Philadelphia urban belt, Cape May ning study, conducted in 1977, found
"clear opposition,# to the development
is a playgroLmd-hc=e to so-e 7SO,000 r
tourists and res4dents in the hot, of oil related facilities within Cape
hu=id s, --ner =nths. Yay Co=ty.
0 The resort industry is respon- As a result of these and other
sible for 90% of the economy in Cape findings, pla=.ers for the county

recommended that the only oil support
facilities permitted in this area be IN CAPE CHARLES,
1) a helicopter base at an existing
airport, and 2) a small, temporary THE MAYOR AND MOST CITIZENS
service base in Cape May Harbor.

FAVOR THE OIL FACILITIES
CAPE CHARLES, VIRGINIA

15,000 people inhabit this quiet
coastal town, located near the tip of The majority of the citizens in
the Delaware Peninsula. An agricultural the area favor the zoning changes. In
community-- a "truck farming town" one recent county elections, all candidates
resident called it--Cape Charles faces who favored Brown and Root won.
a major decision brought on by the
Atlantic oil sweepstakes. However, there is some criticism
of the oil facilities. Opposition to
Brown and Root, one of the largest the zoning changes comes from farmers,
oil rig construction firms, purchased who are afraid of losing their relative
2,000 acres near Cape Charles for a new cheap labor supply to the new, higher-
construction site. If Brown and Root paying industries. Many long-time
moves in, it is likely that related residents of the area fear the industries
industries will follow. One firm, El will completely end their quiet life
Paso Gas, has already taken an option style, plus cause a big change in who
on an adjacent piece of land for a controls local politics.
natural gas port facility.

The County Board of Supervisors Despite the opposition, the
must OK zoning changes from "agricult- zoning change won approval from the
ural" to "industrial before these new county supervisors. A farmer's organi-
facilities can be built. The Mayor zation challenged the decision in the
supported this change, arguing that the court and the Virginia Supreme Court
new oil industry will help the prosper- is presently considering the case. In
ity of the county which has never the meantime, the citizens of Cape
really recovered since the great Charles wait and debate the issue,
depression of the 1930s. 2,000 new wondering if oil will be discovered, and
jobs would result from the Brown and how their community will react to the
Root complex alone. changes.

COURSE CONTENTS

UNIT 1: AT THE WATER'S EDGE

Lesson 1: The National Shoreline Quiz

Lesson 2: Coastal Features

Lesson 3: Our Local Coastline

Lesson 4: The Coastal Scene

Lesson 5: The Coastal Resource Development Came

Lesson 6: Coastal Uses

Lesson 7: Student Presentations (Optional)

Lesson 8: National Task Force on Coastal Resources

Le.-sca 9: Coastal News Report I (Optional)

UNUT II: UNDERSTANDING COASTAL ECOLOGY

Lesson 1: Coastal Ecosystems

Lesson 2: Food Webs

Lesson 3: Pollution; What is it!

Lesson 4: Sewage: The "Effluent Society-

Lesson 5: Oil Pollution

Lesson 6: Wetlands and Marshes: Problem or Resource?

Lesson 7: Natural Hazards

Lesson 8: Tsunamis and Hilo, Hawaii: A Case Study

Lesson 9: Analyzing Coastal Ecology

Lesson l0c Coastal News Report 2 (Optional)

UNIT M: RESOURCE MANAGEMENT: POLITICS AND PLAN`NING
IN THE COASTAL REGION

Lesson 1: Views, Views, Views

Lesson 2: Gaining Access

Lesson 3: The Political System

Lesson 4: The Case of Blue Neck Bay

Lesson 5: Making Decisions About Coastal Areas

Lesson 6: Management Tools and Strategies

Lesson 7: Local Interests Versus Regional Interests

Lesson 8: Jurisdictional Problems

Lesson 9: Regulations and Permits:
Can We Afford Them?

Lesson 10: The Taking Issue':
Legal Limits to Regulation

Lesson U: Managing A Coastal County

UIN'IT IV: CASE STUDIES IN SHORELrNE NLAINAGENIEN17

Lesson 1: The Emergence of Resource Management:
Florida

Lesson 2: The Economy and The Environment:
South Carolina

Lesson 3: Energy and The Environment:
The Northeast Atlantic

Lesson 4: Planning and Management Conflicts:
Boston Harbor

Lesson 5: Shoreline Management:
National Legislation

Lesson 6: Shoreline Man2gernent:
State Initi;.tives

Lesson 7: Coastal Futures:
A Personal Cast Study

TEACHER'S GUIDE @Ak

i
I

COASTALPROBLEMS
AND RES0URGF:MANAGEMElq'r

TEACHER'S GUIDE
A SECONDARY SOCIAL STUDIES.-COURSE

'NN

CURRICULUM RESEARCH AND DEVELOPMENT GROUP
UNIVERSITY OF HAWAII AT MANOA @ 1979

Coastal Problems and Resource Management

produced by

Curriculum Research and Development Group
University of Hawaii

Ronald L. Mitchell Project Coordinator
Francis M. Pottenger Project Coordinator
Gregory L. Rhodes Project Manager and Author
Ronald F. Turner Author

Contributors: Ray Conrad, Carol McCord, Susan McKay, Norman
Okamura, Faith Paul, Vicki Viotti

Production
Staff Cathy Cloud, Peter Guido, Sheri Horiuchi, Norine Ige,
Wendy Kuba, Lisa Luke, Constance J. McCurdy, Jean
Millholland, Vera Torrm Doreen Yamane

Illustrators: Wesley Chun, Ann Howard, Brian Morishige, Dennis
Saito, Paula Tanji

Copyright 1979 by the Curriculum Research and Development
Group, University of Hawaii. All rights reserved. No part of
this publication may be reproduced, stored in a retrieval system,
ortransmitted, in any form or by any means, electronic, me-
chanical photocopying, recording, or otherwise, without the prior
written permission of the publisher. Printed in the United States
of America.

The development of Coastal Problems and Resource Management
was supported by the Office of Coastal Zone Management, NOAA,
Departirrnnt if Commerce, Grant Number 04-7-158-44035, and the
Hawaii Coastal Zone Management Program, Department of Planning
and Economic Development, State of Hawaii.

Acknowledgements

The process of designing, testing and revising CPRM continued for
two years. This final version reflects the combined talent, imagination,
and hard work of many people. Major contributors to the development
of the course are listed on the previous page, but many others also
contributed significantly to the development of CPRM. We would like
to take this opportunity to acknowledge their support, time and advice:

Edith Chave, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Pat Chesser, Social Studies Teacher, Kalaheo High School, Kailua, HI
Matthew Chow, Science Teacher, Hilo High School, Hilo, HI
John Craven, Dean of Marine Programs, University of Hawaii, Honolulu, HI
Jack Davidson, Director, Sea Grant, University of Hawaii, Honolulu, HI
John Ellington, Social Studies Coordinator, North Carolina
Stephen Jackstadt, Center for Economic Education, University of Hawaii, Honolulu, HI
Dallas Jelsma, Social Studies Teacher, Hilo High School, Hilo, HI
Barbara Klemm, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Jim Lanier, Virginia Institute of Marine Science Gloucester Pt., VA.
Kem Lowry, Pacific Urban Studies Planning Program, University of Hawaii, Hon:olulu, HI
Elizabeth Lance, Office of Coastal Management, Raleigh, N.C.
Lundie Mauldin, Sea Grant, Raleigh, N.C.
Terry Meyer, Social Studies Teacher, Mid Pacific Institute, Honolulu, HI
Dick Poirier, Hawaii Coastal Zone Management Program, Honolulu, HI
Tom Speitel, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Ray Tabata, Sea Grant, University of Hawaii, Honolulu, HI
Marilyn Tomita, Social Studies Teacher, Kaimuki High School, Honolulu, HI
Donald Young, FAST Science Project, University of Hawaii, Honolulu, HI

CONTENTS

Acknowledge m ents

Introduction to Teachers

UNIT 1: AT THE WATER'S EDGE

Lesson 1: The National Shoreline Quiz 1

Lesson 2: Coastal Features 3

Lesson 3: Our Local Coastline 5

Lesson 4: The Coastal Scene 15

Lesson 5: The Coastal Resource Development Game 17

Lesson 6: Coastal Uses 18

Lesson 7: Student Presentations (Optional) 23

Lesson 8: National Task Force on Coastal Resources 25

Lesson 9: Coastal News Report I (Optional) 34

UNIT 11: UNDERSTANDING COASTAL ECOLOGY

Lesson 1: Coastal Ecosystems 37

Lesson 2: Food Webs 66

Lesson 3: Pollution: What is it? 75

Lesson 4: Sewage : The "Effluent Society 81

Lesson 5: Oil Pollution 92

Lesson 6: Wetlands and Marshes: Problem or Resource? 97

Lesson 7: Natural Hazards 100

Lesson 8: Tsunamis and Hilo, Hawaii: A Case Study 102
Lesson 9: Analyzing Coastal Ecology 113

Lesson 10: Coastal News Report 2 (Optional) 115

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION

Lesson 1: Views, Views, Views 117

Lesson 2: Gaining Access 119

Lesson 3: The Political System 123

Lesson 4: The Case of Blue Neck Bay 131

Lesson 5: Making Decisions About Coastal Areas 135

Lesson 6: Management Tools and Strategies 139

Lesson 7: Local Interests Versus Regional Interests 143

Lesson 8: Jurisdictional Problems 154

Lesson 9: Regulations and Pormits:
Can We Afford Tbem? 159

Lesson 10: The Taking Issue:
Legal Limits to Regulation 162

Lesson 11: Managing A Coasta! County 173

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT

Lesson 1: The Emergence of Resource Management:
Florida 179

Lesson 2: The Economy and The Environment:
South Carolina 187

Lesson 3: Energy and The Environment:
The Northeast Atlantic 192

Lesson 4: Planning and Management Conflicts:
Boston Harbor 197

Lesson 5: Shoreline Management:
National Legislation 225

Lesson 6: Shoreline Management:
State Initiatives 228

Lesson 7: Coastal Futures:
A Personal Case Study 230

INTRODUCTION TO TEACHERS

Coastal Problems and Resource Management(CPRM) is a one semester
course for secondary school students. The course focuses on the coastal
region of the United States and the political, economic and ecological
factors involved in the development of coastal resources. The growing
demands of an increasing population, a society seeking new energy sources
and an environmentally conscious citizenry often collide in coastal areas.
This special environment provides a rich and interesting setting for the
analysis of many of these most pressing social problems.

Specifically, program goals are:

1. To increase students appreciation for the beauty, fragility, and
utility of coastal environments.
2. To identify major social, political, legal and economic problems
involving coastal areas
3. To identify key elements in the political, legal and economic
decision-making process as it relates to management of coastal
resources
4. To relate specific local coastal problems to broader national
issues
5. To investigate the opportunities for citizen participation in
decisions affecting coastal resource management.

This Teacher's Guide is one component of the total CPRM package. The
entire classroom package contains the following additional materials: Student
Workbooks, Student Readings, filmstrips, transparencies, role-play cards,
and "Ostrich Bay: A Coastal Resource Development Game."

The Teacher's Guide contains detailed lesson plans, a copy of support
materials for teachers(such as overhead transparency masters), and a copy
of all student materials used in the course. Following is a description of
both teacher and student materials contained in the Teacher's Guide and
an overview of the four units in CPRM.

Teacher Materials: A complete set of procedures accompanies each
lesson. The procedures can be followed exactly as written, or teachers can
adjust them to better fit their classes. All lesson plans use a similar
format, each having:

1. a unit and lesson title
2. an estimated time for the activity
3. a purpose of the lesson
4. a list of materials needed
5. an overview of the lesson
6. specific procedures.

Nestions for students to answer in 'class or as homework assignments are
included, and underlined. Suggested answers are given in brackets under the

question. Answer keys for worksheets,are provided where necessary.

At a number of points in the lesson procedures, directions call for
the teacher to "hand out" or "Pass out" information to students. These
materials have now been incorporated into the student workbooks and
readings. The only lesson in which handouts are used is the Boston Harbor
simulation (Unit IV, Lesson 4). It will be necessary for the teacher to
duplicate several pages from this lesson to distribute to students. Masters
are included in the Teacher's Guide and are.labeled "handouts."

Transparency masters appear at the end of the lesson. They are coded
by unit and number within the unit (i.e., 111-1, 111-2, etc.) The code
appears at the bottom of the transparencies.

Students Materials: Student materials fall into two categories,
student worksheets and student readings. Worksheets are typically filled
out by students and then collected by the teacher for evaluation. The
readings include case studies, reference materials and other descriptive
information that can be handled as in-class or homework assignments. One
copy of the student worksheets and readings is included at the back of the
Teacher's Guide.

The only written materials not included in the Teacher's Guide are
the "Ostrich Bay" game instructions and the "Coastal Scene" filmstrip
script. These are both packaged separately but can be inserted into the
Teacher's Guide.

Unit I: At the Water's Edge

The initial lessons confront students with activities designed to
introduce a variety of important coastal features. The activities orient
students to the coast and turn their thinking toward the uses and values of
the coastal area. The many. benefits of the coast are examined from both a
national and local perspective.

Lesson Five, "The Coastal Resource Development Game," personally in-
volves students in several problems and conflicts centered in the coastal
area and the interactions of ecological, economical and political concerns.
This simulated experience has students participate in the development of
a bay side community, and provides opportunities to confront complex problems
facing coastal communities. The game introduces many important themes and
concepts which are then explored more fully in the remainder of the course.

Unit II: Understanding Coa2tal Ecology

This unit begins with an introduction of the important ecological
processes which take place in the coastal region. Systems diagrams are
used to display the basic relationships between producers, consumers and
decomposers. The natural process of the coastal ecosystem is described
and the effects of certain disruptions to this system are introduced. Oil'-@@'-
pollution, sewage and waste disposal, and destruction of estuaries and wet-
lands are among important ecological problems studied.

Natural hazards are also discussed in this unit, and Lesson 8,
"Tsunamis and Hilo, Hawaii: A Case Study", provides a specific example of
how the presence of tsunamis has affected one coastal community. Students
take the roles of citizens of Hilo, who, in the aftermath of a devastating
tsunami, try to decide what protective measures to take regarding future
disasters.

Unit III: Resource ManagemeRt: Politics and Planning in the Coastal Region

Emphasis now shifts from ecological concerns to political processes
and problems. This unit describes and analyzes the role of government
involvement in the coastal region. Two short lessons about the destruction
of scenic views and the loss of beach access introduce students to the idea
that government decisions affect the ways coastal resources are used. Students
are then more formally introduced to the politics of the coastal area through
systems diagrams. They identify judicial, legislative, regulatory and public
roles and interests as they relate to the coast. Lesson four, "The Case of
Blue Neck Bay," allows the application of these general principles to a speci-
fic case. Common strategies for governing coastal resource use are presented
in lessons five and six.

The remainder of the unit focuses on management problems and the effects
of governmental regulation and influence on effective planning and optimum use
of coastal areas. For example, lesson ten, "The Taking Issue: Legal Limits
to Regulation," examines the delicate balance between the rights of government
to regulate land use and the rights of property owners to use land as they see
fit. A final activity has students apply their understanding of resource manage-
ment strategies and problems to planning the future of a coastal county.

Unit IV: Case Studies in Resource Management

This unit brings,together the previously separated ecological and politi-
cal arenas in the analysis of several case studies. Through a series of different
types of activities, students are involved in the processes and concerns faced by
participants in the debates over energy, economics, ecology, and government in-
volvement. Lessons five and six present the general status of national and state
legislation as they affect coastal zone management efforts. A final lesson,
"Coastal Futures: A Personal Case Study," encourages students to utilize the
strategies and conc,ap--s introduced throughout the course by developing their
vision for the future of the coastal region.

Vii

UNIT 1: AT THE WATER'S EDGE

LESSON 1: THE NATIONAL SHORELINE QUIZ
LESSON 2: COASTAL FEATURES

LESSON 3: OUR LOCAL COASTLINE
LESSON 4: THE COASTAL SCENE
LESSON 5: THE COASTAL RESOURCE DEVELOPMENT GAME
LESSON 6: COASTAL USES
LESSON 7: STUDENT-PRESENTATIONS(OPTIONAL)
LESSON 8: NATIONAL TASK FORCE ON COASTAL RESOURCES
LESSON 9: COASTAL NEWS REPORT #1 (OPTIONAL)

UNIT I: AT THE WATER'S EDGE

LESSON 1: THE NATIONAL SHORELINE QUIZ

TIME: 1 DAY

PURPOSE

To introduce students to the topic of coastal studies.

MATERIALS

In Package:

Worksheet 1-1, "National Shoreline Quiz"

OVERVIEW

PROCEDURE

2. Have students complete the quiz.

4. Have students score their papers and determine their "S-Q".

5. "National Shoreline Quiz" Answer Key.

(1) 30 states

(2) 50%

(3) b - A place along the coast where fresh water and salt water
mix.

(4) c - Salt marsh (coastal wetlands)

(5) 99%

(6) 2%

(7) False. (However, in 1975, 70,000 school children in New
Orleans ate 12 tons of shark meat for lunch and loved it!)

(8) Fish and shellfish in descending order of economic value
to the United States (1977 statistics):

Shrimp
Salmon
Crabs
Tuna
cl;;M-q
Menhaden (chiefly used for industrial purposes)
Lobster
Flounder
Oysters
Scallops

(9) Alaska, 5,580 miles; Michigan, 2,900 miles; Florida, 1,250 miles;
California, 840 miles; Hawaii, 750 miles; New Hampshire has the
shortest coastline, only 13 miles.

(10) 97%

UNIT I AT THE WATER'S EDGE

LESSON 2: COASTAL FEATURES

TIME: 1 DAY

PURPOSE

To introduce some physical features frequently found in coastal
areas.

MATERIALS

In Package

Worksheet 1-2, Coastal Features"
Reading I-1, "Coastal Terminology"

OVERVIEW

Students match drawings of a number of coastal features with the
written descriptions of those features. (Both natural and man-made
features are included.)

PROCEDURE

1. Have students think of their past experiences at or near the shoreline.
Ask:

a. What sort of things do you remember seeing there?

b. What things are often found near the coast?

(Beaches, sand, rocks, lighthouses, waves, boats, etc.]

As students respond, list their responses on the board. After a
number of items have been listed, indicate that two categories
of items of concern just now are those which are man-made
and those which are formed by natural processes.

If students have not named examples from both categories, have
them provide some from the omitted category. Go through the
items quickly and have students assign them to one category or
the other.

4
is
2. Pass out Worksheet 1-2, "Coastal Features", Moving fairly quickly
through the pictures, have students identify features shown in each
of the pictures (Verbal response)

3. Assign Reading I-1, "Coastal Terminology". This reading contains
definitions and descriptive information about each of the 100 "@;oastal
Features" drawings.

4. Have students match each drawing with the correct term defined in the
reading. Write in the correct term under each drawing.

5. After students have finished labeling the pictures, go over their
answers with them. If students disagree on the identification of
features, have them explain why they identified the feature as they
did.

6. Ask which coastal features listed in the "Coastal Terminology" reading
are found in the local area.

7. "Common Coastal Features" identification key:

(1) Bay (10) Sandy Beach
(2) Sand Dune (11) Breakwater
(3) Groins (12) Estuary
(4) Rocky Beach (13) Flood Plain
(5) Continental Shelf (14) Wave-cut Cliff
(6) Salt Marsh (15) Seawall
(7) Mangrove Swamp (16) Spit
(8) Coral Reef (17) Delta
(9) Barrier Island (18) Harbor and Pier

UNIT I: AT THE WATER'S EDGE

LESSON 3: OUR LOCAL COASTLINE

TINE: 1-2 DAYS

PURPOSE

To become familiar with a variety of coastal features and activities
commonly found in this region.

Materials for this lesson must be
developed locally. An example of
how this lesson was written for
Hawaii students follows. If a local
supplement accompanies this
Teachers Guide, materials for this
lesson will be found there.

HAWAII MATERIALS 6

UNIT I: AT THE WATER'S EDGE

LESSON 3: OUR LOCAL COASTLINE(HAWAII VERSION)

TINE: 1-2 DAYS

PURPOSE

To become familiar with a variety of coastal features and activities
commonly found in Hawaii.

MATERIALS

In Package

Slides of Hawaii coast
Worksheet, "Island Quiz"

Additional

Slide projector
Screen

OVERVIEW

Students first view a set of slides that visually orients them to
Hawaii's shoreline. A "quiz" follows, which serves as a basis for discussion
about Hawaii coastal features, economic activities and demographic
information.

PROCEDURE

1. Begin with the slides of Hawaii. As you show each slide, have students
try to guess where they think the picture was taken. Ask:

Why do you think so? What makes you say that? Are there other
possibleplaces where -this might be?

Announce the location of the picture and feature shown:

a. Black Sands Beach at Kalapana(Big Island)
b. Makapuu(Oahu)
C. Hamakua Coast(Big Island)
d. Hanauma. Bay(Oahu)

7
HAWAII MATERIALS

e. Kaunakakai(Molokai)
f. Na Pali Cliffs(Kauai)
g. Captain Cook Monument(Big Island)
h. Looking towards Lanai from leeward Maui
i. Wakiki(Oahu)
j. Banzai Pipeline(Oahu)
k. Mauna Kea Beach Hotel(Big Island)
1. Kahe Power Plant(Leeward Oahu)
M. Mauna Loa and Mauna Kea(Big Island)
n. Hanalei Valley(Kauai)
0. Kona(Big Island)

2. After you have finished the set of slides, show them again. Ask
students to give a short description of what they see(i.e., mountains,
sand beach, ocean, hotels. etc.) KeeD a list on the board of their
answers.

3. At the conclusion of the second showing, ask:

a. How would you describe the coast after seeing these pictures?

b. Do the slides give an accurate picture of the coastal area?

C. If you were to add other pictures, what wauld they be?

4. Hand out the "Island Quiz." Explain that the class will now have another
chance to describe the coast. Go over,the instructions and help them
with the first question if there is any confusion about how to take
the quiz.

Emphasize this is not a quiz to be graded.

Remind the class to be sure and consider the entire state, and not
just Oahu when they answer the questions. Give them 5-10 minutes
to complete the quiz.

5. Use the answer key to review their answers to each question. To begin,
have a few students explain why they answered as they did to the first
question. Draw out any disagreement. Then, provide them with the
data information on coral reefs. Continue this procedure for each of
the questions.

As you proceed, try to determine what misconceptions the class has
about Hawaii's coastal zone. Discuss these in more detail. (For
example, many students think the fishing inudstry is far more important
than it really is.)

HAWAII MATERIALS

8
DEBRIEFING DATA FOR ISLAND QUIZ
1 0

1. To what extent do you think those features are found in the State of Hawaii?

CORAL REEFS
The most appropriate answer is "Frequently". Coral reefs are found
the coastlines of every island in the state. Kauai, Oahu and Molokai all
have extensive reef formations. In the United States, Hawaii and Florida
are the only two states that have coral reefs.

BARRIER ISLANDS
The answer here is "never." There are no barrier islands in the
state. Barrier islands are found in the United States along the east
coast and the Gulf of Mexico.

SANDY BEACHES
The answer to this question is not clear-cut. There are a number
of sandy beaches on Oahu, but they are much less common on the other island
Of 934 miles of shoreline in Hawaii, only 184 miles is in.the "sandy beach"
category ... about 20%. "Sometimes" is probably the best answer.

WAVE-CUT CLIFFS
The appropriate answer is "frequently". There is much more rocky,
mountainous shoreline in Hawaii than there is sandy beach. 64% of the
shoreline is classi fied as mountainous.

SALT MARSHES
There are very few salt marshes in Hawaii. The most appropriate
answer is probably "sometimes", although "never" is not a bad choic.e.
Marshes are not an important feature of the Hawaii coast.

ESTUARIES
The best answer is "sometimes". There are many streams that flow into
the ocean, but the area they drain is usually so small that they do not
carry much water. Consequently, not much fresh water enters the ocean from*
streams, except in times of heavy rains.

HAWAII MATERIALS 9

Large estuarine systems, such as those on the Atlantic Coast or San
Francisco Bay are partially enclosed by islands or protected in some way
from the open ocean. Except for the Pearl Harbor area, Hawaii does not
have this feature. Other prominent estuarine areas in the state are
Hanalei and Nawiliwili Harbor on Kauai, and Kohala on the "Big Island".

BAYS
The best answer is "frequently". There are hundreds of small
bays around the state, and several large ones such as Hilo Bay and
Kaneohe Bay.

CONTINENTAL SHELF

There is no continental shelf around Hawaii. Since the islands were
formed by volcanic eruption, the land slopes away very quickly under the
sea. As the name implies, continental shelf is found only off the edge-
of continents.

2. To what extent do these conditions occur along Hawaii's coastal areas?

POLLUTED OCEAN WATER
The most appropriate answer is "moderate". There are a few places
where the water is polluted from too much untreated sewage or excess
silt in the water. But, by and large, the waters near the Hawaiian coast
are very clear and clean. This is especially true when compared to the
water quality of much of the mainland coast.

AIR POLLUTION
If it were not for the air over Honolulu, the best answer to this
question would be "light". The air over Hawaii is generally clean and low
in pollution. Most of-Honolulu's pollution is caused by automobiles.
Pollution from industry that affects the residents of the islands is minor.

RAINFALL
If you consider the state as a whole, the best answer is "heavy".
The average-annual rainfall for Hawaii is 73 inches. On the windward sides
of each island the rainfall is heavy, while leeward sides tend to be drier.
This tremendous variability is due to the mountainous terrain. As the

HAWAII MATERLALS . 10

moist trade winds come in from the sea, they are forced to rise over the
windward slopes. Cloudiness and rain are the result. This takes most of
the moistness out of the wind and when it reaches the leeward side, less
rain is available. Wide variation in Hawaii's rainfall also occurs during
the year as the winter months of October to April tend to bring the most
rain.

POPULATION LOCATED NEAR SHORELINE
The answer is "heavy". Nearly all the island's population is
located near the shoreline due to the rugged, mountainous terrain of the
interior regions.

PERCENTAGE OF POPULATION LIVING IN URBAN AREAS
The answer is "high". According to the 1970 census, 84% of the
population is urban, only 16% rural. As one might predict this figure is
due largely to the impact of Honolulu. On Oahu, the population density
is over 600 per square mile; the neighbor islands average only 30 per
square mile.

3. How important are these coastal activities to Hawaii's economy?

TOURISM
The answer is "very important". The tourist/visitor industry is the
largest generator of jobs in the State. 20% of all civilian jobs are
related to tourism.

COMERCIAL FISHING
The best answer is "not important". The annual value of the commercial
catch accounts for less than one percent of the value of the gross state
product. The 1974 value of commercial fish landings was $6.2 million;
aku accounted for about one-half of the total value. One of the main
reasons the fishiig industry is not larger is due to the limitation of bait;
nuhu is the chief bait for tern and it has a very high mortality rate. This
may change in the future,,because of the implementation of the 200 mile
territorial limit.

HAWAII MATERIALS.

AGRICULTURE
The best answer is "somewhat important". More of the land in Hawaii
is devoted to agriculture than any other use, including much land on the
seacoast. However, the sugar and pineapple industries together generate
only about 10% of the state's jobs. Other agricultural activities, including
vegetables and melons, coffee, macadamia nuts, livestock and food
processing plants account for about 4 and 1/2 percent of the state's jobs.

OFF-SHORE OIL
The answer is "not important". Off-shore oil is found only under the
continental shelf and since Hawaii has no continental shelf, it has no off-
shore oil.

DEFENSE ACTIVITIES
The answer is "very important". The military is Hawaii's second
most important industry, second only to tourism and accounts for 19% of
the civilian jobs in the state. Defense expenditures in Hawaii in 1975
were over $1 billion. The Navy and Marine Corps are leaders in terms of
personnel and expenditures.

PRECIOUS CORAL IMOUSTRY
The best answer is "not important". The maximum sustainability
yield from the pink coral Makapuu bed has been estimated to be worth
only $100,000 a year. Divers estimate that the black coral beds will be
exhausted in 10 to 20 years.

HAWAII MATERIALS 12
ISLAND QUIZ

1. To what extent do you think these features are found in the state of Hawaii?
(Circle the appropriate word.)

CORAL REEFS
Never Sometimes Frequently

BARRIER ISLANDS
Never Sometimes Frequently

SANDY BEACHES
Never Sometimes Frequently

WAVE-CUT CLIFFS
Never Sometimes Frequently

SALT MARSHES
Never Sometimes Frequently

ESTUARIES
Never Sometimes Frequently

BAYS
Never Sometimes Frequently

CONTINENTAL SHELF
Never Sometimes Frequently

HAWAII MATERIALS 13

2. To what extent do these conditions occur along Hawaii's coastal areas?

POLLUTED OCEAN WATER

slight moderate heavy

AIR POLLUTION

never moderate heavy

RAINFALL

never moderate heavy

POPULATION LOCATED NEAR SHORELINE

never moderate heavy

% OF POPULATION LIVING IN URBAN AREAS

never moderate heavy

3. How important are these coastal activities to Hawaii's economy?

TOURISM

not important somewhat important very important

COI-DiERCIAL FISHI14G

not important somewhat important very important

AGRICULTURE

not important somewhat important very important

OFF-SHORE OIL

not important somewhat important very important

HAWAII MATERIALS 14

DEFEMSE ACTIVITIES

not important somewhat important very important

PRECIOUS CORAL INDUSTRY

not important somewhat important very important

UNIT I: AT THE WATER'S EDGE

LESSON 4: THE COASTAL SCENE

TINE: 1 DAY

PURPOSE

To increase student appreciation and concern for the resources and
qualities of the coastal area.

MATERIALS

In Package

"Coastal Scene" Filmstrip with casette tape

Additional

Filmstrip projector
Casette tape player
Suitable viewing surface (screen or light-colored wall area)

OVERVIEW

Students view and respond to a filmstrip. The filmstrip is designed
to convey a "feeling" for the unique values and special qualities of
coastal areas and to introduce some key concepts and facts.

PROCEDURE

1. Show the filmstrip, "The Coastal Scene", instructing students to
note major themes or ideas in the presentation.

2. At the conclusion, ask students for their reactions to the
filmstrip. The following questions may stimulate student
response:

a. What makes coastal areas such.a special place?

b. What are the unique qualities of coastal areas?

C. Do you enjoy visiting coastal areas? Why or why not?

d. Do such words as "change" and "unpredictable" characterize
the shoreline? Why or why not?

e. Do Zou find the shoreline mysterious? Dangerous?

f. Are there any pictures in the filmstrip that you especially like?

3. Ask students to identify major themes/ideas as presented in the
filmstrip. Write their responses on the board.

Responses might include: Pollution, erosion, change, natural
disasters, fisheries, geographic features, human use, recreation,
housing, increasing population, over-crowding, harbors, shipping,
and the future of coastal areas.

4. At this point, make the assignment of the first "Coastal News
Report," due at the close of Unit I. One group of five to six
students will be assigned the task of collecting newspaper
articles and presenting them to the class in a simulated TV
newscast. This will be due in about 2 and 1/2 weeks depending
on the time it takes to complete Lessons 5 through 8. See Lesson 9
for procedures for the "Coastal News Report."

UNIT I: AT THE WATER'S EDGE

LESSON 5: THE COASTAL RESOURCE DEVELOPMENT GAME

TIME: . 7-10 DAYS

PURPOSE

To demonstrate how and why coastal development occurs.

To have students confront typical problems associated with rapid
economic development in coastal areas.

Materials and instructions for the Coastal
Resource Development Game are included in
the game box.

UNIT I: AT THE WATER'S EDGE

LESSON 6: COASTAL USES

TIME: 1 DAY

PURPOSE

To have students analyze problems caused by conflicting coastal
land and water uses.

MATERIALS

In Package

Worksheet 1-3, "Coastal Uses Chart"

OVERVIEW

Students specify use requirements for each major use of coastal
resources and look for compatible and incompatible uses. Use conflicts
from the Coastal Resources game are recalled, and actual conflicts occurring
in the coastal environment are analyzed.

PROCEDURE

1. Pass out Worksheet 1-3, "Coastal Uses Chart". Note that the chart
lists the major ways in which the coastal region was used during
the Coastal Resources game. Students are to write down what they
consider to be the use requirements for each separate use listed.
Use requirements for the first use, Conservation, are given as an example.

2. After students have worked on this task for several minutes, review
the list of major uses and the use requirements for each. A completed
"Coastal Uses Chart" follows in the Teacher Guide.

3. Have students complete the filling in of the use requirements for
each use as review of the "Coastal Uses Chart" proceeds.

4. After completing the review, ask:

What happens when people want to undertake all these activities in
the same coastal area?

["Use conflicts" are generated. People using or wanting to use coastal
lands for one purpose will often come into conflict with people wanting
to use the same lands for some other purpose; or conflicts may occur
because uses in adjacent areas are incompatible with one another.

Human uses may also be incompatible with environmental quality when
these uses cause pollution of air or water, loss of wetlands, destruction
of cultural and historical sites and a loss of aesthetic qualities
of an environment, and preservation of cultural and historical sites.]

1
5. Emphasize that certain activities are more compatible with each other
than are other activities. For example, Shipping and Industry activities
are fairly compatible. These activities do not seriously interfere
with each other, except in the general competition for available water-
front space. But Industry and Tourism are not as compatible, because
industry (factories, refineries, etc.) is unsightly, raises air and
water pollutant levels and generally makes the environment less attractive
to tourists. Ask:

How was this situation brought out in the Coastal Resources 22me?

(No Tourism activity could be located adjacent to any Industry or
Shipping activity. HIRISE activities could not be located adjacent
to any IndustEX activity, etc.]

6. Discuss which uses listed in the "Coastal Uses Chart" seem generally
compatible, and which uses seem generally less compatible. Incompatible
uses generate use conflicts. Review examples of use conflicts which
occurred during the Coastal Resources game (e.g., Public Beachpark vs.
selling development rights to plot J-16. Tourism activities vs.
Industry activites, location of sewage treatment plant in estuary vs.
fishing activities, etc.) Ask:

What use conflicts have occurred or may occur in our local coastal region

7. Discuss which coastal uses are the most "fragile". That is, which
tend to be most easily or most adversely affected by other coastal
area uses. Ask students whether these fragile uses need to be protected,
and how this might be done.

8. Homework Assignment:

Have each student identify and report on a specific use conflict which
has occurred or is occurring in the local area or elsewhere in the last
few years. Set an appropriate completion date. This is suggested
as a short assignment, but it could serve as the basis for a longer
term paper topic or research project.

11tr-'k-sheet 1-4 21
Answer Key

COASTAL RESOURCES DEVELOPMENT GAME (CRDG) -- COASTAL USES CHART

Indicate Use Requirements for each of the following major coastal uses:

1. Conservation 7. Residences.(Housing)

UNSPOILED, UNDISTURBED AREAS LAND, USUALLY NEAR URBAN
OR AREA RETIRED FROM PRIVATE CENTERS WITH COMMERCIAL
USE AND INDUSTRIAL ACTIVITIES;
WASTE DISPOSAL CAPABILITIES;
2. Waste Disposal FRESH WATER SUPPLY

WATER; ACCESS TO RIVER, BAY, 8. Agriculture
OR OCEAN; LAND OR OFFSHORE
DUMPING SITES LARGE TRACTS OF LAND WITH
GOOD DRAINAGE; ACCESS TO
3. Industry TRANSPORTATION FACILITIES
AND TO MARKETS
LAND WITH WASTE DISPOSAL
CAPACITY; OFTEN NEAR HARBOR 9. Commercial Fishin&
FACILITIES; ACCESS TO TRANS-
PORTATION, MARKETS, AND POP- ACCESS TO FISH AND SHELL-
ULATION CENTERS FISH; NEAR HARBOR AND PORT
FACILITIES, INCLUDING PRO-
4. Commerce CESSING PLANTS

LAND, NEAR POPULATION CEN- 10. Transportation
TERS, AND TRANSPORTATION
AND PRIMARY MARKETS HARBOR AND PORT FACILITIES;
CALM, PROTECTED WATERS; AC-
5. Recreation CESS TO SHIPPING LANES;
SUFFICIENTLY DREDGED CHANNELS
ACCESS TO PUBLIC BEACHES
PARTICULARLY SANDY BEACHES; 11. Land Transportation
CALM WATERS FOR BOATS; MA-
RINAS; UNPOLLUTED WATER FOR LARGE TRAITS OF LAND FOR
SWIMMING; LAND FOR PARKS OR AIRPORTS, RAILROADS AND
OTHER FACILITIES. HIGHWAYS; LINKS TO ALL MA-
JOR COASTAL AND INLAND AC-
6. Tourism TIVITIES

LAND, USUALLY NEAR RECREA- 12. Mineral Extraction
TION, SCENIC, AND/OR CUL-
TURAL-HISTORICAL SITES ACCESS TO MINERAL DEPOSITS;
MINING EQUIPMENT; NEAR
TRANSPORTATION SYSTEMS, IN-
CLUDING HARBOR AND PORT
FACILITIES

13. Defense

LAND AND HARBOR FACILITIES;
ACCESS TO OFFSHORE AREAS;
LARGE, DEFENSIBLE TRACTS OF
LAND

14. Scenic-Aesthetic Enjoyment

UNDISTURBED VIEWS; QUIET
PEACEFUL SURROUNDINGS; AC-
CESS TO SCENIC VIEWS; PLEAS-
ING DESIGN OF BUILDINGS

15. Cultural-Historical Enjoyment

PRESENTATION OF SITES; AC-
CESS TO SITES

UNIT I: AT THE WATER'S EDGE

LESSON 7: STUDENT PRESENTATIONS (OPTIONAL)

TIME: 1 DAY

PURPOSE

To have students express personal reactions to coastal uses or
problems through a visual medium.

To have students communicate their views to other students.

MATERIALS

None

OVERVIEW

Students develop and present a collage, picture, poster, or other
display which highlights certain aspects of the coastal region. Students
share these personal statements in small groups, and the class then decides
which displays make the greatest impact.

PROCEDURE

1. Give the following homework assignment, due in approximately
one week (following the "National Task Force" and "Coastal
News Report" lessons of Unit 1 and the "Coastal Ecology" lesson
of Unit 2):

Each student is to create a collage, poster, or
display which makes a personal statement about
coastal resources -- their use, enjoyment,
destruction, or alteration.

State that students will present and explain these "visual
statements" in small groups to other students. Groups will
then judge the best presentations.

2. Divide the class into groups of 5-6 students each. Have each
student present and explain his/her collage, poster, or display
to other group members.

3. Have each group discuss which presentation makes the most
important statement with the greatest impact. Each group
then chooses one presentation as the best, based on these
criteria.

4. Have each group choose one group member to present this best
"visual statement" to the entire class. After each presentation,
the student who actually created the collage, poster, or display,
should be allowed to comment or add to the presentation if he/she
wishes.

5. After the presentations, have class members discuss which
presentation they thought was best and why. Then have the
entire class vote to select the best over-all. Exhibit the
collages, posters, or displays of the finalists around the
classroom (or display all the projects, if you prefer).

UNIT I: AT THE WATER'S EDGE

LESSON 8: NATIONAL TASK FORCE ON COASTAL RESOURCES

TUE: 2 DAYS

PURPOSE

To familiarize students with the utilization of the
coastal region nationally.

To examine the economic importance of the coastal region.

To show how demands on coastal resources have changed
over time and to project, where possible, future demands.

MATERIALS

In Package

Reading 1-2, "National Task Force Information"
Worksheets 1-4, 5, 6, 7, 8, "Data Questionnaire"
Worksheet 1-9, "Task Force Recommendation Form"

PROCEDURE

Part1

1. Tell the students that they have been selected to serve on
a National Task Force which will study the coastal regions
of the United States and make recommendations for their
future use and development.

2. Have students read the "Memo to the National Task Force Members",
the first page of Reading 1-2. Go over the memo with the students
to be sure they understand the assignment.

3. Five "agencies" have sent data to the Task Force: REEF, U.S.
Ports and Harbors Agency, National Fisheries Office, National
Data Clearinghouse, and Energy Research Associates. Approximately
1/5 of the class should be assigned to read each data set.

4. Hand out Worksheets 1-4, 5, 6, 7, and 8, "Data Questionnaires"
to the appropriate students. Tell each student to answer the
questions using the information in their data set.

5. The five agencies in this activity are fictitious; however, all the
data contained in the report is factual and correct.

Part 2

1. After students have completed their "Data Questionnaires"S
have them form groups, consisting of one person representing
each agency. Students should take their "Data Questionnaires" and
Task Force data with them.

2. Pass out Worksheet 1-9, "Task Force Recommendation Form", to each
student. Give the groups the following directions.

a. Review each of the recommendations on the form.

b. Discuss possible recommendations in the light of the data
from the five agencies. (Urge that each student contribute).

C. Reach agreement on group recommendations.

d. Record this recommendation and the reasons for making it on
the "Task Force Recommendation Form".

Set a deadline of 15-20 minutes.

3. After each of the groups has completed this task, review their
recommendations. Put each group's recommendations on the board so
similarities and differences can be noted. Have groups explain
why they chose each option..

Encourage debate among groups; students should be able to support
claims with references to the data.

4. Among generalizations that should emerge from the discussions are the
following:

a. Coastal regions have historically been the scene of concentrated
use. Projections for the future suggest:

(1) Coastal population will increase.

(2) Demand for new jobs in coastal areas will increase in the-
future.

(3) Demand for housing will.increase.

(4) Ports and harbors will become increasingly busy and
larger facilities will be needed.

(5) Estuaries will continue to be a focal point for many
activities.

b.. Coastal areas contain many resources that are under heavy
demand.

(1) Oil, gas, and minerals are found in coastal areas.
Demand for these resources is likely to increase.

(2) Recreational areas, including beaches and marinas, are
very popular and often overcrowded; demand for coastal
recreation activities will likely increase.

(3) Estuarine areas and coastal waters are valuable to the
fishing industry and recreational users, but these areas
are often being polluted or destroyed.

5. A written assignment to answer the following questions will assist
students in summarizing the main points of this lesson. This could
be an in-class or homework assignment.

"Assume your report has been accepted by certain
members of Congress as a guide to wise development
of coastal regions. These legislators argue that
it is in the 'national interest' to protect coastal
regions. But representatives from inland states say
that it is not a 'national' problem, and that their
states are not involved with what happens on the coast.
If you were a member of Congress advocating protection,
how would you counter this argument? How would you
demonstrate that what happens in coastal areas is impor-
tant to the citizens of all the states, inland as well
as coastal?"

(Several points may be brought out. These include the national
need for more oil and gas; the importance of the coastal regions
to the shipping industry as a carrier of goods for everybody;
the need to provide recreational sites for everyone, not just
coastal citizens; the increase of seafood products in the Ameri-
can diet; the national focus on the development of the continen-
tal shelf an-* jp@_n ocean resources; and the unique scenic and
aesthetic qualities of the shoreline that once lost can never be
replaced.]

Worksheet 1-4
28
Axiswet

NATIONAL FISHERIES OFFICE
DATA QUESTIONNAIRE

1. Where are most of the U.S. fish and shellfish caught?

61% of the catch is within 12 miles of the coast.

2. How has the value of the U.S. fish and shellfish catch changed
since 1945?

The value of the catch is worth almost 4 times as much. The
future value should rise.

3. Are fish and shellfish becoming a more important or less impor-
tant part of the American diet? Why?

Fish and shellfish are becoming a more important part of the
diet. one possible reason is the increase in the price of meat.

4. In what ways are estuarine areas important to the fishing inter-
ests?

2/3 of the total value of all U.S. commercial fishing comes from
estuarine-dependent species.

5. From the data you have, what major problems are likely to arise
in the future regarding the use of coastal resources?

Over-fishing of certain species could occur. (Students may find
other acceptable answers)

Worksheet 1-5 29
Answer Key

NATIONAL DATA CLEARINGHOUSE
DATA QUESTIONNAIRE

1. What percentage-of the nation's work force is projected to be
employed in coastal counties in 1980? If the trend continues,
approximately what percentage of the nation's work force will be
employed in coastal counties in 2000?

46.9 million workers in 1980. Approximately 51-52% (on a rise
of 1% per decade)

2. How many people lived in inland areas in 1970? According to the
projection, how many people will live in inland areas in 2000?

Approximately 117 million in 1970. Approximately 117 million in
2000

3. How many people lived in coastal areas in 1970? According to
projection, how many people will live in coastal areas in 2000?

Approximately 98 million in 1970. Approximately 198 million in
2000

4. Approximately what percentage of the U.S. population lived in
coastal areas in 1980? According to the projection, what per-
centage of the U.S. population will live in coastal areas in 2000?

Approximately 45% in 1970. Approximately 63% in 2000

5. What is the projected rate of growth for inland areas from the
present through 2000? What is the projected rate of growth for
coastal areas during that same period?

Approximately 0% for inland areas. Approximately 100% for coas-
tal areas

6. What effect will the projected rise in employment have on the de-
mand for housing in coastal areas from now to 2000?

The projected rise will lead to an increase in demand for housing.

7. In what ways is land use likely to change to meet housing demands?

Land will be used more intensively

8. What likely impact will the increase in leisure time have on the
use of coastal resources? What kinds of coastal activities will
probably be affected?

People will have more time to spend near the water; coastal re-
sources will be used more frequently. Recreation activities will
likely increase the most.

9. How will estuarine areas be affected by increasing population
pressures.

There will be increasing pressure to fill in estuarine areas fcr
housing, industry, recreation and other activities. (Students
may find other acceptable answers)

10. From the data you have, what major problems are likely to arise
in the future regarding the use of coastal resources?

Increases in population could lead to housing shortages, plus
create serious pollution problems. (Students may find other ac-
ceptable answers.)

Worksheet 1-6 31
4
'nswer Key

REEF
DATA QUESTIONNAIRE

1. Which 2 uses of the ocean are presently most valuable to the U.S.?
Which 2 uses will be the most valuable in the year 2000?

Transportation and oil. Transportation and oil.
Natural gas and energy both show dramatic increases; natural gas
rises from less than $1 billion to $8.3 billion while energy
jumps from 0 to $6.3 billion.

2. What major mineral resources are found in the U.S. coastal region?

Sand, gravel, petroleum, natural gas, clay.

3. Which ocean related recreation activities are likely to be the
most popular in the 1980's?

Swimming, fishing, and boating.

4. How productive are estuarine areas compared to other areas, such
as the ocean or agricultural lands?

Estuarine areas are more productive than the other areas.

5. According to the chart, "General Shoreline Data", who owns most
of the shoreline? How much of the shoreline is beach?

Most of the shoreline is privately owned. 33% is beach.

6. In what ways are estuarine areas important to the activities
studied in the REEF data packet?

Estuaries are very productive areas. (Students may find other
acceptable answers.)

7. From the REEF perspective what major problema are likely to arise
in the future regarding the use of coastal resources?

Pollution could increase from the continued development of oil,
gas, and other ocean resources; recreation facilities could be-
come over-crowded; attempts to expand recreation areas-could be
a problem since 70% of the shoreline is privately owned. (Stu-
dents may find other acceptable answers.)

Worksheet 1-7
32
Angurer Key

U.S. PORTS AND HARBORS AGENCY
DATA QUESTIONNAIRE

1. Compare the number of pleasure craft expected to be in use in
2000 with the number in use in 1964.

The number of pleasure craft will triple.

2. What % of boat slips in marinas are presently in use? How much
do you predict marina space will have to increase through the
year 2000?

94%. Marina space will have to approximately triple to keep pace
with the increase in the number of boats.

3. What kinds of changes are likely to occur in ship dimensions
over the next two decades?

Ship dimensions will greatly increase.

4. What are changes in ship dimensions going to mean for most U.S.
harbors?

Ship harbors will have to be deepened and widened to make room
for the larger vessels.

5. How much more tonnage will U.S. ports handle in the year 2000
(estimated) than in 1970?

Approximately 3 times as much

6. In what ways are estuarine areas important to the shipping in-
terests?

over 75% of the nation's ports are located on estuaries.

7. From the data you have, what problems are likely to have in the
future regarding the use of coastal resources?

Harbor and ship channels will have to be enlarged which may cause
environmental disruptions; boating accidents may inc *rease with
the growing number of small boats; more space will be needed for
marinas. (Students may find other acceptable answers.)

Worksheet 1-8
Answer Key 33

ENERGY RESEARCH ASSOCIATES
DATA QUESTIONNAIRE

1. Where is most new drilling for oil and gas likely to take place?

In the continent shelf, along the Gulf of Mexico and the Atlantic
Coast.

2. What are the projected energy demands for the year 1990? How do
these compare with present needs?

Anywhere from 50-60 to millions of barrels of crude oil equiva-
lent per day. This is approximately 20 million barrels higher
than present needs.

3. What percentage of the U.S. population is projected to live in
coastal counties in 1980? What does this trend mean for energy
use in coastal areas?

50%. More and more of our energy will be used in coastal areas.
More power plants and other energy-related activities will be
located in those areas.

4. In what ways are coastal areas vital to the future of energy ex-
ploration and production in the U.S.?

Many of our energy sources are located in coastal areas. Future
drilling for oil and gas will occur on the continental shelf.

5. From the data you have, what'problems are likely to arise in the
future regarding the use of coastal reaource.-?

More pollution from oil and gas drilling and from other energy-
related activities.

UNIT I: AT THE WATER'S EDGE

LESSON 9: COASTAL NEWS REPORT (OPTIONAL LESSON)

TIME: 1 DAY

PURPOSE

To increase students' awareness of current issues, problems
and events affecting coastal areas.

MATERIALS

In Package

Newspaper or magazine clippings

OVERVIEW

Students simulate a television news program, "The Coastal News Report".
A similar lesson conclude& each unit of the course (the format can be used
more often if desired). Each student in the class should be involved in at
least one news report during the semester. The TV news format is only one
suggested way to make reporting and discussion of coastal news stories
interesting and entertaining for the class. Other reporting schemes may
be tried. The primary objective is to have students read newspapers
and magazines regularly with attention to and understanding of coastal themes.

PROCEDURE

1. Select 4-6 volunteers to prepare and present a "Coastal News Report."
Explain that all students will participate in this exercise at some
time during the semester.

2. Explain that the reporting group is to collect news items about the
coast (coastal issues, problems, events) and prepare these for
presentation to the class on an assigned date. The presentation will
take the form of a TV newscast.

Several stories may be presented, including local and national items,
plus weather and sports stories that are related to the coast. Students
role play news personalities, with one person handling national news,
another the sports scene, etc.

The report team may make its presentation as imaginative as it wishes,
but news stories should be based on actual news accounts the students
have collected from magazines, newspapers, etc.

(For example, a local story on pollution might inspire an interview
with an inhabitant of the polluted waters, such as a fish or mollusk,
about the harmful conditions).

3. Have the news team choose a "News Director" to act as team leader.
Meet with team members prior to presentation to advise on news subjects
and presentation techniques.

You might require each team member to write out a script for his/her
news items collected as part of the assignment.

4. Debrief the news presentation asking questions that reflect major
themes developed in Unit 1.

5. Invite other students to report on or raise questions about coastal
events recently in the news which the "TV Report" did not mention.

U N I T I I: UNDERSTANGING COASTAL ECOLOGY

LESSON 1: C0AsTAL ECOSYSTEMS
LESSON 2: FoOD WEBs

lEssoN 3: POLLUTION: WHAT IS IT?
LESSON 4: SEWAGE: THE "EFFLUENT SOCIETY"
LESSON 5: OIL POLLUTION

LESSON 6: WETLANDS AM MARSHES: PROBLEM OR RESOURCE?

LESSON 7 : NATURAL HAZARDS
LESSON 8: TSUNAMIS AND HILO, HAwAii: A CASE STUDY
LESSON 9: ANALYZING COASTAL ECOLOGY

LESSON 10: COASTAL NEws REPORT #2 (OPTIONAL)

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 1: COASTAL ECOSYSTEM

TIME: 2 DAYS

PURPOSE

To present elementary concepts of ecology and relate these to coastal
ecosystems.

To show ways human activities can interfere with coastal ecology.

MATERIALS

In Package

Reading TI-1, "Coastal Ecology"
Worksheets II-1, "Coastal Ecology Worksheet" nce"
Transparencies 11-1-9, "Coastal Ecology and Human Interfere

Additional

Overhead projector
Grease Pencil

OVERVIEW

Students review basic ecological concepts, and see several ways
human activities may disrupt coastal ecosystems. This lesson is developed
through a series of transparencies. Students follow the presentation by
filling in their worksheet pages that correspond to the transparencies.
Major ideas presented in this lesson are reinforced throughout Unit II.

PROCEDURE

1. Assign Student Reading II-1, "Coastal Ecology" as home-
work after'completing Unit 1, Lesson 9. This reading can also be
done during class time.

2. Pass out Student Worksheet II-1.

38
Is

3. Show Transparency Set II-1. Follow the teacher's notes which
accompany each transparency. The "Commentary" sections contain
basic descriptive information. You may wish to supplement this
information with additional data or local examples. The "Questions"
sections are intended to keep students actively involved in the
presentation as each transparency is completed. Suggested answers,
in brackets, follow most of the questions. You may wish to supplement
the "Questions" section as well.

In any case, major ideas presented in this lesson will be reinforced
throughout Unit II.

4. As you introduce new elements and relationships, draw these on the
transparency. Both "starting" and "completed" diagrams are shown
in the Teacher's Guide.

5. Homework Assignment: Have students investigate cases of
interference with coastal ecosystems. Each student should report
on a specific coastal area, the type and source of interference,
and how the problem might be corrected or lessened. This may be
given as a short assignment or it can be made a full-length term
paper. It may also be assigned as an individual or group work.

Transparency II-1

U! I

Commentary

The Student Text reading discussed the science of ecology, defined
ecosystem , and introduced the concept of ecological cycles.

Questions

a. What is ecology? What do ecologists study or look for?

b. What is an ecosystem?

c. Can you name some ecosystems?
06qam _U3

d. What is an ecological cycle? Why are these cycles important?

e. What are some examples of ecological cycles?

Transparency 11-2
(Starting)

Transparency 11-2
(Completed) r

OXY&M FOOD

AMYLAZZ SeW

Commentary

One basic ecological cycle is the Producer-Consumer cycle. Photosynthesis
and metabolism are the two processes which "drive" this cycle.
Ecologists and biologists call plants "primary producers".

Questions

a. Where do plants get the energy to grow?

[Light energy from the sun.]

b. How is the sun's energy ca2tured by_plants?

[By the process of photosynthesis.]

c. In what form is energy stored in plants?

(In the chemical bonds of carbohydrates and other plant matter.]

d. What do plants produce as they convert sunlight into plant matter
during photosynthesis?

(Oxygen and carbohydrates. For purposes of this presentation,
carbohydrates will be generalized to "food".]

e. What happens to carbohydrates and oxygen?

(They become inputs for animals including humans which are "consumers";
bacteria also receive them, but this will be discussed later.]

f. What happens to the energy which is stored in plant matter?

[This plant matter is transformed by the process of metabolism in
animals and man into work and heat, that is, body temperature.
The heat output of these consumers are represented on the diagram
as a wavy line. It is lost to the system and is not reused.]

g. Coastal areas have a great concentration of "primary producers".
Why would this be so?

(Because in addition to plants on land, the near-shore waters con-
tain heavy concentrations of seaweed and tiny aquatic plants called
plankton, or often, algae. While microscopic in size, phytoplankton
are extremely important in producing oxygen and food for aquatic
animals ranging from minnows to certain types of whales.]

Transparency 11-3
(Starting)

FOOD

BMW

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(P-duwn)
-74.

Transparency 11-3
(Completed) N. 0
A

A (V"4&-OMM)
MCM .0

WASM

now

Commentary

Students have completed the first diagram showing outputs and inputs in
the first state of the producer-consumer cycle. Students are now ready
to describe the full cycle with the addition of one new set of actors,
"decomposers".

Questions

a. What are the outputs of animals and man?
(Carbon dioxide (CO2), waste water (H20), and organic solid wastes.)

b. Where do these outputs go?

(They are reused by plants.)

c. Can organic solid wastes be used directly by plants?

(No. They must be broken down first by the action of bacteria
and fungi, which are called "decomposers".)

d. What are the inputs the decomposers use up in the process of
decomposition?

(Oxygen and wastes. Wastes come from both animals and plants.
Wastes from plants are indicated by the arrow from "food" to
bacteria.)

e. What are the outputs then of the decomposers?
(Water (H 20), carbon dioxide (CO 2), and nutrients, especially
nitrates (a form of nitrogen) and heat energy, which is lost
to the system.]

f. Are decomposers also consumers?
[They consume waste as food and produce the CO2 and 1-120 as do
other consumers.]

g. What are some generalizations we can make about the producer-
consumer cycle now that we see all the outputs and inputs of the actors?

[The cycle is continuous. Photosynthesis supports metabolism
and metabolism supports photosynthesis.

The cycle is very tightly interlocked. Only heat energy is lost
and not returned to the system.

Central to the successful operation of the cycle is the work of
the decomposers. @.The balance between production-consumption-decom-
position is delicate. Pr oblems can occur when too much industrial and
s,ewage waste is brought-into the system from outside. This creates
an overbundance of bateria. In aquatic ecosystems, bacteria tend to
use up oxygen supplies, depriving other organisms of this vital
substance.

Transparency 11-4
(Starting)

Transparency 11-4
(Completed)

Commentary

A second basic ecological cycle in coastal ecosystems is the water,
or hydrologic cycle, driven by the processes of evaporation, condensa-
tion, and precipitation.

Questions

a. Can anyone explain "why does it rain"?

[The sun is always at work heating sea water and other surface
waters. As the water heats, some of it "evaporates", or vaporizes,
and then condenses again in the colder upper air forming clouds.
This vapor-laden air produced over lakes, rivers, forests, grass-
lands, and the ocean is pushed by winds across land areas. The
moisture in the clouds then falls back to earth in the form of
rain and snow. This is called precipitation. Water which does

not pass through the ground into underground water reservoirs
(called aquifers) flows back through streams and rivers to-the
ocean. Ultimately this water evaporates, continuing the cycle.]

b. Does anyone know how much of the water on earth is sea water?

[There are 8.7 million cubic miles of water on the planet. 97.3% is
ocean water and therefore unusable for drinking or agriculture.]

c. How much of the remaining 2.7% fresh water do you think is available
for our use?

(More than three-fourths of this water is locked up either in
glaciers or polar ice; much of the remainder is entombed underground
in reservoirs too far below the earth's surface to be reached.
Thus of all the world's fresh water, only .0037% or 1 part in 270
Is accessible to us.]

d. How has this fact affected human life and civilization patterns?

[Much-of the land area of the globe is not suitable for settlements
because of poor water supply. Most coastal areas, on the other
hand, because of their closeness to the oceans, have weather patterns
which typically produce a relatively large amount of rainfall and
therefore coastal areas can sustain large populations and/or large-
scale agricultural operations. This is one reason much of the
world's population is concentrated in coastal areas.]

Transparency 11-5
(Starting)

Transparency 11-5
(Completed) PAM 6.

Commentary

An important process which occurs in coastal ecosys-tems is related to the
water cycle. This is the geologic process of erosion.

Questions

a. What happens to dirt and pebbles in rivers when it rains?

[Dirt and pebbles are transported downstream by the force of the
water flowing toward sea level.]

b. What is this transported material commonly called?

[Silt or sediment.]

c. Where does the silt go?

[It usually accumulates at river mouths, often creating new coastal
lands.]

d. How would you describe the process of erosion?

(The movement of water in the hydrologic cycle and the action of
wind and of gravity combine to wear down the land. Eroded materials
are washed down streams into rivers and finally to the sea.1

e. Do geological processes only work to break down land forms and
deposit eroded material on the coast?

(No. Taking a long-term view, the geologic actions of nature can
also be considered a cycle. Land and mountains are constantly
being formed anew. Earthquakes and volcanoes may add wholly new
land forms suddenly at any time.]

f. Can you think of any examples of earthquakes or volcanoes creating
new land forms?

[e.g., Hawaiian Islands.]

9- What are some well-known examples of erosion?

[e.g., Grand Canyon.]

h. Are there any examples of erosion in this area?

Transparency 11-6
(Starting)

Transparency 11-6
(Completed)

Commentary

Thus far the transparencies have shown how undisturbed natural systems
work. Often, however, something interferes with these undisturbed oper-
ations. In coastal ecosystems, four major kinds of interference may
occur and produce an imbalance in the ecosystem. Each of these inter-
ferences can-be or are the result of human activities.

First, the amount of sunlight entering the ecosystem may be decreased.

Question

a. Why is sunlight important?

[Sunlight provides the energy source for photosynthesis. If plants
cannot grow, plant feeding animals cannot survive in their usual
numbers. This in turn threatens other species which feed on the
plant-feeders.]

b. What might interfere with sunlight entering a coastal ecosystem?

[Near-shore waters can suffer from an excess of silt. Smog is a
minor contributor to sunlight interference in coastal waters.]

C. How would excess silt affect the aquatic ecosystem?

[In two ways: first, silt clouds the water and blocks the normal
amount of sunlight from penetrating the surface water. Thus fewer
green plants are formed. This connection can be seen by reviewing
the completed ecosystem worksheet. Second, silt and sediments can
suffocate bottom dwelling, or shell-fish blanket spawning areas
making it difficult for the young to survive.]

d. How might too much silt get into the water?

(From development on coastal lands or improper agricultural or
grading practices. These can create conditions under which rain
water runoff carries great quantities of silt into near-shore
waters. The presence of silt is natural, but there is frequently
an excess of silt in coastal waters off developed areas. The main
source of sunlight interference in coastal ecosystems is silt.]

...........
Transparency 11-7 ELLLKLLLK" *A
LRXLALLEM
(Starting)

Transparency 117.7 CALLELLLEM
(Completed)

Commentary

A second source of interference for coastal ecosystems is oxygen
interference.

Questions

a. Why is oxy@;a iaportant? Is there free oxygen in water?

(There is a small amount of dissolved oxygen in water. It is
normally enough for marine organisms. All animals need adequate
supplies of-oxygen to live.]

b. What might interfere with oxygen levels in aquatic coastal ecosystems?

[Too much organic waste in the water.]

c. When there is too muth,waste, the dissolved oxygen level is lowered,
How does this excess waste lend itself to a lowering of oxygen levels?

[An excess of nutrients from the wastes overstimulates plant growth,
particularly algae. A dense algal population cannot be sustained
for long because as the thickness of the algal layer in the surface
water increases, the light required for photosysnthesis in the lower
algal layer is cut off. The algae dies, leaving organic debris
generated by plants. The decomposers use up the dissolved oxygen
in the water. An over-supply of plants and bacteria in a body of
water thus causes larger animals like fish to leave the area or to
die due to suffocation. This situation is what is called "eufrophi-
cation".]

d. Has anyone seen or lived near a body of water which has become polluted
this way?

Transparency 11-8
(Starting)

T 1-

Transparency 11-8
(Completed)

pip

Commentary

A third way in which coastal ecosystems can be interfered with is through
changing the salinity of the water.

Questions

a. What is salinity?

(This refers to the amount of salt dissolved in the water. If water
becomes too salty or too fresh, it can kill those plants or animals
living in the water which are sensitive to salinity changes.)

b. What might interfere with natural salinity conditions?

(Putting too much fresh water in the sal t water or preventing

enough fresh water from entering the salt water. A river system
which empties into the ocean brings in just enough fresh water so
that young aquatic animals like fish and shrimp are nurtured and
the plants and animals which have adjusted to the usual mixture of
fresh and salt water can grow well.]

c. How could this flow of fresh water be affected?

(In two ways: a dam might be built which blocks off the flow of
water into the ocean; or conversely, paving of areas near the ocean
or construction of flood control canals might cause rain water to
pour too fast into the ocean.]

d. Are there examples in this area where such a change has taken place?

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Transparency 11-9 RAAAA.&O
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Transparency 11-9
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Commentary

A fourth way in which coastal ecosystems can be damaged is by adding
poisons.

Questions

a. How are poisons added to the system?

(Primarily from industrial wastes and agricultural pesticides.]

b. What poisons are added?

[Industrial chemicals, heavy metals like mercury, zinc, copper,
acids, and pesticides like DDT.]

c. What happens to these poisons once they enter the system?

[Aquatic organisms and plants take them into their systems. The
poisons cannot be metabolized;.they accumulate in the tissues and
fibers of the animals and plants. The poisons are then passed
upward through the food chain in increasing concentrations. If
the concentration becomes great enough, animals which eat the
infected animals will suffer toxic effects.]

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UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 2: FOOD WEBS

TIM: 1-2 DAYS

PURPOSE

To present food chains and food webs.

MATERIALS

In Package

Worksheet 11-2, "Marsh Food Web"
Worksheet 11-3, "Food Chain Plant and Animal "Picture Sets"
Transparency II-10, "Production Pyramid"

Additional

Overhead projector
Grease pencil

OVERVIEW

Through discussion, students work toward a definition of food chains.
Sample food chains are constructed by students. These food chains are
then incorporated into one interrelated food web for a marsh ecosystem.
transfer of energy from producer to consumer is discussed.

PROCEDURE

Part 1: Food Chains

1. Ask the following series of questions:

a. Why do we eat?

(To get energy and material for body building. Food is our
body's source of energy. A portion of each bit of food we
eat is converted into energy as our bodies metabolize or
process the food bark into carbon dioxide, water, and wastes.

b. Who has eaten potatoes lately?

(State that potatoes are a source of energy.]

C. Where did the ehergy in potatoes originally come from?

(From the sun. The sun is the ultimate source of all energy
found in food; food incorporates and stores solar energy.]

2. Write "Food Chain" on the chalkboard. Ask:

Can anyone explain this term?

(A food chain lists a sequence of organisms that eat each other.
It starts with the solar energy originally captured in the process
of photosynthesis in plants. A food chain tells "who eats whom
or what," and where the energy goes.]

Then ask:

Who ate tuna recently?
Who ate hamburger?
Who ate shrimp
Who ate corn?
Who ate i@-110?

3. Construct a food chain for each of the above foods, or energy sources.
Write a student's name on the board. Draw an arrow from what the student
ate to the student's name. For example, the student who ate corn:

Student - Corn

Ask: Where does corn get its energy?

[From the Sun.]

Link the sun to corn to complete the food chain.

Student -4- Corn -o- Sun

Work out the food chain for each of the o 'ther examples.
Have students try to identify each link in the chain.

The food chains for each of the foods listed are:

Student.-*-Tuna --Sma3n- 4' Zooplankton-4- Algae-*-- Sun
fish (animal plankton)

Student -4-<Hamburger Cow) *-*- Grain - Sun

Student-o-Shrimp-o- Zooplankton Algae-*-- Sun

Student-a--(Jello Gelatin Seaweed)* o Sun

*A parenthesis is used here to show that the prepared form of this food
which humans eat is still that food. Hamburger is finely ground cow,
Jello is processed seaweed, etc.

4. Suggest that an important part of und erstanding coastal ecology is
understanding how coastal food chains work. To illustrate some
coastal food chains, the class will look at a marsh ecosystem.

5. Arrange the class in groups of three. Hand out one complete
set of plant and animal food chain pictures to each group.
Have each student choose one of the three sets and construct a
food chain from the plants and animals in the set.

Each student should draw the food chain on a piece of notepaper,
arranging the chain so the last or highest order "eater" is at
the top. Highest order animals are those that principly eat other
animals and are usually not eaten themselves while living (e.g.,
lions). Note that some plants or animals in a set may be food
sources for more than one other animal in the set.

Students should draw arrows between the members in the set to show
who eats whom, with the arrow pointed toward the eater. For example:

Shorebirds

Worms

The correct food chains are as follows:

A B C

SHOREBIRDS BASS SHOREBIRDS
BASS

SPIDERS CRABS KILLIEFISH

APHIDS SNAILS SHRIMP CLAMS WORMS

MARSH GRASS PHYTOPLANKTON ZOOPLANKTON

ORAGNAIC MATTER ORGANIC MATTER ORGANIC MATTER

6. After all students have drawn their food chains, call one student
up to the board to draw Set A, one to draw Set B, and one to draw
Set C plants and animals in a food chain. Have other students
correct any errors in their own food chains.

Part 2: Constructing a Food Web

1. State the food chains by themselves do not illustrate the real
complexity of an ecosystem. To get a better picture, one needs to
construct food webs, which show how various food chains are linked
together.

2. Hand out Worksheet 11-2, "Marsh Food Web", to each student. Ask
each student to merge the three separate marsh food chains already
drawn on the board into one large, interrelated food web.. This
should be done by writing the name of one plant or animal in each of
the blank boxes shown on the worksheet, and then drawing arrows to
show who eats whom or what.

Note that the "Marsh Food Web" worksheet shows one new feeder in
the additional box at the top. That feeder is us -- humans.

3. Have students work in the same three-person team to complete their
food webs. Call on one team to draw the completed food web on the
board.

[The completed "Marsh Food Web" appears at the end of the Teacher's
Guide for this lesson.]

4. Discuss the completed marsh food web. Ask:

a. What foods are the foundation of this whole food web?

(The marsh grasses, organic matter, zooplankton, and phyto-
plankton -- the "primary producers" and "first order" con-
sumers at the bottom.]

b. What would happen if any of these energy sources were missing
or seriously reduced?

(The lives of all the animals on up through the food web would
be threatened.]

C. Would humans be threatened?

(Fortunately, humans have many sources of food -- grains, beans,
vegetables, fruits, and meat, poultry, dairy products, etc.
However, the human population is certainly not well fed world-
wide, and therefore, every source of food is important to
preserve and if possible enhance.]

d. What conclusions might-you draw from this?

(We need to protect the foundations of the food web, i.e.,
the "primary producers" and "first order" consumers. These
sources are estuarine areas, marshes, near-shore waters.]

e. Are these areas threatened?

(Yes!]

f. How?

(By dredging, filling in, sunlight interference, oxygen inter-
ference, dumping of too much waste, salinity interference,
adding poisons.]

Part 3: The Production Pyramid

1. State that another aspect of food webs which students need to be
aware of is the transfer of energy up through a food chain. Ask:

Is much of the ener&y found at the lower levels of the food web
transferred to each new consumer?

(No. Most of it is lost along the way.]

2. This loss is depicted in the "Production Pyramid." Show Transparency
II-10, "The Production Pyramid," or reproduce the transparency master
and distribute copies to all students.

Explain that the "Production Pyramid" shows that with each transfer
of energy up a food chain, the loss of energy is very high. Phyto-
plankton (microscopic plants and algae) trap in their substance only
three-tenths of one percent (.3% or .003) of the total energy from
sunlight they receive.

Animal plankton eating phytoplankton retain only one-tenth of the
energy in the algae, or three one-hundredths of one percent (.03%
or .0003) of the original solar energy.

Fish eating the animal plankton retain less than three one-thousandths
of one percent (.003% or .00003) of the original sun energy: 3 units
of energy out of the original one hundred thousand units which
reached the phytoplankton.

Put another way, approximately 90% of the original energy is lost
with each transfer of energy along a food chain. Only 10% is used
each time. Have students think about the following situation:
Suppose you ate 3 tunafish sandwiches and gained one pound
of weight. This would be equal to eatinp,_how much phytoplankton?
How much photoplankton had to be consumed at the bottom of the
food web to enable you to eat those 3 sandwiches and gain that
one pound of weight? ' It takes 10 lbs. of fish to process 1 lb.
of prepared tuna fish.

The food chain in this case is:

Humans *-Tuna <--Small Fish -*-Zooplankton .q-Phytoplankton -*-Sun

(The answer is 10,000 pounds of phytoplankton. The energy relation-
ship is:

1 lb humans
10 lbs tuna
100 lbs small fish
1,000 lbs zooplankton
10,000 lbs phytoplankton

(Write these amounts on the transparency to the right of the Pyramid.)

Students may note that one cannot really gain one pound from eating
3 tunafish sandwiches, if one has to eat 10 pounds of fish to gain
one pound of human weight. This is correct. The person who ate 3
t,unafish sandwiches would only temporarily weigh one pound more,
until his or her body metabolized the food and 90% of it would then
be excreted as water and solid waste.

Ten thousand pounds of phytoplankton would be billions and billions
of individual organisms. Fortunately nature is very productive at
this level. Algae and other plants and animals at the bottom of the
pyramid normally live in adequate quantities to supply the consumption
requirements of the pyramid. But there are factors or conditions
which can wipe out this surplus.

Ask: Can you suggest any of these factors?

[The first is a high birth-rate among higher order consumers such
as humans. This has, as we know, happened.

Another is the practice of eating higher off the production pyramid
that is, eating more meat and fish and less grains and vegetables.

It is much less efficient to gain one pound by eating meat and fish
than by eating grains and vegetables. Getting energy from meat and
fish requires that there be more primary production, and more first
and second order consumption.

A third is the making of estuaries and other bountiful ecosystems
less productive. This is precisely what is happening in many places
because of the stresses on coastal ecosystems caused by various
human activities.]

It may be difficult to realize how dependent we really are on creatures
in the world we don't even see, like microscopic plankton, or don't
pay much attention to, like worms and spiders, and how important it
is to preserve their habitats. But the facts of food webs and the
"Production Pyramid" make it clear that we cannot continue to ignore
or disregard this dependence.

(An -Mal

Worksheet 11-3
Answer Key 73

shorebi@@s bass bs

spiders killifish

aphids snails shrimp clams

worms

marsh grass zooplankton phytoplankton
(animalsj (plants)

organic matter

,Z4

T11-10 PRODUCTION PYRAMID

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 3: POLLUTION: WHAT IS IT?

TIME: 1 DAY

PURPOSE

To define pollution.

To examine different types of pollutants and their impact on waterways.

MATE RIAL S

In Package

Reading 11-2, "Pollutants in the Waterways"
Worksheet 11-4, "Pollution Chart"
Reading 11-3, "Savarmah* Marshlands: A River That Kills"

Additional

Clear glass container
Salt
Match
Sand
Other "pollutants"

OVERVIEW I
This lesson contains two parts. Students first develop a general
definition of pollution. Subsequent readings and activities look at
various-kinds of pollutants and how pollution affects coastal areas.

PROCEDURE

-Part 1: Defining Pollution

1. Show the class a clear, empty glass container. You will place
several ingredients in the container. After each new ingredient
is added, ask the class if they think the ingredient is a pollutant.
In the beginning stages, accept all opinions; as the exercise moves
forward, more specific answers will be developed.

2. Put sand or fine dirt in the glass. Fill with water by tipping the
glass to one side. This should prevent the sand from mixing in the
water. Then ask:

a. Is sand or sediment a pollutant?

(Accept any answer.]

b. Is the water polluted

[Accept any answer.]

3. Explain that one way to check if the water is polluted would be to
see if people or'marine life could use the water. Ask:

a. Could fish live in this?

[Yes, however, if too much sand or sediment is introduced, it can
suffocate fish and shellfish.]

b. Could people drink this?

(It would depend on the nature of the sediments.]

4. Shake the glass container so that the sediment is suspended in the
water. Then ask:

a. Is the sediment now a pollutant?

(Accept any answer.]

b. Is the water now polluted?

[Accept any answer.]

C. Could fish live in this?

[Excessively turbid water will clog gills of fish and suffocate
shellfish.]

d. Could people drink this?

(Most likely, no.]

5. Hold a lighted match beneath the glass and announce that the water
is now 5* higher. Then ask:

a. Is heat a pollutant?

(Accept any answer.]

b. Is the water polluted?

[Accept any answer.]

C. Could fish live in this?

[Many fish species die if water temperatures are raised only a
few degrees.]

d. Could people drink it or swim in it?

[Probably. 1

6. Pour "sea" salt in the glass container. Then ask:

a. Is sea salt a pollutant?

[Accept any answer.]

b. Is the water polluted

[Accept any answer.]

C. Could salt water fish live in this?

(Yes, unless the quantity of salt was above or below the normal
salinity levels of the ocean.]

d. Could people drink this water?

[No.]

7. You may add other substances if you wish, such as a drop of oil or
a dirty looking object, to represent waste products. Continue
asking questions similar to those indicated above.

8. After this short demonstration concludes, review students' answers
to these questions:

a. Is salt a pollutant?

[It depends; for salt water animals, no; for fresh water animals
or for drinking purposes, yes -I

b. Is sand or sediment a pollutant?

[Again, it depends. In normal quantities and in a quiet state,
no. But, if large quantities of sediment are deposited in an
area, or if the sediment is continuously in a suspended state,
this can create serious problems for marine life and recreation
uses.]

C. Is heat a pollutant?

(Probably not for human use, but it can seriously harm marine
life.]

d. Could clean, fresh water ever be a pollutant?

(If too much fresh water enters estuarine areas, it can seriously
harm animals who need certain levels of salt in the water to
live.]

9. Have students develop a definition of pollutants and pollution based
on the previous discussion by asking:

What is a pollutant?

(Anything in the environment that is in sufficient quantity to
cause a disruption of natural biological processes.]

b. When is water considered polluted?

(When the amount of pollutants reach levels that make water
unsafe for drinking or undesirable for recreation or conser-
vation uses, or destruction of marine life occurs.]

Part 2: Investigating Common Pollutants

1. Assign the reading, "Pollutants in the Waterways." Hand out the
accompanying worksheet, "Pollution Chart," for students to fill in
as they read. Explain that the first category is filled in as an
example.

2. After students have finished the reading and completed the worksheet,
ask:

a. How satisfactory are current sewage treatment practices for
@andling these eight common pollutants?

(For several pollutants, conventional treatment processes are
not very effective.]

b. Which-of the eight pollutants is likely to cause the most pro-
blems for the future? Why?

3. Explain that pollution is a frequent problem with serious incidents
occurring throughout the country. An interesting case study of how
certain kinds of pollutants can actually affect waterways is provided
by the Savannah River. If you have a map of the United States, point
out the location of the river.

4. Assign the Reading 11-3, "The Savannah Marshlands: A River that Kills."
After the students have completed the reading, discuss the contents:

a. What was the problems explained in this reading?

(Ecology of marshlands is seriously threatened by combined
upriver pollution.]

b. What was the cause?

[Industrial wastes and municipal sewage reaching the marshland
areas; the synergistic or combined effect of pollutants.]

5. You may want to share with students the following update on the
Savannah marshlands situation:

In 1965 and again in 1969, federal and state authorities imposed
deadlines for serious pollution abatement by each of the "Big Three"
polluters. By 1971, none of the three had as yet met the deadlines
and were technically in violation of the law, though none was pro-
secuted or fined. Since then, the situation has improved. Many
pollution abatement projects have been completed. Georgia has a
new Coastal Marshlands Land Act and research institutions on Sapelo
and Skidaway Islands as well as an Institute fbr Ecology which are
studying the ecology of the marshlands.

Answer Key
80

POLLUTION CHART

CATEGORY SOURCES THREAT

Oxygen-demanding Domestic sewage; Can deprive water of
Wastes industrial wastes; comes oxygen; a danger to fish
from plant and animal and plants
wastes

Disease-causing Infectious organisms May cause disease in
Agents from surface and ground man or other animals
water; from industrial
wastes and sewers

Plant Nutrients Sewage, industrial Over-stimulates plant
wastes and drainage from growth, causes unsightly
fertilized lands; main conditions, and unoleasant
nutrients are carbon, odors and wastes.
nitrogen and phosphorus
Synthetic organic Detergents, synthetic May poison fish and oto
Chemicals organic pesticides, aquatic life; possibly
chemicals and wastes;, harmful to humans- can causE
from homes, fields and taste and odor problems.
industry Long term effects unknown.

Inorganic chemicals Metal salts, solid Interfere with natural
and Mineral substances matter and other chemical stream purification; destro)
compounds; from mining and fish and other wildlife;
manufacturing sites, oil cause excessive hardness of
fields, agricultural practices water supplies; increases
and natural sources, maintenance costs to boat
owners

Sediments Particles of soils, sands Fill stream channels and
and minerals from land and harbors causing expensive
paved areas--often comes dredging operations; fill
from construction projects reservoirs, erode power
turbines; reduce fish and
shellfish populations;
prevent sunlight from pene-
trating water.
Radioactive Substances From mining and processing A threat to humans
of radioactive ores; from
power reactors and from
nuclear testing
Heat Hot water from power plants Reduces the capacity of
and industry water to absorb oxygen;
kills fish and aquatic life.

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 4: SEWAGE: THE "EFFLUENT SOCIETY"

TIME: 1 DAY

PURPOSE

To examine the origin, treatment, and disposal of sewage

To examine how the treatment and disposal of sewage affects coastal
ecosystems

MATERIALS

In Package

Reading 11-4, "New Creature from the Deep: The Sludge"
Worksheet 11-5, "Sewage Treatment Process"
Transparency II-11, "Bacteria and Plants"
Transparency 11-12, "City Sewer System"
Transparancy 11-13, "Primary Sewage Treatment"
Transparency 11-14, "Secondary Sewage Treatment"

Additional

Overhead Projector
Grease Pencil
Suitable Viewing Surface (screen or light colored wall area)

OVERVIEW

Part I of this lesson explains why sewage treatment plants are needed.
Students review some basic ideas from Lesson 2, "Coastal Ecosystems."
In Part II, transparencies show how typical sewage treatment processes
work. In the final section, students read about a common problem affecting
sewage treatment facilities: Where to dump sludge and other residues from
the treatment process.

PROCEDURE

Part 1: Why Sewage Treatment?

1. Explain to students that one of the most common sources of pollution
is waste water from homes, industry, and agricultural areas. The
transparencies show where sewage and other waste products come from,
where they go, and what impact they have on coastal regions.

2. Show transparency, "Bacteria and Plants." This reviews some of the
material presented in the ecology lesson. Explanation for this trans-
parency follows under Commpntary headings. Suggested questions are
also included. When you reach the addition of wastes to the system,
draw this on the transparency.

Transparency II-11
(Starting)

Transparency II-11
(Completed)

SMA"

WOUSIM"
WOM
WGnAMW

Commentary U

The transparency describes the basic, balanced relationship between
bacteria and plants. Each provides what the other needs. Bacteria
also receive wastes and dead matter from animals, but since this trans-
parency concentrates on bacteria and plants, animal waste has been left
out.

Questions

Since bacteria normally clear the water of wastes, why is sewage treatment
necessary?

(When too much sewage or waste enters the water, the system breaks down.
The bacteria cannot do their job. The results are contaminated water, foul

odors, and a dangerous, polluted situation. Some kinds of bacteria in
water must be killed because they are harmful to people and animals.]

Commentary

When wastes are added to the water, the bacteria multiply at a very fast
rate. The wastes are "food" for the bacteria. As the bacteria process
waste, more nutrients are produced.

Questions

a. By looking at the transparency, can you see what impact the increase
in nutrients will have on this system?

(As the bacteria multiply, they consume oxygen at a very fast rate.
This causes the oxygen levels to decrease to the point where larger
animals such as fish can no longer live in the area. As the algae
grow, it blankets the upper levels of the water with a murky green
slime. This prevents sunlight from reaching other plants and they
die.]

Commentary

Excess wastes can stimulate algae and bacteria growth, but can be harmful
to other forms of marine life. In the case of Lake Erie and other bodies
of water that have received too many waste products, the levels of oxygen
in the water have been so low that even the bacteria begin to die. There
is not enough bacteria to consume the dead matter and other waste products.
This leads to a lack of nutrients in the water which reduces the level of
primary producers, such as algae and plankton. At this point, practically
no life can be supported. A body of water in this condition can be con-
sidered "dead".

Part 2: Sewage Treatment Processes

1. Show the transparency, "City Sewer System." Explain to the students
that a few cities have had sewer systems for thousands of years.
Around 1850, underground water-carrying systems, like the one in the
transparency, became common in Europe and America.

2. Review the transparency with the class so they see where the wastes
originate and where they go:

a. Where in this picture are wastes and waste water coming from

(Homes, city buildings, industry, and rain water.]

b. Where do the wastes and waste water-2-0?

[Either directly into the river, or to the treatment plant and
then to the river.]

Point out the valve in the middle of the picture, and ask:

What might this- be used for?

(The valve indicates that this pipe can be opened or closed.
During periods of heavy flooding the treatment plant may not
be able to carry all of the water coming into it. It is some-
times necessary to direct some of the water straight into the
river. This means raw sewage can enter waterways even when a
city has treatment facilities.]

3. Have several. of students explain how they think sewage treatment
plants work. This should give you a general idea of their perceptions
about how waste water is treated. If misconceptions exist, you can
concentrate more on these areas as you begin the following explanation.

Pass out the student worksheet, "Sewage Treatment Processes." Students
should take notes on this sheet during the discussion.

4. Show the transparency, "Primary Sewage Treatment." Explain that
primary treatment and secondary treatment are the two basic kinds of
sewage treatment.

The following information helps explain how this stage in the treat-
ment process works.

Sewage enters the treatment system through a large screen. This
blocks large floating particles and objects, such as rags,
sticks, etc. After the sewage has been screened, it goes to a
grit chamber. Here sand, cinders, small stones, etc., fall to
the bottom.

The sewage still contains a number of potentially harmful materials
(chemicals and bacteria) . These materials are removed in the
sedimentation tank, the next stage of the sewage treatment pro-
cess. The flow of the sewage is slowed in this tank and the
suspended solids gradually sink to the bottom. This mass of
solids is called sludge.

To complete the primary treatment of the sewage water --
called effluent -- chlorine is added. The chlorine kills almost
all of the disease-causing bacteria that remain, and also helps
eliminate nasty odors. Ths treated water is then emptied into
a stream, river, or ocean unless it enters a secondary treatment
process.

5. Place the transparency "Secondary Treatment Process" adjacent to the
"Primary Treatment Process" transparency. Connect them at the point
to indicate that the secondary process begins where the primary treat-
ment ends.

Explain that the secondary stage is added to the treatment process to
remove pollutants that the primary stage cannot handle. There are
several different kinds of secondary treatment. The one most commonly
used is the "activated sludge" process pictured here.

6. Remove the "Primary Treatment Process" transparency. The following
information helps explain how the secondary treatment process works:

The effluent leaves the settling tank and goes directly
to an aeration tank. Here it is mixed with air and sludge
loaded with bacteria. The bacteria in the air and the
sludge helps break down many remaining pollutants.

The sludge, which now contains millions of bacteria, can
be used again by returning it to the aeration tank.

After the aeration tank, the effluent moves to another
sedimentation tank which removes harmful bacteria. The
final step is to chlorinate the water.

This secondary process is now required by law in all
major cities across the U.S. It is 95% effective in
cleansing plant and animal wastes from sewage. It is
not very helpful in removing other kinds of pollutants.
Industrial poisons can pass untreated through this system.

Part 3: The Sludge Problem

1. Remind students of a major theme in the ecology lesson: "All wastes
have to go somewhere." In the primary and secondary treatment pro-
cesses, there is still one element unaccounted for. Ask:

a. What happens to the left-over sludge?

[Some sludge is buried, some is used for fertilizer, and in
many coastal communities, sludge is dumped into the ocean.]

2. Assign the reading, "New Creature from the Deep: The Sludge."
Have students consider the problem of where sludge goes as they read.

3. After students finish the reading, have them examine what happens
to sewage and waste products, including sludge, in their community.
Students might investigate several questions:

a. What kinds of sewage treatment processes are used?

b. Where is the waste water outfall? What impact does this outfall
have on the surrounding area?

C. What happens to the sludge?

d. Are there serious pollution problems in the area resulting from
inadequate sewage treatment?

e. If so, what kinds of proposals have been suggested for improving
the situation?

You may want to have a group of students investigate these questions
in some detail, and prepare a report for the class. Field trips can
often be arranged to visit sewage treatment facilities.

ol(YGEJV

cost

RAM

00
r

SCREEN GRIT CHAMBER SEDIMENTATION
irrr7-f TANK

-------- ------------

A."Z-A

Basic Treatment
Primary Stage

T 11-13

. . . . . . . . . . . . . . . . . . . . . . . .

T 11-12 CITY SEWER SYSTEM

JAERATION TANK

AIR

ACTIVATED'.. SLUDGE,.'

Basic Treatment
Secondary Stage

T 11-14

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 5: OIL POLLUTION

TIME: 1 DAY

PURPOSE

Have students become more aware of the environmental problems involving
supertankers and oil spills.

MATERIALS

In Package

Transparency 11-15, "The Growth of Oil Tankers"
Reading 11-5, "Oil on Troubled Waters"

Additional

World Map
Overhead Projector
Suitable viewing surface (screen or light-colored wall area)

OVERVIEW

Students view a transparency showing the increase in the size of oil
tankers over time. Discussion questions bring out the economic importance
of oil and the benefits of larger ships. Students then read, "Oil on
Troubled Waters," which examines some of the environmental problems accom-
panying the growing search for oil. Finally, students consider the ques-
tion of how much a clean environment costs, and.if they are willing to pay
the price.

PROCEDURE

1. Show the tanker transparency. Indicate that these ships are the
largest of the periods represented. For example, today, the largest
tankers weigh about 475,000 tons. Ask students:

Why have tankers gotten bigger

(As the need for oil increases, more oil must be transported
from oil fields to countries around the world. Oil companies
have found it is cheaper to build a few large tankers to carry
the oil rather than several smaller ones. Bigger ships are also
extensively automated, meaning less money is spent on crews.]

2. If you have a world map, point out the location of the Suez Canal.
Explain that in 1967 the Middle East War closed the Suez Canal.

As the tanker transparency shows, there was a tremendous increase
in the size of the tankers from 1956 to 1967. Ask the class:

Why would the closing of the Suez Canal help cause an increase
in the size of tankers?

(Ships departing the oil-rich Mideast now had to go completely
around the coast of Africa to reach Europe or the Western
Hemisphere. Longer distances meant increased transportation
costs. By using larger tankers the oil industry transported
more oil at one time, thus offsetting the increased trans-
portation costs.]

3. Tell the class that many people fear that the marine environment
will suffer if supertankers continue to be used. The following
questions should encourage students to consider the "pros and cons"
of this argument.

a. What are the threats to coastal ecosystems from large tankers?

[Dangers of oil spills from accidents or collisions;
spillage of oil from routine cleaning and maintenance of
the tankers; harbors will have to be dredged to much greater
depths to allow these large tankers to enter, and such
dredging disrupts plant and animal life.)

b. Why do we have to import oil in the first place?

(Domestic oil production supplies only about 60% of the
petroleum products we need; until nuclear or solar energy, or
some other substitute becomes easily and cheaply available,
America will continue to run on petroleum. This means imports
will continue.]

C. What would be the likelX impact on the U.S. if supertankers did
not exist?

[Oil transportation prices would rise leading to an increase in
oil prices.]

4. Assign the reading, "Oil on Troubled Waters." To review, ask questions
similar to the following:

a. Which users of coastal EtLions are most likely to be affected
by oil spills?

(Wildlife, recreational users, tourist industry and fishing
industry.]

b. What are the major ways oil can get into the water and pollute
the sea?

[Spills from tankers, spills from drilling operations, from
industry, and from routine cleaning of tankers.]

C. One scientist recommended that the U.S. should get more of its
oil from off-shore drilling operations rather than importing it
from other countries. WhL?

(Far less oil is spilled in drilling operations than in trans-
porting oil.]

d. What would be some possible consequences.to the environment if
we were able to do this?

[Less chance of oil spills from tankers; more drilling
operations for off-shore oil along U.S. coast, which might
increase the possibilities of another Santa Barbara-type
incident; increase in off-shore drilling may bring increase
in on-shore petro-chemical industries.]

5. The following questions ask students to consider the problem of who
pays for a clean environment.

Explain that the last two lessons have dealt with the general problem
of pollution. Most people would like to see pollution stopped. Ask:

a. Why haven't oil companies, for instance, eliminated all chances
of oil pollution? Why don't they build smaller, safer ships

(One major reason is that stopping pollution is expensive; it
costs money to build safer ships and to institute procedures that
would be nearly fail-safe.]

b. What would be the effect on gasoline prices if Oil 201lution
were ended?

[Gasoline prices would go up. Oil companies would pass along
the costs of eliminating pollution to their customers. Further
no system will ever be completely fail-safe, particularly one
that relies on ocean transport.]

Present the following hypothetical situation:

Oil companies have discovered that they can eliminate
all oil pollution, but gas prices will increase to
$2.00 a gallon.

Poll students to determine if they would be willing to
pay this price. If most protest, keep lowering the cost
until a majority approves. Point out that if the class
voted for less than $2.00 per gallon, they are willing to
put up with some pollution.

Further, if students are willing to put up with more
pollution than currently exists, gas prices might be lower
than they are at present. Part of the price of gas today
represents what people are generally willing to pay for
a cleaner environment. How much are you willing to pay
determines, to a large extent, how clean the environment
will be.

1886 2,300 TONS
THE GROWTH

1918 8,000 TONS OIL TANKERS

n i r7

1950 16,000 TONS

1956 47,750 TONS

1967 2W,000 TONS

2000 1,000,000 TONS

T ii-

UNIT II: UNDERSTAND COASTAL ECOLOGY

LESSON 6: WETLANDS AND MARSHES: PROBLEM OR RESOURCE?

TIME: 1 DAY

PURPOSE

To understand the changing values placed on wetland areas.

To realize the current status of wetlands in the United States.

MATERIALS

In Package

Reading 11-6, "Changing Status of Wetlands" (Parts 2, and 3)
Reading 11-7, "Wetlands Face a Murky Future"

OVERVIEW

Students first consider a number of the negative things associated
with wetland areas to see why people have typically considered wetlands
useless. They then read a short three-page reading that examines the change
in attitudes toward wetlands since 1900. A final reading and discussion
provides an overview of the status of wetlands today.

PROCEDURE

1. Begin by asking:

a. What are your r2actions to the following: slimy mud, alligators,
quicksand, tall prickly grass, mosquitoes, decaying plants and
animals?

(The responses will probably be negative.]

b. How would youlike to live near an area like this?

[The answer will probably be no. I

Explain that all these things are associated with many marsh and
wetland areas along the coast.

2. Have students read, "Changing Status of Wetlands." Ask a student
to explain the main point of each reading. Then ask:

a. Are attitudes toward marsh areas the same in each reading?

[No, there is a complete reversal in attitudes from destroying
the useless marshland to creating new marshlands.]

b. According to these readings why were marsh areas filled in?

[To eliminate health hazards; to provide space for housing,
agriculture, recreation, tourism, business and industry.]

C. According to the last article, wh y are marshes being created?

[Because these areas support much wildlife and are a nursery for
many c ercial fish stocks.]

d. Which article do you think was published first? Which article
do you think is the most recent?

(The correct answers are Reading 1, 1908; Reading 2, 1947;
Reading 3, 1976.]

e. What do you think accounts for the changing perspective and
attitudes toward marshes?

(People now realize that marsh land has both commercial and
conservation value in its natural, undisturbed state.]

3. Assign the reading, "Wetlands Face a Murky Future." After students
finish, review the major points of the reading by asking:

a. What are the major reasons for the destruction of marsh and
wetlands areas?

[Population pressures; demand for housing; excessive filling;
pollution*from power plants and industry; upstream pollution that
works its way downstream.]

b. Which users of coastal resources are most likely to suffer from
continued filling and development of wetlands areas?

(Fishing industry, recreational fishermen, and wildlife.]

C. Which users might benefit from the filling and development of
wetlands areas?

[Housing contractors and real estate developers; home-owners,
industry, and shipping interests.]

d. Compare what happened to tideland and estuary areas in the
Ostrich Bay Coastal Resources Development Game with what has
actually happened to these areas.

e. What do you see as the likely future for wetlands areas?

4. Point out local areas that have been filled for development. In nearly
every coastal city, some major housing projects, business, parks,
airports, etc., are located on former wetland areas.

For a homework assignment, have students find maps of the local
shoreline from 50 or 100 years ago. Compare the location and shape
of the shoreline then with its present-day boundaries. The extent
of filling can be easily noted.

Have a group of students -- or the entire class -- write a report
on major filling operations in your local area. The report could
answer the following questions:

a. Where has the filling occurred?

b. When were the major projects completed?

C. Why were the areas filled? -

d. What kinds of impact has the filling had on the environment?

100

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 7: NATURAL HAZARDS

TIME: 1 DAY

PURPOSE

To survey a variety of natural hazards that affect coastal regions.

MATERIALS

In Package

Reading 11-8, "Natural Hazards in the Coastal Region"

OVERVIEW

This lesson surveys natural hazards in the coastal region from a
national perspective. Students also consider the natural hazard problem
in the local area. This general overview provides an introduction to
the specific case study which follows in Lesson 8.

PROCEDURE

1. Ask students to name natural hazards that occur in coastal areas.
Answers should include volcanic eruptions, earthquakes, floods,
hurricanes, subsidence, erosion, landslides and tsunamis. If they
fail to include any of these, add them to the list. Then ask:

Which of these natural hazards pose a threat to our coastal region

2. Assign Reading 11-8, "Natural Hazards in the Coastal Region." After
students finish, review by asking:

a. According to the readinj, where are each of these natural hazards
most likely to occur in the U.S.?

(Hurricane: Atlantic and Gulf Coast; Earthquakes: West Coast,
including Alaska; Tsunamis: West Coast, including Alaska and
Hawaii; Volcanic Eruptions: Alaska and Hawaii; Floods: all
areas are affected, especially the Gulf Coast; Erosion: all
areas are affected, but possibly most serious in the Northeast;
Subsidence: all coastal areas could be affected; Landslides:
all coastal areas could be affected.]

101
40

b. How can people increase the possibility of damage from natural
hazards?

(By living in areas prone to damage; by destroying natural
protection against natural hazards, such as sand dunes and salt
marshes; by building inadequate structures; by failing to heed
warnings.]

3. For an optional assignment, have each student investigate a natural
disaster that has occurred in a coastal area. Students could write
a short report describing the incident, and the damage it created to
both the man-made and the natural environment. Encourage investigation
of disasters that have occurred in the local region and elsewhere.

102

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 8: TSUNAMIS AND HMO, HAWAII: A CASE STUDY

TIME: 2-3 DAYS

PURPOSE

To review the causes and effects of tsunami damage to Hilo, Hawaii,
in 1946 and 1960.

To consider, from the perspective of Hilo citizens, a wide variety
of protective measures against future tsunamis.

MATERIALS

In Package

Reading 11-9, "A Tale of Two Tsunamis"
Tsunami Filmstrip
Hilo Role-play Card Set
Adjustment Option Filmstrip
Worksheet 11-6, "Adjustment Option Package"
Reading II-10, "Four Years After the Wave"

Additional

Filmstrip Projector
Suitable viewing surface (screen or light-colored wall area)

OVERVIEW

This lesson contains five parts. In Part 1, students read a dramatic
account of the two Hilo tsunami disasters. In Part 2, Students take on
a new identity: residents of Hilo and various governmental officials who
want some type of protection for Hilo. Part 3 outlines six possible adjust-
ment options for tsunami protection. Students analyze the costs and benefits
of each. In Part 4, the students meet'as a town council to decide which
option is best for Hilo. 'Finally, in Part 5, students read an account of
what Hilo decided and compare their choices and priorities with those
actually made.

103

PROCEDURE

Part 1: Tsunami!

1. Pass out the reading, "A Tale of Two Tsunamis."

2. Review the assignment by asking students to discuss their reactions
to the two disasters.

3. Show the Tsunami Filmstrip, reading the accompanying script as you
show the slides:

TSUNAMI COMMENTARY

A sudden displacement of the earth's
Pacific Seismic Belt crust will cause an earthquake and, in
some cases, a tsunami. The shaded area
shows the seismically active belts of
the Pacific. Most of the tsunamis
reaching Hawaii originate in these belts.

#2 It is estimated that a tsunami reaches
Tsunami Chart the Hawaiian chain at least once a year.
Of course, many of these are so small
they completely escape notice. Others
do not.

#3 Of all the islands affected by tsunamis,
Map of the Big Island the "Big Island" of Hawaii appears to be
especially vulnerable. The city of Hilo
is the second largest port in Hawaii
and the commercial, legislative, and
industrial center of the county of Hawaii.
It is also this area which has suffered
the most destruction from tsun *
forces. The severest tsunamis struck
in 1946 and 1960.

#4 At 1:59 a.m., April 1, 1946, the sea-
Path of the '46 Tsunami bottom was displaced in the Aleutian
chain. The resulting earthquake was
recorded on seismographs all over the
Pacific. The seismic sea wave, however,
was not tracked. Travelling at an average
speed of 490 mph, the tsunami reached
Hawaii a short five hours later --
without warning and with devastating
force.

104

#5 Buildings were picked up by the waves
Damage to Hilo and smashed. Cars were swept away.
Fifteen school children were carried
out to sea. Entire blocks were swept
clean of buildings leaving only piles
of debris. Eight-ton chunks of rock
were lifted off the breakwater and
dumped into the bay.

#6 Hilo suffered tremendous losses. There
Tsunami data chart were 161 injured, 96 dead, and $25 million
in property damage in the Hilo area.
Most of the damage was caused by wave
action, flooding, falling timbers, and
collapsing buildings.

#7 Such a tragedy could not be permitted
Data chart on plans and to happen again. Data was collected.
actions Studies were made. It was noted that
certain types of buildings withstood
the waves better than others. It was
found that the breakwater, though damaged,
had reduced the height and violence of
the waves in the enclosed area. It was
predicted that loss of life could be
nearly or entirely eliminated by the
establishment of an effective warning
system. Some suggested that seawalls
and plantings could further reduce wave
impact. Restrictions of building in
the danger zone were discussed.

By 1960, the existing breakwater had
been repaired and an early warning system
established.

#8 Hawaii had thirteen hours advance warning
Path of '60 Tsunami when a tsunami originating off the coast
of Chile began to move across the Pacific.
Moving at 450 miles per hour, the wave
travelled 6,800 miles to strike Hawaii
a.few minutes after midnight on May 23,
1960.

105

#9 Except for the boats which had set out
Damage to Hilo for the safety of the deep ocean, the
scene was almost identical to that of
the '46 tsunami. Terrified people ran
through the streets before the onrushing
waves. Some made it to safety. Others
did not. Cries of those trapped in
collapsed buildings could be heard.
Cars were picked up and thrown down
again.

#10 The tsunami-damaged area of the '60
Waterline map of '46 and tsunami was about equal to the damage
'60 tsunamis of '46. The broken black line indicates
the water line in.1960.

#11 When the damage was totalled, the cost
Comparative data chart was high. 53 injured, 61 dead, $50
million in property damage. The major
cause? Again, wave action, flooding,
and collapsed buildings.

4. Following the filmstrip, debrief the presentation by asking:

a. What similarities and differences can you find between the 1946
and 1960 tsunamis?

[In '46 there was no warning system and no advance warning.
In '60 there were both. In both there was damage to people and
property and the major causes were the same although there were
fewer deaths and injuries in the '60s tsunami. The dollar figure
for property damage was higher in '60 though inflation probably
accounts for much of the difference.]

b. Although several plans for protecting Hilo were suggested
following the '46 tsunami, only the early warning system was
implemented. Why?

(Special interest groups may have objected to some. Some may
have been too expensive. They might not have had the techfiology
for some others.]

106

C. Why do you think the early warning system did not eliminate
most injuries and deaths in the "60 tsunami?

d. In what ways, if any, was the early warning system effective?

(Some people, such as fishermen, did evacuate the area.]

e. What might have been more effective?

Part 2: Role-Playing Hilo Residents

1. Explain that during this activity, students are to imagine they
are residents of tsunami-stricken Hilo. Pass out the role-play cards.
Make sure students carefully read the information and learn their new
"identity".

2. Point out that each role card is letter coded. Ask them to locate
other "residents" with the same letter code.

3. When the groups are assembled, explain that the goal of each is to
share experiences, exchange information and find out what interests
they have in common which might bind them together as a group. Explain
that there will be a "reporter" sitting with each group who will take
notes on the conclusions reached.

4. After a few minutes ask the "reporters" to explain to the class what
each member of their group has in common. What interests are rep-
resented and what concerns are expressed for the future.

Part 3: Options for Protecting Hilo

1. Explain that in this part of the lesson each of the groups will
consider what steps, if any, they would take to reduce the damage
from any future tsunami. As residents and members of groups
representing special interests, students will have the opportunity
to evaluate six proposed adjustments for future tsunami protection.
2. Distribute one'copy of Worksheets 6 "Adjustment option Package,"
to each group. Explain that the packet contains information on the
six adjustments and an adjustment rating card for each person except
the newspaper reporter.

3. Show the adjustment option filmstrip, summarizing each option as
suggested in the commentary. After you explain each adjustment
ask students'it there are any other additional advantages or dis-
advantages to the option they would like to consider.

107

ADJUSTMENT SLIDES COMMENTARY

#1 Although Hilo had thirteen hours advance
Early Warning Systems warning of the '60 tsunami, there were
still many lives lost and many injuries.
Studies following the tsunami showed
that many people did not take the warning
seriously. The Early Warning System
adjustment calls for a more effective
warning system plus educational programs.
designed to inform people of tsunami
dangers as well as steps they can take
to protect themselves and their property.
The plan calls for the development of
emergency procedures and evacuation
strategies for the Hilo area. Some
advantages of the adjustment are: 1)
the minimal cost would be shared by the
county and state from within existing
budgets; 2) it provides lead time for
people to find safer grounds and to
remove some personal possessions; 3)
it provides emergency services to those
in need; 4) it requires no changes in
present land use patterns; and 5) it
has no ecological consequences.

Some disadvantages are: 1) this type
of warning system has not been that
effective in the past; 2) it does not
entitle Hilo to Federal disaster program
funds; 3) it does not provide protection
against severe property damage.

#2 This adjustment proposes that a barrier
Barrier Breakwater breakwater be constructed across Hilo
Bay as indicated in the drawing. It
would be 20 feet wide at its base and
would extend seven feet above water.

Breaks would be included in the design
to reduce strain and to maintain cir-
culation in the bay. Some advantages
of this adjustment are: 1) damage to
people and property inside the harbor and
on land would be reduced significantly
and even possibly eliminated; 2) present
land use patterns would not be disrupted;

108

3) the cost of the project would be off-
set by the millions saved in property
damage from future tsunami's; and 4)
federal monies would finance much of the
project.

Some disadvantages are that: 1) there
is no certainty that the barrier would
stand up under the full force of a tsu-
nami; 2) the cost of the project is high
and would involve tax increases or re-
duction of present state and county
services; 3) the breakwater would seriously
affect the natural currents of the bay,
possibly causing severe ecological
consequences; 4) it would interrupt the
view of the bay, and might be aesthetically
displeasing.

#3 This adjustment calls for a new city
Open Space plan which would remove residential,
commercial, and industrial activities
from the tsunami vulnerable area as
indicated by the shaded area in the
drawing. Land in the area would be pur-
chased and re-zoned as open space to be
developed into a park area. Planted
earth embankments would provide additional
wave protection along the shoreline.
Some advantages of this adjustment are:
1) damage to people and property would
be greatly reduced by moving homes and
businesses to higher areas of the city;
2) the park would be aesthetically
pleasing and would eliminate the need
for unsightly barrier structures; 3) the
ecology of Hilo Bay would not be dis-
rupted.

Some disadvantages are that: 1) the
project is expensive; 2) many people
would be uprooted and forced to relocate;
3) some might be forced to sell their
property against their will; and 4) the
plan does not protect the harbor area.

109

#4 Following the '46 and '60 tsunamis, it
Tsunami-proof Buildings was discovered that certain types of
structures withstood the waves better
than others. This adjustment calls for
the establishment and enforcement of
strict building regulations requiring
reinforced structures within the tsunami
vulnerable area. Some advantages of this
adjustment are: 1) it would reduce damage
to property and would provide greater
protection for those who live and work
in the area; 2) it does not require
changes in present land use patterns;
3) cost to the city and county would be
minimal as building costs would be ab-
sorbed by the residents and businesses
in the area; 4) it would not disturb
the ecology of Hilo Bay.

Some disadvantages are: 1) the build-
ings would be expensive; 2) there is no
proof that they would be totally tsunami
proof; 3) people might be forced to build
structures they do not choose to build;-
and 4) it does not provide protection
for the harbor area.

#5 This adjustment proposes that a shore-
Shorewall wall be built along the shoreline of
Hilo Bay as shown in the drawings. The
shorewall would be made of solid concrete
20 feet high. Some advantages are: 1)
it would protect people and property
behind the shorewall; 2) it is less costly
than the barrier breakwater; 3) it would
not interfere significantly with present
land use patterns; and 4) it would en-
able Hilo to take advantage of Federal
disaster program funding.

Some disadvantages are: 1) there is no
guarantee that the shorewall would be
able to withstand the full force of a
major tsunami; 2) it would block the
view of the bay and might be aesthetic-
ally displeasing; 3) it could create
flood problems if, for example, a wave
went over the top of the wall; 4) it
might affect the ecology of Hilo Bay;
and 5) it protects only the area di-
rectly behind it.

110

#6 A final adjustment is to take no action
No Action at all, but to leave Hilo as it is with
no further protective action. Some ad-
vantages might be: 1) no further inter-
ference with the forces of nature; 2)
no cost for planning or implementing
tsunami protective measures; 3) no eco-
logical consequences; 4) no disturbance
of present land use patterns.

Some disadvantages are: 1) no reduction
in damage to people and property in
future tsunamis.

4. Direct students to consider each of the adjustments in light of their
interests as a group and to rate each option as indicated. Following
this, each group should try to reach a consensus on the adjustment
or combination of adjustments it wishes to support.

5. Circulate among the groups, checking to see that each student under-
stands what option he or she favors, and encouraging the groups to
reach a final decision.

6. After the groups finiAh, ask the reporter to report on the activitie
and decisions of his or her group.

Part 4: Reaching a Final Decision

1. Point out that until now students have met as members of groups with
common special interests. However, the decision that faces Hilo must
be made by the entire community. All groups will now participate in
a "Town Meeting" to hear the "pros and cons" of each option as judged
by other citizens of Hilo. A vote will then be taken to decide upon
one option or a combination of options.

2. Call the meeting to order and ask for reactions to Adjustment Option
#1. Ask:

Would anyone like to speak for this option?

Would anyone like to speak against this option?

Move through the six options, eliciting some comment about each one.

3. After each option has been discussed ask if anyone would like to pro-
pose a new option that combines certain parts from two or more of the
original choices. For example, it might be possible to combine Option
4, Tsunami-proof buildings, with Option 1, the Early Warning System.
Compromise should be a theme of this meeting since all the citizens
of Hilo will likely be affected by this decision.

4. CaU for a vote on the options and any compromise solutions. More than
one vote may be needed if the first vote is not conclusive, or only
11weeds out" a couple of the possibilities.

Part 5: What Really Happened?

1. Assign Reading II-10, "Four Years After the Wave."

Explain that the class will have the chance to compare their decisions
with the decisions actually made in Hilo.

2. After students finish reading, ask the following:

a. What did the people of Hilo decide to do?

[The community decided on a combination of the open-space plan
and the warning system; the enlarged breakwater plan, originally
approved, was later scrapped. I

b. How was this similar or different with what the class decided?

C. What were some major factors or concerns that the people of Hilo
had in deciding on a protection plan?

f(l) Cost of the plan
(2) Who would pay the bill
(3) Damage to the environment
(4) Effectiveness of the plan
(5) Necessity of removing people and buildings from the threat-
ened,area.]

112

d. Considering the protection plan the community of Hilo adopted,
which of these factors were the most important in Hilo?

[The community believed it was important to remove people from
the area; they did not believe in the effectiveness of several of
the other plans, such as tsunami-proof buildings; cost was not
seen as a major limitation in that the open-space plan was
expensive.]

e. Which of these factors were most important to our class?

113

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 9: ANALYZING COASTAL ECOLOGY

TIME: 1 DAY

PURPOSE

To allow students to apply information from Unit I and Unit II to
the analysis and understanding of a coastal scene.

MATERIALS

In Package

Worksheet 11-7, "Coastal Scene"

OVERVIEW

This activity is designed as an evaluation for Units I and II.
Students are confronted with a drawing of a coastal scene and required
to apply what they have learned about coastal geography, ecology, and
problem to the analysis of this picture.

PWCEDURE

1. Hand out the "Coastal Scene" drawing to each student.

2. The following questions are suggested as possible evaluation items.
You may put these on the blackboard or hand them out to the class.
You may choose to modify these or add others to fit your own purposes.

a. What common features of the coastal region are found in this
picture?

(Estuary -- at the mouth of the river; sand dune -- near the
bulldozer; marsh -- along the estuary; sandy beach -- in front
of the resort; harbor -- top center of the picture; breakwater --
near sailboat, etc. ]

b. What uses of the coastal area a-re-shown?

[Tourism, recreational fishing, commercial fishing, industry,
recreation, transportation, residential, agricultural, lumber,
energy production, hydroelectric power, oil refinery, marina,
harbor, home for wildlife, scenic viewpoints, waste disposal, etc.]

114

C. In what ways is the natural ecology of this coastal area
threatened?

[Logs are damming the river, preventing enough fresh water from
reaching the estuary; the large dam may also be preventing enough
fresh water from reaching downstream; construction may be causing
too much silt to enter the ocean; sewage outfall may be dumping
raw sewage in the ocean; oil pollution is possible from tankers,
refineries and the oil drilling platform; fertilizers and/or
pesticides being dumped from the airplane will wash downstream
to the estuary; construction threatens to fill in the little
marshland remaining; etc. I

d. Which groups of people in this scene are likely to be in conflict
with each other (i.e., timber owners may be in conflict with
conservationists) ?

[Oil companies vs. resort owners; oil companies vs. tourists;
oil companies vs. fishermen; resort developers vs. farmers;
harbor users vs. recreation groups; residential vs. agricultural;
conservationists vs. airport owners; conservationists vs. oil
companies; conservationists vs. fishermen; etc.]

115

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 10: COASTAL NEWS REPORT #2

TIME: 1 DAY

PURPOSE

To increase student's awareness of current issues, problems, and
events affecting coastal areas.

MATERIALS

In Package

none

Additional

Newspaper and/or magazine clippings
fe OVERVIEW

This is the second "Coastal News Report"; a similar lesson can conclude
each unit of the course.(Formal lesson plans are not included for Unit's
III and IV but you can follow this same format).

PROCEDURE

1. Identify 4-6 volunteers who did not participate in the first "Coastal
News Report."

2. The Groups's task is to collect news items about coastal problems
from newspapers and magazines. They are to prepare a short present-
ation to the class in the form of a T.V. newscast.

3. Some of the stories for this "Coastal News Report" should emphasize
@he ecology and natural environment of the coastal region. For
example, stories could focus on the natural beauty of the area, a
description of the natural ecology of marshes or other locations,
interesting animals that inhabit the area, and how people have inter-
ferred in the natural ecological processes.

4. After the newscast is finished, debrief the presentation by asking
questions about the content of the news stories. Some questions
should focus on the major themes in Unit 2, how people have inter-
ferred with the naturally functioning ecosystems. Make sure students
understand the links between people's actions and disruptions of the
ecology of the area.

116

UNIT I I I: RESOURCE tMGEIX: POLITICS AND
PLANNING IN THE COASTAL REGION

LESSON 1: VIEWS, VIEWS, VIEWS
I ESSON 2: GAININGAcCESS

LESSON 3: THE POLITICAL SYSTEM

LESSON 4: THE CASE OF BLLE NECK BAY
LESSON 5: MAKING DECISIONS ABOUT COASTAL AREAS
LESSON 6: MANAGEMENT TooLs
LESSON 7: LOCAL INTERESTS VERSUS REGIONAL INTERESTS
IF:ssoN 8: JURISDICTIONAL PROBLEMS
LESSON 9: REGULATIONS AND PERMITS: CAN WE AFFORD THEM?
LESSON 10: THE TAKING ISSUE: LEGAL LIMITS To REGULATION
LESSON 11: MANAGING A COASTAL COUNTY

117

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 1: VIEWS, VIEWS, VIEWS,

TIME: I DAY

PURPOSE

To introduce students to the problem of loss of scenic views

To understand that political decisions affect a community's
ability to protect scenic views

MATERIALS

In Package

Filmstrip, "Views, Views, Views"

Additional

Filmstrip projector

OVERVIEW

Students view a series of contrasting pictures, designed to high-
light the destruction of scenic coastal views. Students define the
elements of an aesthetically pleasing area, and discuss how governmental
action may affect the scenic qualities of an area. This lesson, and the
following lesson on beach access, are designed to make students aware
that government decisions affect the way shoreline resources are used.

PROCEDURE

1. Show the filmstrip, "Views, Views, Views." After each picture, ask
for student reactions,

a. What words would you use to describe this picture?

b. What does this picture make you think about?

2. Some of the pictures probably received a more positive reaction
than others. Focus on those pictures receiving a positive response
Ask:

a. If you were actually present in these areas, what kinds of
things would be attractive to you?

b. What is it about the attractive scenes that you like?

118

Teacher's Guide

[Answers will likely include nice view, feeling of quiet,
solitude, peacefulness, interesting colors, abundance of
vegetation, etc.]

Explain that this list constitutes a partial, but fairly complete
list of things that go into a definition of a "scenic view."
Students may disagree about which characteristics to include.
Build on these differences by suggesting that not everyone has to
agree on what is "scenic" or beautiful.

3. Ask the following series of questions to bring out that government
is involved in maintaining aesthetically pleasing areas. Move
through these questions fairly quickly. Make sure government's
role is noted, but don't stop to elaborate or define its interests.
This is accomplished in later lessons.

a. What kinds of activities or problems have contributed to the
not-so-pleasant views you have just seen?

(Overcrowded beaches, commercial activities, boating, industrial
development, pollution from unknown activities, etc.]

b. How did these activities or uses make the area unattractive?

(Pollution, over-crowded conditions, poorly designed build-
ings, etc.]

c. Do you know_places in this coastal area where scenic views
have been marred or destroyed by certain activities?

d. Is it possible to preserve or protect scenic areas and the
attractiveness of the coastal environment?

e. How might this be done?

(Governments can pass laws and regulations to stop pollution,
restrict the kinds of buildings allowed in certain areas, etc.]

f. Why hasn't government always acted to prevent the blocking or
destruction of scenic views?

[Government has not always considered it their responsibility
to protect these kinds of resources; development and real
estate interests have often protested against such laws; buying
land to protect certain areas is often too expensive for
government; students may add other reasonable explanations.]

g. Are there laws, regulations, zoning ordinances, or other restric-
tions in this community which in some way protect scenic views?

119

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 2: GAINING ACCESS

TIME: 1 DAY

PURPOSE

To introduce students to the problem of lack of public access to
shoreline areas

To understand that political action influences the extent of
public access

MATERIALS

In Package

Reading III-1, "The Daily Splash"

OVERVIEW

Students read several simulated news stories about loss of public
access to the shore, and discuss each case, Students consider whether
government action or inaction helps produce access problems, and how
government action might protect or restore public access. This lesson
and the previous "Views" lesson, are intended to alert students to the
role of government in allocating shoreline resources.

PROCEDURE

Part I: The Access Problem

1. Assign Reading III-1, "The Daily Splash."

2. Call on one student to st-arize each story. In this summary, have
the students answer the following questions. You may want to make
this a written assignment first, or just have them answer the
questions orally in class.

a. What groups are in conflict in this story?

b. What is the basic problem or conflict in this story?

((l) "Park Department Survey" story:

Groups: Homeowners, condiminum residents, and industry
vs. beach users
Problem: Too little beach space for recreation; increas-
ing population increases pressure to develop

120
Teacher's Guide

the waterfront plus overcrowded recreational
sites

(2) "Lack of Parking" story:

Groups: Developers and homeowners vs. public
Problem: Not enough parking--developers failed to
build parking spaces

(3) "Castle Beach" story:

Groups: State government, public beach users
vs. Castle Beach land owners

Problem: Landowners don't want to give up their
land for public park

(4) "North Shore" story:

Groups: Local residents vs. tourists and newcomers
Problem: New residents and tourists are crowding
out long-time beach users

(5) "Advertisement"

Groups: Public vs. developers and prospective
buyers
Problem: Beach area will be closed off to general
public]

3. Ask the following series of questions to bring out how government
is involved in the access problem. As with the "Views" lesson,
note government's involvement, but do not detail its role at this
time.

What general issues are involved in all these stories? Or,
what is the common problem reported in the newspaper?

(The actions of certain groups of people are preventing
other groups from using beach areas. Some people are being
denied access to the beaches.]

b. In these stories, which groups denied or restricted access to
recreational areas?

[Private landowners, real-estate developers, hotel owners.]

c. Is there anything that can be done about this?

(In many areas, state and local governments have attempted
to provide adequate recreation sites and maintain beach access.]

121

Teacher's Guide

d. Are the access problems reported in these news stories influenced
by the action or inaction of government?

[Yes.)

e. What might government have done in these cases to protect
public access?

[1) Purchased land for public parks; 2) Passed laws and regula-
tions which made developers provide public access and public
parking areas; 2) Passed laws which made beach areas public
property and prohibited owners from owning all of the beach;
4) Students may find other legitimate answers.]

f. If government could have done these things, why didn't it?
What are some reasons why the public access situation is as
bad as these news stories indicate?

(1) Waterfront land may be too expensive for many governments
to buy outright; 2) Governments may not have planned for
enough access ahead of time and there may now be little land
available; 3) Developers and private landowners, who often
have considerable political influence, may oppose public
access laws; 4) Students may give other legitimate reasons.]

Part II: Local Access Problems (Optional)

1. Have students investigate shoreline access problems in the local area.
(A similar set of questions could be added concerning the topic of
the preceeding "Views" lesson.) This project may be presented as
a short assignment involving one student, a small group, or it might
serve as the basis for a term paper.

2. Students should answer two general questions:

a. Are there adequate public recreation facilities in this area?

b. If yes, what factors have made this possible? If no, why aren't
there more recreation sites available?

3. Several specific questions which could be investigated are:

a. Are there enough public beaches or marina sites?

b. Is there sufficient parking at each site?

c. Do popu ation trends for your area indicate a greater demand
for park's -.n the future?

d. Are there plans to build new 2arks or improve existing ones?

122

Teacher's Guide

e. In your state, who owns the beach? Is it considered a public
heritage, or may private individuals own the beach?

f. Are there state or local ordinances which require public
access roads or walkways-to beaches? Are new developments
required to provide public access to shoreline areas?

123

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 3: THE POLITICAL SYS M

TIM: 2 DAYS

PURPOSE

To introduce students to the major elements and relationships in
political and management systems of the coastal region

MATERIALS

In package

Transparency 11-3
Reading 111-2, "A Fish Story"
Worksheet III-1, "A Fish Story"
Transparency III-1, "A Fish Story"

Additional

Overhead projector
Grease pencil

OVERVIEW

Students first review the concept of a systems diagram and how it
may be used to understand political systems. Students then read a
fable which step-by-step introduces the major components and processes
in the political arena. With the assistance of an overhead transparency,
students diagram these relationships. This activity is followed by a
review which provides students w-ith further opRortunity to examine
the various relationships and processes in their diagrams-. The appli-
cation of the general principles to a specific case follows in the next
lesson.

PROCEDURE

Part I: Political Systems Diagram

1. Review the ecological systems diagram presented in Unit 2, Lesson 1
on Transparency 11-3. Restate two basic elements of a systems
diagram:

a. It identifies the major parts of the system.
b. It shows how they are related to each other.

To review Transparency 11-3, ask:

124
Teacher's Guide

C. What are the major parts indicated in this system?

(Producers, consumers and decomposers.]

d. Give some examples of the relationships between the major
parts.

[Producers provide food for consumers; producers get carbon
dioxide from consumers; consumers get oxygen from producers;
etc.]

2. Remind students that a systems diagram is helpful in identifying
the major parts of a system and in showing how these parts are
related. Explain that the diagram on the transparency is a systems
diagram of an ecological system. In today's lesson the class will
use the idea of a systems diagram to look at the political system.
Ask: ,

a. Based on what you know about systems diagrams, what general
thin s are likely to be included in a political systems
diagram?

[A political systems diagram will include the major parts of
the political system and show how they are related to each
other.]

3. Tell students that they are now going to read a story about a
coastal region. As the story progresses, they should begin to
draw a system diagram of the relationships developed in the
story. Assign Reading 111-2, "A Fish Story," and pass out student
Worksheet III-1. Have students read Section 1 of the reading and
then help them fill out the worksheet.

4. Place Transparency III-1, "A Fish Story," on the overhead projector.
Have students fill in their worksheets as you write on the transparency.

FISH STORY STUMNT WORKSHLEET

CCASTAL
USERS RESOURCES

125
Teacher's Guide

On the worksheet, the user box and the coastal resource box are
already filled in. Ask students to describe the relationship
between the "Users" Cthe fisherman) and the "Coastal Resource" (the
fish). As a satisfactory description emerges, write the terms
11 uses" and "benefits" in the appropriate places on your transparency.
Students should draw in the arrows and write the terms in the same
manner on their worksheets.

It is helpful for students to use the same vocabulary so that the
class works from a common base.

STUDENT WORKSHEET (After reviewing Section 1)

USES
- 10 COASIAL
C
B
EM
WITS FRE=SOURCES

After students have finished filling out this part of the worksheet
assign the second part of the reading.

5. Tell students to now expand their systems diagrams. Lead them through a
brief summary of the new actors and relationships that appear in section
2. The new actor is the "public." The "public" differs from "users"
in that the public represents recreational or general users of coastal
resources. "Users" have a commercial interest at stake; their livelihood
depends directly on the use of coastal resources. The public receives
coastal resources from the fisherman (users). The line, labeled benefits,
between the public and the users indicate this. For the benefits, the
public pays money to the user. The user, in turn, buys equipment from
certain members of the public. The dollar line between the users and the
public represents this exchange.

Have the students write these in on their worksheets as you fill in
the transparency.

126
Teacher's Guide

STUDENT WORKSHEET (After reviewing Section 2)

USERS BENEFIT

BENEFITS

Assign the third part of the reading.

6. After students have read section 3, lead them through a brief
summary of the new actors and relationships described. The
11court" is the new actor. The public is related to the court

STUDENT WORKSHEET (After reviewing Section 3)
i:@E@ DECISIONS
DECISIONS
USES COASTAL
USERS BENEFITS RESOURCES

BENEFITS
@ \B

----.LEGAL ACTI N PUBLIC

127
Teacher's Guide

in that people can bring legal action through the courts.
Decisions link the court to the user and the public.

Have students write this in as you write on the transparency.
Then, assign section 4 of the reading.

7. After students have read section 4, lead them through a brief
summary of the new actors and relationships described. The new
actors introduced in this section are the "special interest groups,"
"public interest groups" and the "legislative body." Special
interest groups consist mainly of those people who are direct com-
mercial users of specific coastal resources. The Fishermen's
Association (F.A.) is in this direct user category. Public interest
groups get their support from the general public. Against Rotten
Fish (ARF) is composed of citizens who have a strong concern about
the use of coastal resources.

STUDENT WORKSHEET (After reviewing Section 4)

DECISIONS

DECIS 0 5 USES
COASTAL
[@EGISIATIVE LAW USERS ITS RESOURCES
B
BODY BENEF

FORMS

SPECIAL
INTEREST
GROUPS ENEFITS
(FA)

PRESSURE

T
PRESSURE GR S FORKS
I (ARY)
LWAL AMON -.4 PUBLIC

After students finish filling in their worksheets, assign the
final section of the reading.

8. After students read section 5, help them fill in the new information
from the final reading. The new actor introduced to the system is
the "regulatory agency." It is connected to the legislative body
in that the legislature passes laws which establish the agency. The
agency then sets regulations and standards which affect the use of
coastal resources.
DECISIO 5
SES

TS
Fop
,;PECIAL 'EN""TS
TERE T

U:C
@t
@ST
@FORKS

128
Teacher's Guide

STUDENT WORKSHEET (After reviewing Section 5)

DECISIONS

DECISLONS
LEGISLATIVE LAW COASTAL
BODY USERS R WFITS [RESOURCES
REGULATION
FORIIS
REGULATORY
AGENCIES

SPECIAL
L INTEREST
GROUPS BENEFITS
(FA)

PRESSURE

PUBLIC
PRESSURE INTEREST FORMS
GROUPS
(ARF)

LEGAL ACTION PUBLIC

Part II: Review

1. Review the completed diagram. All boxes should be filled in and
the major connecting arrows and relationships shown.

Emphasize that this diagram cannot show the entire political
picture. It does not include the many informal ties and
agreements which affect how the system works. Also, the diagram
only considers one level of government. A complete picture would
link local, state and federal government. Nonetheless, the
diagram is useful for pointing out the ways several of the major
parts in the system interact with each other.

2. The following questions may be asked to determine if students
understand how the various parts of the system operate.

a. According to the diagram, if you as a member of the general
public wanted something done about the way coastal resources
are used, what could you do?

(Become involved in a public interest group and apply pressure
on the legislature to pass new laws; bring legal action against
a user of a coastal resource by going through the courts.]

b. Could special interest groups use the courts? If so,
what new lines would have to be drawn?

[Lines from special interest groups to the court, labeled
"legal action."]

C. In what ways can a special-interest group or a public interest
TSNJ
[G MEFITS@
ORMS
'@F

group exert "pressure" on a legislative body?

129
Teacher's Guide

(Writing letters to representatives and other public officials;
visiting public officials; attending legislative sessions; sending
letters to the public urging support of various issues; signing
petitions; advertising on television, radio or in newspapers;
campaigning for candidates who support your group's positions; etcA

d. Give some examples of legislative bodies at the local, state and
national levels.

[City councils, state legislatures, U.S. Congress.]

e. According to the diagram, there are two ways a legislative body
can affect the way coastal resources are used. Trace these paths.

[one way is to pass laws directly affecting the use of coastal
resources. A second way is to create agencies which regulate
and monitor the way coastal resources are used.]

FISH STORY TRANSPARENCY

USERS COASTAL
RESOURCES
I II I I

Li
T 111-1 .71- C)
0 0 0

131

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN T"11 COASTAL REGION

LESSON 4: TRE CASE OF BLUE NECK BAY

TIME: 1 DAY

PURPOSE

To apply an understanding of basic political processes to the
analysis of a case study

MATERIALS

In Packag

Reading 111-3, "Blue Neck Bay"
Worksheet 111-2, "Blue Neck Bay"
Transparency 111-2, "Blue Neck Bay"

OVERVIEW

Students read a case study based on a real incident in the Great
Lakes region. They then apply their knowledge of the basic
political process introduced in the previous lesson to the analysis
of this case.

PROCEDURE

Part I: Politicdl_Systems Diagram

1. Assign students Reading 111-3, "Blue Neck Bay." Contrast this
story with the fable "A Fish Story" by noting that this reading
is based on a true case in the Great Lakes region.

2. After students have read the story, pass out student worksheet
111-2. Tell students that their assignment will be to.construct
a systems diagram. Using the "Fish Story" worksbeets as a
guide, have students identify all the major actors in this
case, and determine in which box each actor's name should be put.
(See filled in worksheet on next page.)

3. After all the major actors haue been identified and the boxes
filled in, have students read the last page of Reading 111-3,
"Major Steps in the Case of Blue Neck Bay."

Students may use this outline to help them complete the systems
diagram. E,-.ch c.2 the statements summarizes a major event or
situation in the story and links together two or more of the
major actors

Teacher's Guide 132

STUDENT WORKSHEET after major actors have been identified

LEGISLATURE

REGULATORY
AGE14CY

PUBLIC
INTEREST
GROUPS

You may want to go over statements 1 and 2 with students to make
sure they start correctly. Transparency 111-2, "Blue Neck Bay,"
may be used to do this.

4. After students have finished their own diagrams, use Transparency
111-2 to review their work. Go through the diagram step-by-step,
asking students where each new arrow should be drawn. Students
should follow along and make sure their worksheets correspond to
the completed transparency. (See completed worksheet on next page.)

5. After completing the systems diagram, ask:

a. What advantages did the interested citizens of Pine Grove
gain by forming ROB? '

[Public interest groups are usually able to organize and
carry out efforts more effectively than individual citizens.]

b. What tactics did ROB use to try to influence the use of
coastal resources?

(ROB pressured legislators to sponsor a new bill, made presen-
tations before the LCA, and filed a law suit against the LCA-1

c. What do you think will now happen to ROB after it celebrates
this victory? Why?

(Students should consider whether ROB will disband or capitalize

134
Teacher's Guide

on its momentum from this victory.]

d. How do you think the coal and railroad companies will likely
respond to this setback? What can or will they do next? Why?

[Students should consider whether these interests will fight
the decision, attempt to find another docking site, or give
in to public sentiment.]

e. If the coal and railroad companies fight this decision,
where does the political diagram suggest their next move might
be?

(They could bring additional pressure on the legislature or
the regulatory agencies; they could appeal the court decision
to a higher court.]

C0MPLETED WORKSHEET

COURT DECISIONS

DECISIONS
USERS USES COASTAL
LEGISLATURE LAWS BENEFITS RESOURCES

REGULATIONS
FORMS
REGULATORY
AGENCY
SPECIAL
PRESSURE INTEREST BENEFITS
GROUPS

PUBLIC
LEGAL ACTION INTEREST
GROUPS FORMS

PUBLIC

BLUE NECK BAY TRANSPARENCY

I
I

T 111-2

. @e., w
-P,
0 0 0

135

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 5: MAKING DECISIONS ABOUT COASTAL AREAS

TIME: 1 DAY

PURPOSE

To introduce a strategy for making resource management decisions

To demonstrate that decisions about coastal resources usually carry
both beneficial and adverse effects

MATERIALS

In Package

Reading 111-4, "The Future of Bayshore island"
Worksheet 111-3, "Planning Worksheet"

OVERVIEW

In the previous 2 lessons, students developed a general model of the
political process as it operates in coastal areas. The emphasis was upon
who is involved in the political process. In the next 2 lessons, students
examine how communities plan and manage the use of coastal resources. In
this lesson, students first read a short description of a coastal community
considering a major decision about the use of beachfront land. Students
examine the several concerns community officials have in trying to reach their
decision. Students then complete a planning worksheet which systematically
examines the costs and benefits of the community's options.

PROCEDURE

1. Ask students to imagine a family trying to decide if they should buy a
new car. What are some of the facto 'rs they would consider? What kinds
-of things would they want to think about before trading cars? (For
example, one thing they would want to consider is how long their old
car is likely to last. Is it on its "last legs" or is it still in good
shape?). Write their answers on the board. Students may give several
important concerns the family might have. Following are several possi-
ble answers:

a) How much does the new car cost?
b) Can they afford it?
c) What are the repair costs on their old car?
d) Can they find the kind of new car they want?
e) Are the demands they have as a family likely to change
with respect to the kind of car they need? (e.g.,
maybe they are planning to do a lot of traveling or
camping in the next few years and they need a larger,
sturdier car.)

136

Teacher's Guide

2. Make a short transition from this example to the topic of this lesson:

"By thinking about these kinds of questions, the family can
decide what to do about their new car. They are considering
the advantages and disadvantages of trading their old car for
a new one. This process is a helpful way of organizing evidence.
You consider both options, and look at the advantages and dis-
advantages of each. People who make decisions about how to use
coastal areas do the same kind of analysis. By weighing the
advantages and the disadvantages, people can better understand
the consequences of their decisions".

Explain to students that in this and the following lesson, they
will be studying ways communities plan and manage the use of
coastal resources.

3. Have students read "The Future of Bayshore Island" (Reading 111-4).
This is a short reading about some community officials trying to
make a decision about the best use of a coastal area. This is a
fictional story.

4. After students finish, have them specifically examine the kinds
of concerns expressed by the planners. From this, students
then see the kinds of questions most planning and management
officials ask when making decisions about the use of coastal
resources. Ask:

a. What kinds of questions or concerns did the planners
have.-

b. What various aspects or consequences of the proposed hotel
resort where they analyzing?

[Students may suggest several answers. Be sure their list
includes the following:

(1) What advantages would the resort provide for the
economy? What disadvantages would the resort
bring to the economy?

137

Teacher's Guide

(2) What advantages would the resort provide for the
environment? What disadvantages would the resort
inflict upon the environment?
(3) What are the advantages of the resort to the city
government? What disadvantages would there be to
the city government?
(4) How would the resort affect public access to the area?
(5) How would the resort affect the general "character" of
the area?
(6) What does the public seem to want?]

Point out that the planners were not only interested in the
immediate impact the resort might have, but also in the long-
term impact.

5. Explain to students that decision-makers ask similar questions
about most activities or uses planned for coastal areas. Three
general categories can be developed.(Write these on the board.)

a. Economic: advantages and disadvantages for the commercial/
business sector
b. Environmental: advantages and disadvantages to the environ-
ment
C. Political/Social: advantages and disadvantages to the local
government, to the ease of access, to the
powerful political figures, etc.

6. Pass out Worksheet 111-3. Note that the three categories developed
in step 4 are on the sheet. Have the students fill in the work-
sheet with the data contained in the planners' transcript.
Students can work together in pairs or by themselves. If you
think they will need help with this activity, go through each
section with them. Use the suggested answers in the Teacher's
Key as a basis for reviewing student answers.

7. After students are finished with the worksheet, note that the
worksheet does not tell them what they should do, but does help
insure that they will consider a wide range of factors. Then, ask:
I
a. What other information would you like to have before makin
a decision?

b. Do you think the new resort should be built? Why?

C. What are the most important factors in helping you reach this
decision?

d. How did you decide which are the most important factors?

Worksheet 111-3 138
Answer Key

.PLANNING WORKSHEET

QUESTION: Should a resort complex be built on the West Shore of Bayshore
Island?

ECONOMY

Advantages Disadvantages

Employ 200 people None specifically listed, but the
$2 million tourist dollars a year hotel could hurt already existing
New stores and restaurants will open cottages and small resorts
Other hotels will follow
25,000 tourists in the summer
Land values will rise for nearby residents

ENVIRONMENT

Advantages Disadvantages

Hotel will provide sewage treatment Beach vegetation destroyed
facilities Sand dunes leveled

POLITICAL/SOCIAL

Advantages Disadvantages

25% gain in tax revenues for city City must expand highway, provide
Possibility of 100% increase in extra police protection, and improve
tax revenues water treatment facilities
New public services could be built May cause access problem
More modern, richer life style for Fishermen may losing fishing area
community A possible end to the quiet life-styli
Mayor may gain support from those Mayor may suffer loss of support
favoring hotel from fishermen and others

Are there other advantages or disadvantages to building the resort that
should be considered, but which do not fit into these three categories?

1. If the new hotel goes in, the beach park cannot be built.

139

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 6: MANAGEMENT TOOLS

TIME: 2 DAYS

PURPOSE

To introduce and review specific means which governments use to
influence or control coastal development

MATERIALS

In Package

Reading 111-5, "Managing Coastal Resources"(includes "Resource
Management Plans," "Resource Management: Six Examples,"
and "Analyzing Management Tools")

OVERVIEW

Students consider several ways government may intervene to influence
or control coastal deve 'lopment. Six management strategies are
analyzed through'a s@eries of short examples.

PROCEDURE

Part I: Management Tools

1. Review the preceeding lesson by noting that it discussed some factors
government officials often consider when making decisions about the
use of coastal resources. This lesson looks at several ways govern-
ments actually control or influence the use of coastal resources.

2. Assign the first section of Reading 111-5, "Resource Management Plans."
After students have completed the reading, ask:

a. What is the "management tool kit?"

[The strategies government can use to control or guide development.]

b. What characteristics must effective resource management plans
have?

140

Teacher's Guide

C. What can happen if a resource management plan is ineffective,
or does not exist in a given area?

(The pace of economic growth and the quality of the environment
will change without conscious planning and without the input
of public concerns. This could lead to a number of unanticipated
and unwanted outcomes.]

3. Have students read the six examples in the "Managing Coastal Resources"
reading. After they finish, ask students to explain what manage-
ment tool was used in each example. Ask:

a. What resource or activity is the government trying to control?

b. What management tool is the government using?

[Example 1: a. The government is trying to preserve agricultural
land.
b. The management tool is the purchase or
acquisition of land. By acquiring ownership to
this land, government can control how the land
is used.

Example 2: a. Government wants to protect a famous landmark.
b. Government used the management tool of zoning

Example 3: a. Government is trying to control the use of the
beach and near-shore area.
b. Government is using a regulation and permit
system to control specific uses in this area.

Example 4: a. Government is trying to reduce the density of
building.
b. Government is establishing a tax policy which
encourages certain types of development.

Example 5: a. Government wants to improve and add new
recreational facilities.
b. Government is reaching this objective by directly
improving, restoring, and developing recreational
facilities. This option is called improvement
of public facilities, or more specifically,
capital improvements.

Example 6: a. Government is encouraging further development in
the coastal area.
b. Government is directing future growth towards this
area by the placement of a highway, or more
generally, the placement of a key public facility.]

4. Have students look at the third section of the reading, "Analyzing

141
Teacher's Guide

Management Tools." -Advantages and disadvantages of use are listed
under each of the six management tools. To help students compare
these six strategies, ask the following questions:

a. Which of these options will tend to cost government the
most money?

[All of these options could cost the government money to
implement. Acquisition and improvement of public facilities
will likely lead to the biggest government expenditures.
Acquisition can also cost government money by removing land
from use in the taxable private sector. The permit system
costs money to implement and enforce; taxation policies
that lead to a reduction in revenues can cost government
money; zoning can cost money by restricting the extent of
industry and other activities which generate tax revenues;
studies to determine the impact of placement of public
facilities can be expensive.]

b. If government wants to encourage business or industry to come
into a coastal area, which options might it choose? Why?

[1) Zoning: Areas can be specifically zoned for industry and
business. Land in low levels of economic use can be rezoned
for more intensive use. For example, land previously zoned
for housing or agriculture might be rezoned for industry.

2)Taxation policies: Government could establish lower tax rates
for businesses which would encourage owners to expand existing opera-
tions or build new ones. Such reductions are often set for a limited
number of years, with regular rates reimposed after developed is well
established.

3)Improvement of public facilities: By building better roads, port
facilities, etc., a community could become more attractive to new
businesses.
4)Placement of public facilities: Government could locate
public facilites in such a way to promote business growth.]

C. If government wants to discourage new business or industry from
an area, which 02tions could it use?

[Zoning ordinances, taxation policies, failure to improve
public facilities, and a strong regulation and permit system
could all discourage new business activity.]

d. If government wants to prohibit all development in certain
areas, what options might it use?

[Acquisition. Zoning ordinances or regulations which prohibit
all development in an area could be ruled unconstitutional
by the courts.]

142

Teacher's Guide

e. If government wanted to reduce environmental problems caused
by existing land uses, which options would it likely use?

[Regulation and permit system is frequently used. Governments
use this option to try to establish strict standards and to
force users to meet these standards. Taxation policies
are sometimes used by levying additional taxes on activities
which produce pollution and other environmental damages.]

f. If governm2nt wants to add addtional public facilities, or
improve existing ones, which options might it choose?

[Acquisition and/or improvement of existing public facilities.]

g. Which of these six options would pose the most enforcement
problems?

[The standards and procedures developed by a regulation and
permit system are often difficult to enforce. Zoning plans
are sometimes hard to carry out because people ask for and
receive an exception, or variance from the zoning ordinance.]

143

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 7: LOCAL INTERESTS VERSUS REGIONAL INTERESTS

TIME: 2 DAYS

PURPOSE

To illustrate management problems arising from the conflict between
local interests and state, regional, or national interests

MATERIALS

In Package

Reading 111-6, "Gotham Times-Picayune Editorial"
Reading 111-7, "Neptune Beach City Council Public Hearing"
Transparency set 111-3-6, "Local-Regional Conflicts"

Additional

Overhead projector

OVERVIEW

Students read an editorial which describes a conflict over the
closing of a small, local beach park to a nearby metropolitan
area. Students give their own opinions about the issue and then
read or listen to a transcript of the public hearing which
explains the reasoning behind the decision. A concluding lecture,
accompanied by transparencies, highlights key factors in local-
regional conflicts and gives students actual examples of this
problem.

Part I: What Should Neptune Beach Do?

1. Explain to the class that the preceeding lessons have shown how
government is.involved in making decisions about the use of
coastal resources. The next four lessons all examine problems
governments have in trying to implement and enforce their resource
management plans.

2. The first part of this lesson includes a transcript of a public
hearing regarding a beach park decision(Reading 111-7). You may
assign this transcript as a reading or as a skit to be presented
in class.

Procedures for using 'this transcript as a reading begin in step 3.
If you plan to do the skit, use the following procedures:

144

Teacher's Guide

a. Ask for student volunteers to perform a skit to be pre-
sented in class. Assign roles and have each student read his or
her part in the script. Explain that the skit will por-
tray a public hearing held by the coastal town of Neptune
Beach to consider the request of its big city neighbor,
Gotham, to open Neptune Beach's recreational facilities to
Gotham residents.

The roles are:

Mr. (or Ms.) Bosley Neptune Beach City Council Chairperson
Mr. (or Ms.) Cabrillo Gotham Planning Dept. representative
Sheila Porter Neptune Beach resident
Euclid Haines Neptune Beach businessman
Chief Rankin Neptune Beach Chief of Police
Sharon Benitski Neptune Beach high school student
Al Escobedo Neptune Beach fishing boat captain
Mr. Yarborough Neptune Beach sewage treatment plant
manager
Cal Ostend Neptune Beach architect

b. Ask participants to meet outside or at the rear of the class-
room to rehearsetheir parts. Encourage them to give
character to their parts, not just read them, and to para-
phrase or ad lib as tbey wish.

C. Assign the rest of the class Reading 111-6, "Gotham Times-
Picayune Editorial." Explain that in many coastal states,
particularly the Atlantic States, beaches are under the
control of the local ccmmunity, not of the state.

After students have read the editorial, ask:

(1) Do you agree or disagree with this editorial? Why?

(2) Is the anger of the newspaper editor justified?

(3) Why do you think the city of Neptune Beach made this
decision?

d. Arrange the classroom as a "hearing room." When skit partici-
pants are ready, give the class this background information:

You are going to see the public hearing which was held
by the Neptune Beach City Council prior to the vote
on the Gotham request for access to the Neptune Beach
Municipal Beach Park. You already know how the Council
voted from the newspaper editorial. Mr.(or Ms.) Bosley
is the Council Chairperson and will now conduct the
hearing.

145
Teacher's Guide

d. Go to step 3 for the remainder of the lesson.

2. If you do not wish to do the skit, begin with these procedures:

a. Assign Reading 111-6, "Gotham Times,Picayune Editorial."
Explain that in many coastal states, particularly the
Atlantic states, beaches are under the control of the
local community, not of the state.

After students have read the editorial, ask:

(1) Do you agree or disagree with this editorial? Why?

(2) Is the anger of the newspaper editorial justified?

(3) Why do you think Neptune Beach made this decision?

b. Assign the Reading 111-7, "Neptune Beach City Council Public
Hearing." Explain that this reading is a transcript of a
public hearing of the Neptune Beach City Council. This
hearing was held to discuss the decision noted in the
newspaper editorial.

C. Continue with step 3 for the remainder of the lesson.

3. Following the "hearing" or the reading, review each of the
arguments given against opening the beach to the general
public. Ask:

a. How valid are the various arguments presented against
opening the beach to Gotham residents?

b. Should the Neptune Beach City Council have voted the
other way? Why?

4. For homework, each student is to write a letter-to-the-editor
responding to the "Beach Decision is Wrong" editorial. The
student may express any reaction to the controversy. The letter
may focus on specifics or respond to the issue in general.
Announce that letters will be posted in the classroom so
everyone can see the range of responses.

Part II: Local-Regional Conflicts

1. Invite any student to read his or her "Letter-to-the-Editor" aloud
to the class. If no one volunteers, call on two or three stu-
dents to read their letters. Ask for reactions. If all the letters
read thus far state basically the same position, ask if anyone
has a different view.

2. State that the Neptune Beach vs. Gotham conflict illustrates a
basic political problem which occurs frequently in coastal areas

146

Teacher's Guide

(as well as in inland areas). This problem is between.local
interests and regional interests, or put another way, as
local interests versus interests of the general public.

3. The following presentation is keyed to Transparencies 111-3-9,
"Local-Regional Conflicts." Suggested comments and questions
accompany each transparency.

4. Transparency 111-3, "Local Government Decisions:"

Commentary: The Gotham versus Neptune Beach controversy was
fictional, but it illustrates two important real facts:

a. Local governments are in a strong position to determine what
uses are made of the shoreline

b. Local governments have good reasons for wanting to keep
the situation this way

Decentrialized decision-making is an important
political fact of life as far as land use regulation is con-
cerned. As a rule, local governments approve specific shoreline
uses under their jurisidction if benefits are to be felt
locally, and costs are to be distributed throughout the region.
Conversely, local governments usually will not approve a use
if the costs are to be borne locally, while the benefits will
be distributed throughout the larger region. In other words,
if the local people have to pay the costs while other people
receive the benefits, the local government will disapprove. If
local residents receive benefits and much or all of the costs are
paid by others, the local government will usually approve.

Questions:

a. Why do conflicts so frequently occur between local govern-
ments or between local governments and state and federal
government?

(Because local interests are often in conflict with regional
interests in specific political decisions. If costs will
be local and benefits regional, or if costs will be regional
and benefits local, there is a basis for conflict.]

b. Are there or have there been examples of "parochial interests"
causing a political conflict in our local area?

5. Transparency 111-4, "Shoreline-State of Maine

Commentary: Clashes between the interests of local governments

147

Teacher's Guide

or communities and the public at large are common. For example,
the state of Maine has just under 3,000 miles of shoreline, but
most of it has been given over to private development. Most of
the 127 local goverment units have encouraged unlimited coastal
development, being eager for increased return on taxable property
and for the jobs that development brings.

.Questions:

a. What positive local effects occur when local governments
permit private ownership and development of beaches?

(The amount of taxation on property increases and provides
local government with increased revenues; jobs are
created in local communities.]

b. What are the costs to the region, or the state of Maine,
in this case?

[As a result of such actions and the pro-development
policies of local governments, only 1.4% of the Maine
coastline is in public. The traditional access of the
public to the rest of the coastal area has been drastically
reduced.' At many public recreation'spots on the coast,
people have to begin lining up by dawn on hot stm:mer
weekends if they want a spot at a public beach.]

6. Transparency 111-5, "San Francisco Bay:"

Commentary: Around San Francisco Bay, local governments frequently
granted permission to business or public agencies to fill in
near-shore waters for various new activities. These included
marina facilities, housing developments, commercial recreation
areas, small public parks, sewage treatment plants, and industrial
developments. Thesel.project's increased local tax revenues,
plus offered increased recreation facilities to residents of the
immediate area.

However,the cumulative effect of such filling activities began
to alter the ecology of the entire San Francisco Bay. In 1963,
a report warned that since a large part of the bay was very
shallow and could easily be filled, the bay might be reduced to
a river. Several citizens groups asked the California State
Legislature to establish an agency which would exert regional
authority over the bay.

Questions:

a. How do you think local governments responded to this idea
of a regional agency? Why?

148
Teacher's Guide

[Many local governments in the bay area opposed the-concept
because it reduced their authority. They did not want to
lose control of a part of their area -a jurisdiction- to
another government office. If the agency was approved,
regional concerns would become more important than local income,
a policy local governments typically oppose.]

b. What do you think happened? Why?

[The disturbing prediction of a "San Francisco River" captured
the public imagination. In 1969 the California Legislature
passed a bill establishing the San Francisco Bay Conser-
vation and Development Commission. This agency was given
bay-wide powers to regulate all changes in existing use in
San Francisco Bay. This seriously restricted the powers of
local communities to make decisions affecting the use of the bay.
In this case, the rules of the game had been changed to favor
and protect the interests of the region and the general public.]

7. Transparency 111-6, "Gerwitz v. City of Long Beach"

Commentary: A conflict similar in some ways to the
fictional Gotham vs. Neptune Beach problem was settled
in 1971 by a California court of law. The city of.
Long Beach, California, passed an ordinance restricting
the use of a municipal beach to local residents only,
although the beach had been used by the public at large
for over 30 years.

Questions:

a. What decision do you think the court should make in
this case? Why?

b. How do you suppose the court actually ruled? Why?

(In Gerwitz vs. City of Long Beach, the court threw
out the ordinance finding that there had been a
complete and irrevocable dedication of the beach
park to the public at large. The court held that
the city had earlier put itself in the position of
holding that property as a public trust; therefore
it could not divert the beach to other uses, sell it,
or restrict public access to it without specific
authorization from the state legislature.

In this case, the court found that the regional
benefits of this area as a park outweighed any local
benefits that might come to Long Beach in restricting
access to the beach.]

149
Teacher's Guide

C. What ruling do you think a court might make in the Gotham-
Neptune Beach conflict?

[It could go either way; there are precedents on both sides.]

8. Collect all letter-to-the-editor homework assignments from students
for display on classroom walls.

150

LOCAL GOVERNMENTS

(1) ARE IN A STRONG POSITION TO DETERMINE SHORELINE USES
(2) WANT TO KEEP THAT STRONG POSITION

LOCAL GOVERNMENTS AND SHORELINE USE DECISIONS

APPROVE RESIST

IF IF

BENEFITS LOCAL COSTS LOCAL

COSTS REGIONAL BENEFITS REGIONAL

T 111-3

151

MAINE--

Penobscot SHORELINE
Bay STATE OF MAINE
10 2578 miles IN PRIVATE OWNERSHIP
34 miles IN PUBLIC OWNERSHIP
Casco
Bay

T 111-4

152

SAN FRANCISCO BAY

BERKELEY
SAN FRANCISCO
BAY

ALCATRAZ

COMEN
GATr

OAU@

SAN FRANCISCO

CANDLtSTICK
PARK
SAN LORENZO
DALY CITY
FRANCISCO
BAY

SAN FRANCISCO
AIRPORT

SAN BRUNO

BURL I NGAME
SAN MATEO

T 111-5

153

CITY OF LONG BEACH PASSES RESIDENTS ONLY ORDINANCE (1971)

COURT DECIDES CASE: GERWITZ VS. CITY OF LONG BEACH (1972)

T 111-6

154

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 8: JURISDICTIONAL PROBLEMS

TIME: 1 DAY

PURPOSE

To illustrate some problems caused by setting jurisdictional
boundaries

MATERIALS

In Package

Transparency 111-7, "Coastal Towns-Before"
Transparency 111-8, "Coastal Towns-After"
Worksheet 111-4, "Beach Park-Before and After"

Additonal

Overhead projector

OVERVIEW

Students view two transparencies which show how the setting of
jurisdictional boundaries led to conflicting uses of a coastal
area. Students then write their own description of a jurisdictional
problem based on "before and after" drawings of a coastal scene.

PROCEDURES

1. Place Transparency 111-7 on the overhead projector. Then read
the following description:.

The city of Rockport, located on the left, was first settled
more than 150 years ago. Good agricultural land, a natural
harbor and a fresh water supply from the river made Rockport
an attractive place to live. The city grew quickly and
Rockport became one of the busiest ports in the state.
In the 20th century, however, the growth of Rockport leveled
off. The harbor was not deep enough for modern cargo ships
and the port facilites were in disrepair. The people of
Rockport decided that if their city were to prosper, they
would have to expand their port facilities to attract
industry and use a large portion of their land for industrial
purposes.

The town of Carson, although only two miles from Rockport, is

155
Teacher's Guide

in a different state. Carson, on the right, is a suburban,
residential community. Unlike Rockport, Carson is a relatively
young town. It is in a period of rapid growth. Property
0
values have risen as the beach facilities, clean air, and
Itcountry living" offered by Carson have attracted many people to
the area. The open space zoning along the shore has kept the beach
facilities open for the enjoyment of all, and the dunes provide an
effective windbreak for the town. Most citizens of Carson feel
that the town represents a fine example of careful planning.

2. Place Transparency 111-8 on the overhead projector. Then ask two
questions:

a. What hashappened?

[The two communities have expanded toward each other. There
is heavy industry on one side of the jurisdiction line next
to a residential area on the other side.]

b. Where is the boundary or jurisdiction line between the
two states?

[The river.]

c. What does "jurisdiction" mean?

[Jurisdiction refers to the legal area of control. Within this
area, a governmental unit, such as a city, state or regulatory
agency has control over what happens. The area of jurisdiction
for a governmental unit is usually more restricted than its area
of interests.]

d. What effects do you think the Rockport development
mi2ht have upon the environment of the Carson area?

[The breakwate r and enlarged port facilities could disrupt
the estuary; the estuary and dune areas are seriously
disrupted by industrial development; outfalls could pollute
the river.]

Explain that jurisdictional boundaries often do not respect eco-
logical boundaries. Developments in one part of an ecosystem, such
as the dune area, can cause problems in the undeveloped part.

e. How could this Rockport-Carson situation have happened?

[The people of Rockport wanted one type of community, while the
people of Carson wanted another; the people of Carson had no
control over what the people of Rockport did, and vice-versa.
Carson's area of interest extended beyond its jurisdiction, but
the boundary line restricted what Carson could do.]

f. Will life in Carson be affected by the actions of Rockport? How?

156

Teacher's Guide

3. Divide the class into groups of three. Distribute to each group
Worksheet 111-4. Explain that each group is to consider the
drawings and to develop a plausible story to answer the following:

a. What is_happening in the two diagrams?

b. How or why could it have happened?

c. What kinds of problems might result from the effects of what
happened?

d. What steps might have been taken to avoid the kinds of problems
which were created?

Ask each group to select a spokesperson to lead the activity, and
explain their answers to the class.

After the groups have completed the assignment, call on several to
explain their story.

1
4. Note that jurisdiction problems can also occur when one governmental
unit tries to expand its authority into areas where another govern-
mental unit has control.

Jurisdiction problems also result when two or more governmental
units both claim to have authority or jurisdiction over the same
area or problems, or when no governmental unit claims jurisdiction
over an area. This latter problem sometimes happens when a major
problem occurs and no one wants to take responsibility. Ask:

a. Are there any examples of these types of jurisdiction problems
in your coastal area?

5. As a final discussion question, ask:

a. Uhat steps do you think could be taken to manage the kinds of
problems that often result from jurisdictional boundaries?

(Cooperation between adjoining jurisdictions; regional rather
CD
than jurisdictional planning; placing entire ecosystems, such
0
as estuaries, under one jurisdiction; making sure jurisdictional
C@
boundaries are clearly@drawn and responsibilities clearly designated.]

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159

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 9: REGULATIONS AND PERMITS: CAN WE AFFORD THEM?

TIME: 1 DAY

PURPOSE

To introduce students to some prob lems created by the regulation
process

MATERIALS

In Package

Reading 111-8, "Editorial Page"
(includes "A Message from the Editor,"
"There Must Be a Better Way," and "Seven Replies")
OVERVIEW

Students read a letter-to-the-editor from a housing developer
complaining about too much government interference with his
building plans. Students are asked to consider who is to blame
for this problem. They then read seven replies to the original
letter and discuss some advantages and disadvantages of govern-
ment regulation.

PROCEDURE

1. Have students read the "Message from the Editor" and the letter,
"There Must Be A Better Way," in Reading 111-8.

2. After students have finished the letter, ask:

a. Who is Mr. Eagerton?

(A builder, a member of the Association of Concerned
Developers.]

b. What is his project?

[Seaside Housing Project.]

C. What are Mr. Eagerton's biagest complaints?

[Answers will likely include: 1) too many agencies involved
in the permit process; 2) too many delays in issuing permits; 3) too
much cost involved; 4) too many levels of government involved.]

d. Suppose you had planned to buy a house in the Seaside Project.

161

Teacher's Guide

Now your costs are much higher. Whom do you blame for
this situation? Why?

3. Have students read the seven responses to Mr. Eagerton's
letter. After they finish, ask several students to
summarize the main points of each letter.

Some of the letters argue that the permit process is useful.
Ask:

a. Why do the letters say permits and agency review are
necessary?

[Answers will likely include:

(1) To look at the long-term environmental impacts of
the project
(2) To prevent local decision-makers from having total
control
(3) To protect the shoreline environment
(4) To meet minimum standards for safety and health
(5) To have experts review projects]

Several points were biought out against the permit process. Ask:

b. What problems concerning permit andagency review do the letters
complain about?

[Answers will likely include:

(1) Too time consuming, which increases the cost of development
(2) Outsiders making decisions that local people can make
better
(3) Nobody really takes a broad perspective
(4) Each agency has too narrow a view
(5) Too many levels of government are involved
(6) Excessive paper work

4. Ask students to now reconsider their earlier answer to the
question:

Who or what produced the higher costs? Why?

5. Have students discuss whether the permit system is worthwhile,
and if so, what kinds of permits are reasonable. Ask:

a. What kinds of permits do you think are reasonable?

161

Teacher's Guide

b. What characteristics would a reasonable permit have?

C. What could be done to solve some of the problems mentioned
in the letters?

[Many governments have suggested the following reforms:

(1) Establish strict time limits that agencies must meet
(2) Consolidate the review process so that two or more
agencies work together to study requests and issue
permits]

162
UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 10: THE TAKING ISSUE: LEGAL LIMITS TO REGULATION

TIME : 2-3 DAYS

PURPOSE

To define and illustrate the concepts of eminent domain and
police power

To review government's rationale for controlling land use

To compare and contrast government's ability to control land
use through the process of eminent domain and the police power

MATERIALS

In Package

Worksheet 111-5, "Shoreline Plans"
Worksheet 111-6, "Proposed Shoreline Regulations"
Reading 111-9, "Coastal Land Use and The Taking Issue"
Worksheet 111-7, "The Balancing Process"
Transparency 111-9, "The Balancing Process"
Reading III-10, "Dooley v. Town Plan and Zone Commission of Town
of Fairfield"
Reading III-11, "McCarty v. City of Manhattan Beach"
Reading 111-12, "Morris County Land Company v. Parsippany-Troy
Hills Township"
Reading 111-13, "Just v. Marinette County

Additonal

Overhead projector
Grease pencil

OVERVIEW

In Parts I and II, students draw up development plans for a coastal land
holding, and then are confronted by government's use of
eminent domain and the police power. Students consider whether
various government regulations go too far in controlling their
privately-owned land. In Part III, students apply their under-
standing of government land-use regulation by comparing their
judgments to actual rulings in several court cases.

PROCEDURE

Part I: Eminent Domain

163

Teacher's Guide

1. Pass out Worksheet 111-5, "Shoreline Plans." Students
may work individually or in pairs.

Have students imagine they have just bought the sizeable piece
of coastal land described on their worksheet. They can
afford to develop the land in any way they choose.

Ideas might include a home, business, shopping center, recreation
area, ranch, resort hotel--anything. Once they have decided
how they want to develop their coastal land . students should
sketch or write a brief description at the bottom of the page
explaining their ideas.

2. lqhen students have finished, call on several to explain briefly
their plans to the class.

3. Announce that you have just received news of a state recreation
plan that will likely affect their personal development plans.
The state has decided to build a new park in an area which includes
their land. Consequently, the students must sell their land
to the state. The state will purchase the land for the fair
market value. Ask:

a. Does the government have the right to take away your land?

[Accept any answer.]

b. What if you didE't want to sell? Could you refuse? What
about private property rights?

IThe government does have the power to take your land. This
power has repeatedly been held by nearly all governments as
,an inherent power, one necessary for effective government.
In the United States, the federal government, the states,
and the local municipalities(when authorized by the state)
have the power@to take-land.]

4. Tell the class that the U.S. Constitution places certain limits
on the government's power to take private property. The Fifth
Ammendment to the Constitution states:

No person... shall be deprived of life, liberty, or prop-
erty, without due process of law; nor shall private
property be taken for public use without just compensation.

Ask:

What does this clause guarantee? What could happen if it were
not written into the Constitution?

[It guarantees that private property can't be taken from the

164
Teacher's Guide

owner unless it is for public use and the owner is fairly compensated.]

5. Write four key phrases on the board: "private property," "due process,"
"public use," and "just compensation." Ask students if they can
explain what each of these means.

a. Private Property--This refers to a collection of rights, in-
cluding the right to transfer title and to do with one's own
object or land in any manner not prohibited by law. Private
property does not refer directly to the land or to an object,
but to certain rights of use. The term property is often used
in conversation to refer to real estate or land. This use can
lead to confusion when the topic of discussion is property rights.
For clarity the word property is used throughout this lesson
to mean rights.

b. Due Process--This means the government must follow established legal
procedures if it wishes to take your land or other property.

C. Public Use--This means any use of land or other property from which
the entire community can freely benefit. Two examples are the
building of a highway or a defense installation. In the coastai *
resources simulation game, the Navy took over three plots of laftd.
The group that owned these plots had to sell this land because the
Navy's use of the land was for public benefit.

d. Just Compensation--This means a fair price must be paid for the land
or other property. If the government takes your property for
public use, it must pay you the fair market value. Sometimes the
owner appraises the property at a higher value than the govern-
ment. If this happens, the courts may be called upon to determine
what amounts to just compensation.

Part II: The Police Power and Land

1. The "Management Tools and Strategies" lesson explained some reasons why
the process of acquisition-of land, through the power of eminent domain
is not used every time that the government wants to control land use.
Ask:

Do you recall why the powerof eminent domain is not used more often
by government?

[The primary reason is the expense involved; further, the process is
time consuming and not popular with land owners. Also, there is the
traditional belief that a goodly share of things in this country
should be privately owned and operated.]
Explain that for many reasons, it is often impractical for the state to
purchase land. But, it still wants to exercise some control over how
the land is used. Government can do this by passing regulations or
ordinances which encourage or prevent certain kinds of development in
coastal areas. The state has (next page)

166
Teacher's Guide

.Explain that this reading goes into more detail on the subject
and will provide them information to help decide when a regulation
unreasonable interferes with their rights to use private land the
way they wish.

7. Review the reading by asking:

a. Which two methods of controlling land use does this reading
discuss?

(Eminent domain and police power.]

b. Explain the difference between these two government powers.

(Eminent domain refers to the power of the state to take
property for public use. Police power refers to the power of
government to legislate in the public interest, and to protect
the public welfare. Mechanisms for controlling land use without
aquiring ownership draw their authority from the police power.
These include zoning, the permit system, agency, and legislative
regulations, codes, ordinances, etc.]

C. What is the "taking issue?"

[The question of how far government can go in regulating land.
How far does the police power of the state go before a "taking"
of the land occurs?]

d. How has the extent of the police power changed over the years?

[The extent of the police power is expanding, although the
courts have not always agreed on the limits of this expansion.]

e. Do you agree that the state should have the right to regulate
land use? .

F. Do you think there should be limits on the power to regulate the
uses of private property? Why?

Part III: The Balancing Process

1. Briefly summarize the "taking issue:"

Land use can be controlled to some extent, but if the regulation
goes too far, it will be considered a taking.

2. Explain that this is the guiding principle by which the courts decide
taking issues. But what is meant by "too far" is not always agreed
upon by the court. Just as the class probably had different opinions
about which regulations were "reasonable" and "unreasonable so do the
courts reach different conclusions about the legality of certain regulations

165

Teacher's Guide

the right to do this under what is called "the police power" of
the state. In order to legally use the police power, the
government must demonstrate that the regulation is protecting
the public health, safety,_or welfare.

2. Have students take out their land development plans again. Also,
pass out Worksheet 111-6, "Proposed Shoreline Regulations." Explain
that the government still wants to control development in this
area, but for several reasons, they have decided not to purchase
the land in order to do it. Instead, the state is considering a
new series of regulations which will help control coastal development.

3. Read each regulation. Ask students to consider what impact the
regulation may have on their plans and whether they think the
regulation is reasonable or unreasonable. Students can judge
each regulation by circling the appropriate choice on their worksheets.

4. After you have finished reading all the regulations, poll students
about each one. Review each, asking students to raise their hands
if they circled reasonable, and then if they circled unreasonable.
Note at what point a majority of students raise their hands indi-
cating an unreasonable regulation. Ask:

a. At which point did the regulations seriously begin to affect
your development plans?

b. Do any of the regulations leave you without any reasonable
use of your land?

C. Will any of these regulations make your land worth less
money9

[Regulations 4 and 5 particularly restrict uses of the land
and thereby diminish land values.]

d. Are any of these regulations violating the Fifth Amendment
by taking property without just compensation?

[Regulations 4 and 5 might be considered illegal.]

5. Explain to the class that the term "taking" in the Fifth Amendment
clause may mean more than just physically taking land from an owner.
It also means that the state cannot take away all your reasonable
uses of the land through over-regulation. The state cannot pass just
any regulation. If a regulation goes too far, and takes away too
many of your reasonable uses of the land, the regulation may be un-
constitutional.

6. Assign Reading 111-9, "Coastal Land Use and The Taking Issue."

167
Teacher's Guide

3. Pass out Worksheet 111-7, "The Balancing Process." Display the
"Balancing Process" transparency, 111-9.

Explain that this transparency illustrates the balancing
process: the court weighs the societal benefits of a particular
regulation against the degree to which it violates private
property rights. In order to reach a decision, the court asks
certain questions. Some of the most important ones are:

a. Does the regulation significantly reduce the value of the
land? If the loss is high, the regulation may be a taking.

b. Does the regulation leave the owner with any reasonable
use of the land? If there are few remaining uses of the
land, the regulation may be a taking.

C. Is the regulation seeking to prevent a hazard to the public
health, safety, or general welfare? If so, a regulation
may be considered legitimate.

d. Is the regulation intentionally seeking to use private land
to benefit the public? If yes, the power of eminent domain
rather than the police power should likely be used. A
regulation which intentionally provides beneficial goods
or services will probably be considered a taking.

Generally, a regulation which strongly supports the public
health, safety or welfare and has low impact on private property
rights will be considered legitimate.

A regulation which supports the public health, safety or welfare
but has a high impact on private property rights is likely to
be considered a taking.

4. Have students apply the balancing process to the first proposed
shoreline regulation they earlier rated (regulation 1 on Worksheet
111-6).

Students should consider each of the four concerns on the
balancing scale with regard to the regulation requiring environ-
mental impact studies. Place checkmarks on the scale in the
appropriate locations as the class responds. Ask:

a. How much damage to property value is caused by the regulation?

b. How many remaining reasonable uses of the land does the
regulation allow?

C. Is the regulation trying to prevent a hazard to the public
health, safety or welfare?

168

Teacher's Guide

d. Is the regulation intentionally providing the public with
a good or service?(beyond those reasons included in the
public health, safety or welfare).

The following conclusion is likely to be reached:

Regulation 1 would tend to score high on societal benefits
and low on loss of private property rights. It could
bring benefits to the public health, safety and welfare,
and is not likely to cause serious loss of property value.
It would be considered legitimate; in fact, requirement of
environmental impact studies is a common procedure in most cases.

5. Students should now apply the balancing process to the remaining
regulations. After they have finished, ask several students how
and why they rated each regulation. Although these are
fictious regulations, it is likely the court would rule in the
following ways:

a. Regulation 2--Probably legitimate, unless the restriction
on removing vegetation made the property
nearly worthless.

b. Regulation 3--Probably legitimate; zoning is considered a
reasonable exercise of the police power as long
as it is not excessively restrictive. This
ruling would still leave some reasonable
uses of the land.

C. Regulation 4--Probably a taking; since the permitted uses
are all benefits for the general public, it
is likely the government should have used
the power of eminent domain.

d. Regulation 5--Probably a taking; this leaves the owner with
with no reasonable uses of the land, and the
damage toeconomic value is likely to be high.

6. Explain that the class will now apply the balancing process to
actual court cases. Assign Reading III-10, "Dooley v. Town Plan
and Zone Commission of Town of Fairfield." After students have
read the case, ask one student to summarize the facts of the case for
the class.

Place the "Balancing Process" transparency on the overhead. Then
lead the class in discussion to determine if a taking has
occurred. Place checkmarks in the appropriate locations as the
class responds to each question.

169
Teacher's Guide

7. When the chart is complete, call for an over-all decision. Encourage
debate among students if conflicting opinions are held. Then,
give the class the actual decision reached in the case:

The court ruled the zoning regulation a taking, for the
following reasons:

a. Since uses of the land were restricted to largely
public uses, the town of Fairfield should have
used the power of eminent domain to achieve
these objectives.

b. The regulation caused Dooley to suffer a 75%
loss in property value.

c. Most of Dooley's land was above the area subject
to flooding.

Ask the class to compare the court's decision with their own
findings:

Did the court weigh the factors in the case as the class did?

8. Assign Reading III-11,"'IRcCarthy v. City of Manhattan Beach."
Review and judge this case as you did with the Dooley case, again
using the "Balancing Process" transparency.

After the class decision is reached, give them the court's
finding:

The court ruled that the zoning regulation was alegitimate
exercise of the police power, and not a taking. The court found:

a. The regulation would prevent a hazard to the public
health and safety.

b. Single-family dwellings were not a reasonable use of the
land because of periodical flooding.

C. Allowing McCarthy to charge user fees did permit a reasonable
use of the land.

Ask the class to compare the court's decision with their own
finding.

)bu may want to give the class this final conclusion to the case:

McCarthy's beach land was later condemned and purchased by
by the state through the process of eminent domain. The
land was appraised and compensation paid to McCarthy on the
land's value as a beach site, and not as a residential home site.

170

Teacher's Guide

9. Arrange the class into groups of three or four students. Explain
that each group is to judge a case by using the balancing
process. Each group should elect a "chief judge" to lead the
discussion and to report the group's decision.

Assign Reading 111-12, "Morris County Land Company v. Parsippany-
Troy Hills Township" to half of the groups, and Reading 111-13,
"Just v. Marinette County' to the other half.

10. After allowing a reasonable amount of time to make their judge-
ments, begin discussing group findings. Summarize the facts in
the Morris case. Then ask the "chief judge" from each group that
studied the Morris case

a. What did your group decide?

b. Why did it reach this decision?

Encourage some debate among groups if findings or reasoning differs.

Repeat this procedure with the groups studying the Just case.

11. Compare the groups' decisions with the actual decision in the two
cases:

Morris County Land Improvement Company v. Parsippany-Troy Hills
Township

The court rejected this ordinance, on the grounds that the main
purpose of enacting the regulation was for the purpose of retain-
ing the meadows in their natural state for a public benefit.
The remaining permitted uses were public or quasi-public. There-
fore, the regulation constituted a "taking" of the property
of the Morris County Land Company.

Just v. Marinette County

The court decided that the wetlands restrictions were a legitimate
exercise of state police power. While the court agreed that the
restrictions-depreciated the value of the Justs' property, it
determined that the depreciation was not based upon the use of
the land in its natural state but upon what the value of the
land would be if it were altered. In its natural state, the land
had little commercial value. Therefore, the Justs did not suffer
any loss in property value since the land was still in its natural
state. While loss of value is a consideration in determining
whether a taking has occurred, the court held that changing the
character of the land did not outweigh the expense of damaging the
public's right to the land in its natural state.

171
Teacher's Guide

12. Have the class compare the twodecisions. Even though the case
facts were similar, the decisions were not. This is because
the courts interpreted the question of property damage much
differently. In Just, the court ruled that judgment about loss
of property value must be made on land in its present condition,
not after it has been altered in some way. Many environmentalists
found this ruling supportive of efforts to protect wetland
areas. However, other courts have not fully accepted the Just
decision. Some rulings have followed this decision, and
others have ignored it.

THE BALANCING PROCESS

PRIVATE PROPERTY RIGHTS vs. THE PUBLIC WELFARE

LOW HIGH
DAMAGE TO
ECONOMIC VALUE

MANY LOW
REMAINING
USES OF LAND

CLEARLY NOT
NEEDED HAZARD NEEDED
PREVENTION

INCIDENTAL INTENTIONAL
PUBLIC GOOD OR
SERVICE PROVIDED

T 111-9

173

UNIT 3: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION
Is LESSON 11:, MANAGING A COASTAL COUNTY

TIME: 2-3 DAYS

PURPOSE

To combine major ideas from Unit 3 into one summary activity

To apply an understanding of resource management strategies to developing
a management plan

To see how various problems in the resource management process can affect
a management plan

MATERIALS

In Package

Worksheet 111-8, "McCord County" (includes "Overview" "Land Use Map"
and "Planning Assignment".)

OVERVIEW

Students are presented with a description of a fictional coastal county.
They then prepare a county plan using their knowledge of resource management
strategies. Students then explain how various political and management
problems could affect their plans.

PROCEDURE

1. Explain to students that in this activity, they will apply what they have
learned about management tools and strategies to guide development in
coastal regions. This lesson acts as a summary of Unit 3.

2. Give students the following overview:

officials of McCord County (a fictional area) are trying to
determine the future of their coastal area. You are to act
as members of a planning office and prepare a plan for McCord
County.

McCord County officials agree that the county must have a high
standard of living, and that the area must be a pleasant and
attractive place. But they disagree on how this should be done.
Some officials want to see the county attract more industry.
This will bring in more jobs for the area, plus lead to general
economic growth.

Other officials fear the pollution and unsightly conditions that
industry could bring. These officials want to see more tourism

174
Teacher's Guide

in the area. New hotels, resorts, and condominiums could bring
in thousands of people each tourist season which would lead to
more jobs for county citizens.

County officials have decided to ask for two plans reflecting these
different ideas for future development.

3. Divide the class into two groups. Designate one the "industry" group and
the other the "tourism" group. Each group is to prepare a plan which
reflects its orientation. Within these two large groups, students may
work in pairs or alone.

4. Have students read the McCord County Worksheet (111-8). Explain that
there are three major sections to the worksheet:

a. A description and map of McCord County. You should read and study
the map for background information. This will provide-you with
suggestions on how to develop your plan. You should use the maps to
show where new developments will take place.

b. Seven possible goals for the future of McCord County. You should
read all seven goals and decide which are the most important. The
"industry" planning group will probably rank these goals differently
than will the "tourism" group.

C. Planning sheet. Each of the seven possible goals is listed, with
room to explain bow the goals can be achieved. You will use the
six management tools we discussed in previous lessons to achieve
the goals. You may decide that some of the goals are unnecessary
or unimportant, and you do not want to achieve them. If this is the case,
explain why they are not worth accomplishing.

Give students sufficient time to complete this exercise; it will probably
take most of one period to finish. You may want to go over the general
description and the map with the class.

5. Following are suggested answers as to which management tools to use to
achieve the seven county goals. These are not the only responses students
might generate. Other defensible options for achieving the various goals
are possible. Any evaluation of answers will need to consider the appro-
priateness of action suggested, and the overall logic of their plan.

Goal 1: MAINTAIN AND EXPAND RECREATIONAL ACCESS AND RECREATIONAL
FACILITIES

How to achieve this: Acquisition and improvement of public
facilities are the most likely choices.
The industry group may decide not to do
this; if so, they should explain that
new park facilities do not seem important
in attracting new industry.

175
Teacher's Guide

Goal 2: PRESERVE AGRICULTURAL LAND AND TIMBER LAND

How to achieve this: Zoning will keep lands in agricultural
and open space categories. The groups
may decide not to do this if so, they
should explain that these lands are needed
for other activities.

Goal 3: ATTRACT NEW INDUSTRY

How to achieve this: Rezone areas for industrial use; offer
taxation policies which will favor in-
dustry; improve public facilities such
as harbors and bridges.
Goal 4: PROVIDE NEW RESIDENTIAL AREAS

How to achieve this: Rezone areas for residential use: be
sure groups have done this if these plans
will lead to a growth in population.

Goal 5: COASTAL LEVELS OF POLLUTION

How to achieve this: Regulation and permit systems to require
better treatment of waste products will
likely accomplish this goal. The tourist
group should emphasize this more than the
industry group.

Goal 6: I@TROVE PUBLIC FACILITIES AND SERVICES (OTHER THAN RECREATION)

How to achieve this: The management tool most likely to be
used is improvement of public facilities.
Acquisition and placement of public
facilities may also be used. Bridge,
highway and harbor improvements, plus
new schools, and sewage treatment facilities
will be needed if plans call for an in-
crease in housing or an increase in tourism
or industry.

Coal 7: KEEP COUNTY TAX RATES AS L014 AS POSSIBLE

How to achieve this: Tax revenues will likely increase as
tourism and industry are brought into the
community. New industry, in particular,
will lead to higher tax revenues. Also,
the county could sell its marsh lands for
extra revenue. In general, re-zoning land
from agricultural and timber to residential-
commercial, and industrial uses should in-
crease revenues.

6. After students have completed the assignment, ask students to review their
plans to make sure they have considered the consequences of their various
proposals:.

176
Teacher's Guide

a. If your plan encourages new business, do you also plan to improve
roads, harbors, parks, etc?

b. If your plan is likely to lead to an increase in population, do you
also plan to add public facilities, such as schools? Do you plan
for additional housing?

C. If your plan calls for improvements in public facilities, does your
plan also indicate where additional tax dollars for these improvements
will come from?

d. What impact is your plan likely to have on the environment?

e. Does your plan allow the development of all land between Ocean View
Road and the shore? If so, how will this affect this "scenic" drive?

7. After students have completed the planning assignment worksheet and filled
in the McCord County map, call for volunteers to briefly describe their
plans. (To assist students in their presentations you could make a trans-
parency of the original Land Use Map or draw a reasonable facsimile on the
board).

Two or three plans from the tourist group should be presented. Students
quickly show where new development will occur and why these locations have
been chosen. From these descriptions you can then make a few comments about
the kinds of development ideas the tourist group has presented.

Repeat this procedure for the industry group. Then ask the class:

a. Generally, how do the plans disagree?

b. Are there areas of agreement?

C. Do you think you would like to live in this area as it is described
in the "tourism plan?" In the "industry plan?"

d. Could both tourism and industry be brought into the county? How?

8. Explain that in the real world, a county would be affected by outside or
unplanned events which could alter or upset their plans. The kinds of
management problems studied in this Unit (local vs. regional conflicts,
the "taking issue", etc.) can occur at any time.

Assume the county has accepted the tourism plan. Future growth in McCord
County will try to follow their ideas. Ask students in the tourism group
how the following events could alter their plans:

a. McCurdy County, just up the Olman River from McCord County, announced
this morning that a huge new industrial facility will be located on
the Olman River. The company has a history of pollution problems.

Teacher's Guide 177

(This could cause pollution problems for McCord County, and might
seriously affect the tourism plan. Even though McCord County might
have strict pollution laws, they would be ineffective in stopping
pollution from another county.)

b. A McCord County industrial firm announced yesterday that it will sue
McCord County if its new pollution regulations are passed. Company
0
officials say the regulations are so unreasonable that they take away
their right to effectively operate their business.

(If the court rules in favor of industry it could hurt McCord County's
attempt to regulate pollution. This might encourage other businesses
0
to locate there, and as a result, hurt the tourism plan.)

Now assume that McCord County has adopted the industry plan. Future growth
in the area will follow the ideas in this proposal. Ask students in the
industry group to predict how the following events could alter their in-
dustry plans:

c. The state Department of Tourism announced yesterday that it was going
to purchase all agricultural lands between the Olman River and the
harbor. The lands will be kept as open space so that the view of thEi
ocean from the "scenic highway" can be preserved.

(This is likely to hurt industry which saw this site as a prime location
for new facilities. This might have been anticipated if the county and
state had cooperated in their planning efforts.)

d. The federal government in Washington, D.C. announced today that it
would purchase the marsh areas in McCord County as a wildlife sanctuary.
Officials said that this sanctuary was needed to help preserve one of
the few remaining undeveloped marshes in this part of the country.

(This action might seriously affect expansion of harbor facilities, and
would slow industry's move into McCord County.)

9. Collect students' maps and worksheets. After you have evaluated them, place
the maps on the bulletin board so the class can compare the different planning
schemes.

178

UNIT 4: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 1: THE EMERGENCE OF RESOURCE MANAGEMENT: FLORIDA
LESSON 2: THE ECONOMY AND THE ENVIRONMENT: SOUTH CAROLINA
LESSON 3: ENERGY AND THE ENVIRONMENT: THE NORTHEAST ATLANTIC

LESSON 4: PLANNING AND MANAGEMENT CONFLICTS: BOSTON HARBOR
LEssoN 5: SHORELINE MANAGEMENT: NATIONAL LEGISLATION
LESSON 6: SHORELINE MANAGEMENT: STATE INTIATIVES
LESSON 7: COASTAL FUTURES: A PERSONAL CASE STUDY

179

Teacher's Guide

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 1: THE EMERGENCE OF RESOURCE MANAGEMENT: FLORIDA

TIME: 2 DAYS

PURPOSE

To examine the growth of resource management practices of a
coastal region.

MATERIALS

In Package

Worksheet IV-1, "Outline Map of Florida"
Transparency IV-1, "Coastal Problem Map of Florida"
Reading IV-1, "Florida"
Worksheet IV-2, "Florida Data Chart"

OVERVIEW

Students investigate the natural resources of Florida and
speculate about possible environmental problems on the Atlantic
and Gulf coasts. They then read a history of Florida's coastal
development and complete a data chart which highlights key infor-
mation. Summary questions reflect on how and why government
involvement in developing coastal resources evolved.

PROCEDURE

Part 1: Florida's Natural Resources

1. Hand out Worksheet IV-1, "Outline Map of Florida", to each
student. Ask students to investigate the natural resources of
Florida, f.illing in their worksheets the information requested.
Students will need to use encyclopedias or other reference books
to complete the worksheet. Indicate that this will be the first
step in analyzing Florida as a case study of an area which has
experienced several problems in coastal resource use and resource
management.

2. After students finish their worksheets call on various students,
asking each to report briefly on one research item. Begin with
I'weather" and conclude with "State Capital and major cities."
Have students fill in any-missing information on their maps as
discussion proceeds. (Draw a large outline map of Florida on

180

Teacher's Guide

the chalkboard and have each student reporting place any geo-
graphical information on this map.) Then ask:

a. How might these natural resources of Florida be used (or,
how were they used)?

(Timber for paper mills and lumber; weather/long coastline
for tourism and missile launching complex; etc.]

b. What would be the likely impacts of large population
increase on Florida's natural resources?

[Students should predict that many resources would be used
extensively and that environmental problems would likely
result.]

3. Show transparency IV-1, "Coastal Problem Map of Florida" and
review types of adverse impact which in fact,did occur.

Part 2: The History of Florida's Coastal Development

1. Assign the first section of Reading IV-1, "Florida: 1821-1900",
and hand out Worksheet IV-2, the "Florida Data Chart".

Students should analyze why the problems identified on the
"Coastal Problem Map" occurred as they read the first section.
Also ask students to think about the information asked for on
the Data Chart.

2. As students are reading, draw a facsimile of the Data Chart on
the chalkboard. Call on several students to come up to the
board and write in the information asked for. Review and fill
in any missing information, if necessary.

Make a transparency of the teacher's completed Data Chart and
place on overhead projector at this time, covering answers.
Call on students to report on information asked for on Data
Chart, uncovering answers on completed Data Chart as disucssion
proceeds.

3. Pass out Part Two of the student reading (Florida: 1900-1945).'
Ask students to read and then fill in the "1900-1945" section
of their Data Charts.

4. Review students' Data Chart responses to the "Florida: 1900-194-5"
reading. Call on several students for answers, or have several
students write answers on chalkboard again, as with section
one of the reading.

181

Teacher's Guide

5. Ask students to describe major changes or continuities between
the first development period (1820-1900) and the second (1900-
1945). Then ask:

a. What factors do you see as responsible for the continuing
rapid growth and development of Florida?

[Students should refer to: (1) increased population:
(2) wider economic opportunities; (3) government policies
favoring development; and (4) few restrictions on resource
use.]

b. Do you think the patterns of growth you have been observing
will continue in the 1940 to present time period?

Ask students to make some predictions as to what they think
will take place in the 1945-Present time period and to record
these in the first column of the "1945-Present" time period on
their Data Charts.

6. Pass out Part Three of the student reading ("Florida: 1945-
Present). Ask students to read and then complete their Data
Charts, filling in the second column of the "1945-Present"
time period.

7. Review student responses to the Data Chart for the "1945-Present"
section.

8. Have students review their Data Charts in order to summarize
this reading. Ask:

a. How would you briefly describe or characterize Florida's
coastal resource use in each of the three time periods?

[Students should suggest something like the following:

1821-1900t Complete freedom to use resources as desired,
strong encouragement by government of maximum
exploitation of natural environment

1900-1945 Development continues; government agencies
guide and regulate resource use, but gener-
0
ally ineffective or unwilling to seriously
control resource exploitation

1945-Present: Environmental groups become more popular;
new and stronger environmental protection
laws are passed; new agencies are created to
contend development-]

182
Teacher's Guide

b. What 1.4tle would you suggest for each section of the
reading?

9. Ask students to make some jud.-ments about Florida politics.
Ask:

a. Which management tools did Florida's state and local
governments use to control or influence coastal resources?

b. Were these tools effective or ineffective? Whv?

C. Do you approve of the way Florida's coastal resources
were developed? Was the rapid development of Florida's
coast important?

d. How important is it to now place environmental protection
ahead of further growth and economic development?

e. Do you think the government is acting properly now? Should
stronger measures be taken or has restriction and regulation
already gone too far?

10. For a possible homework assignment - or a class debate - divide
students into two groups, one pro-environment and one pro-
development. It could be argued that the state and local
governments who backed favorable growth policies have ruined
many of Florida's coastal resources. On the other hand, it could
be argued that the environmental groups who seek to slow or halt
much coastal development will eventually cause a setback in
Florida's economy. Ask each group to write a report or prepare
a short statement.

COASTAL PROBLEM MAP OF FLORIDA

2, 3, 4,
7- 5, 6

2, 3,

1 2,
31 6 2@\

2, 31
4, 5, 6,
2, 3, 4, 7, 3
Key 7, 8

Loss of Historical and Cultural Resources

Loss of Scenic and Aesthetic Areas

Pollution of Coastal Waters

Shore Erosion
(3) Competing Activities in Coastal Zone
@ Conflict between water dependent- and
non-water dependent uses
00
Destruction of Wetlands

Loss of Beach Access

T TV-1

Worksheet IV-2 184
Answer Key
is

FLORIDA DATA CHART

POPULATION LEVEL 1837 48,223
AND GROWTH RATE 1900 500,000 (1000% increase)

RESOURCES USED AGRICULTURAL LANDS -- COTTON AND ORANGES
(HOW AND BY WHOM?) (IMMIGRANT SOUTHERN COTTON PLANTERS,
CITRUS FARMERS)

APALACHIOCOLA HARBOR -- SHIPPING
TIMBERLANDS -- LUMBER OPERATIONS
COASTAL LANDS -- FOR RAILROAD LINES, RESIDENCES,
CITIES, CANALS

SOCIAL/POLITICAL INDIANS RELOCATED TO RESERVATION
DEVELOPMENTS CARIBBEAN PIRATES ELIMINATED
RAILROAD INTERESTS AND CERTAIN INDIVIDUALS
AMASS GREAT POWER
POLITICAL DISSATISFACTION AMONG GENERAL PUBLIC
OVER THIS SITUATION

ENVIRONMENTAL "RECLXNIATION" OF SOME SWAMP LANDS
IMPACTS BEST AGRICULTURAL LANDS USED FOR COTTON AND
ORANGES
TIMBERLANDS CUT

(Over-all: NO SERIOUS ADVERSE IMPACT YET,
POPULATION STILL SMALL A.ND CONCEN-
TRATED IN EASILY HABITABLE AREAS)

Worksheet IV-2
Answer Key 185

FLORIDA DATA CHART

POPULATION LEVEL 1900 SO0,000
AND GROWTH RATE 1940 1,897,414 (400% increase)

RESOURCES USED COASTLINE AREAS -- LANDFILL (FOR HOUSING,
(HOW AND BY WHOM?) COMMERCE, HOTELS, MARINAS, AND INDUSTRY)
EVERGLADES -- DRAINED (FOR AGRICULTURAL USE,
EG. SUGAR CANE, VEGETABLES, BEETS)

(PLUS CONTINUATION OF PREVIOUS USES)

SOCIAL/POLITICAL LIBERAL REFORM GOVERNOR ELECTED IN 1901
DEVELOPMENTS "PROGESSIVE" POLITICAL PROGRAM PUSHED (AGAINST
"SPECIAL INTERESTS")

E\AIIRONNIENTAL MUCH OF EVERGLADES DRAINED
IMPACTS EVERGLADES FLOODING IN 19,20's
OVERDRAINAGE IN 1930's
COASTAL WATERS POLLUTED, SALT WATER INTRUSION,
FISHING GROUNDS DESTROYED, EUTROPHICATION,
DESTRUCTION OF MANGROVE SWAMP AREAS

Worksheet IV-2 186
Answer Key

FLORIDA DATA CHART

POPULATION LEVEL 1940 1,897,414
AND GROWTH RATE 1960 5,000,000
1973 7.8 million (AND INCREASING AT
RATE OF 6,000 PER WEEK)

RESOURCES USED AIRPORTS, ROADS, BEACHES, AND SCENERY (TOURISM)
(HOW AND BY WHOM?) BEACHFRONT (HOTELS)
MANGROVE SWAMPS, ESTUARIES, MARSHES (LANDFILL
FOR HOUSING, HOTELS, INDUSTRY)
CENTRAL HIGHLANDS (DISNEYWORLD AND NEW CITIES)

SOCIAL/POLITICAL COASTAL LAND VALUES SKYROCKET
DEVELOPMENTS INDIVIDUAL GROSS INCOME LEVELS MORE THAN DOUBLE
(FROM $4,608 TO $11,115 BY 1965)

ENVIRONMENTAL SHORELINES ERODED, POLLUTION INCREASING
INIPACTS WILDLIFE ENDANGERED, FURTHER INTRUSION OF SALT
WATER, MORE SWAMPS AND MARSHES DESTROYED
AGRICULTURAL AND INDUSTRIAL WASTES INCREASE

187

UNIT 4: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 2: THE ECONOMY AND THE ENVIRONMENT: SOUTH CAROLINA

TIME: 2 DAYS

PURPOSE

To focus on the conflict between environmental preservation
and economic development

MATERIALS

Reading IV-2, "Do Chemicals and Carolina Mix?"
Worksheet IV-3, "Planning Worksheet"
Reading IV-3, "Six Fact Sheets"

OVERVIEW

Students read a brief description of a proposal to build a
chemical plant in an estuarine area. This is also a region
suffering from a sluggish economy and high enemployment. Fact
sheets present arguments on both sides of the issue. Students
complete a planning worksheet which helps them analyze the
advantaaes and disadvantages of the proposal.
0

PROCEDURE

1. Explainto the class that this case, involving the location
of a chemical plant along the South Carolina coast, is based
on a 1970 incident. The actual outcome of the case will be
given at the end of the lesson.

All information contained in the fact sheets comes from
evidence available at the time. However, the names of the
agencies and interest groups(with the exception of Badishe-
Analin and Soda Fabrik Co. and Hilton Head Resort)
identified in the fact sheets are fictitious.

2. Assign Reading IV-2, "Do Chemicals and Carolina Mix?" and
theTlanning Worksheet" to each student. Three possible
procedures for handling this lesson are described in steps
3,4, and 5. Choose the procedure which best fits your class.
Step 3 describes a "Press Conference" approach; step 4 outlines
a class debate; step 5 handles the assignment as a class
reading.

3. Select six students and assign each a fact sheet(Reading IV-
3). They will represent the interest group or government
office described on the sheet. Have them sit together facing

188

Teacher's Guide

the rest of the class. The remaining students should not
look at the "Six Fact Sheets" reading at this time.

Explain that the remainder of the class will act as the
"Beaufort Area Planning Commission." The commission members'
task is to gather information so they can decide to approve
or disapprove the BASF proposal. They will write this
information on their worksheets. The students will have to
ask questions of each of the six representatives. The
representatives should only give information that the
students ask for. Thus, the adequacy of the information
available depends on the quality of the questions asked.

Have each representative read aloud their short summary(on
top of the fact sheet) explaining who they are and what
their position is. Then, allow the commission members to
ask questions in order to get the information necessary
to complete their "Planning Worksheets."

After all questions have been asked, have students hand in
their worksheet for grading, or simply discuss with them
the quality of their questions and the information they re-
ceived. Use the suggested answers in the teacher's guide
as a basis for reviewing their answers.

Ask if there is any other information they would like to
have before making a decision. Then ask for a decision
on the BASF case:

a. Should BASF be permitted to locate in the Beaufort area?

b. Which of the factors on the worksheet seem to be the
most important in helping you reach a decision?

C. How did you decide which of the factors are the most
i portant?

See step 6 for the actual outcome of this case.

4. Select six students and give each a fact sheet(Reading IV-3).
They will r:epresent the interest group or government office
described on the sheet. Have them sit together facing the
rest of the class.

Announce to the class that these six representatives will
be engaged in a short debate regarding the location of the
BASF plant in the Beaufort area. Have each of the six
students-rLad their fact sheet. After all have finished,
allow for dicussion or debate among them, and the rest of
the class.

Students should take notes on their worksheets during the

189
Teacher's Guide

presentations and debates.

After all questions have been aked, have each student complete
their worksheet and turn it in for grading, or, discuss how
the students filled in their worksheets. Compare answers,
noting any major differences of opinion. Use the suggested
answers in the teacher's key to the "Planning Worksheet"
as a basis for the review.

Then ask:

a. Is there any other information you would like to have before
making a decision on this issue?

b. Should BASF be permitted to locate in the Beaufort area?

c. Which of the factors on the worksheet seem to be the most
important in_helping_zou reach a decision?

d. How did you decide which of the factors was the most
important?

See step 6 for the actual outcome of this case.

5. Have all students read "he "Six Fact Sheets"(Reading IV-3).
Students could work alone or in small groups.

Each student should fill out his or her worksheet using the
information provided in the fact sheets.

ATter the worksheets are completed, have students hand them
in for grading; or, have a few students read their answers
to the different sections. Compare answers,noting any major
differences.

Ask if there is any other information they would like to have
before making a decision on this issue. Then, ask for a
decision on the BASF proposal:

a. Should BASF be permitted to locate in the Beaufort area?

b. Which of the factors on the worksheet seem to be the
most important in helping you reach a decision?

C. How did you decide which of the factors was the most
important?

See step 6 for the actual outcome of this case.

6. In 1971, BASF withdrew its plans to build in the Beaufort area,

190

Teacher's Guide

citing pressure from environmental and resort groups, and
the long delays likely to result from lawsuits filed against
them. BASF built their new facility near an already existing
plant in Michigan.

Worksheet IV-3 191
Answer Key

PLANNING WORKSHEET

QUESTION: Should BASF be permitted to build a chemical plant on the Colleton
River?

ECONOMY

Advanta-es Disadvantages
0
Plant will employ 1000 people May disrupt jobs in fishing and
5-7000 additional jobs will be created resort industries
Other BASF factories will follow Pollution, noise, etc. may hurt
3000 construction workers employed convention, tourist business
$2 million to construction business
Help offset predicted business recession
$3000 average increase for all Beaufort
citizens
$3 million increase in retail sales
BASF jobs are steadier and higher paying
than other jobs in the area
Increase the number of manufacturing jobs
available

ENVIRONMENT

Advantages Disadvantages

BASF says it will treat waste water Colleton River may be damaged
BASF says it will meet all state pollution from waste water
standards Colleton River estuary is one
of two unspoiled estuaries on
East coast
Water temperature changes from
factory wastes could affect river
animals
Dredging river could damage oyster
beds, shrimp, and the Beaufort
water supply
BASF has polluted rivers in Europe
BASF has never announced final plans
for pollution control
POLITICAL/SOCIAL
,Advantages Disadvantages

Increased tax revenues Many new public services will have
Helps Covernor in bid to bring more to be built
industry to South Carolina BASF receives five year tax
exemption
Area will become more industrialized,
noiser, more congested with
traffic

Are there any other advantages or disadvantages to building BASF's chemical complex
that should be considered, but which do not fit into these three categories?

(Students may place some of the concens listed above in this space.)

192
UNIT 4: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 3: ENERGY AND THE ENVIRONMENT: THE NORTHEAST ATLANTIC

TIME: 1 DAY

PURPOSE

To examine the impact energy resource exploration and
development can have on a coastal area

To examine differences in community needs and interests
and how these relate to coastal resource use

MATERIALS

In Package

Transparency IV-2, "Pacific Coast"
Transparency IV-3, "Atlantic Coast"
Reading IV-4, "The Atlantic Oil Sweepstakes"

OVERVIEW

Students view two transparencies of the continental shelf
which show the location of present and future oil
exploration. They then read an account of oil exploration
in the northeast Atlantic and examine the reactions of
three areas to the possibility of new oil discoveries
in their "back yard."

PROCEDURE

1. Re-,iew information presented earlier about the continental
shelf. Ask:

a. What is the continental shelf? Where is it located?

(The continental shelf is the relatively shallow ocean
floor bordering the continental land mass. Along the
Atlantic Coast of the U.S., the shelf descends gradually.
Off the Pacific Coast, the shelf is narrow and steep.)

b. What valuable coastal resources are associated with the
continental shelf?

(The shallow waters above the shelf are a prime breeding
ground for fish; millions of barrels of oil and natural
gas are located below the surface of the continental shelf.)

2. Show the transparencies of the continental shelf. Point out

Teachers Guide 193

a. Why are so many new areas being opened up for oil explora-
ti6n?

[The U.S. is highly dependent on oil as an energy source.
The U.S. government is attempting to find more sources of
oil in this country so that we have to depend less on for-
eign oil. The U.S. consumes 30% of the total world demand.
In 1976 the U.S. consumed 6.4 billion barrels of oil; the
U.S. produced 3.5 billion barrels, or 55% of its demand.
We imported 45%. Oil accounted for 47% of all U.S. energy
needs; natural gas accounted for 27.3%. These two total
almost 75% of all U.S. energy needs. Coal, water power,
and nuclear energy account for the rest.]

Explain that there is about a 25% chance of finding major oil
deposits in these new exploration areas.

b. If major oil discoveries are made along the East coast, how
m.ght this affect coastal areas?

[Support facilities and services that oil companies need for
exploration and production will be needed onshore. These
include refineries, petrochemical complexes, enlarged ports
and harbors, storage and warehouse facilities for supplies,
office space for corporate headquarters, construction sites
for building production rigs and other needed equipment,
helicopter and other airport facilities, storage tanks for
oil, etc.]

C. What are some advantages and disadvantages that might come
to a coastal area that is near a major oil find?

(Increased supply of oil and natural gas, increased popula-
tion for some areas, increased pollution of coastal waters,
increased shipping traffic, increased employment opportuni-
ties, more industrialized areas, disruption of wetlands and
estuaries, etc.]

3. Pass out the reading "Atlantic Oil Sweepstakes".

After the class has finished, have students compare their predic-
tions about coastal impacts with the projections made in the ar-
ticle.

a. Were there support facilities mentioned in the article that
students failed to list?

Teachers Guide 194

b. Were there advantages or disadvantages that East Coast com-
munity planners are considering that students failed to
note?

C. Did your class think of certain important factors not
covered in the article?

d. I%That are the positions of the citizens of Cape May, New Jer-
sey, Cape Charles, Virginia, and the state of Rhode Island?

e. How do they differ in their attitudes toward oil companies
locating support facilities in their areas?

[Cape May, anti-development; Cape Charles, split; Rhode Is-
land, pro-development.]

f. Which factors does each seem to consider the most important:
economic, environmental, or political-social factors?

[Cape May, environmental and political-social; Cape Charles
political-social; Rhode Island, economic.]

ART I C OCEMI

FUTURE DRILLING SITES

TRANS-
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AL
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AN6HORAGE
........ . . . ........

VALDEZ

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FISHING OPERATIONS
GROUNDS
FISHING
GROUNDS
A.

SEATT
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CONTINENTAL SHELF

T IV-2 PRESENT OIL
OPERATIONS

BOSTON---*

DAVISVILLE -

NEW YORK

CO INENTAI-,
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CAPE MAY

WASH I NGTON
[email protected]
CAPE CHARLES

SOUTHEAST bEQRG IN.
EMAY

@IAM
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Ask

197
0 UNIT 4: CASE STUDIES IN SHORELINE HANAGEMENT
LESSON 4: PLANNING A@M MANAGEMENT CONFLICTS: BOSSTOWN HARB.OR

TIME: 2-3 Days

PURPOSE

To give students a realistic experience of the conflicts which
frequently occur among political decision makers

MATERIALS

In Package

Reading IV-5, "Bosstown Harbor Planning Conference Program"
Transparency IV-4, "Bosstown Harbor"
Transparency IV-5, "Container Dock vs. Traditional Handling Method"
Transparency IV-6, "Harbor Pollution"
Transparency IV-7, "Conference Issues"
*Handout IV-1, "Conference Position Papers" (includes BOSSPORT Delegation,
Clean Delegation, DNR Delegation, USBA Delegation, BURP Delegation,
Office of the Mayor)
Worksheet IV-4, "Voting Sheet"
*Handout IV-2, "Task Force Chairperson's Report Form"
Worksheet IV-5, "Conference Report"
*Handout IV-3, "Task Force Summaries"
Reading IV-6, "Boston Harbor: The Real Thing"
Reading IV-7, "RM: Growth Pains"

I
'These handouts are not included in the Student Workbook. Make
copies from the masters included in the Teachers Guide.

Additional

Stick-on Name Tags
Overhead Projector

OVERVIEW

Students receive an overview of Bosstown Harbor (in reality, Boston
Harbor, circa 1970) and the major issues confronting this seaport area.
Students join one of six interest groups to be represented at a planning
conference. The class then participates in the conference, debating and
voting on each issue. A debriefing session, including two short readings,
concludes the lesson. The Bosstown Harbor activity simulates the clash
of opposing interests. Disagreement and different viewpoints are built
into the groups' positions on the various issues. Little agreement will be
reached at the conference. This design is intentional so that students will
experience first hand the problems many coastal planning efforts have.

198

PROCEDURE

Part I: Introducing Bosstown Harbor

1. Begin by having students think about what they consider to be good
planning. Ask:

How many of you have been involved this year in planning an event,
like a school dance or a pep rally?

What was your experience? Was the planning easy? Did everyone
cooperate with you? How could you or others have made things work
better?

What do you think is needed to make planning effective?

(Responses might include: Good communication; general agreement
about goals; willingness to work together; ability to compromise;
0
acceptance of leaders in the planning group.)

2. State that students will participate in a coastal "Planning Conference"
during the next few days..

Explain that students will role-play delegates representing interests
from all levels of government who have been invited to attend a con-
ference. The purpose of this conference is to develop a management plan
for the future of "Bosstown Harbor," a major port on the east coast.

Remind the class that successful role-playing means students must understand
and adopt the beliefs of the delegates they represent. They should not
deviate from the role they are assigned. At the conclusion of this lesson,
there will be time to discuss their own personal feelings, observations,
etc. However, during the role-play exercise, it is important for them to
accurately and enthusiastically represent their position.

3. Have students read the "Bosstown Harbor Planning Conference Program"
(Reading IV-5). Make it clear to students that this is a mock conference,
and that all the participating agencies or groups named in the program
are fictional, though the issues to be dealt with are real.

(The factual @ackdrop for this simulation is the real port of Boston,
Massachusetts. This should not be "announced" until the role-play is
completed.)

4. After students have read the Planning Conference Program, divide the class
into six equal groups. Assign each group to be one of the six delegations
listed in the Program.

Reseat stucents by delegation.

199

5. After students have been re-grouped, present the following background
sketch of "Bosstown Harbor" using the overhead projector.

SH014 TRANSPARENCY IV-4. "BOSSTOWN HARBOR"

"Bosstown has much to be proud of in its history, but past management
of its waterfront resources has not been very good. What is the
situation today? Bosstown is no longer a leading seaport.

"Technological change and government neglect have pushed Bosstown
into the backwaters of the shipping industry. Technological change
has undermined Bosstown's position in two ways.

"First, an indispensable function of the seaport up to now has been
to supply oil to much of the New England region. But a new generation
of very large oil transport ships, the so-called oil "super-tankers,"
is coming to dominate oil transport. These new tankers are too big
to enter the Inner Harbor area where all the oil receiving facilities
of the port are presently located (Belsea area). Dredging the harbor
channel to accommodate these supertankers would be so costly it's not
a realistic option."

SHOW TRANSPARENCY IV-5: "CONTAINER DOCK VS. TRADITIONAL HANDLING METHOD"

"The other major function of the port has been to handle general
cargo shipping. New technologies have challenged Bosstown here as well.

In the last decade, the increasing use of container ships, like the one
shown in the top drawing, has revolutionized the worldwide sea cargo
trade, cutting transport costs and manpower needs dramatically.
Cargo which once took days to load or unload using the methods shown
in the lower sketch, takes only hours to load or unload on container ships.

"Ports which want to remain competitive in the cargo trade must
finance and construct expensive container dock terminals, large storage
area, and be located such that there are good connections with truck and
railroad routes.

"The port of Bosstown is losing out in this competition. It has
not modernized. Past management neglect, lack of funds, and the re-
sistance of port labor has blocked innovation. There are no operational
container tEirminals in Bosstown, and the inland transport connections
from the docks have not been improved.

"Can this situation be turned around?"

SH014 TRANSPARENCY IV-6: "HARBOR POLLUTION"

"Government neglect and poor planning in the past, have also brought
on other serious problems. The harbor is a visual and an environmental
disgrace. Crumbling piers, rotting wharves, run-down warehouses and
ragtail commercial operations line the Inner Harbor.

200

"Only a tiny fraction of the shoreline is now devoted to public
recreation. Public beaches throughout the harbor are overcrowded.
Water pollution has been one way of unintentionally solving the
problem of overcrowding. Becuase of serious bacterial contamination of
harbor water, the beaches are frequently closed by order of the State
Department of Health.

"Some 460 million gallons of partially treated sewage enter the
harbor every day from other public and private sewage outfalls. Recent
0
studies have found that much of the harbor bottom is covered by a
three-foot thick layer of sludge.

"Between industrial wastes, sewage, sludge, bacteria and oil, one
wishing to remain healthy dares not swim in the harbor or in the
rivers which feed into it."

SHOW TRANSPARENCY IV-7: "CONFERENCE ISSUES"

"Several specific issues will have to be decided by the conference:

a. Should the port area be expanded and new containerized
facilities built?
b. How should the Bosstown waterfront area be re-developed?
c. Are present pollution controls adequate?
d. Is a new deepwarer port facility for oil tankers needed?
e. Should the harotr's islands become private recreation sites?
f. Should the federal government take a leadership role in the
planning of Bosstown Harbor?

SUMMARY(ADDRESS DELEGATES DIRECTLY)

"This is the situation you must address. Decisions must be made
at this conference and priorities set for guiding harbor policy
during the coming years. As the Governor emphasized to you in his
message, technological change, urban growth, waterfront renewal,
increased environmental concerns, new energy needs, and strong
recreational demands--these pressures have converged upon us all at
once, and challenge us to think ahead, work together, and plan better.

"Can the Port of Bosstown and the Bosstown waterfront be
salvaged7l Where do we go from here?

PART III: Conference Preparation

1. Have each group select a delegation leader.

2. Explain that the conference will be divided into two Task Force sessions,
one on Inner Harbor problems and one on Outer Harbor problems. One-
half of the representatives.from each group will attend the Inner Harbor
session and the other half the Outer Harbor session. The specific issues
to be discussed at each session are listed on the "Conference Position

201

Papers."

3. Hand out to each member of a delegation their group's "Conference
Position Paper," Handout IV-1. (The BOSSPDRT delegation receives the
"BOSSPORT Position Paper," the CLEAN delegation receives the "CLELN,
Position Paper," etc.)

After the groups have read the position papers, have each decide which
students will at tend which Task Force(Inner Harbor or Outer Harbor).

After these assignments are made, each person must fill out a "Voting
Sheet"(Worksheet IV-4). This will help them remember their position
on the various issues. The "Voting Sheet" should be taken with them
to the Task Force session.

4. Ask the delegation leaders to be certain that each students is assigned
to present the delegation's position on at least one of the major
issues to be discussed during the Task Force meetings. Many students
will have to be responsible for representing the delegation on two
issues. The delegation leader representes the group on at least
one issue, also.

5. After these assignments have been made, ask each group to develop a
short statement of the delegation's views on "what should be done
about Bosstown Harbor and whv." This statement will be presented as the
delegation's "Opening Remark@" at the beginning of the Task Force
sessions.

PART III: Conference Session

1. Pass out blank stick-on name tags and have students write the names of
their delegation on the tags in large letters(i.e., BURP, DNR,CLEAN,,
etc.). Have students wear these name tags throughout the conference
session.

2. Have students form two large groups, Inner Harbor Task Force and
Outer Harbor Task Force. All representatives from each small group
should sit as a unit in each Task Force.

Each Task Force session will run independently. Students in one session
will not need to know what is going on in the other session.

3. Call the conference session "to order." The first order of
business is for each Task Force to select a Task Force Chairperson(or
you may wish to appoint chairpersons). After the selection, hand
out a Task Force Chairperson's Report Form(Handout IV-2) to each
new chairperson.

Review the Task Force meeting procedure outlined on the Chairperson's re-
port form. All votes on proposals will be by delegation. Each delegation

202

has one vote; therefore, there should always be six votes cast. A
two-thirds approval, or four votes, is needed for any proposal to-
pass.

Announce that the Task Force sessions may now proceed. BOSSPORT should
make the first proposal in each session.

4. Circulate between the two Task Force groups. If a group is deadlocked,
suggest it move ahead with a vote, or a motion to "table" so the
remaining proposals may be presented.

Remind students of the role-playing requirements. They should accurately
and enthusiastically portray their positions. Check how the voting is
proceeding. The answer key for the "Task Force Summaries" sheet
indicates the direction the voting should take. If this is not the case,
roles are not being followed.

5. Before the conference ends, pass out a "Conference Report"(Worksheet
IV-5) to students and collect the Task Force Chairperson's Report
Form. Each student is to complete the "Conference Report." These will
be used during the debriefing session, and can be collected for
evaluation purposes at the end of the Bosstown Harbor exercise.

PART IV: Debriefing the Conference

1. Fill in the "Task Force Summaries" form(Handout IV-3) from the results
recorded on the two "Chairperson's Report Forms-" Duplicate the
completed "Task Force Summaries" for class distribution(or put the
results on an overhead transparency).

2. Seat students in their original delegation groups. Begin conference
"debriefing." Write names of the six delegations on the chalkboard.

Invite students from each of the delegations except BOSSPORT to
describe what they thought of the BOSSPORT delegates' position--what
BOSSPORT's basic outlook was, what its goals were, its attitude, etc.
Do not allow BOSSPORT delegates to respond to this description. Write
student responses on the chalkboard under "BOSSPORT."

Repeat this procedure for each of the five delegation groups, so that
each delegation is described as the other participants at the con-
ference saw that delegation.

3.' Invite students in the BOSSPORT delegation to react to what has been
said about the BOSSPORT group. BOSSPORT delegates should respond by
stating what priorities they took to the conference, and why.

Repeat this procedure with each of the remaining delegations; be sure
each has an opportunity to respond to the other delegations'
characterizations.

203

4. Ask students to discuss their "Conference Reports"with other members
of their delegation and to evaluate the conference. Make it clear
that there are some judgments about how successful the delegation
was in reaching its goals, and how successful the conference was in
generating a clear plan to "salvage" Bosstown Harbor.

Ask delegation leaders in each group to report their delegation's
evaluation of the conference, indicating what was accomplished, if
anything, from the delegation's point of view, and from an over-all
point of view.

5. Have students identify the "problem areas" of their conference Task
Force. Ask:

What were the major problems with the conference?

[Students should mention the following:

a. Each group pushed its own ideas and ignored the other's interests
and concerns.
b. Each group had different ideas about what was important. No group
would compromise its beliefs.
C. No one took a broad view of the situation; everyone was so concerne-,d
with their own position that the general goal of the conference
was not reached.]

If you are planning to evaluate the "Conference Reports," collect them
at this time.

PART V: Summary Readings

1. State that the conference simulation was intentionally set us so that
some of the real difficulty of planning for coastal management, as well
as some of the complexities of dealing with the coastal zone could be
demonstrated. Not every planning meeting is so divisive. However, in
this case, the positions and the issues were based on real conflicts over
proper resource management of a real coastal area.

2. In the early 1970s, all of the issues and positions students discussed
in the simulation were hotly contested in Boston, Massachusetts. The map
in the conference "program" is actually a map of Boston Harbor, with all
place names slightly changed. The informatioti given to each group is
based on resource materials describing the Boston Harbor situation.

3. Have students read "Boston Harbor: The Real Thing"(Reading IV-6). This
reading describes later developments concerning the issues raised
during the planning conference. After students have read this article,
ask:

Isanyone surprised at how things turned out? Why?

204

4. Assign Reading IV-7, "RM: Growth Pains." After reading this article,
have each student write down at least one idea, or positive step, which
might be taken to improve the management process.

5. Review "RM: Growth Pains" reading. Ask:

a. What are some of the reasons given in the reading for the many
disagreements among planners or decision-makers over proper
coastal management?

[Answers should refer to:

(1) Individual agencies or interest groups often bring only their
own narrow perspective to the coastal debate;
(2) With so many planners and regulators involved in management
decisions, there is often poor communication and lack of
leadership;
(3) Agencies often work at cross-purposes.]

b. What happened with environmental protection efforts in the example
of Rhode Island?

[By 1975, Rhode Island had legislated into existence thirty-six
state agencies which were involved in one area or another of
environmental protection and/or resource management. Thw work
of these aaencies was not highly coordinated.]
0 0

c. Why was the Natural Resource Group so critical of the state
government's management process?

[There is no comphrensive environmental or management policy; there
is no unified, long-range approach to the situation. Also, there
is a "piecemeal approach" which brings about a tangle of conflicting
laws and regulations, inefficiency and power struggles.]
C,

6. Call on several students to give an idea which could be taken to improve
the management process. Write each suggestion on the board and continue
"brainstorming" until all ideas or steps which students have thought of
are listed. Establish the following ideas, if not suggested by students
themselves:

a. Better communication is needed; there should be more consultation
among all decision-makers throughout the planning process.
b. Leadership is needed; there should be a lead agency or office which
coordinates the general planning process.
C. Citizen involvement is needed; policies will more likely represent
public needs rather than special interest groups, if many citizens
are actice participants in the planning process.
d. Comphrensive planning is needed; coastal management efforts should
take into account as many factors as possible, including economic,
enrionmental and social concerns.

7 205

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running through Bosstowii itself is cal led the INNER HARBOR, and the. rest, the OUTER IIARBOH.
politan area containing over 2.5. miAlion peolfle borders the entire harbor.

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CONFERENCE ISSUES

1. HARBOR MODERNIZATION???

2. WATERFRONT REDEVELOPMENT???

3. TOUGHER POLLUTION CONTROLS???

4. DEEPWATER PORT???

5. HARBOR ISLANDS FOR RECREATION???

6. ROLE OF FEDERAL GOVERNMENT???

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20.9
Handout IV-1

BOSSTOW'N PORT AUTHORITY(BOSSPORT) DELEGATION:

CONFERENCE POSITION PAPER

1. BOSSPORT'S PRIORITIES

A. We want to build new container ship docking terminals and an off-
shore deepwater oil facility. We believe the economic success
of the port depends on the acceptance of these proposals.

B. We want new business and commerce to be attracted to Bosstown. We
believe BURP's plan for a financial and commercial waterfront area
is the best means for developing these activities.

C. We feel BOSSPORT knows best how to run the port, and we want no
outside interference with our decisions.

2. POSITION ON ISSUES: INNER HARBOR TASK FORCE

A. WATERFRONT REDEVELOPMENT: We support BURP's plan. This plan will
not conflict with our harbor expansion plans, and will create a
much needed waterfront district.

If CLEAN's plan is accepted, it will close off too many areas to port
expansion. Container facilities will then have to be built in
other, less desireable locations.

B. ROLE OF FEDERAL GOVERNMENT: We oppose interference with our
management of the port by federal agencies. We do not support the
development of a national management plan if this will reduce our
ability to act.

C. ENLVIRONTMNETAL PROTECTION: We oppose proposals for stricter pollution
controls. Money should be spent where it will do the most good--for
the improvement of port facilities, not the harbor water. Many
more jobs depend on the port's economic growth than on the port's
clean water. A vocal minority is trying to frighten the public and
pressure conference participants. The pollution problem isn't
nearly as bad as the professional troublemakers, like those at
CLEAN, make it appear.

3. BOSSPORT PROPOSAL(TO BE INTRODUCED IN INNER HARBOR TASK FORCE)

In recognition of the primary importance of economic development to the
future well-being of Bosstown, BOSSPORT proposes that container dock
terminals be built for Bosstown Harbor.

Containerized shipping has become the primary means of handling goods in

210

other major Atlantic and European ports. It reduces freight rates
and labor costs. The ports of New York and Baltimore, for example,
have already drawn a significant portion of Bosstown's cargo trade
since they introduced containerized facilities. Failure to move
immediately towards containerized facilities will result in a
disastrous decrease in jobs, and thus decrease the economic well-
being of this area.

4. POSITION ON ISSUES: OUTER HARBOR TASK FORCE

A. HARBOR ISLANDS: We support purchase of these islands for recreational
use, but we must make it clear that energy and port needs come first.
If there is a conflict over uses in the Outer Harbor area, BOSSPORT
has to take whatever steps are necessary to maintain the well-being
of the harbor area.

B. POLLUTION CONTROLS: Proposals for new water quality standards and
improvements in sewage treatment are not in our best interest. We
believe present standards and enforcement procedures are tough
enough. Insufficient time has been allowed for shipping companies
to meet even the current oil pollution requirements. New laws could
hurt Bosstown Harbor business. Money spent for pollution control
would be better spent for making improvements to port facilities.
The pollution problem isn't nearly as bad as professional trouble-
makers, like those at CLEAN,make it appear.

C. ROLE OF FEDERAL GOVERNMENT: See "2-B" under Inner Harbor Task Force.

5. BOSSPORT PROPOSAL(TO BE INTRODUCED IN OUTER HARBOR TASK FORCE)

In recognition of the critical importance of energy needs to the future
well-being of Bosstown and the entire northeast coast, BOSSPORT pro-
poses the development of a major deepwater port facility in the Outer
Harbor.

Bosstown will lose its position as a major petroleum port within the
next decade unless it upgrades its oil receiving facilities. Present
terminals are old and lack room for expansion. Worse yet, they only
service small tankers of World War II vintage. Potential benefits from
the new terminal facilities would include reduced fuel costs and the
addition of nearly 10,000 new jobs in related industries.

Bigger ships also mean fewer ships; therefore, a deepwater port would
bring less danger from oil spills, not more. overall water quality
would likely be improved. Everyone will benefit from new facilities:
consumers by lower fuel bills, the unemployed by new jobs, oil and
shipping companies by opportunities for expanded service, and the port
and city of Bosstown by increased public revenues. The construction
of these facilities is the safe, sensible far-sighted way to insure
that Bosstown will continue to be a key oil imports terminal.

211

Handout IV-1

U.S. BUSINESS ADMINISTRATION CUSBA) DELEGATION:

CONFERENCE POSITION PAPER

1. USBA'S PRIORITIES

A. The concerns of the Federal Government must be heard at the
conference. We must insure that local and state proposals do not
interfere with projects which are needed for -meeting the national
demands for energy and the efficient distribution of these oil
supplies.

B. The Federal Government should take the lead in planning the future
of Bosstown Harbor.

2. POSITION ON ISSUES: INNER HARBOR TASK FORCE

A. HARBOR EXPANSION AND MODMIZATION: We support expanded port operations.
The northeastern United States needs to be certain that oil and other
important goods flow smoothly in and out of this region. Bosstown
has recently declined in importance as a seaport and as a regional
business center. Industry has fled to other neighboring states,
those with lower taxes and less demanding labor unions. Bosstown
needs new port facilities to help economic growth return to the area,
and to maintain a strong port system for the country.

B. WATERFRONT REDEVELOPMENT: We support the BURP plan which would
stimulate new business enterprise. The Bosstown Harbor area needs
new business opportunities to secure future growth for the port.
If the port is to expand and modernize, it only makes sense that
the waterfront area do the same.

C. POLLUTION CONTROLS: The Federal Government supports higher air
and water quality standards for Bosstown Harbor. Experience in other
areas of the country shows that polluted harbors are not favored by
the public. Clean, well maintained harbors are in the b.est interest
of the public and commerce.

3. USBA PROPOSAL (TO BE INTRODUCED IN INNER HARBOR TASK FORCE)

In recognition of the urgent need for improved coastal resource
management, USBA recommends that the Federal Government take the lead
role in planning the future of Bosstown Harbor. Many of the problems
faced by Bosstown are of national importance; the northeast coast needs
a modern, clean harbor facility. Since the importance of the decisions
to be made at this conference extends well beyond this immediate areas,
the Federal Government is the only one that can provide the necessary
leadership. Without strong leadership, the conference and the Harbor,
will suffer.

212

4. POSITION ON ISSUES: OUTER HARBOR TASK FORCE

A. DEEPWATER OIL PORT: The Outer Harbor is large enough to be used for
both recreational and commercial purposes, if planning is done
wisely. We will support a well though out deepwater port plan for
oil receiving terminals in the outer Harbor. The long term energy
needs of the region will require the development of such a facility.

Bosstown is the chief intake point for the oil distribution system
in the New England region. BOSSPORT must keep up with modern methods
if the oil distribution system is to be maintained in good working
order and the needs of the people in the region for oil and gas
supplies are to be met. A deepwater complex in many ways would reduce
the likelihood of oil spills, while increasing the efficiency and
capacity of the port to process oil. Recreational use of the area
would be restricted somevihat by these new facilities, but would not
be excluded.

B. HARBOR ISLANDS: These islands are a fine recreational resource and
should be made available for public use.

C. POLLUTION CONTROLS: We support state efforts to improve air and water
quality. However, we must be certain that water quality standards ao
not interrupt port operations or oil receiving and refining processes.

5. USBA PROPOSAL (TO BE INTRODUCED IN' OUTER HARBOR TASK FORCE)

In recognition of the urgent need for improved coastal resource
management, USBA recommends that the Federal Government take the
lead role in planning the future of Bosstown Harbor. 14any of the
problems faced by Bosstown are of national importance. The northeast
coast needs a modern, clean harbor facility. Since the importance
of the decisions to be made at this conference extends well beyond
this immediate area, the federal government is the only one that can
provide the necessary leadership. Besides, the other groups represented
at this conference don't seem to be able to agree on much of anything.
Without strong leadership, the conference and the Harbor, will suffer.

213
Handout IV-1

CITIZENS LEAGUE FOR EFFECTIVE ACTION NOW (CLEAN) DELEGATION:

CONFERENCE POSITION PAPER

1. CLEAN'S PRIORITIES

A. We want to see the waterfront and the harbor returned to the people.
Government agencies have been mismanaging our coastal resources, and
ignoring the public's need for better recreational facilities. We
want the harbor and the waterfront to become "people-oriented" again,
and we will let everyone at the conference know that the public will
is going to be heard on this issue.

B. We must defeat the BURP plan. If it is approved, it will destroy
many buildings and replace them with ugly high-rises.

C. We want to end the dumping of sludge and partially treated sewage
into Bosstown Harbor. We want better enforcement of harbor water
quality standards so public beaches and Outer Harbor islands can
once again be safely used by the public. The harbor presently is
only a step away from being an open sewer.

2. POSITION ON ISSUES: INNER HARBOR TASK FORCE

A. HARBOR EXPANSION AND MODERNIZATION: We oppose the proposed BOSSPORT
projects. They conflict with our goals of increasing public uses of
the waterfront and upgrading the harbor environment.

B. 14ATERFRONT REDEVELOPMENT: We bitterly oppose BURP's proposal for
this district. The BURP plan calls for wholesale demolition in
the district, and construction of new high-rise offices, apartments,
and hotels bordered by a shoreline expressway which will virtually
cut off access to the shoreline. This plan should be scrapped immediately.

Urban renewal in this district should be involved in renovating
historic buildings, providing shoreline access, making open spaces,
developing small marinas, and creating a shoreline park. Our resi-
dential-oriented plan would result in the creation of a thriving, new
waterfront neighborhood, as opposed to BURP's plan for a commuter-
oriented business district.

C. ROLE OF FEDERAL GOVERNMENT:

We oppose the idea of federal leadership and planning. A major reason
for opposition is the fact that USBA favors the BURP plan for waterfront
redevelopment. However, we do believe some kind of coordinated planning
is necessary.

D. POLLUTION CONTROLS: We want to see more consideration given to the
environmental impact of proposed harbor projects and activities. We
want the pollution in the Inner Harbor cleaned up and stopped. We
support increased powers for the state agencies to deal harshly with
polluters.

214

A harbor water quality report just released shows that the harbor has
become grossly polluted. Almost 90% of the shellfishing areas in
the harbor have been closed or restricted. Further closing of public
beaches is likely unless something is done to lower pollution levels.
There is substantial evidence that sludge is a principal source of
disease-carrying bacteria in the harbor area. A new drying process
to turn sludge into fertilizer could be set up on Meer Island. This
project would cost $18 million initially, and only $150,000 a year
afterwards, a small price to Day for a public health improvement
facility.

3. CLEAN PROPOSAL (TO BE INTRODUCED IN INNER HARBOR TASK FORCE)

Bosstown needs a people-oriented waterfront. We propose the CLEAN
plan be accepted for restoring the waterfront district.

The waterfront district, has been in slow decline for decades, yet
the area has the advantage of having many historic buildings, and
is convenient to the state capitol district and many other historic
landmarks. A strong waterfront revival has already begun, and many
old factories have been remodeled into attractive apartment buildings.
The population in the waterfront district has risen almost 100%
in the last five years. Continued growth and new commercial development
is guaranteed, if the whole district isn't demolished as the BURP
plan proposes. Restoring old buildings, as we advocate is also less
expensive than building the new high-rises as BURP proposes. CLEAN
believes Bosstown will become an admired, trend-setter in returning
inner-city waterfronts to the people if our plan is approved.

4. POSITION ON ISSUES: OUTER HARBOR TASK FORCE

A. DEEPWATER OIL PORT: We will fight any proposal which restricts
the use of the outer harbor by the public or which would further
degrade the environment of the harbor and the shoreline. A deep-
water oil port would do both. Thus, we oppose this plan.

B. HARBOR ISLANDS: We strongly support purchase of the Outer Harbor
islands and their dedication for public recreational uses.

C. POLLUTION CONTROLS: We want the pollution in the Outer Harbor,
cleaned up and stopped so beaches can be re-opened and the harbor
islands fully enjoyed. The just released pollution report shows
appalling conditions in the harbor. We must see that action is taken
to turn this situation around, no matter how much opposition comes
from the business-industrial interests. Any delegate who votes for
purchase of the harbor islands, but against water quality improvement
and control is a hypocrite.

D. ROLE OF FEDERAL GOVERNHE'NT: See "2-C" under Inner Harbor Issues.

5. CLEAN PROPOSAL (TO BE PRESENTED IN OUTER HARBOR TASK FORCE)

Pollution reduction in the Outer Harbor should be an immediate priorit
CLEAN proposes the following actions:

215
A. Strict enforcement of new water quality standards, with heavy
fines assessed against all polluters.
0

B. Construction of new sewage treatment facilities.

C. Implementation of a new sludge-drying program at Meer Island to
end direct dumping of sludge into Bosstown Harbor.

Handout IV-1 216

BOSSTOWN URBAN RENEWAL PROGR,*1 (BURP) DELEGATION:

CONFERENCE POSITION PAPER

1. BURP'S PRIORITIES

A. Economic growth in the harbor and waterfront area depends on an
expanded port and a new@, modern waterfront.

B. We want to be sure the CLEAN proposal is defeated. Their plan will
eliminate any chance of modernizing the harbor.
0

2. POSITION ON ISSUES-: INNER HARBOR TASK FORCE

A. HARBOR EUIANSION AND MODERNIZATION: A modern port facility is badly
needed in Bosstown. Combined with our plan to rebuild the waterfront
area, this proposal will once again help make the harbor area a
leading factor in Bosstown's economy. We support the BOSSPORT
proposal.

B. POLUTION CONTROLS: We do not support stricter water quality
standards or construction of new sewage treatment plants. Neither@.
of these are necessary and both are very costly. Given the present
state of city finances, pollution control should not, at this time,
be given a .-.4-gh priority.

C. ROLE OF FED1`.RAL GOVERNMENT: We oppose a federal management plan.
Federal officials who are not familiar with our needs here in Bosstown
should not be in a position to decide whether or not our waterfront
plans are appropriate. BURP's freedom of action could be severely
limited. Why create another level of bureacracy? We want to keep
Bosstown's waterfront under local control.

3. BURP PROPOSAL (TO BE INTRODUCED IN INNER HARBOR TASK FORCE)

In recognition of the need to bring business and tourism back to
Bosstown BURP proposes an urban renewal plan for the Bosstown water-
front district.

Decayed buildings, empty wharfs, rotting piers, abandoned wharehouses,
and tenement houses now line the waterfront. We should first apply
the bulldozer, then create an entirely new waterfront. We should
provide new housing for the poor and the elderly in addition to new
highrises and business plazas in the waterfront to attract business
and tourism back to the area. A new shoreline expressway will make
the waterfront more accessible and will also shorten the trip from the
waterfront to Hogan Airport.

Our waterfront proposal will open up the waterfront for new urban
and commercial uses, eliminate blight and create an entirely new
waterfront for the use of all of our citizens.

217

4. POSITION ON ISSUES: OUTER HARBOR TASK FORCE

A. DEEPUATER OIL PORT: We oppose the construction of a deepwater
oil port. BOSSPORT is exaggerating the "energy crisis."
Smaller ships and barges can continue to service our inner harbor
oil receiving terminals. BOSSPORT's proposals are expensive,
unnecessary, and potentially harmful to the environment.

B. HARBOR ISLANDS: We support the purchase of the Harbor Islands for
public recreational uses. The islands can be used for hiking,
picnicking, sailing, and fishing. It is appropriate rhat the
state government purchase these islands, as they will be used by
people from all over the state.

C. POLLUTION CONTROLS: The water of the Outer Harbor is polluted, but
the costs of restoring and maintaining high water quality are
unacceptable. Construction of new sewage treatment plants and
removal of sludge from the harbor bottom would be very costly. Given
the present state of city finances, pollution control should not
presently be given a high priority.

D. ROLE OF FEDERAL GOVERMENT: See "2-C" under Inner Harbor Issues.-

5. BURP PROPOSAL (TO BE INTRODUCED IN OUTER HARBOR TASK FORCE)

We have no proposals to make in this task force, Listen, and make
our positions known, but do not make any specific proposals.

Handout IV-1 218

OFFICE OF THE MAYOR OF BOSSTOWN DELEGATION:

CONFERENCE POSITION PAPER

1. ',',IAYOR'S OFFICE PRIORITIES

A. The Office of the Mayor supports economic growth in the Harbor
area. However, the Mayor cannot risk losing the political support
from longshore and other unions by favoring any plan which calls
for a reduction in the number of port jobs.

B. The Office of the Mayor supports restoration of the waterfront
district in order to promote tourism and preserve Bosstown's
historical traditions.

C. The Office of the Mayor supports efforts to provide more waterfront
recreation facilities.

D. The Office of the Mayor opposes stricter water quality standards
and new sewage treatment plants because of the expense involved. The
city cannot afford these projects.

2. POSITION ON ISSUES: INNER HARBOR TASK FORCE

A. HARBOR EXPANSION AND MODERNIZATION: We oppose BOSSPORT's plan to
build new container facilities. Such port expansion and develop-
ment will interfere with the waterfront restoration programs which
have wide popular support. We also oppose containerization facili-
ties because this will result in a reduction of the port labor force.
The Mayor needs the support of labor and must back the longshoreman's
union on "no containerization" at this time.

We also oppose BOSSPORT on this proposai because they have failed to
file environmental impact statements for any of its projects.

B. WATERFRONT REDEVELOPMENT: The Mayor's office opposes the BURP plan
and supports the CLEAN plan. We believe it is important to preserve
the historic traditions of this city; modernization programs are
needed, but not in this area.

C. ROLE OF FEDERAL GOVERNMENT: The Mayor's office opposes federal
government leadership in the planning of the Harbor. The federal
government has already gobbled up too much power, and is making too
many decisions that the states and cities should be making for
themselves.

The states have the right to manage their own coastlines, and the
states have traditionally delegated this authority to local govern-
ments.' k4e oppose any efforts by the federal government to change
this situation.

219

D. POLLUTION CONTROLS: We oppose stricter water quality standards.
If passed, this would mean the city has to build new sewage treatment
facilities. City engineers have doubts that there would be a signi-
ficant improvement in water quality as a result of new sewage treat-
ment plants. There are,more immediate problems which the public
expects the city to be addressing, such as the increasing crime rate,
unemployment, and the building of a new sports arena. Pollution
control is not the Mayor's highest priority.

3. OFFICE OF THE MAYOR'S PROPOSAL: (TO BE INTRODUCED IN INNER HARBOR TASK
FORCE)

Do not offer any proposals in this task force. Listen, and make
our position known, but do not offer any specific proposals.

4. POSITION ON ISSUES: OUTER HARBOR TASK FORCE

A. DEEPWATER OIL PORT: Although the prospect of many@new jobs from
such a port is attractive, the Mayor's office cannot publicly support
this BOSSPORT project because of the current political atmosphere.
Environmental groups are determined to prevent such a project, and
they have wide public support. We oppose the deepwater port in order
to maintain the Mayor's reputation as a supporter of the environ---.:
ment (and to offset criticism which the Mayor's position on pollution
controls will generate).

B. HARBOR ISLANDS: The Mayor!s Office supports the purchase of the
Harbor Islands. There is a real need for additional coastal
recreational areas, and the use of state funds to create new park
sites is appropriate.

C. ROLE OF FEDERAL GOVERNMENT: See "2-C" under Inner Harbor issues.

D. POLLUTION CONTROLS: See "21-D" under Inner Harbor issues.

5. OFFICE OF THE MAYOR'S PROPOSAL: (TO BE INTRODUCED IN OUTER HARBOR
TASK FORCE)

Do not offer any proposals in this task force. Listen, and make
our position known, but do not offer any specific proposals.

220

Handout IV-1

STATE DEPARTMENT OF NATIONAL RESOURCES (DNR) DELEGATION:

CONFERENCE POSITION PAPER

1. DNR'S PRIORITIES

A. We favor a serious attempt to improve air and water quality in
Bosstown Harbor.

B. We want improved coastal recreational opportunities for the public.

2. POSITIONS ON ISSUES: INNER HARBOR TASK FORCE

A. HARBOR EXPANSION AND MODERN J7 ATION: We oppose Bossport's plan to
expand and modernize the harbor area. Bossport has failed to file
an environmental impact statement with our office, as required by
law. Even though we believe Bossport's plans may be appropriate,
we cannot approve them at this time.

B. WATERFRONT REDEVELOPMENT: The DNR office opposes the BURP plan
because it will cause serious air pollution problems. BURP's plan
for high-rise office and hotel buildings promotes a suburban,
commuter lifestyle which will increase auto exhausts. Further it
will cut back public recreation opportunities.

DNR supports the CLEAN plan for rennovation of the Bosstown
waterfront area. The CLEAN plan will promote a very liveable,
friendly neighborhood and will discourage commuter lifestyles.
Plus, the CLEAN plan supports public recreation areas and public
use of the waterfront areas.

C. ROLE OF FEDERAL GOVERNMENT: We are certainly aware of the need
for overall planning and cooperation of state and federal agencies.
But the federal government is being too pushy, and is trying to
ram its leadership down our throats. They should be involved in
the planning process, but we oppose the federal government having
a leadership role.

3. -STATE DNR PROPOSAL (TO BE INTRODUCED IN INNER HARBOR TASK FORCE)

In recognition of the declining quality of air and water in the
Bosstown waterfront area, DNR proposes that atronger laws be
passed giving DNR increased powers to enforce air and water quality
standards. We need these new laws so that we can take polluters
to court and fire or imprison them. Only then can we have a water-
front area worth living in.

The present conditions are certainly serious enough to support
our position. Ninety percent of the shellfishing areas in the
harbor have been closed or restricted. Several public beaches
have also been closed.

221

4. POSITION ON ISSUES: OUTER HARBOR TASK FORCE

A. DEEPWATER OIL PORT: We oppose such a project. The need is not
proven, and if Bossport builds this port, it would cause serious
environmental damage. The possibility of major oil spills make
this project unthinkable. Our coastal resources are too valuable
to threaten in this way. Further, Bossport has not proven its
case that a deepwater port will really provide 10,000 new jobs.
This port will also severely interfere with recreational uses
of the Outer Harbor.

B. POLLUTION CONTROLS: We strongly support any proposals to help
control pollution in the harbor. The recent report harbor water
quality shows serious problems with disease-carrying bacteria.
And, increased recreation opportunities (which we favor) depend
on reducing pollution in the harbor.

C. ROLE OF FEDERAL GOVERNMENT: See "2-C" under Inner Harbor Issues.

5. STATE DNR PROPOSAL (TO BE INTRODUCED IN OUTER HARBOR TASK FORCE)

In recognition of the need for increased coastal public recreation
sites, the state DNR recommends that the state purchase the Outer
Harbor islands. These islands can be used for picnicking, hiking,
sailing, and fishing. The waterfront area badly needs these new
recreation sites.

Handout IV-2
222

TASK FORCE CHAIRPERSON'S REPORT

PROCEDURE FOR CHAIRPERSON:

1. Invite each delegation to present its "Opening Remarks."

2. Ask for a show of hands to see how many delegations have proposals
to present in the Task Force.

3. Begin presentation of proposals with the BOSSPORT delegation.
Delegates should state the full supporting "case" when presenting
the proposal.

4. Call for comments, questions, objections from other delegations. You
may participate in this debate, too.

5. Following discussion of a proposal, call for a vote to approve or
disapprove. Voting should be done by show of hands, one vote ner
delegation (six votes ).

6. Record vote results in space below; then open the floor for presentation
of another proposal.

Proceed as earlier; after a sul)porting case and a proposal is presented,
invite comments and questions, and then c'allfor a vote.

VOTING REPORT:

1. Record YES or NO vote of each delegation on each proposal. Show total
votes at right. Under "Decision," write "YES" or "NO." A proposal
must receive four (4) votes to pass.

PROPOSAL RECORD VOTES(YES or NO)
TOTAL DECISTON
BOSSPORT@ BURP MAYOR STATE @USBA CLEAN
DNR YES/NO
TOTAL
S7
iYE '0

Handout IV-3 223

TASK FORCE SUMMARIES

INNER HARBOR TASK FORCE

PROPOSAL BOSSPORT BURP MAYOR STATE DNR USBA CLEAN YES NO PASSED

HARBOR EXPANSION
AND MODERNIZATION

WATERFRONT
REDEVELOPMENT:
BURP PLAN

WATERFRONT
REDEVELOPMENT:
CLEAN PLAN

ROLE OF
FEDERAL
GOVERNMENT

POLLUTION
CONTROLS

OUTER HARBOR TASK FORCE
PROPOSAL @BOSSPORT BURP MAYOR STATE DNR USBA CLEAN YES NO PASSED

DEEPWATER OIL
PORT

HARBOR ISLANDS

POLLUTION
CONTROLS

ROLE OF FEDERAL
GOVERNMENT

Handout IV-3 224
Answer Key
INNER HARBOR TASK FORCE TASK FORCE SUMMARIES
PROPOSAL @OSSPORT BURP MAYOR STATE DNZR USBA CLEAN YES NO PASSED

HARBOR EXPANSION
AND MODERNIZATION YES YES NO NO YES NO 3 3 NO

WATERFRONT
REDEVELOPMENT: YES YES NO NO YES NO 3 3 NO
BURP PLAN

WATERFRONT
REDEVELOPMENT: NO NO YES YES NO IYES 3 3 NO
CLEAIN PLAN

ROLE OF
FEDERAL NO NO NO NO IYES NO 1 5 NO
COVERNiMENT

i POLLUTION NO NO NO YES YES YES 3 3 NO
CONTROLS

OUTER FL%-'RBOR TASK FORCE
PROPOSAL 1-30SSPORT @BURP MAYOR STATE DN,'R USBA ICLF--%N YES@ NO PASSED

DEEPWTATER OIL
PORT YES NO NO No YES NO 2 4 NO

HARBOR ISE@ND@s
YES YES YES YES YES YES 6 0 YES

POLLUTI N
CONTROLS NO NO NO YES YES YES 3 3 NO

ROLE OF FEDERAL
COVE RNM E'@'T NO N NO NO YES NO 1 5 NO
D]

225
UNIT 4: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 5: SHORELINE MANAG04ENT: NATIONAL LEGISLATION

TIME: 2 DAYS

PURPOSE

To familiarize students with the major federal legislative
act affecting management of the coastal region

NitATERIALS

In Package

Worksheet IV-6, "Format For A Legislative Act"
Reading IV-8, "The Coastal Zone Management Act of 1972"

OVERVIEW

Students review several problems with the use of coastal
resources. They use this list as a basis for drafting their
own coastal management legislation. Their legislation is then
compared with the actual Coastal Zone Management Act.

PROCEDURES

Part I: Reviewing Coastal Resource Problems

1. W-dte the words "Coastal Problems" and "Management Problems" as
column headings on the chalkboard. Ask students to review
in their minds all the coastal and management problems brought
Out in the course thus far.

2. Pair students up and aks each to take out one piece of notepaper.
Have each student pair work together to write down as many
of the coastal and management problems, including a short
description of each, as can be recalled.

3. Review the lists of coastal and management problems the
students report. Call 'on several students to list one of
their problems. Continue to review until all the major
problems covered in the course have been recalled. Write each
problem on the board under the appropriate heading. The
list may include several answers; the following are likely
responses:

226

Teacher's Guide

COASTAL PROBLEMS MANAGEMENT PROBLEMS

Sewage and waste disposal Limits to regulatory powers
Oil pollution (Taking Issue)
Wetlands protection Jurisdictional disputes
Recreational access Ignorance of coastal ecology
Natural hazards Disregard for coastal ecology
Conflicting uses Local vs. regional interest
Depletion of natural resources Conflicting priorities
Fragility of natural ecosystems Narrow perspective among
decision makers
Uncoordinated permit system
(delays, "red tape," etc.)

4. Ask students to now think about solutions to these problems.
How should government respond to this situation?

Part II: Drafting a_Coastal Management Act

1. Announce that students will become lawmakers and will have
to decide what action the federal government should take to
deal with the coastal and management problems which have
just been reviewed. Their lawmaking task is to draft a
"National Coastal Management Act" to become law for the
whole country.

2. Arrange the class in "Congressional Committees" of three to
four students each. Keep the original review session pairs
intact if possible.

3. Pass out the "Format For A Legislative Act" worksheet to
members of each committee. Explain that the committees will
follow the three sections of the worksheet.

Section 1 includes the findings of the committee regarding
problems in coastal resource use. Students will put many
of their coastal and management problems they identified
earlier in this section.

Section 2 includes the goals of the Act. These could range
from "preserving coastal resources" to "encouraging the use
of coastal resources in 'the development of new energy sources."
Groups should decide on one or more goals and list them here.

Section 3 briefly describes what new laws you propose, and
how they will be put into effect.

4. Have the committees begin deliberations on drafting their
version of a "National Coastal Management Act." You can
require each student to hand in a completed worksheet or
have each group work on it as a joint project.

227

Teacher's Guide

Announce that you will collect these "acts" and that students
should be prepared to present and defend their ideas.

5. When students have completed the assignment, ask each committee
0
to report on their draft of the management act. If there
are significant differences among the various committee
drafts, encourage discussion and debate.

6. Pass out Reading IV-8, "The Coastal Zone Management Act of 1972."
After students have read this summary of the actual Congressional
Act, discuss differences between the students' versions and the
actual law. Ask:

Do you think the Coastal Zone Management Act or any federal
law can make a serious difference in or changehow we use
our coastlines? Why?

228

UNIT 4: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 6: SHORELINE MANAGEMENT: STATE INITIATIVES

TIME: 1-3 DAYS

PURPOSE

To familiarize students with the major legislative acts in their
state which have an impact on management of the coastal region

MATERIALS

In Package

None

Additional

Newspaper clippings of state-wide coastal issues(optional)

OVERVIEW

Students first review several environmental. social, and planning
problems associated with the use of coastal resource in thEir states.
They then examine legislation passed in their state which actempts to
deal with shoreline problems. This teaching plan is designed so that
you and/or your students add much of the substantive information about
your state. You should contact the state Coastal Zone Management
office for information about the state's coastal areas and the status
of shoreline management legislation. The CZ14 office may be able to
provide slide shows, speakers, and various kinds of publications to
share with your class.

PROCEDURE

Begin by asking students to name ma or coastal problems that exist
0 i
in the state. Write the answers on the board. You can use the news
clippings collected for the "TV News Shows" at the conclusion of Units
1, 2, and 3 for specific examples of coastal problems.

2. Ask students what kinds of legislation or new laws would help solve
these problems. Have students suggest specific laws or regulations.

Ask students-if t:iey know of any legislation that the state has already
passed to deal with shoreline problems.

Teacher's Guide 229

3. Remind students that one possible source of new legislation is the
state's Coastal Zone Management Program. The object of this program
is to develop a comprehensive plan for the management of coastal areas.

To review the content of the state's CZM plan, ask the class to
find the answer to the following questions. Three ideas for
arranging a class activity to answer these questions are given in
procedure #4.

a. What are the boundaries of the state' coastal zone? Remember,
once boundaries are determined, the CZ114 agency has a great deal
of control over what goes on there.

b. How where the boundaries decided upon?

c. What kinds of land uses in the shoreline area are encouraged?

d. Are certain kinds of land uses in coastal areas prohibited?

e. What areas have been designated as "areas of particular concern?"
These are areas that deserve special protection or attention.
Some areas may be so identified because of their environmental
uniqueness, their historical or cultural significance, or
their intensity of development.

f. What impacts on the state's coastal region will the CZM legislation
likely have?

g. Has the CZM program recommended any new laws be passed? If so,
have they been passed or defeated?

4. Different procedures can be used by the class to answer these questions:

a. Have each student answer all or some of the questions. Use news-
paper accounts and CZM publications as sources.

b. Address these questions to the state CZM speaker if one visits
your class. Students might then write a brief report based on
their findings.

C. Have students play the role of state shoreline planners. Hand
out information on the state's shoreline, including maps and data
on different kinds of uses. If available, include projections
of future demands on the shoreline.

Have students use this data to answer these questions as though
they were preparing a state shoreline plan.

230

Teacher's Guide

UNIT 4: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 7: COASTAL FUTURES: A PERSONAL CASE STUDY

TIME: 2 DAYS

PURPOSE

To make predictions about the future of the local coastal
region.

MATERIALS

In Package

Worksheet IV-7. "Coastal Futures"
Worksheet IV-8, "Guidelines For Preferred Future Scenario"
Worksheet IV-9, "Guidelines For Probable Future Scenario"

OVERVIEW

Students consider several important factors about the future of
coastal areas. They then develop their own scenarios of the local
shoreline projecting a "probable" and a "preferred" future for the
coastal region.

PROCEDURE

1. Explain to the class that up to this time they have been studying
the shoreline and its problems from the perspective of many
different people and groups. In this lesson, the future of the local
coastal region will be described and analyzed from the perspec-
tive of each student. Pass out the "Coastal Future" worksheets
and review the worksheet assignment with students.

2. Arrange students in small groups of 3 - 4 students each to
discuss and to complete the "Coastal Future" assignment.

3. After the groups have finisheddesignate one-half of the groups
the "Preferred Future" groups, and the other half the "Probable
Future" groups.

Pass out the "Guidelines For Preferred Future Scenario" and the
"Guidelines for Probable Future Scenario" to the appropriate
groups.

Each group should now prepare a 3-5 minute presentation de-
scribing the group's view of the preferred or probable future
of the local coastal area. Guidelines for this "scenario" are
in the worksheets.

231
Teacher's Guide

4. Assist each group in formulating the content and style of its
presentation. Allow students enough time to prepare a good
presentation.

Have the "Preferred Coastal Future" groups give their presenta-
tions first. Limit each group to 3-5 minutes.

Discuss with the class any substantive differences among the
"Preferred Coastal Futuren presentations. Work toward a con-
sensus or definition of the priorities which students have
presented as being essential to their "preferred coastal
futures."

6. Have "Probable Coastal Future" groups give their presentations.

Discuss differences which have come out between the "Preferred"
and the "Probable" futures scenarios.

7. Discuss students' views of steps which can or need to be taken to
lessen, redirect, or relieve present and future stresses on
the local coastal environment.

8. For a possible homework assignment, have students write a letter
to his/her State Representative and/or State Senator describing
their hopes and fears concerning the local coastal region, and
suggesting at least one positive step to bring out the future
the stud2nt prefers. Students could write or type these letters
and turn them in to vou for reading before mailing.

STUDENT WORKSHEETS

COASTAL PROBLEMS
AND RESOURCE MANAGEMENT

A SECONDARY SOCIAL STUDIES COURSE

Now.-

STUDENT WORKSHEETS

CURRICULUM RESEARCH AND DEVELOPMENT GROUP
UNIVERSITY OF HAWAII AT MANOA'Oc 1979

Coastal Problems and Resource Management

produced by

Curriculum Research and Development Group
University of Hawaii

Ronald L. Mitchell Project Coordinator
Francis M. Pottenger Project Coordinator
Gre 'gory L. Rhodes Project Manager and Author
Ronald F. Turner Author

Contributors: Ray Conrad, Carol McCord, Susan McKay, Norman
Okamura, Faith Paul, Vicki Viotti

Production
Staff Cathy Cloud, Peter Guido. Sheri Horiuchi, Norine Igge,
Wendy Kuba, Lisa Luke, Constance J. McCurdy, Jean
Millholland, Vera Torres, Doreen Yamane

Illustrators: Wesley Chun, Ann Howard, Brian Morishige, Dennis
Saito, Paula Tanji

Copyright c) 1979 by the Curriculum Research and Development
Group, University of Hawaii. All rights reserved. No part of
this publication may be reproduced, stored in a retrieval system,
ortTansmitted, in any form or by any means, electronic, me-
chanical photocopying, recording, or otherwise, without the prior
written permission of the publisher. Printed in the United States
of America.

The development of Coastal Problems and Resource Management
was supported by the Office of Coastal Zone Management, NOAA,
Department of Commerce, Grant Number 04-7-158-44035, and the
Hawaii Coastal Zone Management Program, Department of Planning
and Economic Development, State of Hawaii.

Acknowled-ements

The process of designing, testing and revising CPRM continued for
two years. This final version reflects the combined talent, imagination,
and hard work of many people. Major contributors to the development
of the course are listed on the previous pa 'a' e, but many others also
contributed significantly to the development of CPRM. We would like
to take this opportunity to acknowledge their support, time and advice:

Edith Chave. HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Pat Chesser, Social Studies Teacher, Kalaheo High School, Kailual HI
Matthew Chow, Science Teacher, Hilo High School, Hilo, HI
John Craven, Dean of Marine Programs, University of Hawaii, Honolulu, HI
Jack Davidson, Director, Sea Grant, University of Hawaii, Honolulu, HI
John Ellington, Social Studies Coordinator, North Carolina
Stephen Jackstadt, Center for Economic Education, University of Hawaii, Honolulu, HI
Dallas Jelsma, Social Studies Teacher, Hilo High School, Hilo, HI
Barbara Klemm, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Jim Lanier, Virginia Institute of Marine Science Gloucester Pt., VA.
Kem Lowrv, Pacific Urban Studies Planning Pro-ram, University of Hawaii, Honolulu, HI
Elizabeth Lance, Office of Coastal Management, Raleigh, N.C.
Lundie Mauldin, Sea Grant, Raleigh, N.C.
Terry Meyer, Social Studies Teacher, Mid Pacific Institute, Honolulu, HI
Dick Poirier, Hawaii Coastal Zone Management Program, Honolulu, HI
Tom Speitel, HMSS Marine Science Project, University of Hawaii. Honolulu, HI
Ray Tabata, Sea Grant, University of Hawaii, Honolulu, HI
Marilyn Tomita, Social Studies Teacher, Kaimuki High School, Honolulu, HI
Donald Young, FAST Science Project, University of Hawaii, Honolulu, HI

Worksheet 1-1 3

NATIONAL SHORELINE QUIZ

(1) How many of the 50 United States are considered by the U.S.
Government to be "coastal states"? (The definition of a coastal
state is one that borders the oceans or the Great Lakes.)

states

(2) What percentage of the population of the United States lives
within 50 miles of the coastline?

10% 25% 33% 50% 65%

(3) An estuary is:

a. an iceberg that floats too near a coastline.
b. a place along the coast where fresh water and salt water
mix.
C. the scientific name for a rock crab.
d. a machine on a whaling ship used to haul whales out of the
water.

(4) Wh'ich is the most productive in terms of tons of organic matter
produced per acre?

a. desert
b. wheat field
C. salt marsh (coastal wetlands)
d. deep ocean

(5) What percentage of trade between continents is carried by ships?

10% 25% 53%' 75% 99%

(6) What percenta-e of the U.S. shoreline is set aside by the govern-
0
ment for public recreation?

2% 14% 25% 53% 65%

Worksheet I-I

(7) Sharkburgers are likely to become the next most popular sand-
wiches in seafood restaurants.

True False

(8) From the following list, name the 5 fish or shellfish which are
of most economic value to the U.S.:

Crabs 1.
Tuna
Lobsters 2.
Menhaden
Scallops 3.
Shrimp
Oysters 4.
Flounder
Clams 5.
Salmon

(9) Which state in the U.S. has the most miles of coastline9 (Coast-
line refers to the length of the general outline of the Seacoast.)

(10) What percentage of the world's water is salt water?

Tt 28%. 50% 70% 97%

------------------------- 7---------------------------------------------

S-Q score (Number correct)

S-Q rating 10 A real shoreline genius
7-9 Knows a lot about the shoreline
5-6 Can recognize the shoreline when they see it
3-4 Can recognize the shoreline if someone points
it out
0-2 Will probably drown within 10 feet of the shore-
line

(2)

7
0 Worksheet 1-2

COASTAL FEATURES

(3)

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10.

1
44'

@ -r@b

-diN
'I'l 61

---- ------

. . . . . . . . . . . . . . . .

...... ...... ........ .. . ............

. . . . . . . . . . . .

FIN/1 IV
, Iff
iimz/
OP
!@ta@ W-11-

'-t@ j'4L2
OR-
4 tX. ',K@

. . ........

Ell
7l\i

Vi
UP

VRF.

iZ4-

Worksheet 1-3

COASTAL RESOURCES DEVELOPMENT GAIIE (CRDG) -- COASTAL USES CRART

Indicate Use Requirements for each of the following major coastal uses:

1. Conservation S. Agriculture

2. Waste Disposal 9. Commercial Fishing

3. Industry 10. Transportation

4. Commerce 11. Land Transportation

5. Recreation 12. Mineral Extraction

6. Tourism 13. Defense

7. Residences (HousiLiz-) 14. Scenic-Aesthetic Enjoyment

15. Cultural-Historical Enjoyment

(17)

Worksheet 1-4 64

NATIONAL FISHERIES OFFICE
DATA QUESTIONNAIRE

1. Where are most of the U.S. fish and shellfish caught?

2. How has the value of the U.S. fish and shellfish catch changed
since 1945?

Based on this information, would you expect the future value
of the fish and shellfish catch to rise or fall?

3. Are fish and shellfish becoming a more important or less im-
portant part of the American diet? Why?

4. In what ways are estuarine areas important to the fishing interests?

5. From the data you have, what major problems are likely to arise
in the future.regarding the use of coastal resources?

(18)

Worksheet 1-5 66

NATIONAL DATA CLEARINGHOUSE
DATA QUESTIONNAIRE

1. What percentage of the nation's work force is projected to be
employed in coastal counties in 1980? If the trend continues,
approximately what percentage of the nation's work force will be
employed in coastal counties in 2000?

2. How many people lived in inland areas in 1970? According to the
projection, how many people will live in inland areas in 2000?

3. How many people lived in coastal areas in 1970? According to
projection, how many people will live in coastal areas in 2000?

4. Approximately what percentage of the U.S. population lived in
coastal areas in 1980? AQcording to the projection, what per-
centage of the U.S. population will live in coastal areas in
2000?

5. What is the projected rate of growth for inland areas from the
present through 2000? What is the projected rate of growth for
coastal areas, during that same period?

6. What effect will the projected rise in employ-ment have on the
demand for housing in coastal areas from now to 2000?

7. In what ways is land use likely to change to meet housing demands?

8. What likely impact will the increase in leisure time have on the
use of coastal resources?

What kinds of coastal activities will probably be affected?

(19)

Worksheet 1-5 67

9. How will estuarine areas be affectively increasing population
pressures?

10. From the data you have, what major problems are likely to arise
in the future regarding, the use of coastal resources?

(20)

Worksheet 1-6 70

REEF DATA QUESTIONNAIRE

1. Which 2 uses of the ocean are presently most valuable to the U.S.?
Which 2 uses will be the most valuable in the year 2000?

2. What major mineral resources are found in the U.S. coastal region?

3. Which ocean related recreation activities are likely to be the
most popular in the 1980's?

4. How productive are estuarine areas compared to other areas, such
as the ocean or agricultural lands?

5. According to the chart, "General Shoreline Data", who owns most
of the shoreline? How much of the shoreline is beach?

6. In what ways are estuarine areas important to the activities
studied in the REEF data packet?

7. From the REEF perspective what major problems are likely to arise
in the future regarding the use of coastal resources.

(21)

Worksheet 1-7 72

U.S. PORTS AND HARBORS AGENCY
DATA QUESTIONNAIRE

1. Compare the number of pleasure craft expected to be in use in
2000 with the number in use in 1964.

2. What % of boat slips in marinas are presenLly in use? How much
do you predict marina space will have to increase through the
year 2000?

3. What kinds of changes are likely to occur in ship dimensions
over the next two decades?

4. What are changes in ship dimensions going to mean for most U.S.
harbors?

5. How much more tonnage will U.S. ports handle in the year 2000
(estimated) than in 1970?

6. In what ways are estuarine areas important to the shipping in-
terests?

7. From the data you have, what problems are likely to have in the
future regarding the use of coastal resources?

(22)

Worksheet 1-8 74

ENERGY RESEARCH ASSOCIATES
DATA QUESTIONNAIRE

1. Where is most new drilling for oil and gas likely to take place?

2. What are the projected energy demands for the year 1990? How do
these compare with present needs?

3. What percentage of the U.S. population is projected to live in
coastal counties in 1980? What does this trend mean for energy
use in coastal areas?

4. In what ways are coastal areas vital to the future of energy ex-
ploration and production in the U.S.?

5. From the data you have, what problems are likely to arise in the
future regarding the use of coastal resources?

(23)

Worksheet 1-9 76

NATIONAL TASK FORCE RECOMMENDATION FORM

Four recommendations concerning crucial problems in coastal areas must
be made by your group. Check which recommendation your group favors.
If you find neither "A" nor "B" acceptable, your group can write its
own recommendation. Be sure to explain why your group made its choice.
Support your explanation with reference to your data.

RECOMMENDATION #1: POPULATION

A. Population growth should be allowed to continue as projected for
coastal areas.

B. Population growth should be limited in coastal areas-.

C. -(Other)

Explain why your group made this recommendation.

RECOMMENDATION #2: OIL

A. Future oil exploration and production should be prohibited in
coastal areas.

B. Oil exploration and production should be allowed to continue in
coastal areas.

C. (Other)

Explain why your group made this recommendation.

(24)

Worksheet 1-9

NATIONAL TASK FORCE RECOMMENDATION FORM

RECOMMENDATION #3: ESTUARIES

A. Estuarine areas should be protected from future development;
new industries, housing, and harbors should be located elswhere.

B. Development in and around estuarine areas should be allowed to
continue.

C. (other)

Explain why your group made this recommendation.

RECOMMENDATION #4: RECREATION

A. New recreation sites, including marinas and beaches, should be
developed.

B. The number of existing recreational sites should,not be expanded.

C. (other)

Explain why your group made this recommendation.

(25)

Worksheet 11-1 112
"Coastal Ecology"

9?9
r du a

Drawing
#1

T 1-2

Drawing I
#2

(26)

Worksheet 11-1 113

Drawing
#3

T I[-,

Drawing
#4

T 11-5

(27)

Vorksheet II-I

Drawing
5

t T 11-6

Drawin-
#6

T 11-7

(28)

Worksheet II-1

idol

Drawing
#7

Drawing

(29)

shorebirds spiders snails marsh grass aphids organic matter
" fa@-
bass shrimp clains phytoplankton crabs organic matter
UA (plants)

cl@

organic matter ki. II i f i sh worms bass shorebirds zooplankton
(animals)
efT.M., M@L
QMt M-,"

T@orksheet 11-3
. 9 @
-L--

I* ..... .;.@ - .-- -
mi .. 6
.:--**;r-@74101011 11

(31)

Worksheet 11-4 134

POLLUTION CHART

CATEGORY SOURCES THREAT

Oxygen-demanding Domestic sewage; industrial Can deprive water of
wastes wastes; comes from plant and oxygen; a danger to fish
animal wastes and plants

Disease causing
agents

Plant nutrients

Synthetic organic
chemicals

Inorganic chemicals
and mineral
substances

Sediments

Radioactive substances

Heat

(32)

Worksheet 11-5 147

Sewage Treatment Process

SCREEN GRIT CHAMBERI N
-77-r rANK
_JSEDIMENTATIO

-----------

Basic Treatment
Primary Stage

IAERATION TAN

A I R 0 u 0

ACTIVATED @SLUDGE

Basic Treatment
Secondary Stage

(33)

I I
,qorkshee-1- 11-6 ADJUSTMENT OPTION #1 EARLY WARNING SYSTEM

primary areas where
warning and evacuation
programs will be
deveioped

HI LO BAY

120 T

OPT ICN; An effective warning system will be developed and educational
programs conducted to inform people about tsunami dangers and
steps they can take to protect themselves and their property.
A set of emergency procedures and evacuation strategies for Hilo
will be developed.
COST: Minimal - to be paid by county and state from within existing
budgets.

SOME ADVANTAGES: SOME DISADVANTAGES:
L. low cost; 1. somewhat inneffectual in the past;
provides lead time for 2. does not entitle Hilo to federal
evacuation and removal disaster program funds;
of personal property; 3. does not provide protection against
3. provides emergency services social and economic dislocations.
for those in need;
4. no change in present land use
patterns;
5. no ecological consequences

(34)

Worksheec 11-6 213
ADJUSTMENT OPTION #2 BARRIER BREAKWATER

0C,

HILO BAY

F @F

OPTION: A barrier breakwater will be constructed across Hilo Bay. It
will be 20 feet at its base and will extend seven feet above
water. Breaks included in the design would reduce strain and
maintain circulation in the Bay.
COST: Extremely high cost to be paid by federal, state and county
governments.

SOME ADVANTAGES: SOME DiSADVANTAGES:
1. danger to people and 1. not certain that the barrier would
property in harbor and stand up under full force tsunami;
onshore would be reduced 2. cost would involve tax increases or
and possibly eliminated; reduction of present state and county
2. no change in present land services;
use patterns; 3. severe ecological consequences for
3. cost of project offset by Hilo Bay.
millions saved in damage
from future tsunamis;
4. federal money would finance
much of the project.

(35)

Q
Worksheet 'LI-6

ADJUSTMENT OPTION #3 OPEN SPACE

open space areas

earth embankment

lanscaped areas

HILO BAY

73
'7\7

OPT ION: A new city plan will remove residential, commercial and industrial
activities from the tsunami vulnerable area. Land will be purchased
and rezoned as open space to be developed into a park area. Planted
earthen embankments along the shore line will provide additional
protection.
COST: Extremely high cost to be paid by federal, state and county
governments.

SOME ADVANTAGES: SOME DiSADVANTAGES:
1. reduced danger to 1. cost would involve tax increases or
people and damage to reduction of present state and county
property; services;
2. aesthetically pleasing 2. many people would be uprooted and forced
park; to relocate;
3. ecology of Hilo Bay would 3. some might be forced to sell their
not be disrupted. property against their will;
4. does not protect harbor area.

(36)

Worksheet 11-6 220

ADJUSTMENT OPTION #4 TsUNAMI-PROOF BuILIDINGS

areas where
buildings will be
tsunami proof

fO
HILO BAY

OPT ION: The establishment of strict building regulations will require
the building of reinforced structures within the tsunami vulnerable
area.

@10ST Minimal to state and county. Major costs to be absorbed by individual
builders.

SOME ADVANTAGES: SOME DiSADVANTAGES:
1. reduced damage to property 1. construction of "tsunami-proof"
and greater protection for buildings is expensive;
t'nose who live and work in 2. no guarantee they would be totally
the area; tsunami-proof;
no change in present land 3. people might be forced to build
use patterns; structures they would not otherwise
3. cost to city and county choose to build;
minimal - would not require 4. does not provide protection for the
tax increase; harbor area.
4. wculd not dist-:r@ Cie ecology
of Hilo Bay.

(37)

Workshee t T1-6 2-1

ADJUSTMENT OPTION #5 SHOREWALL

HILO BAY

I nn Fn] n n

OPTION: A shorewall will be built along the shoreline of Hilo Bay. It will
be made of solid concrete 20 feet high.
COST: High but less expensive than the barrier breakwater or open space
adjustments - to be paid by federal, state and county governments.

SOME ADVANTAGES: SOME DISADVANTAGES:
1. protection of people 1. no guarantee the shorewall would
and property behind the withstand major tsunami;
shorewall; 2. aesthetically unattractive;
2. lower cost than barrier 3. could create flood problems if wave
breakwater or open space; went over wall;
3. no significant change in 4. might affect ecology of Hilo Bay;
present land use patterns; 5. protects only the area directly
4. would entitle Hilo to federal behind it.
disaster program funding.

(38)

@@,or'Ksheet 11-6 ?

ADJUSTMENT OPTION #6 No ACTION

ODOM
r] F1

OPT ION: This adjustment is no adjustment. Leave Hilo as is taking no
z
1-urther protective action.
C05 I- No cost involved in planning or implementing.

SOME ADVATNTAGES': SOME DiSADVANTAGEa:

i. non-interference with 1. no reduction in number of deaths
forces of nature; and injuries;
2. no initial dollar costs 2. no reduction in damage to personal
to bear; or real property;
3. no ecological consequences; 3. no reduction in social or economic
4. no disturbance of present dislocation resulting from tsunami
land use patterns. damage.

(39)

Worksheet 11-6

ADJUSTMENT RATING CARD

111GHLY DESIRABLE DESIRABLE UNDESTRABLE COMMENTS

Early Warning
System

Barrier-
Breakwater

Open Space

4@-
C)

Tsunami-Proof
Buildings

Shorewall

No Action

-cl

....... ...

41"1

.... ... . ..
IC
:q@ ie lllibl

IV,

A k
ol

0 0 0
Worksheet 111-1

FISH STORY WORKSHEET

USERS COASTAL
RESOURCES

-11,

N)
cn
N.)

0 Worksheet u@r-2 0 0

BLUE NECK BAY STUDE','ff VIORKSHEET

r-@
4@@-
U4

N)
(n
1\-)

Worksheet 111*3 27/0.

PLANNING WORKSHEET

QUESTION: Should a resort complex be built on the West Shore of Bayshore
Island?

ECONOMY

Advantages Disadvantages

ENVIRONMENT

Advantages Disadvantages

POLITICAL/SOCIAL

Advantages Disadvantages

Are there other advantages or disadvantages to building the resort that
should be considered, but which do not fit into these three categories?

(44)

Worksheet ITT-4 "Beach P@-,irk-Before"

I pi

An@

3P-0

low

Workshoet 111-4 "Beach Park-After"

]At

Cl
Cn

Worksheet 111-5 325

SH.ORELINE PLANS

PROPERTY: Your property consists of 20 acres of land located along
the northwest Pacific Coast. You have 60.0 feet of ocean
frontage and the remainder of your land lies in a roughly
rectangular shaped area behind. You do have some usable
beach, although it is quite rocky and almo&t completely
covered by water at high tide. The remainder of your
land slopes gently upward from the shore and is populated
by various plants and grasses. There are few trees on
on your land except for a stand of tall trees growing
along the shoreline. These shoreline trees obscure the
ocean view from all points behind them.

SKETCH:

0
0-

ICY)
-16

1400'

DEVELOPMENT
PLANS:

(47)

324

Worksheet III-6

PROPOSED SHORELINE REGULATIONS

1. An environmental study must be conducted before a building
permit will be issued. If the study shows that your development
plans pose no serious threat to the coastal environment, a
permit will be granted.

REASONABLE UNREASONABLE

2. Land developers must apply for a permit before any natural
vegetation is removed from the property. If clearing of land
is likely to result in erosion problems you will not be
allowed to remove vegetation.

REASONABLE UNREASONABLE

3. This land will be zoned for residential uses only. Other
activities, such as industry or tourism, will be permitted
to locate in other areas.

UNREASONABLE
REASONABLE

4. This land will be zoned as "open space" allowing only
recreational activities such as boating, swimming, camping,
and hiking. No homes, ranches, or farms are allowed.

REASONABLE UNREASONABLE

5. This land may not be developed in any way. A freeze will be
put in effect on all coastal development for an indefinite
period.

REASONABLE UNREASONABLE

(48)

4orksheet 111-7 0 9

THE BALANCING PROCESS

PRIVATE PROPERTY RIGHTS vs. THE PUBLIC WELFARE

LOW HIGH
How much damage to property
value is caused by the regulation?

MANY FEW
How many remaining reasonable uses
of the land does the regulation allow?

4@-
CLEARLY NOT
NEEDED Is the regulation needed NEEDED
to prevent a public hazard?

SUCH PROVISION SUCH PROVISION
IS INCIDENTAL Is the intent or effect of the regulation IS INTENTIONAL
to provide the public a good or service?

If the weight of the judgments If the we ightof the judgments
tilts the scales to this side, tilts the scales to this side,
the regulation is likely to be the regulation is likely to be
ruled legal. ruled a taking.

Cl)
C)

341
Worksheet 111-8

McCORD COUNTY OVERVIEW

OVERVIEW: McCord County has a small, but growing population. In the.
past, the economy of the county has depended mostly upon
agriculture, timber, and small businesses. But during the
past decade, two major industrial plants have opened adjacent
to the harbor. Population has increased almost 50%, from
17,000 to 30,000. However, the area is still relatively
undeveloped. Almost one-half of the land remains in agri-
cultural and timber activities. All undeveloped land is
presently zoned for agriculture or timber.

HOUSING: Land for new housing is needed. If any new industry or
tourist activities come into the area, more housing will
need to be built. A housing developer has already proposed
that all undeveloped land between Ocean View Road and the
shoreline be re-zoned from agriculture to residential.

TRANSPORTATION; The two lane Ocean View Road is the main coastal highway.
Recently, state officials named this road a "scenic highway".
County officials have already noted a heavier flow of traffic
along this highway and expect traffic to increase even more
during the peak tourist season. Congestion, due to heavy
truck traffic is already frequent near the narrow bridge
crossing Olman River. A new housing development on the
south side of Ocean View Road (to the west of town) has
also added considerable traffic.

HARBOR: The harbor area is adequate for present needs, but if new
industry locates in this area, harbor facilities will have to
be expanded. The state owns the harbor facility and is
seriously thinking it should expand the McCord County Harbor.
A study by a harbor construction company recommends that any
new harbor facilities should be placed in the marsh along the
Olman River. This would be considerably cheaper than enlarging
the present site.

RECREATION: At present, the major recreational facility in McCord County `.s
Ocean Side Park, located northwest of the city. This popular
area is frequently overcrowded and has an inadequate parking
facility. The park has occassionally been closed due to pollu-
tion from the sewage treatment plant on the Olman River.

WATER FACILITIES: There is sufficient water supply in McCord County to support
a population of almost 100,000. However, the sewage treatment
plant was built several years ago and is suspected of being
the major polluter of the Olman River, the marsh area and the
ocean shoreline. Any increase in population means a new treat-
ment plant must be built.

(50)

342

SCHOOLS: The public school students in McCord County are served
by the two high schools in Ocean City. Many residents
believe the schools are overcrowded; any future development
will require new schools.

BUSINESS PROSPECTS: Industry. Industry officials believe McCord County has
strong potential as a business community. Owners of two
new industries would like to expand. They are asking the
county to re-zone the land between the river and the harbor
from agricultural to industrial. This land is the best
choice for industry since it is close to the harbor, and
would be close to the new harbor facilities if they are
built in the marsh area.

Tourism. Tourism officials also see McCord County as a
possible site for new business. Since Ocean View Road has
been chosen as a "scenic highway" tourist traffic has
already increased. Hotel and resort owners recently visited
McCord County and announce that they would like to buy land
between the park and Olman River if it is rezoned to commer-
cial. Another important concern for the tourism representa-
tives is that recreation space in the county is inadequate.
If new recreation sites aren't provided, fewer resorts will
be built. Tourism officials are also concerned about the
expansion of industrial sites. If many new industries 1,0 cate
in McCord County, the tourism officials feel that it will
seriously hurt their business.

TAXATION POLICIES: Land in McCord County is taxed in the following manner, from
highest to lowest rates:

1) Industrial land
2) Residential and commercial land
3) Agricultural and timber land

At present, McCord County's tax revenues (the money it
receives from taxes) are barely covering county expenses.
Additional tax dollars will have to be raised, or services
will have to be cut and needed new facilities, such as
schools and parks will not be built. Some officials are ad-
vocating that the county should sell the marsh lands to
raise additional funds.

(Si)

North 0
L)ND USE MAP OF MCCORD COUNTY

KEY

Agriculture
r-l Residential Commercial OCEM HARF
Lj

Industrial

77mber

Marsh Scale

sewage
plant

0.
()ceaf\

PARK
. ..............

Oe -.1

344

PLANNING ASSIGNMENT

TASK 1: The county government has decided upon seven major goals to
guide its approach to the long-term development of the county.
To you, some of these seven goals may be more important than
others. Some goals may be in conflict with other goals.
Considering your point of view(tourism or industry), list the
seven county goals in order from most important to least
important.

Goal 1: MAINTAIN AND EXPAND RECREATIONAL ACCESS AND FACILITIES
Goal 2: PRESERVE AGRICULTURAL AND TIMBER LAND
Goal 3: ATTRACT NEW INDUSTRY
Goal 4: PROVIDE NEW RESIDENTIAL AREAS
Goal 5: CONTROL LEVELS OF POLLUTION
Goal 6: IMPROVE PUBLIC FACILITIES AND SERVICES(OTHER THAN
RECREATION)
Goal 7: KEEP COUNTY TAX RATES AS LOW AS POSSIBLE

COUTNTY GOALS IN ORDER OF IMPORTANCE:

TASK 2: In the space below identify which management tool could be used
to achieve each goal. Also, explain how each tool might be used.
Examine the map of McCord County carefully in order to show where
new improvements might be built, land acquired, zoning changed,
etc. If you do not think some of these goals are worthwhile,
indicate that you do not want to achieve them, and explain why
you made this decision.

Goal 1: MAINTAIN AND EXPAND RECREATIONAL ACCESS AND FACILITIES

How might this be achieved?

(53)

345

Where will these facilities be improved or located?

Goal 2: PRESERVE AGRICULTURAL AND TIMBER LAND

How might this be achieved?

Which areas will be preserved?

Coal 3: ATTRACT NEW INDUSTRY

How might this be achieved?

Where will industry be located?

Goal 4: PROVIDE NEW RESIDENTIAL AREAS

How might this be achieved?

Where will residential areas be located?

(54)

346

Goal 5: CONTROL LEVELS OF POLLUTION

How might this be achieved?

Coal 6: IMPROVE PUBLIC FACILITIES AND SERVICES(OTHER THAN
RECREATION)

Row might this be achieved?

Where will these facilities be located?

Goal 7: KEEP COUNTY TAX RATE AS LOW AS POSSIBLE

How might this be achieved?

Worksheet IV-1 352
FLORIDA

1.. Describe Florida's weather:

2. Identify where the following
resources are located:

Resource Map Key

Estuarine areas "Ell
Timberlands "T"
Agricultural lands "A"
Oil fields 11011
Fishing areas 11P
Mineral deposits 1IM11
Harbors, - "He'

3. Label major lakes, rivers
and cities.

(56)

Worksheet IV-2 3 34

FLORIDA DATA CHART

1S21 1900 1900 1945

POPULATION I@EVEL
AND GROWTH RATE

RESOURCES USED
IN, o w and by whom")

SOCIAL/POLITICAL
DEVELOPMENITS

EN17TROriMENTAL
IN-PACTS

(57)

Worksheet IV-2 353

FLORIDA DATA CHART

1945-Present (Predicted) 1945-Present (Actual)

POPULATION LEVEL
AND GROWTH RATE

RESOURCES USED
(How and by whom?)

SOCIAL/POLITICAL
DEVELOPMENTS

ENVIRONMENTAL
IMPACTS

(58)

'3 7

WurksheQt IV-3

TLANNING WORKSHEET

QUESTION: Should BASF be permitted to build a chemical plant on the
Colleton River?

ECONOMY

Advantages Disadvantages

ENVIRONMENT

Advantages Disadvantages

POLITICAL/SOCIAL

Advantages Disadvantages

Are there other advantages or disadvantages to building BASF's chemical
complex that should be considered, but which do not fit into these three
categories?

(59)

Worksheet IV-4 416

VOTING SHEET

INNER HARBOR MY POSITION REASONS FOR
ISSUES FORAGAINST MY POSITION

1. Harbor expansion and
Modernization: Should
BOSSPORT expand the
harbor and build
containerized facilities?

2. Waterfront Redevelopment:
Should the waterfront area
be restored to preserve its
historic tradition-, or be
torn down to build a
modern commarcial and
residential area?

3. Role of Federal Government:
Should the federal government
have a major role in deciding
the future of Bosstown.
harbor?

4. Pollution Controls: Should
tough pollution laws be
passed and enforced for
the Inner Harbor area?

(60)

Worksheet IV-A 417

VOTING SHEET

OUTER HARBOR MY POSITION REASONS FOR
ISSUES FOR/AGAINST MY POSITION

1, Deepwater Oil P ort:
Should BOSSPORT
build a deepwater port
facility?

2. Harbor Islands: Should
harbor islands be purchased
by the state for
recreation purposes?

3. Pollution Controls: Should
new, tough pollution laws
be passed and enforced
for the Outer Harbor?

4. Role of Federal Government:
Should the federal
-overnment have a major
role in deciding the
future of Bosstown
Harbor?

(61)

Worksheet I-V-5
421

NAT,1E DELEGATION TASK FORCE #

1. My Delegation's Planning Proposal was approved not approved.

2. 1 feel our proposal was given a fair hearing was not given a
fair hearing.

3. The basic outlook (goals/attitudes) of each delegation seemed to be:
(include a description of your own delegation.)

BOSSPORT

B.U.R.P.

BOSSTOWN MAYOR

STATE D.N.R.

U.S.BUS. AD.

C.L.E.A.N.

4. Would you describe this conference as successful? Why or why not?
(what specific problems occurred?)

(62)

431

Worksheet IV-6

FORMAT FOR A LEGISLATIVE ACT

TITLE: NATIONAL COASTAL MANAGEMENT ACT

SEC.l: COMMITTEE FINDINGS

This section describes the reasons for this new law.
Several statements should be listed citing political,
economic, and ecological facts of the situation, and
summarizing the major problems of the present situation.

The Congress finds that:

(1)

(2)

(3)

(4)

SEC.2: DECLARATION OF POLICY

This section describes the main objectives which the
Congress seeks to achieve through passage of the Act.

The Congress finds and declares that it is the national
policy to:

(1)

(2)

(3)

(4)

(63)

432

Worksheet IV-6

Sec.3: OPERATIONAL SECTION

Here are listed the specific laws you propose and how
they will be enforced. You will need to consider whether
the federal government in Washington will be in charge, or
will you allow the states to plan and carry out the
program? Who will be in charge of enforcing these laws
and regulations? Will there be fines or penalties for
those who violate the Act?

(1)

(2)

(3)

(4)

(5)

(6)

(64)

Worksheer- 440

COASTAL FUTURES

Instructions: Complete the three assignments below in the space
provided for each.

1. Based upon the knowledge you now have of coastal problems and of
resource management, list several problems that currently affect
0 1
our local coastal region.

2. Identify and describe in the boxes below: (1) one problem of the
present which you think will be effecLively solved in 2000; (2) one
problem of the present which you tirl-i-rik- will not be effectively solved;
(3) one problem which will have in fact worsened; and (4) one
problem which may be entirely new.

3. Identify two or more causes of the problem you list in #1 above.
Identify one positive step in each case which you think might
or should be taken to lessen, redirect, or relieve the cause of
the problem. Indicate whether this positive step should/would
be taken by you as an individual, by a special interest group,
or by the government.

--------- ------------------------------------------------------------

1. LOCAL COASTAL PROBLEMS

tj)

(2)

(3)

(4)

(5)

(6)

2. PROBLEMS

A Problem which will be A Problem which will not be
effectively solved: effectively solved:

A Problem which will A Problem which may arise:
worsen:

_j I

(65)

Workshees IV-7 441

(COASTAL FUTURES)

3. CAUSES OF PROBLEMS

(1) Cause of Problem:

CATEGORY: Economic Social Environmental Political (Circle One)

ACTION STEP To Lessen, Redirect, or Relieve this cause:

(2) Cause of Problem:

CATEGORY: Economic Social Environmental Political (Circle One)

ACTION STEP To Lessen, Redirect, or Relieve this cause:

(3) Cause of Problem:

CATEGORY: Economic Social Environmental Political (Circle One)

ACTION STEP To Lessen, Redirect, or Relieve this cause:

(66)

Worksheet IV-8 442

GUIDELINES for Preferred Future Scenario

(A) CONTENT

A "Scenario" presents a specific possible future. Your pre-
sentation group's scenario should capture vividly your group's
ideas on

(1) what the coastal environment and situation would be like
in 2000 if the present trends and situations you consider
to be "positive" become even more important or widespread,
and

(2) how it might come about that these trends or situations
become more important and widespread.

Thus, your scenario should both describe what your preferred
coastal future will be like, and give a "chronology" of several
imagined future events which could have happened to lead up
to this "preferred future of 2000."

Scenario writing is like writing a play or a novel about the
future. Your scenario should be pointed, and dramatic.

(B) FORMAT

You may present your scenario in any way your group wishes to
get across its main ideas. Possibilities range from a straight-
forward reading of your scenario to making collages, doing a
slide or slide/tape show, acting out a short "play," to doing
anything your group can imagine.

(67)

Worksheet IV-9 443

GUIDELINES for Probable Future Scenario

(A) CONTENT

A "Scenario" presents a specific possible future. Your pre-
sentation group's scenario should capture vividly your group's
ideas on

(1) what the coastal environment and situation will be like
if present trends and situations you are now aware of simply
continue. Your aroup's view of our coastal future may turn
out to be generally negative, positive, or mixed. The
main focus in this ass4-nment is on probability -- do you
think it will really be this way in 2000?

(2) how this probable future might come about -- what actions,
trends or imagined events would lead up to this probable
future your group envisions?

Thus, your scenario should both describe what future your group
sees as probable, and give a "chronology" of imagined circum-
stances or events bringing this probable future about.

Creating a scenario is like writing a play or a novel about the
future. Your scenarios should be pointed, and dramatic.

(B) FORMAT

(68)

,ii STUDENT WORKSHEETS

71.

COASTAL PROBLEMS.
AND RESOURCE MANAGEMENT

STUDENT READINGS
A SECONDARY SOCIAL STUDIES COURSE

77\

CURRICULUM RESEARCH AND OEVELOPMENT GROUP
UNIVERSITY OF HAWAII AT VAANOA 0 1979

COASTAL PROBLEMS
AND RESOURCE MANAGEMENT

A SECONDARY SOCIAL STUDIES COURSE

produced by

Curriculum Research and Development Group
University of Hawaii

Ronald L. Mitchell Project Coordinator
Francis M. Pottenger Project Coordinator
Gregory L. Rhodes Project Manager and Author
Ronald F. Turner Author

Contributors- Ray Conrad, Carol McCord, Susan McKay, Norman
Okamura, Faith Paul, Vicki Viotti

Production
Staff Cathy Cloud, Peter Guido, Sheri Horiuchi, Norine Ige,
Wendy Kuba, Lisa Luke, Constance J. McCurdy, Jean
Millholland, Vera Torres, . Doreen Yamane

Illustrators: Wesley Chun, Ann Howard, Brian Morishige, Dennis
Saito, Paula Tanji

Copyright @ 1979 by the Curriculum Research and Development
Group, University of Hawaii. All rights reserved. No part of
this publication may be reproduced, stored in a retrieval system,
ortransmitted, in any form or by any means, electronic, me-
chanical photocopying, recording, or otherwise, without the prior
written permission of the publisher. Printed in the United States
of America.

The development of Coastal Problems and Resource Management
was supported by the Office of Coastal Zone Management, NOAA,
Departmeni of Commerce, Grant Number 04-7-158-44035, and the
Hawaii Coastal Zone Management Program, Department of Planning
and Economic Development, State of Hawaii.

Acknowledgements

Edith Chave, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Pat Chesser, Social Studies Teacher, Kalaheo High School, Kailua, HI
Matthew Chow, Science Teacher, Hilo High School, Hilo, HI
John Craven, Dean of Marine Programs, University of Hawaii, Honolulu, HI
Jack Davidson, Director, Sea Grant, University of Hawaii, Honolulu, HI
John Ellington, Social Studies Coordinator, North Carolina
Stephen Jackstadt, Center for Economic Education, University of Hawaii, Honolulu, HI
Dallas Jelsma, Social Studies Teacher, Hilo High School, Hilo, HI
Barbara Klemm, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Jim Lanier, Virginia Institute of Marine Science Gloucester Pt., VA.
Kem Lowry, Pacific Urban Studies Planning Program, University of Hawaii, Honolulu, HI
Elizabeth Lance, Office of Coastal Management, Raleigh, N.C.
Lundie Mauldin, Sea Grant, Raleigh, N.C.
Terry Meyer, Social Studies Teacher, Mid Pacific Institute, Honolulu, HI
Dick Poirier, Hawaii Coastal Zone Management Program, Honolulu, HI
Tom Speitel, HMSS Marine Science Project, University of Hawaii, Honolulu, HI
Ray Tabata, Sea Grant, University of Hawaii, Honolulu, HI
Marilyn Tomita, Social Studies Teacher, Kaimuki High School, Honolulu, HI
Donald Young, FAST Science Project, University of Hawaii, Honolulu, III

INTRODUCTION TO ST UDENTS

The materials in this book of readings are meant to be used along
with teacher presentations, worksheets, and other Coastal Problems and
Resource Management Course activities. They are not designed to be read
and understood by themselves but will make sense as they are assigned by
the teacher and as the course moves along.

You will notice that each page has several numbers on it. The numbers
to be used throughout this book are those found at the bottom center of the
page in parenthesis ( ). These are the numbers referred to in the Contents.
Ignore the numbers in the upper right corner as they are for teacher refer-
ence. The headings in the upper left corner (Reading I-1) refer to the
Unit in which the Reading is included and the number of the Reading within
that Unit, e.g. Reading I-1 means that this reading is in Unit I and is the
lst reading in Unit I.

CONTENTS

Acknowledgements

Introduction to Students

UNIT 1: 'AT THE WATER'S EDGE
Reading 1-1 Coastal Terminology I

Reading 1-2 National Talk Force Information 6

UNIT 11: UNDERSTANDING COASTAL ECOLOGY

Reading II-1 Coastal Ecology 29

Reading 11-2 Pollutants in the Waterway 31

Reading 11-3 The Savannah Marshlands:
A. River That Kills 33

Reading 11-4 New Creature From the Deep:
The Sludge 36

Reading 11-5 Oil on Troubled Waters 39

Reading 11-6 Changing Status of Wetlands 42

Reading 11-7 Wetlands Face Murky Future 44

Reading 11-8 Natural Hazards in the Coastal Region 50

Reading 11-9 Tale of Two Tsunamis 60

Reading 11-10 Four Years After the Wave 65

UNIT III: RESOURCE MANAGEMENT: POLITICS AND
PLANNING IN THE COASTAL REGION

Reading 111-1 The Daily Splash 68

Reading 111-2 A Fish Story 69

Reading 111-3 The Case of Blue Neck Bay 75

Reading 111-4 The Future of Bayshore Island 80

Reading 111-5 Resource Management Plans 83

Reading 111-6 Gotham Tirnes-Picayne Editorial 89

Reading 111-7 Neptune Beach City Council Public
Hearing 90

Reading 111-8 Daily Splash Editorial Page 95

Reading 111-9 Coastal Land Use and the Taking
Issue 100

vii

Reading III-10 Dooley v. Town Plan and Zone
Commission of Town of Fairfield 104

Reading 111-11 McCarthy v. City of Manhattan Beach
(California) 105

Reading 111-12 Morris County Land Improvement
Company v. Parsippany-Troy Hills
Township 106

Reading 111-13 Just v. Marinette County 107

UNIT IV: CASE STUDIES IN SHORELINE 'MANAGEMENT

Reading IV-1 Growth and the Environment-The Case
of Florida 108

Reading IV-2 Do Chemicals and Carolina Mix? 116

Reading IV-3 Fact Sheets 117

Reading IV-4 The Atlantic Oil Sweepstakes 123

Reading IV-5 Bosstown Harbor Planning
Conference Program 126

Reading IV-6 Boston Harbor and The Real Thing 131

Reading IV-7 RM: Growth Pains 133

Reading IV-8 The Coastal Zone Management Act
of 1972 137

viii

Reading 1-1 21

COASTAL TERMINOLOGY

BARRIER ISLANDS

Many coastal areas have a number of long, low islands located
just off shore. These low ridges of sand and gravel are called
barrier islands, and are separated from the coastline by lagoons,
sounds or bays. These islands provide the natural protection for
coastal regions against hurricanes and other storm related activities.
Barrier islands are found along most of the Atlantic Coast south of
New York, the Gulf Coast, and in northern Alaska. On the Pacific
Coast, barrier islands are rare and are found only in a belt along
northern Oregon and southern Washington.

BAY

A wide, open curving indentation of the sea or a lake into the
land is called a bay. Bays are both large and small, ranging from
a few hundred feet across to hundreds of miles wide. Because the
waters within are protected, bays are frequently much calmer than
the surrounding ocean or lakes. Many ports are located on bays to
take advantageof the quiet waters (i.e. San Francisco, California).

BEACHES

Beaches are made of sand, rock, and/or gravel and are covered
and uncovered as the tides move in and out. The beach is a dynamic
environment with sediments being washed landward by wave action,
moved seaward by backwash and carried laterally along the shore by
the currents.

ROCKY BEACHES

Beaches filled with small rocks and large boulders jutting out
into the waters are called rocky beaches. As the tides come in and
go out, these rocks are covered and uncovered by water. A large
number of plants and animals (such as rock crabs, barnacles, seaweed,
mussles, etc.) make the rocky beach their home. Tide pools are a
common feature of rocky beaches. When the tide goes out, little
pools are left behind trapped between the rocks. These pools are
filled with marine organisms and present a great opportunity to view
the seaworld close-up.

Reading 1-1 22

SANDY BEACHES

Sandy beaches are composed of tiny fragments of shell, coral or
rock (coarsely and/or finely ground). These beaches are constantly
shifting as material is constantly added or taken away. Because of
the heat of the sand and the constant wash of the waves, many animals
live underground in the sandy beach environment.. A few inches below
the surface live a variety of animals, including shrimp, clams, crabs,
beetles, and worms.

BREAKWATERS

A breakwater is a low, wall-like structure built to reduce or
eliminate wave action in the region between the breakwater and the
shore. Generally made of large rocks or concrete, breakwaters are
often constructed as an aid to coastal navigation. In the calm
waters behind the breakwater, boats can travel and dock safely.

CONTINENTAL SHELF

The relatively shallow ocean floor extending out from the con-
tinental land mass is called the continental shelf. Along the Atlan-
tic Coast of the U.S. the shelf usually descends gradually (five to'
10 feet per mile) and extends out as much as 200 miles. On the
Pacific side, the shelf extends offshore only about 40-45 miles. The
Continental Shelf is a highly valuable region for mineral and commer-
cial fishing resources.

CORAL REEFS

Corals are animal colonies that grow only in shallow, clear,;
tropical waters. In large numbers they form reefs near the shore-
line, which rise to or nearly to the surface of the water. There
are three types of coral reefs: fringing reefs, barrier reefs, and
atolls. Fringing reefs grow along rocky shores of islands and
continents and are found very close to shore, while barrier reefs
parallel the shores for great distances (i.e. Great Barrier Reef,
Australia) and are relatively distant from the shore. An atoll is a
ring-shaped reef that encloses a lagoon. Coral reefs are noted for
their beautiful colors and formations; they are the home for a rich
and colorful array of fish and other marine life. Coral reefs are
found only in the coastal waters of two states, Florida and Hawaii.

(2)

Reading 1-1 23

DELTA

Deltas occur wherever rivers deposit more sediment into the sea
than can be carried away by waves or currents. This sediment accum-
ulates until it rises above the water level. These delta areas are
relatively flat and commonly contain marshy.areas, lagoons, and
lakes. The Mississippi River delta in the Gulf,of Mexico is the
largest delta region in the United States.

ESTUARIES

Estuaries occur at the mouths of rivers where fresh and salt
water mix. The flow of the river and the pulse of the tides combine
fresh and salt water. Estuaries are one of the most naturally pro-
ductive regions on earth, supporting a wide variety of animal and
plant life. Marshes are frequently found in estuarine areas.

FLOOD PLAIN

The flat area that borders a river channel is called the flood
plain. It is subject to flooding and is composed of sediment de-
posited by the river during periods of high water,

GROINS

Groins are man-made rock, concrete, steel, or timber structures
which extend from the shore out into the water. They are built to
prevent the drifting of sand caused by wind, waves and currents.
Shorefront owners often build groins (in some areas called jetties)
to prevent their beaches from being washed away.

HARBOR

A harbor is a part of an ocean, sea, or river that is suffi-
ciently protected from wind, waves, and currents to be used by vessels
for the transfer of passengers and cargo from ship to shore. Harbors
are either natural or artificial. Natural harbors are those that can
be used without major engineering improvements. Artificial harbors
have been created through construction to afford protection from
waves, currents, and wind or to deepen the bottom for larger ships.

(3)

Reading 1-1 24

MANGROVE SWAMPS

In warm climates marshy areas are often covered with mangrove
trees which grow in salt water. These trees begin growing at the
land's edge and move out to deeper water. Dead leaves from the man-
groves, plus droppings from birds that live in the trees help make
mangrove swamps very rich in nutrients and supportive of much wild"
life.

PIER

A pier is a platform that extends out into the water from the
shore. It can be used to dock boats, to fish, and for other water-
front activities. Piers are made of a variety of materials including
steel, timber and concrete.

SALT MARSH

Low, heavily vegetated areas within reach of ocean tides are
called salt marshes. These marshes are often abundant along coasts
with many bays or barrier islands. Marshes are dominated by grasses
and support diverse communities of organisms including shellfish,
birds, crabs and fish. Salt marshes are frequent along the Atlantic
and Gulf states.

SAND DUNES

A sand dune is a mound, hill or ridge of wind-blown sand. Dunes
are formed where there is a source of sand, a wind strong enough to
carry it, and a land surface on which to deposit it. Until plant
life grows on the dune, the dune is likely to blow away or move along,
pushed by the wind. Once plants take hold, the dune is likely to re-
main in one location. Sand dunes serve as protection for areas in
times of flooding or high winds.

SEAWALLS

Seawalls _--r- Lan-made structures constructed along the edge of
the shore to provide protection against erosion, wind and water
damage. They can provide a substitute for natural features, such as
sand dunes. Seawalls are also called bulkheads or revetments.

(4)

Reading 1-1 25

SPITS

Spits are narrow strips of sand extending into bays or lagoons.
Spits are connected to the coast line or to an island, and are formed
by waves and currents piling up sand and.sediment.

WAVE-CUT CLIFFS

Wave-cut cliffs are steep slopes cut against the land by waves
and shore currents. The continuing force of the surf steadily erodes
away the face of the cliff. The exact speed of erosion is mainly de-
termined by the composition of the cliff. Wave-cut cliffs are exten-
sive along the Pacific Coast.

(S)

Reading 1-2 41

Office of Coastal Resources

M E M 0 R A N D U M

TO: National Task Force Members

FROM: Office of Coastal Resources

RE: Task Force Directions

It is becoming increasingly apparent to citizens throughout the
country that coastal areas (including the Great Lakes region) are
coming under enormous pressures from use and abuse.

The value and importance of coastal resources to all Americans
should be clear. If we continue to allow these resources to be
misused, we will Jeopatdize their use by futuie generations.

These concerns for coastal regions are shared at the highest levels
of government. There is a need now to evaluate the nation's use of
coastal regions and their resources. You have been selected to
participate as a member of the National Task Force on Coastal Use.
This task force will review available data on this subject concerning:
(1) the changing use of coastal resources; (2) the degree to which
demand upon coastal resources is increasing; (3) the extent of the
damage already evident in coastal areas.

You will be asked to make recommendations on several vital issues.
Your assistance will help this office formulate coastal policy
recommendations for submission to the U.S. Congress.

To aid you in your deliberations, the Office of Coastal Resources
has enclosed a data package which various agencies have compiled
from current sources. This material.includes charts, tables, maps
and graphs concerning coastal resource use. Please consider this
information and discuss its implications before arriving at your
conclusions.

Recommendations should be submitted using the forms provided by our
office. Forward all forms to: Office of Coastal Resources,
Washington, D.C. 20202. Your assistance is greatly appreciated.

(6)

Reading 1-2 42

National
Data
Clearinghouse

Director, National Task Force
Office of Coastal Resources
Washington, D.C.

We would be most happy to share with you what information we have re-
garding occupational and population trends in the United States.
Attached is a set of data concerning population growth and occupa-
tional statistics, with emphasis on the coastal areas.

In addition, our researchers have included information related to the
amount of leisure time available to the average American.

Some other potentially useful facts:

- The 30 coastal and Great Lakes states currently contain more
than 75% of the population.

- Estuarine regions within these states constitute 15% of the
state's land, but contain 33% of the coastal population.

- The seven largest metropolitan regions in the U.S. have signi-
ficant portions of their areas within the coastal zone.

- Agriculture is an important commercial activity in many coastal
areas. In California, for example, 35 million acres of agri-
cultural land are located within coastal counties. This land
supports 350,000 job holders.

National Data Clearinghouse would be interested in the results of your
Task Force work.

Sincerely,

B. A.4Werker
Research Director

(7)

Reading 1-2 43

PERCENTAGE OF TOTAL U.S. LABOR
EmPLOYED IN 394 COASTAL COUNTIES, 1950-80

TOTAL U.S.: 56.4 MILLION WORKERS TOTAL U.S.: 64.6 MILLION WORKERS

COASTAL COASTAL
COUNTIES: COUNTIES:
25.4 MILLION - 30.7 MILLION
WORKERS WORKERS
45.03% 47.52%

1950 1960

TOTAL U.S.: 79.5 MILLION WORKERS TOTAL U.S.: 93.8 MILLION WORKERS

COASTAL COASTAL
COUNTIES: COUNTIES:
38.6 MILLIO 46.9 MILLION
WORKERS WORKERS
48.55% 49.95%

1970 1980

(8)

44
Reading 1-2

GROWTH OF U.S. POPULATION GROWTH OF LEISURE TIME
IN INLAND AND COASTAL AREAS PER EACH 24 HOURS

400 24

Sleep and rest
300 18

Inland
200 12 -Jork an
personal care,.'.-.*-.'."-.-.-*.".--.'*':
E

0
-Xit
4J
Ln

100 6
i2.

Leisure tim
Coas a I----

X14 jj_-
2

0
1970 1980 1990 2000 1970 1980 1990 2000
Year Year

(9)

Reading 1-2 45
Resources
Energy
Economy
Food

Director, National Task Force
Office of Coastal Resources
Washington, D.C.

We received your letter requesting data on ocean resources and the
economic value of the coastal zone, and would be happy to help with
what information we have.

One valuable source is the Magnuson study, recently released by the
U.S. Senate Commerce Committee, concerning the economic value of the
ocean. A summary table derived from this report is enclosed.

Related information compiled by our staff is presented in graphs
demonstrating the comparative value of terrestrial and marine produc-
tion. Other diagrams present general shoreline data and uses of the
coastal zone, including recreation and the extraction of mineral re-
sources.

Two other facts may be of interest to your committee:

Between 1922 and 1955, over one-quarter of the salt marshes
in the United States were destroyed.

Most marine life is concentrated in the coastal areas, com-
prising only 3% of the total ocean area.

Thank you for the opportunity to be of assistance.

Sincerel

Anne Chovey
REEF Associat irector
y
soc iat@irect

Reading 1-2 46

THE VALUE OF THE OCEANS
TO THE U.S. ECONOMY

Ocean Activaties 1973 2000

OIL
Offshore production @24 bil. 10.5 bi I.

NATURAL GAS t
Offshore production @800 mil. 8.3 bil.

TRANSPORTATION i
JiT aw 2.6 bil. 1$11.4 -bi 1.
Cost of shipping goods in U.S. vessels

RECREATION
Spending for recreation in or on 1.0 bill. 2.5 bil.
oceans

ENERGY
Power rom ocean currents, tides, 0 6.3 bi I.
thermal gradients

FISH 6880 mil. 44.0 bil.
Catch for food, industrial uses

MANGANESE 0 300 Mil. -
Nodules mined by U.S. ships,

Reading 1-2 47

MAJOR COASTAL MINERAL RESOURCES

@
Key
SGSand and gravel.
G Natural gas
P Petroleum

Number of Quantity Produced
Region & Commodity Operations Amount Units Value

North Atlantic
Sand and gravel 116 10,068,000 tons $10,611,000
Middle Atlantic
Sand and gravel 232 12,299,000 tons 20,193,000
South Atlantic
Sand and gravel 6 137,000 tons 89,000
Gulf of Mexico
Petroleum 311 775,970 barrels 92,138,579
Natural gas 830 12,977,008 cu. ft. 22,540,516
Natural gas 138 3,321,951 gallons 64,513,281
Clay 5 6,724,608 tons 36,036,697
Pacific Southwest
Sand and gravel 216 64,696,906 tons 73,307,506
Pacific Northwest
Sand and gravel 155 26,750,606 tons 34,447,779

(12)

TRENDS IN OCEAN RELATED RECREATION ACTIVITY m
cu
1965-1980

500

450'
Swiming

40&-

C/)
35D
c@
b_6 Fishing

cc
300,
c:)

U_
25
c/) Boating
c:)
20D -

150-

10 Water-
Skiing
50- Surfing
of Di.ving
1965 1970 1975 1980

YEAR

Reading 1-2 49

GENERAL SHORELINE DATA

Shoreline Ownership (excluding Alaska)

FED.
GOV'T.

11% STATE
AN L CAL
12% GOWTS
PRIVATE uncertain
70% 7%

Shoreline Physical Characteristics
(Excluding Alaska)

WITH
BEACH

33%
WITHOUT BEACH
67%

(14)

TERRESTRIAL AND MARINE PRODUCTION

5-10-2

.............
1 112 5

Ln ........... ................

1/3 1 112- ....... ..................... .... -1 1 112

-1/3 - - ------ ...... ..... 1/3

TTrT'rl"M ..... lllllllllllllrTTT"r=

DRY MOIST
DESERT AGRICULTURE AGRICULTURE ESTUARY C@OAST@AL

Reading 1-2 51

U.S. Ports
and Harbor Agency

Director, National Task Force
Office of Coastal Resources
Washington, D.C.

In response to your recent request, we have compiled some information
regarding boating and shipping uses in coastal areas.

Enclosed is a series of charts and graphs which depict:

(1) A comparison of trade handled by ship and airplane

(2) The impact and demand for marinas

(3) Estimates on the size of large vessels in the future

(4) The amount of cargo handled by U.S. ports

Some other important facts to consider include the following:

Present world sea commerce traffic lanes use only 1% of the
entire ocean surface, resulting in conflict over traffic
space.

Over 40 of the largest 50 U.S. cities have thriving port
activities.

Most channels in these ports are only 35 to 45 feet deep--
too shallow to accommodate growing ship dimensions.

Over 75% of the nation's ports are located on estuaries.

We hope that this information will prove helpful in your efforts.

S;nrere
4-

I. I. Capt n
Public Information Assistant
' tin
.ant

(16)

Reading 1-2 52

GROWTH IN NUMBER OF PLEASURE CRAFT IN U.S.

20-

15
co

5
0 F
1950 1968 2000
(3 1/2 million) (8 1/2 million) (26 million)

(17)

Reading 1-2 53

IMPACT OF MARINAS

As with most water-based recreation activities, boating is heavily depen-
dent upon related land-based facilities. Both freshwater and saltwater
boating require the following land-bAsed services:

(1) Sales outlets (6) Storage
(2) Major servicing (7) Transportation
(3) Maintenance (8) Lodging
(4) Fuel (9) Food
(5) Access or mooring (10) Recreation
(11) Weather notification

DEMAND FOR MARINA FACILITIES

In a nationwide study of 417 marinas by the National Association
of Engine and Boat Manufacturers, it was reported that the lack
of slips and moorings was the largest single factor retarding
the sale of new boats and motors. From the 417 marinas:

(1) There was a total of 35,592 slips
(2) 94 percent of these slips were,occupied
(3) 397 said more boats could be sold if more slips were available
(4) 77 percent of all marinas were 100 percent occupied

(18)

54
Reading 1-2

INTERCONTINENTAL TRADE HANDLED BY
SHIP AND AIRPLA14E

By plane - 1%

By ship - 99%

PROJECTED SHIP DIMENSLONS
1970-2000

Type of Ship 1970 1980 1990 2000

General Cargo or
Container Ships
Length (feet) 850 930 1010 1050
Draft (feet)* 36 39 40 40

- - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - - -

Tankers
Length (feet) 1135 1460 1570 1570
Draft (feet) 72 98 104 104

*Draft is the depth of water a ship draws when loaded.

(19)

Reading 1-2 55

SHIPPING TONNAGE HANDLED
BY U,S. PORTS 1970-2000

1400 million
1400-

1200--

1000-

C@l

ce 80Q.
CD

V)
2-1 600--
440 million

400-

20G

1970 2000

Year

*Short Ton 2,000 lbs

(20)

56
Reading 1-2

National
Fisheries Off im

National Task Force Members
Office of Coastal Resources
Washington, D.C.

Our office is pleased to provide you with the information regarding
fishing resources of the ocean and coastal area. We have enclosed
the graphs and tables showing the following:

Per capita consumption of commercial fish and shellfish since
1960

The changes in worth of fish and shellfish in the U.S. since
1950

The amount of fish caught by the U.S. from varying distances
offshore

In considering the future of U.S. fishing resources, the following
facts about estuarine resources should be kept firmly in mind:

--Many popular seafoods such as crab, shrimp, oyster, salmon,
and flounder, are all dependent on estuaries for their devel-
opment.

--Fish valuable for industrial uses, such as menhaden, are also
dependent on estauries.

--In any given year, about two-thirds of the total value of all
U.S. commercial fishing comes from estuarine-dependent species.

The National Fisheries Office is concerned with public awareness of
the uses of the coastal zone, and hopes this information will help
you with your research.

Sincerely,

isher
Pub ic Relations Officer

(21)

57
Reading 1-2

PERCENTAGE OF COMMERCIAL U,S. FISH
AND SHELLFISH CATCHES BY-DISTANCE FROM U,S. SHORES 1976

200+ MILES
15%

0 3 MILES 12-200 MILES
45% 24%

3 12 MILES
16%

(22)

VALUE OF FISH AND SHELLFISH IN U,S, 1945 1973

1000

crQ
900 -

boo -

700 -

600 -

500 -

400

300

200

100

o I
44 45 46 47 48 49 50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 66 67 68 69 70 71 72 73

Yea r

U.S. PER CAPITA CONSUMPTION
OF COMMERCIAL FISH AND-SHELLFISH

13.0

12.5

12.0

11.5

11.0

10.5-

10.0-
1960 19'61 1992 196h 1964 1995 1966 19'67 19h 109 100 19h 1912 103 104 l9h-706

Reading 1-2 60

ENERGY
Research Associates

National Task Force Members
Office of Coastal Resources
Washington, D.C.

Our researchers have drawn together the following information which
may help you understand the relationship between U.S. energy needs
and the coastal region.

1. The coastal region is a site of intensive energy use. Fifty
percent of the manufacturing facilities in the U.S. are located
in the coastal region, and nearly 50% of our population lives
in coastal counties.

2. Many of our energy sources are located in coastal areas,
particularly oil and gas.

3. In the future, most of our oil and gas will come from offshore
areas; this is because most of the easily located inland sites
have already been found.

4. The U.S. imports 40% of its petroleum needs; this percentage is
likely to increase during the next few years. Nearly all of
this imported petroleum travels by tanker; thus, our ports
and harbors are vital links in the energy chain.

The following charts and maps further describe the energy situation.
If our office can provide you with further information, please let
us know.

Sin el

m Power
Director, Energy Research
Associates
A
e
Po@la
am w

(25)

PROJECTED ENERGY DEMAND*. FOR U.S,

60 - OQ

ss -

so -

Cd
10
45 -

Cd
>
40

440 35
0

0
.14U 30

20-

1960 1965 1970 1975 1980 198S 1990

Year

*Demand is the total amount of oil, coal and other sources of energy
that are needed. This chart expresses demand in terms of the number
of barrels of oil needed to meet the entire energy demand.

62
OUTER CONTINENTAL SHELF AREAS UNDER CONSIDERATION
FOR LEASING BEGINNING,1976

POSSIBLE IMPACTS OF OUTER CONTINENTAL SHELF OIL DEVELOPMENT

ON COASTAL AREAS

PRIMARY EFFECTS:

1) Construction of refineries

2) Construction of gas processing plants

3) Construction of petrochemical complexes

4) Construction or enlargement of ports and harbors

SECONDARY EFFECTS:

1) Water pollution

2) Shoreline damage

3) Disruption of wetlands

!4) Increase in population

5) Increased employment opportunities

6) Increased supply of oil

(27)

Reading 1-2 63

THE MOVE TO THE COAST

50 50%

45%

41%
..........
40 ..........6..........
0
Ln ................... .........
4-J a) ..................---........ . . . . . . o .
. . . . . . . . . . . . . . . . . . . . . .. . . . . .
(0 .- . .- * -

0 a
cl- u 30% ...............
30 . . . . . . N
.... .... . .. ...........

25%

. . . . . . . . . . . . .
4-) 0 . . . . . .......
. . . . . . . . . . . . . . . . . , * ,
. . . . . . . . . . . . . . . . . .. . . . . . . . . .
(0 (-) .: . . . . . . . . . .
4m- 20 ....... .......

. ..........
4-) X . . . . . . . . . . . .

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . .
X

. . . . . . . . . . . . . . . . . . . . . . . . .
10 . . . . . . . . . . . . . . . . . . . . . . . . .
o o .
. . . . . . . . .. . oo o. . . . . . . . . . . . . . . . . . . . . .
. . . . . . . .... . . . . . . . . . . . . . . . . . . . . . . . o . o
. . . . . . . :. . . . . . . . . . . . . . . . . .o. . . . . . . .
. . . . . . . . . . . . . . . . . . .. . . . . . . . . .
. . . . . . . ....

o. . .o
.... ......
..:.. . . . "**" . . . . o
0 . . . . . . . . ..............:
1850 1900 1950 1960 1980
(projected)

(28)

Reading 11-1 101

COASTAL ECOLOGY

Human actions and natural events can bring change to the coastal
region. Here, even actions and events which seem minor sometimes have
far-reaching effects. In order to make wise decisions about coastal
development, we need to know how possible actions are likely to affect
conditions in the coastal environment. A good deal of the knowledge we
need has been discovered by scientists called ecologists,

Ecology studies the interactions of organisms with their non-living
environment and with each other. It is a complex science drawing on
many other fields of knowledge for its insights. However its basic
ideas are fairly simple.

Ecologists study what are called ecosystems. An ecosystem includes
all the interactions between plants, animals and physical things within
a particular set of boundaries. The area enclosed by the boundaries
can vary from quite small to very large. An aquarium, a tidepool, a
harbor, an estuary, an island, a cubic mile of ocean, an entire coastal
watershed area from the shore to distant mountains -- any of these areas
can be regarded as an ecosystem. Whatever the size of the area, the
ecologist's task is to trace out the relationships existing between
living and non-living things that exist there; to discover the patterns
of that particular ecosystem.

All ecosystems have certain characteristics in common. First,
all parts in the ecosystem are connected in some way or another.
(When you think about it, that is what we really mean by a system.)
For example, fine silt washed into an estuary reduces the amount of
sunlight penetrating down into the water. This reduces the quantity
of single-celled algae that can grow and that, in turn, cuts down the
food supply of aquatic animals which feed on the algae. The amount of
aquatic life determines many other delicate relationships existing in
the estuarine ecosystem.

Secondly, the nature of most ecosystems will remain amazingly
constant over a long period of time.

A third characteristic of ecosystems is that there are patterns
of events which recur over and over. These patterns are called ecological
cycles. Some ecological cycles are long, some are short, but taken
together, all work to overcome stresses or restore balances within the
ecosystem. Rivers are recharged by cycles of evaporation, rain, and
ground water runoff. If predators kill too many of their prey then the
predators starve. The prey re-populate, restoring a balance. Ecological
cycles renew the ecosystem.

(29)

Reading 11-1 102

Because the parts are all connected, human actions taien to solve
one perceived problem often cause or create new problems elsewhere in
the system. Commercial fertilizers and pesticides, for example, will
increase agricultural productivity of farmland, but they may also seep
into water supplies and contaminate drinking water. Impacts can show
up far away. The pesticide DDT, widely used in South America, is now
being found in the tissue of Antarctic penquins. Impacts can show up
in unexpected ways. The bald eagle is threatened with extinction because
DDT has affected its ability to reproduce -- its egg shells have become
thinner and crack easily. Fewer eaglets survive.

Coastal ecosystems are particularly vulnerable to disruption, yet
human interference with their functioning is constantly increasing.
Coastal ecosystems are unusually biologically productive regions. Our
knowledge is far from complete, but some ecologists have projected that
as much as 60-80% of all life in the sea begins in coastal waters and
wetlands. Only in the last decade has there been a significant public
awareness of the damage we are doing to our coastal environment.

In the United States, laws now exist which require that environmental
impacts be researched, made public, and seriously considered before any
new development may begin. Many people call for stronger measures.
Others say there is already too much regulation, and that restrictions
should be relaxed. As a coastal citizen, you are in the middle of this
debate.

The first step toward an intelligent response to the development
versus preservation argument is to understand something of coastal ecology.
How do coastal ecosystems work? Why are they important to us? How can
things we do damage coastal ecosystems? These are the themes of Unit
Ii.

(30)

Reading 11-2 132

POLLUTANTS IN THE WATERWAY

Pollution comes in many different forms. Salt can be a pollutant;
sand can be a pollutant. So can chemicals, pesticides and waste products
from industry and homes. Fertilizers from agricultural fields and hot
water can pollute. Almost anything we make or use has a byproduct or
waste product associated with it. When we discard these wastes, they
can often pollute rivers, damage estuaries, foul beaches, kill wildlife,
close fishing grounds, or ruin drinking water.

According to the Environmental Protection Agency (the major Federal
agency with responsibility for monitoring the environment) there are
eight major types of pollutants which enter waterways.

1. Oxygen Demanding Wastes -- When oxygen demanding wastes enter
the water, they will use oxygen needed by fish and other wildlife.
These wastes come from human sewage, food processing industries, paper
mill production, and other manufacturing processes. Adequate sewage
treatment removes many oxygen-demanding wastes.

2. Disease Causing Organisms -- These pollutants are infectious
organisms which come from sewage and certain kinds of industrial wastes.
People or animals contact these disease-causing agents by drinking water
or through swimming, fishing, or other activities. According to the
World Health Organization, 80% of the world's cases of disease are trace-
able to unclean water. Modern treatment facilities have greatly reduced
the danger from these kinds of pollutants in the United States, but the
problem must be constantly watched.

3. Plant Nutrients -- A certain amount of plant nutrients in the
water is essential for algae, water weeds, and other plants to grow.
Nutrient pollution occurs when an excess of these nutrients overstimulates
the growth of water plants, causing unsightly conditions and unpleasant
odors. Further, they c@n choke waterways and interfere with treatment
processes. Large amounts of these nutrients come from sewage, certain
industrial wastes, and drainage from fertilized lands.

4. Synthetic Organic Chemicals -- Washing dishes may seem innocent
enough, but many types of detergents and other industrial and household
cleaners contain synthetic organic chemicals. The production of plastics
and other petroleum-based products are other sources of synthetic chemicals.
Some of these substances are poisonous to aquatic organisms and humans.
They cause taste and odor problems, and resist conventional treatment
processes.

(31)

Reading 11-2 133

5. Inorganic Chemicals and Mineral Substances -- Acids, solid matter,
and many other chemical compounds are included in this group. Regular
waste treatment facilities do not reduce the impact of these pollutants.
Inorganic chemicals and mineral substances are discharged from mining
and manufacturing processes, oil field operations, agricultural operations
and natural sources. Water used in irrigation picks up large amounts
of minerals as it filters down through the soil on its way to the nearest
stream. These pollutants kill fish and other aquatic life, corrode
expensive water treatment equipment, and increase commercial and recrea-
tional boat maintenance costs.

6. Sediments -- Sediments are found in all waterways. These particles
of soil, sand, and minerals carried along by streams and rivers are pro-
duced by the natural process of erosion. Sediments become a serious
problem when too great a volume of sand and silt is carried by rivers
or deposited in estuaries and bays. This can occur from such things
as flooding, construction projects, and from the channelization of water-
ways. This last practice speeds the flow of water preventing sediments
from naturally falling to the river bed. Sediments clog harbors requiring
expensive dredging, and fill reservoirs reducing their capacities.
Fish and shellfish populations may be damaged. Sediments also decrease
the penetration of sunlight into the water, thus reducing plant life.

7. Heat -- Water must contain oxygen to support aquatic life.
Heat reduces the capacity of water to hold oxygen. With less oxygen
available, water is less capable of supporting the bacteria to decompose
oxygen-demanding pollutants. Higher water temperatures can also affect
the life cycles of much marine life. Warmer temperatures can cause fish
eggs to hatch too early in the spring before the natural food organisms
needed by the young fish are available. Salmon may not spawn if the
water is too warm. Marine life also uses more oxygen as the water temp-
erature rises, yet as noted above, water holds less oxygen when it is
warmer. Heat, or thermal pollution, comes mainly from power plants and
industry. They pump water from a river or ocean to use in cooling pro-
cesses and return it at higher temperatures.

8. Radioactive Substances -- Radioactive pollution results from
the mining and processing of radioactive ores, from the use of refined
radioactive materials in power reactors, and from fallout following nuclear
tests. In the U.S., care has been taken to prevent radioactive substances
from entering our water systems. This is important because conventional
water treatment plants do not reduce radioactive pollution.

(32)

136

Reading 11-3

The Savannah Marshlands: A River That Kills

The Savannah River is a This comfortable theory
great water system, with an became subject to serious doubt
average daily flow of 7 billion when the Army Corps of Engineers
gallons. As the river nears its made detailed studies of the
mouth below the city of river's flow in the early
Savannah, it splits into many 1960's. The Corps determined
channels which wander through that fully 30% of the total
the river delta to -inundate river flow fed into the South
coastal inlets. Here the line Channel, which in turn fed into
between river and sea is the Wilmington River and the
blurred; it changes with the network of small tidal creeks
tides. This vast intertidal south of Savannah. This study
region forms the Savannah indicated that the marshlands of
marshlands, one of the great South Carolina as well as of
estuarine basins of America. Georgia were receiving millions
of gallons of sewage and factory
Until recently, the pollution daily.
Savannah River and marshlands
area provided something else for Who were the polluters?
delta residents -- a dumping They were the City of Savannah
ground. All municipal and -- raw, untreated sewage from
industrial wastes from the area 120,000 people; the Union Camp
went virtually untreated into paper mill -- 40 million gallons
the main channel of the river. of waste water a day; American
The actions and attitudes of the Cyanamid -- 700,000 pounds of
industries and the township of acid per day. These were the
Savannah were characterized in "Big Three." Union Camp was the
the phrase: "A house has a world's largest paper bag mill.
garbage can; Savannah has a American Cyanamid -produced
river." titanium dioxide, a white
pigment used to write the m's on
Given the great number of M & M candies, among other
streams and channels, things. Savannah claimed it
Savannahians did not believe couldn't afford to build a
that one polluted channel could sewage treatment plant.
make much difference. The
marshes, they said, were miles Each polluter maintained
from the factories and city the effects of its wastes were
sewage outlets. Concentrating tolerable., and no one had hard
the pollution in the main river facts to disprove their
channel, they contended, arguments.
actually protected the marshes
and small c-.-e:,k. for fishing,
swimming, and wildlife breeding.

(33)

137

Reading 11-3

SXVI@N . A'
f4 If tvrp, DM@ @j

-M@ VARXZNW: AREAS stwas @J@',I.K'@

wq'iro.A IF

'AC*M

(I-A19OLINA

r_4ot4rs#4

VNIOm IGAWAV
CAMP

CITY

e
D tin
(XAC WJI*

Ample circumstantial evi- Studies of the river water
dence developed, however, that showed a 17 mile slug of "dead
the marshlands were in serious waterl' from upstream of the
danger. Ever since the 1940's, large industries to the area
many thousands of Savannah's past the last sewage outfall.
best oyster producing acres had Here the dissolved oxygen level
been closed by the Department of was too low to support aquatic
Health, as human sewage life. Not only were there no
contaminated the water near the local fish left, but the river
oysters. Nearly 98% of all the pollutants were killing those
commercially important fish on species which swam from the
the Georgia coast depended ocean to inland fresh waters to
directly on the marshes for lay their eggs. Union Camp's
survival -- -@@d -_11 of the wastes accounted for 80% of the
commercial fish harvests had oxygen-consuming pollutants
been declining over many years. filling this section of the
river.

(34)

138

Reading 11-3

Listing the pollutants one oxygen. Thus the level of
by one, it could be and was dissolved oxygen throughout the
argued that no one of them was a Savannah delta sank. August was
serious hazard. But the river's the very month that the marsh's
natural systems worked a cruel oxygen needs were greatest. For
multiplication with the at this time, the marshlands
different pollutants. As one were teeming with all manner of
pollutant enters a river, it newly hatched organisms.
often makes the river organisms
more vulnerable to the attacks The danger of unanticipated
of other pollutants. There is a pollution disasters was always
11synergistic" effect, which present. On July 17, 1968, a 50
means that the total impact is foot section of earthen dike in
far greater than the sum of the American Cyanamid's holding pond
individual pollutants. gave way,- releasing 3-1/2
million pounds of raw sulfuric
For example, along with its acid into the river. Fish died
acid,, American Cyanamid for miles down the river, not
discharged up to 130 tons of only in the Savannah but also in
soluble iron compounds daily. the Wilmington, which Cyanamid
The presence of iron affects the officials insisted their
ability of marine organisms to pollution never entered.
tolerate other toxins in their
systems. . The interaction Nevertheless, each polluter
between iron and acid is still claimed its wastes did not
particularly toxic. With iron constitute a threat to the river
in the water, levels of acid in system and the estuarine area.
the water normally tolerated by Each presented plausible data
the fish become lethal. and arguments, and all used
strong political counterpressure
Synergy was not the only to resist effective regulatory
multiplier. Timing was another. action against them. It might
Each August, factories were at be true that the individual
peak production, and heavy rains actions of each of these
washed large amounts of organic polluters alone was not enough
oxygen-demanding wastes into the to create a ' disaster. But
river. The river's water together, they threatened the
temperature was also UP$ vital ecosystem of the
reducing its capacity to hold marshland.

(-35)

148

Reading 11-4
NEW CREATURE fROM ThE dEEP:
ThE

Picture yourself relaxing If you react with a
on your favorite beach. Ah, resounding "YECCHH!" you're not
what bliss! The sun beams so different from residents of
delicious warmth, the,sky id a New York and New Jersey, who
cloudless blue..you settle back have been forced to deal with a
into a comfortable position on similar situation, particularly
the sand and close your eyes ... a over the past few years.
wave breaks gently on the
shore...and a mass of sticky, What is this awful stuff?
black goo laps up around your Nothing mysterious--it's only
feet. sludge, which is a polite name
for human waste solids removed
Sticky black goo? by treatment plants from raw

Tilt

LON6 ISLAND SOOND
7

J%
SCACM

to
j
Aviv
0

.. . . . .....

A::

14 ky
O@
16,%

Location of New York Bight, including sewage sludge dumping site and surrounding
area.

(36)

149

Reading 11-4

at th e end of July 1976, when
thousands of dead fish washed
- - - - - - - - - -
@7.7777 ashore at Beach Haven, New

..................................
Jersey.

T
HIGH 5LUDGE While the occurrences on
shore seemed shocking enough,
the condition off the coastline
ovm
GE and under the surface was
rV1
LO pathetic. A much larger number
7::P]/@A of marine organisms had died,
and the pollution covered an
area of over three thousand
square miles.

The presence of sewage
Ca encouraged the abnormal growth
of bacteria. This resulted in
the depletion of oxygen in ocean
sewage. Other cities, like Los water, below the level fish need
Angeles and Philadelphia, also to survive. Specifically, while
pipe sludge into the ocean, but oxygen/water proportions of two
New York remains king. Today ' parts per million (ppm) is the
over 80 percent of all sewage minimum required for fish to
sludge dumped into the sea takes live, by mid-September 1976,
place in the New York Bight. The large areas of water had dropped
Bight, a triangular, bay-like to levels between 0 and I ppm.
segment of the Atlantic Ocean is
bounded on two sides by the New
Jersey and Long Island shore-
lines. It takes in sludge from
13 million people in the
metropolitan New York area
not to mention the daily 250 to
400 million gallons of untreated
sewage that flows into the
Hudson River and New York
Harbor. This practice has been
going on for the past 45 years.
P11
In 1973, over four million tons
of sludge were dumped in the
relatively small area of*the New
York Bight. As if this weren't
enough, dredge and construction
debris, plus acid and industrial
wastes accompany the sludge into
the ocean.
FFM
The impact on marine life
has been enormous. The plight 0
of the coastal ecosystem was Oxygen content, normally 5-6 ppm dropped
demonstrated most drainatically to a level of 0-1 ppm in 1976.

(37)

150

Reading 11-4

Slowly (very slowly), the Why such delays, such
public was awakened to the fact reluctance? The alternatives to
that their waters were unsafe sludge dumping land disposal
for swimming, for fishing, for and incineration are not very
almost everything. Reports were popular. Land for disposal is
published in 1968 and 1969 about hard to come by in an
the sludge dumping; a New York overpopulated area like New York
congressman pointed out that and incineration is expensive.
sludge was killing off crabs, However, other metropolitan
lobsters and fish in a 20- areas have found solutions:
square-mile area; and in May instead of using Lake Michigan
1970, the Food and Drug as a cesspool, Chicago now ships
Administration (FDA) closed an its sewage sludge to
area of the bight 12 miles in agricultural sections of
diameter to shellfishing. But Illinois for soil improvement
nothing stopped the dumping. and land reclamation and even to
Florida citrus groves to use as
compost.
vou w III one. night Over a century ago, Chief
Sealth, a Duwamish Indian, wrote
suffocate to President Franklin Pierce:
in your own waste' "We know that the white man
does not understand our
ways-The earth is not his
brother but his enemy
Soon, however, civic groups ... Continue to contaminate
and political leaders along with your bed and you will one
some members of the scientific night suffocate in your own
community began to put pressure waste.
on the Environmental Protection
Agency and other government Today, his words bear a sadly
offices to ban the dumping. The prophetic ring. It will be
7PA finally announced that no interesting to see what kind of
more sludge dumping permits bed the New York area wakes up
would be issued after 1980. in by 1981.

(38)

159

Reading 11-5

spills threaten coastal areas
Oil on troubled waters

Oil enters the world's
waterways everyday, usually in
small quantities from natural
fissures in the ocean floor or
from the routine cleaning and
_7i
maintenance of ships. As Ion g
V
as these incidents are not
concentrated in too small an !4ANTUC" r.
area, the natural processes of
marine ecosystems can break down
these oil "spills" and keep the
extent of oil pollution to A
minimum.

However, large oil spills, The Argo spill after 12 days.
like the Santa Barbara,
California, oil platform
disaster, and the wrecks of maneuverability contributed to
large oil tankers, may severely the accident. By the following
damage the marine environment. week, the disabled ship began to
break up, spilling 'its entire
Moreover oil spills create cargo, and .placing nearby
short-term economic problems for fishing grounds in,danger.
many kinds of shorefront
businesses and activities. The oil thickened, forming
Tourism, fishing, and recreation large floating pancakes (from 50
interests all may be, seriously to 90 feet across and several
affected. With the development inches thick). These oil slicks
of larger oil tankers many continued to drift east, driving
experts expect the danger to hundreds of sea birds to shore,
increase. endangering the humpback whales
that migrate through the region
An example of a major oil and the gray seals that live in
spill occurred with the recent the area during the winter.
wreck of the Argo Merch nt.
Pursuing a course through Local residents were most
clearly charted but stormy seas concerned by the economic losses
in the Nantucket Shoals area off suffered by the fishing
Massachusetts, the Argo ran industry. Moreover, the
aground. Though the AM was nation's taxpayers were hit with
only a medium sized tanker 640 a clean-up bill of over $5
feet in length?. its lack of million dollars.

(39)

160

Reading 11-5

Scientists, ecologists, and close to shore. Massive
other experts are deeply dredging and , construction
worried. Transportation of projects will be required to
petroleum by sea has increased accomodate such vessels.
steadily since World War II, and Spil.ls from today's
the dimensions of the ships to conventional tankers have killed
carry it have grown accordingly. large numbers of diving birds
Ships like the 18,743-ton and marine organisms. Though
capacity Argo Merchant are surviving marine animals can
dwarfed by the new supertankers. often cleanse themselves of oil,
Japan's Globtik Tokyo, for scientists are unsure of their
instance, is 1,243 feet long, ability to overcome the effects,
with a carrying capacity of of a supertanker spill. if
476,292 tons. Even this size spilled oil from a supertanker
will be surpassed when several floated into the shoreline
550,000 ton ships now under areas, the impact could be even
construction are completed. On worse than that of the Santa
the horizon, the Globtik Tokyo Barbara, California oil spill of
owners have announced plans for 1969. Waterfowl and 'other
a 750,000 ton tanker. Some in coastal wildlife, to say nothing
the shipping industry are of commercial, recreational, and
thinking about a supertanker tourist activities would be
able to hold 1,250,000 tons of greatly threatened.
oil.
With the recent completion
When loaded, a million-ton of the Alaskan oil pipeline,
tanker would be too massive to concern for oil spills now
enter any existing port in the focuses on the Alaskan
world, or even to come very shoreline. Port Valdez is the

OULP OF ALASKA
lea, 49,

Although Port Valdez is well-located for oil transport, tanker maneuvering is
barred by glaciers, narrows and bad weather.

(40)

161

Reading II-1

sou.thern end of the pipeline, Many people oppose the use
and here, giant tankers will of giant oil tankers. In this
load the oil and begin their country, some argue that the
journey to world markets. environment would be better
Before the pipeline opened, no protected if oil were obtained
tanker had ever sailed into by expanded offshore production
Valdez, and for good reason. rather than relying on marine
Ships must squeeze past the transportation. Oil pollution
treacherous narrows, avoid from drilling is less than 5
icebergs, and frequently percent of that by transport.
navigate through storms and fog.
The effect of a supertanker Offshore drilling
spill on marine life in places operations, however, have been
like Port Valdez would probably known to produce oil spills.'
be calamitous. Few ecologists are happy about
this option, considering it
Even though the great merely the lesser of two evils.
tankers create potential Clearly, though, a choice will
ecological nightmares, it is a have to be made. Within the
fact that only one has yet been next few decades, something will
involved in a major oil spill. suffer: either the economic
The Amoco Cadiz lost 220,000 benefits of supertanker oil
tons of crude oil of f the French transport or the marine
coast in April of 1978. environment which it endangers.

Supporters of the petroleum
industry note that significant
spills in the past, like the
1969 Santa Barbara incident and
the Argo Merchant, have not
caused permanent damage to
coastal ecosystems. While
immediate damage has been
severe, over several years the
natural shoreline processes have
generally cleaned the polluted
waters. Even shore bird and
shellfish populations, which
suffered immediate losses, have
recovered within a few years.
Scientists will closely monitor
the Amoco Cadiz site , to
determine the long-term effects
of the world's biggest oil
spill.

(41)

Reading 11-6 165

CHANGING STATUS OF WETLANDS

PART 1

Waring, George E., Jr. Draining for Profit and Health. (Orange Judd
Publishing Company, New York,

Chapter IX: "The Reclaiming of Salt Marshes"

Hundreds of thousands of acres that might be cheaply reclaimed,
and made our most valuable land are abandoned to the inroads of the
sea. Fruitful only in malaria and mosquitoes, these wetlands are
always a dreary waste, and often a grave annoyance.

There exists over our seaboards virgin land, replete with every
element of fertilization, capable of producing enough food for the
support of millions of human beings. Instead, it is all allowed to
remain worse than useless. The poor upland areas near them are
teeming with populations whose lives are endangered and whose comfort
is sadly interfered with by the insects and the malaria which the
marsh produces.

All of its bad effects are produced by the water with which it is
constantly soaked or overflowed. Let the waters of the sea be
excluded and a proper outlet for rainfall be provided, and this land
may become the garden of the continent.

PART 2

Rick, Glenn A. "Tidal Mud Flat Being Transformed to a Spacious
Recreational Area," The American City. (December, _, pp. 100-101.)

Mission Bay is a shallow marsh area in the City of San Diego.
Largely unused for centuries, the city is transforming Mission Bay
into a multi-purpose project combining a small boat harbor, an aquatic
park, and a vast recreational development, with many of its acres
retained as wildlife refuge. With the cooperation and assistance of
the state and federal government, 3,600,000 cubic yards of sand have
been placed in the bay to create 237 acres of new land.

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Reading 11-6 166

The people of San Diego have given their willing and enthusiastic
support to this idea by putting through a $2 million bond issue.
Looking ahead to the anticipated return to the city, San Diego is
encouraging the lease of areas of land for commercial development, and
has. already received about 100 applications from firms and individuals
planning various business set-ups, ranging from good hotels to boat
concessions.

Tourism and recreation are an integral part of life in Southern
California. The tourist trade constitutes what amounts to a major
industry here, matching the income from agriculture and only slightly
below the industrial and Navy payroll. The Mission Bay project wilI
convert acres of the wetland area into recreational facilities for
thousands of people. Its economic significance was the determining
factor in giving this undertaking a high priority in San Diego's
plans.

PART 3

"Where Man-Made Marshes are Taking Hold," U.S. News and World Report.
(July 12, _, p. 36.)

Near New Orleans, Louisiana, were the Mississippi River flows
into the Gulf of Mexico, scientists and the U.S. Army Corps of
Engineers are experimenting with an idea that could lead to the
construction of lush and productive marshlands.

Similar projects are under way elsewhere around the country, but
the largest man-made marsh is the one created here last year, which
includes 350 acres. Already it is attracting new life. Native
grasses have grown quickly, and the new lands have been adopted by
muskrats, wading birds, and other waterfowl.

Artificial marshes also have been constructed in Connecticut,
Oregon, California, Virginia, Georgia, and Texas. Scientists are
planning a man-made marsh near the mouth of the Columbia River between
Washington and Oregon that will measure 12,000 feet wide, and 1 mile
long. Conservation,groups have praised the Corps of Engineers for
creating new marsh areas to help replenish the nation's dwindling
supply of wetlands.

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ecologists confront developers
wetlands face murky future

Environmentalists moan Despite the growing
that the wetlands are awareness that wetland areas are
disappearing. Big deal. us unique ecological systems, many
far as I'm concerned, we're of these vitally productive
better off without them, anyway. areas still face the threat of
They're full of snakes, and destruction from human
mosquitos, and blood-sucking activities.
leaches. Theyfre no good for
swimming, and the marsh grasses
choke the motor on your boat. ESTUARIES
And, on top of it all, they
stink. So what if all the Where a river flows into
wetlands are being filled in? I the ocean, the area in which the
say, 'good riddancel"' freshwater mixes with the salt
is known as an estuary. The
Whose words are these? No resulting combination of
single individual can be nutrients, water temperature,
credited, but many Americans and salinity forms an ideal
have a similar attitude. breeding ground for many marine
organisms. In fact, between 60
In the past, people have and 80 percent of all commercial
placed little value on the fish species spend at least part
world's wetlands. Industrial, of their development period in
commercial, and housing estuarine areas.
interests needed new lands for
developments, and since wetlands However, estuaries attract
were considered fairly worthless humans as well as marine
areas, they were filled in and organisms. Of the ten largest
cemented over for these uses. cities in the world, seven
border estuarine areas: New
In recent years, however, York, Tokoyo, London, Shanghai,
wetlands have been recognized as Buenos Aires, Osaka, and Los
the chief breeding areas for Angeles. In such areas,
marine life. Their importance estuaries have often become
has been linked closely to the dumping giounds for the gamut of
fortunes of the fishing human wastes, including sewage,
industry. Old prejudices industrial debris, silt from
against wetlands do not die construction, and heated water
easily, however. Many people from electric generating plants.
still picture estuaries, The San Francisco Bay area and
marshes, mangrove swamps, and Boca Ciega Bay near St.
barrier islands as damp, humid, Petersburg, Florida, have gone
mosquito-ridden and generally through extreme changes in the
unhealthy nu isances. estuarine environment from

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dredging and filling (see on the receiving end of the
Figures 1 and 2). Increasing accompanying pollution.
population has led developers in Spawning areas, oyster and clam
these and other areas to fill in beds and other fishing grounds
wetlands so that new housing and have been destroyed or seriously
businesses can be built. damaged. In Connecticut, the
shellfish industry earned $20
million annually from 1900 to
1920. It now takes in only
about $1.5 million each year.

Poisons in human and
industrial wastes are killing-
some fish species; others can't
survive the changes in water
SAN F R ANI C I S C 0BAY temperature f rom electrical
generator discharges. When dams
are built along rivers,
Bay lands freshwater is prevented. f rom
entering the ocean, and the
already diked
or filled- estuarine water becomes too
salty for some organisms to
live. Excess silt is loosened
by construction activities and
PACIFI washed downstream to the estuary
OCEAN where it buries potentially
valuable shellfish beds.

BARRIER ISLANDS

When a severe ocean storm
strikes along the U.S. coastline
particularly the section
Figure 1. In addition to areas indicated stretching from Maine to Texas
on the map, significant portions of the -- local residents can thank the
bay are potentially fillable. barrier islands in their region
for protection from the full
Perhaps the most, drastic destructive force of such a
example of estuarine destruction storm.
centers is the East Coast
"Megalopolis" region, the In addition to their role
heavily populated coastline as a shield against the violence
stretching from Boston t o of storms, barrier islands
Washington, D.C. Here are provide a shelter behind which
concentrated some 35 million wetlands can flourish, and give
people. Estuaries are usually shelter to birds, as well as

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CA/,

0
0

C%
0

fit
1945 b ]YOU 1955
Ic

J
0

Figure 2 During the postwar years, Boca Ciega Bay in
Florida followed a familiar trend in estuarine development.
C; To accomodate the population of nearby St. Pet6rsburo,
1965 dredging and filling operations in the bay increased
'04 dramatically over the years from 1945.to 1963.

............

other land and marine life. beachfront property that barrier
Figure 3 depicts the elements of islands provide has increased
a barrier island environment. dramatically over the past
decade. Of the 281 major
Real estate developers barrier islands located along
think barrier islands are nice the Atlantic and Gulf Coasts, 70
places too; the demand for the. have been at least partially
developed.

.50 va i I in g
-40
'30
.20
10 h i f gure 3. .A typical barrier
mar ocean island formation, showing the
Ir slough @ing wide spectrum of ecologies
i al beach stable dune beach from ocean to tidal creek.
cr ek forest dune berm

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As in most ecologically
fragile environments, when
people begin moving onto the
barrier islands, wildlife begins
moving out.

MARSHES AND MANGROVE SWAMPS

When conditions of tide and
temperature are right in
estuaries or along barrier
islands, lush salt marshes or
mangrove swamps frequently
develop. Tall grasses Fi gure 5. A mangrove swamp, with the
characteristic intertwininrl roots of the
characterize the salt marshes, mangrove trees.
while mangrove trees -- small
and leafy with intertwining frequently compete with the
roots -- flourish in mangrove marshes for space. As cities
swamps (see Figures 4 and 5). continued to grow, the demand
Both environments attract a for more land became critical.
spectrum of plant and animal People also wanted to eliminate
life, and a complex, productive disease-carrying mosquitos and
ecosystem results. Herons, other pests from the wetlands.
cranes, shrimp, wor , crabs, Dredging and filling these
clams, algae, and scores of marshes and swamps seemed a good
different fish species all find cure for these ills. The
accomodation in these wetland disappearance of wildlife that
areas. followed construction in the
wetlands did not concern most
residents.

Dredging and filling
operations enjoyed their heyday
in the post-war years from the
late '40's to the early 60's.
One typical transformation took
place during this peri9d in the
Mission Bay area of San Diego,
California. Developers cleared
out the mud flat -- and wildlife
inhabitants -- to make room for
Figure 4. Salt marsh vegetation. a new recreational/commercial
complex. The price tag, even
then, exceeded $16 million
Because these wetlands form dollars. However, the demand
near the junctures of rivers and for the newly created land was
oceans (along popular so great, that the city soon got
transportation routes) and its money back. This initial
behind the protection of barrier investment was paid off in
islands, urban centers tourist revenues and in the

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leasing of areas for commercial In Louisiana, Connecticut,
development. Economic successes Oregon, California, Virginia,
like the Mission Bay area of San Georgia, and Texas, dredgings
Diego spurred other cities to from ship channels are being
develop their wetlands areas. converted into man-made
marshlands.

CHANGING TRENDS Conservationists have won a
few battles, but not without
Within the past ten years, heavy opposition from various
some states and cities have industrialists and politicians.
begun to change their policies, One major victory came in 1975
perhaps signalling a new when a federal court instructed
direction in residential, the U.S. Army Corps of Engineers
commercial, and industrial (a group which regulates
planning. New community action construction on rivers, lakes,
groups have sprung up to and coastal waterways) to extend
challenge old practices. its jurisdiction to cover
wetlands and estuaries. The
The California State Corps now requires anyone
Legislature ordered the San planning a major project calling
Francisco Bay Conservation and for dredging or filling -- for
Development Commission to make recreational, agricultural, or
plans protecting the Suisan commercial purposes -- to file
Marshes, 40 miles northeast of an environmental impact
the city. statement and secure a permit.
The Environmental Defense However, efforts to
Fund and other action groups are conserve estuaries and wetlands
waging a battle against the face opposition from many
construction of a bridge to St. directions. Louisiana officials
Phillips Island in South threaten legal action against
Carolina. The island is noted the Corps, since the new
for the variety of its regulation would place more than
ecosystems: beach, maritime half of the state under the
forest, freshwater sloughs, and Corps' regulatory authority.
tidal marshes.
Business leaders, who would
Congress approved Florida's benefit from the filling of
requtst to halt funding on the marshes and wetlands, protest
Cross-Florida Barge Canal. that the conservation ethic has
gone too far. One businessman
Florida conservationists complained, "This wetland is our
helped halt the construction of home -- we work and live here.-
a new jetport to be located an Why should the heron and the
the fringe of the Evergaldes. egret become more important than
the human?"

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Ecologists believe one good Not all wetland,regions can
way to keep development out of be protected in this way. Urban
valuable areas is to convince centers continue to expand, and
the federal government to land scarcity remains a central
classify them as protected problem. Government can hardly
wildlife habitat. In the past turn its back an all commercial
few decades, one-fifth of all or industrial developments that
wetlands in the United States promise to boost the economy.
have received such protection. However, politicians are
A little more than one- fourth beginning to realize each new
of the barrier islands along the development cuts deeper into our
Atlantic and Gulf coasts have dwindling wetlands reserve.
been protected through purchase
by public agencies for
recreation areas or wildlife
preserves.

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175

NATURAL HAZARDS
IN THE
COASTAL REGION

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Reading II-8

air rushes in from surrounding
regions of higher pressure,
leading to the whirling winds
characteritsic of hurricanes.
All storms which form in this
way may be called hurricanes,
but those in the Pacific Ocean
are usually called typhoons.
High winds that form over land
are called cyclones or
tornadoes.

At the center of the
hurricane is a calm region.'
called the eye, around which
powerful winds of more than 75
The awesome power developed miles per hour circulate. These
in hurricanes and the winds are accompanied by cloud
unpredictability of their masses with heavy rains, as well
movement, place them among the as enormous waves on the sea
most destructive natural hazards surface. In addition,-
in the U.S. Coastal region. hurricanes sometimes push a wall
of water, called a storm surge,
Hurricanes form over the toward nearby coastlines.
oceans in the tropics as a Extensive destruction often
result of low air pressure. results when this storm surge
When the air pressure in one arrives at the same time as a
area drops below normal levels, regular high tide.

14 4cr

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46

35
44N
4,3
41, '4
3 N
35N W
q.37.337 Hurricane Probability Map
3S @
",J.. 31* 34 Af
L- 0 . , \3 Probability that a hurricane
'0
if 32
6 16 17 12 3. 31 25- (winds exceeding 75 mph) or
S
S
S
S
4
4
4
4 2
3 6 a 20-21 great hurricane (winds exceed-
6 4 1 21
3242 q7 ing 125 mph) will occur in any
All Hu,neanOS 4%, , \ one year in a 50 mile segment
2 @jr"x urrimn" 2 1A 2e' of the United States coastline.
2!7

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While most hurricanes in Hurricanes moving northward from
the United States commonly occur the Gulf of Mexico may strike
in September, the hurricane land anywhere along the Atlantic
season lasts from June to coast. New England areas have
November. Hurricanes frequent suffered some of the heaviest
the Western Caribbean early and damage ever caused by
late in the season, centering hurricanes.
near the West Indies. After
formation, hurricanes generally The number of deaths from
move northwest, eventually hurricanes has dropped since the
turning north. turn of the century, due largely
to improved warning systems:
Hurricanes lose their fury Loss of life can still occur,
as they move across land masses, however, and property damage
but not until they cause annually costs millions of
widespread destruction. dollars.

Aside from lava flows,
which are the most common hazard
from volcanic eruptions, several
other related dangers exist for
man and the environment. These
include ash falls ("showers" of
tsunamis
fine rock fragments),
(large waves caused by the
vibration of earthquakes that
may be associated with an
eruption), forest fires,
avalanches, and emission of
poisonous gases.

Volcanoes form when molten Volcanoes are a definite
material (magma) rises through and recurring coastal hazard in
cracks or fissures to the Alaska and Hawaii, and
earth's surface.. An important potentially so in parts of the'
driving force is the expansion Northwest United States. There
of gas trapped in the magma. are approximately 76 active and
dormant volcanoes in Alaska, at
least 6 in Hawaii (5 are on the'
Volcanoes differ in the Island of Hawaii) and at least
frequency of their eruptions and 13 in the Cascade Range of
are often labeled "active" or California, Oregon, and
"dormant". An active volcano is Washington.
one that has erupted in historic
times. (The term "extinct" is Hawaiian volcanoes . have
less often used since the posed little threat to life in
eruptions of "extinct" volcanoes modern times. Violent eruptions
have proved embarassing to have been rare. The Hawaiian
geologists) . Volcano Observatory constantly

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monitors all probable eruption The Alaskan volcano belt
sites and issues warnings when presents a more serious threat
necessary. However, several to life and property. Volcanic
small villages in Hawaii have activity there tends to be more
been buried by slow moving lava violent in nature; large
flows. seawaves may form. Surveillance
is difficult in Alaska due to
the geographical isolation of
the volcanoes.

HAWAII

HALEoVALA,@
MAUNA LOA'p
K rLAUIE A MT
REDOUBT

MT. sHISHALDIN

0- VOUCANO
e-,AaTrvrF- VOLCANO %%* arda MT. KATMAI
MT. PAVL

times, often when the residents
of an area are least prepared to
handle the effects.

The most common type of
floods occur al ong river
systems. They are generally
produced by extremely heavy
rains or by rapid melting snow.
Although studying weather
patterns can sometimes enable
the prediction of floods, an
unexpected thunderstorm can
produce flood conditions at any
One of the greatest threats time. Nature often provides us
to people living along a coast protection from river floods.
or near major rivers is But the channels and tributaries
destruction from floods. that would normally allow rivers
Flooding, when it occurs at to drain, may be dammed or
regular, predictable intervals blocked by industrial and
can be a boon to agriculture as residential development, causing
the river spreads rich topsoil the main river to overflow its
over the lowlands. Usually banks. Other natural controls
floods strike at unexpected include grass, trees and other
OF

179

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vegetation which can hold excess devastating flooding. Coastline
water long enough for most of it floods occur less frequently
to be absorbed into the earth. than river floods. But since
When people remove vegetation to many metropolitan areas are
clear land they also remove a located near the coasts, the
source of flood protection. costs of coastal flooding may be
enormous.
Flooding along the seacoast In the United States,
is generally caused by floods can occur along any
high-velocity winds that drive river, but they most frequently
large waves onto land. Tidal occur in the Mississippi and its
waves and tsunamis resulting tributaries. A glance at the
from earthquake action beneath population distribution shows.
the ocean floor can also brin. g the potential for vast property
damage.

areas near newly-forming
mountains, volcanoes, and along
deep sea trenches. The Pacific
coastline of California and
Alaska has faced the greatest
danger in recent years from
earthquake damage.
In addition to th e
destruction resulting from the
shaking and cracking of the
surface, earthquakes originating
beneath the ocean can form huge
waves (tsunamis) that threaten
population centers along the
coasts. Earthquakes can also
One of the most dramatic trigger landslides which can
forces in nature is the bury whole communities.
earthquake. The characteristic
vibrations of earthquakes result Scientists can chart
from movement deep in the seismic waves, or patterns in
earth's crust. the motion of the earth. By
monitoring the smaller shocks
Any part of the earth is that often precede a major
subject to these movements and earthquake, they hope to someday
can experience quakes. But the be able to predict quakes.
overwhelming majority of
earthquakes occur in an area Recognition of potentially
known as the Circumpacific Belt dangerous areas serves as a
-- a narrow strip along the guideline in planning and
coastlines of the P--Aciflc Ocean. development to minimize the
Generally, earthquakes occur in effects of such earthquakes.

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The major protection against is earthquake-resistant
earthquakes at the present time structures.

SEISMIC RISK MAP
OF
COASTAL UNITED STATES
3

3 Zone 0- No damage
Zone I- Minor damage
Zone 2- Moderate damage
Zone 3- Major damage
2

Zones indicate likely extent of damage from earthquake.

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Even though they have Water seeping into the
nothing to do with the tidal earth ' a crack in a layer of
motion of the ocean, tsunamis rock, or an earthquake can all
are often referred to as tidal bring an a landslide, sometimes
waves. Actually, tsunamis are referred to as an avalanche.
caused by earthquakes that occur Landslides result when a mass of
beneath the ocean floor.. rocks or earth slip dawn the
side of an unstable slope. The
Tsunamis generally consist factors that bring on the slide
of more than one wave and travel include differences in rock
at speeds ranging from 150 miles structure, degree of slope, or
per hour in shallow regions to wearing away of the supporting
670 miles per hour in depths of earth mass.
30,000 feet. Waves may be
separated by 100 miles or more. Generally, landslides take
Although the height of the waves one of two forms, rockslides or
remains relatively small in the slumps. Rockslides usually
open sea, the waves rise occur when one mass of rock
dramatically as the tsunami slips over another. This often
approaches shore, particularly occurs where there is a great
when it enters. V-shaped bays, variation in the rock type.
where the height may jump to 90
feet. Slumps frequently occur
along coasts. Slumps usually
Tsunamis generally threaten involve a weak, easily weatherd
islands and immediate coastal rock layer which supports a
areas, particularly regions near heavy surface layer. As the
sea level. Scientists studying weaker rock is eroded by the
seismic vibrations can often forces of wind and waves against
predic@ when and where a tsunami a coastline, slump landslides
will strike, usually giving often occur. A block of solid
residents sufficient time to rock or earth breaks away from
evacuate to higher ground. the Cliff edge falling
vertically.

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Erosion also encourages the
occurrence of other natural
hazards. Wave action against
coasts undercuts Cliffs,
bringing on landslides; erosion
Z can also remove natural
coastline protection, increasing
the danger of damage from tidal
and seacoast storm flooding.

Erosion, or the gradual
wearing away of land, is one
natural hazard that is often not
noticed until it is too late to.
stop. The major problem lies in
the fact that erosion is an
ongoing process. Sometimes, the
effects can be quite rapid, but
usually the effects take years
to become noticeable.

The agents producing
erosion include temperature Many large cities depend on
changes, gravitational pull, water from the ground to fill
water and wind. Water, in the their demand for fresh water.
forms of rain, snow, ice and However, when this groundwater
wave action, produces the most, is removed too quickly, the
erosion. Wave action surrounding land may no longer
continually changes the shape of sufficiently be supported and
a coastline, wearing away soil may sink -- a phenomenon known
in one location and depositing as subsidence. Subsidence may
it in another. A river's also occur because of the
scouring action wears away the removal of oil, gas, coal, and
adjacent banks over a long other minerals.
period of time. Freezing
temperatures cause water which Subsidence is often
has run into rock fissures to overlooked in discussions of
solidify and expand, breaking natural hazards, but it has been
off large boulders. Although known to cause environmental
normally a slow process, erosion damage as well as threaten the'
can be accelerated when supply of fresh water.
industrial and residential Subsidence most commonly occurs
development strips the land of in regions near the mouth of a
protective vegetation, enabling river, where the flow slows down
flood waters to sweep away and the river dumps its sediment
valuable topsoil layers. particles, forming a delta or
)00@

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alluviai fan. As the river ground to sink approximately 10
moves to the sea or large body feet in 35 years. Further
of water, river water seeps into attempts to obtain the
the loose earth and collects groundwater may be hindered by
beneath the surface as damage to the wells brought
groundwater. Groundwater may be about by this subsidence.
retrieved by drilling wells. Groundwater withdrawal near
Mexico City has resulted in
When too much water is ground subsidence of over 20
extracted, the soft mud or silt feet.
which it supports is
particularly likely to sink. In A drop in ground level may
one region of the San Joaquin affect foundations of buildings,
Valley in California, the causing serious structural
groundwater level has fallen damage.
over 100 feet, causing the

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EXTENT OF COASTAL EROSION IN THE UNITED STATES

GREAT LAr@ES REGION
6

NORTH AT'-.;%t;7.!C
REG I ON
NORTH PACIFIC REGIL-A4
13

3
L

91
SOJ',H ATLAt-fTIC-WLF 74
CALIFORNIA REGIL11 REGION
7 13
14

PUL."RTO Ri-@; AND
A:<) T-C VIRGIN
IN
1S. INCLLOED I
S. ATLAIJIC-GULF
REP c- LIN

LOWER MISSISSIPPI
TEXAS GULF REGICti REGION
4 10
HAWAII REGjr,,,l

00
ab

13 - PE RCOiT CR T I CAL ERC' I a4
A.L.ASKA REGION PERCENT STABLE"'"'l 3*,
74'@-RORCENT W,,N CRITICAL
ERUS I ON
90 T2 11
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Reading 11-9 196

TALE OF TWO TSU NAMIS

Hawaii -- April Ist, 1946

Untended seismographs in darkened laboratories recorded a major
seismic disturbance -- an earthquake in the Aleutian chain. At the
same time, unknown to anyone, a massive seismic sea wave began to
race across the Pacific. Moving at speeds of up to 490 m.p.h., the
tsunami traveled 2400 miles. It reached Hawaiian shores a short five
hours later without warning and with devastating force.

On the "Big Island" of Hawaii a group of Laupahoehoe teenagers
wandered along the shore. They were on the way to school -- ,
laughing, teasing and playing April Fool's Day pranks. A small wave
drew them to the water's edge for a closer look. Then came the roar.
A huge wall of water rose from the sea. Too late to run. The wave
struck. Within momemts, they were gone. All of them. Fifteen young
people swept out to sea.

In Hilo Bay, a fisherman felt his sampan rise -- an unusual
swell. He glanced back at the city of Hilo. With horror he watched
as the first of what were to be five massive waves smashed into the
shoreline. He headed for his only hope -- the safety of the open
sea.

On shore -- panic and confusion. It was early. Many people
were still asleep. Some who were awake ran to warn family and
friends in the shore area. Others tried to remove valuables from
their homes -and businesses. Boat owners rushed to the docks in a
frantic effort to save their vessels. Some arrived to find their
boats in splinters or swamped by the high washing waters. Those who
could not save their own boats helped others get underway.

No one knew if or when'-the next wave would come.

Minutes later, the water began to drain from Hilo Bay. Some say
the bottom of the bay was visible for more than thirty yards
offshore. Then, the water rushed back. It came as a twenty foot
wave travelling at incredible speed. Smashing shoreline structues as
if they were cardboard, the wave swept beyond Kamehameha Avenue into
the heart of Hilo's central business district. Automobiles,
boulders, railcars, buildings and people were swept along the bore of
the wave as it continued to smash its way inland.

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Reading 11-9 197

One person observing the wave from a "safety point" was
overtaken by the rushing wave. He wrestled with the chuming waters
as he was carried out to sea.

Another, trapped on top of a coconut tree was swept away as the
backwash uprooted the tree.

Between waves, evacuation continued. Roadblocks were set up and
rescue operations begun. The cries of those trapped in collapsed
buildings could be plainly heard.

Three more times, huge waves struck -- reaching as far as four
blocks into downtown Hilo, tearing at everything in the way.

When the last of the waves subsided, the people of Hilo felt
both relief and sorrow. It was over. But in this small town of
10,000 people, it was clear that by the time the dead, injured and
missing were identified, almost everyone would have a friend or
family member on the list.

The toll was high: 97 dead, 151 injured, and $25 million in
property damage. Much of the business district of downtown Hilo had
been destroyed. Entire city blocks were cleared of buildings. Many
were homeless and hundreds were out of work. Shipping operations
were disrupted and food was in short supply.

Such disaster could not be permitted to happen again. Data was
collected. Studies were made. Three scientists found that although
the breakwater was 60% destroyed, it was effective in reducing the
height and violence of the waves. They concluded:

"Loss of property during future tsunamis can be
reduced by proper construction, by erection of sea
walls and by restricting or prohibiting construction
in certain especially dangerous areas. Loss of life
can be nearly or entirely eliminated by the establish-
ment of a suitable system for waming of the approach
of waves.

(61)

Reading 11-9 198

Hawaii - May 21, 1960

A clanging alarm roused four sleepy eyed scientists from their
beds. They hurried to their underground vault on leeward Oahu.
Their instruments indicated an earthquake.

The men were part of a seismic sea wave warning system.
Contacting other Pacific stations, they were able to determine the
epicenter of the quake within 36 minutes. An earthquake of sizeable
force had struck Chile, a long, narrow country on the west coast of
South America. They kept a careful watch. Twelve hours later, a
second earthquake shook Chile. And a few hours after that, the
largest of all, measuring 8.25 on the Richter Scale.

Now came the question: Would there be a wave? There was no way
to know until word was received from other stations throughout the
Pacific. On May 22, at 11:20 a.m. word came. A tsunami had struck
the coast of Chile.

The four men studied their seismic sea wave warning system
chart. At 11:30 a.m. Civil Defense Headquarters was alerted and the
word went out. A tsunami could strike Hawaii around midnight.
Thirteen hours advance warning. Ample time to evacuate tsunami
vulnerable areas.

Throughout the day people stayed tuned to their radios and
talked of the approaching tsunami. Some shore area residents made
plans to evacuate. Others, skeptical because of previous false
alarms, waited for more details.

By nightfall, few outside of the Civil Defense Headquarters
appeared to be taking the impending tsunami seriously. People were
reluctant to leave their homes and businesses unattended. Sightseers
sought vantage points close to the shores. Time and time again the
governor went on the radio to beg people to stay away from the shore
area. Many disregarded the warnings.

At 8:10 p.m. radio stations broadcast that a three foot wave had
hit Tahiti. Many listeners thought this meant that the wave action
in Hawaii would be light.

At 8:30 p.m. the sirens began to wail in Hilo. Boat owners,
remembering the '46 tsunami, prepared to take their craft to the
safety of the deep water -- just in case.

(62)

Reading 11-9 199

Minoru Shimazu headed for the open sea in his sampan, leaving
his family safely behind in their home in the Waikea district. He
felt secure. His home had escaped even during the devastating waves
of '46.

Reports continued to filter in. Only minor wave damage was
reported from Samoa. The residents of Hilo relaxed. At 10:58 p.m.,
a mere one foot rise was reported from the Christmas Islands.

By this time, the Shimazu family had gone to bed, as had other
residents of the Waikea area.

A few minutes after 12:00, three-foot waves struck Hilo -- not
too much to worry about. Then, when it appeared that the worst was
over, a six foot wave smashed into the shoreline. The water quickly
receded. Onlookers started to move back. Minutes later, a larger,
more forceful wave struck the shore, rushing over Kamehameha Avenue.
Again the waters receded. People started to run for higher ground.

11,e lights of the boats outside Hilo Harbor rose. Then came a
roar -- a roar that signalled a massive rush of water. The third and
most destructive wave rose 20 to 30 feet in the air. It swept
through downtown Hilo as far as Kinoole Street, Again, buildings
were picked up and smashed. Automobile-sized boulders were ripped
from the bay and dumped into the center of Kamehameha Avenue. People
took to the trees. Some of the trees were uprooted and carried out
to sea. Power poles and parking meters were sheared off. Huge
chunks of pavement were torn from the bayfront road.

An engineer, working on a design for a Hilo seawall, was swept
from his vantage point where he hoped to gain first hand information
on seismic sea waves. He died.

Eighty-eight year old Saburo Shimazu awoke from his sleep. It
was dark. He could hear the house crumbling around him. Fe was
crippled -- unable to check on the others. For a time, he could hear
his wife next to him. Then, no more. He clung to his mattress.

When the waves subsided, rescue operations began in earnest.
Power was out. It was difficult to see. Rain and mud made the work
more difficult. Again therewere the screams of those trapped in
collapsed buildings. Rescue workers and cleanup crews had a massive
Job. Much of downtown Hilo was destroyed. City blocks stood,
cleared of buildings. The Waikea district was almost totally gone.

(63)

Reading 11-9 200

At 7:00 a.m., the boatsmen sailed back into the wave battered
harbor in what looked to one newspaper reporter like a funeral
procession. Minoru Shimazu would soon learn that only his father was
alive -- found on the breakwater that morning, more than half a mile
from where the house in Waikea once stood. His mother, his brother,
his wife, his son Brian, 9, and his daughter Rachel, 6, were all
dead.

Again, the alarming statistics: 61 dead on the "Big Island",
282 injured and $50 million in property damage.

How could it have happened? Thirteen hours advance warning
should have been enough time to at least prevent the loss of life.
Headlines and news stories in the following days reflected the
state's shock and disbelief. "C.D. Officials Shocked at Lack of
Public's Concern", read one Honolulu paper. "Tidal Wave Deaths: They
Needn't Have Happened", stated another. News stories gave accounts
of "otherwise sane persons running out onto the reefs to pick up fish
between waves", and "sightseers who refused to leave the area".

The Hawaiian Academy of Science interviewed 327 adults in the
Hilo area to find out why they had not evacuated. The interviews
indicated that some had not understood the warning system or the
meaning of the different sirens. Other studies suggested that some
had been misled by the radio broadcasts which failed to point out
that Tahiti, Samoa and Christmas Island were on the edges and not in
the direct line of the tsunami. Others expressed reluctance to leave
their homes and businesses unguarded for fear of looting and
vandalism. Again, Hilo was determined. This could not happen
again-not a third time.

(64)

Reading II-10

224

FOUR 'YEARS AFTER THE WAVE

HILO, Hawaii (AP)-Me 30 Volunteers, Red Cross,
foot wave that hit Hilo on May civil defense, military and
23, 1960, came up from the sea government agencies moved in to
at 12:04 a.m. like an express help clear the wreckage and
train, roaring up quiet, restore normal services.
darkened streets, leaving death
and destruction when it with- The Hiloans took a
drew. collective vow: it would never
happen again.
The wave was incredible,
but just as incredible is Hilo's Seven days after the wave
recovery from block upon block hit, the County Board of
of jumbled rubble. Supervisors, meeting in almost
continuous sessions for days,
Thick, slimy mud covered created the Hawaii Redevelopment
the street. Agency and thus launched the
first urban renewal project in
Sewage, dumped inside the Hilo.
harbor entrance, was hurled into
the face of the city, filling The Legislature voted
the air with stench. general relief measures and made
land available for relocation of
The toll: 61 dead, 282 the victims.
injured, $50 million in damage.
The Federal Government
More than 220 homes and 308 moved in with loan programs.
businesses and public buildings
were destroyed or heavily Civil Defense officials
damaged. began re-examining the warning
system that had failed.
In the heart of the
business district, virtually The Army Corps of Engineers
everything was obliterated. began work anew on a tidal wave
barrier, a project that for
How does a city. survive years had been stymied in
such a tragedy and how does it debate.
get back on its feet in four
short years? The fruits of the combined
efforts are in full flower
First the scars were today, and Hilo has taken on a
removed. new face.

(65)

Reading 11-10 225

Devastated businesses have Meanwhile, civil defense
relocated, many of them on land officials took another look at
provided by the State in the machinery for warning of sea
Kanoelehua Industrial Center, waves and have come up with what
away from the disaster area. they believe to be an effective
warning system.
The urban renewal program,
a key to Hilo's future, is Myron Isherwood, in charge
three-quarters complete in of the Hawaii Island Civil
moving businesses and families Defense System, says "the 1960
to new areas. tidal wave showed us we had no
system at all".
Itis aim is to clear the
most vulnerable sections of the Machinery to provide
bay front, a total of 353 acres. adequate warning hours ahead of
a wave has been improved. New
Most of it is now in lawn. sirens and more of them have
Various uses for this area have been installed and are tested
been proposed, including a frequently.
"tidal wave forest" of bamboo or
trees to act as a buffer against But an alert is worthless
future waves. if those in the danger area pay
no heed. Thus, civil defense
About 40 acres of the officials have a continuing
disaster area will be-built up education program to combat
20 feet and reclaimed as apathy.
commercial property.
Residents have only to look
While relocation of in the front of their telephone
businesses and families has had books to find out what to do in
its problems, H.R.A. Manager case of wave alerts.
Megumi Kon believes it is well
worth the effort. And civil defense officials
point proudly to the last alert
Kon says $12.6 million is after the Alaskan earthquake to
being spent on the project. show how effectively they've
About half will be recovered done their jobs.
through resale of the parkway to
the State and the built-up area Hilo's danger zone was
to commercial and government evacuated "practically 100
agencies. percent", says Isherwood.

Another project is creeping Civil defense and law
ahead slowly. The Army Corps of enforcement officials have
Engineers is working on a $27 pushed for ordinances which
million breakwater construction would put teeth into evacuation
program that will reduce danger procedures during wave alerts.
from waves. The State and
County have promised money for
the project.*

(66)

Reading 11-10 226

One, now under
consideration, would make it
illegal to loiter in any public
area subject to wave action.

County Chairman Helene Hale
says, "...It's impossible to
bring back the hundreds who have
died in those terrible forces of
nature that have struck Hilo and
other coastal areas of our
Island.

"But we can, and we must,
build a better and safer city to
lessen the death toll during the
tidal waves which will come in
the future.

"This we are doing -- in
many ways -- and we will not be
caught napping again." **

This breakwater plan was
eventually scrapped due to
increasingly higher
financial estimates of
construction costs.

Reprinted from the Honolulu
Star-Bulletin, Saturday,
May 23, 1964.

(67)

Reading 111-1 238
TBZ DAILY SPLASH

Val. 1 1979 Coastal Newspaper
LACK OF PARKING PARK DEPARTMENT SURVEY PINDS
EMPTIES BEACHES LACK OF PUBLIC RECREATIONAL SITES
Frank Mitchell doesn't go
to Clearwater Beach anymore.
Neither does Jean Guido. And
they aren't the only ones.
It's not that people like
Frank and Jean don't want to
go, it's just that they can't
get there anymore.

Clearwater Beach used to
be one of the favorite swim_
ming and camping beaches in
this area. But then came the
new subdivision. And, then
the new shopping center The
developers put in a public
access pathway so that long-
time local residents could V WLL, You coff two 960"IA*
easily get to the beach. But
they forgot one thing. Park- A recent survey by the "All signs indicate the pop-
ing. County Park Department shows ulation will keep increasing
that the amount of recrea- in the future. Finding the
There simply isn't any tional beach space easily land for beach parks and pay-
place to park a car within a available to the public is ing for it will not be easy.
half-mile of the beach. The declining. Housing develop- If the public wants more
road is too narrow and there ments, beach-front condomin- beach recreation, taxes will
are no open spaces to use. i ums and new fndustrial surely have to increase.'!
plants have closed over half
City officials admit th the county's best
parking problem e of New Developments Ruin
has helped recreation sites to the
turn this area into what public. Beach For Local Resident
amounts to a private beach
for the few nearby residents. One park official com- Local residents in the
One official admits, "Quite plained that long-time pop- North Shore area met yester-
frankly, I don't know what we ular beach spots are being day to announce their oppo-
can do about it. Somebody in ringed by "Private Property - sition to further develop-
city government should not Keep Out" signs. "The simple ment. Plans for a new condo-
have allowed the developers fact is that developers have minium and beach-front hotel
to build along that entire sold off our beaches." along the North Shore prompt-
beach front area. A state planning spokesman ed the resident's opposition.
BeachOwners Fight Plan said today that the loss of Several beach owners
recreation sites is not claimed there were already
For Now State Park unique to this area. "All too many hotels and condomin-
Owners of several unde- along the coast, communities iums in the area. One life-
veloped lots at Castle Beach are faced with the problem of long resident complained,
announced they will fight the inadequate recreation space. "The tourists and newcomers
state's attempt to buy their Last weekend, Point Eagle are always staring down our
land for a new state park. Seashore Park closed its necks. It's been a local
gates at 10:00 in the morning beach for a long time, but
'We've saved for years to beacuse Ui-ey -had-no ... re now I just don't feel comfor-
build a nome there," said one parking space. table coining here."
beach-front property owner.
"If people want a park, let Most officials predict the Another resident said, "It
them look somewhere else." problem will get worse if used to be we could go out on
nothing is done to acquire the North Shore beaches any-
lhe owners will send a more park areas. "We've had time. But now there's SO
petition to the Governorls a 30% increase in population many people that I can't get
office expressing their oppo- here in the past 15 years," into it."
sition to the park plan. reported one county planner. Other North Shore resi-
dents, including fishermen,
complained that newcomers
were taking over the beaches.

C68)

Reading 111-2
246

A FISH STORY

Section 1

Once upon a time there was a fisherman. He liked to fish in several places

along the coast. Usually he could catch enough in one day to last him all week

long.

MzC0Wat1

IMP
-IS

(69)

247

Section 2

The fisherman, being wise in the ways of the sea, soon learned he could

catch more fish than he needed for just himself. Even when he gave fish away

to his friends and his cat, he still had too many fish.

0
0 zr-

ILI

-LIP

So the fisherman decided he should go into the fishing business. He would

catch lots and lots of fish and sell them. He built a little fish stand and

soon the public came to his stand to buy his fresh fish. The public thought his

were the best fish they had ever eaten and gladly paid the fisherman a good price

for his fish. The fisherman took this money and bought new fishing boats and all

the best equipment from stores owned by the public.

(70)

248

Section 3

The fisherman continued to fish the rich waters of the ocean. His fish

market was very successful. Then one day the fisherman left the fish sitting

too long in the sun. The fish rotted. But the fisherman didn't notice that this

was happening and the fish were sold to hungry members of the public.

Unfortunately, those who ate the fish got very sick. One member of the public

decided to sue the fisherman for damages caused from eating the rotten fish. The

court heard the case of Hungry Citizen vs. the Fisherman.

The court decided in favor of the fisherman. It ruled the Hungry Citizen

should be alert to what she buys.

191
41

Section 4

The Hungry Citizen, after her court encounter, decided that something had

to be done. She called some of her friends who had also gotten rotten fish

(71)

249
from the fisherman. They formed a citizens group called ARF, or Against Rotten
Fish. ARF tried to get the legislative body to pass a law making it illegal to

sell rotten fish.

14V�R

ASS
LW

.3 LAWS
SELLANG
.-Asaimt Rotten Fish ROTTO
FISH

They wrote lots of letters to their representatives in the legislature. They

made phone calls and passed around petitions. They demonstrated in front of the

fish stand. Soon, many people were asking their representatives to pass a new

Safe Fish Law. The fisherman talked to some other fisherman. They decided that

they didn't like the idea of somebody else telling them how to sell their fish.

So they formed the Fisherman's Association. The Association wrote letters to

their representatives and put pressure on them to vote against the law.

Finally, the Safe Fish Law was passed by the legislative body. The fisherman

could no longer sell rotten fish to customers. Fishermen all along the coast

changed some of their practices. Now they put all of their fish on ice and made

sure none of the fish rotted.

(72)

250

Section 5

The fisherman continued to fish. He expanded his business a nd set up fish

stands across the city. He built a packing plant and soon had the biggest

fishing business in all the area.

But-people began to notice that many things were not like they used to be.

People who liked to fish along the shore noticed that they weren't catching

as many of certain kinds of fish. They blamed the fisherman who was now catching

fingerlings as well as bigger fish in his nets. This would soon mean that no

fish would be left near the shore.

Other people began to notice how crowded and dangerous the bay was becoming.

All of the fisherman's boats and nets were getting in the way of people who

wanted to sail their own boats, or swim, or surf. And the fisherman was upset

because the boats of other fishermen were getting in his way.

Many people who lived along the beach near the fisherman's cannery were upset.

The cannery gave off a lot of smoke and fishy smells. This made it hard for the

home owners to sit outside and enjoy the beautiful ocean view.

Other people began to complain that the fisherman's new pier was causing

problems. Before the pier was built, the sand was pushed down the beach by the

currents. But now, the pier blocked the sand and the beaches on the other side

of the pier were not getting any new sand. The owners of the houses were very

upset with the fisherman.

Anger grew until all of these people (the boat owners, the homeowners, the

other fishermen and the fisherman himself were all complaining to their

representatives to pass new laws. The law-makers listened but the situation was

very complicated. So, they decided to set up special agencies with experts on

fishing, the ocean and piers.

(73)

251

S. *boo,

They passed a law which set up the Fishing Agency. Its job was to see that

fishermen took only their fair share and the proper size of fish. Then the

representatives passed another law which established the Boat Agency. This agency

was in charge of making sure all boat owners followed new safety rules. Then the

representatives passed another law which set up the Pier and Harbor Agency. Its

job was to see that better piers and harbors would be built.

Finally, they passed a law for one more agency, the Environmental Quality

Pollution Control Agency. It would make sure that all factories (like the fisher-

manis cannery) would stop the pollution they produced.

All of these new agencies made up new rules and regulations. The boat owners,

the home owners, the fisherman, and the other fishermen had to follow these new

regulations. Now, when anyone did anything with coastal resources, they had

certain laws to obey --@0,c:!rtain rules and regulations to follow.

(74)

Reading 111-3 257

THE CASE OF BLUE NECK BAY

Blue Neck Bay rests in the upper reaches of the Great Lakes, surrounded

by tall evergreens that border the lake's shore. Some vacation homes and

several small villages line the bay. During the hot summer months, tourists

and summer residents flock to Blue Neck Bay to enjoy swimming, fishing and

camping in the quiet wilderness area.

But Blue Neck Bay is not just a vacation playground. The Bay also serves

as a transportation link for the coal mining industry in this region. A

major coal field lies about 75 miles from Blue Neck Bay. Railroad cars haul

the coal from the mines to the town of Pine Grove in the upper portion of

the Bay. Here it is loaded on barges and hauled across the lake to several

ports on the industrial western shore.

In the mid-1970's the demand for coal greatly increased. Collins Coal

Company, which operates the Blue Neck Bay coal field operation, doubled the

amount of coal it mined. Employment in the area increased, but Collins Coal,

could make even more money if its loading and dock areas in Blue Neck Bay

were increased in size. These were too small to handle the growing demand

and barges often backed up for several days waiting to be loaded. A new

facility would permit more and larger barges to be serviced at the Pine Grove

dock.

The Collins Coal Company and its employees would not be the only parties

to benefit from new dock and pier facilities. The Northern Bay Railroad, which

transports the coal from the mines to the Blue Neck Bay dock also favored dock

expansion. This would permit the railroad to haul more coal, and thus make

more money.

To enlarge the dock facilities, the railroad company and Collins Coal

This case is based on an actual incident in the Great Lakes area.

(75)

258

had to get approval from the state agency responsible for construction

projects on the lake. Concerns about the environmental impact of such a

construction project would likely be raised. But the two companies believed

this would not be a problem, because in the past they had been successful

in getting permits for construction activities.

For example, the state legislature had passed several environmental

laws over the past 20 years. One of these laws created the Lake Construction

Agency which was empowered to protect the lake against unnecessary construction

projects. But officials of the Collins Coal and the Northern Bay Railroad

Company lobbied at the legislature. As a result, these two companies

received exemptions from every one of these statutes. A water pollution

statue states: "This law shall not apply to coal mining companies." Further,

several persons favorably disposed toward Collins Coal Company were ranking

members of the Lake, Construction Agency (LCA). The LCA had never turned

down any previous construction requests from Collins Coal or from the railroad.

Environmental protection laws or regulations which might have restricted

their business operations, had not been applied to Collins Coal or the rail-

road. They felt confident that this time would be no different.

Last September, Collins Coal and the Northern Bay Railroad companies

asked the LCA for a permit to expand the dock and pier facility at Pine Grove.

The LCA said that it would study their request and issue a decision in a few

months.

In the past, few citizens of Pine Grove had objected to the activities of

the two companies. But a year ago, the town of Pine Grove built a new marina

and park about one-half mile from the barge facility. Many residents and

visitors in the Pine Grove area felt that the new dock area proposed by the

coal and railroad companies would interfere with this recreation area. More

important, they feared that the essentially quiet and rural atmosphere of the

(76)

259

town and the upper par, of the Bay would be forever changed if expansion

were approved.

During the autumn months, several citizens in Pine Grove formed the

Respect Our Bay association (ROB). Its primary goal was to halt the expan-

sion of the dock and pier facility.

In January, the state legislature opened its annual season. ROB members

got their representatives to introduce a new "Lake Protection Law" which

would make it illegal to build large structures out into the lake. If this

law were passed, the new dock and pier facility proposed by the railroad and

coal companies would not be permitted. Pressure from the coal and railroad

officials, however, was more effective and the legislature voted against

the new law.

A few weeks later, the Lake Construction Agency (LCA) announced it would

hold its last public hearing on the pier and dock facility. If no one

brought up serious objections at this meeting, the Agency would immediately

issue permits to allow Collins Coal and Northern Bay Railroad to begin con-

struction.

ROB made a long presentation at the hearing, explaining how the noise

and "industrial nature" of the enlarged loading-unloading facility would

disrupt the quiet character of the bay. Several residents from Pine Grove

also testified that the new facility would interfere with the Pine Grove marina.

Others argued that the new dock area would seriously pollute the lake environ-

ment.

Spokespersons from the coal and railroad companies also made presentations.

They argued that their new facility would not disrupt the marina and recrea-

tion area, and they said the bay was big enough for all kinds of activities.

Outlawing industrial uses would be detrimental to further economic growth in

the region.

(77)

260

A week later the LCA announced approval for the construction project.

ROB had been defeated twice in its efforts to save the bay. It-had one

last alternative -- to take legal action through the courts. Three days

before construction was to begin, ROB filed a lawsuit against the Lake

Construction Agency for failing to adequately study the situation. The court

ordered a temporary halt to all construction until LCA could demonstrate it

had acted fairly in the granting of the permit. After listening to testimony

from both the agency and ROB, the court ruled that LCA had not performed

fairly. The court halted all construction.

(78)

261

MAJOR STEPS IN THE CASE OF BLUE NECK BAY

1. Industrial users use the bay as a transportation resource.

2. The public uses the bay as a recreational resource.

3. Both industrial and public users benefit from use of the bay.

4. The state legislature passed laws concerning use of coastal
resources. (One of these laws created the LCA)

5. Officials from the coal company and the railroad formed a small
group to put pressure on the state legislature to pass certain laws.

6. A concerned group of citizens and recreational users of the bay
formed a public interest group called ROB to protest the building
of the dock.

7. ROB put pressure on the legislature to pass a new law.

8. Coal and railroad companies put pressure on the legislature to not
pass the law. (The legislature failed to pass the law).

9. ROB put pressure on the LCA to deny the permit.

10. Coal and railroad company officials put pressure on the agency to
allow the permit.

11. The agency granted the permit to the coal and railroad companies for
use of the bay.

12. ROB went to court and filed a lawsuit against the agency.

13. The court made a decision to halt construction. This affected the
users of the bay, the LCA, and the general public.

(79)

Reading 111-4 267

THE FUTURE OF BAYSHORE ISLAND

The island and town of Bayshore sit in the Gulf of Mexico, just

a few miles from several large urban areas. Two small bridges, one at

each end of the island, connect it to the mainland. About 25,000 people

live on the island operating small farms, tourist businesses, fishing

boats and light industries. For years, its small resorts and vacation

homes have brought in a few regular toursits from the hearby mainland

cities. But Bayshore Island has remained fairly quiet and uncrowded and

it is this atmosphere that attracts a small -number of faithful summer

visitors.

However, over the past decade, the resort business on Bayshore has

not enjoyed the boom that hit other nearby islands. Older hotels and
beach front cottages do not attract as many people as they once did. 0
The economy of Bayshore Island is definitely feeling the results of

"not keeping up". More people are out of work, and some residents are

moving away from Bayshore to find better chances for employment.

Recently,.Cloud Resorts, Inc. announced plans to build a large

resort complex on the west shore of the island. The Bayshore city govern-

ment has to decide whether-to allow Cloud Resorts to build the new hotel.

The mayor asked the city planning office to consider this question.

Following is a portion of their planning discussions:

Planner #1: ... and if we give the go ahead on the resort, it will really
be a big help to the economy of the whole island.
Planner #2: Tourism hasn't really flourished here since the war. I think
the new complex will mean a real boost. Just exactly what
will this mean to the Bayshore economy?. Do we have any figures
on its economic impact?
Planner #1: Our best estimates suggest that it will employ about 200 people.
With our unemployment figures, that would definitely help.

(80)

268

If the hotel runs at the average occupancy rates, it should
mean about 2 million tourist dollars a year.

Planner #3: What about other related areas of the economy?

Planner #1: We expect a number of new stores to open all along the
West Shore area. Some new fast-food stores, a couple of sporting
goods shops, plus some new clothing stores. Three new
restaurants are already planned to go in if the hotel is built.

Planner #2: What are the chances that other hotels will go in in that same
area?

Planner #1: If the Cloud Resort is successful, we predict two or three
more large complexes in the West Shore area. In the long
term, if this area catches on, we can expect up to 25,000
additional tourists for the summer season.

Planner #3: What about tax revenues for Bayshore Island?

Planner #1: If the hotel is built, it will represent a 25% gain in tax
revenues. Once the other shops and other hotels follow, it
is likely that tax revenues will increase almost 100% over
what they are now.

Planner #2: That new revenue would mean a lot to the Bayshore city treasury
The city council could start to plan some of those improve-
ments that it's been talking about. Probably a new wing
for the hospital, upgrading of our fire equipment, plus
getting some of those old roads resurfaced. The worn-out
shocks on my car testify to the need for better roads
around here.

Planner #3: Speaking of highways, you know one thing we must consider,
with all these new tourists coming in, that narrow two lane
road through the West Shore area will have to be widened.
It can't.carry all that extra traffic. We'll have major
traffic jams. That is one cost to the city when this hotel
goes in. The city will have to pay for either new roads,
or better police control of the traffic. Are these other
costs the city is likely to have?

Planner #1: We'll need extra police protection for the beach area, and
we may need to upgrade the waste water treatment facilities
to handle the extra volume of water.during the tourist season.
These are the biggest costs the city will have to think about.

Planner #2: What's thishotel likely to do to the environment on the West
Shore? There's a lot of beautiful vegetation along the beach
out there.

Planner #1: A lot of that will probably be destroyed. And I suspect that
those sand dunes along the north edge of the complex area will
have to be leveled. As far as water quality is concerned,
the hotel people have assured us that they will provide ade-

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269

quate sewage treatment facilities for the complex itself.

Planner #3: One thing that I'm concerned about is the access problem.
There are a lot of local people up in that area who go to that
beach frequently. At night you get a lot of fishermen in
there. The Mayor's office has gotten a lot of complaints about
the hotel being built. With the election coming up soon, the
Mayor may be relunctant to take any action to anger people
in that area.

Planner #2: Most of these people are worried about losing access. They're
afraid the beach will be for hotel guests only. And they are
really mad. Listen to this letter:

Dear Mayor, The fishermen on the West Shore do not
want a new hotel to be built here. Thousands of
tourists coming to this area will mean no more fishing
for us. The tourists will rent gear and boats and
crowd us out. The fishing will become poor. There
isn't another good fishing spot like this anywhere on
the West Shore. Don't ruin it for us!

Planner #3: It is true that the new hotel will change the quality of that
area. It's very quiet now. But if that hotel goes in, it's
going to change the entire character of the West Shore. It
will be more tourist-oriented, more shops, more people,
more traffic. The people who have lived in that area for
a long time aren't going to like that.

Planner #2: We're likely to get a lot of community opposition on the
approval to build. Besides, there has been some talk from
West Shore residents about making that beach into a park.
You know, there aren't any parks on that side of the island.
They have to drive about 12 to 1S miles to get to a park.

Planner #1: Well, I'm not sure. I think the people over there wouldn't
mind the hotel. It will help out the economy of the area.
They're smart folks; they know the hotel will mean better
business and rising land values. Maybe we'd better get out
there and do some interviewing to find out just what the West
Shore residents want.

Planner #3: Good idea, but we s,till have to keep in mind all the economic
benefits. Just because they might not want the hotel, well,
it doesn't mean we have to penalize everybody just because
a few don't want it. This isn't going to be an easy decision.

(82)

Reading 111-5 276

RESOURCE MANAGEMENT PLANS

Governments often decide to control or influence the use of coastal

resources. Governments may have several goals, such as reducing pollution,

increasing recreational facilities, or encouraging the growth of business

and industry. Establishing these goals is usually one part of a resource

management plan. However, once these decisions are made, there still remains

the difficult task of determining how these goals will be reached.

A second part of resource management plans suggests ways for govern-

ments to control the use of land and water resources. Plans may combine

one or more strategies in order to reach the short-term and long-term needs

of the area.

Promoting tourism
might be one goal
Lim- of a resource
management plan.

Effective resource management plans have several characteristics.

First, they must not be too expensive. Any management plan will cost govern-

ment money to implement and enforce; however, careful planning can keep costs

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271

low and prevent large and unpopular tax increases.

Second, management plans must be legal. Regulations, zoning

ordinances, and other policies must be within the law.

Third, the plans must be enforceable and must have the support of

the people. Government rules and regulations may look effective on paper,

but if they are difficult to enforce, or influential sectors of the public

oppose the ideas, the plan will likely fail.

When these problems occur, or where no management plan has been

drafted at all, development and growth may evolve with little or no

attention paid to many important concerns. Access to beaches can disappear,

urban sprawl and traffic congestion may result, pollution often increases,

the economic well-being of the community rises or falls with little public

guidance.

Strategies which government can use to control development can be

described as the "resource manager's tool kit." There will be advantages

and disadvantages to the use of each possible strategy, and thus, the right

tool must be chosen for the job.

(84)

2-78

RESOURCE MANAGEMENT: SIX EXAMPLES

Example 1: Agriculture vs. Homes

The Governor of a certain coastal state announced that the state intended

to purchase 600 acres of agricultural land near a metropolitian area for

$6 million. The fate of this land had become a major public issue- when a

development firm announced it would purchase the land for a new housing project.

The Governor's action followed protests by residents who wanted to maintain the

agricultural and rural lifestyle of the area. The Governor's purchase of

the land will help insure that the area remains in agricultural use.

Example 2: Oh Say Can You See?

The City Council of a coastal metroploitan area approved an ordinance

creating an Historic, Scenic, and Cultural District surrounding a famous coastal

landmark. The ordinance set height limits on new construction in the district

in order to preserve views of the landmark from all sides. Only certain types

of buildings can now be built in the area near the famous site.

Example 3: Shoreline Impacts

Prolned development projects for the beach area and near-shore waters in

a certain coastal state must be approved by the DepIrtment of Land and Natural

Resources. This department reviews projects to insure that the beach environment

will not be adversely affected by any new activities. If projects meet

specific standards, building permits will be issued and construction can begin.

Example 4: The Domino Effect

The State Legislature in a certain coastal state changed the state's

property tax laws to eliminate the requirement that property owners must pay

taxes on the 11hight;st and best use" potential of their property, rather than

on actual use. This change encourages owners to keep their property in less

intensive land uses by making the tax rate increase only if a property is developed.

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279

It was hoped that property owners who had felt economic pressure to

replace older structures with high-rise buildings might reconsider and take

advantage of this new law.

Before the change in the tax law, owners of land adjacent to or near

highly developed areas were pressured to develop their property because

their tax rate was the same as that on the developed land. This developed

land set the highest and best use standard. The new law countered the

"domino effect" of stimulating development by highest and best use taxation.

Example 5: Meeting Recreational Demand

The Outdoor Recreation Plan of a certain coastal state cited "critical

deficiencies" in recreation facilities, including picnic sites, informal

outdoor areas, ocean recreation areas for fishing, shoreline campsite areas,

and walking and jogging trails. In response to this and other surveys,

several State offices cooperated on the acquisition, restoration, and/or

improvement of thousands of acres of park lands, involving expenditures of

millions of dollars. Of 12 new park projects, seven are on the shoreline.

Example 6: A Highway Proposal

The State Department of Transportation in a certain coastal state

proposed to build a second highway across a mountain range which separated

coastal and inland areas. This new highway would help ease present traffic

congestion and encourage further development in the coastal area. Further,

the new highway would allow more inland residents use of recreation facilities

on the coast.

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28G

ANALYZING MANAGEMENT TOOLS

1. ACQVISITION: The public purchase of private land for public use or as
a public trust.

Advantages of Use Disadvantages of Use

'overnment has complete control Cost of purchasing land may be high
Dver the use of the land
purchased Government must pay maintainance costs
if land is used as a park, etc.

Loss of tax revenues from the land if
,it remained in private ownership

Purchase of property may be very time-
consuming

Can be politically unacceptable if
people fight eviction

2. ZONING: Control of the type and/or intensity of specific uses allowed
in a designated or "zoned" area.

Advantages of Use Disadvantages of Use

Limits certain kinds of development New zoning designations do not remove
to certain areas already existing undesireable
structures or activities
rotects agains public nuisances
or other unacceptable uses in the Specific sources of pollution will not
areas zoned be stopped

Inexpensive to implement compared Zoning ordinances are sometimes over-
@o other options turned in court

3. REGULATION AND PERMIT SYSTEM: The review of all land or water uses for
conformity to standards set by government.

Advantages of Use Disadvantages of Use

,an address specific-pollution "Red tape" and delays can result,
problems increasing construction and other
user costs
.-an deny approval to use land
if user does not meet standards More personnel are needed for review
and enforcement, thus increasing
an be combined with zoning government costs
to create a "mixed effect"
Regulations are sometimes overturned
by the courts

Setting appropriate level of standards
is difficult; strict standards can
discourage new business, while loose
standards can encourage pollution, etc.

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281

4. TAXATION POLICIES: The offering of tax incentives, credits or penalties
to influence the use of land.

Advantages of Use Disadvantages of Use

Encourages desireable land uses or Does not specifically control sources
technologies; discourages of pollution or undesireable
undesireable land uses or construction
technologies
Government will lose some tax revenues
May be used to attract or if incentives call for reduced taxes
discourage business
May lead to overdevelopment if
Does not require extensive government reduces taxes to encourage
staff to implement new business

5. IMPROVEMENT OF PUBLIC FACILITIES: The decision whether to improve
recreation and other public facilities

Advantages of Use Disadvantages of Use

Government has direct control over High costs are often involved in making
any changes to be made ' improvements

Improvements are often highly High visibility of projects can lead to
visible, and can be directly political problems if project fails, or
attributed to political efforts if opposed by influential community
groups
Results may be politically popular

Improvements may be only way to
make a resource or facility
productive again

Type and number of improvements
can influence the pace of
-iuevelopment

6. PLACEMENT OF PUBLIC FACILITIES: The decision of where to locate public
facilities

Advantages of Use Disadvantages of Use

Proper design and situation of Analysis of impacts can sometimes be
new facilities can direct develop- wrong or incomplete
m,ent into desireable areas and
away from less desireable areas Analyzing impacts can be expensive
and time-consuming
Improvements are often highly
visible, and can be directly Political fights can occur over
attributed to political efforts location of facilities

Results may be politically popular 1 1

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289

Reading, 111-6

GOTHM TiMES-PICAYUNE

BEACH PARK DECISION By
MEPTUNE BEACH IS WRONG

Yesterday,the Neptune Beach City Council
voted down a proposal to open swimming and
recreational opportunities for thousands of
people in the Gotham City area. The Council
refused to lift the long-standing restriction
which allows only Neptune Beach residents use
of the Neptune Beach Park.
This small village is telling the resi-
dents of Gotham City that we cannot enjoy the
swimming, boating, picknicking, and sunbathing
opportunities that should be fully ours by
right.
Gotham City has grown tremendously over
the last 20 years. Our people need more and
better beach space. The city has worked ear-
nestly to provide adequate beach park facili-
ties, but the demand and population has grown
too fast. Our public beaches are now over-
crowded. City residents must often travel 50
to 100 miles to find a stretch of beach that
is not blanketed by people.
Yet right next door, just eight miles
away, is Neptune Beach, one of the most un-
derused beaches in the state. Even on week-
ends, the beach area is uncrcwded. There is
simply no justification for Neptune Beach to
keep this beach closed to the general public.
This decision is wrong. It is unfair.
It is selfish. The people of Gotham City will
suffer because of the small-minded action of
the people of Neptune Beach. We urge our City
Administration to vigorously challenge this
decision in the courts.

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Reading 111-7 290

N E P T U N-E B E A C H C I T Y C 0 U N C I L

P U B L I C. H E A R I N G

Bosley, City Council Chairperson:

This meeting is now called to order. I want to welcome all those
citizens who have come here today to express themselves on this important
issue before the Council. I can assure you that all of us sitting here on
the City Council will be listening intently to your views, and that we will
deliberate carefully on the decision before us, holding the testimony of
each of you in mind.

Now the matter before us is the request by our metropolitan neighbor,
the city of Gotham, to open for general public use the one-mile segment of
sandy beach and adjacent shoreline parking which is now Neptune Beach Muni-
cipal Park. This beachpark is now open to Neptune Beach residents only.
I would like to ask Mr. Cabrillo who is here to represent the Gotham Planning
Department, to explain the Gotham request more fully, before we hear from
our local citizens on this.

Cabrillo, Gotham Planning Department:

Thank you Mr./Ms. Chairperson. As you all know, Gotham has experienced
a significant population increase in the last decade. At the same time, many
traditional recreational areas along our coast have become closed to the pu-
blic because of new housing developments, a new electric energy plant, the
expansion of the Southgate harbor facilities, and the health hazard caused
by increased sewage outfall in some areas. I would like to remind the good
citizens of Neptune Beach that many of those uses which have eliminated
Gotham's beach area, greatly benefit Neptune Beach. For example, the new power
plant supplies improved services to you, and the expanded harbor has helped
keep the price of many goods low.

The people of Gotham need opportunities for outdoor seashore recrea-
tion as much, if not more, than thegood folks who live in our coastal towns
like Neptune Beach. But we have become "shoreline poor". Beaches are a
regional resource for all the people, and we hope you will cooperate with us
on this request, for the benefit of all. Thank you.

Bosley

Thank you, Mr. Cabrillo. We have a lengthy list of speakers sche-
duled, so let's hold off questioning Mr. Cabrillo for a moment. I would
like to invite Mrs. Sheila Porter to speak first.

Mrs. Sheila Porter, Resident:

My name is Sheila Porter. I have lived in Neptune Beach for 26 years.
I am president of the Neptune Beach Neighborhood Improvement 'Association. I
am speaking both for myself and for that organization today. I want you

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291

to turn down this request. I love this town, and I don't want to see it
change because folks up at the state capital and over at Gotham City Hall
haven't been doing their job all these years.

Neptune Beach was smart enough to make its shoreline a municipal beach
years ago, and it is truly a fine beach. We have protected and preserved
it. We have more people now too, and if we open our beach to the city
people, it won't be a good beach for us anymore.

Bosley:

Thank you, Mrs. Porter. Our next speaker is Mr. Euclid Haines.

Mr. Euclid Haines, Owner and Proprietor of Haines Drugstore:

I am Euclid Haines, owner and proprietor of Haines Drugstore and Foun-
tain. My business is located one block inland from Neptune Beach Park. My
pharmacy serves this community, and my lunch counter is a friendly meeting
place for local folks. If we open that beach area to the city, I'll have
swarms of young city kids hanging around inside my store and out front.
There won't be any place for my regular customers to park. Those kids will
try to steal me blind, I know it. I am against this request, and I think
I am speaking for most of the small businessmen in Neptune Beach as well.

Bosley:

Thank you, Mr. Haines. I would like to ask Jim Rankin, Neptune Beach's
Chief of Police, to speak next.

Chief Jim Rankin:

Uh, you all know who I am. I've been investigating the police aspect
of this matter. If we open that beach up, we can expect 10,000 visitors
every good weekend from Memorial Day through Labor Day. I'll need a
half dozen more officers on duty at those times, and they'll, frankly, all be
spending most of their time writing out parking and speeding tickets that
will never get paid.

I checked with Chief Izen of Oceanside about the situation there since
the state built that new beach park facility in his jurisdiction, and he
tells me most folks are just enjoying themselves, but that vandalism is
definitely a problem. For example, the garbage cans. Their people put out
garbage cans every 100 feet because of the amount of trash. Well, a lot of
those cans just disappeared. So they cemented poles in the ground and
chained the cans to*them. The cans got stomped. Now this didn't happen to
all of them, but every smashed can costs $34 to replace. And that beach
area has become kind of honky-tonky at night.

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292

Bosley:

Thank you, Chief Rankin. I have to point out that those extra police
officers Chief Rankin would need would have to be paid from Neptune Beach
funds. Our next speaker will be Ms. Sharon Benitsky.

Ms. Benitsky, Students:

I am a student at Neptune Beach High School. I wanted to say that I
and my friends use Neptune Beach Park a lot, and we are worried about what
will happen with all those people from the city coming here. Last year,
when Neptune Beach played Gotham High for the district football championship,
you remember there was kind of a riot after the game. A lot of bus windows
were broken and some Neptune. Beach kids were hurt. We wonder if those same
people who started that riot, or other city people looking for trouble, won't
be coming up to us on the beach or the street and hassling us. And, uh, you
know, we're afraid too about what might happen to some of us girls, maybe
some weirdos will grab somebody.

Bosley:

I'm sure we all share your concern on that point, Sharon. I'd like to
let Mr. Alfred Escobedo speak now.

Mr. Escobedo, Fishing Captain:

My name is Al Escobedo, I.am captain of a fishing boat, the Sea Scor-
pion, and I live in Neptune Beach. The fishing is good around here. But
what will happen if we open our beach? What're we gonna do with all the
sewage these people are gonna make? It's gonna be sent.right out to the
middle of my fishing grounds. Fish get filth up their gills, they won't
hang around. I'm telltng you, I'll start catching nothing in my nets, if
you let the city people start coming here.

Bosley:

Mr. Escobedol the Council also wants to address this sewage question
fully. I'd like to have Mr. Yarborough, manager of our Neptune Beach sew-
age treatment facility, give his expert views on-what the results of opening
the beach park would be.

Mr. Yarborough:
As you know, the Neptune Beach sewage treatment plant is quite adequate
for our local needs. However, an influx of an additional 10,000 or more
persons at one time would almost certainly mean that a good portion of the

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293

Mr. Yarborough: continued

sewage entering the treatment facility would have to be flushed right on
through, untreated. The health effects of such effluent being pumped into
the sea cannot be accurately predicted without further study, but I can tell
you it will have some effect. We might see the County Department of Health
close the beach on occasion because of high pollution levels.

We would need to integrate a second treatment facility with our present
one to fully handle the increase in sewage which opening the beach park to
the general public would generate. It would be expensive, costing at least
$5-$6 million. The state and federal governments would pay a good portion of
that, of course, and we would have to seek approval of the project by them.
We would also need to construct additional sewer lines and toilet facilities.
We'll have to tear up some streets to place those sewer lines. So a new
plant, even if we started on it tomorrow, could not be designed, funded, and
made operational for three years at least. I expect you would need to vote
a substantial user tax onto everyone's local water bill for several years to
pay the city's share of the costs for these improvements.

Bosley:

Thank you, Mr. Yarborough. The chair recognizes Mr. Cabrillo.

Mr. Cabrillo:

Mr. Chairman, I have heard here a lot of good reasons for Neptune Beach
to deny Gotham request. But the matter still stands that our beaches are a
"Public trust," and each citizen has as much right to their use as the next.
You are saying, "we'll take the best, and our backsides to all the rest."
We find this particularly disappointing in light of the fact that many
shoreline activities along our beaches, such as the new power plant and harbor
facilities, benefit you!. Have you no sense of responsibility toward your
fellow citizens?

Bosley:
You have put the matter very starkly, Mr. Cabrillo. However, it seems
to us here that Gotham is at fault, not the people of Neptune Beach. Good
beach areas have been lost right 'and left over the last 15 years while the
city twiddled its thumbs or looked to the almighty dollar.
We still have one more speaker on our list. Will Mr. Ostend please
come up to speak.

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294

Mr. Ostend, Architect:

My name is Cal Ostend. I am an architect, and my particular concern is
the preservation of the physical character of Neptune Beach. The request to
open our beach to Gotham residents will have immediate effects and longrange
effects. Soon after the opening of the beach, you can expect the city to
widen the highway to Neptune Beach. This will not only bring more people
here, but the new setback will require the demolition of many houses and
business buildings along the road. We will have more city people buying
homes and commuting to the city. This will change the sense of neighborhood
we now have.

Franchised food outlets and motels will surely come. There will be in-
creasing pressure on Neptune Beach to accommodate itself to the recreation
market. Some people will make a lot of money, but we won't have a community
here anymore.

(Loud applause from audience in hearing room.)

Bosley:

Thank you for your eloquent warning, Mr. Ostend. Thank you all for
appearing here today. The vote of the Council will take place in private
session and be announced soon.

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309
THE BAILY SPLASH

Publisher ' President

John Adams January 18, 1979

More Controversy meet the regulations and get
approvals and permits. I can
not believe it, but it has
taken four years and 2 million
A MESSAGE FROM THE EDITOR dollars in fees to get these
approvals. My construction
costs will be 24% higher now
A few days ago, our paper than they would have been two
printed a letter from Mr. year ago when I thought I
William Eagerton complaining could begin.
about the lengthy and costly
impact government regulations There is no way now that I
have had on his housing proj- can sell my units for $40,000
ect. Since that letter app- as planned.
eared, we have received sever-
al responses to Mr. Eagerton's How did this happen? I had
complaint. Several of these to get permits and approvals
agreed with Mr. Eagerton; from two federal agencies, two
others supported the idea of state agencies, and five local
government regulations and agencies. Some permits could
permits. In today's editorial not be approved until others
page we are reprinting Mr. had been obtained. Some agen-
Eagerton's letter along with cies took three to four months
six replies. each to process papers and
make recommendations.
THERE MUST BE A BETTER WAY
In order to get some ap-
provals, I had to agree to
To the Editor: contribute $3 million for a
sewage treatment plant and
Four years ago I presented sewer system, $2 million for a
plans to the public and to the main water line, and $2
appropriate government agen- million towards road con-
cies for building Seaside, a struction.
600 unit planned development
along our south-east coast. Each agency requested some
Homes were to be modestly modifications and changes.
priced for young, middle- Some necessiated new archi-
income families. A marina, tectural and engineering draw-
boat club, private beach, and ings. Often these changes in-
recreational center were to be
provided. volved prospective buyers and
local community organizations.

I thought it would take two Homes in Seaside will now
years and cost me one-half have to be priced 30% higher
million dollars in architect, than originally intended. Lot
lawyer and consultant fees to size will be smaller, some

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310

privacy has been sacrificed. would be seriously affected.
The marina, boat club and re- It must be obvious to . any
creational center will have to
be built later. thinking person that without
state review, communities
Surely there must be a could destroy each other.
better way to insure quality
devel opment. Do three or four S.R. Tanson
levels of government have to Office of State Planning
be involved? Must there be so
many different permits and
approvals? To the Editor:
William A. Eagerton, I agree with Mr. Eagerton
Assn. of Concerned Developers that too many levels of gov-
ernment are involved in the
approval process. However, I
LETTERS am sure he would agree that
some governmental revi ew of
Mr Eagerton: development projects is neces-
sary.
I can understand, from your Mayor
point of view why you don't
want several levels of govern- Expresses Concern
ment involved in the approval
process , but I think all
levels do need to be included We do need to insure that
in this process. basic health and safety stand-
a rds are met. This can be
Local officials look at the best done at the local govern-
needs of the local population ment level .. We have fine
and the impact of a project on officials who are in the best
their communi ty. possible position to evaluate
a local project right where
State officials look at the the project will be built.
broader effects on neighboring How can state, county or
communities or the state as a federal officials know what
whole. our needs are? When they make
decisions that affect us they
One example of the need for are not accountable to our
such a broader look comes from local population for the suc-
your own Seaside project. cess or fail ure of thei r
When plans for sewage disposal ideas.
were reviewed at the local
level, they were approved With the Eagerton project,
because there would be no we believed--and experts sup-
adverse effects to water ported our view--that the pro-
quality foryour community. posed housing project would
not create environmental dam-
When the state reviewed the age. Yet the federal agencies
plans for water quality it said it would. They have been
quickly became apparent that the ones causing the long
while the waters of your delays. Because of them, this
community would be safe, those Seaside project has not yet
of three towns down the coast been built, and several hun-

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311
dred construction workers in In a public hearing held by
our community have not been the U.S. Engineers, neither
hi red. state nor local officials were
concerned by this problem.
The argument that our de- Both testified in favor of
cisions in a project such as issuing permits for building
Seaside will be narrow and the marina near the turning
selfish is untrue. We will basin.
look out for our own interests
because that is our job; but Surely national and inter-
wewill not do it insucha national commerce cannot be
way that it will ham others. put at the mercy of a local
community or even a single
W.O. Fitzsimmons, state. The federal government
Mayor must be involved in the review
process whenever navigable
Testimony Favors Marina waters are affected.

Col. L.R. Wigginfeld
To The Editor: U.S. Engineers
The importance of the fed- Total Impact Not
eral government's review can Assessed
easily be illustrated with Mr.
Eagerton's Seaside project. To The Editor:

Eagerton originally pro- As a marine biologist, I
posed to build his marina have very strong feelings ab-
alongside a major turning out the fact that so many
basin for commercial ships agencies are involved in
entering Coos Harbor. Access granting approvals for de-
to the outer harbor for boats velopment of construction
moored at his marina would projects.
have been through waters of On the one hand, all
the turning basin, interfering development projects have to
with commercial traffic, and be reviewed by environmental
making th e area accident experts. We have to have some
prone. control over what is built and

0
00

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312

how it is built. Otherwise, If we are going to use a
our shorel i ne envi ronrrent wi I I permit-approval system to man-
surely be destroyed. age our coastal areas, the
But, two things in par- least we can do it to set up a
ticular concern me. One is system that looks. compre-
the narrow view of each hensively at all of the inter-
agency. All the agency does acting elements and considers
is look at a little part of their combined effect on the
the problem. Second, is the marine environment.
fact that no one person or N.W. Wainright
agency is responsible for con- Professor, Marine Biology
.sidering the total impact of a Hamilton Heights College
project on the environment.
Let me use Mr. Eagerton's
Seaside project as an example. To the Editor:
Seaside was reviewed by
separate agencies for sewage I wish to express my
disposal, grading, and flood support for Mr. Eagerton, who
control. In each case, the complained that it takes too
project met minimum standards. long for construction projects
to be approved.

Two years ago, the Civic
Club applied for permits to
build a private dock and small
boat harbor to give low-income
and handicapped children
.... .. boating fun. We are one third
of the way through the permit
........ ....... d expect it will
........... process an
take another two to three
........ of years before we can start to
build.

We have already spend thou-
sands of hours filling out
papers for government agen-
cies. Most of the forms asked
for the same inforination, but
each agency wants its own
forms used.

I can't understand why
agencies on the state, county,
and local level have to review
Yet the combined effect of for the same things--impacts
sediment washed into coastal on water quality, land use,
waters during construction , and highway systems.
along with sewage disposal and I agree with Eagerton that
drainage of flood waters, is no one benefits from the time,
sufficient to destroy much of red-tape, and duplication of
the marine life in an area efforts involved in obtaining
off-shore from the proposed so many approvals.
development site.

313

It is costly to the person struction timetable was de-
seeking permission, and to the layed as the result of the
taxpayers who support such an agency review process. But we
unwieldy bureaucracy. ask: Isn't that worth it if
the environment and the public
Wallace Wentworth, Pres. are protected?
Civic Club
We find no problems with
Approval Time the process. It worked well
in this instance.
Too Lengthy Mr. Eagerton is not paying
more because agencies are out
To The Editor: to get him. He is paying more
because he submitted poor
As a political science pro- plans in the first place. If
fessor, I agree that we need he had taken the time to
to make some changes in the develop quality plans and take
approval process. into consideration a number of
important factors he forgot,
A recent study by graduate he wouldn't have had all this
students showed that the av- trouble.
erage length of time required
for approvals in our state is To often, the agency review
34 months. In the last two process is nothing but a
years, a minimum of eight "rubber stamp" for developers.
approvals were necessary be- Too often agencies ignore the
fore action could be taken. environment and the public in
order to speed development.
When agency heads we re For once, the agencies gave a
asked why so many different project careful review. For
approvals were needed, they once the system worked. We're
all replied that if review was glad it did.
to accomplish its purposes,,
each component had to be Gail Carnes, President
evaluated by someone with the Citizens for a
necessary technical knowledge. Better Government

I'm not sure so many ap-
provals are needed, but . even
if they are, I am sure there
is a way to streamline the
process by eliminating dupli-
cation and reducing the number
of perTnits required.

Prof. A.N. Smith
Dept. of Political Science
North Uptown University
Review Process Defended

To the Editor:

It is true Mr. Eagerton's
costs increases and his con-

(99)

326

Reading 111-9

COASTAL LAND USE and THE TAKING ISSUE

Coastal lands are scarce, irreplaceable, and valuable natural

resources. Over the years, the importance of regulating their use

has become increasingly apparent. Today, a heightened environmental

consciousness has spurred an effort in many states to protect coastal

land from over-development and the resulting environmental stress.

Yet most coastal land is in the hands of private owners.

Traditionally in this country, individuals have a high degree of free-

dom in what they choose to do with their land. How, thenP can the

use and development of private land be controlled? One approach is

through the exercise of the power of eminent domain, a process by

which government acquires private land for public use.

This power has traditionally been held by governments as an

inherent power, one necessary for effective government. However,

citizens of this and other countries have frequently demanded that

government not be given absolute authority in the use of eminent

domain. The U.S. Constitution reflects this concern. In the Fifth

Ammendment, government's power of eminent domain is restricted. Federal

or state governments can take land from private owners only if government

meets two conditions. -First, land must be taken for public use, and

second, the owner must be fairly paid.

However, the process of purchasing land to control development

is difficult, time-consuming, and expensive. In addition, it deprives

land owners of their land. A more practical approach to controlling

land use is through regulation. Through regulation, private owners

(100)

327

Reading 111-9

may retain title to their land and at the same time the use of

coastal resources can be controlled in the public interest and for

the public good.

Since the earliest days of our country, the right of the state

to regulate private activities to protect the public good has been

accepted as a legitimate exercise of authority. This right is

commonly known as the police power of the state.

Over time, the definition of the police power has been extended

to apply to controls on private uses of land. Early uses of the

police power in this regard focused upon regulation of land uses for

narrowly defined purposes of protecting the public health, morality,

safety and welfare. For example, building codes were passed to make

sure buildings met minimum safety standards. Zoning laws were passed

which limited certain kinds of activities to specific areas. Also

considered to be matters of public welfare were such things as

controlling building density, protection of private land values,

and promotion of peace and quiet.

At first, many of these regulations were attacked by private

land owners. They argued these regulations took away their right to

use their land any way they wanted to. Therefore, their land was

being "taken" without just compensation. However, the power of the

state to control land uses in order to maintain public health, safety,

morals and welfare was upheld almost without exception by the courts.

Regulation of private land has become more complex as land

has grown more scarce. In our modern industrial society, possible

uses of land have multiplied. This is particularly true in coastal

(101)

328

Reading 111-9

regions. In response, the notion of what is in the public interest

and welfare has also changed. Land use regulations today, in addition

to protecting public health, safety, and morality, may be intended

to preserve or promote other public "goods," including aesthetic,

cultural, scenic, environmental and architectural values. The

exercise of police power has further expanded.

Ask

A@ a result, many land owners have filed lawsuits against

the government, claiming that certain land use regulations are so

restrictive that owners no longer have any reasonable uses of their

land left. In such instances land owners claim their land

has been "taken" without just compensation.

(102)

329

Court decisions in recent years have not shown a consistent

pattern in supporting or denying the right of states to expand the

police power in regard to land-use regulation. Courts have ruled

that if a regulation goes too far, it becomes in effect, a taking.

In such a case, the state must provide the land owner with just compen-

sation, or change the regulation.

When courts have ruled in favor of the state, they have asserted

that the protection of the environment and the resulting benefit to

the community outweighs the limitation on the property owner's right

to use land in any way he or she chooses.

In sum, courts have supported the right of the state to exercise

the police power through land use regulation, but they are not agreed

on the point at which a land use regulation becomes so unfairly restrict-

ive that it violates the constiutional rights of private property owners.

In any case brought before it, the court balances support of

the public health, safety and welfare against protection of private
property rights. This balancing process is the heart of the "taking

issue."

(103)

332

Reading III-10

DOOLEY v. TOWN PLAN AND ZONE COMMISION OF TOWN OF FAIRFIELD

A Mr. Dooley owns a sizable piece of land located approximately one-

half mile from Long Island Sound. Originally much of the land was zoned for

residential and commercial construction. In fact, Dooley was assessed

$11,000 for a sewer on one parcel of land.

The area has been rezoned as flood plain which prohibits the construc-

tion of residences and most commercial buildings. The ordinance lists

permitted uses in the flood plain zone including parks, playgrounds, wild-

life sanctuaries, and graveled surface parking.

Dooley has objected to the ordinance. He feels that it is too res-

trictive. He feels that this property should not be classified as a flood

plain zone because most of his land is on high ground and not subject to

flooding. He further feels that the only permitted uses are public ori-

ented. An assessment of the economic value of his land has revealed that the value

of his land has depreciated 75% as a result of the ordinance. He has

filed suit.

The Town of Fairfield argues that the ordinance does not constitute a

taking of property without just compensation. The Town feels that the

flood plain ordinance is necessary to Iprevent commercial or residential

uses of the land, and thus protect citizens from property damage or personal

injury. By banning these activities the town is legally acting to protect

the public's health, safety, and welfare.

(104)

333

Reading III-11

McCARTHY v. CITY OF MANHATTAN BEACH(CALIFORNIA)

McCarthy owns over 112 mile of sandy beach approximately 175 feet

wide. It is bordered on the west by the Pacific Ocean and on the east by

a state park. While never specifically designated as such, the land had
been used by the public as a recreational site since 1900.

The city of Manhattan Beach adopted a zoning regulation which places

the McCarthy land in a "beach recreation district." The only struc-

tures permitted are lifeguard towers, fences and small signs. However,

McCarthy Js permitted to charge admission fees to users of his land.

McCarthy applied for a zoning re-classification so he could build

single-family homes on his land. The city refused his application and

McCarthy has filed suit. McCarthy claims that the ordinances reduces the

value of his land. Even though he could charge admission fees to his

beach, his land would be worth more if he could build homes on it. Thus,

McCarthy argues, the city is taking his land without just compensation.

City officials argue that recreation is the most reasonable use of the

land, and has been so used for several decades. In addition, the area is

subject to flooding and any residences will have to be built on pilings.

The safety of these structures is questionable. Further, illicit and im-

moral activities could take place under the pilings, causing a police prob-

lem. City officia1s conclude that the regulation is reasonable and helps

protect the general health, safety and welfare of the community.

(105)

334

Reading 111-12

MORRIS COUNTY LAND IMPROVEMENT COMPANY v.
PARSIPPANY-TROY HILLS TOWNSHIP

A New Jersey regulation has created a Meadows Development Zone for a

section of a 1500 acre swamp lying within the Parsippany-Troy Hills Town-

ship. The regulation attempts to provide flood protection and prevent ex-

tensive development in the area. Land uses permitted within the zone in-

clude various agricultural uses, limited residential uses, outdoor recrea-

tional uses, public utility transmission lines, radio or T.V. transmission

facilities, township sewage treatment plants, and water supply facilities.

The Morris County Land Company owns 66 acres within the meadows zone.

The Company wants to fill the land, but their permit request was denied.

The Company has filed suit claiming that the land has to be properly

filled before active uses can even be considered. They also argue that

since many of the permitted uses are public, these objectives should have

been met through the power of eminent domain. Therefore, they maintain

that through land use regulation, the township has taken their land with-

out just compensation.

Township officials disagree. They argue that the area serves as a

natural over-flow basin in times of flooding. To allow it to be filled in

would increase damage from floods, and therefore harm the public safety

and welfare.

(106)

335

Reading 111-13

JUST v. MARINETTE COUNTY

In 1961 Kathryn and Ronald Just bought 36 acres of land along a lake

in Marinette County, Wisconsin. They planned to keep part of the land for

personal use and to sell the remainder of the land. Between 1964 and 1967,

the Justs sold five parcels of land. The Juststhen planned to haul in

sand to fill in the remaining shoreline area.

In 1967 Marinette County adopted a Shoreline Zoning Ordinance designed

to protect navigable waters through shoreline regulation. One provision

of the regulation requires a permit for filling, draining or dredging wet-

lands. The intent of this regulation is to protect wetland areas from

activities that would seriously alter their natural state.

Six months after the ordinance went into effect, Ronald Just hauled

in 1,040 square yards of sand without a permit. He filled an area 20 feet

wide along the shore. The Justs were cited for a violation of the Shore-

line Zoning Ordinance.

Kathryn and Ronald Just now bring suit charging that regulations pro-

hibiting them from filling their property substantially reduce the value of

their land. Without filling, they argue their land is economically worth-

less. They maintain this constitutes a taking of their land without com-

pensation.

Marinette County officials argue that wetlands in their natural state

are valuable resources. They claim that.filling of these areas will harm

the public welfare and is not a reasonable use of the land.

(107)

Reading IV-1 359

GROWTH AND THE ENVIRONMENT

THE CASE OF FLORIDA

FLORIDA 1821-1900 than Problem". Indian land was
needed for settlement. In 1823,
This story begins in 1821 the Seminoles were pressured to
when the United States raised sign a treaty giving up all land
its flag over a new acquisition- claims in return for relocation
the territory of Florida. The on a reservation. By 1824, the
federal government's first order treaty was ratified.
of business: rapid settlement The next problem was ridding
by Americans. Blessed with the Florida coast of pirates.
abundant rainfall and a mild After many efforts, Caribbean
climate, Florida offered many pirates were wiped out by Commo-
enticements to new settlers. dore David Porter who led his men,
On the other hand, Florida armed with rifles and cutlasses,
offered many discouragements into the swamp areas where the
as well. pirates hid.
Large numbers of Seminole Now the only problems facing
Indians inhabited the Florida Florida were the problems pre-
territory and bands of Carib- sented by the land itself. Over
bean pirates headquartered the next 150 years, the people of
within the coves along the Florida set about the task of
southern Atlantic coast. The overcoming the environment-- only
land itself presented ob- to find, in some cases too late,
stacles as well. Thick stands that they were destroying that which
of mangroves formed almost had first attracted them. In the
impenetrable barriers between following pages, you will find out
land and sea, and salt marshes something about what happened to
provided breeding grounds for Florida, and why.
malaria and yellow fever
carrying mosquitos. Vast in- THE NEW FLORIDIANS
terior swamps and marshes,
inhibited travel and communi- Florida began to attract new
cation and were inhabited by residents almost at once. Land
poisonous snakes and large was available at little or no cost
alligators. Hurricanes were and with no restrictions on its use.
an ever present threat. How Soils were good for growing cotton
could the U.S. government en- and citrus crops. There were rich
courage settlement? Land had timber lands and natural harbors.
to be made available for culti- The land could be made productive
vation, transportation systems at minimal cost.
developed, communities built. The 1820's and 1830's were key
Florida had to be safe from the years in establishing the economic
threat of Indians and pirates. base upon which Florida was to
develop. Southern planters, look-
FIRST THINGS FIRST. ing for rich new soils to replace
the exhausted lands they left be-
Most pressing was the "In- hind, settled in the area around

(108)

360

Talahassee. Lumbering operations much coastal land that should
developed in the Pensacola region, have remained public was made
making use of large inexpensive available for private purchase.
tracts of timberland. Oranges Still, most of the land remained
were cultivated in the highlands unsold especially in the undesir-
of northern Florida. Apalachio- able swamp areas.
cola developed as the third
largest port on the Gulf, serving TRANSPORTATION
not only Florida but Georgia and
Alabama as well. As Florida continued to grow,
Florida grew quickly and by the Trustees of the I.I. Fund
1837 it had a population of turned their attention to pro_@
48,223. In 1845, Florida gained moting railroad and canal building
statehood. as well as drainage, reclamation,
and settlement. The Board of
MORE AVAILABLE LAND Trustees sold bonds to finance
construction and offered land
Five years later, the U.S. grants to transportation companies
government returned to the states for every mile of canal or rail-
all "swamp" and "sovereignty" way track built. Soon miles of
lands it had held in trust for track and canal were under con-
them. Florida's share was 20.3 struction.
million acres, approximately By 1900, population had in-
three quarters of present day creased to one-half million but
Florida. Sovereignty lands now the people of Florida be-
included coastal shorelines, gan to feel a new concern. The
shores of navigable lakes, and railroad companies, large corpora-
the bottoms of all navigable tions, and a few wealthy indivi-
water bodies. duals had amassed tremendous
The new state government power. They were gaining control
declared that wetlands above over many of Florida's resources.
the mean high water mark were Many Floridians feared that con-
to be made available for sale. trol over the future of their state
Proceeds from their sale would was slipping away from them.
be used to drain and reclaim
swamp lands.
To organize and handle the
sale and drainage of the lands,
the Florida legislature created
a managing agency, the Board of
Trustees of the Internal Im-
provement Fund. Their first
task was to survey the land.
Making their way through swamps
filled with mosquitos, alligators
and snakes, and wading through
coastal marshes covered with
thick mangrove growth, sur-
veyors inevitably made mistakes.
In many cases, the high water
mark was set lower than it
should have been. As a result,

361

FLORIDA 1900-1940 area. It appeared that the Ever-
During the years 1900-1940, glades drainage project had been
population quadrupled--increasing a success.
The progressive program also
from 528,542 in 1900 to 1,897,414 brought the first establishment
in 1940. Growth occurred in all of state and local agencies to
major areas of the economy-- in oversee and regulate use of the
agriculture, in citrus production, state's resources. Responsibili-
in the lumber and pulp industries, ties of these agencies included:
in mineral extraction and in tourism. 1) surveying resources, 2) edu-
The plentiful resource base of cating the public about availa-
Florida and state and local poli- bility and best use and 3) pre-
cies encouraging maximum resource
use were prime factors in this venting, through regulation,
monopolies on uses and practices
growth. detrimental to the availability
Still, at the turn of the of these resources for economic
century, there was discontent. and recreational use.
Too much power was concentrated It seemed that these agencies
in the hands of the large rail- represented a big step forward.
road conglomerates and the poli- There were now procedures for
tical interests that supported controlling use of the environment.
them. The people of Florida In actuality, while regulations
wanted a change. In 1901, a were applied in some instances,
liberal reform governor, William the larger effort was devoted 'to
S. Jennings, was elected governor. making the resources available
A PROGRESSIVE PROGRAM FOR FLORIDA for growth and development.. releases
Brochures, pamphlets ' news
and field agents encouraged Flori-
Jennings promoted a pro- dians to develop more enterprising
gressive program with three ways to use resources. One of the
goals: 1) to control the railroads, most enterprising was coastal
2) to turn over remaining public landfill.
lands to the people, and 3) to
establish agencies with power to LANDFILL
regulate in the interest of the
general public. To carry out One day in 1909, a man by the
his public lands program, Jennings name of Fisher lost his temper when
proposed to drain the Everglades. he saw a pile of trash and rotten
Support grew for this plan, and grapefruit that had collected aroun
between 1906 and 1929, four hun- his dock. He hired a dredge to
dred and forty miles *of drainage scoop up a protective point around
canals and levees were built by it. When he saw how inexpensively
the state at a cost of 18 he had created new shoreland, it
.million dollars. In addition, triggered his imagination. He de-
a maze of subsystems were built cided to focus upon the Miami Beach
at local initiative and expense. area, and envisioned an entire
Within a few short years, city complete with hotels and polo
the custard apple swamps and moon fields. He set about making this
vines characteristic of the south dream a reality.
lakeshore of Lake Okeechobee At the time, Miami Beach was
gave way to sugar cane, winter a long, narrow strip of land bor-
vegetables, and beets, in a rapid- dered on the Atlantic side by a
ly growing Everglades agricultural

362

ridge of low dunes and on the the idea of "coastal ecology'? was
bay side by a wide belt of unknown.
tidal flats covered with red The new regulatory agencies
mangroves. responded to problems only as they
To realize his dream, arose. They had no comprehensive
Fisher needed to expand the program with periodic review and
beach. The state held title revision. New laws and regulations
to all the bottomiands beyond were issued to meet new situations
the mangove shoreline. To and frequently conflicted with
carry out dredge and fill, previous laws and regulations.
he needed permits from both Agencies found themselves in the
the state of Florida and the position of being responsible
Army Corps of Engineers. Not for enforcing numerous laws and
only did the state grant the regulations which were out-dated,
permit, it offered to give contradictory, and in many cases,
Fisher all the free fill he in conflict with new research on
wanted. Approval from the results of resource use. In short,
Army Corps of Engineers was the agencies were not equipped or
so certain that contracts were able to regulate effectively.
let and dredges sent to Miami The inadequacy of the reform
a week before the necessary outlook was revealed tragically
approval papers arrived. ' in the unhappy aftermath of the
,During the Florida land great Everglades drainage project.
boom of the 19201s, Fisher and Torrential rains and heavy flooding
his partners made land sales came in the 19201s, wiping out
of $23 million in a single year. commercial farm profits and
Their example encouraged other causing severe loss of life. The
promoters to exploit dredge and man-made canals and levees were
fill opportunities. New islands impressive engineering feats but
were created in Biscayne Bay could not prevent flooding.
and large areas of coast along New problems came in the 19301s.
both the Atlantic Ocean and the The canals and levees over-drained
Gulf of Mexico were remade. in times of drought. Over-drainage
The original landscape was became severe and produced swamp
erased as if it had never been fires, soil destruction, and a
and a more saleable one built lowering of the underground water
in its place. reserve, resulting in the emergence
of salt water in fresh water drink-
NATURE STRIKES BACK ing supplies along the Atlantic
Coast.
The reformers sought wider Clearly, something had to be
economic opportunities for the done. Water levels had to be man-
people of Florida, more demo- aged better through periods of
cratic government, and less re- heavy rainfall and continuing
source monopoly. They did not, drought. Just what it was that
believe bigger was better, but needed to be done was not so certain.
they did believe in progress, By the 19401s, people began
and that meant continued growth to realize the dangers of growth
and development. The role of and development without restric-
government was to intervene in tion. Development along coastal
the market system only when shores and in bays polluted coastal
competition needed to be re- waters,destroyed prime fishing
stored. Restoring the "environ- grounds and altered circulation
ment" was another matter and and flushing patterns. Destruction

363

of mangrove areas eliminated a
natural barrier against coastal
hazards such as hurricanes, de-
stroyed estuarine nursery and
breeding grounds and permitted
the intrusion of salt into
coastal soils, replacing fresh
water marshes with salt water
zones. Disposal of domestic
sewage either directly into
nearby water bodies or through
septic tanks and the disposal
of agricultural and industrial
wastes directly into streams,
rivers, and coastal waters de-
stroyed fish and caused eutro-
phication of major water resources.
There were public outcries
and demands for new laws and
more specific regulations, but
resources were still so abundant
and unbridled growth so profit-
able that promises of reform
were much more frequent than
actual laws and restrictions.
Benefits from growth were immedi-
ate and real. Environmental
concern seemed unimportant
compared against jobs and busi-
ness success. The process of
growth, development and con-
sequent enviornmental damage
went on.

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364

FLORIDA 1945-PRESENT LAND SALES AND POPULATION BOOM

Following World War II, a Resident population also grew
post-war economic boom was felt dramatically, as Florida increasing-
throughout the United States. ly became seen as an attractive
Factories were converted back place to live. Land companies
to production of consumer goods, launched major promotional cam-
and the American people pressed paigns across the country empha-
for new cars, homes, and vacation sizing climate, environment, year-
travel denied them during wartime. round boating, fishing, swimming,
This post-war surge of growth and inexpensive living. People
and expansion benefited Florida responded, purchasing unimproved
in particular. land, homesites ready for building,
and homes in planned communities.
TOURISM Commerce and industry were also
enticed, by the prospects of new
With air travel now an opportunity, available land for
accepted mode of transportation, expansion, and low labor and con-
the airline industry used glamour struction costs.
advertising and easy credit terms From a state with fewer than
to make air travel the dream of two million residents in 1940
the American middle class. Flori- Florida's population grew to almost
da was an obvious destination. 5 million in only 20 years. With
Within a few years, airlines the greatest demand for property
offered night coach flights at along coastal areas and inland
reduced rates and Florida hotels lakes and river, land values
offered a summer as well as a in these locations skyrocketed.
winter season. Tourism expanded An area known as the Galt Ocean
rapidly. Mile, which had been valued at
Overcrowded resorts created 11-2@ per ocean-front foot in 1890,
a rush to construct large new was worth $5,000 per front foot
hotels--as close to the waterfront in 1968. Today it is worth still
as possible. At Miami airport, more.
the number of domestic passengers The demand for more land grew.
jumped from a little over a The state responded between 1956
half-million people in 1947 to and 1967 by selling 28,000 acres
well over a million just four of publicly owned submerged land
years later. to developers to be dredged
The rise in automobile and filled for private use. To-
ownership, highway construction, tal land value of Florida rose
and auto travel also fed the from $2 billion in 1940 to $Sl
tourism boom. As many peop'le billion by 1970.
began arriving by &ar as by The opening of Disney World
plane. Motels sprang up through- attracted thousands of new
out Florida and soon outnumbered retired residents, creating a
hotels. From S million tourists totally new urban belt in central
in 1952, the figure bolted to Florida. By 1973, the population
25 million by 1972, representing had reached 7.8 million, with
a 500% increase in just 20 years. 6,000 new residents per week
In Orlando, Disi-@-_@y Wurld alone moving into Florida.
attracted 22 million visitors in
its first two years of operation.

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365

EGION01MICS AND ENVIRONMENT Industry added to the pollu-
tion. Industrial polluters of
The tourist and population waterways were given immunity
booms combined with the avail- from the few pollution laws
ability of comparatively chean land that existed.
and labor to accelerate the Nassau County was declared
growth and development of Florida's an "industrial county" in the
commercial, industrial and agri- 1940's. At that time, the
cultural enterprises. Florida's state legislature declared that
new prosperity raised the aver- discharge of sewage and indus-
age gross income of the Florida trial wastes was "in the public
resident from $4-.608 in 1955 to interest". Paper mill wastes
$11,115 by 1965. While the destroyed shrimp beds and pollute
people of Florida enjoyed the Amelia River. The once
greater material wealth, more beautiful Fenholloway River in
leisure time and a higher standard Taylor County on the Gulf was
of living, the devastating effects declared an industrial sewer for
upon the environment were accumu- a cellulose factory.
lating. Phosphate wastes did heavy
In their eagerness for growth damage to the Peace and the Ala-
and exploitation of resources, pia rivers. Three separate times
Floridians failed to heed the between 1960 and 1967 earthen
warnings of conservationists. dams near the Peace River broke,
Permits for site development and causing slime stored behind to
construction were issued with run into the river, killing all
inadequate concern for the eco- plant and animal life in its
logical sensitivity of the land. path. The emission of gaseous
Hotels were built below the high fluoride from the phosphate plant
tide line. Dredge and fill per- caused air pollution and destTloye
mits were easy to get and were crops and animals in Polk County-
issued with little thought to-
ward future effects. Mangrove DEMANDS FOR REFORM
swamps and salt marshes were
destroyed with apparent uncon- Environmentalist groups in-
cern for the consequences. Wild- creased their pressure for re-
life was endangered or destroyed. form. Three concerns were para-
Estuaries were polluted by mount: 1) many communities were
waste disposal and shorelines making decisions that affected
were seriously eroded. not only their own areas but
Agricultural producers con- which had spillover effects into
tinued to be permitted to alter neighboring areas and beyond;
drainage patterns and deposit 2) development plans needed to
agricultural wastes in lakes and be set to guide growth and pro-
coastal waters. Drainage of vide for both the use and the
wetlands caused oxygen levels conservation of natural resources
in lakes to decrease and lowered and 3) specific practices (such
water tables, leading to more as the sale of submerged lands,
intrusion of salt water into issuance of dredge and fill per-
fresh water marshes and wells mits without biological/ecologi-
supplying drinking water. Nutri- cal studies, and construction
ent runoff from agricultural lands below the mean high water mark)
contributed to further degrada- needed to be stopped.
tion of water quality. Clearly, a set of guiding

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366

principles was needed which Through planning and proper
considered more than the in- management, Floridians hoped to
terests of each separate local- rescue their environment without
ity. Reform did start at the ending all growth. Whether these
local and county levels, however, hopes will succeed, only future
in the 1950's. In 1967, the generations will know.
governor and the state legisla-
ture cooperated to pass legis-
lation empowering the state to
assume responsibility for
guiding the further growth and
development of Florida.
The governor established
a Natural Resources Committee,
and the legislature created a
Pollution Control Board with
the authority to issue or deny
permits and to enforce compli-
ance with pollution control
standards written into waste-
water discharge permits and
dredge and fill permits.
Another 1967 law required
a biological survey before
tidal lands could be filled,
altered, or used as a source
of fill, The sale of state-
owned submerged land was
banned except where it could
be proved to be clearly in
the public interest. Outer
limits for waterfront develop-
ment were established as were
criteria for the issuance of
waterfront building permits.
Though decisions on waterfront
development would continue to
be made at the local level,
they would be subject to State
Cabinet review and approval.
These measures were a solid
beginning for effective resource
management. In 1970, the Florida
Legislature established a Coastal
Coordinating Council and in-
structed it to prepare a separate
development plan for the coastal
areas of the state. In 1972,
the legislature enacted a com-
prehensive land and water manage-
ment program.
Conscious control of the Florida
environment was now taken seriously.

(115)

Reading IV-2 371

DO CHEMICALS AND CAROLINA MIX?

Irr recent years, many European companies have built plants along the

Atlantic coast of the United States. Many U.S. markets, including New

York, Philadelphia, Boston, Washington D.C. and Atlanta are situated on

or near the east coast. Rail and highway transportation to the rest of

the country is easily reached. Further, an east coast location provides

the shortest sea and air transport lines between the U.S. and Europe.

A West German chemical firm, Badishe-Analin and Soda Fabrik Co.(BASF),

recently announced plans to build a large industrial complex somewhere

on the Atlantic coast. Three southeastern states particularly interested

BASF: Georgia, South Carolina, and North Carolina. BASF needed almost

2,000 acres of land, 5 miilion gallons of fresh water daily, close proximity

to a railroad and a harbor, and an adequate labor supply. These states were

interested in BASF because new factories provide more jobs, plus increased

tax revenues.

After examining 20 possible sites, BASF decided to purchase land in

the Beaufort area of South Carolina. There was enough land available near

the Colleton River, and state officials agreed to provide adequate harbor

facilities.

Several state and local officials expressed great pleasure that BASF

would locate there. Many people in this region were unemployed or had low-

paying jobs. However, in the weeks,following the Beaufort announcement,

several groups declared opposition to the BASF project. They cited environmental

problems and threats to nearby fishing and resort industries.

Now a difficult decision had to be made. Should BASF be allowed to

locate in the Beaufort area?

(116)

Reading IV-3 374

FACT SHEET

BADISHE-ANALIN AND SODA FABRIK CO. (BASF): The following information
outlines the case from BASF's point of view. The company emphasizes
the economic advantages to Beaufort in accepting this proposed complex:

1. Investment in the new plant will be approximately $100 million.

2. The plant will employ 1000 people.

3. It is predicted that the plant will bring in to the community an
additional 5000 to 7000 jobs.

4. Long term investments by BASF will involve other installations to
follow the first plant (e.g., a $98 million petro-chemical plant
will be built in two years.)

5. Two million dollars will be spent in the construction of these
plants over the next 6 years; -3000 const-ruction workers will be
employed.

6. BASF will treat all wastes. The quality of the Colleton River will
not be damaged.

(117)

Reading Iv-3 375

FACT SHEET

GOVERNOVS DEVELOPMENT COMMITTEE; This information presents reasons why
the leading officials in the Governor's office are generally in favor of
BASF.

1. South Carolina officials predict a business recession for the next
two years. BASF development will help reduce the impact of this
recession since it will be located in an area where unemployment is
already high.

2. The goal of the South Carolina Development Board is to bring in
new industrial developments totally $500 annually. The coming of
BASF will substantially help to meet this goal.

3. The state government will construct a 13 mile railroad, a four-
land highway, and new docking facilities for BASF. Not only will
this help BASF, but will also help promote other new business and
industry to the Beaufort area.

4. State government will dredge the Colleton River so that large ships
can load and unload near the BASF plant. The Colleton River facility
will be available to other industrial companies as well.

5. Some job losses and other economic setbacks may occur in the fishing
and resort industries as a result of pollution problems produced by
BASF. But, these losses will be more than made up by the larger
number of jobs available at the BASF complex. BASF jobs will also pay
more than most other jobs in the area.

6. BASF has promised to meet all state guidelines with regards to
pollution standards.

(118)

Reading IV-3 376

FACT SHEET

COMMITTEE FOR THE PROGRESS OF POOR PEOPLE (CPPP), a popular civil
rights organization in the Beaufort area favors BASF. It feels that
the economic situation is very poor, and without new businesses coming
into the area, the situation will not get any better. The following
reasons explain this viewpoint:

1. Living conditions in the Beaufort area are very bad for many of
its citizens:
a) Housing conditions are far below the state average. Almost
50% are classified as either "deteriorating" or "dilapidated".
In many cases, houses have no doors, broken windows, no indoor
toilets, etc.
b) Over SO% of the people in the Beaufort area earn less than
$3,000 a year.

2. Employment opportunities in the Beaufort area are not good:
a) Farming is not profitable. The soil is of poor quality.
b) Tree farming and the timber industry have grown in this area,
but wages for forest workers and paper mill workers are generally
low.
c) Most of the jobs in the resort business are low income with
seasonal variations. Lay-offs are frequent. Most jobs are
for maids, cooks, waiters, janitors and groundskeepers. The
opportunities for employment fluctuate and wages are low.
There is practically no chance for advancement.
d) There is a serious lack of manufacturing jobs in the area.
e) Fishing and fish processing do provide jobs in the Beaufort
area, but employment in fishing has fallen sharply in the past
decade. Moreover, wages in the fishing industry are usually
low, and fluctuate widely during the course of the year.

3. The CPPP feels that even though some jobs may be lost in the fishing
and resort industries as a result of the pollution, the quality of
jobs and the large number of jobs at BASF will make up for these
other losses.

377
Reading IV-3

FACT SHEET

RESORT INDUSTRY ASSOCIATION: The owners of Hilton Head Resort, a very
popular and exclusive resort complex, and the owners of other resorts in
the Beaufort area are against BASF. The main objections of the association
are based on the fact that nearby industry in an established resort
area can mar the attractiveness of the region and thus have a negative
influence on potential tourist dollars.

1. Employment totals over 1,000 in the resort business.

2. Over 100 business conventions are held on Hilton Head Island each
year. Projections are for a considerable increase in convention
business over the next few years.

3. Fripp Island, on the northern edge of the Colleton River Estuary, is
just now being developed. It will become a prime site for resorts
and housing.

4. The effluent from the BASF plant, of 2.5 million gallons a day, will
have considerable impact on the Colleton River. Even if it is treated,
as BASF says, the threat of pollution is serious. Air pollution may
also be a problem.

S. BASF has never presented its final plans and drawings for their pro-
posed sewage control system.

6. BASF plants in West Germany and Belgium have polluted rivers in those
countries.

7. Large chemical plants and other kinds of factories located in this
area will ruin the quiet, scenic beauty of the area. Fewer people
will want to come for vacations.

8. Hilton Head Resort owners strongly believe that the entire resort
industry will suffer if BASF is built. Possibilities of air pollution,
water pollution and the visual nightmare of industrial blight are
very real.

(120)

Reading IV-3 378

FACT SHEET

REGIONAL MANAGEMENT AGENCY: This information describes the impact of
BASF on the Beaufort area. Population, economic and tax factors are
presented. Generally, this agency is in favor of the BASF project.

1. Population in Beaufort will increase by 3,600 people.

2. Per capita income will rise $3,000. This means a $3,000 increase,
on the average, for all citizens of the Beaufort area.

3. Thirty new retail establishments will be built.

4. A $3,300,00 increase in retail sales throughout the Beaufort area
is expected anually.

S. One thousand additional households will be created.

6. An increase of 910 schoolchildren will be added to the community.

7. There will be an increased demand for highways, schools, hospitals,
water and sewage facilities, and better police and fire protection.

8. County and municipal government in the Beaufort area will have to raise
funds to expand and develop the services listed in #7. More tax dollars
will be needed.

9. BASF will receive a 5 year tax exemption granted to all new manufacturing
facilities in South Carolina. After this period, taxes paid by BASF
will amount to $1 million per year.

10. During the first five years taxes will have to come from other sources.
We predict that the taxes from the new homes and businesses built
in the next few years will be enough to cover the costs of the new
public services.

11. Only a small number of manufacturing jobs are presently available in
the Beaufort area.

(121)

379
Reading IV-3

FACT SHEET

ENVIRONMENTALISTS: Some people, including scientists and other
concerned citizens, fear that BASF's new plant will seriously damage
the environment. Following are several reasons for this opposition:

1. The warm estuarine waters of the Colleton River have long yielded a
bountiful supply of oysters, shrimp, crab and other commercial sea
food.

2. The Colleton River estuary is one of two unspoiled estuaries remaining
on the entire east coast.

3. Sixty-two percent of the state's shellfish are caught in this area.

4. Water temperature changes are likely to affect supply of food and
natural enemies of the main organisms in the Colleton River.

S. Dredging the river could damage a) the Beaufort water supply, and
b) the oyster beds and shrimp industry.

6. Two and a half million gallons of effluent will be pumped daily into
the Colleton River; even if it is treated (as BASF says it will do)
this large amount will still have an impact.

7. BASF plants in West Germany and Belgium have polluted rivers there.

(122)

Reading IV-4 385

HIGH STAKES FOR EAST COAST COMMUNITIES

T H E A T L A N T I C 0 1 L S W E E P S T A K E S

The continental. shelf is the oil exploration are the Georges Bank
"front porch" of the United States. area off Massachusetts, and new sites
Stretching away from the shoreline a- in the Gulf of Mexico and off the
long the Gulf, Atlantic, and Pacific Pacific coast.
coasts, the water of the shelf is
shallow, nutrient-rich, and teeming How much oil is in the shelf,
with fish. Nearly 90% of all the fish and whether the oil companies can ex-
we eat are caught in this valuable tract it are unknowns at this point.
"front porch." But the odds are high enough that com-
panies like Exxon will be betting up to
Beneath the continental shelf $100,000 a day for the exploration gam-
lies other kinds of wealth: oil and ble. In the Baltimore Canyon alone,
gas. These resources may possibly pro- the oil sweepstakes could yield as much
vide important new energy sources for as 1.4 billion barrels of oil and 9.4
a nation sorely in need of additional trillion cubic feet of natural gas.
petroleum supplies.
The possibility of a major oil
one oilman says, "The future discovery is enough to make@many areas
of the world's oil industry lies under along the east coast take a serious look
water." The oil industry already at the possible impact of this "good
pumps over 20% of the world's oil fortune." For several communities, the
supply from continental shelves. Along results of the "Atlantic Oil Sweepstakes"
the Gulf of Mexico and off the Cali- may mean more than just plentiful oil
fornia coast, oil companies have oper- and gas. What happens if these drillers
ated oil rigs for many years. Some 160 strike it rich?
platforms dot the Gulf, one-third of
all those operating in the world. Oil rigs must be fed--with
supplies, with people, and with many
New areas of the U.S. conti- other important support services. And,
nental shelf are now being made avail- in turn, when oil and gas are produced,
able for oil exploration. After long they must be sent ashore somewhere to
court battles, the U.S. Department of be refined, processed, and transported
Interior, finally gave the go-ahead
for drilling in 1977. The Environ-
mental Protection Agency has approved
drilling permits for 10 companies. THE FUTURE
Primary areas for investigation are I
the Baltimore Canyon(about 100 miles OF THE WORLD S OIL INDUSTRY
east of Delaware and New Jersey) and It
the Southeast Georgia Embayment(a LIES UNDERWATER
similar distance off the Georgia
coast). Other new areas likely to see

(123)

386

to eager customers. Where will these
activities be located? How will all of 60 MI'LES AWAY,
this affect the shoreline of many East
coast communities? A look at ' three OIL DRILLS BITE INTO THE
areas along the Atlantic seaboard gives
some idea of the kinds of opportunities CONTINENTAL SHELF
and problems they may face if oil comes
to town.
RHODE ISLAND May. Says one local official, "Cape
For many communities in this May's economic base is inextricably
small state, the possible oil bonanza bound to a high quality natural environ.
may be the solution to some serious ment.
economic problems. The U.S. Navy re-
cently closed down bases in the state; By virtue of geography, Cape May
at Davisville, the Navy pulled out may also be bound to the oil boom on
leaving behind warehouses, fueling the East coast. 60 miles away the oil
piers, landing strips, a deepwater drills bite into the continental shelf;
port, and many unemployed civilians. if oil is found it must be transported
to the mainland, and the Cape May area
Several city and state officials. is the closest--and thus cheapest--
including the Governor. convinced oil point. Oil companies have already
companies to use the Davisville facil- expressed interest in Cape May as a
ities for supply headquarters during likely location for a deepwater port.
the two to three years of exploration. New refineries have been considered.
Industrial construction and port
Over 30 support companies have activities in this region could bring
moved into Davisville: Rhode Island in 30,000 new jobs by 1985.
expects $50-million a year from the
Davisville business. In addition, Planners in Cape May County con-
maior discoveries in the Baltimore sider these potential additions to
Canvon could mean 2.000 more iobs for their community: refineries, natural
local people. gas processing and treatment plants,
temporary and permanent support bases,
steel platform fabrication yards, pipe-
CAPE MAY, NEW JERSEY lines, tanker and pipeline port facil-
There is a community slogan that ities, and pipe-coating yards.
describes Car)e May: "The Nation's Their analysis predicts that such
Oldest Seashore Resort." Six American
Presidents, including Lincoln, have activities will damage the resort indus-
vacationed there. Located on the try and seriously alter the marshland
Southern tip of industrial New Jersey, environment that makes up one-third of
less than three hours from the New York- the county shoreline. An official plan-
Philadelphia urban belt, Cape May ning study, conducted in 1977, found
is a playground-home to some 7SO,000 "clear opposition" to the development
tourists and residents in the hot, of oil related facilities within Cape
humid summer months. May County.
The resort industry is respon- As a result of these and other
sible for 90% of the economy in Cape findings, planners for the county

(124)

387

recommended that the only oil support
facilities permitted in this area be
1) a helicopter base at an existing IN CAPE .CHARLESi
airport, and 2) a small, temporary
service base in Cape May Harbor. THE MAYOR AND MOST CITIZENS

FAVOR THE OIL FACILITIES
CAPE CHARLESj VIRGINIA

1S,000 people inhabit this quiet
coastal town, located near the tip of The majority of the citizens in
the Delaware Peninsula. An agricultural the area favor the zoning changes. In
community--a "truck farming town" one recent county elections, all candidates
resident called it--Cape Charles faces who favored Brown and Root won.
a major decision brought on by the
Atlantic oil sweepstakes. However, there is some criticism
of the oil facilities. Opposition to
Brown and Root, one of the largest the zoning changes comes from farmers,
oil rig construction firms, purchased who are afraid of losing their relatively
2,000 acres near Cape Charles for a new cheap labor supply to the new, higher-
construction site. If Brown and Root paying industries. Many long-time
moves in, it is likely that related residents of the area fear the industries
industries will follow. One firm, El will completely end their quiet life
Paso Gas, has already taken an option style, plus cause a big change in who
on an adjacent piece of land for a controls local politics.
natural gas port facility.

The County Board of Supervisors Despite the opposition, the
must OK zoning changes from "agricult- zoning change won approval from the
ural" to "industrial" before these new county supervisors. A farmers' organi-
facilities can be built. The Mayor zation challenged the decision in the
supported this change, arguing that the court and the Virginia Supreme Court
new oil industry will help the prosper- is presently considering-the case. In
ity of the county which has never the meantime, the citizens of Cape
really recovered since the great Charles wait and debate the issue,
depression of the 1930s. 2,000 new wondering if oil will be discovered, and
jobs would result from the Brown and how their community will react to the
Root complex alone. changes..

(125)

Reading IV-5 396

BOSSTOWN HARBOR

PLANNING CONFERENCE

CONFERENCE PROGRAM

Conference Site: The Classroom Inn

(126)

397

A MESSAGE FROM THE GOVERNOR

Office of the Governor
1776 Freedom Road
Bosstown, Atlanticoastate 12345

Dear Conference Delegates,

I welcome you to this conference on the future of Boss-
town Harbor. Let me share with you a few of my thoughts
and some facts and information before you begin your work.

Natural harbors are one of the major resources in the
coastal region. When developed into seaports, they con-
tribute significantly to the economy of port cities, and
surrounding areas as well. Nationally, U.S. seaports
handle over one billion tons of cargo a year, and provide
jobs for over one million people.

At the same time, however, many pressures are being put
on our harbor.areas. Technological change is sweeping
through the shipping industry, port cities like Bosstown
are expanding with land values skyrocketing, inner -city
waterfront areas have become prime targets for urban
renewal, environmental awareness and concern has increased,
and citizens everywhere are demanding improved recreation
facilities.

We therefore have to ask ourselves some very important
questions. How should port managers respond to the new
methods and patterns of shipping? Should run-down water-
front areas be bulldozed and modernized, or restored?
Is clean water more important than low tax rates or
jobs? These are only some of the questions you will be
confronting at this conference.

The recommendations which come from this Bosstown Harbor
Planning Conference will have a significant impact on all
our futures. Delegates, do your work well.

Sincerely

J.P. Undertowe III
Governor

(127)

398

CONFERENCE PURPOSE

The purpose of this conference is to recommend management
policies for governing Bosstown Harbor during the next
several years.

CONFERENCE SCHEDULE

SESSION 1 Meet in your separate delegations to
discuss your positions on the conference
issues.

SESSION 2 Form two Task Force groups composed of
representatives from each of the dele-
gations to deal with the major issues
surrounding planning for future INNER
HARBOR and OUTER HARBOR uses.

SESSION 3 Meet again in your original delegations
to produce a conference report and
evaluation.

CONFERENCE ISSUES

HARBOR EXPANSION AND MODERNIZATION--Is new port development
wise or wanted?

REDEVELOPMENT OF BOSSTOWN WATERFRONT--Should the area be
restored, or should it be torn down and rebuilt into a
modern business center?

POLLUTION CONTROLS--Are present standards adequate? Can we
afford to "clean up" the harbor"s waters?

ENERGY DEVELOPMENT--Is a new deep-water port facility for
oil tankers and additional oil refineries needed?

PUBLIC AECREATION--Should the harbor's islands become public
recreation sites? Can we afford new sewage treatment plants
to protect our public beaches for swimming?

ROLE OF FEDERAL GOVERNMENT-Should the federal government
step in to require better planning procedures, and to pro-
tect national interests in coastal resource use?

(128)

399

CONFERENCE PARTICIPANTS(DELEGATIONS)

BOSSPORT (Bosstown Port Authority)

BOSSPORT manages the Port of Bosstown and Hogan Airport.
BOSSPORT has major new proposals for the harbor area,
and will present these at the conference.

BURP(Bosstown Urban Renewal Program)

BURP plans and implements urban renewal projects within
the city of Bosstown. BURP has recently developed plans
for extensive new urban renewal projects in the water-
front district.

OFFICE OF THE MAYOR OF BOSSTOWN

The Mayor's office is vitally concerned about the future
of Bosstown Harbor. Representatives from the Mayor's
office support innovative, but politically sound
planning options for Bosstown Harbor.

DNR (State Department of Natural Resources)

The DNR monitors and regulates activities within the
state which affect the environment. Conditions in the
marine environment and coastal recreational facilities
are of concern to DNR at this conference.

USBA@United States Business Administration)

USBA represents the federal government at this conference,
and is concerned about the ability of local and state
officials to effectively work together. The federal
government sees Bosstown Harbor as a crucial link in the
nation's port system.

CLEAN(Citizens League for Effective Action Now)

CLEAN is a public interest group which has been active for
some time in preservation of historic neighborhoods and
the fight to stop pollution in Bosstown. CLEAN is committed
to representing the needs of the public at this conference.

(129)

BOSSTOWN HARBOR: Bosstown has a first class natural harbor, encompassing 47 square mil
miles of tidal shoreline, and 30 is.lands. It is also the American port closest to Euro
running through Bosstown itself is called the INNER HARBOR, and the rest, the OUTER HAR
politan area containing over 2.S. million people borders the entire harbor.

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INNER HARBOR (ALL COMMERCIAL OUTER HARBOR (DARKENED AREA)
PORT OPERATIONS IN THIS AREA)

Reading IV-6
422
"BOSTON HARBOR: THE REAL THING"

INNER HARBOR ISSUES

1. MASSACHUSETTS PORT AUTHORITY (MASSPORT/"BOSSPORT") DEVELOPMENT PLANS

In the face of united and vocal opposition to its plan for container
terminals in the historic district, MASSPORT changed its proposed
terminal site to the less desirable (from its point of view) South
Boston Army Annex. MASSPORT constructed another container terminal at
Charlestown ("Charlesville"). This facility has done well commercially
and is now operating at full capacity. However, the nearby urban residents
suffer in that they have to put up with truck traffic, lights, and noise
at all hours.

Overall, the port's container facilities remain inadequate and much trade
seems permanently lost to New York.

2. WATERFRONT REDEVELOPMENT

A militant waterfront residents' association and the Boston area Sierra
Club filed suit in court to stop the original Boston Redevelopment Agency
("BURP" in the simulation activity) urban renewal plan for the Boston
waterfront area. A review committee was appointed by the Boston Redevelop-
ment Agency in 1973, and the renewal plan was modified along the lines
proposed by "C.L.E.A.N." in the mock planning conference Task Force meeting.

By 1976, the population in the Boston waterfront district had grown to
3,400, and the well-designed grassy shoreline park which the city calls
its "Walkway to the Sea" had become highly popular. A 1976 New York Times
news article described the waterfront area "today, Boston's most glitter-
ing neighborhood."

3. ENVIRONMENTAL PROTECTION

The state legislature passed an environmental protection law in 1972
requiring submission of an environmental impact statement for all new
projects in the state to "all reviewing agencies, and any state agency,
department, board, commission, or division or authority which has juris-
diction by law or special expertise with respect to any environmental impact
involved." After examining the written comments of all these reviewing
bodies, the Secretary of Environmental Affairs then rules on whether or not
the Environmental Impact Statement adequately and properly complies with
the law.

4. FEDERAL PLANNING OF COASTAL.AFFAIRS

The United States Congress passed a Coastal Zone Management Act (CZMA) in
1972 which addresses the concerns raised by the "U.S. Business Administration"
proposal presented in each mock planning conference Task Force meeting.

(131)

423

OUTER HARBOR ISSUES

1. DEEPWATER OIL RECEIVING FACILITIES

MASSPORT could get little support for this project and finally
shelved the idea. Now it appears that new developments in
the shipping of oil by barge will make it possible to continue
to supply oil through Boston Harbor for the foreseeable future.

2. PURCHASE OF HARBOR ISLANDS FOR RECREATIONAL USE

The'state purchased the islands and they are highly popular
recreation sites.

3. POLLUTION CONTROL

No substantial gains have been made. one still dares not swim
in the Harbor.

4. FEDERAL PLANNING OF COASTAL AFFAIRS

See (4) under Inner Harbor issues.

(132)

Reading IV-7

424

RM: GROWTH PAINS

Following is a list of government agencies. What do you think they have
in common?

Animal and Plant Health Inspection Service
Public Health Service
Food and Drug Administration

Community Credit Corporation
Bureau of Domestic Commerce
Bureau of International Commerce
Economic Development Administration
Maritime Administration
National Oceanic and Atmospheric Administration
Social and Economic Statistics Administration
Military Sealift Command
Military Traffic Management Command
Corps of Engineers
Community Planning and Management
Community Development
Bureau of Sport Fisheries and Wildlife
Geological Survey

Environmental Protection Agency
Export-Import Bank of the United States
Federal Communications Commission
Federal Maritime Commission
Interstate Commerce Commission
Immigration and Naturalization Service
United States Coast Guard
United States Custom Service

Office of Land Use and Water Planning
Office of Oil and Gas
Law Enforcement Assistance Administration
Labor-Management Services Administration
Employment Standards Administration
Occupational Safety and Health Administration
Secretary of the Department of Transportation
Federal Aviation Administration
Federal Railroad Administration
Urban Mass Transportation Administration
Saint Lawrence Seaway Development Corporation
Council on Environmental Quality
Council on International Economic Policy

Panama Canal Company
United States Tariff Commission
Water Resources Council
National Transportation Safety Board
Occupational Safety and Health Review Commission

(133)

425

These are all federal agencies which make regulations, oversee in some

way, or finance the operations and future development plans of U.S. seaport

areas. There are over 40 if you dared to count.

Your experience during the mock "Bosstown Harbor Planning Conference"

probably showed you that the definition of proper management can vary

greatly among decision makers. You can imagine then the "kaleidoscope"

of interests and viewpoints that are represented within this list.

Federal agencies, however, are just the beginning. Legislative bodies

at all levels of government enter the picture. There are also powerful

regional, state, county, and local agencies and boards. Season with myriad

public and private interest groups, individual concerned citizens, and a

dash of elected officials and you have a recipe for complexity.

THIS IS THE NO,THIS YOU'RE BOTH
ANSWER! IS THE PLAIN! WRONG THIS
IS...

"...a recipe for
complexity."

Your "Bosstown Harbor Planning Conference" was a very simplified version

of the real situation. What is one unfortunate result of this complexity?

Power, responsibility, viewpoints, and decisions on proper coastal resource use

tend to fragment among dozens of agencies, advisory groups, legislative

(134)

426

committees, and individuals at all levels of government.

Often, each agency or interest group brings only its own narrow

perspective to the coastal use debate. With so many planners and regulators

involved in policy fomration and implementation, there usually develops

poor communication among the decision-makers. As a result, public agencies

frequently work at cross-purposes and the efforts of concerned citizens

evaporate in the maze of bureaucratic manuevering.

6ENCI

"Often, each agency or interest group brings only its
own narrow perspective to the coastal use debate.".

In the late 1960's and early 1970's, environmental and regulatory

legislation enacted at the federal, state, and local levels created many

new programs and agencies. The desire to deal with immediate environmental

problems often blocked percpetion of how important it was to coordinate

management actions to create an effective management system.

What happened in the coastal state of Rhode Island is an example. By

1975, 36 state agencies had been created, each involved in some area of

environmental protection. Yet according to critics, for all this new

(135)

427

involvement, the state did not have what one could call an environmental

management policy. There was no unified, 3ong-range, over-all approach

to environmental issues and problems.

The Natural Resources Group, a private Rhode Island citizens

organization, described the Rhode Island approach as "fragmented, piecemeal

management." The Natural Resource Group criticized the spreading of

responsibilities among three dozen agencies, claiming this caused resource

management to be both less visible and less effective. This situation,

they contended, drained both initiative and follow-through out of each

agency, brought a tangle of conflicting laws and regulations, produced

competition among agencies for money, and generated conflicts and

inefficiency all around. Resource management is still experiencing

growing pains.

(136)

Reading IV-8 433

THE COASTAL ZONE MANAGEMENT ACT,,OF 1972

The United States Congress endorsed coastal resource management in

1972 with the passage of the Coastal Zone Management Act(CZMA). Congress

assigned responsibility for the administration of the CZMA to the

Secretary of Commerce. The Secretary in turn designated the National

Oceanic and Atmospheric Administration(NOAA) as the agency in the

Department of Commerce to manage the program. Within NOAA, this

responsibility came to reside in the newly created Office of Coastal

Zone Management.

The CZMA expressed three major themes:

1) the need to give high priority to natural ecological systems;
2) the need to take,a balanced approach between protection and
development; and
3) the need for a coordinated government effort, with the states
as the focus of the program.

Congress realized that a single over-all plan for the coast was not

possible. In some areas, preservation and environmental protection would

be most important. But in other areas, plans would have to support vital

industrial and commercial activities.

To account for these differences, Congress knew that the individual

states, not the federal government, would best be able to manage the

shoreline. However, there would be certain general policies and guidelines

each state would have to follow. These polities and guidelines are stated

in the three major parts of the.CZMA, "Findings," "Declaration of Policy,"

and "Operational Section."

Quoting the text of the Act, Congressional findings were:

(a) There is a national interest in the effective management, beneficial
use, protection, and,development of the coastal zone;
(b) The coastal zone is rich in a variety of natural, commercial, recrea-
tional, industrial, and esthetic resources of immediate and potential

(137)

434

value to the present and future well-being of the Nation;
(c) The increasing and competing demands upon the lands and waters
of our coastal zone occasioned by population growth and economic
development, including requirements for industry, commerce, residential
development, recreation, extraction of mineral resources and fossil
fuels, transportation and navigation, waste disposal, and harvesting
of fish, shellfish, and other living marine resources, have resulted
in the loss of living marine resources, wildlife, nutrient-rich
areas, permanent and adverse changes to ecological systems, decreasing
open space for public use, and shoreline erosion;
(d) The coastal zone, and the fish, shellfish, other living marine
resources, and wildlife therein, are ecologocially fragile and
consequently extremely vulnerable to destruction by man's alterations;
(e) Important ecological, cultural, historic, and esthetic values in
the coastal zone which are essential to the well-being of all citizens
are being irretrievably damaged or lost;
(f) Special natural and scenic characteristics are being damaged by ill-
planned development that threatens these values;
(g) In light of competing demands and the urgent need to protect and to
give high priority to natural systems in the coastal zone, present
state and local institutional arrangements for planning and regulating
land and water uses in such areas are inadequate, and
(h) The key to more effective protection and use of the land and water
resources of the,coastal zone is to encourage the states to exercise
their full authority over the lands and waters in the coastal zone
by assisting the states,in cooperation with Federal and local
governments and other vitally affected interests, in developing land
and water use programs for the coastal zone, including unified
policies, criteria, standards, methods, and processes for dealing
with land and water use decisions of more than local significance.

The declaration of policy written into the Act stated:

The Congress finds and declares that it is the national policy (a) to
preserve, protect, develop, and where possible, to restore or enhance,
the resources of the Nation's coastal zone for this and succeeding
generations, (b) to encourage and assist the states to exercise effectively
their responsibilities in the coastal zone through the development and
implementation of management programs to achieve wise use of the land and
water resources of the coastal zone giving full consideration to
ecological, cultural, historic, and esthetic values as well as to needs
for economic development, (c) for all Federal agencies engaged in programs
affecting the coastal zone to cooperate and participate with state and
local governments and regional agencies in effectuating the purposes of
this title, and (d) to encourage the participation of the public, of
Federal, state, and local governments and of regional agencies in the
development of coastal zone management programs ....

The procedures written into the operational section of the CZMA stated

how the states could develop their own plans and what guidelines they had

(138)

435

to follow. Congress authorized $9 million for states to use to help

prepare their plans. The plans could be suited to the individual needs

and characteristics of each state's shoreline. Congress expected the plans

to differ, but they would have to achieve the following tasks:

(a) to determine the actual boundaries of the state coastal zone. The
CZMA defines the coastal zone as the "coastal waters and adjacent
shorelands strongly influenced by each other." The coastal zone
should extend inland to the extent necessary to adequately control
shorelands whose use by man will have a direct and significant
impact on coastal waters.

(b) to define permissible land uses within the coastal zone.

(d) to identify the means by which the state proposes to exert control
over the land and water uses permitted, and to list all relevant
state constitutional provisions, legislative enactments, regulations,
and judicial decisions.

(e) to draw up broad guidelines on priority of uses in particular areas,
including specifically those uses of lowest priority.

(f) to propose an effective organizational structure to carry out the
management program, and to describe the responsibilities and inter-
relationships of local, area-wide, state, regional, and inter-state
agencies involved in the management process.

At one time, All 30 coastal states had applied for funds to develop

,coastal management programs. The Office of Coastal Zone Management approved

nearly one-half of these plans. Several other states are still in the process

of writing and revising their programs. A few states, such as Minnesota and

Texas, have decided, for various reasons, to drop their plans for a

coastal management program. In some states, lack of public support has killed

the plans; other states believe that existing laws and agencies already are

doing a satisfactory job.

(139)

4 NC SUPPLEMENT

NORTH CAROLINA SUPPLEMENT

TO COASTAL PROBLEMS AND RESOURCE MANAGEMENT

Roanoke Rapids

N Head
ags

Raleigh Greenvilole

Washington
Hatteras

.6,01ica,

New Bern

-0**t6w.
Fayetvillo

Cape Lookout
.... ......
CRY
Morehead

over

Wilmington

Cape Fear

Office of Coastal Management, 1 979
Department of Natural Resources and Community Development
Raleigh, North Carolina

NORTH CAROLINA SUPPLEMENT

TO COASTAL PROBLEMS AND RESOURCE MANAGEMENT

Developed by

Gregory L. Rhodes
Francis M. Pottenger

Curriculum Research and Development Group
University of Hawaii

Editorial and research assistance was provided by Carol McCord,
Curriculum Research and Development Group, University of Hawaii;
Elizabeth Lance, Office of Coastal Management, Raleigh, North Car-
olina; and Lundie Mauldin, University of North Carolina, Sea Grant
College Program, Raleigh,'North Carolina.

Production assistance from the University of Hawai'i was provided
by Norine M. Ige, Lisa Luke, and Constance J. McCurdy.

These materials were supported by NOAA grant number 04-158-44094.

.This North Carolina_Supplement is designed-to accompany the course,
Coastal Problems and Resource Management, developed by the Curricu-
lum Research and Development Group, University of Hawaii.

A NOTE TO NORTH CAROLINA TEACHERS

The Coastal Problems and Resource Management (CPRM) materials include
several case studies and examples of problems in various coastal regions which
illustrate the general ideas and concepts in the course. This reliance on case
studies provides numerous opportunities to replace or supplement the original
materials with examples highlighting a specific coastal region.

This North Carolina Supplement to CPRM contains a variety of case-studies
and other examples which describe and analyze coastal issues in North Carolina.
These local examples, combined with other national studies in CPRM, offer North
Carolina students a sense of the broad scope of coastal problems and provide
relevant examples familiar to North Carolina residents. Local materials have
been developed for the following CPRM lessons:

Unit I: At-the Water's Edge

Lesson 1 National Seashore Quiz (North Carolina Seashore Quiz)
Lesson 2 Common Coastal Features (Common Coastal Features of North Carolina)
Lesson 4 Our Local Coastline (A Survey of the North Carolina Coast)

Unit II: Understanding Coastal Ecology

Lesson 1 Coastal Ecology (The Valuable Estuaries of the North Carolina Coast)
Lesson 8 Tsunamis and Hilo, Hawaii (A Case Study of Erosion Control: Shift-
ing Sands Beach)

Unit III: Resource Management: Polit'ics and Planning in the Coastal Region

Lesson 4 Blue Neck Bay (The Coastal Area Management Act Comes to the Coast)
Lesson 6 Management Tools and Strategies (Six Resource Management Examples
From North Carolina)
.Lesson 7 Local Interests Versus Regional Interests (Raleigh vs. the Coast:
Who Pays for Erosion Control?)
Lesson 10 The Taking Issue: Legal Limits to Regulation (A Taking Issue from
North Carolina)

Unit IV: Case Studies in Resource Management

Lesson 2 The Economy and the Environment (Off-road Vehicles on the Outer Banks)
Lesson 3 Energy and the Environment (Energy Facilities on the Carolina Coast)

In some instances, the North Carolina materials can replace materials al-
ready in the course. At other points, the local adaptations can be used in addi-
tion to,the basic course materials. Teacher instructions as well as a copy of
all student materials and transparency masters are included in this Supplement.

The Office of Coastal Management in the Department of Natural Resources and
Community Development granted funds for the:writing and production of the North
Carolina Supplement. Elizabeth Lance, Public Information Officer of the Office
of Coastal Management, and Lundie Mauldin of UNC-Sea Grant College provided in-
valuable research and editorial support for the project.

Further assistance in the preparation and dissemination of these materials
will be provided by the North Carolina Department of Public Instrliction (Divi-
sion'of Social Studies), the North Carolina Office of Marine Affairs, the Office
of Coastal 'I'llAnagement, and UNC-Sea Grant College.

Table of Contents*

A Note to North Carolina Teachers . . . . . . . . . . . . . . . . . . . . . ii

UNIT I: AT THE WATER'S EDGE
Lesson 1 National Shoreline Quiz (North Carolina Seashore Quiz) . . . 1
Lesson 2 Common Coastal Features,(Common Coastal Features of
North Carolina) . . . . . . . . . . . . . . . . . . . . 3
Lesson 4 Our Local Coastline (A Survey of the North Carolina
Coast) . . . . . . . . i . . . . . . . . . . . . . . . 8

UNIT II: UNDERSTANDING COASTAL ECOLOGY
Lesson I Coastal Ecology (The Valuable Estuaries of the North
Carolina Coast) . . . . . . . . . . ... . . 18
Lesson 8 Tsunamis and Hilo, Hawaii (A Cas; S'tu*dy' of'Erosion
.Control: Shifting Sands Beach) . . . . . . . . . . . . 26

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN TH E COASTA L
REGION

Lesson 4 Blue Neck Bay (The Coastal Area Management Act
Comes to the Coast) . . . . . . . . . . . . . . . . . . 42
Lesson 6 Management Tools and Strategies (Six Resource Management
Examples From North Carolina) . . . . . . . . . . . . . 51
Lesson 7 Local Interests Versus Regional Interests (Raleigh vs.
The Coast: Who Pays for Erosion Control?) . . . . . . 55
Lesson 10 The Taking Issue: Legal Limits to Regulation (A Taking
Issue from North Carolina) . . . . . . . . . . . . . . 57

UNIT IV: CASE STUDIES IN RESOURCE MANAGEMENT
Lesson 2 The Economy and the Environment (Off-road Vehicles on
the Outer Banks) . . * . . * * ' * .' * * * . . . . 60
Lesson 3 Energy and the Environment (Energy Facilities on the
Carolina Coast) . . . . . . . . . . . . . . . . . . . . 66

*North Carolina Supplement Lessons are found in parenthesis.

UNIT I:. AT THE WATER'S EDGE

LESSON 1: THE NATIONAL SEASHORE QUIZ

ADDITIONAL NORTH CAROLINA MATERIAL

Worksheet, "North Carolina Seashore Quiz Questions"

OVERVIEW

Students take a short "quiz" about the North Carolina coastal region.
The quiz is designed to encourage students to think about the Tar Heel
coast. It is not intended to be graded as a test.

PROCEDURE

1. These questions may be used to supplement the "National Shoreline
Quiz" provided in the student's workbook.

2. Pass out the worksheet, "North Carolina Seashore Quiz Questions."
Students should answer these questions after they have finished the
"National Seashore Quiz."

Be sure to change the "Sea-Q" scale at the end of the "National
Seashore Quiz" to reflect the larger number. of questions.

3. Answers to the North Carolina cuestions are:

1) 20%
2) Wilmington
3) 3,375 (North Carolina is fifth in the country in total miles
of shoreline)
4) Cape Fear
5) Agriculture (Tourism is secong)
6) An inland water route for shipping that runs along much of the
east coast of the United States
7) Shrimp is usuallv the leader; flounder, menhaden. and crabs
are other leading species.

Student Worksheet

NORTH CAROLINA SEASHORE QUIZ QUEST IONS

1. .Approximately what percentage of the total area of North Carolina is in
the coastal regiou?

1% 5% 20% 50%

2. What is'the largest town in the coastal region?

a) Wilmington
b) New Bern
c) Morehead City
d) Nags Head
e) Elizabeth City

3. How many miles of total shoreline (including all the land bordering the
ocean, sounds, and the mouths of major rivers) does North Carolina have?

a) 314
b) 789
c) 1,930
d) 3,375

4. Which river is the only one in North Carolina to flow directly into the
Atlantic Ocean?

5. What is the leading economic activity in the coastal region?

a) mining
b) tourism
c) agriculture
d) fishing
e) erosion control

6. The Intercoastal Waterway is:

a) a major recreation area linking Albemarle sound.to the Atlantic Ocean
b) a canal linking North Carolina with the Coastal River
c) an inland water route for shipping that runs along much of the east coast
of the United States
d) a channel ships follow to avoid the shoals off Cape Hatteras

7. Which of the following species is the most valuable to North Carolina's
fishing industry?

a) flo-,mder b) shrimp 'c) oysters d) crab e) menhaden

-2-

UNIT I: AT THE WATER'S EDGE

LESSON 2.: COMMON COASTAL FEATURES

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "Coastal Terminology - North Carolina Coastal Features"
Worksheet, "Diagram of North Carolina Coastal Features"

OVERVIEW

Students read about several coumon coastal features of the Notth Carolina
coast. They then identify these features and others on a diagram of the
coastal area.

PROCEDURE

1. After students have completed identifying pictures of common coastal
features in their workbooks, pass out the reading, "Coastal Terminology
North Carolina Coastal Features.'! After students have completed this
reading, ask if there are any questions. Ask students to give an
example on the North Carolina coast of each feature listed in this
second reading.

2. Pass out the worksheet, "Diagram of North Carolina Coastal Features."
Have students identify as many coastal features as they can. Their
list should include features from both Coastal Terminology readings.

3. A completed worksheet follows.

-3-

Student Reading

COASTAL TERMINOLOGY NORTH CAROLINA COASTAL FEATURES

INLETS

Inlets are openings between the barrier islands. The main function of
inlets is to provide passages for fresh water from rivers to empty into.
the sea. Inlets also allow salt water to enter the sounds where it mixes
with the fresh water from the rivers to produce the highly productive
brackish water of the estuary. Inlets can open, close, and migrate up
and down the beach. Slow and steady erosional forces or-the sudden forces
of storms can drastically alter the shape of an inlet. New inlets can
open during storms, often in areas where washovers occur. Tides moving
through the inlets help to move sand to the back side of the islands,
where it remains. This results in the landward migration of the islands.

MARITIME FOREST

Evergreen forests of salt-tolerant trees and other plants that inhabit
the back portions of barrier islands are called maritime forests. These
forests generally provide areas conducive to small scale development. The
earliest settlements on the Outer Banks were built in the maritime forest
because the trees were on high ground and offered protect4.on from tempera-
ture extremes and storm damage. Maritime forests are'also important to
maintaining the fresh water supply on the barrier islands. The thick
ground cover retains rain water and helps keep the underground water sup-
ply "refilleci."

MUD AND SAND FIATS

Mud and sand flats are bottom areas that are.uncovered at low tide. The
flats are located close to shore and include areas extending out from the
permanent shoreline as well as shoals separated from the shore. Flats
are home for an abundance of small animal life and attract fish and crabs
at high tide and birds at low tide. People, too, are attracted to".the
flats for fishing, digging clams, and birdwatching.

SHOALS

Shoals are mud or sandy areas that are separated from the shore. They lie
just beneath-the surface of the water. Sometimes shoals are exposed at low
tide. These areas are particularly hazardous to navigation.

SOUNDS

Sounds are the shallow bodies of water located between the barrier islands
and the mainland. In North Carolina, the sounds contain a mixture of fresh
and salt water, except for Currituck Sound which mainly holds fresh water.

-4-

Protec ted from the storms and rough waters of the ocean by the barrier
islands, the sounds are generally calm, highly productive arias which
host a wide variety of marine life.

TIDAL CREEKS

Tidal creeks are the natural "water pipes" of the salt marsh. At high
tide, water moves into the low marsh areas through the network of the
small tidal creeks. At low tide, the water drains back through.the creeks
into the estuary or sound. Tidal creeks carry important nutrients from
the marshes into the estuaries and are a vital link in the estuary food
system.

WASHOVERS

Washovers occur when storm surges, generated by wind and waves, are so
great that the ocean breaks throughthe beach and'dune area. The storm
pushes massive amounts of water over the beaches beyond the dunes, and
sometimes across the islands to the sound side. This process gradually
pushes the island closer to the mainland shore. Washovers help counter
erosional forces on the sound side by supplying new sand to this area.

-5-

Answer Key

DIAGRAM OF NORTH CAROLINA'S COASTAL REGION

Salt Marsh
i k44
1A

Shoals U.,j

(L
*0 kA
44 11

Mud and Sand Flats Tidal
Creeks

Sound/Estuary v

Sand
Barrier Island Dun@
.$..-
0`-

Spit

Inlet

-6-

Student Worksheet
COMMON COASTAL FEATURES IN NORTH CAROLINA

@lil,tt t(qt

Ao 14

IVA

-7-

UNIT I: AT THE WATER'S EDGE

LESSON 4: OUR LOCAL COASTLINE

ADDITIONAL NORTH CAROLINA MATERIALS

Slides of North Carolina coast (optional)
Worksheet, "North Carolina Shoreline Survey"

OVERVIEW

Students view a series of slides to acquaint them visually with
the North Carolina coast. They then complete a self-made map
and a worksheet that surveys their knowledge about the coastal
area.

PROCEDURE

1. Ask students to take out a blank piece of paper and draw a map
of the North Carolina coast. Have them locate a few major
cities, sounds, rivers, and famous cultural/historical sites.

This is a useful way for you to see what kind of "image" or
f1mental" map of the coast your students have. Misconceptions
about the size or location are common. This is a "for fun"
activity and probably should not be graded.

A possible follow-up to this.activity is to make transparencies
of a couple of maps that greatly differ and show these to the
class.

Finally, if students find this activity harder to do than they
thought, tell them to try it out on their parents. It usually
is not that easy for anybody!

2. If you have 10 to 15 slides of prominent, well:-known areas of
the North Carolina coast, show these to the class. Ask students
to try to identify the location of each slide. Ask them to
explain what evidence they used to identify the location. Encourage
debate if students have different answers. (If you do not have
slides, you could use a number of color or black and white photo-
graphs, mounted on cardboard or another sturdy surface.)

3. Show the slides again, asking students to describe what general
features are pictured in each slide. Ask for a short, one.or two
word description.

List the responses on the board.

4. When you have finished the slides, ask:

a. Does the list provide an adequate description of the
coast?

b. Are there features not represented in the slides?

c. Which slides seemed to you to capture or summarize your
feelings about the North Carolina coast?

d. If you could add a picture, what would it be?

5. Hand out the "North Carolina Shoreline Survey." First,
have students compare their maps with the map on the first
page of the worksheet. Check major points of agreement and
disagreement.

Then, ask students to fill out the survey. Remind them to
read the short note of explanation above the map. They
should circle what they think is the best answer for each
question.

6. After they have finished, go over the correct answers using
the briefing information provided in the key.

7. A possible homework assignment is to have students report on
North Carolina's coastal region. They might do this from the
C,
perspective of a first-time visitor or a travel agency trying to
encourage tourists to visit the North Carolina coast.

-9-

- - --------

Teacher's Key

NORTH CAROLINA SHORELINE SURVEY

1. To what extent are.these common coastal features found in North
Carolina?

CORAL REEFS

No coral reefs are found in Carolina-coastal waters. Only Hawaii
and Florida in the U.S. have coral reefs.

BARRIER ISLANDS

Most of the coastline of North Carolina consists of barrier
islands. In fact, the Eastern coast of the U.S. south of
New Jersey and the Gulf coast are noted for their barrier islands.
North Carolina has 21 major islands with 308 miles of ocean shoreline.

SANDY BEACHES

The best answer is "frequently." Sandy beaches dominate North
Carolina's Atlantic shoreline. This is not surprising, in that
barrier islands almost always have sandy beaches on the ocean
side. Certain shorelines along the sound also have sand beaches.

ROCKY BEACHES

The best answer is "seldom." The only natural outcrop is near
Ft. Fisher.

14AVE-CUT CLIFFS

Wave-cut cliffs are frequent in some areas of the country, but are
not associated with barrier islands, and consequently, are not
found in North Carolina. The coast is characterized by a low, gentle
slope.

SALT MARSHES

The best answer is "frequently." Along the edge of the sounds,
between the barrier islands and the mainland, salt marshes are
frequently found. In fact,@North Carolina has 150,C(00 acres of
salt marsh.

ESTUARIES

The best answer is "frequently." Only two states, Alaska and Louisiana,
have more area of estuarine waters than North Carolina. About 2.2
million acres of water in the sounds, inlets, and mouths of rivers are
classified as estuarine. This comprises nearly a quarter of the area of
the North Carolina coastal zone.

SOUNDS

Sounds are a common f4ature of the North Carolina coast. 'Twelve
major sounds form behind the barrier islands, all north of the
Cape Fear River. At the southern end.of the state, the barrier
islands lie so close to the mainland that there is no room for
sounds to form.

GROINS & SEAWALLS

The best answer is "seldom," when you consider the entire coastline.
Groins and seawalls have been built in a very few areas where
dense development has occurred. The best erosion control methods
for North Carolina beaches are nonstructural, combined with land-use
planning; structural devices, such as groins and seawalls, are very
expensive in cost and require continual maintenance.

PORTS AND HARBORS

The best answer is probably "sometimes." There are four ports in
the state, two ports at Sunnypoint and Wanchese Harbor and the two
state ports of Wilmington and Morehead City. The state ports handle
over 12 million tons of cargo annually, but'North Carolina does no-t
rank among the leading port states.

2. To what extent do these conditions or features occur along the North
Carolina coast?

WATER POLLUTION

"Moderate" is probably the best answer, although it depends on where you
live and what you do for a living. For example, at any given time,
20-30% of North Carolina's shellfishing areas are closed due to pollution.
Fishermen affected by this may feel there is a "frequent" occurrence of
pollution. Pollution in North Carolina waters is mainly due to septic
tanks, sewage systems, and agricultural run-off.

POPULATION

The best answer is probably "sometimes." The permanent resident popu-
lation of the coastal area is fairly low. Slightly over one-half
million people, or about 10% of the state population, live in the 20
coastal counties. However, visitors temporarily raise the population
of some counties by as much as 90% during summer weekends.

LARGE URBAN AREAS

The best answer is "seldom." The largest city on the coast, Wilmington,
has a population of under 50,000. Camp Lejeune, a military installation,
has a population of 44,000. Most towns on the seacoast have less than
2,000 people.

GOVERNMENT-OWNED LAND

The best answer is "seldom." Less than 5% of the total coastal
land area is government owned. However, on the barrier islands
themselves, the Federal Government, through the National Park
Service, owns almost one-half of the 308 mile coast. On the
coastal mainlaad, two large federal government tracts are Camp
Lejeune and Croatan National Forest.

FOREST

IlFrequently" is the best answer, since this is.the largest single
occurring use of land in the coastal region. Forest'comprises
about one-half of the coastal land area.

AGRICULTURAL LAND

The best answer is probably "frequently." Approximately 42% of
the coastal region is used for agriculture. In 1976, in the 20
coastal counties, 2.5 million acres of 6 million were defined as
farm lands.

DEVELOPED SHORELINE (SHORELINE WITH HOMES, HOTELS, HARBORS, ETC.)

Considering the entire shoreline, the best answer is "seldom."
North Carolina has 3,375 miles of shoreline, including all the
land bordering the ocean, sounds and mouths of major rivers.
Commercial development is limited to a few urban areas and beach
resorts. Most privately owned shoreline is sparsely developed,
typically with homes and farms.

ADEQUATE SEWAGE FACILITIES

.In some areas, the answer is "seldom," but taken as a whole,,
11sometimes" is probably the best answer. Septic tanks are very
frequent on the barrier islands, Wrightsville Beach having the
only waste water treatment facilities. Thus most of the coast must
use less desirable methods,.e.g., septic tanks.

EROSION

The best answer is "frequent." Nearly all the barrier island
shoreline and much of the sound shoreline as well, is subject to
erosion.

HURRICANES

The best answer is probably "frequently" although it has been so
long since the last major hurricane that "sometimes" could be a
reasonable response. However, records show that North Carolina did
have a major hurricane every two or three years until the mid-sixties.

-12-

TOURISM

The best answer is "very important." Tourism is the second
leading economic activity in the coastal area. For all
communities on the Outer Banks, tourism is the leading economic
activity.

MANUFACTURING

The best answer is "unimportant." Although New Hanover county
(Wilmington) has experienced significant industrial activity,'
most of the coastal area remains only slightly affected by the
impact of industrial development. Some towns on the sounds (e.g.
Washington, Edenton and New Bern) are beginning to attract in-
dustrial development.

PORTS AND HARBORS

The best answer is f'somewhat important." About 33,000 jobs are
directly or indirectly related to port activities. Ports will be
crucial for future growth of economic activities such as agriculture,
especially tobacco; mining, particularly phosphate; and industry.

COMMERCIAL FISHING

The best answer is "somewhat imp.ortant." The fishing industry has
traditionally been an important aspect of North Carolina's coastal
economy. The gross annual income from fishing activities in 1976
was approximately $200 million. Recreational fishing brings in even
more revenue to the state than commercial fishing.

FORESTRY

The best answer is "vcry important." Twenty percent of the state's
commercial forest land is located in the coastal zone. While of
little importance to the economy of the barrier islands, several main-
land counties depend heavily on the timber industry.

AGRICULTURE

The best answer is "very important." Tobacco and soy beans are the
leading agricultural products in the 20 county coastal area.

OFF-SHORE OIL

The best answer is "unimportant." As of 1979, oil companies had not
discovered significant amounts of oil off the North Carolina coast.
Off-shore discoveries in other locations along the East Coast are
having little impact in North Carolina.

LAND-BASED OIL FACILITIES

The best answer is "unimportant." Only one small petroleum refinery
(located near Wilmington) presently exists in North Carolina. However,
this is likely to change in the future with oil and natural gas companies
looking to North Carolina for potential sites.

-13-

MINING

The best answer is probably "somewhat." Mineral production in the
coastal counties amounts to nearly 25% of the state's total produc-
tion. Portions of the coast contain extensive deposits of lime-
stone and phosphate. The economy of Beaufort County and New Hanover
County are both signficantly helped by mineral production. In the
future, peat, glass sand, and heavy mineral mining may be developed.

-14-

Student Handout

NORTH CAROLINA SHORELINE SURVEY

On the following pages you are to give your opinion about several
aspects of the North Carolina shoreline. Remember that the coastal area
consists of 20 counties which border the ocean, sounds, and'major rivers
emptying into North Carolina's coastal waters. This area represents
nearly-20% of the area of the state(see the map below). Be sure you
consider this entire area as you answer the questions.

Roanoke Rapids

N s Head
ag
0

............

.... .........
Raleigh
Greenvi
...........
Ile

... . ........
Washington

..... . .. .
...... ape Hatteras

New Bern ...........

Fayetville
. ..........
::z::: 71s:
... ........

........ ....
Cape Ldokout
... ........
City
Morehead

...........
over

. ... ...... ..
Wilmington

Cap Fear

NORTH CAROLINA SHORELINE SURVEY

1. To what extent are these common coastal features found in North Carolina?
(!Circle the best answer.)

CORAL REEFS Seldom Sometimes Frequently

BARRIER ISLANDS Seldom Sometimes Frequently

SANDY BEACHES Seldom Sometimes Frequently

ROCKY BEACHES Seldom Sometimes Frequently

WAVE-CUT CLIFFS Seldom Sometimes Frequently

SALT MARSHES Seldom Sometimes Frequently

ESTUARIES Seldom Sometimes Frequently

SOUNDS Seldom Sometimes Frequently

GROINS & SEAWALLS Seldom Sometimes Frequently

PORTS & HARBORS Seldom Sometimes Frequently

2. To what extent do these conditions or features occur along the North
Caroline coast?

WATER POLLUTION Seldom Sometimes Frequently

POPULATION Seldom Sometimes Frequently

LARGE URBAN AREAS Seldom Sometimes Frequently

GOVERNMENT-OWNED LAND Seldom Sometimes Frequently

FOREST Seldom Sometimes Frequently

AGRICULTURAL LAND Seldom Sometimes Frequently

DEVELOPED SHORELINE (AREAS WITH Seldom Sometimes Frequently
HOMES, HOTELS, RARBORS, ETC.)

ADEQUATE SEWAGE FACILITIES Seldom Sometimes Frequently

-16-

EROSION Seldom Sometimes Frequently

HURRICANES Seldom Sometimes Frequently

3. How important are these activites to the economy of North Carolina's
coastal area?
TOURISM Unimportant Somewhat Very
Important Important
MANUFACTURING Unimportant Somewhat Very
Important Important
PORTS & HARBORS Unimportant Somewhat Very
Important Important
COMMERCIAL FISHING Unimportant Somewhat Very
Important Important
FORESTRY Unimportant Somewhat Very
Important Important
AGRICULTURE Unimportant Somewhat Very
Important Important

Somewhat Very
OFF-SHORE OIL Unimportant Important Important
LAND-BASED OIL FACILITIES Unimportant Somewhat Very
Important Important
MINING Unimportant Somewhat Very
Important Important

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 1: COASTAL ECOSYSTE24S

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "The Valuable Estuaries of'the North Carolina Coast"

OVERVIEW

Students read a description of,the estuaries of North Carolina related
to the ideas and concepts learned in the "Coastal Ecosystems" lesson.
Several discussion questions are suggested.

PROCEDURE

1. After the class has completed Lesson 2. "Coastal Ecosystems," assign
the reading, "The Valuable Estuaries of the North Carolina Coast."
Explain that many of the main ideas in the "Coastal Ecosystem" lesson
are used in this reading to describe the estuaries and the problems
affecting them.

2. After students have comp leted the reading ask:

a. Why did the reading concentrate on estuaries?

[The estuaries are a rich productive area; they are crucial to
North Carolina's fishing industry; North Carolina has the largest
estuarine system on the Atlantic Ocean.]

b. What makes the estuaries such a productive area?

[The mixing of fresh and salt water creates the right combination
of salinity, temperature, and nutrients for plant and animal life.
Students may bring out other'points mentioned in the reading.]

C. What three types of pollution problems were*described ?

[Improperly treated waste water, changing the salinity of estuarine
areas, and excess sediments in estuarine areas.]

d. What seems to be the general reason behind all these specific problems?

[Increased development and more intensive use of the North Carolina
Coastal area. Students may offer other explanations, such as lack
of concern by the public, weak laws and regulations, etc.]

e. The reading suggests that tourism, in addition to the fishing
industrycould suffer from continuing water problems. How?

[Recreational fishing could suffer; fouled areas could become so ob-
noxious that people would choose to visit other areas; swimming and

-18-

boating activities could be restricted; students may think of
other possibilities.]

3. As a special project, the class or a group of students could inves-
tigate water quality problems in their county. Reports could focus on
the source of pollution and the problems it is causing. Interviews
with county officials and fishermen could be included.

Another possibility would be to prepare a map of the county or the
state showing where major pollution problems occur. Such iriformation
may be available from Sea Grant or the Office of Coastal Management
in Raleigh'.

_19-

Get.*
Roanok: Rapids

@7he third Largest
sortie Nags Head
estuarine system
in the United
'iko
States (behind I Dore
Tyrrell
AZaska and Louisi-
Raleigh
Greenville
Hyde
ana) stretches from
Currituck County in Washington
the north to Bruns- Cloven Hatteras
wick County in the
south. New Rem

Faystville one$..

Cape Lookout
P.nder Morehead City

over
Wilmington El Estuarine Areas

Cape Fear

THE VALUABLE ESTUARIES OF THE NORTH CAROLINA COAST

THE NATURAL SYSTEM

The coastal region of North Carolina offers a variety of habitats. The

freshwater rivers, the brackish estuaries (brackish means a mixture of

of fresh and salt water), the barrier islands, and the open ocean all play im-

portant roles in the natural ecology of the North Carolina coast. Each of these

habitats makes important contributions to the coastal environment, but in this

particular reading, we will focus our attention o n the estuarint area.

The estuaries of North Carolina include the 12 major sounds, plus miles of

marsh, creeks, and rivers. Over two million acres are involvedi giving North

Carolina the largest estuarine system on the Atlantic coast. The food chain for

much marine life begins here. Ninety percent of the commercial fish caught by

-20-

North Carolina fishermen spend all or part of their life cycles in.these produc-

tive areas.

Estuarine areas are productive in part because the waters are calm, have a

relatively mild temperature, and contain nutrients and other substances which

help plant life grow. These conditions exist because of the es-tuary's relation-

ship u!ith the barrier islands, the ocean and the -freshwater rivers.

The barrier islands generally form land's outer boundary along the coast.

The calm waters of the sounds, for example, exist because the barrier islands

act as a "protective shield," cushioning the first impact of the ocean's energy.

The white sand beaches first absorb the violent weather caused by storms and the

general day-to-day motion of the wind and waves. Many young or particularly

fragile animals found in the calm sounds could not survive the rough ocean.

Another feature of the estuaries crucial to their productive nature is the

mixing of fresh and salt water. The inlets between the barrier islands allow

salt water to pass through the island chain and mix with fresh water coming

to the coast from the rivers and streams.- The ocean provides these estuarine

areas with certain chemicals and sediments. The freshwater brings nutrients,

minerals, animal wastes, and other sediments. Tiny bacteria and other decomposers

help break down the waste products and sediments to form a "nutrient-rich" area.

The marsh grass along the edges of the sounds and estuaries is-also an important

contributor to the nutrient supply. As the grass dies And decays, decomposers

convert it into nutrients which are then carried into the sounds and estuaries

through the tidal creeks. The interaction of the sun, the water and these nutri-

ents helps create the bountiful supply of small plant life, which in turn is eaten

by many animals.

As mentioned, the inlets are important because they allow ocean water to

enter estuarine areas. They also permit the daily "flushing" of these areas to

occur. If more waste-products accumulate than can be consumed by bacteria, seri-

-21-

C
Row

The inlets allow salt water from the oceans to pass thr ough
the barrier islands and mix with freshwater from the rivers.

ous problems can result. For example, oxygen levels can be lowered to a point

where the estuaries'and sounds could not support as-many fish as they normally

do. But as the tide moves in and out through the. inlets, t.he water in the estu-

aries circulates, preventing wastes from accumulating. Like the filter on a home

aquarium, the inlets and the tides help circulate and clean the water of the

estuaries.

The salt water entering the estuaries not only provides the right amount of

salt content and other minerals, but it also helps keep the water temperature

relatively stable. The-temperature of the ocean is Imore,constant than that of

the freshwater entering the estuaries and sounds. Thus, the ocean water helps

keep the estuarine water temperature from reaching extremes. This is an important

factor for young fish and shellfish as they cannot tolerate very high or very low
-22-

temperatures.

The result of these various ideal conditions is a "oceanic garden" which

provides the necessary plant life and nourishment for commercially prized species

such as shrimp, oysters, croaker, menhaden and trout. Frequently this food chain

culminates on our dinner tables.

INTERFERING WITH THE NATURAL SYSTEM

While the estuaries and sounds provide a rich nursery for marine life, they

can also be a dumping ground for many types of pollutants. In some places, the

collection of pesticides, industrial wastes, inadecuately treated sewaRe. and other

pollutants have serio usly altered the natural processes of North Carolina's estu-

aries. During t he past several years, for example, large portions of the state's

shellfishing waters have been closed to harvesting due to water quality problems.

The septic tank is one of the major polluters of the estuaries. Septic

tanks in themselves are not always a problem, but the conditions of their use near

many estuarine areas have caused serious pollution. To work properly, the draim-

age--or effluent--from septic tanks needs to filter slowly through the soil, al-

lowing bacteria to break down the wastes into harmless matter. By the time the

effluent seeps into the stream or sounds, it poses little threat to water quality.

However, the soils along much of the coast are too porous for septic tanks

to work effectively. The porous soil allows the waste product to drain through

the ground very quickly and reach the estuary or the ocean before it has been made

harmless. In addition to this soil problem, much of the coast has a high water

table throughout most of the year. Not only does the effluent drain through the

soil very quickly, but generally it does not have very far to go before it reaches

the underground water system.

In many areas, septic tanks are placed too close together and too near the

shoreline.. The result is that too much untreated sewage reaches the estuaries

and sounds. The harmful pollutants remaining in the effluent coutaminate shell-

-23-

fish and leave thousands of acres of estuarine areas unsafe for swimming or

fishing. Most coastal communities cannot afford modern sewage treatment plants.

This means the use of septic tanks will 'continue and must be monitored closely.

Another water quality problem results from changes in the salinity of the

estuaries. Shrimp, oysters, and many other shellfish and fish spawn and live in

brackish water. Large and sudden changes in the level of salt in the water can

kill huge numbers of fish. The main pollutant in this case is, surprisingly,

fresh water. Of course, fresh water naturally comes to the coast In rivers and

str eams. However, when it flows in too great a quantity into estuarine areas it

becomes a pollutant. Where does excess fresh water come from?

In recent years, the low-lying lands near the coast, haize been used

more and more for agricultural, timber and residential uses. Acres of swamp

forests have been buldozed to make room for these new developments. These areas

once trapped the fresh water and let it filter slowly to the shore. In addition,

miles of ditches have been built to drain water away from homes and prevent flood-

ing on the farms. Now, the freshwater runoff from these areas, particularly after

heavy rains, rushes to the coast and seriously alters the salinity of marshes,

creeks, and sounds. In their efforts to eliminate water problems for themselves,

Too much freshwater in the
brackish marshes can serious-
Zy Lower the cathes of North
Car6Zina fishermen.

----------

-24-

the farmers, loggers and home builders have created water problems downstream.

A study of small creeks near Pamlico Sound showed that shrimp catches were close-

ly associated with changes in salinity. Periods of heavy rains in the spring

were found to be a particular problem and had the effect of reducing the shrimp

population.

Excess'silt and sediments also create problems in North Carolina's estuaries.

The dredging of waterways and ports to maintain and deepen channels for ships, and

the construction of new homes, industries, and recreation sites often increases

the amount of sediments in the water. These sediments cover and suffocate bottom-

dwelling organisms, particularly oysters and other shellfish. Further, when the

sediment is suspended in the water it reduces the.amount of sunlight penetrating

the water, thus reducing plant life. Since all fish feed on plants (or eat other

organisms that feed on plants), loss of plant life can lead to a decline in fish

population.

The fishing industry is often the first to be affected by the many pollutants

which enter the estuaries in North Carolina. However, other aspects of the state's

economy, such as tourism, may also suffer if water quality problems persist. S ince

the estuaries make-up such a large portion of the North Carolina coastal region,

it is not surprising that they are often directly affected by increasing develop-

ment, nor that damage to them has such a profound affect on those who make the

Carolina coast their home, working place, and playground.,

-25-

UNIT II: UNDERSTANDING COASTAL ECOLOGY

LESSON 8: TSUNAMIS AND HILO, HAWAII

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "Shifting Sands Beach"
Worksheet, "Five Erosion Control Options, and "Option Rating Card"
Reading, Six Position Statements ("County Officials," "State Officials,"
"Local Property Owners," "Fishing Groups," "Tourism Groups,"
"Environmental Representatives")

OVERVIEW

Students read an account of a "composite" North Carolina barrier island
community that is experiencing serious erosion problems. Students role-
play members of various groups and evaluate five erosion options based on
their group's point of view.

PROCEDURE

1. The materials on erosion control in Shifting Sands Beach may replace
or follow the Hilo tsunami study. The for-mat of the North Carolina
study is very similar to the Hilo lesson. (If you are not going to
use the Hilo story, you might summarize the Hilo disasters for the
class as a way of introducing the general topic of how communities
deal with natural hazards.)

2. Explain to the class that issues similar to those faced by Hilo resi-
dents also occur in North Carolina. The following story about erosion
control is fictional, but is based on several true incidents.

3. Pass out the reading on "Shifting Sands Beach." After students have
finished, explain that they will now serve as members of the Coastal
Planning Group.

4. Announce that five different options for controlling erosion in
Shifting Sands Beach will be considered by the Coastal Planning Group-
Hand out the worksheet on the five erosion control options (including
the "013tion Rating Card.")

Review each of the five options with the class. As you finish each
option answer any questions.

5. After you complete this summary, divide the class into six equal
groups. Announce that each group will represent different interests
that have conflicting positions on erosion control.

Hand ou t a position statement to each group. Give each group a few
minutes to read and discuss their statements. Make sure they generally
u.nderstand,what their position is regarding the kind of erosion control
they favor.

-26-

6. Ask each group to make a tentative decision about the option(s)
they favor. Plans may be combined;'that is, a group could favor
Option #1 and Option #5.

The groups should fill in their "Option Rating Card" as they evaluate
each option. (These can be collected for evaluation purposes if you
wish.)

7. After the groups make a tentative decision, ask one person-from each,
group to briefly summarize the group's position. Each spokesperson
should explain which options the group thinks are best, and why the
group made this decision. Keep a record of.their choices on the board.

8_. Explain that while many different points of view have been expressed,
the Coastal Planning Group must agree on one plan.. Each group will
have one vote. Encourage class debate and discussion. Compromise
may be necessary. Call for a final vote when the discussion ends.

9. Compare the class decision on Shifting Sands Beach with what has
actually happened in places like Long Beach and Cape Hatteras National
Seashore.

After a long fight between local citizens and state natural resource
officials, Long Beach recently received approval from the state to
build a new groin system. However, the state legislature indicated
that they would cut back on erosion control projects in the future.

In Cape Hatteras National Seashore, the Park Service is sericusly
considering abandoning its erosion control projects. The Park Service
believes the millions of dollars it has spent on beach replenishment
and groins may not have been worthwhile. Erosion problems still
plague several areas of the National Seashore. The Park Service now
believes the best plan is to simply let nature take its course, and
try. to relocateany structures in threatened areas.

-27-

Student Readina

SHIFTING SANDS BEACH"

Shifting Sands Beach on the c8ast of North Carolina is a thriving barrier

island community. Vacation cottages, s ummer homes and small businesses line the

ocean. Forty years ago there were only three cottages along the entire-three

mile beach. Today, a year-round population of 3,000 and a summer weekend popu-

lation of almost 30,000 occupy Shifting Sands Beach.

SOUND
The map shows the com-
munity of Shifting Sands q0
Beach, West InZet, and
the jetty buiLt to sta-
biZize West InZet.

ATLANTIC OCEAN

The beach is a favorite tourist site; historical and niaritime attractions

bring thousands of tourists to Shifting Sands Beach each summer. Ocean front

rentals can range up to $600 a week. The state is widening the main highway

through town and plans to improve bridges in the area to better handle the tour-

ist traffic.

As a result of these improvements, new businesses have opened, more are

planned, and many new homes are under construction.- All looks prosperous for

Although Shifting Sands Beach is a fictional location, this story is based on a
collection of actual cases. Towns like Long Beach, Wrightsville Beach, and
Emerald Isle have experienced, or are currently experiencing similar problems.

-28-

this commu nity. However, there is one major problem. As the residents of Shifting

Sands Beach have discovered, the town lives up to its name.

Much of the three-mile beach experiences heavy shoreline erosion. Each

year as the seasons change, the beach responds, losing sand in the fall and winter

and gaining sand in the spring and summer. But the overall pattern reveals a loss

of sand. Old maps and photographs of the ocean shoreline indicate the beach has

eroded at an average of three to four feet per year. The records also show that

West Inlet, was once very active, opening and closing twice since 1900. Further,

the inlet has migrated one-half mile to the east. In 1968, the Army Corps of

Engineers stabilized the inlet by building a jetty. Since then the inlet has

been stationary, and fishermen have had easy access to the ocean. Some residents

of Shifting Sands Beach believe the building of the jetty has robbed the town's

beaches of sand and increased erosion.

Providing for the increasing population of Shifting Sands Beach has worsened

the erosion problem. -By building in areas already prone to erosion, homeowners

have placed themselves in the direct "line of fire," and thus created a need for

erosion protection. In addition, many builders have bulldozed sand dunes to make

room for houses. Since the dune line provided considerable protection against

erosion, the removal of the natural barrier has increased the potential for erosion

damage.

In 1973, a groin system, financed-largely with state funds, was built along

a short section of the beach. This project helped slow the rate of erosion, but

the groins have been largely washed away. Several homeowners have installed

small seawalls and bulkheads (at their own expense), but these have not been any

more successful tha'Ll .he groins.

During the past two years, winter storms have been particularly harsh, and

erosion rates have increased. The high tide line is moving landward at a rate
of several feet per week, creating serious problems for many property owners.

-29-

Last fall, two residents were forced to move their cottages far back.from the

shoreline to save them from the fast-advancing ocean.. In a recent, frantic

last-minute effort, another homeowner was saved when the National Guard hurried-

ly erected a temporary sandbag seawall. At present, 12 to 15 homes and a small

section of the state highway are seriously threatened.. Town officials predict

several homes'and businesses, plus public recreation areas will be threatened

within two years if present erosion rates continue. New storms could easily

accelerate the process.

City officials from Shifting Sands Beach have made two appeals to the

state government in Raleigh for financial help to stop shoreline erosion.

The State Coastal Planning Group* has agreed to hold a public hearing to discuss

various options for protecting the community. The Coastal Planning Group is

composed of representatives from coastal counties, state government, environ-

mental groups, the fishing industry, the tourist industry, and ocean-front land

owners.

The State Coastal Planning Group is a ficticious organization.

-30-

OPTION #1 GROINS

SOUND

6#4 a F 11 04CI

ATLANTIC OCEAN.

OpTION: several groins will be built along Shifting Sands Beach. These
walls, built perpendiculdr to the shoreline will trap sand and
prevent the longshore current from carrying sand away.

COST: Fairly low cost ($50-100,000) if a sand bag groin system is used;
cost will be split 50-50 between state and*local government.

SomE ADvANTAGEs: SomE DisApyANTAQEs:
1'. Will likely provide five 1. Groins will likely shut off the
to fifteen years of protection. flow of sand to adjacent areas,
2. Would protect public recrea- causing erosion problems there.
tion areas. 2. Will likely change the shape of
the shoreline on both sides of
the groin system.
3. Must be maintained on a regular
basis
4. 'Aesth;tically unpleasing.

-31-

OPTION 12 SEAWALLS

SOUND

C'>

W
@A#4o$ DEAC

Kl_ tis
e

ATLANTIC OCEAN
jNLfiT

OpTION: An.extensive system of seawalls will be built along the shore-
line. The seawalls will be placed a few yards behind the shore-
line, or directly in front of buildings.

COST: High cost; cost will be split 50-50 between state and local
government.

SomE ADYANTAGEs: SomE DisnvANTAGEs:
1. Will likely extend the lives 1. Seawalls often lead to the loss
of beachfront.structures in of sand in front of the seawalls.
normal weather 2. Will not protect buildings from,
2. May provide considerable short- high waves, overwash, or storm-
term protection surge flooding.
3. Favored by many coastal home- 3. Aesthetically unpleasing.
owners. 4. Generally ineffective in past.
5. Larger seawalls will likely be
needed if these fail to work.

-32-

OPTION #3 BEACH REPLENISHMENTUNCLUDING ARTIFIC.IAL DUNES)

SOUND 49

S
Nos 15&-4A
A

JE ATLANTIC OCEAN
Jt4LG6'r

OpT ION: Sand will be pumped onto the beach to build up the dunes and
the upper beach area. Sand will be pumped from either the
sound behind the barrier island, from inland areas on the
island, or from the continental shelf.

COST: High cost; cost will be split 50-50 betweerf state government
and local government.

SomE ADVANTAGES: SOME DISADVANTAGES:
1. Will likely cause fewer 1. Requires an expensive, long-
environmental problems than term commitment.
seawalls or groins. 2. Must have large supply of sand.
2. Will provide a wider beach 3. Artificial dunes can accelerate
area for @everal years erosion on sound side by prevent-
3. Will protect public recreation ing normal overwash processes.
areas.
4. No unsightly structures will.be
built.

-33-

'OPTION #4. NO ACTION

SOUND

-W

Wezrr ATLANTIC OCEAN
JETri jr4LXT

OpTION: No protective action will be taken by government. Leave Shift-
ing Sands Beach as is, letting nature take its natural course.
Homeowners would be encouraged to move their houses back from
the shoreline.

COST: No cos*ts; costs of relocating homes (Approxiniately $6-10,000)
will be paid by individual home owners.

SomE ADvANTAGEs: SomE DisADvANTAGEs:
1. No interference with the 1. No direct action is taken to
environment. protect property.
2. No costs. 2. Potential loss of cultural and
3. No unsightly*structures. historical sites.
3. May be very unpopular choice with
coastal residents.

-34-

OPT.1 ON #5 STOP MAINTAINING WEST INLET

SOUND

SANDS

Remoge
Wdlyr ATLANTIC OCEAN
JETnLV 114LXT J

OpTION: Maintaining West Inlet is probably responsible for some erosion
along Shifting Sands Beach. The dredging of West Inlet to provide
a channel for shrimpers and other fishermen will be stopped. The
.jetty, which helps prevent the inlet from closing,,will be torn
down.

CosT: -very low cost to tear down jetty; a savings if expensive dredging
operations are stopped.

SOME ADVANTAGES: SomE,DisADvANTAGEs:
1. Very low cost; a possible savings. 1. Uncertain if this will work; not
2. No harm to natural environment. clear how much of the erosion
3. Will remove.unsightly jetty. problem is caused by maintaining
West Inlet.
2. Fishing operations and recreational
boaters will lose easy, convenient
.access to ocean.
3. Some fishing operations may close
due to extra transportation costs.

-35-

Student Handout

COUNTY OFFICIALS

You believe that some type of protection is definitely needed. However,
cost is an important consideration.' The city does not have enough tax revenues

to pay for an expensive project. The state must help pay the bill. You know

the state argues that erosion is only a local problem, and therefore the state

should not do anything. You disagree. After all, the beach is public property

and owned by the state.

You also know that your city receives much tax revenue from tourism.

Continuing erosion means fewer tourists and less tax revenues. Your city can-

not afford these losses.

Erosion also threatens to increase the potential damage from hurricanes.

Because there is less beach and fewer dunes to take the first brunt'of a major

storm, a hurricane will cause major property damage. You think the state of

North Carolina has an obligation to give people more protection.from.hurricanes

by stopping erosion. You would do it yourself, but your county just is not

wealthy enough to afford these kinds of.projects without some financial help.

Finally, you are against the plan to stop dredging West Inlet and to tear

dc#7n the jetty. You think the fishing industry is important to your community.

If the inlet is not kept open, several fishing operations may close down. You

think the erosion problem can be solved without putting a lot of people out of

work.

Student Handout

STATE OFFICIALS

You believe there is nothing permanent that can be done about stopping

erosion. Nature will ultimately wreck any engineering effort. While it is true

that the state government.has supported erosion control in the past, these efforts

have been generally unsuccessful. The only successful projects have been very,

very expensive; in fact, the cost of these projects was more than the value of

the property they were trying to,protect. One of your major concerns is that

once an erosion control project is started, it must be maintained and frequently

expanded. Thus, the costs continue indefinitely.

Another problem is that the erosion protection system is installed, builders

will think the area is safe, and new development will occur. This just makes the

problem worse the next time.it-comes around.

People were warned about erosion problems when they built homes there.

Raleigh cannot be expected to bail people out of trouble every time.

The state is not concerned about the-loss of some public beach area. It will

always own everything below the mean highwater mark--no matter where it is. The

hundreds of thousands of dollars spent on an erosion control project will benefit

only local residents. If an erosion program is approved, you believe the cost.

should be kept low.

Finally, you think the maintenance of West Inlet should probably be stopped.

It may be contributing to the erosion problem, and the fishing industry should not

be hurt too-much by this action.

-37-

Student Handout

LOCAL PROPERTY OWNERS

You want protection now! You have considerable money invested in property

and if some action is not taken soon your property is going to be washed away.

You have already lost hundreds of feet of beach-front property. If people in

the state government do not wake up and do something soon, Clinton will be on

the coast!

You admit that you are asking government to protect your private property,

but the beach in front of your property is pub.lic. Everybody uses the beach,

not just you. Isn't it fair for the government to pay to protect this public

property?

Another problem that seriously affects you is the declining value of your

property duo- to the erosi on threat. Even if you wanted to sell your property

and move, you could not get very much money for it. If erosion protection is

built, though, the value of your property will increase again.

You do not particularly care about cost; any protection is better than

none. This is especially true since you can get no personal property insurance

to cover losses from erosion.

Further, the idea of'relocation seems absurd to you. You saved for years

to build your house on the ocean. After all, what is the p6int of having a beach

house that is not on the beach?

Finally, you favor option #5, the ending of the maintenance of West Inlet.

Older property owners tell you that erosion has been worse since the jetty was

built to help keep the inlet open.

-38-

Student Handout

FISHING GROUPS

Your main concern in this issue is to be sure that the dredging of the

West Inlet continues and that the jetty is not torn down. If people vote against

maintaining West Inlet, it will seriously affect.your'fishing intersts. West

Inlet is the only opening to the sea for several miles. The extra time and expense

in traveling the extra miles to another opening will cost your fishing business

considerable money. Some fishing outfits will likely be forced to go out of

business.

if Option #5 is chosen fishing operations in the area will have to charge

mote for their products. If people think they will save money be voting for

Option #5, they are wrong. They will have to pav for it in terms of higher fish

prices. And. they will probably put several people out of work who might then

go on welfare.

Further, there is no solid evidence that ending the maintenance of the

inlet will lessen erosion along Shifting Sands Beach. If scientists are not sure

it will make a difference, why do it?

-39-

Student Handout

TOURIST GROUPS

Your major concern about the erosion problem is the loss of the beach

area. Most tourists come to Shifting Sands Beach to swim, sunbathe, collect

shells and enjoy the wide, smooth beaches. If the.beach erodes away--and several

hotels in the area have already lost valuable beachfront property--fewer tourists

will come to Shifting Sands Beach.

If tourism drops off, it will mean less money for the entire community.

Many people will lose their jobs.

You think the idea of doing nothing to control erosion is ridiculous.

Groins and beach replenishments projects have worked in other areas. This may

be expensive, but you feel that no cost should be spared in saving the beach

area. However, you are definitely against the seawall p roposal. While sea-

walls can keep the ocean from damaging property, they often cause the beach in

front of the walls to erode faster than they.normally would.

-40-

Student Handout

ENVIRONMENTAL REPRESENTATIVES

You believe that all erosion control projects are only temporary measures.

Nature will win in the end. Sometimes these projects have unforeseen, adverse

effects. Seawalls are the worst idea because they cause the.beach to erode

faster then it normally would. Seawalls may protect 2roperty for a short time,

but they ruin the beach.

Beach replenishment does not always work either because if the new sand

pumped onto the beach is too fine, it quickly blows away.

You also believe that since the general level of the ocean is rising through-

out the world due to the ice caps melting, erosion is inevitable. Putting in

a few groins or seawalls will not stop a worldwide process.

Finally, you approve of the plan to-stop maintaining West Inlet. You be-

lieve there is a good chance that erosion along Shifting Sands Beach would les-

sen if the jetty were removed. As far as you are concerned, this is just another

good example of how people have fouled up nature by trying to control it.

You are against spending any tax money on erosion control; if people were

foolish enough to build on the beach they should paV the consequences.

-41-

UNIT III: RESOURCE114MAGEMENT: POLITICS AND PLANNINGIN THE COASTAL REGION

LESSON 4: BLUE NECK BAY

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "CAMA Comes to the Coast"
Transparency, "CAMA Comes to the Coast--Political Process"
Worksheet, "CAMA Comes to the Coast--Political Process"

OVERVIEW

Students read a case study of the passage of the Coastal Area Management
Act (CAMA). Using information they learned in the previous "Political
Process" lesson, students identify the majoy political actors in the CAMA
case and analyze the roles they played.

.PROCEDURE

1. The reading, "CAMA Comes to the Coast" can either replace the "Blue
Neck Bay" reading or can be used as an additional case study.

2.. Use the same procedures outlined in the "Blue Neck Bay" lesson.
A complete version of the Student Worksheet is given below. Students
may complete their worksheets with some slight deviations from this
key. However, major errors should be noted and discussed.
(A completed worksheet is included at the end of this lesson.)

3. After students have completed the diagram ask:

a. What did the environmentalists and other concerned citizens do
to try to'slow or halt development?

[They formed.public interest groups; they put pressure on the
General Assembly to pass CAMA.3

b. What did the former developers and other coastal representatives do
to allow development to.continue?

[They formed special interest groups; they put pressure on the
General Assembly to defeat or change CAMA: some property owners
eventually filed a lawsuit against CAMA.1

c'. Looking at the diagram, what else might the proper op2osing CAMA
do in the future?

[They could go back to the legislature with new proposals to weaken
or abolish CAMA; they could continue to challenge the decisions of
the regulations agency (the.CRC) in court; they could mount a campaign
to get public opinion to oppose CAMA, the public would pressure the
General Assembly; students may think of other tactics.]

-42-

Answer Key

CAMA COMES TO THE COAST-POLITICAL PROCESS

Decision-
Courts Legal Action
L
Legislature Decisions Use Coastal
(General Users Benefit Resources,
Assembly)
Law Regulations
Permits
Regulatory
A gencies
(:oastal Resource
Commission), Special Us s
Interest Benefits
Pressure- Groups

Public
Pressure Interest _d
Groups

Public
Le ;e
G Use
YJ

Unit 111, Lesson 4
Transparency

CAMA COMES TO-THE COAST--POLITICAL PROCESS

0 0 .

Student Worksheet

CAMA, COMES TO THE COAST-POLITICAL PROCESS

Student Reading

CAMA COMES TO THE COAST

North Carolina's roots reach back to the coast. The Outer Banks'and areas

bordering the sounds provided the first home for many early settlers in North

Carolina. The early pioneers of Dare and Hyde and Carteret counties grew ac-

customed to.the scorching.summer heat, the pesky mosquitoes, and the unpredict-

able Atlantic.

For many others, however, the barrier islands and the sounds were not at-

tractive. A hundred miles inland the mosquitoes disappeared, the weather was

less harsh, and the Atlantic could be forgotten. During the 1800's and the

first half of this century the focus of growth moved inland to the inner coast-

al plain, the piedmorit and beyond.

During this time, the coast remained largely untouched by the industrial

development of the inland areas. The solitude and relaxed life-style of the

coastal region pleased many of its residents, but some began to feel the coast

was falling out of step with the rest of the state. Economically, the coastal

area was second-rate; the standard of living was generally much lower than the

rest of the state.

CoastaZ deveZopment in the 1950's and Z960's
. t. 2 @a 1344 heZped create a number of environmentat
# ft"Pts dt 89000 probZems.

QPFftAt

-46-

During the prosperous time's of the 1950's and 1960's the North Carolina

coast experienced significant economic growth. The economy expanded due to'

rapid increases in the tourism and recr eation industries. Summer weekend

population of some counties was 50-100% greater than normal. Motels', hotels,

vacation cottages, mobile homes, and new recreation areas appeared almost over-

night. In-addition, agricultural and timber operations expanded. Industry moved

into New Hanover County.

'While many on the coast welcomed these new activities, serious problems

emerged with this increased development. Environmentalists and other concerned

citizens warned that this rapid development disturbed the natural beautv of the

coast. The fishing industrv complained that filling of the marshlands areas for

economic development and other pollution problems lowered their catch. But

others argued that development was needed, particularly more industry, if the

coast was to achieve a standard of living comparable to the rest of the state.

As one developer put it, "Many of these people doing the complaining are people

who already have built their weekend cottages. Now that they've got their

share of the coast, they don't want to share it with anybody else.11

This debate touched the North Carolina State Legislature. Some groups'

argued that North Carolina needed new laws to stop further development. They

wanted strict legislation to save the coast from what they saw as the destruc-

tion of a beautiful and fragile natural resource. Other groups, including

farmers, developers, and business leaders from the coast pressured the General

Assembly not to pass any such legislation. Development must continue, they

argued, so that the full economic potential of the coast can be realized.

Perhaps the strongest fear of the pro-development forces was that Raleigh

would be telling them what to do with their property. Their sense of independence,

nurtured by the many years of relative isolation from the rest of the state, would.

not permit such an arrangement. "We know what is best for us," the coastal

-47-

CA KA

Representatives from many coastal
counties opposed the CAMA.

,111117 AL

representatives protested. In response to these criticisms, many parts of the

proposed legislation were changed so that local officials were given more con-

trol in making decisions about the use of their coastal areas.

After two years of intense debate, the General Assembly passed the Coast-

al Area Management Act (CAMA) in 1974. The law created a new Coastal Resource

Commission to protect and-guide development in the coastal region. The Commis-

sion would develop land use plans and regulate development in the areas of en-

vironmental concern. These particularly fragile areas included two to three

percent of the wasted land area and all of the water.

Despite the approval of CAMA, many coastal citizens did not give up their

opposition to the state's new law. Several landowners in Carteret, Onslow, and

Hyde counties filed a lawsuit in 1976 protesting the constitutionality of the

law. They argued that.the state legislature could not 1 egally approve CAMA be-

cause CAMA was not a statewide law. CAMA only affected 20 counties, and there-

fore was just a "local law." The suit charged that laws like Q411A could only be

passed by the counties, not the state. Further they claimed CAMA placed so many

-48-

'restrictions on what they could co with their land that it made their land

nearly worthless. It was not fair, they.said, that they'could not develop

their land the way in which they wanted.

27@do court decisions have upheZd
the CAMA.

EA bw

The court, however, ruled against the landowners. The court ruled that

while CAMA did only directly affect 20 counties, these counties constituted a

subsection of the state with unique and urgent environmental problems.

The landowners appealed this decision to the North Carolina Supreme

Court, but they failed there also. The court dismissed claims concerning too

many restrictions on-the use of their land because the CAMA had not had any

such effect yet. The court decisions mean that users of the coastal region's

resources will still have to follow CAMA's rules and regulations'.

-49-

MAJOR STEPS IN "CAMA COMES TO THE COAST"

1. @oastal residents use coastal resources in a number of ways..

2. Coastal residents receive numerous benefits from the coast.

3. The public recieves recreational and other benefits from coastal resources.

4. Public interest groups go to the General Assembly to argue that new laws
are needed to protect the coast from increasing development.

5. Special interest groups oppose such legislation.

6. The General Assembly passes the Coastal Area-Management Act (CAMA) in
1974 creating a new agency to guide coastal development (the Coastal
Resources Commission),.

7. The Coastal Resource Commission began to write regulations and issue permits
to control the uses of coastal resources.

8. Several owners of coastal land filed.a lawsuit against CAMA..

9. The court ruled against the lawsuit.

10. The court's decision meant that the Coastal Resources Commission could
continue to guide coastal development.

-50-

UNIT III: RESOURCE MANAGEMENT: POLITICS.AND PLANNING IN THE COASTAL REGION

LESSON 6: MANAGEMENT TOOLS

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "Resource Management: Six Examples from North Carolina"

OVERVIEW

Students read six examples of resource management in North Carolina. They
then identify the management tool used in each example and analyze the ad-
vantages and disadvantages of each tool.

PROCEDURE

1. The reading, "Resource Management: Six Examples from North Carolina,"
replaces the six examples provided in the original reading. (If you
wish, you can use the original set.for review or as a short quiz to
test student's ability to identify the six resource management tools.)

2. Pass out the North Carolina reading after students have finished the
first section of reading 111-5, "Managing Coastal Resources."

3. Have students read the six North Carolina examples. After they finish,
ask students to explain,what management tool was used in each example.

a. What resource or activity is the government trying to control?

b. What management tool is the government using?

[Example 1: a. The government is trying to maintain public access
to the beach.

b. The management tool is the purchase or acquisition of
land. By acquiring ownership to this land, governments
can control how the land is used. '

Example 2: a. Government is trying to control where certain kinds
of buildings or activities can be located.

b. Government is using the management tool of zoning.

Example 3: a. Government wants to control the construction of boat-
houses and piers in Bogue Sound'.

b. Government is using a regulatian and permit system.

Example 4:- a. Government is tryin g to encourage development in
Brunswick County.

b. Brunswick County has established a low tax rate to
attract development. A higher tax rate might dis-
courage development.
_51-

Example 5: a. Govetnment.is attempting to improve water quality
or reduce pollution. Most communities feel they
are too small to need zoning and, secondly, many
are too poor to implement such a-system.

b. Government is reaching this objective by directly
improving a sewage treatment facility. This tool
is called improvement of public facilities, or
capital improvements.

Example 6: a. Goverment is trying to protect certain fragile
environmental areas.

b. Government is trying to direct major new develop-
ments away from these areas. This strategy may be
called the placement of key facilities..]

4. Have students look at the third section of the original reading "Ana-
lyzing Management Tools." Follow the procedures outlined in the Teacher's
Guide for the remainder of Xhis lesson.

5. You may want to point out to students during the analysis of the'various
management tools that very vew coastal communities in North Carolina have
zoning.

6. As a special project, the class could investigate which of these manage-
ment tools are used or favored by their community or county.

-52-

Student Reading

RESOURCE MANAGEMENT: SIX EXAMPLES FROM NORTH CAROLINA

.SHORELINE ACCESS AT LONG BEACH

The town of Long Beach recently purchased a small section of land from

private owners in order to assure public access to the shoreline. A walkway was

purchased so that the public would continue to have easy access to the beach

despite continued development in the area.

Ilk

The purchase of Zand by government,
for such uses as pubZic waZkjays
is one way government can infZuence
the use of coastaZ areas.

GUIDING DEVELOPMENT IN THE COASTAL COMMUNITIES

A few large communities on the Carolina Coast, such @s Wilmington and More-

head City, have established laws specifying how land may be used. Certain types

of buildings such as hotels or facItories may only be located in certain areas.

Specific activities, such as agriculture, are set aside for other areas. In this

way, communities can generally control how land is used and can limit or encourage

certain kinds of development in specific locations.

WATERFRONT CONSTRUCTION ON BOGUE SOUND

The Board of Commissioners of Emerald Isle in Carteret County recently

passed new rules regarding the building of all boathouses and piers into Bogue

-53-

Sound. The major regulation prohibits any pier from extending more t@an 75 feet

into Bogue Sound waters. This regulation was passed because the Commissioners

felt large structures ruined the Sound's natural landscape and obstructed shore-

line recreation. All construction plans must be subm itted for approval before

any construction permits will be issued.

DEVELOPMENT IN BRUNSWICK COUNTY

Brunswick County has a low property tax rate, which means owners pay less

taxes on their homes, cottages and businesses than they would if they lived in

other counties. This low rate attracts builders to Brunswick County and many

shorefront buildings line the-beaches. This low tax rate policy has resulted in

many construction-related jobs and a growing local economy.

SEWAGE TREATMENT IN CARTERET COUNTY

Swansboro presently uses a primary sewage treatment syst em with no chlorina-

tion. The effluent goes north into the White Oak river. Subsequently, acres of

water are closed to shellfishing. The town is planning to install a secondary

aeration system with chlorination. The effluent will go south into Foster's

Creek. This change will eventually allow over 2,500 acres of prime shellfish grow-

ing areas to be opened to fishing.

AREAS OF ENVIRONMENTAL CONCERN (.AECs) ALONG THE CAROLINA COAST

North Carolina's Coastal Area Management Act (CAMA) ddsignates several

parts of the North Carolina coast as "areas of environmental concern. (AECs)."

Ocean beaches. frontal dunes, inlets, marshes, and other fragile natural resources

are included in the AEC classification. Any development in AECs must proceed

cautiously because the environment there may be easily damaged or destroyed by

human actions. One result of this identification of AECs is for governments to

try to locate maior new developments (such as bridges. roads. sewage treatment

plants, etc.) in less hazardous areas.

-54-

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PL'ANNING'IN THE.COASTAL REGION

LESSON 7: LOCAL VERSUS REGIONAL CONFLICTS

ADDITIONAL NORTH CAROLINA MATERIALS

Transparency, "Local-Regional Conflicts in North Carolina:. Who Pays for
Erosion Control?"

OVERVIEW

Students view a transparency and hear a description of local-regional
conflicts.in North Carolina.

PROCEDURE

1. This transparency is designed to be the last inthe series of trans-
parencies on local-regional conflicts. The preceeding transparencies
and accompanying description a.re provided in the original lesson.

2. Show the transparency, "Local-Regional Conflicts in North Carolina:
Who Pays for Erosion Control?", after the final transparency on the
City of Long Beach. California ordinance.

Give students the following information:

A good example of local-regional conflicts in North Carolina is repre-
sented by the debate ove'r who*should pay for erosion control. Shoreline
communities, like Long Beach, Topsail Beach, Emerald Isle, and Wrights-
ville Beach are threatened by erosion. Local officials want to provide
protection because it will bring many benefits to their community. Ero-
sion control projects protect homeowners and help keep the beach wide so
tourists will continue coming to their area. And, since the state pays
80% of the costs, local officials favor this policy.

State officials, however, are beginning to wonder if all their money is
"going down the ocean drain." Since the early 1960's, the state has
spent $1.million on erosion control. Wh4le some beaches have been saved,
the state believes the general public has received very few benefits from
th'is investment. Most of the benefits seem to be going to a few beach-
front property owners. Consequently, the state is considering cutting
back on its share of the cost. In the future it would like to pay only
20% of the bill. In this case, state officials are trying to change the
fundJing@of erosion control so that the area that receives the most bene-
fits-the local community-also pays most of the bill.

3. Ask the class if they can think of any other'local-regional conflicts be-
tween the coastal area and the rest of the state.

-55-

Unit III, Lesson 7
Transparency

LOCAL-REGIONAL CONFLICTS IN NORTH CAROLINA:

WHO PAYS FOR EROSION CONTROL?

RALEIGH.

COASTAL
COMMUNITIES

-56-

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION

LESSON 10: THE TAKING ISSUE: LEGAL LIMITS TO REGULATION

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "The Case of the Shrinking Cottage"

OVERVIEW

Students read an account of a potential "taking issue" case in North Carolina.
In a mock courtroom scene, students present each side of the case before the
"judge" (the teacher). The actual outcome of the situation is then revealed.

PROCEDURE

1. The reading, "The Case of the Shrinking Cottage" and this short activity
are designed to follow the conclusion of Lesson 10, "The Taking Issue:
Legal Limits to Regulation."

2. Explain to the class that an interesting example of the conflicts be-
tween the rights of private property owners and the power of government
to regulate land use has occured recently in Onslow County at West Onslow
Beach. Some landowners there have discovered that new land-use regula-
tions designed to protect the public's safety and the environment are
seriously limiting what owners can do with their land.

3. Pass out the short reading, "The Case of the Shrinking Cottage," to
each student.

4. After they have completed the reading, ask a student to summarize the
main points in the reading., Then ask:

a. What is the-basic conflict in-this situation?

[Has@the government (the state and the county) zone too far in
res'tricting Mr. Minshew's use of his property?]

b. Do you think Minshew should go to court? Why?

5. Have the class imagine that Minshew does go to court to sue the county
and state. How would they argue his case? How would they defend the
county and state?

Divide the class into two groups. Group 1 represents Mr. Minshew and
Group 2 represents the county and state. Announce that you will be
render a final decision.
6. Students may work alone or in small gro'ups within their larger groups.
Give the class a few minutes to prepare their client's case. Suggest
.they use the "Balancing Process" worksheets as a guide'in organizing
their presentation.

-57-

Ask one person representing Mr. Minshew to present his case. Allow
students from the county and state to respond. Ask for any other
relevant information or arguments.

7. As "judge," announce a final decision based on how well each side
argued the various aspects of the case. Refer to the relevant cri-
teria described in the "Balancing Process" worksheet (the extent of
economic damage, remaining uses of property, necessity of hazard
protection, and provisions for a public good or service) in making
your decision.

8. Explain to the class that,,in reality, this case never made it to the
courts (as of Summer, 1979). Minshew did get the county to agree, out
of court, to allow him to build within three feet of the road. This
gave Minshew the possibility of an 18-foot wide house.

However, Minshew or another property owner in a similar situation
may still decide to take their case to court. All the ingredients
for a "taking issue" are certainly involved.

-58-

Student Reading

THE CASE OF THE SHRINKING COTTAGE

Mr. Brad Minshew-obtained a permit on March 1977 to build a 36x6O foot

cottage across a frontal dune on some land he owned at West Onslow Beach.' Mr. Min-

shew's property lies between old U.S. Highway 210 and the ocean. The distance,

between the road and the duneis 20-30 feet.

In the spring of 1979, Minshew decided to begin construction of his new

cottage. The site preparation involved destroying part of the West Onslow Beach

dune system. Before he began, however, he discovered that new regulations passed

since 1977 reduced the area in which he could build. The'state Coastal Area

Management Act (CAMA) had passed new regulations prohibiting construction on

frontal dunes. Added to that, new Onslow County regulations increased the dis-

tance needed between the highway and the nearest building. This open space,

called a "setback," was increased from 15 to 20 feet.

These two new regulations have, in effect, squeezed Mr. Minshew's property

from both sides. He now has only one foot of property width left on which to

legally build. His cottage, originally planned and approved for 36x6O feet would

now have to lx60 feet. Can you imagine a beach cottage just one foot wide??

Both the state and countV defended their new regulations. The state said

that destruction of frontal dunes often leads to increasea erosion. This could

hurt Minshew's property as well as others. Also, destruction of dunes eliminates

natural protection from storms and increases the possibility of damage to life

and property. Onslow County officials claimed their extra setback requirement

was necessary to protect motorists and increase highway safety.

Despite these.a-g--ments, Minshew is still left with only one foot of al-

lowable building space. His property was valued at $21,500. Minshew has

said, "$21,500 is a very sizeable investment. The loss could destroy a family.

_59-

UNIT IV: CASE STUDIES IN RESOURCE MANAGE14ENT

LESSON 2: THE ECONOMY AND THE ENVIRONMENT

ADDITIONAL NORTH CAROLINA MATERIALS

Reading, "Whose Beach Is It, Anyway? Cape Hatteras National Seashore and
Off-road Vehicles"
Worksheet, "Planning Worksheet"

OVERVIEW

Students read a description of the problem of off-road vehicles (ORVs) on the
Outer Banks. They then fill out a "Planning Worksheet" which lists the
economic, environmental, and political/social implications of the proposed
restrictions on ORVs.

PROCEDURE

1. The reading, "Whose Beach.Is It, Anyway?" may replace or be used in
addition to the BASF case.

2. Hand out the reading, "Whose Beach Is It, Anyway?" to the class. After
they have finished, have them complete the "Planning Worksheet." This
worksheet is similar to the one they have completed in Unit III, Lesson 5.

3. When students have completed their worksheets, go over their answers to
see if they have covered all the major points in.the reading.
Ask:

a. Is there any other information you would like to have before you
make a decision on this case?

b. What decision would you make? Why?

C. What decision do you think the Park Service will make? Why?

d. What facts seem most important in helping you reach your decision?

-60-

Student Reading

WHOSE BEACH IS IT,@ ANYWAY?

CAPE HATTERAS NATIONAL SEASHORE AND OFF-ROAD VEHICLES

A hurricane of protest and debate has hit the Outer Banks recently con-

cerning the.use of'off-road vehicles (ORVs). In the eye of the storm is the

National Park Service's proposal to close about one-half of the Cape Hatteras

National Seashore to ORVs. The Park Service claims the move is necessary to

protect the fragile ecology of the barrier islands, and to provide.room for

others who also have a right to use the beach.

Park officials want to
protect the dune areas
'from overuse.

The use of beach buggies, the most common ORVs on the seashore, has in-

creased significantly in the past years. One-quarter of all vehicles now enter-

ing the National Seashore are 4-wheel drive vehicles. The increase in environ-
mental damage and complaints from other users, (e.g., walkers, campers) has grown

along with the use of ORVs, according to the Park Service.

The Park Service proposal will completely close one-half of the seashore

to ORVs, and restrict their use on another one-quarter of the beach to a seasonal

basis. Only 25 miles of the 73 mile long National Seashore will be open year-

-61-

round to ORVs.

The ORVs.restrictions might not be quite so controversial if it were not

for the fact that many of the people affected are surf fisIfermen. The Hatteras

lifestyle is meshed with surf-fishing. Fishermen say they need the ORVs to

get to the ocean to folow the migrating fish up and down coast. (There are no

roads in many areas of the National Seashore.) Banning ORVs will not only ad-

versely affect their catch, but will threaten a way of life these people have

enjoyed for years.

Fishing is best in early spring and from September to December. Any

restrictions on vehicular traffic during this time would result in a serious

economic setback. One fisherman said as he placed his hands on hips and stared

out at the ocean, "This is really going to hurt us, no question-about it. But

what a lot of people forget is this area gets a lot of recreational fishermen

too. The tourist economy is also going to suffer." The owner of a tackle shop

agrees: "There are a lot of us who have financial commitments that depend on

the use of off-road vehicles on a year-round basis."

County officials fear that the loss in tourism and fishing could cost

Dare and Hyde counties up to $13 million. This doesn't include a potential

decline in the sale of 4-whdel drive vehicles. Car dealers as far away as Norfolk,

Virginia predict significant losses in sales if the Park Strvice proposal is ap-

proved.

While it is relatively easy to put a price tag on the loss to the economy,

it is very hard to estimate the value of the ORVs restriction to the environment.

Nonetheless, park officials and environmental groups are certain the ORVs ban is

needed. They argue that sand roads and tire tracks cut deeply into the shore

area and lead to the destruction of vegetation. Since dunes are stabilized by

the growth of vegetation, ORVs vehicles can help cause'dunes to migrate.

Tire tracks and roads also act as a magnet for storm waves. High water,

-62-

which would normally fan out over the beach, is sometimes channeled into these

ruts and creates a temporary "river" that can badly.erode inland areas.

Running vehicles on the beach also bothers shorebirds and other organisms

that depend on the shorelihe for their existence. 'Park officials have discovered

that areas with heavy ORVs traffic have practically no nesting shorebirds.

Damage to the natural environment is not the only reason for the Park

Service plan. Seashore visitors who want to swim, take quiet walks along the

beach, or sunbathe on the warm sands, often find themselves dodging ORVs rather

than enjoying the natural scenery. "I like to camp and I'm a beachcomber,"

says one frequent visitor. "People like me shouldn't be threatened by Beach

Buggies. There has to be room for everyone."

When local residents of the Outer Banks hear these kinds of complaints, they

point the finger at a small minority who abuse and neglect the seashore environment.

Local fishermen claim they are not the ones mainly responsible for environmental

problems or are the people creating a hazard to other beach users. But, they do

agree that beach traffic could be restricted in the summer-fun months of June,

July, and August. Fishermen feel this alternative plan.would not seriously affect

their catch and would clear the beach of ORVs during the crowded vacation period.

Other plans have also been suggested by those who feel the Park Service

proposal is too stiff. The final decision will be a difficult, and probably an

unpopular one. The goal of "room for everyone" is not easy to reach along

the National Seashore.

_63-

Answer Key

PLANNING WORKSHEET

QUESTION: Should the use of off-road vehicles in Cape Hatteras
National Seashore be restricted?

ECONQMY

ADVANTAGES DISADVANTAGES

Lower income for Hatteras fishermen
Loss of income for tourism and from
recreational fishing (tp to $13 mil-
lion in Dare and Hyde counties)
ORV dealers will lose income

ENVIRON MENT

ADVANTAGES DISADVANTAGES

Restriction will help protect dunes
Erosion will be reduced
Vegetation and shorebirds will be
protected

POLITICAUSOCIAL

ADVANTAGES DISADVANTAGES

Will-hdlp create a more natural Could alter life-styles of Hatteras fishermen
and peaceful beach area Recreational fishermen will lose fishing op-
(better for sunbathers and portunities
beachcambers)

Are there any w-her idvantages or disadvantages to restricting off-road
vehicles in the National Seashore that should be considered, b ut do not
fit into these three categories?

-64-

Student Worksheet

PLANNING WORKSHEET

QUESTI ON: Should the use of off-road vehicles in Cape Hatteras
National Seashore be restricted?

ECONO Y

ADVANTAGES DISADVANTAGES

ENVIRONMENT

ADVANTAGES DISADVANTAGES

POLITICAUSOCIAL

ADVANTAGES DISADVANTAGES

Are there any other advantages or disadvantages*to restricting off-road
vehicles in the National Seashore that should be considered, but do not
lit into these three categories?

-65-

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT

LESSON 3: ENERGY AND THE ENVIRONMENT: THE NORTHEAST ATLANTIC

ADDITIONAL NORTH CAROLINA MATERIALS

Transparency, "Oil Refineries in North Carolina"

OVERVIEW

Students view a transparency and consider other information regarding the
location of petroleum-related facilities in North Carolina. The transparen-
cy locates existing and proposed refineries; discussion questions focus on
the costs and benefits oflocating such facilities on the North Carolina
coast.

PROCEDURE

1. After students have completed Lesson 3, "Energy and the Environment:
The Northeast Atlantic," explain that off-shore oil exploration in
the Atlantic is not expected to take place off the North Carolina coast
for some time. However, offshore areas to the north and south have
already been leased to oil companies. The North Carolina coast may
soon experience some indirect impacts if oil and/or gas is discovered
in these nearby areas. New harbor facilities, refineries and/or petro-
chemical plants may be located on the Carolina coast.

Explain that as of Summer, 1979, strikes of undetermined size have
been made in the Baltimore Canyon area. However no verified major
discoveries have been made along the East Coast. Nonetheless, with
the uncertainty of Arab oil and its own growing industrial needs,
North Carolina is beginning to feel the increasing demand for petrole-
um products@.

2. Display the transparency, "Oil Refineries in North Carolina." Explain
to the class that one small refinery already exists near Wilmington
and two others are proposed. One is in Morehead City and the other in
Brunswick County on the Cape Fear River.

Since the proposed refinery in Brunswick County would be a large-scale
operation, thexe is considerable controve 'rsy surrotmding its potential
impact. The refinery would be located on a 1,900 acre tract in an un-
developed area containing forests and old, marshy rice fields overgrown
with wild rice. The refinery would be capable of producing up to
150,000 barrels of refined petroleum products per day.

Ask the class the following questions to help them consider the pros
and cons of this case, and"to encourage theta to develop a point of
view regarding the establishment of oil facilities on the coast:

a. @ What do you think some of the arguments would be in favor of the
refinery?

-66-

[Increased oil supplies would be available to the state, especi'
ally the southern part; the nation needs the additional oil
supplies;, construction of the refinery would employ several peo-'
ple--in fact. 2,000 to 3,000 people would be employed in construc-
tion for about 2 years; the refinery would provide jobs--in fact,
200 to 300 people would be employed permanently; tax revenues
will increase--in fact, Brunswick County is projected to receive
an additional $750 million in taxes annually; students may find
other reasonable arguments.]

b. What do you think some of,the arguments would be against the
refinery?
[The marsh area would be destroyed; pollution in Cape Fear River
is likely; wildlife may suffer; students may develop other
arguments.]

C. What other kinds of information would you like to have before you
make a decision on this issue? Where could you find such informa-
tion?

d. What decision would you make concerning the proposed refinery in
Brunswick County?

@i. If you feel strongly a'aout your opinion, how might you get involved
in the political process to further your goal?

f. Generally speaking, what do you think the policy of the state
should be toward the construction of oil refineries and other
petroleum-related facilities on the coast?

[After students give their opinion on this issue, explain that the
state, at present, is generally encouraging the location of petro-
leum-related facilities on the coast. The state currently supports
the Brunswick County refinery, and supported the development of a
liquid propane gas terminal on Radio Island at Beaufort. The gas
terminal proposal was scrapped after environmentalists and Beaufort
area residents opposed the project.

One regulatory agency of the state very concerned with this prob-
lem is the Office of Coastal Management (created by the Coastal
Area ManagemeTtt--CAMA). The policy of this agency is that energy-
related facilities, including oil refineries, are necessary to
the continued development of the coastal region and of the state.
The major problem, then, is not if such facilities should be al-
lowed on the coast, but where sh@o-uld they be located so negative
impacts are held to a minimum

-67-

Unit joesson 3
Transparency
110,1 Refineries in North Carolina"

ATLANTI
OCEAN

Morehead City Proposed 30,000-Barrel Refinery

WilmingtO Existing 15,000-Barrel Refinery
Brunswick Proposed 100,ooo-Barrel Refinery
County

SC SUPPLEMENT )@ L

SOUTH CAROLINA SUPPLEMENT
TO COASTAL PROBLEMS
AND RESOURCE MANAGEMENT.

A Publication of
the South Carolina Oept. of Education, Columbia,
a-d '.:ie South Carolina Coastal Council, Charleston,
South Carolina
1980

SOUTH CAROLINA SUPPLEMENT
TO COASTAL PROBLEMS AND RESOURCE MANAGEMENT

Developed by

Gregory L. Rhodes

Curriculum Research and Development Group
University of Hawaii

7ditorial and research assistance was provided by Harriet Knight,
Ann Baker, Ann T. Adkins'and Louis Hern, South Carolina Coastal
Council; Alice Linder and Howard Thomas, South Carolina Department
of Education; and Francis M. Pottenger and Carol McCord, University
of Hawaii.

Production assistance from the University of Hawaii was provided by
Sharon Dongug and Diane Kita.

This South Carolina Supplement is designed to accompany the course,
Coastal Problems and Resource Managemen , developed by the Curriculum
Research and Development Group, University of Hawaii.

A NOTE TO SOUTH CAROLINA TEACHERS

The Coastal Problems and Resource Management (CPRM) materials include several
case studies and examples of problems in various coastal regions which illus-
trate the general ideas and concepts in the course. This reliance on case
studies provides numerous opportunities to replace or supplement the original
materials with examples highlighting a specific coastal region.
CD

This South Carolina Supplement to CPRM contains a variety of case studies and
other examples which describe and analyze coastal issues in South Carolina. These
local examples, combined with other national studies in CPRM , offer South Carolina
students a sense of the broad scope of coastal problems and provide relevant
examples familiar to South Carolina residents. Local materials have been developed
for the following CPRM lessons (South Carolina titles are in parentheses):

UNIT 1: AT THE WATER'S EDGE
Lesson 1: The National Seashore Quiz (South Carolina Seashore Quiz)
Lesson 2: Coastal Features (Coastal Features of South Carolina)
Lesson 3: Our Local Coastline (A Survey of the South Carolina Coast)
Lesson 9: Coastal News Report (South Carolina Coastal News)

UNIT If: UNDERSTANDING COASTAL ECOLOGY
Lesson 1: Coastal Ecosystems (The Santee-Cooper Canals)
Lesson 3: Pollution: What Is It? (Savannah River Update)
Lesson 6: Wetlands and Marshes: Problem or Resource (The Valuable Marshes of the
Low Country)
Lesson 8: Tsunamis and Hilo, Hawaii (Shifting Sands Beach)

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING IN THE COASTAL REGION
Lesson 2: Gaining Access (Beach Access Problems in South Carolina)
Lesson 4: The Case of Blue Neck Bay (The Wando River Case Study)
Lesson 6: Management Tools and Strategies (Management Tools in South Carolina)
Lesson 7: Local Interests versus Regional Interests (Who Pays For Erosion Control?)
Lesson 8: Jurisdictional Problems (Georgia vs. South Carolina)
Lesson 10: The Taking Issue: Legal Limits to Regulation (A Taking Issue in South
Carolina)

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT
Lesson 2: The Economy and the Environment (Recent Cases From South Carolina)
Lesson 3: Energy and the Environment (Oil and the South Carolina Coast)
Lesson 6: Shoreline Management: State Initiatives (The South Carolina Coastal
Council)

In some instances, the South Carolina materials can replace materials already
in the course. At other points, the local adaptations can be used in addition to
the basic course materials. Teacher instructions as well as a copy of all student
materials and transparencies are included in this supplement.

Student materials should be reproduced for use in the classroom. Student
worksheets and handouts are identitied at the top of the page. The first
page of each student reading carries a small "logo" of a shrimp boat super-
imposed over a map of the state.

The South Carolina Coastal Council and the State Department of Education pro-
vided funds for the research, writing, production, and dissemination of the
South Carolina Supplement.

UNIT 1: AT THE WATER'S EDGE
Lesson 1: THE NATIONAL SEASHORE QUIZ (SOUTH CAROLINA SEASHORE QUIZ)

ADDITIONAL SOUTH CAROLINA MATERIAL
Worksheet, "South Carolina Seashore Quiz"

OVERVIEW

.Students take a short quiz about the South Carolina coastal region. The
quiz is designed to encourage students to think about the low country. It
is not intended to be graded as a test.

PROCEDURE

1. These questions may be used to supplement the "National Shoreline Quiz"
questions provided in the student workbook.

2. Pass out the worksheet, "South Carolina Seashore Quiz." Students should
answer these questions after they have finished the "National Seashore
Quiz. "

Be sure to change the "Sea-Q" scale at the end of the "National Seashore
Quiz" to reflect the larger number of questions.

3. Answers to the South Carolina questions are:

1. Eight. The counties are Jasper, Beaufort, Colleton, Dorchester,
Charleston, Berkeley, Georgetown, and Horry.

2. The ocean-front shoreline is approximately 200 miles long. (If you
measure around all the islands, up the streams and creeks to where the
saltwater influence ends, the total South Carolina coastline is many,
many miles longer.)

3. "C" South Carolina was first settled on the coast. The coastal area
is rich in historical and cultural sites.

4. Horry County.

5. Charleston, Georgetown, and Port Royal.

6. True. After marsh grass dies, the products of its decomposition form
a rich source of nutrition for small fishes and shellfish.

7. "B" Even though the amount caught is lower following very cold winters,
shrimp remain the most valuable catch over all the other fisheries.

8. "D" In addition to areas set aside as either wildlife refuges or parks,
are lands - Tjh-;ch state agency and federal government agency facilities

are located.

9. "C" Along the shoreline, there are more miles of beach and marsh
than forest land, but when'you consider the eight-county area as a
whole, forest land dominates.

10. "D"

Student Worksheet

SOUTH CAROLINA SEASHORE QUIZ

1. According to the Coastal Zone Management Act of the state of South Caro-
lina, how many counties are included in the state's coastal zone?

2. What is the approximate length of South Carolina's ocean-front shoreline?

3. Which of the following cities was settled first?

a) Greenville
b) Columbia
c) Charleston

4. Which county leads the coastal zone in tourism?

5. Name South Carolina's three ports.

6. TRUE or FALSE Dead marsh grass is very valuable.

7. Which of the following brings in the greatest amount of income to the South
Carolina fishing industry?

a) Blue Crabs
b) Shrimp
c) Oysters
d) Clams
e) All fin fish

8. What percentage of South Carolina's ocean-front shoreline is owned by the
State and Federal governments?

a) 1%
b) 15%
c) 25%
d) 33%

9. More than one-half of the land area of the South Carolina coastal zone is:

a) marsh
b) cropland
c) forest
d) urban

UNIT 1: AT THE WATER'S EDGE
Lesson 2: COMMON COASTAL FEATURES (COASTAL FEATURES OF SOUTH
CAROLINA)

ADDITIONAL SOUTH CAROLINA MATERIALS
Reading, "Coastal Terminology - South Carolina Coastal Features"
Worksheet, "Diagram of South Carolina Coastal Features"

OVERVIEW

Students read about several common coastal features of the South Carolina
coast. They then identify these features and others on a diagram of the
coastal area.

PROCEDURE

1. After students have completed identifying pictures of common coastal
features in their workbooks, pass out the reading "Coastal Terminology
South Carolina Coastal Features." After Students have completed this
reading, ask if there are any questions. Ask students to give an example
from the South Carolina coast of each feature listed in this second reading.

2. Pass out the worksheet, "Diagram of South Carolina Coastal Features."
Have students identify as many coastal features as they can. Their list
should include features from both Coastal Terminology readings.

3. A completed worksheet follows.

COASTAL TERMINOLOGY-SOUTH CAROLINA COASTAL FEATURES

COASTAL IMPOUNDMENTS

Unique to South Carolina and several other South Atlantic coastal states
are rice field impoundments dating back to times when rice culture was
a source of great fortune to low country planters. Thousands of acres
of tidal freshwater marsh (beyond the saltwater reach of high tide, but
influenced by the ebbing and flooding of the tide) were diked by digging
canals or ditches along the edges of the rivers and creeks and using the
excavated mud to make an enclosing bank.

The majority of impoundments in existence today are managed to attract water-
fowl for hunting. Because creation of impoundments destroys acreages of
productive, natural marsh and converts the impounded areas into artificially
managed environments, it is a questionable practice which must be approached
with great care.

INLETS

Inlets are openings between the barrier islands. The main function of in-
lets is to provide passages for freshwater from the rivers to empty int o
the sea. Inlets also allow salt water to enter the sounds where it mixes
with the freshwater from the rivers to produce the highly productive brackish
water of the estuary. Inlets can open, close, and migrate up and down the
beach. Slow and steady erosional forces or the sudden forces of storms can
drastically alter the shape of an inlet. New inlets can open during storms,
often in areas where washovers occur. Tides moving through the inlets help
to move sand to the back side of the islands, where it remains. This results
in the landward migration of the islands.

MARITIME FOREST

The evergreen forest of salt-tolerant trees and other plants that inhabit
the back portions of barrier islands is called the maritime forest. Common
trees of the forest include live oak, palmetto, laurel oak, loblolly pine,
magnolia, Red bay, and yaupon holly. While providing habitat for animals
such as the alligator, fox squirrel, bobcat, raccoon, and white-tailed deer,
the maritime forest also helps maintain the freshwater supply on the barrier
islands. The thick ground cover retains rainwater and keeps the underground
water supply "refilled."

MUD AND SAND FLATS

Long, flat stretches of soft, dark silt (mud) and sand are called mud and
sand flats. These areas, found within the saltwater rivers and creeks, are
covered durinc,.hi.g@- tide and become exposed when the tide is low. Mud and
C
sand flats fo rm in the following manner. As currents slow down, the heavier

sand particles drop to the bottom of creeks and rivers to form sand flats,
leaving the lighter clay and silt sediments in suspension. When the cur-
rents become very slow the clay and silt settle out to form mud flats.
Permanent residents include worms, crustaceans, clam , and snails as well as
microscopic bacteria, diatoms, and blue-Igreen algae. Mud and sand flats teem
with life.

As the tide comes in and covers the flats, animals such as blue crabs and
various species of fish arrive to feed on the 1@irorms, clams, snails, and crus-
taceans, With the rhythmic change of the tide, the flats become eXDosed
once more, and a new group of predators arrives-creatures such as shore birds,
ducks, otters, and raccoons. People, too, are attracted to the flats for
fishing, digging clams, and birdwatching.

OYSTER REEFS (oyster bars, oyster beds)

Clusters of oysters, called reefs, bars, or oyster beds are found in many
sections of coastal rivers and creeks. Oyster reefs form over a period of
time as oyster larvae, carried by tidal currents, find and attach themselves
to a suitable base. The animals then become sessile or immobile and mature
into adults. As thousands of other oyster larvae continue to attach them-
selves to the base or to the sessile adults, the oyster reef increases in
height, width, and length. Other organisms such as algae, sponges, bryozoans,
barnacles, mussels, and worms live on the reef surfaces, and still other
animals find shelter@in crevices formed by the reef growth. In time an
entire balanced community of plants and animals evolves.

SHOALS

Shoals are mud or sandy areas that are separated from the shore. They lie
just beneath the surface of the water. Sometimes shoals are exposed at low
tide. These areas are particularly hazardous to navigation.

SOUNDS

Sounds are the shallow bodies of water located between the barrier islands
and the mainlan:d. Protected from the storms and rough waters of the ocean
by the barrier islands, the sounds are generally calm, highly productive
areas which host a wide variety of marine life.

TIDAL CREEKS

Tidal creeks are the natural "water pipes" of the salt marsh. At high tide,
water moves into the low marsh areas through the network of small tidal creeks.
At low tide, the water drains back through the creeks into the estuary or
sound. Tidal creeks carry important nutrients from the marshes into the
estuaries and are a vital link in the estuary food system.

WASHOVERS at
Washovers occur when storm surges, generated by wind and waves, are so gre
that the ocean breaks through the beach and dune area. The storm pushes
massive amounts of water over the beaches beyond the dunes, and sometimes
across the islands to the sound side. This process gradually pushes the
island closer to the mainland shore. Washovers help counter erosional forces
on the sound side by supplying new sand to this area.

Answer Key

'COMMON COASTAL FEATURES IN SOUTH CAROLINA

fI@@,
Salt Marsh
ee @c

Qr.,

is
It

Shoals

I Jill

Mud and Sand Flats Tidal
CreeL--S

Sound/Estuary

Sand
Barrier Island Du.nis*
ote

Spit

Inlet

Student Worksheet

COMMON COASTAL FEATURES IN SOUTH CAROLINA
ll@ @4t.%- tIL1@

4 U

UNIT 1: AT THE WATER'S EDGE
Lesson 3: OUR LOCAL COASTLINE (A SURVEY OF THE SOUTH CAROLINA COAST)
ADDITIONAL SOUTH CAROLINA MATERIALS
Slides of South Carolina coast (optional)
Worksheet, "South Carolina Shoreline Survey"

OVERVIEW

Students first draw a map of the South Carolina coast and locate several
important features on it. They then view a series of slides to acquaint
them visually with the coast. Finally, they complete a worksheet that
surveys their knowledge about the coastal area.

PROCEDURE

I. Ask students to take out a blank piece of paper and draw a map of the
South Carolina coast. Have them locate a few major cities, parks,
rivers, and famous cultural/historical sites.

This is a useful way for you to see what kind of "image" or "mental"
map of the coast your students have. Misconceptions about the shape of
the coast or the location of key places are common. This is a "for fun"
activity and probably should not be graded.

A possible follow-up to this activity is to make transparencies of a
couple of maps that greatly differ and show these to the class.

Finally, if students find this activity harder to do than they thought,
tell them to try it out on their parents. It usually is not that easy
for anybody!

2. If you have several slides of prominent, well-known areas of the South
Carolina coast, show these to the class. Slides'can also be obtained
from the South Carolina Coastal Council. Ask students to try to iden-
tify the location of each slide. Ask them to explain what evidence
they used to identify-the location. Encourage debate if students have
different answers. (If you do not have slides, you could use a number
of color or black and white photographs, mounted on cardboard or another
sturdy surface.

3. Show the slides again, asking students to describe what general features
are pictured in each slide. Ask for a short, one- or two-word description.

List the responses on the board.

When you have finished the slides, ask:

a. Does the list provide an adequate description of the coast?

b. Are there features not represented in the slides?

c. Which slides seemed to you to capture or summarize your feelings
about the South Carolina coast?

d. If you could add a picture, what would it,be?

5. Hand out the "South Carolina Shoreline Survey." Firs t, have students
compare their maps with the map on the first page of the worksheet.
Check major points of agreement and disagreement.

Then, ask students to fill out the survey. Remind them to read the
short note of explanation above the map. They should circle what
they think is the best answer for each question.

6. After they have finished, go over the correct answers using the de-
briefing information provided in the survey answer key.

7. A possible homework assignment is to have students report on South
Carolina's coastal region. They might do this from the perspective
of a first-time visitor or a travel agency trying to encourage
tourists to visit the South Carolina coast.

Student Worksheet

SOUTH CAROLINA SHORELINE SURVEY

On the following pages you are to give your opinion about several aspects
of the South Carolina shoreline. Remember that the coastal area consists of
eight counties which border the ocean, sounds, and major rivers emptying into
South Carolina's coastal waters. This area represents nearly 23 percent of the
area of the state (see map below). Be sure you consider this entire area as you
answer the questions.

0 Greenville

0 Florence

0 CoLumbia

Beach

. ... ..... .

....... ....

..........
arleston

.AA

:kauf ort

Student Worksheet
SOUTH CAROLINA SHORELINE SURVEY 4D
1. To what extent are these common coastal features found in South'Carolina?
(Circle the best answer.)

CORAL REEFS Seldom Sometimes Frequently
BARRIER ISLANDS Seldom Sometimes Frequently
SANDY BEACHES Seldom Sometimes Frequently
ROCKY BEACHES Seldom Sometimes Frequently
WAVE-CUT CLIFFS Seldom Sometimes Frequently
SALT MARSHES Seldom Sometimes Frequently
ESTUARIES Seldom Sometimes Frequently
SOUNDS Seldom Sometimes Frequently
GROINS AND SEAWALLS Seldom Sometimes Frequently
PORTS AND HARBORS Seldom Sometimes Frequently

2. To what extent do these conditions or features occur along the South Carolina
coast?

WATER POLLUTION Seldom Sometimes Frequently
POPULATION Seldom Sometimes Frequently
LARGE URBAN AREAS Seldom Sometimes Frequently
GOVERNMENT-OWNED LAND Seldom Sometimes Frequently
FOREST Seldom Sometimes Frequently
AGRICULTURAL LAND Seldom. Sometimes Frequently

DEVELOPED SHORELINE (AREAS WITH
HOMES, HOTELS,,HARBORS, ETC.) Seldom Sometimes Frequently

ADt;QUATE SEWAGE FACILITIES Seldom Sometimes Frequently
EROSION Seldom Sometimes Frequently

HURRICANES Seldom Sometimes Frequently

3. How important are these activities to the economy of South Carolina's
coastal area?

TOURISM Unimportant Somewhat Very
Important Important

MANUFACTURING Unimportant Somewhat Very
Important Important

PORTS AND HARBORS Unimportant Somewhat Very
Important Important

COMMERCIAL FISHING Unimportant Somewhat Very
Important Important

FORESTRY Unimportant Somewhat Very
Important Important

AGRICULTURE Unimportant Somewhat Very
Important Important

OFFSHORE OIL Unimportant Somewhat Very
Important Important

LAND-BASED OIL FACILITIES Unimportant Somewhat Very
Important Important

MINING Unimportant Somewhat Very
Important Important

DEFENSE FACILITIES Unimportant Somewhat Very
Important Important

Answer Key

SOUTH CAROLINA SHORELINE SURVEY

1. To what extent are these common coastal features found in South Carolina?

CORAL REEFS

The best answer is "seldom.". In fact, no coral reefs are found in South Caro-
lina coastal waters. Only Hawaii and Florida in the U.S. have coral reefs.

BARRIER ISLANDS

The best answer is "frequently." Much of the coastline of South Carolina is
formed by barrier islands. In fact, the Eastern coast of the U.S., south of
New Jersey, and the Gulf coast are noted for their barrier islands. South
Carolina has a total of forty barrier islands with some 200 miles of ocean
shoreline.

SANDY BEACHES

The best answer is "frequently." Sandy beaches dominate South Carolina's
Atlantic shoreline. This is not surprising, in that barrier islands almost
always have sandy beaches on the ocean side. 0

ROCKY BEACHES

The best answer is "seldom." No rocky beaches are found along the South
Carolina coast with the exception of a small outcrop of coquina at Myrtle
Beach's Hurl Rock Park where erosion has lowered the beach surface and
exposed the rock to view.

WAVE-CUT CLIFFS

The best answer is "seldom." Wave-cut cliffs are frequent in some areas of
the country, but are not associated with barrier islands, and consequently,
are not found in South Carolina. The coast is characterized by a low, gentle
slope.

SALT MARSHES

The best answer is "frequently." Between the barrier islands and the main-
land and along the edges of the saltwater creeks and rivers, salt marshes
are abundant. In fact, South Carolina has 334,501 acres of salt marsh.

ESTUARIES

The best answer-is'"frequently." A total of seventeen (17) estuarine systems,
including 504,445 acres of coastal ma'rshlands, are found within South Carolina's

coastal zone. This figure includes both fresh and saltwater marshes.

SOUND

The best answer is "sometimes" when comparing South Carolina to a state such
as North Carolina which has a total of 12 major sounds. South Carolina has
six major sounds (i.e., long inlets or arms of the sea).,.Calibogue Sound,
Port Royal Sound, St. Helena Sound, the North Edisto River, Charleston Harbor
and Winyah Bay.

GROINS AND SEAWALLS

The best answer is "frequently." The majority of South Carolina's developed
beaches, particularly those along the southern half of the coastline where
erosion is prevalent, have groins and/or seawalls.

PORTS AND HARBORS

The best answer is "sometimes." There are three ports in South Carolina's
coastal zone-Port Royal, Charleston, and Georgetown.

2. To what extent do these conditions or features occur along the South Carolina
coast?

WATER POLLUTION

The best answer is "sometimes." Pollution in South Carolina waters is due
to septic tanks, sewage systems, agricultural runoff, and industrial wastes.
Many of South Carolina's coastal creeks, rivers, inlets, and sounds are free
of pollution, and when compared with most other coastal zone states, South
Carolina waters, in general, are clean.

POPULATION

The best answer is "sometimes." About 20% of the state's population lives in
the eight coastal counties, and this coastal zone area is characterized by a
very uneven distribution of population. During the tourist season a dramatic
rise in population occurs in some areas, most especially in the Myrtle Beach
area.

LARGE URBAN AREAS

The best answer is "seldom." The Charleston metropolitan area is the only
area of significance with reference to size of population.

GOVE RNMENT- OWNED LAND

The best answer is "frequently." Approximately one-third of the State's
ocean-front shoreline is owned by the State and Federal governments and is
set aside as either wildlife refuges or parks. In addition to these areas
are lands on which state agency and federal government agency facilities are

located, for example, the Marine Resources Center, the Charleston and 111yrtle
Beach Air Force bases, the College of Charleston, the Marine Corps Recruiting
Depot on Parris Island, etc.

FOREST

The best answer is "frequently." Much of the State's coastal zone is forested
land. The eight coastal zone counties contain a total land area of some
4,392,960 acres. The 1978 U.S. Forest Service statistics show that of this
total land area, 2,961,876 acres are forested land.

AGRICULTURAL LAND

The best answer is "sometimes." A 1967 land-use survey identified 11.9
percent of the land in the coastal zone as cropland and 2.5 percent as pasture.
The coastal zone's most valuable crop is tobacco with vegetable crops a
close second. In 1975 the coastal zone's share of crops and livestock was
18.3 percent of the State to.tal.

DEVELOPED SHORELINE (AREAS WITH HOMES, HOTELS, HARBORS, ETC.)

The best answer is "sometimes." Much of the South Carolina shoreline is
undeveloped due in part to the pact that one third of the shoreline is
government owned.

ADEQUATE SEWAGE FACILITIES

The best answer is "sometimes." Sewage treatment facilities are not adequate
in some areas where population growth has been very rapid. In a number of
areas septic tanks or inadequate or malfunctioning sewage treatment facilities
have caused pollution in coastal rivers and creeks and have resulted in the
closing of shellfish grounds.

EROSION

The best answer is "frequently." Erosion is a very serious problem along
the South Carolina coast, particularly along the southern half of the coast
in areas such as Folly Beach and Hilton Head Island.

HURRICANES

The best answer-is "sometimes." The South Carolina coast has experienced a
number of hurricanes, some of them very severe, since the time of the first
European settlements.

3. How important are these activities to the economy of South Carolina's coastal
area?

TOURISM

The best answer is "very important." Tourism is the second.leading economic

activity in parts of the coastal area. For Myrtle Beach, tourism is the
leading activity.

MANUFACTURING

The best answer is "somewhat important." Most of the coastal zone's industry
is located in the Charleston and Georgetown areas; however, the majority of the
coastal area remains only slightly affected by the impact of industrial develop-
ment. The city of Beaufort is beginning to attract industrial development.

PORTS AND HARBORS

The best answer is "very important." Ports are crucial in that future growth
of economic activities depends on adequate harbor facilities. Charleston
Harbor, for example, is the nation's 12th leading port, and directly and
indirectly supports 35,000 jobs in the state.

COINt[ERCIAL FISHING

The best answer is "very important." The fishing industry has traditionally
been an important aspect of South Carolina's coastal economy. However,
recreational fishing brings in a higher state revenue than does commercial
fishing. The total economic impact of commercial and recreational fisheries
in the coastal region of South Carolina is conservatively estimated to be
$130,000,000 annually. Nearly $100,000,000 of this total comes from recre-
ational fishing. Th 'is includes all money spent on fishing gear, lodges and
restaurants, camping facilities, and other fishing-related expenses.

FORESTRY

The best answer is "very important." 19.2 percent of the state's forest
land is located in the coastal zone. In 1975 the delivered value of coastal
zone forest products was $52.1 million or 26.7 percent of the $195.1 million
value for the whole state.

AGRICULTURE

The best answer is "very important." Agriculture, e.g., tobacco, soy beans
and truck, is the leading economic activity in the majority of the eight
coastal counties.

OFFSHORE OIL

The best answer is "unimportant." As of 1979, oil companies had not dis-
covered oil off the South Carolina coast. Offshore discoveries in other
locations along the East coast are having little impact on South Carolina.

LAND-BASED OIL FACILITIES

The best answer is "unimportant." No petroleum refineries presently exist in
South Carolina. However, this may change in the future with oil and natural

gas'companies looking to South Carolina for potential sites. A 30,000 barrel
per day oil refinery is proposed for the Georgetown area.

MINING

The best answer is "somewhat." Minerals which are found in South Carolinals
coastal zone include sand, gravel, shell, salt, and phosphates. Small mining
operations for the retrieval of sand and gravel exist in areas throughout
the coastal zone.

DEFENSE FACILITIES

The best answer is "very important." The military makes a large contribution
to the local economy.

UNIT 1: AT THE WATER'S EDGE
Lesson 9: COASTAL NEWS REPORT 1 (SOUTH CAROLINA COASTAL NEWS)

ADDITIONAL SOUTH CAROLINA MATERIALS
Teacher notes only.

OVERVIEW

Students are presented with a source for updated news reports on coastal
issues.

PROCEDURE

1. To assist students in preparing for their Coastal News Report, give
them the following address for updated newspaper clippings on coastal
problems and issues:

Louis Hern
Information Specialist
suite 802, Summerall Center
19 Hagood Avenue
Charleston, sc 29403
(803) 792-5808

UNIT II: UNDERSTANDING COASTAL ECOLOGY
Lesson 1: COASTAL ECOSYSTEMS (THE SANTEE-COOPER CANALS)

ADDITIONAL SOUTH CAROLINA MATERIALS
Reading, "Rollin' Down To The Sea: The Cooper River Rediversion Project"

OVERVIEW
Students read a description of the Cooper River Rediversion Project which
demonstrates how one change in the environment can bring about many others.
Some discussion questions ate suggested.

PROCEDURE

1. After the class has completed Lesson 1, "Coastal Ecosystems," assign the
reading, "Rollin' Down To The Sea: The Cooper River Rediversion Project."
Explain that many of the main ideas discussed in the "Coastal Ecosystems"
lesson are used in this reading. In particular, problems of salinity
and sedimentation play a big role.

2. Ask the class what they know about the Cooper River Rediversion Project
Except for question "a," don't push for correct answers at this point.
Answers to these questions will be found in the reading.

a. Does anybody know what diversion means? What rediversion means?

(Diversion means to turn aside, or to turn in another direction.
Rediversion means to turn aside for the second time.)

b. Why is the Cooper River being rediverted?

c. Where will the water from the Cooper River go?

d. Does anybody know what some of the consequences of the Rediversion
Project might be?

e. What might some of the consequences be, based on what you learned in
the Coastal Ecosystems lesson?

List the answers to-the last two questions on the board. Tell students
to look for confirmation of their predictions in the reading, and to make
note of any other impacts they have not listed.

3. After students have completed the reading, ask:

a. WhX was the original diversion 2roject undertaken?

(To provide additional electricity for the Santee-Cooper area.)

b. What were some of the important consequences of that original project?

(An increase in the sedimentation of Charleston Harbor; a change in
the salinity of both Charleston Harbor and the Santee River Delta;
a change in the marsh ecosystems of both rivers; the ability to
use Bushy Park Reservoir as a freshwater source; the creation of
productive clamming and shrimp areas in the Santee and Cooper Rivers;
and the growth of a multi-million dollar tourist and recreation
industry in the Lake Marion-Moultrie area.)

c. Whv is a new canal being built?

(To reduce the amount of silt and sediment in the Harbor so that
expensive dredging practices can be cut back.)

d. What are some of the possible impacts of the new project?

(Saltwater intrusion into Bushy Park Reservoir; a change in the
salinity of both Charleston-Rarbor and the Santee River Delta; a
change in the marsh ecology of both rivers; a loss of shrimp and
clam sites; flooding along the Santee River Valley; a reduction
in the striped bass population in the Lake Marion-Moultrie area
and the resulting loss of tourism business.)

ROLLIN'DOWN TO THE SEA:
THE COOPER RIVER REDIVERSION PROJECT

Changing nature is like triggering The story begins in 1942 when
a chain reaction. One of the important the Santee-Cooper Diversion Project
lessons the study of ecology teaches was completed. This project diverted
is that all things in nature are con- much of the water from the Santee
nected in some way. Changes in one River to the Cooper. This was done
place will cause a reaction somewhere to increase the flow of water in the
else. Nearly 40 years ago in South Cooper for the purpose of generating
Carolina, people pulled the trigger more electricity for the Santee-Cooper
that started one of nature's chain area. To accomplish this coal, two
reactions. The impacts and conse- large lakes, Lake Marion and Lake
quences of decisions made then still Moultrie were created, as well as the
affect us today, and will continue seven-mi-le diversion canal. A hydro-
for years to come. electric plant was built at Pinopolis
Dam just below Lake Moultrie and
This story involves the Cooper began to generate significant amounts
and the Santee Rivers and connects of electricity for the area.
three areas of the low country:
Charleston Harbor; the Santee River The Santee-Cooper Diversion pro-
Delta, about 40 miles north of ject was considered a success. How-
Charleston; and the Lake Marion-Lake ever, in the years following 1942,
low country residents began to notice
Moultrie region, some 50 miles inland. other impacts of this project besides
the additional electricity. Naturels
chain reaction was at work.

Santpe Stat

. . . . . . . . . . .
*. . . . . . . . . . .
Geo_,et@
Diversion Canal

L toe

4oncks Corner

3: M.
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Bushy Park Reservoir
:�RIM

-:.. Migil:

.5.
The Santee-Cooper Rediversion ... r
C14ARLESTON pa an",
u. -NN
Project will affect both inland and N
coastal areas.

T
24

CHANGES ALONG THE SANTEE striped bass. Small marinas were built
at several locations for fishing boats
The Santee, which originally and other pleasure craft. The result
carried a tremendous volume of of these programs has helped create
water to the sea, had long been a multi-million dollar recreation in-
accumulating silt and sediment at dustry in the Lake Marion-Moultrie
its mouth. The result was the region. Sports fishing provides the
Santee River Delta, one of the major source of income and the striped
largest delta regions on the East bass is prized as a major game fish.
Coast. The flow of freshwater
also held back the influence of the
tides, and salt water did not intrude .............
very far up the Santee. Consequently, ..... .. j:!: ::i::*
a large complex of freshwater marshes
had evolved in the Delta region.

The diversion project changed
the entire ecology of the river.
The Santee now carried less water
....................
and fewer sediments. The delta .......... .......
. . ........
..........
stopped growing and began to erode. j:j:.
The tides could now extend their
.. .. ......
reach far up the Santee. Salt water
began killing the fresh water plants
. .. .......
.. ......
. ............... .
and animals. Salt marshes slowly .. .. ....
replaced many of the freshwater The striped bass, one of the state's
marshes. most prized gamefish, could find its
home threatened in Lake Marion
While freshwater life suffered and Lake Moultrie.
as the result of these changes in
the salinity of the Delta region,
saltwater inhabitants flourished
in the new environment. Clams, in CHANGES ALONG THE COOPER AND IN
particular, moved into the area and CHARLESTON HARBOR
fishermen soon followed. During
the past 30 years or so, a sizeable Before the diversion project, the
clam harvest has yielded up to Cooper, which empties into Charleston
$300,000 a year. Harbor, was a relatively small river.
Tidal influence in the harbor was sig-
CHANGES IN THE LAKE MARION-LAKE nificant since the tides did not meet
.MOULTRIE AREA much resistance froni the river. Salt
water and brackish marshes were common
Thousands of acres of agricul- along the Cooper.
tural.and timber land were cleared
and flooded for the new lakes, eli- After 1942, however, much of this
minating large areas from their changed. Millions of gallons of ad-
former use. Some wildlife habitats ditional freshwater entered the harbor
were also destroyed. But several areas each day. The upper reaches of the
near the two lakes.w,:@rt_- designated Cooper changed drastically as the
as wildlife preserves, and the lakes salinity dropped. The salt marshes
were stocked with fish, including the there disappeared and were replaced

by fresh and brackish water plants east, and the 12th largest in the count
and animals, just the opposite of It is of vital importance to South
what was happening in the Santee River Carolina. Over 1,500 businesses in
Delta. the state depend upon the harbor for
importing and exporting goods. The
The range of salt water decreased harbor channels must remain open for
to the point that a new freshwater shipping.
reservoir was built just a few miles
up the Cooper from Charleston. This In a few years, the U.S. Army
could not have happened under the old Corps of Engineers, which is res-
conditions when the Cooper was a much ponsible for harbor dredging in the
smaller river. Bushy Park Reservoir United States, may be faced with an
now provides the city of Charleston extremely difficult problem. The
with drinking water and is the site Corps will eventually run out of
of five major industries, including diked wetlands on which to put the
DuPont and a South Carolina Electric dredged spoil. Since passage of the
and Gas Company plant. Each industry State's Coastal Zone Management Act
uses water from the reservoir for in 1977, it is no longer permissible
essential production operations, such to fill wetlands, and the expense of
as cooling and machine maintenance. acquiring highland fill sites is very
great. Another alternative, dumping
But of all the changes, both the spoil into the ocean, is a pos-
good and bad, created by the 1942 sibility, but will require additional
diversion project, none was more study to determine its potential im-
significant than the problem of sedi- pact on marine life.
ment in Charleston Harbor. For the
Cooper not only received water from A NEW CANAL
the Santee, but also thousands of tons
of sand, silt, and mud. In the mid-1970's, the Corps began
construction on a new project that it
All this material, which prior to claimed would solve the sedimentation
1942 went down the Santee, now found problem in Charleston Harbor. A new
its way into Charleston Harbor where canal from Lake Moultrie to the Santee
it settled to the bottom and clogged River would be built to redivert the
shipping channels. Dredging of the water from the Cooper River back to
harbor, needed occasionally before the Santee. The sediments, or most
1942, now became a year-round job. of them, would once again flow down
Dredges worked Charleston Harbor nearly the Santee to the Delta reyion. Since
continously, piling up the dredged this change would also reduce the
spoil on diked disposal sites around amount of electricity generated at
the harbor. Each year enough material the Pinopolis Power Station, the Corps
is removed from the harbor (material, agreed to build a second plant along
remember, that shouldbe resting in the new canal. The entire project
the Santee Delta) to fill a football is scheduled for completion in 1984.
field one mile high!
While the project is likely to
Removing this material would not solve the sedimentation problem in
be so critical if it were anywhere Charleston Harbor, people are wondering
else but in the middle of one of what kinds of impacts this major new
the nation's leadi-@7 hazbors. Charles- change will have on the environment.
ton is the largest port in the South- Diverting the flow of the river 40

years ago brought many unforseen con-
sequences, both harmful and beneficial.
Where will nature's chain reaction
lead this time?

X
LIKELY IMPACTS ALONG THE COOPER RIVER N
The major changes occurring in the
Cooper will result from the decreased
flow of the river. Salt water will,
once again extend its range far up-
stream, and may reach as far as Bushy
Park Reservoir. That could make the
water unsafe for industrial use and
undrinkable for people. Even small
quantities of salt in the reservoir
could damage sensitive industrial
machinery. The plants would have to
shut down or spend millions of dollars
on new equipment. In the case of the
South Carolina Electric and Gas Com-
pany power plant, new equipment Shrimp boats may not be such a
would cost three to four million
dollars and the costs would be familiar sight in Charleston Harbor
passed on to consumers. after the new canal is built.

During a three-week period in
1979 when the Cooper was naturally
running at a very low level, salt Salinity is also expected to
water did reach Bushy Park Reservoir, increase along the Wando River which
although not in sufficient quantities could pose a serious threat to valuable
to cause problems. Industry officials oyster beds. Oyster predators that
were quite worried, however, and have survive only in higher concentrations
asked the Corps for guarantees that of salt water will likely enter the
salt water will not enter the reser- river and dama'ge oyster beds in Beres-
voir after the canal is built. The ford Creek and the lower Wando.
Corps said it will do this by regu-
lating the flow of water at Pinopolis LIKELY IMPACTS ALONG THE SANTEE
Dam.

The increased flow of water down
Other serious problems along the the Santee will mean that the Delta
Cooper involve changes in Charleston region will return to more of a fresh-
Harbor. The harbor is now one of water environment. This means trouble
the most productive South Carolina for the clam industry that has developed
Estuaries for white shrimp. The in the past 40 years. The increased
changes in salinity caused by the freshwater flow will also damage
new canal would probably reduce this oyster seed beds in the Santee.
population considerably. How much
effect this will have on the one Upstream, the "new" Santee will
million dollars a year shrimp catch be more likely to flood, spreading
near the harbor is unknown. out over a wider area than it has since

UNIT 11: UNDERSTANDING COASTAL ECOLOGY
Lesson 6: WETLANDS AND MARSHES: PROBLEM OR RESOURCE? (THE
VALUABLE MARSHES OF THE LOW COUNTRY)
ADDITIONAL SOUTH CAROLINA MATERIALS
Student Reading, "The Valuable Marshes of the Low Country"

OVERVIEW
After students have discussed the status of wetlands and marshes across the
nation, they then read an account of marshes in South Carolina. Review
questions and some suggestions for further activities are also provided.

PROCEDURE
1. The reading,"The Valuable Marshes of the Low Country," should be assigned
after students have read "Wetlands Face Murky Future" in the student
book.

2. After you have discussed the "Wetlands" reading (usin- the questions
suggested on pages 98-99 in the Teachers Guide) ask the students:

a. Are the marshes and wetlands in South Carolina protected?

b. Have marshes and wetlands in this state been filled in for development?
Do you know of any specifi c example ?

Don't provide the answers at this time, but encourage discussion. Then
explain that the answers will be found in the reading, "The Valuable
Marshes of the Low Country." Assign the reading as an in-class or home-
work activity. The follow-up questions listed in procedure #3 below can
be assigned as written work or can be used for in-class discussion.

3. After students have completed the reading, use the following questions
for review:

a. According to this reading, why have the marshes of the low_S211n@t
been filled?

(For residential, agricultural, industrial, and tourism developments)

b. Which groups*have been hurt the most by the continued filling and
development of wetland areas?

(Commercial and recreational fishermen, and many species of wildlife)

c. What is meant by the statement, "The marsh is a nurseKy of?

(Marshes provide both food and shelter for many species of fish and
shellfish, especially in their larval stages.)

UNIT 11: UNDERSTANDING COASTAL ECOL OGY
Lesson 3: POLLUTION: WHAT IS IT? (SAVANNAH RIVER UPDATE)
ADDITIONAL SOUTH CAROLINA MATERIALS
Teacher notes only.

OVERVIEW

Students are presented with recent information on the conditions of the
Savannah River.

PROCEDURES

1. The followin- information replaces the paragraph included in step
0
#5 of the "Pollution: What is It?" lesson:

In 1965 and again in 1969, federal and state authorities imposed dead-
lines for serious pollution abatement by each of the 'Big Three' pollu-
ters. By 1971, none of the three had as yet met the deadlines and were
technically in violation of the law, though none was prosecuted or fined.
Since then, the situation has improved. Many pollution abatement pro-
jects have been completed-the City of Savannah now has a waste treat-
ment plant for domestic sewage; American Cyanamid is neutralizing its
acid wastes; the Union Camp mill has constructed a large oxidation pond
which reduces the oxygen demand of its effluent; and, smaller industries
have begun complying with environmental protection laws.

2. More detailed information on the Savannah River can be obtained by
writing or calling:

J. Leonard Ledbetter, Director
Environmental Protection Division
Dept. of Natural Resources
Atlanta, Georgia
(404) 656-4713

Harold Reheis, Water Quality Control Section
Environmental Protection Divison
Dept. of Natural Resources
Atlanta, Georgia
(404) 656-4708

1942. Many homes and buildings con-
structed since that time will now be
in a flood zone. Agricultural lands
and wildlife habitats may also be
threatened.

LIKELY IMPACTS ON THE LAKE MARION-
MOULTRIE AREA

At first look, this area would
not appear to be affected by the new
canal. But scientists fear that the
reduced flow in the Cooper will in-
directly affect the striped bass
population. The small fish the bass
feed on--the blueback herring--presently
enter Lake Moultrie and then Lake Marion
from the Cooper River. The fish
naturally swim upstream in rivers
against strong currents; when the
current is reduced in the Cooper, the
herring may stop coming. That could
affect the striped bass, which in turn
could have a devastating impact on the
recreation and tourism industry.

THE NEXT 40 YEARS?

Forty years ago the first diver-
sion canal was completed, bringing
additional electricity to the Santee-
Cooper area. However, it brought more
than just electricity. It changed
the ecology of the Santee and Cooper
Rivers and triggered a number of far-
reaching consequences. One of these
consequences--the sedimentation in
Charleston Harbor--was so serious that
-.,o%.; a new canal is being built. Will
the next 40 years require yet a third
canal?

What will happen as the result
of this major new ecological change
is difiicult to predict, but it is
safe to say that a number of impor-
tant changes will occur. We may be
able to predict and control some of
them, but if we have learned any-
thing from the first canal project,
it is that there will be some sur-
prises waiting.

d. Why is the marsh grass so valuable?

(When the grass dies, it is decomposed by bacteria. The resulting
nutrients help create a "rich soup" called de'tritus which serves
as the base of the marsh food chain. While still alive, the marsh
grass provides shelter for many different species.)

e. Identifv four ways that marsh areas have value in their natural state.

(Marshes act as a nursery, providing food and shelter for marine
life, as well as birds and land mammals; marshes serve as a buffer
between the ocean and upland areas, absorbing the energy of the
tides; marshes act as a filter, removing harmful pollutants from the
water; marshes have value as a scenic, peaceful place for bird-
watching and fishing.)

f. If all the marshes in South Carolina were destroyed, what kinds of
problems would likely occur?

(The amount of fish and shellfish would drastically decline; com-
mercial and recreational fishermen--and all the businesses that
depend upon them--would lose millions of dollars each year; increased
flooding and erosion would result; pollution would be a more serious
problem, since the marsh's function as a filter would be lost;
students may think of other reasonable outcomes.)

g. Why couldn't Charleston be built today?

(Much of Charleston is built on marsh. New laws recently passed by
the state legislature, and administered by the South Carolina Coastal
Council, prohibit marshland from being filled.

Return to procedure # 4 in the Teachers Guide on page 99. For an
extra assignment, have students prepare a report on one of the activities
suggested there. The significant amounts of filling that have occurred
in the low country should make this information easy to find.

In addition, have students investigate the other side of this issue.
Invite a local developer to speak to the class about the impacts of the
new state laws on his or her business. Ask local business leaders if
they believe the new restrictions are good or bad for the economy of
your area.

The debate over the worth of the In the 20th century, coastal South
nation's wetlands has affected many Carolina has experienced a significant
states, but none so significantly as growth in population, and acres of marsh
South Carolina. Containing over one- have been consumed for housing, recreation,,,
half million acres, stretching from and industry. All these develop-
the Little River in the north to the ments, however, began to concern
Savannah River in the south, South those groups who could only benefit from
Carolina's marshlands make up a sig- the wetlands if they remained un-
nificant part of the coastal region. disturbed. Commercial fishermen began
What happens to these wetlands will to notice a decline in their harvest.
play an important role in the future The favorite fishing spots of many
of the low country. recreational anglers gradually dis-
appeared. Conservationists warned
Historically, much of the coastal that the filling of marshes threatened
economy has depended upon the coastal many species of wildlife. Scientific
rivers and wetlands. Fishermen have studies in South Carolina and other
worked the creeks, mudflats and the states showed that the marsh was a
edges of the marsh for centuries, har- valuable natural resource and its
vesting shrimp, clams, oysters, and continued destruction would cause
crabs. For others, the marsh had to many serious problems.
be drastically altered before it be-
came valuable. In Charleston, for
example, much of the downtown, historic
section, including some of the prominent
landmarks, were once natural marsh areas.

Further inland, freshwater marshes,
influenced by the tidal flow, played
an important part in agricultural
activities. In times past, these wet-
lands (as well as cyprus swamps) along
the rivers were cleared, enclosed with
earthern banks, called dikes, and planted
with rice. Openings in the dikes (i.e.
trunks with manually controlled flood- Development in the Charleston area
gates) allowed freshwater from the and other population centers has
river to enter and flood the crop. reduced marsh acreage.
Flooding the rice greatly promoted its
growth and killed the weeds and grass
which formerly had to be cleared by
hoeing. Rice quickly became the dominant During the 1960's and 1970's,
crop in South Carolina and reached its conservation groups and a number of
peak just prior to the Civil War. politicians in South Carolina pushed
Without the use of freshwater wetlands, hard for new laws that would protect
rice would not have become so successful. the marshes of the low country. After

nearly a ten-year battle in the state valuable, yet highly fragile environ-
legislature, a coastal zone management ment. Beginning with the ocean beaches,
bill was approved and the resulting moving inland through the calm waters
South Carolina Coastal Council began of the estuaries, and reaching up the
to strictly control the filling of many rivers and creeks, the coastal
marsh. The tough new regulations environment of the low country is a
do not allow developers to fill marsh delicately balanced system that provides
for any projects. If these same many benefits to the Palmetto state.
restrictions had been in force the By tampering with one part of this syster-a-
past 300 years, much of Charleston -the marshes--people were running the
and other areas could never have risk of forever changing and possibly
been built! destroying the ecology of the coast.

Why were such tough new regulations
passed? For centuries, people had
been allowed to build in the marsh.
What was so important about South
Carolina's marshes now?

To answer this question, it
is important to understand that the
marshes are a crucial part of a very

CHARLESTON

a"Uf ?00M@Wetlands
--Coastal Zone Boundary

"i Ito 40413
,livid

In 1977, the South Carolina
Coastal Council became the
state's chief agency for the
control of development in
the wetland areas.

The marshes make three important adult clams, mussels, oysters, crabs,
contributions to the coastal environ- shrimp,and certain fish. All these 0
ment. First, the marshes are a "nur- creatures serve in turn as food for
sery,'.' providing food and shelter for other fish as.well as countless shore-
most species of marine life found in birds, such as gulls, terns, egrets,
South Carolina. The abundant smooth skimmers,and oystercatchers. Frequently,
cordgrass of the marsh (Spartina alter- the food chain ends on our dinner table..
niflora) sits at the base of the food Like all the animals of the marsh eco-
chain. Surprisingly, it is more system, we too are dependent upon the
valuable dead than alive! Each fall marsh grass for a part of our food
the grass dies and is decomposed by supply.
bacteria. This mixture of dead grass
and bacteria is called detritus The smooth cordgrass is not only
(de-tri'tus), and has been referred a food source, but also a shelter. Its
to as a "rich soup" because it serves long roots make a perfect home for many
as a major source of food for many of species, including shrimp, the state's
the higher organisms in the salt marsh most valuable catch. Without the shel-
ecosystem. ter provided by the maze of the root
system, the larval stages of shrimp,
crabs, oysters, clams,and other fish
and shellfish would not be able to sur-
vive long enough to reach adulthood.

Many mammals also find shelter and
food in the salt marsh and estuaries.
The familiar raccoon satisfies its
appetite at the marsh's edge. The
bottlenose dolphin, a marine mammal
commonly referred to as the por-
poise by South Carolina residents,
enters the estuaries and salt water
rivers to feed on fish which are
thought to be the dolphin's main
source of food. Several species
of birds feed and nest in the marsh;
seaturtles, diamondback terrapins,
and even alligators are found in this
complex ecosystem.

A second important function of
the marsh occurs when it absorbs the
ocean's tides, thus preventing floods
and erosion. The continuous energy
Spartina altemiffora, the marsh of the ocean is partly absorbed by
cordgrass that is "wanted-dead the beaches which take the full im-
or alive. pact of the waves. But it is marsh
that absorbs the energy of the tides,
sending the water through the maze
of tidal creeks until nearly all the
Detritus provides nourishment not marsh is flooded. Hours later the
only for the larval stages but for tides move back out through these

same creeks. The upland areas are
thus spared the battle with this
daily phenomenon.

A third service performed by the
salt marsh is that of a filter.
Pesticides and other pollutants from
farms, timber areas,and industry
often enter stream and rivers and
then flow toward the ocean. But, as
they pass through the marsh, the
harmful pollutants are broken down
into forms less dangerous to the
environment. Thus, the marsh serves
as a natural "sewage treatment plant"
for the coastal ecosystem.

In addition to these three im-
portant functions, many people add
a fourth: the marsh's scenic, natural
beauty. Although not as spectacular
as the ocean, low country residents
and visitors alike have often sought
this quiet, peaceful atmosphere,
listening to the soft wind-swept
rustle of the cordgrass or watching
shore birds searching for a meal.

As more and more was learned about
the marsh and its importance to the low
country, the more citizens from all
across the state worked to save it. Al-
though some people were against the pro-
posed restrictions on filling marsh,
the weight of public opinion and the
threat of what the coast might be like
if nothing was done, finally led to
-@@-e establishment of the new law.
;;here once the marsh was valued only
as a place to "fill in," today the wet-
lands of the low country are recognized
as an important natural resource for
the state of South Carolina.

UNIT II: UNDERSTANDING COASTAL ECOLOGY
Lesson 8: TSUNAMIS AND HILO, HAWAII (SHIFTING SANDS BEACH)

ADDITIONAL SOUTH CAROLINA MATERIALS
Reading, "Shifting Sands Beach"
Worksheet, "Five Erosion Control Options" and "Option Rating Card"
Reading, Six Position Statements ("County Officials," State Officials,
"Local Property Owners," "Fishing. Groups," "Tourism Groups,if
"Environmental Representatives")

OVERVIEW
Students read an account of a "composite" South Carolina barrier island
community that.is experiencing serious erosion problems. Students role-
Play m4@mbers of various groups and evaluate five erosion options based on
their group's point of view.

PROCEDURE
1. The materials on erosion control in Shifting Sands Beach may replace
or follow the Hilo Tsunami study. The format of the South Carolina
studv is very similar to the Hilo lesson. (If you are not going to
use the Hilo story, you might summarize the Hilo disasters for the
class as a way of introducing the general topic of how communities deal
with natural hazards.)

2. Explain to the class that issues similar to those faced by Hilo resi-
dents also occur in South Carolina. The following story about erosion
control is fictional, but is based on several true incidents.

3. Pass out the reading on "Shifting Sands Beach." After students have
finished reading, explain that they will now serve as representatives
of various interest groups at the public hearing.

4. Announce that five different options for controlling erosion in Shifting
Sands Beach will be considered. Hand out the worksheet on the five
erosion control options (including the "Option Rating Card").

Review each of the five options with the class. As you finish each
option answer any questions.

5. After you complete this summary, divide the class into six equal groups.
Announce that each group will represent different interests that have
conflicting positions on erosion control.

Hand out a position statement to each group. Give each group a few
0
minutes to read and discuss their statements. Make sure they generally
understand what their position is regarding the kind of erosion control

they favor.

6. Ask each group to make a tentative decision about the option(s) they
favor. Plans may be combined; that is, a group could favor Option #1
and Option #5.

The groups should fill in their "Option Rating Card" as they evaluate
each option. (These can be collected for evaluation purposes if you
wish.)

7. After Iach i'zroup, makes a tentative decision, ask one person from a
group to briefly summarize their position. Each spokesperson
should explain which'options the group thinks are best, and why the
group made this decision. Keep a record of their choices on the board.

8. Explain that while many different points of view have been expressed,
the groups must decide on one plan. Each group will have one vote.
Encourage class debate and discussion. Compromise may be necessary.
Call for a final vote when the discussion ends.
9. At the conclusion of the final vote inform students ;hat in reality, the
South Carolina Coastal Council is the state agency responsible for
making erosion control decisions. When an area, such as Hilton Head
Island or Edisto Beach wishes to take some action concerning erosion,
the Coastal Council sends staff members to investigate the situation
and evaluate alternative plans. Public hearings are a regular part
of the decision-making process.

10. Compare the class decision on Shifting Sands Beach with what the Coastal
Council actually decided in places like Folly Beach, Edisto Beach, and
Hilton Head Island.

Folly Beach
While many residents place the blame for erosion at Folly on the Charleston
jetties, erosion is known to have plagued Folly Beach for at least 100 years.
The houses presently on the front row, due to the continuous loss of sand, were,
only several decades ago, situated on the third row back from the ocean. The
constant eroding of.the beach has resulted in the construction of many unsightly
groins, seawalls, and revetments.

After months of searching for the most feasible erosion control methods for
Folly, including input from nationally known experts and close coordination with
S. C. Coastal Council staff, Folly Beach officials applied for and were granted
(May 1980) two permits from the Coastal Council-one for repair of existing groins
and'one for construction of dunes at public access ways. Sand fences are to be
placed on the dunes and appropriate grasses are to be planted to help with stabili-
zation. Walkovers will be built to protect the dunes and provide public access
to the beach.

Following approval of the two applications, the Council voted to approve
$320,000 of state erosion control bond monies to support the two erosion control
projects. The Town of Folly Beach is considering applying for a general permit
which will enable private individuals to build dunes in front of their property.
The expense of this work will be borne by the individual property owners.

Hilton Head Island
Parts of Hilton Head Island, particularly the Forest Beach Subdivision, are
experiencing a serious erosion problem. In June 1979 the S. C. Coastal Council
granted to the Broad Creek Public Service District a permit to close the mouth
of the Folly Creek on Hilton Head in an attempt to alleviate part of the erosion
problem. It was believed by some experts that the deposition of sand at the
mouth of Folly Creek was inhibiting the littoral currents and preventing migration
of sand to areas south of the creek. The permit was granted with very strict
provisions, two of them being that should any environmental damage occur from
the closing of the Folly or should the project fail to alleviate erosion, the
earthen structure across the mouth of the creek must be removed.

Edisto Beach
The Town of Edisto Beach is experiencing a rather severe erosion problem,
although it is less critical in most instances than that of Folly Beach. A
series of groins was built in the past by the S. C. Dept. of Highways and Public
Transportation. Three of the groins on the south end of the island, while
helping areas immediately to their north, caused severe problems for areas
immediately to their south. After study of the situation by S. C. Coastal Council
staff, the decision was made by the Council to try an innovative approach to the
problem. Rather than removing the groins, the Council had the structures modi-
fied in the following manner-the groins were lowered and the seaward ends were
curved in towards the shoreline. These modifications allowed for sufficient
accretion of sand to the north of the groins while enabling the washing over of
sand to the areas south of the groins, areas which previously had been starved
of sand renourishment. This experiment, while not solving the entire problem,
has proved to be a successful method of dealing with erosion at Edisto Beach.

SHIFTING SANDS BEACH*

Shifting Sands Beach on the coast The beach is a favorite recreation
of South Carolina is a thriving barrier site; historical and maritime attrac-
island community. Vacation cottages, tions also attract thousands of tourists
summer homes,and small businesses line to Shifting Sands Beach each summer.
the ocean. Forty years ago there were Ocean-front rentals can range up to
only three cottages along the entire $600 a week. The state is widening
three-mile beach. Today, a year-round the main highway through town and plans
population of 3,000 and a summer week- to improve bridges in the area to better
end population of almost 30,000 occupy handle the tourist traffic.
Shiftina Sands Beach.
As a result of these improvements,
new businesses have opened, more are
planned, and many new homes are under
construction. All looks prosperous
for this community. However, there
is one major problem. As the residents
of Shifting Sands Beach have discovered,
the town lives up to its name.
SOUND
<Z <Z Much of the three-mile beach ex-
periences heavy shoreline erosion.
Each year as the seasons change, the
beach responds, losing sand in the fall
SHMING and winter and gaining sand in the
SANDS SEA04
spring and summer. But the overall
pattern reveals a loss of sand. Old
:.lilt maps and photographs of the ocean
shoreline indicate the beach has eroded
at an average of three to four feet per
ATLANTIC OCEAN year. The records also show that West
Inlet was once very active, opening
and closing twice since 1900. Further,
The map shows the community the inlet has migrated one-half mile
of Shifting Sands Beach, to the east. In 1968, the Army Corps
West Inlet, and the of Engineers stabilized the inlet
jetty built to stabilize by building a jetty. Since then the
West Inlet. inlet has been stationary, and fisher-
men have had easy access to the ocean.
Some residents of Shifting Sands Beach

Although Shifting Sands Beach is a fictional location, this story is based on
a collection of actual cases. Areas such as Folly Beach, Edisto Beachand Hilton
Head Island have experienced, or are currently experiencing similar problems.

SHIFTING SANDS BEACH*

Much of the three-mile beach ex-
periences heavy shoreline erosion.
Each year as the seasons change, the
beach responds
losing sand in the fall
SHIFTING and winter and gaining sand in the
SANOS BEACH
spring and sum er. But the overall
pattern reveals a loss of sand. Old
maps and photographs of the ocean
shoreline indicate the beach has eroded
at an average of three to four feet per
ATLANTIC OCEAN year. The records also show that West
Inlet was once very active, opening
and closing twice since 1900. Further,
The map shows the community the inlet has migrated one-half mile
of Shifting Sands Beach, to the east. In 1968, the.Army Corps
West Inlet, and the of Engineers stabilized the inlet
jetty built to stabilize by building a jetty. Since then the
West Inlet. inlet has been stationary, and fisher-
men have had easy access to the ocean.
Some residents of Shifting Sands Beach

believe the building of the jetty,has City officials from Shifting Sands
robbed the town's beaches of sand and Beach have made two appeals to the General
increased erosion. Assembly for financial help to stop shore-
line erosion. The South Carolina Coastal
Providing for the increasing Council has agreed to hold a public hearing-
population of Shifting Sands Beach to gather input from various interest
has worsened the erosion problem. By groups as to their opinions concerning the
building in areas already prone to problem. Representatives from coastal
erosion, homeowners have placed them- counties, state government, environmental
selves in the direct "line of fire," groups, the fishing industry, the tourist
and thus created a need for erosion industry, the ocean-front land owners will
protection. In addition, many builders make statements at the public hearing.
have bulldozed sand dunes to make room
for houses. Since the dune line pro-
vided considerable protection against
erosion, the removal of the natural
barrier has increased the potential
for erosion damage.

In 1973, a groin system, financed
largely with state funds, was built
along a short section of the beach.
This project helped slow the rate of
erosion, but the groins soon washed
away. Several homeowners then installed
small seawalls and bulkheads (at their
own expense), but these have been no
more successful than the groins.

During the past two years, heavy
winter storms lashed the coast, and
erosion rates increased. The high
tide line moved landward at a rate of
several feet per week, creating serioqs
problems for many property owners.
Last fall, two residents were forced
to move their cottages far back from
the shoreline to save them from the
fast-advancing ocean. In a recent,
frantic last-minute effort, another
home was saved when the National Guard
hurriedly erected a temporary sandbag
seawall. At present, 12 to 15 homes
-and a small section of the state high-
way are seriously threatened. Town
officials predict several other homes
and businesses, plus public recreation
areas may be destroyed within two years
if present erosion rates continue. New
storms could easily accelerate the
process.

Student Worksheet

OPTION #1 GROINS

7
7.

SOUND

SHIFTING.
SANOS SEACH

......................
Groins
G oins -

ATLANTIC OCEAN-

OPTION: Several groins will be built along Shifting Sands Beach. These
walls, built perpendicular to the shoreline will trap sand and
prevent the longshore current from carrying sand away.

COST: Fairly low cost ($50-100,000) if a sandbag groin system is used;
cost will be split 50-50 between state and local government.

SOME ADVANTAGES: SOME DISADVANTAGES:

1. Will likely provide five to 1. Groins will likely shut off the
fifteen years of protection. flow of sand to adjacent areas,
2. Would protect public recrea- causing erosion problems there.
tion areas. 2. Will likely change the shape of
the shoreline on both sides of
the groin system.
3. Must be maintained on a reaular
basis.
4. Aesthetically unpleasing.
41

Student Worksheet

OPTION #2 SEAWALLS

SOUND

SHIFTING
A SAN
DS BEACH

T lest
et

------ Seawa 11 s

ATLANTIC OCEAN-

OPTION: An extensive system of seawalls will be built along the shore-
line. The seawalls will be placed a few yards behind the shore-
line, or directly in front of buildings.

COST: High cost; cost will be split 50-50 between state and local govern-
ment.

SOME ADVANTAGES: SOME DISADVANTAGES:

1. Will likely extend the lives of 1. Seawalls often lead to the loss
b'eachfront structures in normal of sand in front of the seawalls.
weather. 2. Will not protect buildings from
2. @Tay provide considerable short- high waves, overwash, or storm-
term protection. surge flooding.
3. Favored by many coastal home- 3. Aesthetically unpleasing.
owners. 4. Generally ineffective in past.
5. Larger seawalls will likely be
needed if these fail to work.

42
7 -

Student Worksheet

OPTION #3 BEACH REPLENISHMENT (INCLUDING ARTIFICIAL DUNES)

SOUND

SHIFTING
SANDS BEACH

-4es t
>

ATLANTIC OCEAN-

OPTION: Sand will be pumped onto the beach to build up the dunes and the
upper beach area. Sand will be pumped from either the sound be-
hind the barrier island, from inland areas on the island, or from
the continental shelf.

COST: High cost; cost will be split 50-50 between state government and
local government.

SOME ADVANTAGES: SOME DISADVANTAGES:

1. Will likely cause fewer environ- 1. Requires an expensive, long-term
mental problems than seawalls or commitment.
groins. 2. Must have large supply of sand.
2. Will provide a wider beach area 3. Artificial dunes can accelerate
for several years. erosion on sound side by preventing
3. Will protect nubli,@ recreation normal overwash processes.
areas.
4. No unsightly structures will be
built. 43

Student Worksheet

OPTION #4: NO ACTION

SOUND

SHIFTING
SANDS BEAC

7
Wes t

ATLANTIC OCEAN-

OPTION: No protective action will be taken by government. Leave Shifting
Sands Beach as is, letting nature take its natural course. Home-
owners would be encouraged to move their houses back from the shore-
line.

COST@ No costs; costs of relocating homes (approximately $6-10,000) will
be paid by individual homeowners.

SOME ADVANTAGES: SOME DISADVANTAGES:

1. No interference with the environ- 1. No direct action is taken to
ment. protect property.
2. No costs. 2. Potential loss of cultural and
3. No unsightly structures. historical sites.
3. @Iay be very unpopular choice with
coastal residents.
0
44

Student Worksheet

OPTION #5 STOP MAINTAINING WEST INLET

-7

SOUND

<z <D

S FTING
H
SANDS BE
ACH

Wes

Remove
ATLANTIC OCEAN-

OPTION: @Iaintaining West Inlet is probably responsible for some erosion
along Shifting Sands Beach. The dredging of West Inlet to provide
a channel for shrimpers and other fishermen will be stopped. The
jetty, which helps prevent the inlet from closing, will be torn down.

COST: Very low cost to tear down jetty; a savings if expensive dredging-
operations are stopped.

SOME ADVANTAGES: SOME DISADVANTAGES:

1. Very low cost; a possible savings. 1. Uncertain if this will work; not
2. No harm to natural environment. clear how much of the erosion
3. Will remove unsightly jetty. problem is caused by maintaining
West Inlet.
2. Fishing operations and recreational
boaters will lose easy, convenient
access to ocean.
3. Some fishing operations may close
due to extra transportation costs.

4@-
CA
Student Worksheet.

OPTION RATING CARD

Highly Desirable Desirable Undesirable Comments

OPTION #1
GROINS

OPTION #2
SEAWALLS

OPTION #3
BEACH
REPLENISHMENT

OPTION #4
NO ACTION

OPTION #5,
STOP MAINTAINING
WESTINLET

Student Handout

COUNTY OFFICIALS

You believe that some type of protection is definitely needed. However,

cost is an important consideration. The county does not have enough tax revenues

to pay for an expensive project. The state must help pay the bill. You know

the state argues that erosion is only a local problem, and therefore the state

should not do anything. You disagree. After all, the beach is public property

and owned by the state.

You also know that your county receives tax revenues from tourism. Continuing

erosion means fewer tourists and less tax dollars. Your city cannot afford these

losses.

Erosion also threatens to increase the potential danger from hurricanes.

Because there is less beach and fewer dunes to take the first brunt of a major

storm, a hurricane will cause major property damage. You think the state of

South Carolina has an obligation to give people more protection from hurricanes

by stopping erosion. You would do it yourself, but your county just is not wealthy

enoug h to afford these kinds of projects without some financial help.

Finally, you are against the plan to stop dredging West Inlet and to tear

down the jetty. You think the fishing industry is important to the area. If

,the inlet is not kept open, several fishing operations may close down. You think

the erosion problem can be solved without putting a lot people out of work.

Student Handout

STATE OFFICIALS

You believe there is nothing permanent that can be done about stopping

erosion. Nature will ultimately wreck any engineering effort. While it is true

that the state government has supported erosion control in the past, these efforts

have been generally unsuccessful. The only successful projects have been very,

very expensive; in fact, the cost of these projects was more than the value of

the property they were trying to protect. One of your major concerns is that

once an erosion control project is started, it must be maintained and frequently

expanded. Thus, the costs continue indefinitely.

Another problem is that when the erosion protection system is installed,

builders will think the area is safe, and new development will occur. This just

makes the problem worse the next time it comes around.

People were warned about erosion problems when they built homes at Shifting

Sands Beach. Columbia cannot be expected to bail people out of trouble every time.

The state is not concerned about the loss of some public beach area. It

will always own everything below the mean highwater mark--no matter where it is.

The hundreds of thousands of dollars spent on an erosion control project will

benefit only local residents. If any erosion program is approved, you believe

the cost should be kept low.

Finally, you think the maintenance of West Inlet should probably be stopped.

It may be contributing to the erosion problem, and the fishing industry should not

be hurt too much by this action.

Student Handout

LOCAL PROPERTY OWNERS

You want protection now! You have considerable money invested in property

and if some action is not taken soon your property is going to be washed away.

You have already lost hundreds of feet of beach-front property. If the people

in the state government do not wake up and do something soon, Walterboro will be

on the coast!

You admit that you are asking government to protect your private property,

but the beach in front of your property is public. Everybody uses the beach, not

just you. Isn't it fair for the government to pay to protect this public property?

Another problem that seriously affects you is the declining value of your

property due to the erosion threat. Even if you wanted to sell your property @Lnd

move, you could not get very much money for it. If erosion protection is built,

though, the value of your property will increase again.

You do not particularly care about cost; any protection is better than none.

This is especially true since you can get no personal property insurance to cover

losses from erosion.

Further, the idea of relocation seems absurd to you. You saved for years to

build your house on the ocean. After all, what is the point of having a beach

house that is not on the beach?

Finally, you favor option #5, the ending of the maintenance of West Inlet.

Older property owners tell you that erosion has been worse since the jetty was

built to help keep the inlet open.

Student Handout

FISHING GROUPS

Your main concern in this issue is to be sure that the dredging of the

West inlet continues and that the jetty is not torn down. If people vote against

maintaining West Inlet, it will seriously affect your fishing interests. West

Inlet is the only opening to the sea for several miles. The added time and expense

in traveling the extra miles to another opening will cost your fishing business

considerable money. Some fishing outfits will likely be forced to go out of busi-

ness.

If Option #5 is chosen, fishing operations in the area will have to charge

more for their products. If people think they will save money by voting for

Option #5, they are wrong. They will have to pay for it in terms of higher fish

and shrimp prices. And, this option will probably put several people out of work

who might then go on welfare.

Further, there is no solid evidence that ending the maintenance of the inlet

will lessen erosion along Shifting Sands Beach. If scientists are not sure it

will make a difference, why do it?

Student Handout

TOURIST GROUPS

Your major concern about the erosion problem is the loss of the beach area.

Most tourists come to Shifting Sands Beach to swim, sunbathe, collect shells and

enjoy the wide, smooth beaches. If the beach erodes away--and several hotels in

the area have already lost valuable beachfront property--fewer tourists will come

to Shifting Sands Beach.

If tourism drops off, it will mean less money for the entire community.

Many people will lose their jobs.

You think the idea of doing nothing to control erosion is ridiculous. Groins

and beach replenishment projects have worked in other areas. This may be expensive,

but you feel that no cost should be spared in saving the beach area. However,

you are definitely against the seawall proposal. While seawalls can keep the ocean

from damaging property, they often cause the beach in front of the walls to erode

faster than they normally would.

Student Handout

ENVIRONMENTAL REPRESENTATIVE

You believe that all erosion control projects are only temporary measures.

Nature will win in the end. Sometimes these projects have unforeseen, adverse

effects. Seawalls are the worst idea because they cause the beach to erode

faster than it normally would. Seawalls may protect property for a short time,

but they ruin the beach.

Beach replenishment does not always work either because if the new sand

pumped onto the beach is too fine, it quickly blows away.

You also believe that erosion is inevitable; the general level of the ocean

is rising throughout the world due to the slow melting of the polar ice caps.

Putting in a few groins or seawalls will not stop a worldwide process.

Finally, you approve of the plan to stop maintaining West Inlet. You believe

there is a good chance that erosion along Shifting Sands Beach would lessen if the

jetty were removed. As far as you are concerned, this is just another good example

of how people have fouled up nature by trying to control it.

You are against spending any tax money on erosion control; if people were

foolish enough to build on the beach, -they should pay the consequences.

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION
Lesson 2: GAINING ACCESS (BEACH ACCESS PROBLEMS IN SOUTH CAROLINA)

ADDITIONAL SOUTH CAROLINA MATERIALS

Teacher notes only.

OVERVIEW

Students hear a brief overview of recreational access problems along the
South Carolina coast. Suggestions for research projects are given.

PROCEDURE

1. The following information and questions should follow the discussion
of the "Daily Splash" reading on beach access. Use the following in
place of Part II in the Teachers Guide, page 121.

2. Ask students:

a. Do you know of any areas along the South Carolina coast where beach
access is a problem?

b. What factors have led to these problems? Lack of parking? Private
development? Overcrowded conditions?

3. Provide students with the following overview of access problems along
the coast:

a. Hilton Head Island has no public beach area. Visitors must pay
$2 to enter Harbortown.

b. Private development on Seabrook and Fripp Islands has generally
blocked off public access.

C. Dubordieu Beach, south of the Grand Strand, is an exclusive private club.

d. Dewees Island has been developed for private use.

e. Isle of Palms, near Charleston, has greatly restricted public access.

4. Ask students:

a. Who owns the beach in South Carolina?

(Below the mean high tide line, the beach belongs to the public.)

b. If the public owns the beach, how have these access problems developed?

(Private developers do not have to provide access points to the beach.
Long stlri..t@ht=s of private development can, in effect, turn an area
into a private beach.)

C. Is anything being done about this problem?

(The South Carolina Coastal Council, the state agency responsible for
controlling development in critical areas [coastal waters, wetlands,
beaches,and primary ocean-front sand dunes] of the coastal zone, will
not grant permits for erosion control projects unless public access
is protected.)

5. For a special project, have students investigate access problems in
their town or county. Some questions to consider are:

a. How serious is the beach access problem in this area?

b. Is there sufficient parking? Do park facilities need improvement?

C. Do population trends for your area indicate a greater demand for
parks in the future?

d. Are there plans to build new parks, or expand existing ones?

e. Could new laws be passed..to require public rights-of-way to the
beach?

6. In addition to the general information about access problems presented
in procedure 3 above, a complete listing of beach access problems for
the entire South Carolina coast follows. This information is reprinted
from the State of South Carolina Coastal Management Program's Final
Environmental Impact Statement (pp. IV-71 to IV-73).

TABLE I

SOUTH CAROLINA BEACH SURVEY

Approximate
width above
Length mean high tide (Adjacent Land) Public
Beach Area Niles) (feet) Ownership Access Comments

%@aiies Island 2.3 93 Pri@ ate None Only undeveloped maritime Corest.,dune area in
Horry County.
North Myrtle Beach 9.3 125 Private Excellent Densely developed; good public access but limited
parking; fishing pier.

Atlantic Beach
0.3 125 Private Moderate Limited parking facilities; fishing pier.
%,Iyrtle Beach 15.7 70 Private Moderate Densely developed; active; active tourist economy,
including numerous hotels, restauranti. aitrac-
tions and 29 golf courses in the area; fishing pier.
Myrtle Beach State Park 1.2 too State Excellent Camping, day use area, swimming pool and
fishing pier, interpretive area.
Surfside Beach 2.1 50 Private Moderate Limited parking, beach access-ways not marked.
some blocked by private structures. Community
plans to improve situation in near future.
Garden City Beach 4.0 50 Private Limited Highly developed; fishing pier.
Hunninvon Beach 3.0 70 State Excellent Camping, nature observation. piaygroLfnd, arts
State Park center.
North Litchfield Beach 1.5 7 5 Private Limited Limited access obscured by unmarked easements
and prominent "No Parking" sign at entrance to
island.
Litchfield bv the Sea 1.0 - Private None International Paper co. developing a private
residential community.
Litchfield Beach 1.5 75 Private None 8 access-ways but only I visible and that is pro-
minently marked "Private".
Pa%-.Ievs Island 50 Private Limited No public parking except some on-street. only 8
ocean access-ways.
Dubordieu Beach Z.2 50 Private None Controlled by a major land holder; private
development on portion froncing beach, re-
mainder undeveloped at present.
Bell Baruch Beach 11.000 ft. 50 Private None Private foundation, \kith State cooperation and
research facilities.
North Isla nd 8.0 50 State Supervised Wildlife preserve.
boat only
South Island 1.0 too State Supervised Wildlife preserve.
boat only
Cedar Island -1.5 ;0 State Boat only Part of Santee Coastal Reserve.
Murphy Island 4.2 50 State Boat only Part of Santee Coastal Reserve.
Cape Romain Wildlife Federal Boat oniv One of the nation's most outstandinu %%ildl:Ce
Refuge sanctuaries; some areas desiiznat,,d %@ilderness.
Cape Island 6.0 166
Lighthouse Island 1.5 180
Raccoon Key 6.0 150
Bull Island 5.7 100 Boat only
Capers Island 1.8 50 State Boat only Incorporated into Heritage Trust Program.
Public access is encouraized.
Dewees Island 1.8 50 Private None Privately owned, but State holds a scenic
ment over the island.

TABLE I (Continued)

Approximate
width above
Length mean high fide (Adjacent Land) Public
Beach Area (Miles) (feet) Ownership Access Comments

Isle of Palms 6.2 100 Private Moderate Municipai parking lot, some on-street, parking. no
formally dedicated easements, fishing pier.
Sullivans Island 2. 6 138 Private Excellent On-street parking in certain areas; good casement
provisions.
Folly Island 5.2 88 Private Moderate Severe erosion problems; @ery limited public park-
ing; fishing pier.
Kiawah Island &0 150 Private Limited but Private resort - restr;cted entry beyond desiznated
good facilities public access area, fee charued.
Seabrook Island 1.3 50 Private None Restricted access resort.
Eddingsville Island 1.0 120 Private None
Botany Island 1.5 150 Private None
Botany Bay Island 2.5 150 Private None
Edisto Beach .3.0 so Private Moderate Limited parking, mostly on-sEreet; fishing 'pier.
Edisto Beach State Park 1.5 80 State Excellent One Of State's most popular parks; playground,
picnicing, hiking and environmental observation
areas.

Pine Island 1.5 25 Private None ;7
Otter Island 2.0 75 Private None
Harbor Island 1.5 150 Private N o ne
Hunting Island 3.8 70 State Excellent Camping, boating facilities, wildlife observation
State Park areas, etc.
Fripp Island 2.3 15 Private None Restricted access resort.
Pritchards Island ).5 75 Private None U ndeveloped.
St. Phillips Island 1.0 75 Private None Undeveloped.
Hilton Head Island 11.4 150 Private Extremely Moderately developed, most areas restricted to
limited residents or guests.
Daufuskie Island 2.0 - Private Boat only Access to island at public boat launch. but access
across island is limited to the few public roads.
Turtle Island - State Boat oniv Wildlife Management, very poor sand beach.

SOURCE: Public Beach Access and Recreation in South Carolina, 1976, Hartzog, Laders & Richards.
Council staff update.

TABLE2

AVAILABLE BEACH ACCESS IN SOUTH CAROLINA

Beach Access Points

North Myrtle Beach 36 public streets end at beach; walkways clearly marked. 117, pedestrian easements,
most of which are dedicated to city or recorded on plats.

Atlantic Beach 4 beach access-wavs at street endings between 29th Avenue South and 32nd Avenue
South.

.'.Ivrtle Beach Access at some street endings, limited dav-visitor parking.

Myrtle Beach State Park Freely accessible, ample parking (400 spaces for dav-@isitors, space for each camp-
site).

Surfside Beach 34 public access-ways, but none marked as public, none dedicated as easements.

Garden City Beach

Huntington Beach State Park Freetv accessible-, paved parking for 275 cars.

North Litchfield Beach Although 6 streets and 10 footpaths end at the beach. none are marked or evtn clear-
ly visible. Entrance to the island marked by "Warning: No public parking on North
Litchfield".

Litchfield Beach 7 walkways and one path are shown on a plat of the community; however only I ac-
cessway is readily visible, and it is marked "private". No designated public parking.

Pawleys Island Eight ocean access-wavs. Public parking limited to the shoulder of the main road.

Note: State-owned North, South, Cedar, Murphy, and Capers islands are accessible by private boat oniv
with restrictions. Federallv-owned beaches are "Federally excluded lands" for purposes of coastal
management.

Isle of Palms Relatively unrestricted access. although easements have never been formally
dedicated except at pier where public parking is available for approximately 600
cars.

Suilivans Island Access at the end of almost every block, public parking allowed on all streets.

Folly Island Relatively unrestricted access. Parking in four pri%ateiv owned lots and at metered
spaces for approximately 275 vehicles.

Kiawati Island Pubiic access provided in designated area of the island only. Ba[h house facilities
and parking for 160 cars available.

Edisto Island Access between every 3 to 5 lots via unmarked footpaths. On-sire-@l parking
available.

Edisto Beach State Park- Readily accessible. ParkinL, facilities for 250 vehicles.

Hunting Island State Park Readily accessible. Parking facilities for approximately 400 vehicles.

Hilton Head Island Limited public access at some street ends.

SOURCE: Public Beach Access and Recreation in South Carolina, 1976, Hartzog, Lader and Richards.
57

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION
Lesson 4: BLUE NECK BAY (THE WANDO RIVER CASE STUDY)

ADDITIONAL SOUTH CAROLINA MATERIALS
Reading, "The Wando River Controversy"
Transparency, "The Wando River Controversy: Political Process".
Worksheet, "The Wando River Controversy: Political Process"

OVERVIEW

Students read a case study about the decision to build the Wando River
facility. Using information they learned in the previous "Political Process"
lesson, students identify the major political actors in the Wando case and
analyze the roles they played.

PROCEDURE

1. The "Wando River Controversy" reading can either replace the "Blue Neck
Bay" reading or can be used as an additional case study.

2. Use the same procedures outlined in the "Blue Neck Bay" lesson. Students
should read the case study and fill out their worksheets, using the last
page of the reading ("Major Steps in the Wando River Case") as a guide.

A complete version of the Student Worksheet follows. Students may com-
plete their worksheets with some slight deviations from this key. How-
ever, major errors should be noted and discussed.

One area of dispute may arise over where to place the State Ports Authority
(S.P.A.). Some students may put it in the "agency" box rather than in
the "user" box. While this would not be incorrect, explain that since
the S.P.A. is the major user of the coastal resource (the harbor), it
should fit in the "user" category.

This story provides an interesting example of how one government agency
has to go to other agencies to get a permit. Usually we think of only
private citizens or businesses having to get permits, but government
offices are also subject to these same regulations.

3. After students have completed the diagram, ask:

a. What did the'environmentalists and other concerned citizens do to try
to slow or halt development?

(They formed public interest groups; they put pressure on the General
Assemby; they testified at meetings; they lobbied government agencies.)

b. What did the S.P.A. and its supporters do to win approval of the

Wando terminal plan?

(They put pressure on the General Assembly to fund the project; they
lobbied members of government agencies; they testified at meetings;
they filed a lawsuit against the Coastal Council.)

4. Encourage students to look for newspaper stories about recent controversies
that involve coastal projects. Have them identify what elements of the
political process are involved.

Charleston Harbor is one of the to expand Charleston Harbor. The SPA
coast's most important resources. The proposed to build four new berths by
12th leading port in the United States, 1982 and three additional berths by
the harbor is vital to the economy of 1990. Many of these new berths would
South Carolina. Directly and indirectly, be designed to handle containerized
the harbor generates 35,000 jobs for cargo, a method of shipping very popu-
the State, and 1,500 business firms use lar in the industry. The new facility
it for import and export of goods. would help keep Charleston Harbor com-
petitive with other harbors on the east
The harbor also makes millions coast.
of dollars each year for its owner,
the State of South Carolina. The agency Immediately after announcing these
responsible for the management of the plans, the SPA purchased several acres
harbor is the State Ports Authority of undeveloped land on the Wando River.
(SPA). It favored this area because land costs
were low and the river was wide enough
Because of the economic importance at this point to allow ships to turn
of the harbor, new proposals by the SPA around.
to improve its facilities are normally
supported by leading politicians and The Trident Chamber of Commerce,
business leaders. Such was the case plus South Carolina's two U.S. Senators
in 1973 when the SPA announced plans supported the SPA's proposal. Other
business leaders joined in favor of
the new plan.

The plans for the Wando site had
barely been announced, however, when
several environmental groups stated
opposition to this area. The Wando
site was on the quiet, undeveloped
side of the river across from high
income residential areas. Recrea-
tional boaters, fishermen, and sight-
seers often visited this spot. The
opponents of the plan feared that
other businesses and support faci-
lities for the new terminal would
soon locate in this area as well.
Many acres of marsh near the Wando
site, as well as valuable upland
wildlife habitats would eventually
be harmed or destroyed. A number
of citizens quickly formed the Save
New containerized shipping the Wando Association (SWA) to oppose
facilities would keep Charleston the SPA.
Harbor competitive with other East
coast ports.

The SPA could not begin construc- jurisdiction over all navigable water-
tion on the new facility until it ways in the U.S. Before the Corps
had received permits from both the issued the SPA a permit, however,
state and federal governments. In another national agency, the Environ-
South Carolina, the State Budget and mental Protection Agency announced it
Control Board reviewed the plans and would review the Wando River terminal
issued a permit in 1976, despite the plans to make sure that water quality
objections of the SWA. standards would be met.

The fight then moved to the The Save the Wando Association
General Assembly. -The legislative began writing letters to the Environ-
body had to approve the funding of mental Protection Agency and the Corps
the Wando project. SWA members lobbied to protest the Wando site. Members
hard for their position, as did sup- traveled to Washington to testify at
porters of the SPA. The General As- meetings and lobby agency officials.
sembly finally voted to fund the harbor SPA supporters, such as Senators Thur-
expansion. mond and Hollings also appeared at
meetings to speak in behalf of the
At the national level, the SPA new facility.
tiled for a permit from the U.S. Army
Corps of Engineers. The Corps has Finally, in December, 1977, after
months of studies and meetings, the En-
vironmental Protection Agency withdrew
its objections to the plan. The Corps
of Engineers granted a construction
permit a few days later.

While the SPA was winning at the
Federal level, another agency at the
State level was creating problems for
the SPA. The South Carolina Coastal
Council (SCCC), created in May, 1977
by the General Assembly to manage
coastal development, told the SPA that
it must apply for a Coastal Council
permit. The SPA refused to do so,
claiming that the SCCC had no right to
review a case that was already approved
before the SCCC was created. "It seems
to me to be an absurd action for us to
have to go through another review by
another state agency," complained one
SPA official.

In November, 1977, the SPA filed
a lawsuit in Circuit Court asking that
the SCCC be prevented from reviewing
The U.S. Army Corps of Engineers harbor plans. A month later the Judge
had to approve the harbor ruled in favor of the SPA. The Coastal
expansion plans. Council then appealed the decision to

61
ML

E.P.A PUBLIC 2. Many people and businesses
HEARING ROOM in South Carolina use Charles-
ton Harbor and benefit from
its facilities.

3. The SPA announced plans to
expand the harbor; it sought
permits from State and
Federal agencies.

4. Groups such as the Trident
Chamber of Commerce and
influential people, such as
Senators Thurmond and Hollings,
supported the project.

5. Groups such as the Save the
Wanda Association (SWA)
announced opposition to the
project.

6. The State Budget and Control
Board granted approval for
Representatives from both sides of the project.
the issue traveled to
Washington D.C. to lobby 7. The General Assembly voted
government officials. approval for funding of the
project, despite the lobbying
of the SWA.

the Supreme Court of South Carolina, 8. Supporters and opponents of
but it upheld the lower court's ruling. the plan lobbied agencies in
Washington, D. C.
Despite the continued objections
of some politicians, agencies, and groups 9. The Army Corps of Engineers
like the SWA, the SPA had cleared all granted a permit for the
the legal hurdles. Af ter a five-year project.
battle, construction on the Wando site
began in 1978. 10. The SPA filed a lawsuit against
the SCCC.

11. The Court ruled in favor of
the SPA.
MAJOR STEPS IN THE WANDO RIVER CASE
12. The SCCC appealed the decision
to the South Carolina Supreme
Court, but lost the appeal.
1. The State of South Carolina,
through the SPA, owns and
operates the harbor, and
receives millions of dollars 13. Construction finally began on
in vaxes from it. the Wando River site.

Worksheet
Answer Key

THE WANDO RIVER CONTROVERSY-POLITICAL PROCESS

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UNIT III: RESOURCE' MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION
Lesson 6: MANAGEMENT TOOLS (MANAGEMENT TOOLS IN SOUTH CAROLINA)

ADDITIONAL SOUTH CAROLINA MATERIALS
Reading, "Six Resource Management Examples In South Carolina"

OVERVIEW

.Students read six examples of resource management in South Carolina. They
then identify the management tool used in each example and analyze the ad-
vantages and disadvantages of each tool.

PROCEDURE
1. The reading, "Six Resource Management Examples In South Carolina," replaces
the six examples provided in the original reading. (If you wish, you can
use the original set for review or as a short quiz to test students'
ability to identify the six resource management tools.)

2. Pass out the South Carolina reading after students have finished the first
section of reading 111-5, "Managing Coastal Resources," and answer the re-;
view questions (pages 139-140 in the Teachers Guide).

3. Have the class read the first of the six South Carolina examples,
"Permanent Homes for'Wildlife." After they finish, ask students the
following questions:

a. What resource or activity is the government trying to control?

b. What management tool is government usingto reach its_goal?

After they answer correctly, move to example,two, "Wetlands," and again
ask these two questions. Complete all six examples in this manner.
Below are the answers for each example.

(Example 1: a. The government is trying to protect wildlife.

b. The management tool is the purchase or acquisition
of land. By acquiring ownership, government can
control how the land is used.

Example 2: a. Government is trying to protect wetland areas.

b. Government is using the management tool of zoning to
prevent development in these areas.

Example 3: a. Government wants to protect beach areas, wetlands,
primary ocean-front sand dunes and coastal waters
from over-development and degradation.

b. Government is using a permit and regulation system.
The South Carolina Coastal Council is an agency
established to oversee development activities in the
low country.

Example 4: a. Local governments are trying to encourage development
in their areas.

b. Several cities have established a low tax rate to
attract development. A higher tax rate might discourage
development.

Example 5: a. Government is attempting to improve beach access and
protect the dunes.

b. Government is reaching this goal by improving or
building public facilities. This tool is called
improvement of public facilities, or capital improve-
ments.

Example 6: a. Government is trying to protect undeveloped barrier
islands.

b. The state will discourage the expenditure of tax dollars
for new public facilites in these areas. This strategy
may be called the placement of key public facilities.)

4. Have students look at the third section of the original reading, "Analyzing
Management Tools." Follow the procedures outlined in the Teacher's Guide
for'the remainder of this lesson.

5. One additional resource management strategy which is frequently used in South
Carolina (and other states) involve business and government negotiation. In
some instances, business has tried to lessen some of its negative impacts by
agreeing to revise its original plans. For example, local or state govern-
ment could negotiate with industry to provide training for local labor forces
if the industry receives approval to locate in the area.

.6. As a special project, the class could investigate which management tools are
used or favored by their community or county. Specific examples of each
management tool could be identified.

SIX RESOURCE MANAGEMENT TOOLS FROM SOUTH CAROLINA

PERMANENT HOMES FOR WILDLIFE

The South Carolina Wildlife and iNfarine Resources Department has the right to

acquire land for purposes of establishing specific wildlife sanctuaries. This

action helps protect many species of wildlife, including birds and fishes. One

example of a state wildlife preserve is Turtle Island in Jasper County which is

owned and managed by the state.

WETLANDS

Several cities in the low country have designated wetland areas as conser-

vation districts. Development in these areas is prohibited and the wetlands,

including marshes, mudflats, and shoals are protected.

THE SOUTH CAROLINA COASTAL COUNCIL

The South Carolina Coastal Council helps protect coastal areas by establishing

standards for land and water use. Anyone wanting to alter beaches, wetlands,

primary ocean-f ront sand dunes, or coastal waters must submit a plan that meets the

standards of the Coastal Council. If the Council approves the plan, the person

will receive a permit. No construction can occur until the Council grants this

approval. In areas outside its direct permitting jurisdiction, the Council exerts

an indirect authority whereby it reviews and certifies or noncertifies permits

of other state and federal agencies. Without its certification, other agency

permits are invalid.

BRINGING IN THE BUSINESS
In order to attract more jobs and income to their communities, many coastal 0
68

towns have set low tax rates for business and industry. This policy encourages

businesses to build new plants or expand existing facilities in these communities

rather than locating in other areas.

WALKWAYS TO THE BEACH

The South Carolina Coastal Council recently voted to fund the building of

new walkways over the sand dunes in Myrtle Beach and North Myrtle Beach. This

action helps protect the fragile dunes from people walking on them and allows

many visitors and residents to get to the beach more easily.

1@j The state placed new- walkways,
such as the one shown here, at
Myrtle. Beach and North Myrtle
Beach.

'QW.Ift

BARRIER ISLANDS

A policy of the South Carolina Coastal Management Program administered by

the Coastal Council, is to protect undeveloped barrier islands. In order to meet

this ob ective, program policies strongly discourage the location of public

facilities such as bridges, highways, and sewer systems in these undeveloped areas.

This helps limit the amount of private development since most developers cannot

afford to provide these expensive services.

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION
Lesson 7: LOCAL VERSUS REGIONAL CONFLICTS (WHO PAYS FOR EROSION
CONTROL?)

ADDITIONAL SOUTH CAROLINA MATERIALS
Transparency, "Local-Regional Conflicts in South Carolina: Who Pays for
Erosion Control?"

OVERVIEW

Students view a transparency and hear an account of a local-regional conflict
in South Carolina.

PROCEDURE

1. 'Ibis transparency is designed to be the last in the series of transparen-
cies on local-regional conflicts. The preceding transparencies and accom-
panying description are provided in the original lesson (pages 146-148 in
the Teachers Guide).

2. Show the transparency, "Local-Regional Conflicts in South Carolina: Who
Pays For Erosion Control?" after the final transparency on the City of
Long Beach, California ordinance (page 149 in the Teachers Guide).

Give the students the following information:

A good exampie of local-regional conflicts in South Carolina is repre-
sented by the debate over who sould pay for erosion control. Shoreline
areas such as Folly Beach, Forest Beach on Hilton Head Island, Hunting
Island, Edisto Island, and sections of Myrtle Beach are all threatened
by erosion. Local officials want to provide protection against further
erosion damage because it will bring many benefits to their communities.
Erosion control protects homeowners and helps keep the beach wide so
tourists will continue to come to their area.

Because erosion control projects are expensive, however, local communi-
ties usually need financial help from the state and federal governments.
In the past, the State of South Carolina has tended to provide funds.
But State officials are beginning to wonder if all their money is
'Fgoing down the ocean's drain." While some projects have been successful,
many more have not. Further, in many places only a few private property
owners have benefitted and not the general public.

Consequently, the State and Federal Government are generally cutting
back on the amount of funds they provide for erosion control. But, if
the beach has public access easily available, the Federal government
will pay a higher part of the erosion bill. By instituting this policy,
government officials are trying to change the funding of erosion control

so that the general public receives more of the benefits. South Carolina's
Coastal Management Act and Coastal Management Program require that public
erosion control money be spent only in areas which provide full and com-
plete access to the public.

3. To review, ask:

a. Why is the state government questioning the policy of 2aying for
erosion control?

b. Why is this a good example of local vs. regional c2nflicts?

Transparency

LOCAL-REGIONAL CONFLICTS IN SOUTH CAROLINA
WHO PAYS FOR EROSION CONTROL?

COLUMBIA
(And WASHINGTON, D.C.)

TLE BEACH

5OLLY 3EACH

EDISTO ISLAND

HUNTING ISLAND

HILTON HEAD ISLAND

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION
Lesson 8: JURISDICTION PROBLEMS (GEORGIA vs. SOUTH CAROLINA)

ADDITIONAL SOUTH CAROLINA MATERIALS
Teacher's notes only.

OVERVIEW
Students hear an account of a jurisdiction problem that affects the coastal
area of South Carolina.

PROCEDURE

1. After you have completed Lesson 8, give students,the following infor-
mation about a jurisdictional problem affecting the low country:

As the lesson discussed, jurisdictional problems can occur when the
events outside your control, or jurisdiction, affect you. Often there
is little that can be done. A good example of this is Daufuskie Island,
a few miles north of the Georgia-South Carolina border. Dauf@uskie Is-
land was once the site of a small community that made a living harvesting
shellfish in the area. Today, however, few shellfish are found that
can be harvested. Pollution has ruined the shellfish grounds. The
economy of the island has suffered; few jobs exist. Most of the residents
are now on welfare.

The State of South Carolina could do little to save this community
from this pollution problem, however, because a major source of the
pollution was in Georgia. Several industries and the Savannah sewage
treatment plant dumped their wastes into the Savannah River. When
the wastes entered the ocean, the currents pushed them north into the South
Carolina low country. Water quality dropped, shellfish sites disappeared,
and small fishing communities like Daufuskie Island suffered severe
economic hardships.

At the other end of the state's coast, northerly currents create
similar problems for North Carolina residents living just the other
side of the state boundary. Sewage from the Myrtle Beach and North
Myrtle Beach area is dumped into the Intracoastal Waterway and floats
north into North Carolina.

2. Ask students if they can think of other jurisdictional problems in
their town or county.

UNIT III: RESOURCE MANAGEMENT: POLITICS AND PLANNING
IN THE COASTAL REGION
Lesson 10: THE TAKING ISSUE: LEGAL LIMITS TO REGULATION (A TAKING
ISSUE IN SOUTH CAROLINA)

ADDITIONAL SOUTH CAROLINA MATERIALS
Reading, "Tisdale vs. The South Carolina Coastal Council"

OVERVIEW

Students read an account of a "taking issue" case in South Carolina. In a
mock courtroom scene, students present each side of the case before a "jury."
The actual outcome of this case is then revealed.

PROCEDURE

1. The reading, "Tisdale vs. The South Carolina Coastal Council,"and this
short activity are designed to follow the conclusion of Lesson 10,
"The Taking Issue: Legal Limits to Regulation."

2. Explain to the class that an interesting example of the conflicts between
the rights of private property owners and the power of government to
regulate land use occurred recently on Pawleys Island near Georgetown.
A property owner there discovered that the rules and regulations of
the South Carolina Coastal Council conflicted with plans she had to build
a new beach cottage.

Pass out the short reading, "Tisdale vs. The South Carolina Coastal
Council" to each student.

3. After they have completed the reading, ask a student to summarize the
main points in the reading. Then ask:

a. What is the basic conflict in this situation?

(Has the government [the Coastal Council] gone too far in restricting
Mrs. Tisdale's use of her property?)

4. Divide the class into three groups. Group 1 will represent Mrs. Tisdale
and Group 2 will represent the South Carolina Coastal Council. Group 3,
consisting of only three to five students, will be the jury and will
render a decision in the case.

5. Give the students in Groups 1 and 2 10 minutes to prepare their client's
case. They may work alone or in small groups within their larger groups.
Suggest they use the "Balancing Process" worksheet as a guide i,n organiz-
ing their work.

At the end of the preparation time, ask one person representing Mrs.
Tisdale to present her case. Allow students from the Coastal Council

to respond. Ask for any other relevant information or arguments.
Give the jury a few minutes to deliberate. Have them conduct their
deliberations in front of the class, and then announce their decision.

6. After the jury has announced its verdict, read the class the actual
decision of the circuit court:

The 15th Circuit Court of South Carolina, meeting in Georgetown,
ruled against Mrs. Tisdale. Judge R.K. Anderson said the Coastal
Council's decision was legitimate exercise of the police power
and did not constitute a taking. The Judge ruled that the policy
of the Council to protect marshland is legitimate because it does
not seek to create new public benefits, but only to maintain what
already exists.

If the Council had been trying to create new public benefits it
should have used the power of eminent domain.

The court also held that Mrs. Tisdale did have some reasonable remaining
uses of her land left. Although Mrs. Tisdale argued that she was
deprived of the only existing practical use, the Judge disagreed. He
wrote, "I do not believe that the term 'existing practical use'. was
intended to refer to the most economically advantageous use." While
the use of the property for a dock or a parking lot might not be what
Mrs. Tisdale wanted, such uses are still permitted and are reasonable.
Thus, the court ruled against Mrs. Tisdale.

Point out that the reasoning used in this case closely followed the
arguments used in Just vs. Marinette County. In both cases, the court
held that a property owner did not have the right to alter the natural
condition of wetlands strictly for private gain.

7. Explain to the class that Mrs. Tisdale has appealed this ruling to the
Supreme Court of South Carolina. A final ruling is not expected until
1981.

TISDALE vs. THE SOUTH CAROLINA COASTAL COUNCIL

In 1969, Mrs. Margaret Tisdale of of her property. Mrs. Tisdale said
Andrews, South Carolina, purchased the property would only be of value
three lots of marshland on the south if filling took place. She also
end of Pawleys Island. Mrs. Tisdale argued that she was filling in such
planned to use one of the lots, 63 feet a small amount of the total marsh
by 40 feet, to build a small beach area on Pawleys Island that her pro-
cottage after she retired from public ject would not affect the benefits
school teaching. Before she could the public received from the marsh-
begin construction, however, she first lands. Mrs. Tisdale asked that the
had to receive the approval of the Council pay her the sum of $35,000
South Carolina Coastal Council. for "taking" her property.

The Coastal Council was created
in 1977 to control development in
11critical areas" of the coast. Marsh
was included in this category and
any proposed construction first had
to receive a permit from the Coastal
Council.

In November, 1977, Mrs. Tisdale
requested a permit from the Council
to fill a portion of her marsh lot.
The Council denied Mrs. Tisdale a
permit. The Council told Mrs. Tisdale
that the marsh was a valuable natural
resource that benefits all the citizens
of the state. To allow her to create
aresidential lot strictly for private
gain would remove the public's right
to continue to benefit from this area.
Further, the Council argued, filling
in this lot could cause erosion damage
for nearby property owners. Finally,
the Council noted that this land had
other uses which would be permitted.
A dock and pierhead could be built;
a 30-foot strip of her property which
bordered the road could be cleared
for parking of cars and recreational
vehicles.

Mrs. Tisdale brought suit against
the Coastal Council claiming that the
decision so restricted her use of the
land that it represented a "taking"

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT
Lesson 2: THE ECONOMY AND THE ENVIRONMENT: SOUTH CAROLINA
(RECENT CASES FROM SOUTH CAROLINA)

ADDITIONAL SOUTH CAROLINA MATERIAL
Worksheet, "Planning Worksheet"

OVERVIEW

Students hear two examples of current conflicts between the economv and
the environment in South Carolina. Suggestions for student projects are
given.

PROCEDURE

1. Since the case study for this lesson in the regular set of student
materials, "Do Chemicals and Carolina Mix?", already involves a South
Carolina case, additional student readings are not included here. How-
ever, since the BASF case is several years old, students should be
reminded that the economy-environment debate is still relevaAt in many
instances.

2. Two examples of recent cases involve a condominium proposal for Folly
Beach and a new marina for Murrells Inlet. Newspaper clippings on
both issues are attached for your reference. You may wish to summarize
the main issues, pro and con, for students by reviewing the articles,
or by preparing a transparency of the stories and showing the articles
to the students.

A "Planning Worksheet" is included so that students can record the ad-
vantages and disadvantages of the two proposed developments as you re-
view them in class. Have them write in the issue at the top after the
word "Question."

For up-to-date information on these two projects, check the newspaper
file at your local library or contact Louis Hern at the South Carolina
Coastal Coucil, Suite 802, Summerall Center, 19 Hagood Ave., Charleston,
SC, 29403, phone: (803) 792-5808.

3. As a research assignment, some students may wish to identify a new
project proposed or scheduled for construction in their community.
Students can collect evidence about the project, using the "Planning
Worksheet" as a guide, and then report back to the class on what they
have found.

S.C. COastal Council Hearing

On Proposed Marina Thursday

MURRELLS INLET (AP)-The In a study of the inlet. the U.S. said. "But most restaurants an the
construction of a commercial fishing Army Corps of Engineers said it was Grand Strand buy the fish they serve
marina would create a small - and" afflicted, by "shifting sands that from New York, the Chesapeake Bay
probably, prosperous, industry for drastically affect its depth and caused. or the Gulf of Mexico. It's ridiculous,
Murrells Inlet. according to its sup- the mouth to migrate from year to but there is no adequate distribution
porters. year. system" to get local seafood to local
But opponents of tie marina say buyers.
the water, air and noise pollution it In 1977, the Corps of Engineers There are more than a score of
would bring to the peaceful resort began constructing, a $17 million jet- restaurants, but only two serve local
village make it not worthwhile to ties and channel navigation project fresh fish, he said. "The supply is too
bring in the new industry. designed to end the shoaling. unpredictable."
The argument is going on while the This summer, Triska began his He said he hopes his packing house
man who wants to develop the marina, plans, for the marina, saying the jet- could' move local seafood to local
Ralph F. Triska, a Washington real ties "will breed this kind of develop- buyers, "We hope to develop the local
estate developer, is applying for a ment." market and not ship to New York and
permit to construct the facility. Georgetown County Councilman other markets, he said.
The decision must be made by the Leon Bellamy says the marina would At the height of the fishing season
South Carolina Coastal Council, which help diversify the community's econo. boats are forced to anchor in Murrells
is holding a hearing on the proposal my and create year-round jobs. Inlet channels because of inadequate
on Thursday. The council's deputy Triska says he also hopes to build dock space, he said.
director, Duncan Newkirk, says the a fish packaging house and retail When the jetties are completed, it
decision will be a "landmark," setting seafood store, a seafood restaurant, a will "change fishing here drastical-
a precedent for permitting or barring tackle shop and ticket office. ly," Triska adds.
water-bound commerce in the little The proposed marina would serve But there is fear the changes will
community, up to 20 commercial fishing boats, not be confined to fishing.
According to some accounts, Mur- eight charter boats and three party "Our family has had a summer
rells Inlet failed to develop as- a boats- home in Murrells Inlet for 65 years,"
commercial center became ocean ac- "The Grand Strand is the largest said James M Carmichael III of
cess was unpredictable. seafood. market. in. the Southeast," he Roanoke, Va. "We're concerned about
the damage the project will wreak or,
this section of Murrells Inlet."
The site for the proposed marina
is adjacent to Sunnyside, "one of the
largest, oldest and nicest residential
The State communities left in Murrells Inlet,"
Columbia, SC said Hall M. Johnston, a Charlotte,
N.C., realty agent.
Tuesday, September 4, 1979 To sacrifice all Of this to noise
(due to water pollution) and traffic
congestion is unthinkable," he said.
Cynthia Nance, proprietor of
Nance's Creekside Restaurant, Oyster
Roast and Crab Bar, mid her business
depends on high water quality in the
inlet. The restaurant serves oysters
and other seafood caught in Parsonage
Creek outside the restaurant's back
door.
"Five years from now. when the
marina is ping strong, will there be
so much pollution that the oyster
will be closed?" sbe asks.

Fol.1y. Con o iniurn The News & Courier
0 - Charleston, SC
Proposal Draws Fire November 13, 1979
By WILLIAM MATTHEWS Diane Dunn of the U.S. Fish and
Staff Reporter Wildlife Service.
"The area is not stable," she said. 'This proiect will either pick this island
Building 540 condominiums on Bird Key Is subject to rapid erosion,
Bird Key would be "the biggest thing It is mostly marsh and sand dunes, U
that has happened to Folly Beach in -and it Is highly vulnerable to damage p and set it on the move, or it will
the past 25 years." said William A. by buff licanes and other storms, she
Lee. added ' be a co m'plete disaster.'
"This project will either pick this Development on Bird Key could
Island up and set It on the move, or it become a taxpayers' burden. she -William A. Lee, Chairman,
will be a complete disaster," he said. said. Federally subsidized Insurance
Lee Is chairman of the Folly Beach will protect the condominium own-
Planning Board. which must deter- ers from losses due to storm dam- Folly Beach Planning Board
mine whether the $ie.5 million con- age, but their protection will be at
dominium project will be a boon or a the expense of the public, she said.
bust for Folly Beach. Although Bird Key now suffers land," Tomlin commented. It prop- "unstable" for a development as
Many Folly Beach residents have from erosion, It Is not a prime target erly developed It could begin a real large as the condominium project.
been convinced that the project, pro- for erosion control. It the condomi- estate boom on Folly Beach, he said. "A storm could wipe the whole thing
ed early last summer by Colum@ niums are built, however, "there is "Charleston Is a dynamic (real es- out," he said.
Ira Development Corp. of Columbia, no question",that the Army Corps of tate) market, but Folly has been According to Tomlin, the condomi-
wobld give the Island an economic Engineers would be otill ed to begin totally overlooked." Property values. nium units would be built to with-
boost It has needed for years. a costly erosion controf project to on Folly Beach "have eroded in the stand 140-mph winds and would be
Among them are Mayor Regas M. protect them, she said. past," but the condominium project above storm wave heights.
Kennedy and a number of other Fol- Money for erosion control will could reverse that trend, he said. The environmental Impact of the
ly Beach officials. come from federal, state -arid city The South Carolina Coastal Coun- project on Bird Key may not be as
"it will be good for the beach," taxes, she noted. cil and the Army Corps of Engineers Important as its impact on the city
Kennedy said. "It will provide us According to Donald Tomlin, pres- have determined that about 52 of of Folly Beach, according to Lee.
with sewer lines and Improve our Ident of Columbia Development about 200 acres on Bird Key are "This project could be just what
water service." It also will nearly Corp., a "careful study and evalua- "high ground" and can be developed Folly Beach has needed for a long
double the city's tax base, he said. tion" of the history of erosion at Bird without state or federal permits. time. We have needed something to
The Installation of seWer lines to Key has Indicated that erosion would The Fish and Wild[life Service has help us develop. but we don't need
the Island "will be the turning point not pose a threat to the condomi- said that only 20 acres can be devel- any more problems." The project
for Folly Beach," said city manager niums. "There Is serious erosion at oped without permits. Reducing (he "deserves an In-depth analysis" be-
Robert Grooms. Sewer service will The north end of Folly Beach, but If developable area to 20 acres would fore the city decides to grant Tomlin
attract development. and develop- you go down to Bird Key at low tide, I kill tile project, Tomlin said. a building permit, he said.
ment Is what Folly Beach has want- think you'll see where all the sand The Fish and Wildlife Service de- The 540 condominiums will nearly
ed (or many years, he said. (from the north end) Is going." termination that only 20 acres was double the number of permanent res-
A Fish and Wildlife evaluation of high ground came after a handful of idences on Folly Beach, Lee said.
d

The presence of 540 $55,000 con- Bird Key Indicated It would be best project opponents called upon They will add, a tremendous burden
dominiums also Is expected to raise used as a park, Ms. Dunn said. Bird "every conceivable state and federal to the city's fire and police depart-
(he value of property on Folly Beach. Key represents a natural ecosystem agency" to hinder the project, Tom- ments. They may also,create prob-
But according to opponents, the of a barrier Island - sand duties, lin clainted. lems In traffic, waste disposal,
project may create more problems maritime sbrubs and marsh. Due to But Steven Gilbert of the Charles- garbage removal, water service and
than It solves. erosion, It is too unstable for devel- ton office of the Fish and Wildlife erosion control, lie said.
The Bird Key end of Folly Island opment, she said. Service said the service Is concerned
should retnaln undeveloped, said "it Is a really beautiful piece of because Bird Key may be too

Student Worksheet

PLANNING WORKSHEET

QUESTION:

Economy

ADVANTAGES DISADVANTAGES

Environment

ADVANTAGES DISADVANTAGES

Political/Social

ADVANTAGES DISADVANTAGES

Are there any other advantages or disadvantages to this proposal that should
be included, but do not fit into these categories?

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT
Lesson 3: ENERGY AND THE ENVIRONMENT: THE NORTHEAST ATLANTIC
(OIL AND THE SOUTH CAROLINA COAST)

ADDITIONAL SOUTH CAROLINA MATERIALS

lZeading, "Oil and Carolina"
Transparency, "South Carolina's Oil Future?"

OVERVIEW

Students read a review of the status of oil exploration and production in
South Carolina and discuss possible impacts of such activity on the coastal
area. A transparency helps highlight the location of possible offshorea
exploration areas and the long-term impacts of oil production.

PROCEDURE

1. The reading and transparency on the exploration and production of oil
in South Carolina may be used as a follow-up to the activities contained
in the lesson, "Energy and the Environment." In this way, the South
Carolina materials serve as a summary and an in-depth example of the
more general problems introduced by the transparencies IV-2 (Pacific
Coast) and IV-3 (Atlantic Coast) and the reading, "The Atlantic Oil
Sweepstakes."

Begin the "Energy and the Environment" lesson by explaining to students
that the exploration and production of oil is a crucial issue facing
many coastal communities throughout the country. The first part of the
lesson will introduce the problem and then additional materials will
provide an in-depth account of how oil-related activities could affect
the South Carolina coastal region.

Lead the class through procedures 1-3 in the Teacher's Guide (pp. 192-
194) and then begin with the procedures listed below.

2. Ask students the following questions about the impact of oil exploration
and production on the coast of South Carolina. The class may not know
the answers to all the questions. Do not provide answers at this point.
Explain that many of the answers will be found in the next reading.

a. Have the oil companies begun to explore for oil off the coast of
South Carolina?

b. Have the companies made @,nX important discoveries?

c. At present, are there any oil refineries or other onshore activities
located on the Carolina coast?

d. Based on your reading and discussion,_what might be some possible
impacts o the coast if oil is discovered in large quantities?

e. Are South Carolina communites generally in favor of oil exploration
and production? What is the position of the state government?
i
3. After the class has considered these questions, pass out the reading,
"Oil and Carolina." Have students look for the answers to any questions
they were unable to answer.

4. After students have completed the reading, review the questions (listed
in procedure #2) to make sure the important points in the reading are
understood.

Use the transparency, "South Carolina's Oil Future?" to help review the
reading. Point out the location of the offshore exploration areas and
the proposed Georgetown refinery.

Students will find that the answer to the final question in procedure
#2 is not clearly answered in the reading. Ask the students how they
could find out the answer to this question. Possible sources of infor-
matiod would be newspaper articles or government reports.

In addition, the class could investigate what the position of their own
local community is concerning the location of oil-related activities.
Would their community favor or oppose such activities?

Have students contact government offices, business leaders, and civic
groups to determine the answer.

The future of the Carolina coast area off South Carolina to be opened
may be significantly shaped by what for oil exploration. In 1978 the U.S.
takes place some 25 to 150 miles off- Government announced that certain tracts
shore under the continental shelf. in this area would be opened for ex-
Two areas, the "Southeast Georgia Em- ploration (in what is known as a
bayment" and the "Blake Plateau" may "lease sale"). The oil companies
contain oil, and if major discoveries did not make any bids to lease the
are made, the consequences for the Caro- areas off South Carolina. Low bid
lina coast could be enormous. prices or no bids at all by the oil
producers often mean their own re-
Currently, South Carolina's con- search of the ocean floor shows little
tact with oil is strictly as a consumer. chance of finding significant amounts
No oil production facilities, including of oil.
oil wells or refineries, exist in the
state. In fact, there are few such
facilities anywhere along the southeast
Atlantic seaboard.
0 4LEI@
If major discoveries occur off-
shore, however, the situation will
dramatically change. New industries
will develop to provide support for e M"IA
the exploration of the sites and for SATLISTA
the construction of new equipment. ZHAW.0
Temporary and permanent service bases,
pipeline and platform facilities, re-
SAWAMM
@: .... .. .....
pair and maintenance yards, and ware-
house and office buildings will be
built. The local construction industry
will boom. New housing will be needed
for the oil-related workforce. One
R
estimate for the Charleston area pre-
P-11
dicts that a major discovery could double
Charleston's population in ten years
and add 37,000 new dwellings. The
odds are, however, that most new de- 1,719
velopment would take place in rural
rather than existing urban areas.
Oil companies favor rural sites because
they need large tracts of undeveloped MAXI
waterfront land and because land and
labor are cheaper in these areas.
Two potential oil-bearing sites are
At the present.time, the oil com- near South Carolina.
panies have not shown much interest in
the S.E. Georgia Embayment, the only

However, this does not neces-. below the surface and cross under the
sarily mean that the oil companies Sampit River. Supporters of the re-
will not lease these areas in the finery point out that a number of new
future. They may believe that large jobs in the Georgetown area will result
amounts of oil are located there, from both the construction of the re-
but certain factors, such as the finery and its ongoing operations.
depth of water or the composition Finally, oil industry officials note
of the ocean floor, make it too ex- that no new refineries have been built
pensive for them to drill at this on the East coast in several years,
time. But as the technology for oil and that additional facilities, like
drilling improves and oil prices rise, the Georgetown plant, are badly needed.
certain areas in the S.E. Georgia
Embayment may become economically Several state and federal agencies
feasible for future exploration. are currently reviewing the plans to
Thus, areas off South Carolina that see if the new plant will meet existing
the oil companies turned down in regulations. Questions about air and
1978 may be explored after 1981, the water pollution, especially the possi-
date of the next lease sale. bilities of oil spills, must be answered
before permits for construction will
The other area of possible oil be issued.
deposits off South Carolina, the
Blake Plateau, may hold more oil While the Georgetown facility is
than the S.E. Georgia Embayment. the only oil-related facility currently
However, it is in deeper water and proposed for South Carolina, state O'ffi-
further from shore, thus increasing cials expect more will follow. The de-
the costs to the oil companies. Areas mand for new refineries on the East coas
in the Blake Plateau will be leased is likely to increase, and if major oil
in 1984. or gas deposits are found offshore
land-based facilities may be proposed
Even if the two lease areas for several communities. How should
near South Carolina do not Yield South Carolina react to these proposals?
significant finds, coastal communities Should oil companies be encouraged to
may still feel the pressure of oil- locate facilities along the Carolina
related developments. Facilities coast? These are difficult yet un-
needed to support offshore, explora- avoidable questions for the citizens of
tions in other states or to process South Carolina. Decisions made now and
oil from foreign countries may be in the next few years could influence
located in South Carolina. The cur- the future of the coast for decades to
rently proposed oil refinery near come.
Georgetown provides a good example.
The new plant, to be located on the
Sampit River above Winyah Bay, would
refine products from Venezuelan crude
oil. The proposed refinery is a rela-
tively small one, yet will produce
30,000 barrels per day.

In addition, a 3.3 mile pipeline,
connecting the Georgetown harbor area
with the refinery is also proposed.
Two pipelines will be buried six feet

Transparency

SOUTH CAROLINA'S OIL FUTURE?

RALEIGH

COLUMBIA WILMINGTON

*ATLANTA
GEORGETOWN

-\CHARLESTON

SAVANNAH SOUTHEAs-r

G
z P, I
0 G A

-IBAYMENT
zi .. ......

*i _gg
JACKSONVIL2 :.. ..... - h.
BLAKE

PLATEAU

0 MIAMI

UNIT IV: CASE STUDIES IN SHORELINE MANAGEMENT
Lesson 6: SHORELINE MANAGEMENT: STATE INITIATIVES (THE SOUTH
CAROLINA COASTAL COUNCIL)

ADDITIONAL SOUTH CAROLINA MATERIALS

aeading, "Cau.-ht in the Middle: The South Carolina Coastal Council"

OVERVIEW
Students may prepare a research report on the South Carolina Coastal Council
using the suggestions for research in the Teachers Guide or in the Supple-
0
ment. An optional reading on the Coastal Council is also included accompanied
by some discussion questions.

PROCEDURE

1. The materials in the Teachers Guide for this lesson suggest students
investigate and report on their state's coastal zone management program.
In South Carolina, this program is administered by the South Carolina
Coastal Council. The Coastal Council has materials available which
explain the goals and objectives of their program and describe how the
Council makes decisions about the use of coastal resources.

These materials may be obtained by writing:

Louis Hern
Information Specialist
Suite 802, Summerall Center
19 Hagood Avenue
Charleston, S.C. 29403
(803) 792-5808

Speakers and audio-visual materials are also available. Newspaper
clippings from your local paper on the activities of the Council will
be an additional source of information.

All this material could be used by students in preparing a report on
the Coastal Council.

2. If you do not want to assign research reports on this topic, have
students read, "Caught in the Middle: The South Carolina Coastal Council."

Before students begin, however, hold a brief discussion with them to
see how much they remember about the Council. Many of these questions
have been answered in previous lessons:

a. Why was the Coastal Council formed?

b. What are its main fuctions?

c. When was it f6rmed?

d. Who supported the formation of the Coastal Council? Who opposed
it?

e. Do you think the Coastal Council is needed? Does it have too much
or too little authority?

3. After you finish the reading, review these same questions to make sure
students understand some of the "politics" behind the passage of the
original legislation, and some of the Council's important functions.

CAUGHT IN THE MIDDLE.
N THE SOUTH CAROLINA COASTAL COUNCIL

The environmental movement of the Council set to work writing a new law
1960's and 1970's spawned two events which it hoped would pass the General
which helped lay the groundwork for the Assembly and then be signed by the
South Carolina Coastal Council, the Governor. The Council was given a
state agency that now manages develop- three-year "life" through the executive
ment in the state's coastal zone. At order, new legislation would have to
the state level, the environmental move- be written and passed in that time.
ment raised the issue of marshland pro-
tection. Marshes were recognized as
valuable resources that provided a
variety of important functions. (The
worth of the wetlands was further dis-
cussed in the reading, "The Valuable
Marshes of the Low Country"). Yet,
there was no legislation protecting
the marshes. In 1973, the first coastal MAJ
zone management bill, providing for the
preservation of the coastal wetlands,
was introduced in the General Assembly,
but it failed to win much support.

At the national level, one of the
Nixon Administration's responses to Protecting the marsh area of the low
the environmental movement was to sup- country was a major goal of the
port the Coastal Zone Management Act. proposed legislation.
Congress passed this legislation in
1972. The act declared the policy of
the United States would be to "preserve, Supporters of earlier coastal
protect, develop, and where possible, management legislation were supportive
to store or enhance, the resources of of the Council's work, but wanted new
the nation's coastal zone - - ." Each laws passed immediately. Additional
coastal state would receive money from bills were introduced in the State
the Federal Government to begin plan- Senate in 1974, 1975, and 1976, but
ning its own coastal zone management all failed. Two' bills passed the
program. (Further details about the General Assembly, but were vetoed by
national program are included in the a new Governor, Governor Edwards.
reading, "The Coastal.Zone Management
Act of 1972," page 137 in the Student The Coastal Council's first
Readings.) piece of legislation, under the leader-
ship of its chairman, State Senator
In 1973, Governor West created, by James M. Waddell, Jr., from Beaufort
executive order, a Coastal Council and fared no better. It was voted down in
charged it with writing coastal zone 1975. With the defeat of all the pro-
management legislat'ion for the State posed legislation, the future of
of South Carolina as well as developing coastal zone management in South Caro-
a management plan for the coast. The lina looked dim.

Opposition to the legislation 4) There was a general feet@-&ng@:,-'.-
was generally caused by these reasons: among many citizens that
there was no reaLneed".,
for the new Legislation.
Z ) People feared the Legislation Most of the Low country
was a government take-over. remained undeveloped;
There was strong resistance there were miles of un-
to allowing the government spoiled beaches, and
to tell people what to do vast stretches of marsh-j,
with their private property. land. Why all this fuss,
about saving the coast?
2) Many Land developers and
business leaders saw the By 1976, the Coastal Council had
Legislation as an attempt not succeeded in getting new legisla-
to halt development along tion passed. The three-year funding
the coast. period was about to expire when Governor
Edwards announced he would extend the
3) Many people feared that the life of the Council. Although the
new Law would cause them Governor had vetoed two earlier bills,
to Lose title to marshlands he still believed that some type,of
they owned. The new bills coastal management program was needed.
typically said that all Land
beLow the mean high water In 1977, the second Council, began
mark belonged to the state. drafting a new bill. Portions of 6his
Many Land owners claimed bill and two others were combined in
title to this Zand. This the Senate's Fish, Gameand Forestry
was one of the main reasons Committee. This bill, 5280, was given
97 Governor Edwards vetoed approval by the State Senate. Supporters
the two biZIs. of this new bill were able to convince
opponents that the legislation would

SOUTH CAROLINA

Myrtle Beach

Georgetown

CHARLE

The shaded area is within the
Beau@ort" I.urisdiction of the Coastal Council.

Hi 11 on Head Island

not prohibit building along the coast, that on some issues the Council has
but encourage "orderly development." 11sold-out" to developers.
Coastal land owners who had opposed
previous bills dropped their opposition Reactions like these, however,
to the new bill since it contained a make the Coastal Council members
provision allowing citizens to bring think they are doing a good job.
suit against the State in order to Trying to promote both conservation
settle ownership disputes. While the and orderly growth should not pleas e
new bill still declared that all land all the groups all the time. As one
below the mean high water mark belonged Council member said, "If nobody
to the State, the provision for owners yelled at us, we wouldn't be doing
to'bring suit against the State won a good job!"
over the opponents.

In May, 1977 the new bill was
approved by the General Assembly,
and Governor Edwards signed it into law.

The bill contained the following
goals: to promote the economic and
social improvement of South Carolina
citizens, and to protect sensitive
and fragile areas of the coast. The
bill established a permanent Coastal
Council which would be responsible
for granting or denying permits for
activities in "critical areas" of the
coastal zone. Any development in
coastal waters, tidelands, beaches
and primary ocean-front sand dunes
would have to be approved by the
Coastal Council. The other responsi-
bility given the Council was that of
developing and administering a coastal
management program with policies
providing protection for all lands
and waters throuahout the coastal
zone. This would be accomplished
through review and certification
of permits of other government agencies.

During the first years of its
existence, the Council has tried to
steer a middle path between conser-
vation and development. But Council
members have learned the wisdom in
the old saying, "You can't please all
the people all the time.'.' Business
leaders have often criticized the
Council for being "anti-development,"
yet environmentalists have complained

11
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COASTAL PROBLEMS
AND RESOURCE
MANAGEMENT UNIV.
OF HAWII