BIENNIAL REPORT TO CONGRESS 

on 

Coastal Zone Management 

2002-2003 

 

 

Prepared by: 

The National Oceanic and Atmospheric Administration 

United States Department of Commerce

 
Message from the Director 

Managing the use of our precious, sensitive coastal resources is of paramount importance to this 

nation’s future—a fact well understood over 30 years ago during the creation of the Coastal Zone 

Management Act. 

Over the years, the progress envisioned by the Act has been steady. Today there is a strong 

partnership between NOAA and state governments. We are working together to ensure 

economic growth that is well balanced with the protection of our coastal environments. But the 

job is never over. 

Our coastal zone management community continued to grow in 2002-2003. In response to an 

executive order, we created The National Marine Protected Areas Center. In the fall of 2002, 

Indiana became the 34th state or territory with a Coastal Management Program and, on the west 

coast, we welcomed the San Francisco Bay National Estuarine Research Reserve into the reserve 

system. There are now 26 sites in the reserve system, and I am looking forward to the continued 

expansion of this important program so that all biogeographic regions are represented as called 

for by statute. 

During the last two years the Office of Coastal Resource Management (OCRM) has worked 

diligently with states and territories to develop a system to measure the effectiveness of state 

coastal management programs and research reserves. I am pleased to report that pilot phases of 

this measurement system will now begin in 2004. 

We stand ready to continue to link up our partners with the relevant and valuable services 

available from virtually every branch of NOAA—from the latest in observation and monitoring 

technology to innovative educational and training opportunities. OCRM is well positioned to 

face future challenges in its role as a partner with states and local communities in coastal 

resource stewardship. 

This biennial report is particularly timely in light of the forthcoming recommendations from the 

U.S. Commission on Ocean Policy. The effective management of this country's 95,000-plus 

miles of coastline, and how we—the states, territories, and federal government—work in unison 

to ensure these critical resources flourish, will continue to be a challenge. OCRM is ready—and 

able—to meet this challenge as it has for nearly 30 years. 

Eldon Hout 

Director 
Table of Contents 

National Strategy for Coastal and Ocean Management: An Overview.......................4 

• The United States as a Coastal Nation.....................................................4 

• Key Features of the Coastal Zone Management Act....................................4 

The State/Federal Partnership.......................................................................5 

• Programs Created by the Coastal Zone Management Act..............................5 

• New Developments in 2002-2003...........................................................7 

• Coastal State Program Enhancement.....................................................9 

• Evaluations of Coastal Zone Management and National Estuarine Research Reserve 

Programs.....................................................................................9 

• National Coastal Resource Managers’ Survey Results..............................12 

• Developments in Federal Consistency.................................................12 

Progress in Addressing the Major Goals of the Coastal Zone Management Act.........14 

• Coastal Habitats...........................................................................14 

• Coastal Water Quality.....................................................................19 

• Public Access...............................................................................22 

• Coastal Hazards...........................................................................23 

• Coastal Community Development......................................................25 

• Protecting Water Dependent Uses and Revitalizing Urban Waterfronts.........27 

National Estuarine Research Reserve System.................................................28 

• Graduate Research Fellowship.........................................................29 

• System-Wide Monitoring Program.....................................................30 

• Coastal Training Program...............................................................30 

Partnerships to Enhance Coastal and Ocean Management.................................31 

• Working Across National Boundaries 

o Tijuana River National Estuarine Research Reserve.......................31 

o International Brant Goose Monitoring.......................................32 

o The Gulf of Maine Program....................................................32 

• The Coastal States Coordination Committee..........................................33 

• Partnerships for Marine Protected Areas.............................................33 

Research, Education, and Technical Assistance..............................................35 

• The Cooperative Institute for Coastal and Estuarine Environmental 

Technology.................................................................................35 

• Estuary Live and National Estuaries Day.............................................36 

• The Coastal Management Fellowship Program......................................37 

3
National Strategy for Coastal and Ocean Management: An Overview

The United States as a Coastal Nation 

The United States is a coastal nation – both in terms of population and economic activity. While 

coastal counties house nearly 53 percent of the country’s population, they account for just 13 

percent of the continental U.S. land area1

. 

The U.S. coastal zone is home to a variety of valuable economic activities, including: 

commercial and sport fishing, tourism and recreation, and the extraction of minerals, such as oil 

and gas. In addition, the ocean is valued for such uses as: marine transportation, research, and 

military operations. Yet continued population growth and development place pressure on these 

valuable resources. 

In 1972, Congress recognized the importance of meeting the challenge of continued growth in 

the coastal zone and responded to the threats to the nation’s coasts and oceans by passing the 

Coastal Zone Management Act (CZMA). This Act, administered by the National Oceanic and 

Atmospheric Administration (NOAA), provides for management of the nation’s coastal 

resources, including the Great Lakes, by balancing economic development with environmental 

conservation. Careful management of these resources is necessary to ensure that people are able 

to enjoy clean water and a healthy ecosystem that supports a vibrant coastal economy. 

Key Features of the Coastal Zone Management Act 

The CZMA created the National Coastal Zone Management Program and the National Estuarine 

Research Reserve System. Through the CZMA, Congress crafted a unique framework for 

coastal and ocean management with five essential features. The Act is: implemented by states or 

territories, voluntary (while providing federal consistency authority), balanced in its objectives, 

area-based, and performance-based. 

State or Territory Implementation

States and territories design programs that best fit their individual organizational structure, laws, 

and coastal environment. The federal government helps states and territories in program 

oversight and works to unify a national vision for coastal and ocean management. 

Voluntary 

States and territories have several incentives to participate. The two primary incentives for 

participating are financial assistance for program administration and federal consistency 

authority. Through the CZMA, federal dollars are matched by state dollars to implement 

state/territorial coastal management programs and research reserves. The CZMA’s federal 

consistency provision gives coastal states and territories an important voice in the future of their 

coastal areas by ensuring that land and water uses are compatible with each state’s laws and 

policies.

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Balanced Objectives 

With its call to “preserve, protect, develop, and, where possible, to restore or enhance the 

resources of the nation’s coastal zone,” the program was one of the first to embrace the notion 

that it is possible, and essential, to balance coastal development with maintaining environmental 

quality. 

Area-Based 

Many other coastal and ocean programs manage resources of the coastal zone for a single 

purpose (such as fisheries management or oil and gas development). In contrast, the CZMA 

aims to manage the entire coastal area, including both land and water onshore as well as 

offshore, and involving ocean uses such as fisheries, recreation, marine transportation, and 

others. National estuarine research reserves are protected areas that are owned and managed by 

state agencies or universities. 

Performance-Based 

Program evaluation is built into the CZMA. The Act calls for periodic reviews of coastal 

management programs and national estuarine research reserves to determine if states and 

territories are implementing and enforcing approved programs and addressing national goals. 

The State/Federal Partnership 

Programs Created by the Coastal Zone Management Act 

The CZMA created an enduring partnership between the federal government and coastal states 

and territories to manage the coastal zone, establishing the world’s first coastal management 

program. 

The National Coastal Management Program 

The National Coastal Management Program encourages coastal states, territories, and the federal 

government to work together. It is the only program of its kind to address coastal issues in a 

comprehensive, integrated way. By leveraging federal and state matching funds, this program 

gives states flexibility to design a program that accommodates their unique coastal challenges 

and legal framework. Thirty-four of the 35 eligible coastal and Great Lakes states and territories 

(29 coastal states and five island territories — all except Illinois) have developed approved 

coastal management programs. These programs protect more than 99 percent of the nation’s 

95,331 miles of ocean and Great Lakes coastline. 

Together, the 34 coastal programs represent federalism at its best: diverse state and territory 

programs responding to their specific needs, tied together in one national framework committed 

to coastal zone management that meets both development and conservation objectives. 

5
The National Estuarine Research Reserve System 

The National Estuarine Research Reserve System helps fulfill the Act’s stewardship mission to 

sustain healthy coasts by improving the nation's understanding and stewardship of estuaries. 

Estuaries are areas where freshwater from rivers mixes with seawater. They represent important 

coastal habitats that are used as spawning grounds and nurseries for at least two-thirds of the 

nation’s commercial fish and shellfish. The wetlands associated with estuaries buffer uplands 

from flooding. Estuaries also provide many recreational opportunities, such as swimming, 

boating, and bird watching.

Each estuarine research reserve is a living laboratory in which scientists conduct research and 

educators communicate research results. Reserve staff members work with local communities 

and regional groups to address natural resource management issues. Through integrated research 

and education, the reserves help communities develop strategies to deal successfully with coastal 

resource issues. The national system now includes 26 reserves in 17 of the 29 biogeographic 

sub-regions in 21 coastal states and territories. 

NOAA’s Office of Ocean and Coastal Resource Management 

NOAA provides leadership in crafting a national vision for ocean and coastal resource 

management. NOAA’s Office of Ocean and Coastal Resource Management (OCRM) 

coordinates this leadership, guidance, and support by: 

q Administering financial support for coastal management programs and estuarine reserves; 

q Coordinating and evaluating coastal management programs and estuarine reserves and 

providing assistance for program improvement; 

q Providing management assistance, such as mediating multiple use conflicts, helping to 

interpret statutory and regulatory requirements, assessing and approving changes to state 

programs, coordinating with the rest of NOAA and other federal agencies to meet state 

information and technical needs; and 

q Cooperating with the states and territories, other federal agencies, and citizens to develop 

and implement regional approaches to coastal and ocean governance. 

NOAA Resources Supporting States and Territories 

NOAA established the Coastal Services Center in 1994 to serve those state coastal management 

programs created by the Coastal Zone Management Act. The Center works with state and local 

organizations to address specific issues, such as flooding, dock permitting, erosion control, and 

competing development demands. The Center brings new sources of expertise, information, and 

technology to these state partnerships. 

The Center’s primary areas of expertise lie in Geographic Information Systems (GIS), remote 

sensing, and training and information for coastal resource managers. Efforts include remote 

sensing to detect and document land-cover changes and trends, courses that teach new technical 

and nontechnical skills to state employees, and decision-support tools that focus on issues that 

6
range from hazard mitigation to habitat restoration. The lessons learned and the technologies 

developed from each project are shared with states and communities in similar circumstances. 

The National Marine Protected Areas (MPA) Center, a partnership between the Department of 

Commerce and the Department of the Interior, supports the Coastal Zone Management Act 

through the marine managed areas inventory, which will be a complete database of state, 

territory, and commonwealth protected areas for resource management and analysis purposes. 

The MPA Center also provides staff support to coastal programs through interns who help in the 

data collection for the marine managed areas inventory. 

The Cooperative Institute for Coastal and Estuarine Environmental Technology (CICEET) is a 

partnership between NOAA and the University of New Hampshire to develop innovative 

technologies for monitoring, managing and preventing contamination and degradation in 

estuaries and coastal waters. CICEET serves the coastal zone management programs by 

developing techniques to remediate toxic contaminates, microbial contaminates, nutrient 

enrichment and habitat loss. 

 

Funding 

Expenditures for CZMA programs in FY 2002 and 2003 are noted in Appendix A. 

 

New Developments in 2002-2003 

The coastal zone management community continued to grow and evolve in 2002—2003. New 

programs were added to both the Coastal Zone Management Program and the National Estuarine 

Research Reserve System. OCRM also made progress toward measuring effectiveness from a 

nationwide perspective. 

Approval of Indiana’s Coastal Management Program 

In September 2002, state and federal representatives commemorated Indiana’s approval as the 

34th coastal management program. The Department of Natural Resources, Division of Soil 

Conservation is the lead agency for the newly approved program. Goals include: protection and 

restoration of significant natural resources, prevention of loss of life an property in coastal 

hazard areas, improved public access to Lake Michigan, improved government coordination and 

policy and decision making, and revitalization of urban waterfronts and ports.

Approval of the San Francisco Bay National Estuarine Research Reserve

In August 2003, NOAA formally designated the San Francisco Bay National Estuarine Research 

Reserve. The reserve is a partnership among NOAA, San Francisco State University’s Romberg 

Tiburon Center, California State Parks, the Solano Land Trust, and the Bay Conservation and 

Development Commission. The reserve covers over 3,700 acres in two sites: China Camp State 

Park (1,640 acres), in Marin County, and the Rush Ranch Open Space Preserve (2,070 acres), in 

Solano County. 

 7
The federal designation completed a process that began with a 1989 application to join the 

program. The focal point for research, education, and stewardship in the San Francisco Bay 

Reserve is tidal marsh restoration. 

The Proposed Texas National Estuarine Research Reserve 

The University of Texas Marine Science Institute initiated site selection for a proposed Texas 

Reserve in 2002. The Marine Science Institute convened committees to select and evaluate 

potential sites. The committees recommended the Mission-Aransas Estuary as the location, and 

there was strong public support for the proposed site. The site nomination package will be 

submitted to the Governor in 2004 for his approval and submission to NOAA. The proposed 

reserve will add a new biogeographic sub-region to the National Estuarine Research Reserve 

System.

Progress on Marine Protected Areas Executive Order 13158 

The Marine Protected Areas (MPA) Federal Advisory Committee was formed during 2003 and 

held its first meeting in Washington, D.C. in June 2003. The Committee’s responsibilities 

include providing recommendations to the Secretaries of the Departments of Commerce and the 

Interior on implementing Section 4 of the MPA Executive Order. The National MPA Center 

supports the Committee, working in cooperation with the Department of the Interior. 

Measuring Effectiveness 

While the coastal states and territories and NOAA have been working to achieve the goals of the 

CZMA, quantifying those successes at the state and national level presents a challenge. The 

challenge stems from the complexity of coastal management issues, the physical and ecological 

diversity of the coasts, and the difficulty of measuring the value of good management in 

preventing harmful environmental impacts. The challenge is heightened because a baseline 

measurement of the nation’s coasts was not established at the program’s outset in 1972. Without 

baseline data to compare, it is difficult to measure the direct benefits of improvements made by 

coastal management programs and reserves. OCRM is working on several fronts to develop and 

implement a national system to measure the effectiveness of the National Coastal Management 

Program and the National Estuarine Research Reserve System. Through partnerships with the 

coastal states and territories and the H. John Heinz III Center for Science, Economics and the 

Environment, OCRM is developing the National Coastal Management Performance 

Measurement System. OCRM has conducted assessments of the current use of performance 

measures by all coastal management programs and reserves. Using the information collected, 

OCRM worked with coastal management programs and reserves to identify and develop a suite 

of environmental and programmatic indicators. 

Under the National Coastal Management Performance Measurement System, coastal 

management programs and reserves may collect and report on different, but complementary, sets 

of indicators due to their different goals and responsibilities. Thus, indicator data from the 

National Coastal Management Program and the National Estuarine Research Reserve System 

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will complement each other and results may be aggregated across programs and reserves to 

assess the national impact. 

In FY 2004, OCRM will begin preliminary implementation of the National Performance 

Measurement System through pilot projects for coastal management programs and a subset of 

measures for all reserves. 

Coastal State Program Enhancement 

CZMA Section 309, the Coastal Zone Enhancement Grant Program, provides funding to states 

and territories to improve coastal programs in any of nine areas of national significance. 

Funding does not need to be matched with state funds. 

As a part of the Section 309 grant process, all coastal management programs assess the nine 

enhancement areas in their state. Coastal management programs develop multi-year strategies to 

address issues they identify as high priorities. The strategies outline activities and funding levels 

that will lead the state or territory to specifically defined program changes. 

During 2002—2003, state and territory coastal programs made significant progress in 

implementing Section 309 strategies that were developed for the FY 2001—2005 funding period 

Information provided in the states’ FY 2001 assessments identified national trends in coastal 

priorities, science and management needs, and policy and decisionmaking implications (see box). 

OCRM used this information to frame the agenda of a joint federal-state coastal zone 

management strategic planning workshop held in November 2002. 

Ranking of Coastal Enhancement Program Areas in Section 309 Assessments 

1. Control of cumulative and secondary impacts from development 

2. Wetland protection and restoration 

3. Protection from coastal hazards 

4. Management of ocean resources 

5. Public access to coastal areas 

6. Special area management planning 

7. Reduction of marine debris (tie) 

7. Facilitating the siting and permitting of aquaculture facilities (tie) 

9. Siting of federal and energy facilities

Evaluations of Coastal Zone Management and National Estuarine Research Reserve 

Programs 

The CZMA calls for periodic performance reviews of all state and territorial coastal management 

programs and estuarine research reserves. The reviews assess whether the state lead agency is 

implementing and enforcing the essential elements of the approved program; playing a 

leadership role in coastal issues; monitoring the actions of state agencies and local governments; 

basing decisions on enforceable policies of the program; assuring the opportunity for full public 

 9
participation; addressing national coastal zone management needs; and adhering to the terms and 

conditions of any financial assistance awards. 

The evaluation process consists of four distinct components: (1) preliminary review of relevant 

program documents, grants, work products, and correspondence; (2) a site visit to the state or 

territory during which an evaluation team interviews program staff, other federal and state 

agency staff, and various public and private interest groups; (3) a public meeting; and (4) followup contacts with selected parties. 

Historically, OCRM has evaluated coastal management programs and reserves separately. For 

efficiency and to look at issues common to both programs, OCRM is moving toward joint 

evaluations of coastal management programs and reserves in a state when a joint evaluation is 

appropriate. In the last two years, OCRM has conducted joint evaluations in Delaware and 

Massachusetts. 

During FY 2002—2003, OCRM completed performance evaluations (including issuance of final 

findings) of the following programs: 

Coastal Management Program Evaluations

• California 

• Delaware 

• Georgia 

• Hawaii 

• Louisiana 

• Michigan 

• Mississippi 

• Pennsylvania 

• Puerto Rico 

• Rhode Island 

• South Carolina 

• Washington

National Estuarine Research Reserve Evaluations

• ACE Basin (South Carolina) Reserve 

• Delaware Reserve 

• Great Bay (New Hampshire) Reserve 

• Jobos Bay (Puerto Rico) Reserve 

• Rookery Bay (Florida) Reserve

OCRM also conducted evaluation site visits for the following coastal programs — Alaska, 

Connecticut, Guam, Massachusetts, New Hampshire, North Carolina, Oregon, Rhode Island, 

U.S. Virgin Islands, and Virginia coastal management programs; and national estuarine research 

reserves—Chesapeake Bay (Maryland), Chesapeake Bay (Virginia), Jacques Cousteau (New 

 10
Jersey), Kachemak Bay (Alaska), Old Woman Creek (Ohio), Waquoit (Massachusetts). 

Evaluation findings will be published following the end of this biennium. 

Common themes: 

The evaluations conducted in the last biennium show accomplishments among diverse coastal 

management programs. For example, most programs coordinate well with federal, state, and 

local government officials and private organizations to obtain multi-disciplinary solutions to 

complex issues. In Oregon, the Coastal Program’s natural hazards policy working group 

advanced recommendations that resulted from an earlier analysis of existing policy at the state 

and local level. Accomplishments include: GIS development, a report on shore-front protection 

structures, a landslide module for the Oregon Coastal Atlas, technical reports, and updated local 

planning requirements with amendments specific to natural hazards. 

Many programs have developed solutions and coordinated responses to issues and have also 

influenced the development of initiatives and scientific research to meet the goals and objectives 

of the CZMA. The Virginia Coastal Policy team includes the Chesapeake Bay (Virginia) 

Reserve and the Virginia Coastal Management Program and provides a forum for management 

issues such as coordinated shoreline management. The reserve also helped the Virginia Office of 

Surface and Water Quality develop standards for regional water quality monitoring systems. 

Finally, many programs are increasing the use of high quality geographic information 

technologies and applications in their management efforts. They are also forming partnerships to 

collect data, conduct training, and identify uses of GIS data. For example, the Delaware Coastal 

Management Program entered into an agreement with state resource management agency 

partners to use GIS to determine the scope of proposed projects and whether a comprehensive 

review was needed. 

In addition to identifying a common set of accomplishments, the evaluations also revealed 

common challenges facing state programs. For example, states are facing challenges in 

committing funding to program implementation because of budgetary constraints. As a result, 

staff positions remain vacant and participation on initiatives is affected. Several programs are 

subject to state policies that restrict travel to national meetings, despite the provision of federal 

funds for these purposes. 

Changes in state leadership resulted in the reorganization of several programs. 

Recommendations were made by NOAA to organize the programs most effectively within the 

state government structure and ensure resources are available for program support. 

Evaluations also identified challenges with performance reports, financial reports, and grants 

management. Recommendations called for states to modify their grant cycles to coincide with 

NOAA fiscal years. Evaluations also recommended states give priority to program requirements 

including management plan revisions, submission of program changes, and program document 

updates. 

 11
National Coastal Resource Managers’ Survey Results 

Every three years, NOAA’s Coastal Services Center conducts a customer survey of state and 

local coastal management programs. The survey offers a snapshot of the needs and capabilities 

of this community. In 2002, more than 400 individuals completed the survey with an overall 

response rate of 74 percent. 

he following represents some of the survey results.2 T

• Respondents expressed a need to increase their knowledge in the fields of social sciences, 

technology, and management skills. 

• Tight budgets make travel an important issue, so coastal managers preferred to have the 

training programs delivered to them instead of the other way around. 

• Spatial data are used to address many high priority issues, including habitat restoration 

and monitoring, land use planning, watershed planning, water quality monitoring, and 

nonpoint source pollution. 

• A variety of technology-based tools, including geographic information systems (GIS) and 

the Internet are becoming nearly commonplace for the coastal resource management 

community. 

Developments in Federal Consistency

Federal Consistency History 

The CZMA strikes a balance between the need to conserve coastal resources and the need to 

provide for development, recreation, and other priority uses of the coastal zone. The Act gives 

states the primary authority to determine how best to achieve this balance, but requires them to 

give priority consideration to coastal dependent activities that are of national interest, e.g., siting 

of energy facilities, national defense, ports. 

Under the CZMA, a state’s primary ability to review federal actions is through section 307, 

commonly known as the federal consistency provision. Federal consistency requires that Federal 

agency activities be consistent to the maximum extent practicable with the enforceable policies 

of state coastal management programs approved by NOAA. Activities by non-federal applicants 

for federal authorizations and funding must be fully consistent with the enforceable policies of 

coastal management programs. 

Because actions by the federal government can impact the coastal zone, the federal consistency 

authority is the primary incentive for many states to participate in the coastal management 

program. While there is often negotiation between Federal agencies and non-federal applicants 

under this authority, states concur with approximately 93 to 95 percent of all federal actions 

reviewed. 

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OCRM has updated its federal consistency website to now include a wide range of federal 

consistency information, including the “Federal Consistency Workbook” and “Federal 

Consistency News,” which replace the previous hard-copy Federal Consistency Bulletins.3

 

Recent Developments in Federal Consistency – Energy 

In February 2001, Vice President Cheney established the National Energy Policy Development 

Group to bring together business, government, local communities, and citizens to promote a 

dependable, affordable, and environmentally sound national energy policy. The Energy Report 

was sent to President Bush on May 16, 2001. 

The Energy Report contains numerous recommendations to meet these goals. The Energy 

Report found the effectiveness of CZMA programs is “sometimes lost through a lack of clearly 

defined requirements and information needs from federal and state entities, as well as uncertain 

deadlines during the process.” To address these issues, the Energy Report recommended that the 

Department of Commerce “determine if changes are needed regarding energy-related activities 

and the siting of energy facilities in the coastal zone.”4

To address these recommendations, in July 2002, NOAA published an Advanced Notice of 

Proposed Rulemaking (ANPR) seeking comments on whether improvements should be made to 

NOAA’s federal consistency regulations. In June 2003, NOAA published a proposed rule 

responding to the recommendations contained in the Energy Report and comments received on 

the ANPR.5

 NOAA received 3,066 comments from the House of Representatives, the Senate, 

states, industry, environmental groups, Federal agencies, and the public. Most strongly opposed 

any changes to NOAA’s rules. The proposed rule, related public documents, and comments are 

available online.6 

Progress in Addressing the Major Goals of the Coastal Zone 

Management Act 

In May 2003, the H. John Heinz III Center for Science, Economics, and the Environment 

concluded an 18-month study, Developing a Framework for Identifying Performance Indicators. 

The study, commissioned by NOAA, identifies six shared national and state coastal resource 

goals, based on the objectives of the CZMA. This section describes NOAA’s accomplishments 

over the last two years in each of the six goals chosen by the Heinz Center: Coastal Habitats, 

Coastal Water Quality, Public Access, Coastal Hazards, Coastal Community Development, and 

Coastal-Dependent Uses. 

Coastal Habitats 

Section 302 (d) of the CZMA finds, “the habitat areas of the coastal zone, and the fish, shellfish, 

other living marine resources, and wildlife therein, are ecologically fragile and consequently 

extremely vulnerable to destruction by man’s alterations.” These vulnerable resources are also 

extremely valuable. Coastal and estuarine habitats provide a home for threatened species 

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ranging from salmon to sea turtles to manatees. Commercial fisheries alone provide $3.6 billion 

to the U.S. economy each year.7

 And healthy coastal habitats also provide ecosystem services 

that are important for people, including filtering runoff and providing recreational opportunities. 

To protect these precious resources, NOAA’s National Ocean Service administers several 

programs designed to protect habitats ranging from dunes in the Great Lakes to coral reefs in 

Guam.

Coastal and Estuarine Land Conservation Program 

The Coastal and Estuarine Land Conservation Program (CELCP) was established by the 

Appropriations Act of 2002 (P.L. 107-77) to help protect estuaries and coastal lands. The 

program provides coastal states with funding for projects that ensure conservation of these areas 

for the benefit of future generations.8 NOAA completed guidance for the program as required in 

the Appropriations Act of 2002. The guidelines describe the criteria for grant awards and 

establish the process for competitive funding when funds become available for that purpose. 

Coastal states with a federally approved coastal management program or estuarine research 

reserves are eligible to participate in the program. A state is eligible to submit projects for 

competitive funding at the national level once it has developed and received approval of a 

Coastal and Estuarine Land Conservation Plan. The state must be able to match CELCP funds, 

one-to-one, from other funding sources. 

CELCP funds are intended to complement current federal, state, and local coastal and estuarine 

conservation plans. To be considered, the project must: 

q Protect coastal or estuarine areas that have significant conservation, recreation, 

ecological, historical, or aesthetic values, or that are threatened by conversion from their 

natural or recreational state to other uses; 

q Give priority to lands that can be effectively managed and protected; and 

q Advance the goals, objectives or implementation of federal, regional, state or local 

coastal management plans. 

In FY 2002—2003, $51 million was appropriated for 40 Congressionally-directed projects in 

coastal and estuarine areas. In one project, the Mississippi Secretary of State received CELCP 

funding to help support the acquisition of Deer Island. The undeveloped island, located off 

Biloxi in the Mississippi Sound, had been targeted by developers for conversion to casinos. 

Instead, it became a part of the state's Coastal Preserve System, ensuring the permanent 

protection of 500 acres of tidal marsh, forested upland, and sand beaches. Deer Island will be 

maintained primarily as wildlife habitat but will be open to the public for recreational activities 

such as fishing and hiking. Mississippi met the one-to-one match obligation principally with 

state bond funds generated by tidelands leases from casino operations. 

Implementation of the Coastal Impact Assistance Program 

The Coastal Impact Assistance Program (CIAP) was a single year appropriation of nearly $150 

million in FY 2001 to help states and local communities mitigate the impacts of Outer 

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Continental Shelf oil and gas development and production. Alabama, Alaska, California, 

Florida, Louisiana, Mississippi, Texas, and 147 localities within those states received funds. 

States and counties completed the first year of CIAP implementation in March 2003, and most 

projects are still underway. Most projects align with CZMA goals, so eligible states and counties 

were able to use CIAP funding to augment CZMA grants. Accomplishments include: 

• In Alabama, CIAP funds were used to acquire nearly 1,000 acres in the Mobile-Tensaw 

Delta. An aquatic inventory and research on native species on the acquired lands will 

improve habitat conservation. Creation of a Mobile-Tensaw canoe trail and public access 

enhancements at Chickasabogue Park and Dead Lake Marina will increase public access. 

• In Mississippi and Texas, more than 14,000 acres were acquired for conservation and 

recreation. These acquisitions include some 2,500 acres of wetlands. Most of these areas 

will remain pristine, though some will provide public access. 

• In Florida, the Clay County Manatee Protection Plan and the Indian River County Sea 

Turtle Habitat Conservation Plan will help protect endangered species. Reef habitat 

mapping in Broward County and vegetative dune stabilization in Brevard County will 

contribute to habitat conservation. 

• In California and Alaska, CIAP has funded regional resource inventories and habitat 

survey reports. 

Implementation of the Great Lakes Coastal Restoration Grant Program 

The Great Lakes Coastal Restoration program (P.L. 106-553) provided $30 million in grants in 

FY 2001 to Great Lakes states and their local partners for community based habitat restoration 

and acquisition projects. The Great Lakes region was able to leverage the $30 million in federal 

funding with an additional $42 million in state and local match. 

Implementation of the one-year program began in FY 2002. The Great Lakes states — Illinois, 

Indiana, Michigan, Minnesota, New York, Ohio, Pennsylvania, and Wisconsin — are currently 

in the process of implementing selected restoration projects. Funded projects include wetland 

and dune habitat restoration, invasive species removal, brownfields cleanup, storm water 

management, and acquisition of over 2,700 acres of critical coastal habitat. More than 70 local 

government units are partnering in this restoration program. 

The Lion’s Den Gorge Natural Area acquisition project in Ozaukee County, Wisconsin, provides 

one example of a highly successful preservation partnership funded by the Great Lakes Coastal 

Restoration program. The Ozaukee County Land and Water Conservation District worked with 

the Wisconsin Coastal Management Program, as well as a number of local and state entities, to 

purchase this pristine 79-acre coastal property located in one of the fastest developing regions 

within the state. The parcel contains a diverse mixture of grassland, wet meadows, woods, 

wetlands, and bluff areas, which provide habitat for migratory birds, game birds and waterfowl, 

amphibians, and mammals. Nearly a mile of Lake Michigan bluff and shoreline was preserved 

through this acquisition, which will be established as an Ozaukee County Park. After acquiring 

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the Lion’s Den Gorge property, Ozaukee County has continued to work with the Wisconsin 

Coastal Management Program to improve public access and educational opportunities in this 

unique coastal area. 

Habitat Conservation at the National Estuarine Research Reserve System 

The National Estuarine Research Reserve System provides long-term protection of natural 

resources within the system’s 26 reserves and is a model for responsible management practices. 

Stewardship involves research, monitoring, education, policy, and resource management. Since 

reserve resources are often affected by external activities, stewardship coordinators team with 

other reserve staff and cooperate with stakeholders outside the reserve. The system-wide 

program provides leadership, coordination, technical support, and consistency for activities at 

national, regional, and local levels. 

During FY 2002 and 2003, over $12.4 million in base procurement, acquisition, and construction 

funding was awarded to reserves for land acquisition and construction projects, ranging from 

renovation and expansion projects for education and interpretive facilities, dormitories for 

visiting scientists and teachers, research labs, enhancements for public access, and acquisition of 

key land parcels for research, education and stewardship activity. In FY 2002 and 2003, the 

reserve system acquired more than 13,500 acres. 

Stewardship activities include: land acquisition, habitat mapping, ecological restoration, resource 

inventories, biological monitoring, watershed management projects, endangered species 

protection, prescribed fire management, recreation management, regional planning, and policy 

development. 

Key accomplishments include: 

• In 2003, the Narragansett Bay Reserve, in Rhode Island, restored five acres of salt marsh in 

cooperation with federal and private partners. Two collapsed culverts were replaced to 

restore normal tidal flow. Shore birds and fish are now using the marsh. 

• The Grand Bay Reserve, in Mississippi, in cooperation with the Mississippi Sandhill Crane 

National Wildlife Refuge, developed a prescribed burn plan to restore longleaf pine savanna 

habitat. 

• The Elkhorn Slough Reserve, in California, continued to monitor and control invasive 

species using an integrated approach of applied research and public education. 

• The Chesapeake Bay Reserve, in Maryland, successfully conducted multiple volunteer-based 

plantings to restore submerged aquatic vegetation as part of an ongoing partnership with the 

Chesapeake Bay Foundation. Experimental plantings were conducted at two reserve 

components to establish native beds and promote education within the community. 

• The Hudson River Reserve, in New York, partnered with the Hudson River Estuary Program 

to map the entire benthos of the estuary. The results have been identification of sediment 

characteristics, erosion and deposition zones, and benthic features that could represent 

important habitat and historic ship wrecks dating to the Revolutionary War. 

Marine Managed Areas Inventory 

 16
A Marine Managed Areas (MMA) inventory team was created to begin collecting data as a 

precursor to the MPA list called for in Executive Order 13158. The inventory team is comprised 

of NOAA and other federal and state staff. An advisory group, including nine representatives 

from states, commonwealths, and territories, has provided guidance to NOAA throughout the 

inventory process. 

About 300 sites are currently included in the inventory, with additional data being collected from 

20 states, commonwealths, and territories. Efforts are underway to collect data on tribal MMAs, 

in cooperation with tribal officials. Data from federal sites are nearly complete, with more than 

300 sites currently included in the inventory. These federal sites include all 26 national estuarine 

research reserves and other NOAA and Department of the Interior program sites. When the 

inventory is complete, it is estimated there will be between 1,000 and 1,500 sites in the database. 

Resource managers will use this information to better manage these areas and determine the 

effectiveness of individual sites, as well as regional and national groupings. The inventory 

provides: an initial understanding of what, why, and where marine areas are managed in the 

United States; a standard database across programs, government agencies, and government 

levels; management and policy decision support; and a foundation for building both regional and 

national networks. 

The MMA inventory and the MPA list are two separate actions. The inventory is being 

completed first. Data in the inventory will be used to assess whether or not specific sites meet 

the criteria to be placed on the list of MPAs. Sites that do not meet all of the criteria for 

placement on the MPA list will be maintained as part of the MMA inventory. 

The criteria for developing the list of MPAs have not been determined yet. The Executive Order 

states that the list of MPAs, which will help in the development of a national system of MPAs, 

should be science-based and effective. The criteria for developing the List of MPAs will be 

determined through an open and public process

The Office of Ocean and Coastal Resource Management’s Coral Activities 

OCRM leads the coordination of NOAA’s Coral Reef Conservation Grant Program and 

administers and manages grants awarded through the State and Territory Coral Reef 

Management Grant Program. OCRM is a key partner in local initiatives of the NOAA Coral 

Reef Conservation Program in American Samoa, Florida, Guam, Hawaii, the Commonwealth of 

the Northern Mariana Islands, Puerto Rico, and the U.S. Virgin Islands. OCRM has awarded 

approximately $4 million to the seven states and territories with tropical coral reef resources. 

The states and territories have used this funding locally for coral reef management, including the 

establishment of new marine protected areas, outreach and education materials, personnel, 

reducing nonpoint pollution impacts to coral reefs, and reducing anchor damage through the 

installation of mooring buoys. 

Through the coral program, OCRM also works directly with the states and territories to identify, 

develop, and support priority technical assistance. This includes the U.S. Coral Reef Task Force 

initiative to develop local action strategies to address major threats to coral reef ecosystems, such 

 17
as land-based pollution, overfishing, and recreational overuse. OCRM assisted the jurisdictions 

in bringing stakeholders together to develop local action strategies to address these threats. 

Currently, OCRM is supporting NOAA Coral Program coordination with U.S. Coral Reef Task 

Force federal partners to address capacity and implementation needs within local agencies. 

Other coral management technical assistance activities that support state and territory priority 

needs include: 

• a two-year coral reef management assistantship program developed in partnership with 

NOAA’s Coastal Services Center; 

• workshops on vessel groundings, coral reef economic valuation, and marine protected 

area management plans development; 

• the first economic valuation of coral and coastal reef resources in the island jurisdictions; 

• the inventory, summary, and analysis of U.S. coral reef marine managed areas in 

conjunction with the national marine managed areas inventory; and 

• pilot projects, in collaboration with the NOS International Programs Office, to test marine 

protected area management effectiveness indicators. 

The Southern California Wetlands Recovery Project 

The Southern California Wetlands Recovery Project is working to protect streams. Identifying 

and prioritizing the wetlands and watersheds to target for acquisition, restoration, or 

enhancement is an important part of this effort. The NOAA Coastal Services Center is assisting 

with remote sensing data to delineate watersheds and sub-watersheds, calculate stream sinuosity 

and entrenchment, and identify flood control structures. This data will be available on the 

Center’s website in the summer of 2004. 

Making Comprehensive Information Readily Available Improves Decisionmaking in Rhode 

Island 

Coastal managers in Rhode Island developed a website that provides in-depth information about 

habitat restoration. The Rhode Island Habitat Restoration Portal includes habitat descriptions, 

maps, spatial data, permitting and funding information, and tools for evaluating and prioritizing 

current and proposed restoration projects. GIS tools use socioeconomic and ecological data to 

identify and prioritize restoration opportunities based on user-selected criteria. The tools focus 

on anadromous fish run habitats, seagrass habitats, and salt marshes. 

Partners for this project include the Rhode Island Coastal Resources Management Council, the 

Narragansett Bay Estuary Program, Save The Bay, and NOAA’s Coastal Services Center. 

Coastal Water Quality 

Coastal states and territories have continued to improve their programs to protect and restore 

coastal waters from the harmful effects of polluted runoff. Many state and territory efforts 

related to coastal nonpoint source pollution are the result of their continued work to meet the 

requirements of Section 6217 of the Coastal Zone Act Reauthorization Amendments of 1990. 

Section 6217 requires states to develop and implement “coastal nonpoint pollution control 

 18
programs.” Under the Coastal Nonpoint Program states use a consistent set of management 

measures or “best management practices” to solve runoff pollution problems. State and 

territorial programs incorporate these management measures into a comprehensive plan to 

address land-based sources of runoff from agriculture, forest harvesting, urban construction and 

development, marina activities, and modifications of natural drainage patterns. States and 

territories provide accountability for their efforts through a number of tools, including 

regulations, voluntary 

approaches backed by 

enforceable policies, and 

outreach and education. State 

and territory coastal nonpoint 

programs are focused on 

pollution prevention—limiting 

and controlling runoff pollution 

before problems occur. 

All states and territories 

participating in CZMA have 

successfully developed 

frameworks for solving their 

unique coastal runoff pollution 

problems, as required by Section 

6217. Indiana, a recent entrant to 

the coastal zone management 

program, is in the process of developing its coastal nonpoint program. 

Coastal Nonpoint Program Approvals (2002-2003) 

Coastal Nonpoint Program Full Approvals 

US Virgin Islands February 2002 

Delaware February 2002 

Wisconsin January 2003 

American Samoa May 2003 

Maine May 2003 

North Carolina May 2003 

Commonwealth of the June 2003 

Northern Mariana Islands 

Connecticut September 2003 

Coastal Nonpoint Program Conditional Approvals 

Ohio June 2002 

Georgia June 2002 

Minnesota March 2003 

Texas March 2003 

Following initial review of nonpoint programs, NOAA and EPA issued conditional approval of 

all plans, and identified areas where work remained to meet program requirements. Sixteen 

states and territories have now achieved full approval, eight occurring in the past two years. Full 

approval means a state or territory has developed a program and is equipped to implement the 

full range of available solutions to coastal nonpoint pollution problems. Four states — Texas, 

Georgia, Ohio, and Minnesota — joined the National Coastal Zone Management Program after 

the July 1995 coastal nonpoint program submittal deadline and received conditional approval of 

their coastal nonpoint programs in the last two years.

Highlights of State and Territory Success 

• Maryland continues to strengthen its Coastal Nonpoint Program through targeted 

implementation. For example, the state has been targeting funds to address on site sewage 

disposal systems. Funds are supporting: training workshops for state and local government 

staff, septic system inventories, database development; and management strategies to guide 

on site sewage disposals system siting, design, and maintenance. 

• Wisconsin passed the nation's most comprehensive nonpoint source regulations to achieve 

full approval of its coastal nonpoint program. The rules outline performance standards for 

 19
various sources of polluted runoff ranging from agriculture to urban storm water; identify 

appropriate best management practices for runoff control; and enhance existing cost-share 

programs. 

• The Commonwealth of the Northern Mariana Islands has amended its individual wastewater 

disposal and coastal resource management regulations to establish minimum standards for 

animal waste treatment, protect sensitive areas, preserve riparian buffers, reduce storm water 

runoff, and ensure that marinas will be sited and operated in an environmentally sound 

manner. 

• Connecticut's Coastal Nonpoint Program is founded on strong partnerships between the many 

state agencies and outside organizations that help implement the program. For example, a 

committee of state agencies and industry representatives initiated a clean marinas program to 

acknowledge marina owners who implement environmentally sound marina management 

practices. Strong interagency collaboration also facilitated the development of a 

comprehensive manual on best management practices for site development. 

• The U.S. Virgin Islands' legislature passed innovative rules on the use of alternative septic 

systems to deal with on site sewage disposal. The new regulations require the use of 

alternative systems, such as closed, gravel and soil-filled cells, and wetland plants to treat 

sewage where appropriate. The rules also require maintenance and routine inspections of all 

alternative systems to ensure they will function properly. 

Federal Investments Leverage Coastal States’ Dividends 

Over the past two years, Congress has authorized $20 million for implementation of state coastal 

nonpoint pollution control programs. These resources have enabled for the coastal management 

programs to apply their unique capabilities to control coastal nonpoint pollution by supporting 

important administrative and project-oriented needs. 

NOAA has encouraged states to target implementation funds toward three priority areas: septic 

systems, clean marinas, and capacity building. These areas have a coastal focus and are often 

not addressed directly through other federally funded nonpoint source programs. By targeting a 

portion of coastal nonpoint funds to these priority areas, OCRM and its state and territory 

partners are filling gaps left by other programs. Examples of how coastal states and territories 

are investing in these priority areas include: 

1. Clean/Green Marinas—supporting programs that improve marina and recreational boating 

facilities management through practices such as environmentally sound vessel maintenance, spill 

prevention, and proper sewage disposal. Clean Marina programs are one of the most visible 

ways to educate citizens about nonpoint source pollution and their individual impacts on coastal 

ecosystems. 

 20
 21

2. Improved Management of Septic Systems—working with state and territory health agencies 

and local governments to ensure proper design, installation, and maintenance of septic systems to 

better protect water quality, public health, and coastal shellfisheries. 

3. Strengthening State/Territory and Local Capabilities—improving the available tools and 

decisionmaking capabilities of states, territories and local institutions to plan for and manage 

expanding growth and development in the coastal zone. For example, states are encouraged to 

invest in Nonpoint Education for Municipal Officials programs to help local decisionmakers 

better understand the relationship between land use decisions and water quality impacts. 

Challenges for the Future 

The problem of nonpoint source pollution is bigger than any single agency or program can solve. 

It requires the full spectrum of federal, state, territorial, and local agency programs and a 

commitment from citizens. Coordinating this myriad of activities and people remains difficult. 

Several states and territories face significant hurdles in completing the development of coastal 

nonpoint programs. The largest challenges remain obtaining financial, technical, and political 

support within state or territorial governments. Many states traditionally have had strong support 

from state government but now face financial and personnel cuts because of state budget 

shortfalls. Coastal water quality problems are caused by a complex mix of factors, making it 

difficult to identify measurable results from management actions. 

Improved Policies and Technical Assistance Enhance Partner Programs 

To improve technical assistance, NOAA sponsored two national coastal nonpoint program 

workshops and launched a clean marina website during 2002-2003. In April 2002, NOAA 

hosted a workshop focusing on Coastal Nonpoint Program development which brought together 

state coastal nonpoint program coordinators and federal counterparts from NOAA and EPA to 

discuss common concerns and stumbling blocks regarding developing fully approved programs. 

NOAA sponsored another workshop in Spring 2003 focusing on program implementation. 

During the workshop, state program coordinators had the opportunity to define program 

implementation and shape how coastal nonpoint programs would be evaluated. 

NOAA developed a Clean Marina Initiative website 9

 that offers technical assistance to state 

coastal managers and marina operators and owners who are interested in developing Clean 

Marina Programs and reducing polluted runoff from marina activities. The site includes a Clean 

Marina Program description; links to clean marina guidebooks, brochures, and newsletters; 

funding sources; state Clean Marina Programs; and other organizations promoting clean marinas. 

NOAA recognizes the Clean Marina Program can serve a valuable role in protecting coastal 

waters from nonpoint source pollution and has promoted the program as a way for states to meet 

many of the marina management requirements under the Coastal Nonpoint Program. As a result, 

the coastal nonpoint program has been responsible for driving the development of most Clean 

Marina Programs existing today and developing a national interest in the initiative. 

Other Water Quality Efforts: Chesapeake Bay (Virginia) Reserve Measures Water Quality 

Partnering with EPA’s Chesapeake Bay Program Office, the Chesapeake Bay (Virginia) National 

Estuarine Research Reserve added five new continuous monitoring stations to the York River 

system. The stations began operating in May 2003 and will continue for at least three years. The 
 22

data collected will be used to measure attainment of water quality standards for dissolved 

oxygen, chlorophyll, and turbidity. The goal is to ultimately provide seamless access to data in 

real-time as part of a comprehensive Chesapeake Bay Observing System. 

The Chesapeake Bay (Virginia) Reserve also initiated a series of monthly surface mapping 

cruises for the entire tidal York River in May 2003. This technology provides high speed high 

frequency mapping of water quality conditions as well as depth and location. Monthly data 

layers provided by this mapping system have been overlaid with other data to determine which 

areas achieve certain levels of water clarity. This evaluation is critical to delineate submerged 

aquatic vegetation habitat limits. 

Other Water Quality Efforts: Florida Monitoring Red Tides with Ocean Color Data 

At certain times of the year, rapidly increasing chlorophyll levels indicate the presence of red 

tide algae. These areas can be found using remotely sensed images that depict ocean color, 

which allows for faster, more targeted sampling in large bodies of water, helping coastal 

managers know when the blooms exist and where and how they might move. This information, 

provided by NOAA, allows Florida to reduce unnecessary closings of shellfish beds while 

protecting public safety and monitoring water quality. 

Public Access 

Population growth within the coastal zone has increased demand for places to swim, fish, and 

boat. At the same time, there is less land available as the shoreline is developed or set aside to 

protect sensitive habitats. 

The scarcity of open shoreline has sharply driven up coastal real estate prices, not only in 

historically developed areas such as the northeast and mid-Atlantic, but also in newer-developing 

areas in the southeast and Gulf states. This has made land acquisition more difficult. 

Some states and territories have turned to special bonds and trust funds, but others are 

increasingly relying on partnerships with other agencies, local governments, and nonprofit 

organizations such as land trusts. User conflicts involving shoreline areas and nearshore waters 

remain a challenge as well. 

Section 306A of the CZMA, the Coastal Resource Improvement Program, is an important 

mechanism for many states and territories to provide support for local projects. Funding is used 

for land acquisition and small scale construction projects. Most states and territories use money 

from this voluntary program to support projects that promote access to beaches and waterfronts, 

such as boardwalks, dune walkovers, and fishing piers. On average, between six and seven 

percent of the base federal CZM funding is allocated each year to these projects. In 2002—2003 

approximately $7.5 million in federal money, equally matched by state and local governments, 

was spent under Section 306A, funding 163 projects in 17 states. Nineteen projects created 

entirely new access sites, while the remainder enhanced existing sites. 

National Estuarine Research Reserves also have a public access role. Every reserve management 

plan must address public access. This is critical in reserve sites, which both protect resources 
 23

and educate visitors. This may be accomplished through building a boardwalk with interpretive 

signs through a marsh area, preventing sensitive resources from being trampled, while allowing 

visitors to see and learn about the environment. 

Several reserves conducted public access projects during the last biennium. 

 

• The Grand Bay Reserve, Mississippi, developed plans to improve and expand the parking 

area at one its two public boat ramps. 

• The Great Bay Reserve, New Hampshire, funded a study of visitors’ impact on bald eagle 

use of a winter roost. This study will provide objective information to evaluate local 

management conflicts. 

• The North Carolina Reserve developed trails in Currituck Banks and monitored the impacts 

of horse tours. 

• The Rookery Bay Reserve, Florida, finished design plans and submitted permits for public 

access at Tarpon Bay, which will include parking, a boat launch, and a 2.5-mile boardwalk. 

Coastal Hazards 

Our nation’s coasts are among the most desirable places to live. Unfortunately, they also are 

among the most hazardous. Each year, coastal hazards, such as hurricanes and flooding, take 

their toll on life and property on the nation’s coasts. Erosion and sea-level rise, more subtle 

processes, also impact our resources and infrastructure. Preparing for and responding to the 

impacts of coastal hazards is a cornerstone of the CZMA. 

The likelihood of dramatic loss of life and property grows daily along with our coastal 

population. Our knowledge of how to deal with these threats grows, too. Frequently, the best 

solution over the long term is also the least expensive. Losses in property and life can be 

avoided by protecting coastal resources such as wetlands, barrier islands, beaches, and dunes 

through effective laws, enforceable policies, and non-regulatory approaches. 

These natural resources can provide vital buffers against numerous natural disasters. Healthy 

wetlands are perhaps the biggest insurance policy states and territories have against the ravages 

of severe flooding and storm induced wave damage. Dune protection, restoration, and creation 

programs, as well as the establishment of buffers and setbacks for new construction, help 

minimize damage and offset skyrocketing repair costs from coastal storms. Buffers along banks 

and stringent building guidelines in flood-prone areas are a direct result of the policies and goals 

established by the CZMA. To achieve these goals, coastal states need better data (including 

ocean and coastal observations), information, and decision support tools. Several efforts to meet 

this need were underway in the last biennium. 

The Coastal Storms Initiative 

The Coastal Storms Initiative (CSI), a nationwide effort to reduce adverse impacts of storms on 

life and property, the economy, and environmental health in coastal areas, brings local, state, and 

federal organizations together to work on site-specific projects. CSI is led by the NOAA Coastal 

Services Center and the National Weather Service, in partnership with coastal management 

programs and other NOAA offices. CSI involves a phased implementation strategy to address 
 24

regional differences in impacts and development, as well as plans to extend the impact of the 

program nationally. 

Two pilot projects began during 2002—2003. The first pilot began in FY 2002 in the St. Johns 

Water Management District in northeast Florida. This locally managed effort is a compilation of 

nine projects that address specific hazards-related issues. Together, the projects will result in a 

large suite of new and improved tools, data, information, forecast models, and training for 

coastal communities. The Florida projects will be completed in FY 2004. 

The second pilot project is taking place in the Pacific Northwest (including portions of the Lower 

Columbia River, the northwest Oregon coast and the southwest Washington coast). The project 

began in late FY 2003 with initial scoping of projects and the establishment of a Sea Grant 

Extension agent to serve as the outreach and extension coordinator for the pilot area. The 

Florida, Oregon, and Washington coastal management programs are partners in these pilot 

projects. 

State Coastal Management Programs Address the Impacts of Coastal Hazards 

Many state coastal management programs are seeking new ways to improve decisionmaking to 

address the impacts of coastal hazards. The Oregon Coastal Atlas, for example, offers both 

traditional and digital information to improve and streamline decisionmaking related to the 

Oregon coastal zone.10 The information, useful in making decisions on how to reduce impacts of 

coastal hazards on coastal communities and resources, includes links to tools developed by other 

states and federal agencies, such as the Coastal Hazards Information Management System 

developed by OCRM, in partnership with the Alabama and Georgia coastal management 

programs. The website includes a mapping tool, and plans are underway to enhance it with an 

interactive landslide mapping capability. The Oregon Coastal Management Program and the 

NOAA Coastal Services Center are also working together to develop a coastal erosion forecast 

tool for the Atlas that uses real-time observations. 

The Wisconsin Coastal Management Program is also seeking to improve coastal hazard 

decisionmaking with a multi-year strategy to develop a comprehensive coastal hazards policy. 

Elements include: 

• Updating and integrating information and methods in a GIS compatible format.

• Developing a comprehensive education program on erosion rates and flood-prone areas for 

government officials, the private sector, and the public. 

• Developing an institutional framework to improve regulatory mechanisms and local 

mitigation efforts. 

Visualizing Flood Forecasts 

Flooding is the most deadly consequence of a hurricane. North Carolina is working with the 

U.S. Geological Survey and NOAA’s Coastal Services Center to not only improve flood 

forecasting but also increase the use of the information by making it more visual. Implemented 
 25

in North Carolina during Hurricane Isabel, the effort uses GIS to illustrate the forecast, which 

makes the information easier for citizens to understand. 

Coastal Community Development 

Coastal counties are the most densely populated areas in the United States. In 1997, the average 

density in coastal counties was 277 residents per square mile, compared with a national average 

of 91 residents per square mile.11

 

More people living on some of our nation’s most environmentally sensitive and ecologically 

productive land means extra care must be taken so economic growth can be sustained over 

decades. State Coastal Zone Management programs promote activities in coastal communities to 

accommodate growth and development while ensuring coastal resources are viable for future 

generations. 

Without long-term plans, growth and development can harm the resources needed to sustain a 

healthy economy and environment. For example, malfunctioning septic systems servicing 

shoreline development can contaminate bays and cause fisheries and beaches to close; paving 

over too much land reduces the ability of water to filtrate and replenish underground water 

sources, thus straining fresh drinking water supplies; and coastal storms, erosion, and mudslides 

can destroy homes and hotels located too close to the shoreline. 

State coastal management programs promote sustainable growth in coastal communities by: 

• working with local governments to balance economic development and environmental 

protection and reduce sprawl and unplanned growth at the urban fringe; 

• working with local governments to develop land use plans, ordinances and permitting 

programs to guide the location and impacts of new development; 

• developing special area management plans to increase protection of significant natural 

resources while allowing reasonable economic growth.

• promoting voluntary stewardship of private lands through training programs and funding for 

restoration projects; 

NOAA and its coastal management partners provide local decisionmakers with information on 

development impacts on coastal resources and alternatives to traditional suburban development. 

This information helps foster local solutions to managing coastal development. In addition, state 

and territory coastal management programs have partnered with the reserves to implement 

coastal decisionmaker workshops to educate and incorporate resource protection into the local 

development process. Efforts involving government, industry, and citizens can promote 

sustainable growth in coastal communities by ensuring the integrity of the coastal environment is 

maintained during economic development. Examples include: 

Michigan Coastal Management Program Creates Guidebook 
 26

Michigan’s Coastal Management Program recently released a guidebook, Filling the Gaps: 

Environmental Protection Options for Local Governments, a hands-on resource to help local 

officials develop local land use plans, adopt new environmentally focused regulations, or review 

proposed development. Michigan is a home rule state, with over 1,800 local government units 

authorized to make land use decisions. However, not all local officials are aware of their options 

for implementing strong land use management tools, or of opportunities to partner with state and 

federal governments and local conservation organizations to protect important natural resources 

within the community. 

This guidebook provides model ordinances that local governments can use as a guide to draft 

their own planning and zoning tools. The Michigan Coastal Management Program will be 

conducting seminars to introduce the planning tools in the guidebook to local officials 

throughout the state. 

The Coastal Training Program: Padilla Bay National Estuarine Research Reserve and 

Washington Department of Ecology 

The Coastal Training Program, an important educational tool of the national estuarine research 

reserves, follows a systemwide protocol of market analysis, needs assessment, program planning, 

and educational delivery to train the diverse coastal decisionmakers. The Padilla Bay Reserve, 

working with the Washington Department of Ecology, found these groups needed a better 

understanding of shoreline processes. Shoreline planners, including city, county, tribe, and state 

agency workers in western Washington, recently attended a workshop to gain working 

knowledge of the physical processes shaping marine shorelines and how shorelines are affected 

by development. 

Docks and Piers: Inventory of Laws, Regulations, and Policies for the Southeast 

Coastal issues that often make the headlines are usually homes threatened by erosion or a 

developer illegally filling in marshlands, but for many state regulatory programs, residential 

docks and piers take up much of their time. When is a dock too long? What about crossing 

property lines? At what point does a creek have too many docks? 

Coastal states look to NOAA and each other for help with these issues. The NOAA Coastal 

Services Center developed a quick reference document on residential dock and pier policies of 

several coastal states, and NOAA’s National Centers for Coastal Ocean Science partnered with 

OCRM to hold several workshops and produce a database about the environmental and aesthetic 

impacts of these structures. 

States use this information to develop new policies that respect the rights of private property 

owners and address environmental and aesthetic concerns. 

Competing Demands for Coastal Resources – Reaching a Consensus 

Strong opinions often surface when resolving coastal issues. Negotiating between competing 

demands from property owners, environmentalists, developers, and others is one of the most 

difficult tasks faced by state programs. 
 27

The NOAA Coastal Services Center’s “Public Issues and Conflict Management” training course 

was developed for this reason. Participants learn techniques to avoid or defuse conflict in 

potentially contentious public meetings. 

This is just one of many courses designed for state programs. In addition to management skills, 

courses that increase technical skills are also available from the Coastal Services Center. Over 

1,000 employees of local, state, and federal coastal management programs take these courses 

each year.12

Protecting Water Dependent Uses and Revitalizing Urban Waterfronts 

Waterfront revitalization, port development, and protection of water dependent uses are 

complementary CZMA goals which promote economic development while balancing competing 

uses of the coast. Waterfronts traditionally were the center of commercial, industrial, and 

recreational activities in coastal communities, but economic and technological changes have left 

many waterfronts underutilized and in disrepair. Because of their industrial history, many urban 

waterfronts and port properties are brownfields — real estate where expansion or redevelopment 

is complicated by real or perceived contamination. 

OCRM and state and territory coastal management programs have worked with communities to 

develop and implement master plans to revitalize waterfronts, clean up brownfields, provide 

public access, and restore coastal resources. Many coastal management programs have worked 

with communities to develop harbor management plans to balance competing uses and preserve 

water dependent uses such as maritime trade. As U.S. ports modernize marine transportation 

systems, balancing port expansion while maintaining community character and protecting 

resources is a challenge for coastal managers. 

 

In 2003, NOAA launched the Portfields Initiative to help port communities revitalize their 

harbors and improve the nation’s marine transportation system while restoring and protecting 

coastal resources. With increasing maritime trade, U.S. shipping ports will be faced with the 

need to increase capacity and infrastructure. As available land is often limited in port areas, 

brownfields redevelopment presents an important strategy for port expansion efforts. 

OCRM and NOAA’s Office of Response and Restoration have been working together to 

coordinate activities related to the cleanup and redevelopment of waterfront brownfields, or 

portfields. 

Portfield Pilots: New Bedford, Massachusetts; Tampa, Florida; and Bellingham, Washington 

Originating out of the Brownfields Federal Partnership Action Agenda, the Portfields Initiative 

brings together NOAA, the Environmental Protection Agency, the Maritime Administration, 

Economic Development Administration, U.S. Army Corps of Engineers, Department of Housing 

and Urban Development, and Department of the Interior. All agencies have committed to 

targeting brownfields cleanup and resource reuse in three pilot port communities. 
 28

In addition, the federal agencies partnered with the International City/County Management 

Association to develop a Portfields Report from information gathered through interviews with 

ports that successfully incorporated brownfields redevelopment into port activities. The report is 

designed to transfer successful practices and strategies to other ports. 

Designated in October 2003, the first Portfields pilots are New Bedford, Massachusetts, Tampa, 

Florida, and Bellingham, Washington. Each port was chosen for its strong commitment to 

redevelopment and comprehensive approach to environmental, economic, and social goals. 

NOAA will be hosting kick-off meetings in each Portfield pilot, which will be an opportunity to 

engage federal, state (including coastal management programs), and local players in the 

Portfields Initiative. After local kick-off meetings, action plans for each of the pilots will be 

developed, and the International City/County Management Association will prepare a one-year 

report on progress under this initiative. 

National Estuarine Research Reserve System 

The National Estuarine Research Reserves System is a network of 26 protected areas 

representing different biogeographic regions of the United States protected for long-term 

research, water-quality monitoring, education, and coastal stewardship. NOAA provides 

funding, national guidance, and technical assistance. A lead state agency or university manages 

each reserve with input from local partners. The partnership between NOAA and coastal states 

protects more than one million acres of estuarine land and water, providing essential habitat for 

wildlife; offering educational opportunities for students, teachers, and the public; and serving as 

platform for research.

Reserve staff work with local communities and regional groups to address natural resource 

management issues, such as nonpoint source pollution, habitat restoration, and invasive species. 

Through integrated research and education, reserves help communities develop strategies to deal 

successfully with coastal resource issues. Reserves provide adult audiences training on estuarine 

issues, offer field classes for K-12 students, and support teachers through professional 

development programs in marine education. Reserves also provide long-term water quality 

monitoring as well as opportunities for scientists and graduate students to conduct research in a 

living laboratory. 

Graduate Research Fellowship Program 

The reserve system’s Graduate Research Fellowship program funds graduate students on a 

competitive basis. The program provides master’s degree and Ph.D. candidates with an 

opportunity to explore scientific questions of local, regional, and national significance, and the 

results are high-quality research focused on improving coastal management issues. 

A fellow’s research must be conducted in a National Estuarine Research Reserve. Each reserve 

can support up to two fellows in any funding year. Funds support research projects that will 
 29

enhance scientific understanding of reserve ecosystems, provide information needed by reserve 

management and coastal management decision makers, and improve public awareness and 

understanding of estuarine ecosystems. 

The program attracts students from all over the country, including states that do not have a 

reserve. Since its inception in 1997, the program has funded a total of 159 fellows from 56 

universities. The program is designed to provide funding awards for multiple years. 

In FY 2002, the reserve system funded 31 fellows previously accepted in the program and 15 

new fellows (46 out of 50 available positions were filled). In FY 2003, there were 22 returning 

and 25 new fellows (47 out of 50 available positions were filled). 

Fellowship projects focus on habitat restoration/conservation, nutrient dynamics/non-point 

source pollution, sustaining estuarine resources, invasive species/biodiversity, and economic, 

sociological, and/or anthropological research applicable to estuarine ecosystem management. 

Fellows are sharing their research at national conferences. At the Estuarine Research Federation 

Meeting in 2003, more than 50 past and current fellows presented their research. Many of the 

fellows have moved to faculty positions at major universities or to research positions at federal, 

state, and private institutions. 

Four Research Fellows were awarded Walter B. Jones Memorial Awards for Excellence in 

Coastal and Marine Graduate Study in 2003. These congressional awards honor those who 

exemplify innovation, resourcefulness, leadership, and a commitment to balancing the human 

use of America's coastal and ocean resources with the needs of the resources themselves. 

 

System-Wide Monitoring Program 

A key to protecting coastal waters and restoring estuarine habitats is obtaining and understanding 

information on how human activities and natural events change ecosystems. The reserve system 

has begun a large-scale monitoring effort to track short-term variability and long-term changes in 

coastal ecosystems. The program provides valuable short- and long-term data to researchers, 

natural resource program managers, and other coastal decisionmakers. 

The initial phase of the reserve system's program began in 1996. This phase focuses on 

monitoring a suite of water quality and atmospheric information. Since 1996, the program has 

collected pH, conductivity, temperature, dissolved oxygen, turbidity and water level data. In 

2001, it began collecting monthly nutrient and chlorophyll-a samples. The program uses 

automated instruments to collect water quality data. These data loggers record at 30-minute 

intervals at four stations in each reserve. The reserve system’s monitoring program measures 

variables that indicate habitat quality for estuarine species, establish health criteria, and 

determine human uses. The information collected by this program has been used to measure the 

impacts of restoration projects and to analyze water quality conditions. 
Data collected are centrally located, managed, and published at the Centralized Data 

Management Office in South Carolina. In December 2002, the reserve system completed its 

second synthesis of water quality data. The synthesis is available online.13

Coastal Training Program 

The reserves’ Coastal Training Program has provided up-to-date scientific information and skillbuilding opportunities to over 13,000 individuals who are responsible for making decisions that 

affect coastal resources. The program helps to ensure that coastal decisionmakers have the 

knowledge and tools to address crucial resource management issues. 

Coastal Training Programs focus on coastal habitat conservation and restoration, biodiversity, 

water quality, and sustainable resource management. Programs target a range of audiences, 

including land-use planners, elected officials, regulators, land developers, community groups, 

environmental nonprofits, and coastal businesses. These training programs provide opportunities 

for professionals to network and develop new collaborative relationships to solve complex 

environmental problems. 

The Coastal Training Program is a strategic approach to education. For a reserve's Coastal 

Training Program to become fully operational, it must conduct a series of needs assessments and 

marketing analysis to target the community's needs, the audiences, and the appropriate 

approaches. In the biennium, 11 reserves completed the required strategic planning process to 

fully implement its Coastal Training Programs. 

Partnerships to Enhance Coastal and Ocean Management 

OCRM works in partnership with the states and territories, other federal agencies, and 

nongovernmental organizations to ensure the conservation and responsible use of the nation’s 

coastal and ocean resources. In the past two years, OCRM was involved in a number of 

partnerships to address ocean and coastal issues. 

Working Across National Boundaries: Tijuana River National Estuarine Research Reserve 

The Tijuana River Watershed Project has been a nine-year, three-phased collaboration between 

federal, state, and local governments; nonprofits; and academic institutions from both the United 

States and Mexico with jurisdiction in the Tijuana River watershed. The project was initiated 

with NOAA investment in 1994 that leveraged further support from the U.S. Navy and other 

nonprofit and state funding sources. NOAA’s goals for the project were to support education, 

research, and stewardship programs at the Tijuana River National Estuarine Research Reserve. 

Three-quarters of the Tijuana River Watershed lies within Mexico and drains into the estuary, 

and at the beginning of the project, the reserve had no maps of its watershed. It was therefore 

 30
difficult to engage partners on both sides of the border in watershed stewardship and education 

projects. The reserve’s restoration program also suffered from a lack of accurate rain and stream 

flow data from the Tijuana River, which hampered assessments needed to plan restoration 

efforts. 

The project goal was to engage partners on both sides of the border to integrate existing technical 

capacities, data, and human and financial resources and authorities to address common issues in 

the shared watershed. The first phase of the project developed the first GIS map of the 

watershed. 

In the second phase of the project, stakeholders in the watershed identified high priority issues 

GIS can address. Based on their input, the demonstration project focused on developing a flood 

risk assessment using simulated GIS data, since no real data existed. 

In the third phase of the project, a technical team designed and implemented the first binational 

integrated real-time flood warning system in the watershed. The effort drew in a wide range of 

public and private partners. The National Weather Service donated equipment; private sector 

companies donated software; and academic institutions in both San Diego and Tijuana provide 

access to data. 

The system is now in place and transmitting real-time precipitation and flow data to emergency 

responders and flood warning personnel in the United States and Mexico, increasing warning 

time for flash floods to risk-prone areas. 

 

Working Across National Boundaries: The International Brant Goose Monitoring Project 

Padilla Bay National Estuarine Research Reserve provided international coordination for a trinational partnership between schools and resource agencies along the Pacific Flyway. 

Observations continued in 2002-2003 as students and citizens from Alaska, British Columbia, 

Washington, Oregon, California, and Baja California, Mexico learned about Brant geese through 

classroom activities, field trips with local experts, and by using the internet and a special website 

to communicate their findings. 

Working Across National Boundaries: The Gulf of Maine Program 

The Gulf of Maine Council on the Marine Environment is a government-to-government body 

with representatives from Maine, Massachusetts, New Hampshire, New Brunswick, and Nova 

Scotia, as well as federal agency representatives from the United States and Canada. The 

Council works together on regional issues affecting the health of the Gulf of Maine ecosystem. 

Under the Gulf of Maine Regional Partnership Initiative, NOAA has been working to advance 

four priority goals and promote better distribution of NOAA products and services. NOAA 

provided funding and staff time to support these action items, including: 

 31
Regional Habitat Restoration Planning and Implementation: The first draft of the Gulf of Maine 

Habitat Restoration Plan creates a framework for habitat restoration activities in the Gulf of 

Maine and focuses on habitat protection and migratory and marine species. A website will 

provide a wide range of data and information about restoration of regionally significant habitats 

in the Gulf of Maine. Federal and state agencies, nonprofit groups, and the public will be able to 

use this site to apply for grants, select potential projects, educate the public, and assist the state in 

restoration planning. One project goal is to identify major differences in Canadian and U.S. 

approaches to restoration and make recommendations on how to more completely engage the 

Canadian restoration community. Habitat planning continued in FY 2003 to support a Habitat 

Coordinator, and work began in FY 2003 on an internet-based restoration information and 

tracking system. 

Seafloor Habitat Mapping: Seafloor habitat mapping will identify essential fish habitat, help 

prepare maps for aquaculture operations, and predict storm surges from hurricanes. NOS funded 

a workshop to develop a regional strategy to map the Gulf of Maine and a project to host five 

needs assessment workshops in 2003-2004 to support the Gulf of Maine Mapping Initiative — a 

joint U.S./Canadian effort to map the entire Gulf of Maine basin. 

Marine Protected Areas/Marine Habitat Conservation Framework: OCRM’s Marine Protected 

Areas Center and the Gulf of Maine Council on the Marine Environment sponsored an Ocean 

Zoning forum in December, 2002 in Boston. The Marine Protected Areas Center located a staff 

person in the Massachusetts Office of Ocean and Coastal Resource Management to coordinate 

marine protected areas information and activity in the northeast. 

Land Based Sources of Pollution in the Gulf of Maine: NOAA will sponsor the “Gulf of Maine 

Summit”– a three-day conference to be held in October 2004–to develop a vision and plans for 

improving the environmental quality of the Gulf and produce information and indicators needed 

to finalize a “State of the Gulf of Maine Report.” The Summit is the culmination of a “bottom 

up” process that will build on information collected by local watershed forums that have been 

held around the Gulf of Maine. 

The Gulf of Maine Program will also be used as a pilot in the NOAA National Eutrophication 

Assessment Update. This pilot, begun in 2003 and continuing in 2004, will help determine the 

region’s susceptibility to nutrient over-enrichment and will help develop a nutrient overenrichment early warning system to assist coastal managers. 

The Coastal States Coordination Committee 

In 2002 and 2003, NOAA and the Coastal States Organization have continued to strengthen 

communication and cooperation between state and federal coastal management programs. A 

coastal coordination committee provides a forum for senior managers of state and federal 

programs to discuss opportunities to coordinate on issues of mutual interest, such as program 

development, implementation, evaluation, and improvement. The group has primarily brought 

 32
together state and Federal representatives from the National Coastal Zone Management Program, 

National Estuarine Research Reserve System, National Sea Grant Program, and National Estuary 

Program, as well as others who are involved in supporting coastal management and conservation, 

such as NOAA’s Coastal Services Center, National Centers for Coastal Ocean Science, and 

Fisheries Habitat Conservation Office. The group has also invited participation of other 

programs in Federal agencies to discuss and coordinate on performance indicators related to the 

coast. 

The group has hosted joint sessions at the annual Ocean and Coastal Program Managers’ 

Meetings in 2002 and 2003. It produced a fact sheet, “Working Together for America’s Coasts.” 

The committee will be working on the national performance measurement system. 

Partnerships for Marine Protected Areas 

The Marine Protected Areas Center, a partnership between the Department of Commerce and the 

Department of the Interior, has increased its outreach and regional presence in 2002-2003. 

Education Workshops 

In 2002, the National MPA Center held regional workshops for educators from federal agencies 

and nongovernmental organizations to foster networking, exchange ideas, and determine what 

support the MPA Center could provide to enhance field-based education on MPA issues. 

Workshops were held in Maryland, California, and Minnesota. Complete workshop reports, 

presentations, and materials are available on the MPA website.14

Other Outreach Activities 

The MPA Center began publishing a monthly electronic newsletter, MPA Connections, which 

features MPA Center activities and resources. The regular series clarifies misconceptions about 

marine protected areas. The newsletter is distributed via e-mail to more than 2,000 subscribers 

and is archived on the MPA website.15

 

The MPA Center has developed a broad range of materials to inform audiences about issues 

surrounding marine protected areas. In addition, the Center has been active at numerous 

conferences and exhibits, including a sportfishing leadership conference, MPA workshops hosted 

by fishery management councils, education workshops, scientific symposiums, and other MPArelated events. 

MPA Science Institute, Santa Cruz, California 

The Center’s Science Institute, co-located with the NOAA Fisheries Laboratory at the University 

of California at Santa Cruz, has published a National Marine Protected Areas Social Science 

Research Strategy. The Science Institute plans to hold a series of workshops to help develop 

regional MPA social science research strategies and will be working on completing a Natural 

Science Research Strategy in the coming year. 

 33
Because of the confusion that comes with definitions and purposes of marine protected areas, the 

MPA Center has developed a common and consistent set of terms to better describe and define 

the many types of MPAs. The system uses fundamental characteristics of MPA design and 

management, including primary conservation goal, level of protection, permanence of protection, 

constancy of protection, and scale of protection, and provides sub-types and examples of each. 

The National MPA Center plans to establish several electronic regional information 

clearinghouses in the coming year to provide a single source for information on all ongoing 

federal and state MPA planning processes. The Science Institute partnered with COMPASS 

(Communication Partnership for Science and the Sea) to develop the first of these online 

clearinghouses.16

 

MPA Training and Technical Assistance Institute, Charleston, South Carolina 

In 2002, the Center’s Training and Technical Assistance Institute, part of NOAA’s Coastal 

Services Center, published an MPA Needs Assessment, which includes recommendations for 

clarifying policy and legal issues and responsibilities, providing MPA-related science and 

technology, and implementing outreach to communities affected by or interested in MPAs. The 

Training and Technical Assistance Institute is currently conducting an MPA technology needs 

assessment. 

The Training and Technical Assistance Institute has developed a workshop, Understanding 

MPAs, piloted in Long Beach, California in September 2003. The Institute plans to take the 

workshop to a number of aquariums designated as Coastal Ecosystem Learning Centers around 

the country, in partnership with Coastal America. The MPA Center will offer the workshop at 

other locations and in conjunction with marine management related events. 

The Training and Technical Assistance Institute has initiated a project to investigate past MPA 

designation processes. The first phase of this project was a review of five recent MPA 

establishment processes, with specific process-related elements outlined for each of the case 

studies. The MPA Process Review report provides a factual foundation on the structure and 

events of recent MPA processes. The second phase of the project, a series of interviews with 

varied stakeholders, will get their subjective perceptions of what worked and what did not for 

each case study. 

Research, Education, and Technical Assistance 

NOAA’s National Ocean Service provides research, education and technical assistance to coastal 

states. 

The Cooperative Institute for Coastal and Estuarine Environmental Technology 

The Cooperative Institute for Coastal and Estuarine Environmental Technology (CICEET), 

established as a joint partnership between NOAA and the University of New Hampshire in 1997, 

is located on the University of New Hampshire campus in Durham. The mission is to provide a 

 34
scientific basis for understanding and reversing the impacts of coastal and estuarine 

contamination and degradation by developing and applying innovative environmental 

technologies and methods. 

It meets this mission by funding projects that address the needs of coastal and estuarine resource 

managers. During the past two years, CICEET funded 29 projects at 18 of the 26 national 

estuarine research reserves. CICEET projects are designed to: 

q Understand and reverse the impacts of toxic contaminants on estuarine and coastal 

ecosystems; 

q Promote innovative techniques for reducing microbial contaminants; 

q Reduce nutrient enrichment and eutrophication; 

q Address habitat loss and restoration; and 

q Make it easier to access and use coastal and estuarine data. 

CICEET’s Storm Water Technology Evaluation and Verification Program 

Storm water runoff from urban, residential, and agricultural areas has been identified as the 

major cause of water quality impairment in the United States. 

Phase II of the Clean Water Act established a schedule for municipalities to meet storm water 

discharge control regulations by 2003. The regulations are clear. How municipalities will 

comply is anything but clear, since the market is full of storm water control products without 

credible third-party data on the performance of these systems. 

In response to this lack of information, CICEET initiated a Technology Evaluation and 

Verification Program in 2002. The program focuses on engineered storm water treatment 

technologies and, in collaboration with industry and government, will design, develop, and 

operate a facility that can test storm water control designs. This will enable officials to see 

systems in operation before deciding whether to implement them and provide an opportunity to 

address one of the major causes of coastal pollution. 

Nutrient Sensor Commercialized 

Inputs of nutrients to estuaries have grown along with increased population growth and the 

intensive use of fertilizers in agriculture. Excessive nutrient inputs result in algal growth and 

reduced oxygen conditions. To understand the processes involved, managers need to sample 

nitrogen so frequently it would be cost-prohibitive to use traditional sampling and lab analysis. 

In response, CICEET funded a project adapting existing oceanic sensing technology developed 

at the Monterey Bay Aquarium Research Institute. The Digiscanner was designed for 

deployments of up to three months, with sampling occurring automatically. Deployments at 

several reserves have demonstrated the utility of this new instrument. In fact, the technology 

was formally licensed by YSI, Inc., which plans to make the tool commercially available in the 

spring of 2004. 

 35
EstuaryLive and National Estuaries Day 

National Estuaries Day is an interagency campaign to celebrate the importance of estuaries and 

highlight the need to protect them. Local communities throughout the country celebrate their 

estuaries with a variety of special events, most of them hosted by NOAA’s national estuarine 

research reserves and EPA’s national estuary programs. 

In the past two years, EstuaryLive has been the featured event for National Estuaries Day. 

EstuaryLive is an interactive internet field trip of estuaries where participants can ask tour guides 

questions. Most questions are answered live during the broadcast. 

In each of the past two years, one million viewers participated in EstuaryLive. Highlights from 

the 2002 field trips include: showing the use of radio telemetry equipment to track Eastern box 

turtles and sora rails from the Chesapeake Bay; sampling water quality in South Carolina; 

learning about the cultural and biological history of the Neuse River in North Carolina; following 

the life cycle of the Dungeness Crab and learning about their recreational and commercial 

importance in Oregon; discovering how robots are being used to study the coastal ocean in New 

Jersey; diving for fish in Washington; learning about the types and impacts of pollution in 

estuaries in Massachusetts; and exploring bogs with bug eating plants in Alabama. The 2003 

Estuary Live featured eight estuaries from around the country -- Albemarle-Pamlico Sound, in 

North Carolina; South Slough, in Oregon; Charlotte Harbor, in Florida; Galveston Bay, in Texas; 

Great Bay, in New Jersey; Puget Sound, in Washington; North Inlet, in South Carolina; and 

Elmer’s Island, in Louisiana. 

The Coastal Management Fellowship Program 

Established in 1996, the Coastal Services Center Coastal Management Fellowship Program 

serves a dual purpose. First, the program provides professional on-the-job education and training 

opportunities for postgraduate students in coastal resource management and policy. Second, it 

provides specific technical assistance to state and territory coastal resource management 

programs. Highly qualified, recently graduated masters, professional, and doctoral degree 

students are matched with hosts in state or territory coastal management programs around the 

country. States and territories with federally approved coastal management programs can submit 

a project proposal to the Coastal Services Center to compete for placement of one of the fellows. 

The fellows work for two years on state and territory-level coastal management issues pertaining 

to federal management policies and regulations. Ten new fellows began projects in nine states in 

2002-2003. 

 36
The Coastal Services Center, the Coastal States Organization, OCRM, state and territory coastal 

management programs, the Sea Grant College Program, and the University of Southern 

Mississippi collaborate on the Coastal Management Fellowship Program. 

Conclusion 

As a result of the Coastal Zone Management Act—and programs created and developed by it—

our nation’s coastal communities can be assured of continued environmental quality and 

economic vitality. NOAA, in partnership with coastal states and territories, will continue to 

pursue the objectives of the Coastal Zone Management Act, ensuring our coastal areas flourish 

for future generations. OCRM is well positioned to build on the successes of 2002-2003 in its 

role as a partner with states and local communities in coastal resource stewardship. 

 37
Appendix A: Itemization of Allocation of Funds

STATE 315 NERRS 

Operations 

2002

NERRS 

Construction 

Acquisition 2002

Total FY 02 315 NERRS 

Operations 

2003

NERRS 

Construction 

Acquisition 2003

Total FY 02

Alabama 583,360 250,000 833,360 572,500 - 572,500 

Alaska 570,860 - 570,860 625,000 60,000 685,000 

American Samoa - - - - - -

California 1,168,523 978,000 2,146,523 1,175,000 380,000 1,555,000 

Connecticut - - - - - -

Delaware 528,360 - 528,360 500,000 817,500 1,317,500 

Florida 1,734,720 1800000 3,534,720 1,790,000 1,330,000 3,120,000 

Georgia 583,360 - 583,360 590,000 1,490,000 2,080,000 

Guam - - - - - -

Hawaii - - - - - -

Illinois - - - - - -

Indiana - - - - - -

Louisiana - - - - - -

Maine 583,360 711,500 1,294,860 590,000 - 590,000 

Maryland 583,860 - 583,860 585,000 - 585,000 

Massachusetts 616,360 768,000 1,384,360 590,000 1,490,200 2,080,200 

Michigan - - - - - -

Minnesota - - - - - -

Mississippi 443,360 - 443,360 557,500 5,961,000 6,518,500 

New Hampshire 498,311 6089200 6,587,511 575,000 5,961,000 6,536,000 

New Jersey 583,360 1425000 2,008,360 590,000 85,000 675,000 

New York 588,142 650,000 1,238,142 590,000 - 590,000 

North Carolina 1,047,360 - 1,047,360 589,991 - 589,991 

Northern 

Marianas 

 - - - - - -

Ohio 523,192 - 523,192 500,000 - 500,000 

Oregon 618,360 335,000 953,360 649,000 330,000 979,000 

Pennsylvania - - - - - -

Puerto Rico 565,860 300,000 865,860 590,000 100,000 690,000 

Rhode Island 641,360 490,000 1,131,360 572,500 468,000 1,040,500 

South Carolina 1,441,706 13,684,500 15,126,206 1,470,550 4,470,700 5,941,250 

Texas 25,000 - 25,000 50,000 - 50,000 

Virgin Islands - - - - - -

Virginia 565,860 - 565,860 565,000 438,000 1,003,000 

Washington 583,360 1000000 1,583,360 590,000 595,000 1,185,000 

Wisconsin - - - - -

Total 15,077,994 28481200 43,559,194 14,907,041 23,976,400 38883441 

 38
STATE Federal Federal

Federal 

Nonpoint Total

Section 306 

FY 2002

Section 309 

FY 2002

Section 6217 

FY 2002

 Federal 

FY 2002 

Alabama 1,597,000 105,000 97,000 1,799,000

Alaska 2,000,000 540,000 370,000 2,910,000

American Samoa 882,000 76,000 79,000 1,037,000

California 2,000,000 540,000 570,000 3,110,000

Connecticut 2,000,000 179,000 123,000 2,302,000

Delaware 1,501,000 101,000 395,000 1,997,000

Florida 2,000,000 540,000 370,000 2,910,000

Georgia 2,000,000 273,000 186,000 2,459,000

Guam 916,000 77,000 79,000 1,072,000

Hawaii 2,000,000 175,000 120,000 2,295,000

Illinois 0 0 0 0

Indiana 1,150,000 0 0 1,150,000

Louisiana 2,000,000 540,000 370,000 2,910,000

Maine 2,000,000 413,000 281,000 2,694,000

Maryland 2,000,000 526,000 559,000 3,085,000

Massachusetts 2,000,000 418,000 635,000 3,053,000

Michigan 2,000,000 540,000 370,000 2,910,000

Minnesota 1,035,000 82,000 82,000 1,199,000

Mississippi 1,266,000 92,000 89,000 1,447,000

New Hampshire 1,055,000 83,000 384,000 1,522,000

New Jersey 2,000,000 540,000 370,000 2,910,000

New York 2,000,000 540,000 370,000 2,910,000

North Carolina 2,000,000 396,000 270,000 2,666,000

Northern Mariana 

Islands 967,000 80,000 81,000 1,128,000

Ohio 2,000,000 182,000 125,000 2,307,000

Oregon 2,000,000 219,000 149,000 2,368,000

Pennsylvania 2,000,000 174,000 268,000 2,442,000

Puerto Rico 2,000,000 219,000 299,000 2,518,000

Rhode Island 1,638,000 107,000 248,000 1,993,000

South Carolina 2,000,000 352,000 241,000 2,593,000

Texas 2,000,000 540,000 370,000 2,910,000

U.S. Virgin Islands 956,000 79,000 230,000 1,265,000

Virginia 2,000,000 540,000 570,000 3,110,000

Washington 2,000,000 539,000 367,000 2,906,000

Wisconsin 2,000,000 193,000 133,000 2,326,000

 TOTALS 58,963,000 10,000,000 9,250,000 78,213,000

 39
STATE Federal Federal

Federal 

Nonpoint Total

Section 306

 FY 2003

Section 309 

FY 2003

Section 6217 

FY 2003

 Federal 

FY 2003

Alabama 1,618,000 105,000 85,000 1,808,000

Alaska 2,040,000 540,000 295,000 2,875,000

American Samoa 902,000 76,000 234,000 1,212,000

California 2,040,000 540,000 570,000 3,150,000

Connecticut 2,025,000 179,000 113,000 2,317,000

Delaware 1,522,000 101,000 252,000 1,875,000

Florida 2,040,000 540,000 295,000 2,875,000

Georgia 2,026,000 273,000 173,000 2,472,000

Guam 936,000 77,000 66,000 1,079,000

Hawaii 2,025,000 175,000 111,000 2,311,000

Illinois 0 0 0 0

Indiana 1,171,000 0 0 1,171,000

Louisiana 2,040,000 540,000 295,000 2,875,000

Maine 2,035,000 413,000 262,000 2,985,000

Maryland 2,040,000 526,000 570,000 3,136,000

Massachusetts 2,036,000 418,000 540,000 2,994,000

Michigan 2,040,000 540,000 295,000 2,875,000

Minnesota 1,055,000 82,000 69,000 1,206,000

Mississippi 1,287,000 92,000 76,000 1,455,000

New Hampshire 1,076,000 83,000 239,000 1,398,000

New Jersey 2,040,000 540,000 295,000 2,875,000

New York 2,040,000 540,000 295,000 2,875,000

North Carolina 2,033,000 396,000 726,000 2,955,000

Northern Mariana 

Islands 987,000 80,000 237,000 1,304,000

Ohio 2,025,000 182,000 116,000 2,323,000

Oregon 2,025,000 219,000 138,000 2,382,000

Pennsylvania 2,025,000 174,000 280,000 2,479,000

Puerto Rico 2,025,000 219,000 308,000 2,552,000

Rhode Island 1,659,000 107,000 256,000 2,022,000

South Carolina 2,029,000 352,000 224,000 2,605,000

Texas 2,040,000 540,000 295,000 2,875,000

U.S. Virgin Islands 976,000 79,000 237,000 1,292,000

Virginia 2,040,000 540,000 570,000 3,150,000

Washington 2,040,000 539,000 295,000 2,874,000

Wisconsin 2,025,000 193,000 443,000 2,511,000

 TOTALS 59,963,000 10,000,000 9,255,000 79,143,000

 40
 

1

 NOAA/NOS, Special Projects Office (SPO). 1999. 50 Years of Populations Change Along the 

Nation’s Coasts: 1960—2010. Washington, D.C. 

2 www.csc.noaa.gov/survey

3 http://coastalmangement.noaa.gov/czm/federal_consistency.html 

4 National Energy Policy – Report of the National Energy Policy Development Group (May 

2001), at 5-7. 

568 Federal Register 34851-34874 (June 11, 2003). 

6 http://www.ocrm.nos.noaa.gov/czm/proposed_rule_June_11_2003.html 

7

 The Coastal Management Act: Developing a Framework for Identifying Performance 

Indicators. 2002. The H. John Heinz III Center for Science, Economics and the Environment. 

8

 Fiscal Year 2002 Appropriations Act for the Departments of Commerce, Justice and State 

(Public Law 107-77) and codified at 16 USC 1456d. 

9

www.cleanmarinas.noaa.gov 

10http://www.coastalatlas.net/ 

11NOAA/NOS, Special Projects Office (SPO). 1999. 50 Years of Populations Change Along the 

Nation’s Coasts: 1960—2010. Washington, D.C. 

12www.csc.noaa.gov/training 

13http://cdmo.baruch.sc.edu/ 

14http://mpa.gov/ 

15 http://mpa.gov/ 

16http://pacificmpa.org/ 

 41