2010-2011 PROGRESS REPORT ON THE 

IMPLEMENTATION OF THE MARINE DEBRIS 

RESEARCH, PREVENTION, AND REDUCTION ACT

Interagency Marine Debris Coordinating Committee | October 2012

Congressional Report requirement as stated in Marine Debris Research, Prevention and Reduction Act, 33 U.S.C. 1954.

Photo: Jacek Maselko/ NOAA
 2 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

This Congressional Report was developed by the Interagency Marine Debris Coordinating 

Committee and produced by the National Oceanic and Atmospheric Administration (NOAA), U.S. 

Department of Commerce to fulfill requirements of the Marine Debris Research, Prevention and 

Reduction Act, 33 U.S.C. 1954.

OCTOBER 2012
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 3

For more information or copies, please contact: 

NOAA Marine Debris Program

Office of Response and Restoration

National Ocean Service

1305 East West Highway

Silver Spring, MD 20910

301-713-2989

www.MarineDebris.noaa.gov

For citration purposes, please use: 

National Oceanic and Atmospheric Administration. 2012

Progress Report on the Implementation of the Marine Debris Research, 

Prevention, and Reduction Act. Silver Springs, MD. 63 pp

The Hawaiian Islands are a hotspot for marine debris accumulation due to their location within the North Pacific 

oceanic currents. Derelict fishing gear and assorted debris from distant locations frequently wash ashore and impact 

the native habitats and organisms of Hawaii. 

Photo: NOAA Marine Debris Program
 4 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

INTERAGENCY MARINE DEBRIS COORDINATING COMMITTEE

Chair, Department of Commerce, National Oceanic and Atmospheric Administration

Vice-Chair, Environmental Protection Agency

Department of Defense, U.S. Navy

Department of Defense, U.S. Army Corps of Engineers

Department of Homeland Security, U.S. Coast Gaurd

Department of the Interior, Fish and Wildlife Service

Department of the Interior, 

Bureau of Safety and Environmental Enforcement

Department of Justice, Environment and Natural Resources Division

Department of State, Office of Marine Conservation

Marine Mammal Commission
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

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COMMITTEE MEMBERS 

Nancy Wallace

IMDCC Chair

Department of Commerce

National Oceanic and Atmospheric Administration

National Ocean Service

Katherine Weiler

IMDCC Vice-Chair

Environmental Protection Agency

Office of Water

Oceans and Coastal Protection Division

FEDERAL DEPARTMENT AND AGENCY MEMBERS

Jason Rolfe

Department of Commerce

National Oceanic and Atmospheric Administration

Mike Pletke

Department of Defense

U.S. Navy

David Condino

Department of Homeland Security

U.S. Coast Gaurd

Charles Barbee

Department of the Interior

 Bureau of Safety and Environmental Enforcement

Bret Wolfe

Department of the Interior

Fish and Wildlife Service

Kate Bowers

Department of Justice

Environment and Natural Resources Division 

Kelly Cohun

Department of State

Office of Marine Conservation 

Michael Kidby

Institute for Water Resources

U.S. Army Corps of Engineers

Robert Jones

Department of State

Office of Marine Conservation

Cara Crawford

ORISE Fellow

Environmental Protection Agency

Office of Water

David Laist

Marine Mammal Commission

Patricia Mutschler

Department of Transportation

Committee on the Marine Transportation System

Shelby Cosby

IMDCC Executive Secretary

Department of Commerce

National Oceanic and Atmospheric Administration
 6 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

TABLE OF CONTENTS

List of Tables ............................................................................................................................... 8

List of Acronyms ........................................................................................................................ 9

Acknowledgments ....................................................................................................................... 10

1.0 Executive Summary ............................................................................................... 11

2.0 Introduction ........................................................................................................... 13

2.1 Overview of the Issue ..................................................................................................13

2.2 Interagency Marine Debris Coordinating Committee Overview and History .... 14

2.3 Charge to the Interagency Marine Debris Coordinating Committee 

 for Progress Reporting ................................................................................................. 15

3.0 Implementation Status of 2010 Recommendations .............................................. 19

3.1 Interagency Marine Debris Coordinating Committee .............................................19

3.2 Multiple-agency Initiatives ........................................................................................... 19

 3.2.1 Environmental Protection Agency ...............................................................20

 3.2.2 Department of Commerce – National Oceanic and Atmospheric 

 Administration .................................................................................................21

 3.2.3 Department of Defense – U.S. Army Corps of Engineers ......................23

 3.2.4 Department of Defense – U.S. Navy ...........................................................23

 3.2.5 Department of Homeland Security – U.S. Coast Guard ...........................23

 3.2.6 Department of the Interior – Fish and Wildlife Service .......................... 24

 3.2.7 Department of the Interior – Bureau of Safety and Environmental 

 Enforcement ................................................................................................... 25

 3.2.8 Department of Justice ................................................................................... 26

 3.2.9 Department of State ..................................................................................... 26

 3.2.10 Marine Mammal Commission ..................................................................... 27

4.0 NOAA Summary of Marine Debris Inventory ...................................................... 29

5.0 The NOAA Marine Debris Program, January 2010 to December 2011 ................. 31

5.1 Program Administration and Structure .................................................................... 31

5.2 Program Activities ........................................................................................................ 32

 5.2.1 Research, Assessment, and State of Knowledge ....................................... 32

 5.2.2 Removal and Recycling .................................................................................. 34

 5.2.3 Prevention, Education, and Outreach ......................................................... 36

 5.2.4 Workshops and Conferences ........................................................................ 37

 5.2.5 Partnerships ..................................................................................................... 38
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6.0 Review of U.S. Coast Guard Program ....................................................................43

6.1 Compliance and Enforcement .................................................................................... 43

 6.1.1 Ship-Generated Garbage: Waste Reception Facilities ............................... 44

 6.1.2 Ship-Generated Garbage: Shipboard Compliance and Enforcement .... 44

6.2 Debris Removal ............................................................................................................. 45

 6.2.1 Statutory Activities ..........................................................................................45

 6.2.2 Marine Debris Removal Associated with Hurricanes Katrina and Rita ... 46

 6.2.2.1 Removal Operations – Louisiana ................................................... 46

 6.2.2.2 Removal Operations – Mississippi .................................................47

6.2.3 Interagency Work in the Papahānaumokuākea Marine National 

 Monument ........................................................................................................47

 6.2.4 Interagency Work with the Army Corps of Engineers ............................ 48

 6.2.5 Interagency Work with NOAA for Marine Debris Tracking ................... 48

 6.2.6 Marine Debris Removals by Local Coast Guard Cutter Units ................ 48

6.3 International Activities ................................................................................................. 49

6.4 Other MDRPRA Activities ......................................................................................... 49

6.5 Outreach ......................................................................................................................... 49

7.0 Funding and Recommendations ........................................................................... 51

Appendix A: 2008 Recommendations .............................................................................................. 54

Appendix B: Overview of the Interagency Marine Debris Coordinating Committee ............. 57

Appendix C: Federal Authorities by Agency ................................................................................... 60

Appendix D: USCG MARPOL Annex V Violation Cases ........................................................... 63
 8 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

TABLES

Table 1. Potential Sources of Marine Debris .......................................................................... 14

Table 2. FY 2010 to FY 2011 IMDCC Agency Funding ........................................................52

Table B1. Overview of the Interagency Marine Debris Coordinating Committee ............. 58

Table B2. IMDCC Overview Acronyms .................................................................................... 59

Table C1. Federal Authorities by Agency .................................................................................... 60

Table D1. USCG MARPOL Annex V Violation Cases ............................................................ 63

Table D2. USCG MARPOL Annex V Violation Citations ..................................................... 63
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

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ACRONYMS

APPS Act to Prevent Pollution from 

 Ships

BSEE Bureau of Safety and 

 Environmental Enforcement

CWA Clean Water Act

DFG Derelict Fishing Gear

DOC Department of Commerce

DOD Department of Defense

DOI Department of the Interior

DOJ Department of Justice

DOS Department of State

EPA U.S. Environmental Protection 

 Agency

ESF Emergency Support Function

FAD Fish Aggregating Device

FEMA Federal Emergency 

 Management Agency

FfE Fishing for Energy

FWS U.S. Fish and Wildlife Service

GCFI Gulf and Caribbean Fisheries 

 Institute

IAA Inter-agency Agreement

ICC International Coastal Cleanup

IMDCC Interagency Marine Debris 

 Coordinating Committee

IMO International Maritime 

 Organization

ISO International Organization for 

 Standardization

MA Mission Assignment

MARPOL International Convention for the 

 Prevention of Pollution from Ships

MDP NOAA Marine Debris Program

MDRPRA Marine Debris Research, Prevention, and 

 Reduction Act

MEPC Marine Environment Protection 

 Committee

MMC Marine Mammal Commission

MOU Memorandum of Understanding

MPPRCA Marine Plastics Pollution Research and 

 Control Act

NASA National Aeronautics and Space 

 Administration

NOAA National Oceanic and Atmospheric 

 Administration

NRF National Response Framework

NRP National Response Plan

NWR National Wildlife Refuge

NWSC Northwest Straits Commission

USACE U.S. Army Corps of Engineers 

USCG U.S. Coast Guard
 10 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

ACKNOWLEDGMENTS

The Interagency Marine Debris Coordinating Committee (IMDCC) would like to acknowledge Neal Parry 

for coordinating the multi-agency inputs and edits to this progress report. The Committee would also 

like to acknowledge those who provided outstanding input, editing, and review of this report throughout 

the entire process. The IMDCC would specifically like to recognize Nick Hilosky and Cara Crawford for 

compiling several of the tables and providing additional input into early draft versions. A thank you goes to 

Courtney Arthur, Sherry Lippiatt, Sarah Opfer, and Dianna Parker for providing helpful edits, and special 

thanks goes to Asma Mahdi for creating the final document layout.

A NOAA diver removes a nest of derelict fishing gear. Abandoned and derelict fishing gear not only impacts the 

marine environment, but it can also pose a navigational hazard to vessels.

Photo: Jake Asher/ NOAA
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

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1.0 EXECUTIVE SUMMARY

This Interagency Marine Debris Coordinating Committee (IMDCC) Progress Report provides 

an update on the activities Federal agencies have undertaken between January 2010 and December 2011 

to address marine debris, as mandated by the Marine Debris Research, Prevention, and Reduction Act 

(MDRPRA; 33 U.S.C. 1951 et seq.). This is the second Progress Report since the publication of the 

Interagency Report on Marine Debris Sources, Impacts, Strategies, and Recommendations (Interagency 

Report), submitted to Congress in August 2008. 

The 2008 Interagency Report provided a detailed review of the problems associated with marine 

debris and laid out 25 recommendations intended to guide the Federal Government’s strategies with 

respect to the problems of persistent marine debris. This progress report includes all of the information 

requested in the MDRPRA, Section 5(c)(2), entitled “Annual Progress Reports.”

Section 2: provides a brief overview of marine debris and its impacts, the history of the IMDCC, 

and the mandated purpose of this Progress Report.

Section 3: provides a review of multi-agency and individual agency activities from those 

agencies currently represented on the IMDCC, and associates each activity with a 

recommendation from the Interagency Report.

Section 4: provides an update on the status of the Federal Information Clearinghouse, currently 

in development within the National Oceanic and Atmospheric Administration.

Section 5: is a review of the NOAA Marine Debris Program, which was chartered in the 

MDRPRA, from January 2010 to December 2011.

Section 6: is a review of USCG activities pertaining to marine debris, from 2010 to 2011.

Section 7: summarizes Federal agency spending on marine debris activities for FY 2010 and FY 

2011. 

This section also addresses the means by which IMDCC priorities are determined. The 

appendices contain specific information on the recommendations from the initial Report to Congress, an 

overview of the IMDCC, relevant Federal agency authorities, and information on MARPOL Annex V 

violations.
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Volunteers at Anacostia Park in Washington, D.C. participate in the International Coastal Cleanup (ICC) event. 

The ICC is the largest global volunteer event on behalf of our world’s oceans and waterways. On the third Saturday 

each September, volunteers join forces to clean up marine debris from inland to coastal regions. 

Photo: Gwen Bausmith/ EPA
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2.0 INTRODUCTION

2.1 Overview of the Issue

Marine debris is a pervasive problem along shorelines and in coastal waters, estuaries, and oceans 

throughout the world. For purposes of the Marine Debris Research, Prevention, and Reduction Act of 

2006 (MDRPRA) only, marine debris is defined as any persistent solid material that is manufactured or 

processed and directly or indirectly, intentionally or unintentionally, disposed of or abandoned into the 

marine environment or the Great Lakes. Marine debris can kill or injure marine and coastal wildlife; 

degrade habitats; interfere with navigation safety; cause economic loss to maritime industries, fishing, and 

coastal communities; and negatively impact human health. These adverse impacts have been documented 

all over the world. Man-made persistent objects like fishing gear, plastic bags, food wrappers/containers, 

and beverage bottles are elements of our daily lives; however, when these objects are abandoned or 

disposed of improperly, they may enter the marine or coastal environment and become marine debris. As 

production and use of these objects increases globally, the challenge of containing and properly managing 

them becomes ever greater.

The significant economic, ecological, and human health and safety impacts described above vary 

in scope and intensity based on the debris type (e.g., plastic bags, miscellaneous plastics, derelict fishing 

gear, or shipping containers), location (e.g., floating in shipping lanes or resting on sensitive habitats 

like coral reefs), and condition. Direct economic effects from marine debris can be measured through 

different sectors, including analysis of impacts on tourism, losses in commercial fishing catch revenues, 

loss of fishing gear, damaged vessels, and human injuries. For example, medical debris washing on shore 

in New Jersey in 1988 resulted in loss of tourism income estimated between $700 million and over $3 

billion (in 2010 US$). Marine debris can also cause adverse impacts on aquatic ecosystems, such as coral 

reefs, wetlands, fish habitats, beaches, and breeding grounds and corridors used by migratory species. 

Marine debris can affect species directly, by entangling or smothering of marine and coastal wildlife, or 

indirectly, through changes to their habitat. For example, in a study of endangered green sea turtles, 23 

of 38 stranded animals were shown to have ingested anthropogenic debris, which can be mistaken for 

food. In addition, marine debris can endanger human health and safety both directly, such as injuries to 

beachgoers from a broken bottle, or indirectly, such as abandoned fishing nets and lines that disable or 

damage vessel propulsion systems. Recent research also shows that plastic debris is a potential vector 

for the transfer of persistent, bioaccumulative, and toxic pollutants (PBTs) from the water to the food 

web, potentially increasing risk to humans and marine species. Because of the extremely long lifetime 

of plastic in the ocean and other aquatic environments, prevention strategies are vital to minimizing these 

risks.

Marine debris originates from both land-based and ocean-based sources (Table 1). People and 

their actions, whether intentional or accidental, are the source of most marine debris. Thus, it is important 

to identify both the origin of the debris and the types of activities that generate and convey marine debris, 
 14 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

in order to educate the public about how improperly managed trash, litter, and other items can affect 

marine and coastal environments.

TABLE 1. POTENTIAL SOURCES OF MARINE DEBRIS

Land-based Sources of Marine Debris Ocean-based Sources of Marine Debris

• Municipal landfills

• Transport of litter and waste (on land or on 

waterways)

• Stormwater discharge

• Industrial and manufacturing activities

• Debris generated in coastal and inland zones 

from improper waste management

• Natural events

• Merchant shipping, ferries, and cruise liners

• Fishing vessels

• Public vessels

• Private vessels

• Offshore oil and gas platforms and drilling rigs

• Aquaculture installations

• Natural events

The problem of marine debris must be dealt with using a comprehensive approach that is local 

in scale, global in scope, and focused on prevention at the source. The issue can be linked to a lack of 

awareness regarding the impacts of marine debris and appropriate disposal practices, a lack of interest 

in following the appropriate practices, or an inability to follow appropriate practices due to lack of 

infrastructure or high costs. Moreover, the most successful solution requires a mobilization of publicand private-sector actions resulting in a change in attitudes and practices that will prevent marine debris 

at its source. This solutions-based approach to prevention of marine debris is effective when coupled 

with response, research, and coordination to address the inevitable continued presence of debris in the 

environment.

2.2 Interagency Marine Debris Coordinating Committee Overview and History

While numerous programs have been created to address various aspects of the marine debris 

problem since the 1970s, the Federal Government did not take a holistic approach until the 1980s. During 

the late 1980s, efforts to increase coordination among stakeholder agencies included the creation of the 

Interagency Task Force on Persistent Marine Debris, the release of the Task Force’s Report on Marine 

Debris (1988 Report of the Interagency Task Force on Persistent Marine Debris), and the passing of the 

Marine Plastic Pollution Research and Control Act of 1987 (MPPRCA). The MPPRCA created a Marine 

Debris Coordinating Committee, which met sporadically over the years as agencies moved forward to 

implement the Task Force report. Federal agencies implemented some of the Report’s recommendations 

for additional marine debris research, monitoring, and removal as well as fostering stewardship of the 

ocean. Although individual agencies created and continued programs to address marine debris, the 

Committee did not maintain a regularly coordinated interagency approach to address marine debris 

prevention; instead, interagency workgroups met periodically to discuss domestic and international 

activities for marine debris. In 2004, the Marine Debris Coordinating Committee was re-established 

through the Ocean Action Plan and renamed the Interagency Marine Debris Coordinating Committee 

(IMDCC). Coordination among Federal agencies became more consistent, and the IMDCC’s mandate 

was codified through the passage of the MDRPRA in 2006.

The role of the IMDCC is to develop and recommend comprehensive and multi-disciplinary 

approaches to reduce the sources and adverse impacts of marine debris on the nation’s marine and coastal 

environment, natural resources, human health and public safety, and the economy. The objective of the 

IMDCC is to coordinate a comprehensive program of marine debris research, prevention, reduction, 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 15

and removal activities among Federal agencies, in cooperation and coordination with nongovernmental 

organizations, industries, universities, research institutions, States, Tribal Governments, and other 

nations, as appropriate. The IMDCC provides the mechanism to ensure that these agencies increase 

their coordination to address marine debris. In addition, Federal agencies within the IMDCC continue to 

address aspects of marine debris pertinent to each agency’s mandates and capabilities (see Table B.1 in 

Appendix B). For specific agency mandates see Appendix C.

The MDRPRA established reporting requirements for the IMDCC that include submitting 

a preliminary Report to Congress on marine debris impacts and strategies, followed by progress 

reports to Congress every 2 years on the implementation status of the strategies and recommendations 

presented in the first report. The first IMDCC Report to Congress, submitted in August 2008, laid out a 

comprehensive strategy to address marine debris. The strategy relied on a coordinated approach among 

partners to support prevention, response, research and development, and other coordinated marine debris 

activities. In the 2008 report, the IMDCC described the sources and impacts of marine debris and the 

challenges associated with their characterization. The report also discussed the activities to address 

marine debris that had occurred over the past 20 years, including activities recommended in the report 

of the 1988 Interagency Task Force on Persistent Marine Debris. Finally, the 2008 IMDCC Report to 

Congress included 25 recommendations aimed at guiding the Federal Government’s strategies for marine 

debris. These recommendations were intended to be broad in scope, address the different mandates and 

policies associated with debris issues, and promote collaboration among Federal agencies and partners. 

Recommendations were organized around four themes encompassing the following topic areas: (1) 

marine debris prevention through education and outreach, legislation/regulation/policy, and incentive 

programs; (2) response to debris already in the environment through enforcement and cleanups; (3) 

research and technology development to assess next steps, address gaps, reduce or prevent material from 

entering the marine system, and mitigate impacts; and (4) cross-theme efforts that foster coordination.

2.3 Charge to the Interagency Marine Debris Coordinating Committee for

 Progress Reporting

The IMDCC was charged by the MDRPRA to submit Progress Reports to Congress, designed to 

evaluate United States and international progress in accomplishing the purpose of the MDRPRA, no later 

than 3 years after the date of the enactment of the MDRPRA, and biennially thereafter. The MDRPRA 

requires the Progress Reports to include the following items:

• The status of implementation of any recommendations and strategies of the Committee and 

analysis of their effectiveness. This progress report provides an update to the 2010 Report to 

Congress, which included an overview of IMDCC actions, multi-agency initiatives, and individual agency activities that support the recommendations outlined in the 2008 report;

• A summary of the marine debris inventory maintained by the National Oceanic and Atmospheric 

Administration (NOAA);

• A review of the NOAA program authorized by Section 3 of the MDRPRA, including projects 

funded and accomplishments relating to reduction and prevention of marine debris;

• A review of U.S. Coast Guard (USCG) programs and accomplishments relating to marine debris 

removal, including enforcement and compliance with the International Convention for the Prevention of Pollution from Ships (MARPOL) requirements; and

• Estimated Federal and non-Federal funding provided for marine debris and recommendations for 

priority funding needs.

This Progress Report provides an update to the 2010 Report to Congress, which included an overview of IMDCC actions, multi-agency initiatives, and individual agency activities that support the recommendations outlined in the 2008 report.
 16 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

The NOAA Marine Debris Program (MDP) was formalized by the MDRPRA, which set specific 

activities and debris types to be addressed. The MDP investigates and solves the problems that stem from 

marine debris through research, prevention, and reduction activities, in order to protect and conserve our 

Nation’s marine environment and ensure navigation safety. Section 5 of this report outlines the activities 

and focus areas of the MDP from 2010 through 2011.

In fulfillment of the USCG’s responsibilities under the Act to Prevent Pollution from Ships (33 

U.S.C. 1901-1915 (1996); APPS) and the mandate of the MDRPRA, the USCG works to implement 

MARPOL, ensure compliance among the regulated community, and take action against violations. The 

USCG helps to reduce the amount of debris in the environment through its pollution prevention mission and its assistance to interagency partners; in addition to its operational activities, the USCG works 

diligently to promote international action against marine debris and marine debris awareness among the 

regulated public. Section 6 discusses the USCG’s activities in these areas.

Federal agency funding is identified in Section 7. This section also describes the means by which 

the IMDCC sets annual priorities and highlights the Committee’s coordination role among agencies with 

differing mandates.
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

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Microplastics, debris categorized as pieces of plastic less than five millimeters in length, are an emerging topic in the 

field of marine debris research. These small bits of plastic make up the majority of items found in the “Great Pacific 

Garbage Patch,” where they float suspended in the water column.

Photo: NOAA Marine Debris Program
 18 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Nets, fishing line, crab pots, and lobster traps are types of derelict fishing gear that can negatively impact marine habitat and 

entangle marine life. 

Photo: Neal Perry/ NOAA
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

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3.0 IMPLEMENTATION STATUS OF 2008 RECOMMENDATIONS

In its 2008 Report to Congress, the IMDCC presented 25 recommendations (Appendix A) 

intended to guide the Federal Government’s strategies with respect to the problems of marine debris. 

These broad recommendations were intended to be undertaken both individually by agencies and 

collaboratively through the IMDCC. The recommendations were organized around the following four 

themes: (1) marine debris prevention, (2) response to debris already in the marine environment, (3) 

research and development, and (4) cross-theme efforts that foster coordination.

Federal agencies of the IMDCC are independently and collaboratively involved in a range of 

diverse projects addressing the four themes of the 2008 report. This Report focuses on the priority themes 

and projects of the IMDCC and each agency over the last 24 months (January 2010 to December 2011). 

This Progress Report on the status of implementing the 2008 recommendations includes descriptions of 

activities undertaken by the IMDCC itself, through multi-agency cooperative initiatives, and by individual 

agencies.

3.1 Interagency Marine Debris Coordinating Committee

The IMDCC continued to coordinate a comprehensive program of marine debris activities 

through its member agencies throughout 2010 and 2011. Quarterly IMDCC meetings were held to 

strengthen collaboration and coordination among the Federal agencies. Following the development of 

the action plan for 2009, the IMDCC successfully implemented the recommended priority marine debris 

activities. The four recommendations implemented as priority activities by the IMDCC incorporated the 

prevention, research, and coordination themes.

In 2010 and 2011, the IMDCC continued to serve as a central point for coordinating Federal 

efforts to develop new policies, strengthen existing policies, and identify new research topics or projects 

[Recommendation 8.3]. A newly proposed initiative would have the IMDCC serve as a coordinating body 

for the Federal Government’s engagement with marine debris resulting from the March 2011 tsunami that 

impacted Japan, but details are currently under discussion [Recommendation 8.2].

3.2 Multiple-agency Initiatives

In addition to the IMDCC efforts described above and the individual-agency efforts described 

below, there have been a number of multi-agency initiatives over the last 24 months. These initiatives 

have focused on the themes of prevention, response to debris already in the marine environment, and 

fostering coordination.

NOAA, Environmental Protection Agency (EPA), Fish and Wildlife Service (FWS), and the 
 20 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Marine Mammal Commission (MMC) partnered to plan, coordinate, and execute the Fifth International 

Marine Debris Conference that took place March 20-25, 2011, in Honolulu, Hawaii, in cooperation with 

the United Nations Environment Programme – UNEP. These IMDCC agencies, along with the United 

Nations Environment Programme and other organizations, brought together 440 participants representing 

38 countries. Attendees participated in workshops and field trips, heard technical and policy sessions over 

4 days, and saw over 30 informative posters. Keynote speakers included Jean-Michel Cousteau, Senator 

Daniel Inouye (HI), Representative Sam Farr (CA), and ocean rower Roz Savage. Conference participants 

refined and endorsed by acclamation the Honolulu Commitment, which outlines 12 actions to reduce 

marine debris. Participants and a group of rapporteurs also worked to revise the Honolulu Strategy, a 

global framework to prevent and manage marine debris, which was published in March 2012. 

Continuing an effort that has gone on for over a decade, NOAA, FWS, USCG, and other 

cooperating agencies and groups removed derelict fishing nets from the Papahānaumokuākea Marine 

National Monument (PMNM) in 2010 and 2011. Over 706 metric tons of derelict nets have been removed 

from coral habitat and shorelines since 1996 and 35 metric tons were removed during this report period.

In 2011, the International Maritime Organization’s (IMO) Marine Environment Protection 

Committee (MEPC) adopted amendments to Annex V to MARPOL. MARPOL Annex V addresses 

the discharge of garbage generated during the normal operation of ships. These amendments were the 

culmination of five years of work, and among other technical modifications, they changed the structure 

of the Annex from one prohibiting the discharge of a few types of garbage (e.g., plastics) and allowing 

discharges of other garbage types (in some cases with restrictions, such as minimum distance from 

shore), to one that generally prohibits the discharge of garbage from ships except as provided in the 

Annex. The MEPC is developing guidelines for the implementation of the revised Annex V and these 

should be finalized by the amendments’ entry into force date of January 1, 2013. The USCG coordinated 

an interagency working group which provided U.S. input on both the amendments and guidelines. The 

working group included NOAA, EPA, Department of State (DOS), Department of Defense (DOD), and 

Department of Justice (DOJ). In another IMO effort to address issues related to marine debris, EPA 

coordinated an interagency working group that provided input for revisions to guidance on spoilt cargo 

management as part of a joint MEPC–London Convention Correspondence Group.

In 2010, with the assistance and support of all of the countries bordering the Wider Caribbean 

Area (which includes the entire U.S. portion of the Gulf of Mexico and the Atlantic Ocean and Caribbean 

Sea bordering Florida and U.S. Island Territories), the USCG, NOAA, DOS, U.S. Navy (Navy), and 

EPA coordinated the submittal of a proposal to the IMO MEPC to bring the MARPOL Annex V Wider 

Caribbean Area Special Area (WCRSA) into effect. With the notification that reception facilities for 

Annex V ships’ waste were available, the MEPC agreed that the WCRSA would come into effect on May 

1, 2011. The USCG developed and presented an international workshop on MARPOL and reception 

facilities for over 20 Wider Caribbean Region Countries. 

The tragedy of the March 2011 tsunami in Japan had far-reaching effects that included the U.S. 

West Coast and Hawaii. As tsunami waters receded from land, much of what was in the inundation zone 

washed into the Pacific Ocean. Heavier materials sank close to shore while the buoyant materials floated 

and comprised the debris fields visible in satellite imagery and aerial photos of the waters surrounding 

Japan shortly after the tsunami. While the tsunami debris represents a small percentage of marine debris 

that normally washes up on U.S. shores, since March 2011, the Federal Government has been actively 

engaged in taking extra steps to address this issue in partnership with States, local governments, and other 

stakeholders. NOAA is leading efforts with IMDCC partners to collect data, assess the debris, and reduce 

possible impacts to our natural resources and coastal communities. Interagency efforts to address the 

debris conducted in 2011 are described throughout this report. 

3.2.1 Environmental Protection Agency 

EPA has a unique capacity, as a national regulatory agency with 10 regional offices and programs 

ranging from ocean and coastal protection to solid waste and stormwater management, to address marine 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 21

debris at the source, as it moves through the watershed, and as it settles in the marine environment. 

Recognizing the role EPA programs and mandates play throughout the marine debris pathway, EPA 

identified prevention as the primary theme for its Marine Debris Prevention Program. EPA focused on 

maximizing the agency’s ability to fulfill both regulatory and non-regulatory mandates for marine debris 

prevention through its Offices of (1) Resource Conservation and Recovery, (2) Wastewater Management, 

(3) Pollution Prevention and Toxics, and (4) Wetlands, Oceans, and Watersheds [Recommendation 2.2]. 

EPA also served as the lead for the National Ocean Policy (NOP) marine debris workgroup, helping to 

develop actions related to mitigating marine debris [Recommendation. 2.2].

EPA promoted prevention of marine debris through the development of various marine debris 

outreach materials, including an urban-coastal connection lesson plan for students in grades 4 through 7, 

an urban-coastal connection factsheet, an interactive game, and a web brochure for the Agency’s online 

“Marine Debris Prevention Toolkit” [Recommendation 1.2]. EPA continued to revise its Marine Debris 

website to provide up-to-date information and public awareness of marine debris as well as Agency 

efforts to address the problem [Recommendation 1.2]. The Agency also posted disposable bag FAQs on 

its website to highlight EPA’s support of strategies to reduce pollution at the source.

EPA supported public awareness campaigns and improved external outreach by partnering 

with other organizations on prevention of marine debris. Some examples include EPA sponsorship and 

participation in the Ocean Conservancy’s annual International Coastal Cleanup event [Recommendations 

1.3, 5.3, and 8.4], participation in the Fifth International Marine Debris Conference in Honolulu, Hawaii, 

and education and outreach through presentations and marine debris printed media [Recommendations 

1.2, 1.3, 8.1 and 8.2]. At the EPA regional level (Region 9), the Agency convened with partners to discuss 

a Federal response to tsunami debris and also developed a monthly tsunami debris bulletin with NOAA.

EPA supported research efforts by completing a white paper focusing on the impacts of toxics 

related to plastic debris on both human health and the marine environment (manuscript in review), and by 

finalizing standardized marine debris monitoring protocols for use on EPA’s Ocean Survey Vessel, Bold 

[Recommendation 6.1, 6.2]. In addition, at the Regional level, EPA funded and provided resource support 

for two fish tissue studies to determine toxicity of plastic marine debris to fish, compiled a Preliminary 

Assessment Report on North Pacific Marine Debris, and drafted an initial “Cost of Trash to Local 

Government Analysis.”

For more information on EPA’s Marine Debris Prevention Program, see www.epa.gov/owow/

oceans/debris/

3.2.2 Department of Commerce – National Oceanic and Atmospheric Administration

NOAA has taken a lead role in conducting marine debris research, removal, assessment, and 

education and outreach activities. NOAA has provided support for external entities to complement 

agency work through grants and contracts and has focused particular effort on enhancing regional 

partnerships, holding workshops on technical marine debris activities to enhance collaboration and 

communication among stakeholders, improving education and outreach to inspire behavior change, and 

expanding research on the impacts of derelict fishing gear. NOAA also supported the development of 

marine debris actions for inclusion in the draft National Ocean Policy Implementation Plan.

A thorough overview of NOAA’s marine debris activities can be found on its website, http://

marinedebris.noaa.gov, which received over 6,500,000 hits between January 2010 and November 2011. 

A large part of the website is dedicated to prevention techniques for a wide variety of marine user groups. 

Recent NOAA prevention activities that utilize innovative tools and resources include an expanded 

partnership with Ocean Conservancy to create the Keep the Coasts Clear Campaign, which is a targeted 

public awareness and education campaign aimed to shape understanding of the impacts of marine debris 

on ocean health and build a strong and diverse constituency engaged in preventing and eliminating 

marine debris. Through the use of scientifically accurate and engaging messages, the campaign tells the 

story of how specific types of marine debris matter in ways that resonate with targeted audiences thereby 
 22 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

empowering and inspiring them to become part of the solution. NOAA has also entered into partnership 

with the University of Georgia to support the Southeast Atlantic Marine Debris Initiative (SEA-MDI). 

SEA-MDI is a three-state marine debris consortium to develop strategic regional marine debris efforts, 

while contextualizing the region within the U.S. to facilitate Federal efforts at prioritizing areas most 

impacted by marine debris. A key factor in this initiative is the use of innovative technologies and unique 

expertise to add culturally relevant outreach tools and information to current available resources. And 

finally within this prevention category, is the continuation of the Fishing for Energy (FfE) partnership 

between NOAA, Covanta Energy, the National Fish and Wildlife Foundation (NFWF), and Schnitzer 

Steel. FfE provides commercial fishermen on the East and West coasts of the U.S. free locations for the 

disposal of old fishing gear, which is then converted into energy [Recommendation 3.2]. To date, the 

partnership has collected over 700 metric tons of gear at 29 ports across the country.

During this reporting period, research and development received increased attention, particularly 

the standardization of marine debris monitoring methodologies. Standardized monitoring protocols were 

refined for marine debris found on shorelines and in surface waters. These protocols facilitate long-term, 

statistically valid marine debris monitoring. A multi-year research project continues with the University 

of Washington, Tacoma to develop protocols for collecting and analyzing water and sediment for marine 

microplastics [Recommendations 6.1 and 6.2]. Field protocols for monitoring all marine litter, as well 

as analytical protocols for determining microplastic abundance, are undergoing final testing to ensure 

scientific rigor and will be released in 2012. In addition, the Second Research Workshop on Microplastic 

Debris took place 5-6 November 2010 in Tacoma, Washington at the Center for Urban Waters. The 

workshop, a joint effort by the MDP and the University of Washington, Tacoma, was hosted by Dr. Joel 

Baker and included approximately 35 scientists whose expertise inform the issue of microplastics in the 

marine environment. Workshop proceedings were posted to the NOAA Marine Debris Program website in 

March 2012.

NOAA held eight workshops between January 2010 and December 2011 to foster coordination 

[Recommendation 8.1]. These workshops focused on several topics, including microplastics, regional 

strategic planning, and detecting and assessing the impact of derelict fishing gear. These workshops 

varied in intent, from assessing the state of knowledge in a field, to sharing best practices, to identifying 

and implementing new activities. Each workshop brought together relevant local, state, national, or 

international experts and produced proceedings documents. Workshops are a critically important 

component of the MDP’s strategy to strengthen partnerships, facilitate information exchange, and serve as 

an opportunity to explore recent scientific research, outreach tools, and communication strategies.

NOAA co-hosted the Fifth International Marine Debris Conference in cooperation with UNEP 

and other IMDCC agencies in March 2011. This conference brought together the global marine debris 

community to heighten understanding and appreciation of the sources of marine debris, the threats posed 

by marine debris, and the cost to coastal communities and marine biodiversity. It served to highlight 

recent advances in marine debris research and encourage sharing of strategies and best practices to 

assess, reduce, and prevent the impacts of marine debris. The conference also provided an opportunity 

for the development of collaborative solutions to real problems, including specific bilateral or multicountry strategies to better integrate marine debris management strategies with product design, waste 

prevention, solid waste management, and maritime waste management strategies around the world. The 

most significant outcomes of the conference were the Honolulu Strategy and the Honolulu Commitment. 

The Honolulu Strategy is a framework for a comprehensive and global effort to reduce the ecological, 

human health, and economic impacts of marine debris globally. It is intended for use on multiple 

levels—global, regional, national, and local—involving the full spectrum of civil society, government and 

intergovernmental organizations, and the private sector. The Honolulu Commitment is a multi-stakeholder 

pledge to address marine debris. 
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3.2.3 Department of Defense – U.S. Army Corps of Engineers 

The U.S. Army Corps of Engineers (USACE) addresses debris both within and outside Federallymaintained navigation channels. Debris within Federally-maintained navigation channels that is 

obstructing navigation is the responsibility of the USACE for removal under its own authority.

With respect to a Stafford Act (Presidentially-declared major disaster or emergency) response and 

through a recent FEMA/USACE agreement, FEMA can now mission-assign USACE (under Emergency 

Support Function #3 - Public Works and Engineering) (ESF #3) to remove marine debris commonly 

referred to as wet debris that is outside of Federally-maintained navigation channels. The work performed 

under this task to the USACE addresses the removal of eligible obstructions, debris and vessels from 

waterways impacted by an event. The debris removal boundaries are within the waterway and include 

shorelines of the waterway itself. Anything in a waterway that creates an obstruction to the movement 

of vessel traffic in a commercial or commonly used waterway and within the task defined area is eligible. 

Wet debris may include objects that have been carried by the flood waters, tidal/storm surge, and/or the 

wind and deposited in the waterway. Debris may include, but is not limited to Styrofoam containers, 

barrels, construction and demolition debris, automobiles, i.e., anything man-made and remains resident 

in the water. Hazardous waste materials and receptacles are eligible, but will be removed by ESF#10, 

USCG or EPA. The secondary focus will be to collect eligible debris along shorelines to the mean hightide level. All debris removal must be required as a result of a declared major disaster or emergency and 

meet FEMA’s other eligibility requirements. This guidance is in compliance with FEMA Recovery Policy 

RP9523.5, Debris Removal from Waterways, dated March 29, 2010.

3.2.4 Department of Defense – U.S. Navy

In the period since the 2010 IMDCC Progress Report, the Navy has maintained its efforts to 

prevent the introduction of marine debris into the marine environment from Navy surface ships [Theme 

1 – Prevention]. Navy continued to install upgraded plastic waste processors (PWPs) on all surface 

warships. The PWP Mod 1 features increased capacity, greater reliability, easier repair, and no limitations 

on its use, even in the heaviest seas. As of the end of Fiscal Year 2011, Navy had completed 92 percent of 

its program to upgrade ships with older PWPs to PWP Mod 1. Navy estimates that its entire surface fleet 

will be upgraded by the end of Fiscal Year 2012. At the local level, Navy continues to partner with state 

and local authorities to assist in the removal of marine debris, as well as conduct beach and shore cleanups at its installations [Theme 2 – Response].

3.2.5 Department of Homeland Security – U.S. Coast Guard

The USCG activities focused on prevention of marine debris deposition and response to debris 

already in the marine environment through compliance, enforcement, and cleanups. The USCG works 

with the international community through the IMO and the International Organization for Standardization 

(ISO); it also reaches out to the American public at the local unit level, and through the Sea Partners 

Campaign. USCG activities are described in more detail in Section 6 of this report.

To ensure compliance with MARPOL, APPS, and associated regulations, Marine Inspectors 

inspect U.S. commercial vessels annually and examine foreign vessels through the USCG’s Port 

State Control program. From 2010 to November 24, 2011, the USCG performed MARPOL Annex 

V examinations onboard more than 16,200 U.S. commercial vessels and more than 11,400 foreign 

commercial vessels [Recommendation 2.2]. The USCG ensures domestic alignment with MARPOL 

Annex V through the certification of facilities under the Certificate of Adequacy process (as of December 
 24 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

1, 2011, the USCG certifies 1450 MARPOL Annex V facilities), annual facility inspections, and harbor 

patrol spot checks [Recommendation 2.2]. The USCG has maintained the number of facility inspections 

for the past 2 years (14,441 in 2010 and 13,067 in 2011 through November 24, 2011), while the actual 

number of Certificate of Adequacy (COA) inspected facilities has declined (likely due to some facilities 

closing and other facilities consolidating or falling outside of 33 CFR 158 applicability criteria) despite 

an overall increase in the number of waterfront facilities (all waterfront facilities including fishing ports 

terminals and recreational boat marinas must provide Annex V waste reception facilities but are not 

subject to a COA). The trend of decreasing facility pollution incidents has continued in 2010-2011. 

Section 6 of this report documents other achievements of the facility compliance program.

When vessels or facilities are found to be non-compliant, the USCG pursues various enforcement 

actions, as appropriate, including written warnings, monetary civil penalties, actions against mariner 

credentials, and criminal penalties. Between 2010 and 2011, USCG undertook both criminal and civil 

enforcement actions for incidents of non-compliance. In the past, non-compliance detected by the USCG 

has included falsification of oil and garbage record books and failure to record discharges. As a result of 

these actions, the Federal Government secured guilty pleas and the imposition of penalties.

To provide a superior level of environmental protection, the USCG works with DOS and other 

Federal Government agencies to improve the international agreements and implementing laws and 

regulations that it enforces. As described in more depth in the multiple-agency initiatives Section (3.2) 

above, the USCG has chaired the U.S. interagency working group that provided input to the MEPC 

Correspondence Group for the preparation of the report on the review of MARPOL Annex V. In addition, 

the USCG has coordinated the IMO’s Flag State Implementation subcommittee correspondence group 

working on reception facility adequacy issues and has continued to encourage the use of IMO Forms 

for Advance Notice and Waste Receipt as well as IMO guidance for ships and reception facilities to 

better manage ships’ waste, including MARPOL Annex V wastes (i.e., garbage). The USCG has also 

conducted public meetings aimed at soliciting comments from stakeholders on improving MARPOL 

compliance for ships operating in waters under the jurisdiction of the U.S. and at U.S. ports and facilities 

[Recommendations 2.2 and 8.2].

The USCG continues its support of efforts to protect the PMNM partnership [Recommendations 

5.3 and 1.2]. USCG statutory removal missions and other interagency debris removal missions are noted 

in Section 6.

3.2.6 Department of the Interior – Fish and Wildlife Service 

The FWS marine debris activities focus on the 180 coastal national wildlife refuges (NWRs) that 

span every U.S. state and territory. Coastal refuge staff and volunteers utilize educational and outreach 

materials developed by the MDP, EPA, and others to educate refuge visitors and educational groups of all 

ages about the dangers of marine debris to humans and wildlife and promote practices that help prevent 

marine debris [Recommendation 1.1 and 1.2]. Biologists and docents use stories of the refuge wildlife 

most affected by marine debris, including sea turtles, marine mammals, and sea birds, to make direct 

connections between human activities (e.g., improper trash disposal) and marine debris. These stories 

often include showing pictures of wildlife that have been impacted by common everyday items like bottle 

caps, cigarette lighters, and plastic bags. The FWS organizes their substantial volunteer base, provided by 

national wildlife refuge “Friends” groups and other conservation partners, to conduct International Coastal 

Cleanups and other events at coastal NWRs and other areas [Recommendation 1.3].

Most severely affected among the coastal NWRs are the Hawaiian Islands NWR and Midway 

Atoll NWR in the Northwest Hawaiian Islands, where shorelines and near shore coral reefs are 

continuously littered by marine debris. The small FWS staff at Midway Atoll NWR utilizes volunteers 

when they are available to clean debris from beaches, and often focus efforts on removing the items that 

present the highest entanglement risks to wildlife (i.e., fishing nets and lines). The FWS also provides 

logistical support to NOAA cleanup crews that access more remote areas of the PMNM [Recommendation 
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5.1, 5.2, and 5.3]. Midway Atoll NWR continues to support marine debris monitoring assessments meant 

to measure the rate of marine debris accumulation on the Northwest Hawaiian Islands [Recommendation 

6.1].

The marine debris removal efforts in the Alaska Maritime NWR, which includes the Aleutian 

Islands, present an even greater challenge. This NWR includes hundreds of remote rocky islands 

spanning more than 1000 miles in extremely treacherous waters. FWS staff collaborate with other 

Federal and State agencies to identify the highest priority sites for cleanup, provide logistical support to 

volunteers, and coordinate these efforts with the State and other Federal agencies [Recommendation 5.1, 

5.2, and 5.3].

The FWS also provided sponsorship support and participated in the International Marine Debris 

Conference in March 2011 [Recommendation 8.1]. The FWS uses the IMDCC to pursue partnerships 

and share information with other agencies about the FWS’ trust resources affected by marine debris 

[Recommendation 8.3].

3.2.7 Department of the Interior – Bureau of Safety and Environmental Enforcement 

 [formerly Minerals Management Service]

In October 2011, MMS was reorganized and officially split into two agencies; the Bureau 

of Ocean Energy Management (BOEM) and the Bureau of Safety and Environmental Enforcement 

(BSEE). The Director of BSEE, under the supervision of the Assistant Secretary – Land and Minerals 

Management, is responsible for ensuring that the highest level of safety, performance, and environmental 

standards are followed in all offshore energy activities. Responsibilities for monitoring, improving, and 

enforcing industry’s compliance with environmental standards during offshore operations have been 

delegated to the Environmental Enforcement Division.

BSEE will continue to focus on marine debris prevention and response as a part of missionoriented responsibilities. In support of the 2008 Recommendations (Appendix A) BSEE has performed 

the following:

• Under 30 CFR § 250.300 (b)(6) BSEE prohibits lessees to dispose of any material into offshore 

waters [Recommendation 4.1].

• BSEE inspects facilities under its jurisdiction and enforces its regulations through written 

warnings, component and facility shut-ins, a Civil and Criminal Penalties Program 

[Recommendations 2.2 and 4.1].

• BSEE’s new Environmental Enforcement Division and regional Environmental Enforcement 

Branch offices will monitor and enforce compliance with marine debris–related pollution 

regulations [Recommendations 2.2, 4.1, 4.2, and 8.4].

• BSEE and BOEM work closely with other agencies and industry on marine debris–related 

projects to (1) assess best practices for preventing marine debris, (2) share information to 

minimize marine debris, (3) leverage stakeholders’ participation in marine debris prevention 

efforts, and (4) develop marine debris awareness videos and web-based training modules to 

educate oilfield personnel and the public [Recommendations 1.2 and 8.4].

• BSEE structural engineers continue to work with industry to conduct research and revise 

structural design standards and best practices to increase platform strength and stability, 

and improve rig station keeping during hurricanes; these documents and revisions have 

been incorporated into regulations. The resulting technological improvements and 

regulatory revisions should help to reduce the threat of marine debris from regulated sources 

[Recommendations 2.2, 4.1, and 7.1].

• BSEE’s regional and district offices focused on response to marine debris in the environment 

through cleanup activities ranging from removal of obstructions on the seafloor to the 

decommissioning and removal of hurricane-destroyed facilities.

• BSEE regulations require operators to address and remove structures, equipment, and 
 26 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

obstructions on leases and within easements and rights-of-way following cessation of operations 

or prior to relinquishment. [Recommendations 2.2 and 5.1].

3.2.8 Department of Justice

DOJ continues to address the problem of marine debris through judicial civil and criminal 

enforcement of environmental violations leading to marine debris. Agencies such as EPA, NOAA, 

and the USCG refer cases to DOJ, where they are handled by the Environment and Natural Resources 

Division, sometimes working with the U.S. Attorneys’ offices [Recommendation 4.2].

For example, in July 2010, Irika Shipping S.A. pleaded guilty to felony obstruction of justice 

charges and APPS garbage book and oil record book violations by concealing deliberate vessel 

pollution. Irika admitted to dumping approximately 23 cubic meters (approximately 6,000 gallons) 

of oil-contaminated sludge and bilge waste using a bypass hose during the voyage of the M/V Iorana

from Gibraltar to Baltimore. Irika then concealed that illegal discharge by maintaining a fraudulent oil 

record book, repainting the flanges where the bypass hose was connected, and dumping overboard plastic 

bags filled with the oil-soaked rags used to clean out the tank holding the sludge. Crew members were 

instructed to lie to the USCG during and after inspection of the vessel while in port in Baltimore. Irika 

was sentenced to pay a $3 million fine and an additional $1 million community service payment. The 

chief engineer of the M/V Iorana was also sentenced to pay a fine and complete a term of probation.

In addition, DOJ enforcement of pollution laws such as the Resource Conservation and Recovery 

Act and the Clean Water Act, in addition to ocean dumping and natural resource damage provisions, 

addresses the problem of marine debris by targeting pollution that, while not directly released into the 

ocean, may migrate downstream and eventually contribute to such debris.

3.2.9 Department of State 

In DOS, the Office of Ocean and Polar Affairs and the Office of Marine Conservation work to 

address marine debris issues of an international or transboundary scope and to raise awareness of these 

issues within the international community. Among the forums where DOS has been active on these issues 

are the IMO and its relevant committees, including the Maritime Environmental Protection Committee 

(MEPC). Marine debris issues are often included in discussions at MEPC and in intercessional work 

regarding MARPOL Annex V: Regulations for the Prevention of Pollution by Garbage from Ships. DOS, 

in close cooperation with NOAA, is also active with various regional fisheries management organizations 

that address concerns regarding derelict fishing gear and related issues.

In addition to fostering coordination on international activities, DOS administered a Marine 

Litter Grant Program for the purpose of reducing the amount of marine litter and debris released into 

specific waters in order to mitigate the environmental impact of marine litter and debris. In 2011, the 

program funded the Gulf and Caribbean Fisheries Institute (GCFI) to implement projects in five countries 

(Bahamas, Belize, Grenada, Grenadines, and Jamaica) to address land-based sources of marine debris. 

GCFI worked in partnership with national implementing organizations in each country to develop locally 

appropriate public education and outreach activities, establish litter warden programs, establish new sites 

for waste disposal and recycling, and design education campaigns for local leaders and law enforcement 

authorities about anti-littering regulations. A workshop of project partners from the five participating 

countries was held in November 2011 in San Juan, Puerto Rico, where participants provided updates on 

their projects, identified infrastructure and compliance gaps, and shared lessons learned.
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3.2.10 Marine Mammal Commission 

Since the 2010 Progress Report, the MMC has focused its marine debris-related efforts in three 

main areas. First, to promote international awareness and action on marine debris impacts and needed 

clean-up activities, it co-sponsored the March 2011 Fifth International Marine Debris Conference in 

concert with other IMDCC agencies. MMC funding for this conference was used to support travel costs 

of participants from under-developed and developing countries that would not otherwise have been able 

to present the findings and results of their research and cleanup activities. The MMC’s funds helped to 

ensure broad international participation, which included over 400 participants from 38 countries.

Second, the MMC continued to focus on promoting interagency coordination and support of 

marine debris clean-up and disentanglement efforts to reduce mortality and injury of Hawaiian monk 

seals. Entanglement in derelict fishing nets in the Northwestern Hawaiian Islands (NWHI) is one of 

four major threats responsible for a 50 year decline in abundance that has made this species the Nation’s 

most endangered seal. To help focus limited agency resources, the MMC devoted a portion of its annual 

meeting in December 2009 to a review of monk seal entanglements and plans to continue net debris 

cleanup in waters surrounding monk seal pupping beaches in the NWHI. Based on meeting discussions, 

the MMC provided recommendations to the National Marine Fisheries Service, National Ocean Service, 

and USCG on funding and coordinating vessel support to maintain clean-up work in the NWHI. The 

MMC also continued to review and advise involved agencies on NWHI debris clean-up efforts through 

its membership on the Interagency Coordinating Committee for PMNM and the NWHI Coral Reef 

Ecosystem Reserve Advisory Council.

Third, the MMC encouraged and provided advice to agencies and non-governmental groups 

on actions to investigate the feasibility and effectiveness of using grappling systems to remove derelict 

gillnets and lobster traps from areas off New England where large amounts of such fishing gear have been 

lost. Possible efforts to use grappling systems for clean-up work are expected to be discussed at a New 

England Derelict Fishing Gear Workshop being sponsored by NOAA and scheduled for early 2012. In 

addition, the MMC continued to respond to requests from researchers, the public, and the media on the 

impacts of marine debris on marine mammals and marine life more broadly.
 28 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

This polluted marina shows how trash can be eventually washed into the ocean, where it becomes marine debris. 

Marine debris can reach the ocean through stormwater run-off. Stormwater carries debris through storm drains, 

which eventually leads to an outfall, into a nearby water body, and into the ocean. Photo: NOAA Marine Debris Program
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 29

4.0 NOAA SUMMARY OF MARINE DEBRIS INVENTORY

In the MDRPRA (33 U.S.C. 1955), NOAA was charged with maintaining a “Federal information 

clearinghouse on marine debris that will be available to researchers and other interested persons to 

improve marine debris source identification, data sharing, and monitoring efforts through collaborative 

research and open sharing of data [...].” The MDP engaged in a scoping program to synthesize 

requirements for a powerful and useable central portal for marine debris information. By working with 

partners, the MDP was able to research, explore, and address data gaps and barriers to data access. The 

result of this effort is a design that integrates multiple methods of data discovery and presentation to give 

the marine debris community flexible access to diverse content through an intuitive interface. Content 

includes basic project information alongside relevant literature and original synthesis of marine debris 

topics and impacts. In 2011, the MDP entered into a partnership with the NOAA National Coastal 

Data Development Center to begin development of the clearinghouse, utilizing agile development 

and emerging technologies to realize and improve upon the original design. Initial beta testing of the 

clearinghouse prototype is occurring in summer 2012, with population and deployment to follow later in 

calendar year.
 30 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Marine debris can pose a threat to navigation and cause costly damage to vessels. Propellers of the NOAA Ship 

HI’ALAKAI, shown here, became entangled by a 3-inch towing hawser. Divers aboard the Ship worked to relieve 

the propellers from what turned out to be 60-feet of line. Photo: NOAA Marine Operations NOAA Ship Hi’alakai
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

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5.0 THE NOAA MARINE DEBRIS PROGRAM, JANUARY 2010 TO 

DECEMBER 2011

The NOAA MDP was formally created in December 2006, with President George W. Bush’s 

signing of the MDRPRA. However, as funding had first been received in FY 2005, work to create the 

MDP began in the summer of 2005. The mission of the MDP is to investigate and solve the problems that 

stem from marine debris through research, prevention, and reduction activities, in order to protect and 

conserve our nation’s marine environment and ensure navigation safety. The MDP conducts reduction, 

prevention, and research activities, as well as supports grants, partnerships, and contracts to address 

marine debris and its associated impacts.

Since 2005 the MDP has funded over 212 projects within NOAA and with external organizations, 

held 14 regional, national, and international workshops and meetings, and has coordinated the 

development of NOAA positions on a variety of issues related to marine debris. The MDP has positioned 

itself as a leader on marine debris issues within NOAA and the Federal community, including chairing the 

IMDCC. As this is the second Report to Congress on MDP activities, it covers activities from January 

2010 through December 2011.

The MDP has conducted significant activities in response to marine debris generated by the 

devastating Japan tsunami, including efforts to collect data, assess the debris, and reduce possible impacts 

to our natural resources and coastal communities. Some activities related to the tsunami debris occurred 

in 2011 and are described throughout this report. However, a majority of the activities have occurred in 

2012 and will be included in future reports to Congress. 

5.1 Program Administration and Structure

In accordance with the Act, the MDP conducts research, prevention, and reduction projects and 

outreach and education activities, which are implemented directly by NOAA or through grants, contracts, 

and cooperative agreements. The MDP has staff in several locations around the country to manage, 

support, and coordinate marine debris activities to ensure outcomes are in line with NOAA needs, the 

MDP strategic plan, and the requirements of the MDRPRA. Regional staff members work closely with 

local and State agencies, other NOAA offices and Federal agencies, nongovernmental organizations, 
 32 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

academia, private industry, and the interested public to identify and address key marine debris issues. This 

may occur through workshops, cleanup events, outreach events, or regular coordination meetings. The 

MDP is currently divided regionally with coordinators leading marine debris efforts in the Pacific Islands, 

Alaska, West Coast, Gulf of Mexico and Caribbean, East Coast, and Great Lakes (added in 2010).

In addition to holding workshops, coordinating activities, and working directly with partners, 

the MDP has also developed funding opportunities that are funded through NOAA and administrated 

by collaborators in the NOAA Restoration Center. These funding opportunities are for non-Federal 

entities to conduct removal and prevention activities. The projects focus on marine debris education, 

outreach, and engaging the public through cleanup opportunities. This funding opportunity benefits local 

communities by partnering technical expertise in habitat restoration projects whilst engaging citizens in 

hands-on activities that instill strong conservation values. Through the program, NOAA, its partners, and 

thousands of volunteers are actively restoring coastal, marine, and migratory fish habitat across the nation. 

From 2005 to 2011, 64 projects have been funded with total awards amounting to over $5.6 million and 

leveraging an additional $7.3 million in match from non-Federal sources.

NOAA also supports another funding opportunity through NFWF. In addition to the Marine 

Debris Research and Technology Grants program, NOAA and NFWF have established the Fishing for 

Energy grant program. This opportunity has funded 46 projects between 2005 and 2011, focusing on 

projects involving fishermen, ports, and marinas, expanding efforts to address derelict fishing gear, and 

research. Just over $2.9 million from NOAA has leveraged over $2.9 million in matching funds from nonFederal sources.

The MDP also supports the Marine Debris Prevention and Outreach Partnership Grant. This 

grant invited the public to submit applications requesting funding to establish multi-year national and 

regional partnerships that focus on utilizing existing networks to expand resources that address marine 

debris through prevention, education, and outreach activities. A second focus is the development and 

dissemination of innovative tools to support these activities. Partnerships address marine debris in a way 

that will benefit living marine resources and/or navigation safety. Current partners through this funding 

opportunity are Ocean Conservancy and the University of Georgia.

Finally, to provide information to a wide variety of audiences, the MDP has developed an 

extensive website, http://marinedebris.noaa.gov, which receives over 320,000 hits a month. Available on 

the site are a range of materials for students, the general public and ocean users, including recreational and 

commercial fishermen and boaters. A bi-weekly newsletter is also sent by email to over 700 subscribers 

highlighting recent activities, project updates, and news stories about marine debris; individuals can sign 

up for the newsletter via the MDP website. The MDP is strengthening its social networking activities, 

including the expansion of the Marine Debris Blog that generates approximately 1,000 views per month, 

as well as reaching out to the public through Facebook and Twitter.

5.2 Program Activities 

5.2.1 Research, Assessment, and State of Knowledge

Research efforts in 2010 and 2011 focused on the topics of: (1) standardized methodologies for 

monitoring marine debris on shorelines and in coastal surface waters, (2) microplastic debris, including 

the development of standardized and robust analytical methods for determining concentrations as well 

as funded research and workshop involvement, and (3) quantification and assessment of derelict trap 

incidence and impacts in southern Florida, the U.S. Virgin Islands, Alaska, and North Carolina.

The MDP recognized the need for standardized, statistically valid methodologies for monitoring 

the types and abundance of marine debris in the marine environment. In 2009 the MDP began developing 

a standardized method for survey and assessment of marine debris on shorelines and in surface waters. 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 33

These protocols have been refined and made available to interested partners while undergoing final 

analysis for statistical robustness. A pilot project conducted in the Chesapeake Bay during 2010 and 

2011 served as evidence of the practical use of the NOAA protocols and provides a basis for conducting 

baseline surveys. Furthermore, through a partnership with Versar Inc. during 2011, the MDP funded 

a project to evaluate the protocols for statistical robustness. Versar completed frequent sampling of 

shorelines and surface waters at two sites in the mid-Atlantic and their final report (issued in April 2012) 

includes suggestions for how often sampling should occur on shorelines to detect a change in debris 

abundance. The final NOAA protocols, scheduled to be published in December 2012, will be available 

for use by other organizations to collect baseline marine debris information in other regions. Monitoring 

and assessment studies provide information on the types, abundance, and drivers of marine debris and 

are essential for evaluating environmental impacts and measuring the effectiveness of prevention and 

reduction efforts.

The MDP has stayed engaged in the emerging issue of microplastic marine debris since hosting 

the first International Research Workshop on the Occurrence, Effects, and fate of Microplastic Marine 

Debris in September 2008. Standardized field methods for collecting sediment, sand, and surface water 

microplastic samples are in development and have undergone further testing in the Chesapeake Bay and 

Puget Sound, in partnership with Dr. Joel Baker’s lab at the University of Washington, Tacoma. Dr. Baker 

has developed a relatively simple, cost-effective and unbiased laboratory method to estimate the quantity 

of three plastics (polyethylene, polypropylene, and polyvinylchloride) in environmental samples as well 

as in common personal care products. This project has developed a preliminary quantification method 

that is in the final tier of testing. An inter-laboratory comparison exercise, planned for early 2012, will 

validate this method in labs across the world. Eventually these field and laboratory protocols will allow 

for global comparisons of the amount of microplastics released into the environment. Quantification 

of the problem is the first step in determining the final distribution, impacts, and fate of microplastic 

marine debris. In addition to the development of this methodology, the MDP has funded grant projects 

that are examining the tendency of chemicals to leach from and sorb to microplastic particles; these 

projects are in the final stages of completion. Further involvement in the field of microplastics consists 

of participation in the international workshop on microplastics led by the Joint Group of Experts on the 

Scientific Aspects of Marine Environmental Pollution (GESAMP) that convened in June 2010 to advise 

the United Nations on further research and engagement on this emerging issue, and organizing the Second 

Research Workshop on Microplastic Marine Debris in November 2010 to assess the research needed to 

understand the environmental risks of microplastics. Outcomes of this meeting include proceedings that 

document the potential sources, effects, stressors, and impacts of microplastics, an expanded network of 

researchers investigating microplastic debris, and a better understanding of the research gaps that need to 

be addressed before an understanding of risk can be established.

Several projects were funded in 2010-2011 to quantify and assess derelict trap incidence and 

impacts in southern Florida, the U.S. Virgin Islands, Alaska, and North Carolina. These projects followed 

a similar scope of work to allow for loose comparisons of regional differences in abundance and impact 

of derelict crab traps, fishing traps, and lobster traps. Each study is in the final stages of completion, and 

will yield estimates of the amount of derelict traps in ecologically sensitive areas such as the Florida Keys 

National Marine Sanctuary, coastal North Carolina tidal creeks and nearshore habitats, and the Gulf of 

Alaska. The projects will also yield estimates of “ghost catch ” of target species, as well as estimates of 

non-target species catch and estimates of impacts to the local habitat. These regional differences will be 

explored in a synthesis paper that is currently in preparation.

The MDP has also supported small studies that close gaps in understanding, with the goal of 

advancing the overall state of knowledge on a given issue. For instance, funding has supported projects to 

assess the potential benefit of slight modifications to the structure and function of a Dungeness crab trap 

to lessen the amount of “ghost catch1

” in derelict traps. Likewise, funding has supported joint projects 

with NOAA NESDIS STAR, National Aeronautics and Space Administration (NASA) and the Navy to 

1 “Ghost catch” occurs when derelict fishing gear continues to fish, even while lost or discarded.
 34 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

determine the best sensors to detect oceanic derelict fishing gear and other marine debris using satellite, 

aerial, and sub-sea technology.

Lastly, given the incredible breadth of potential marine debris research projects, the MDP 

research staff has drafted a research strategy to guide efforts over a five year time period. This strategy 

will be finalized in 2012 and covers FY 2012–2016. Research topics are categorized as either research 

of methods to estimate abundance and movement of marine debris, or research of the chemical, physical, 

and socio-economic impacts of marine debris. This document will provide a framework for engaging 

in complementary research and planning to best address the risks of marine debris to marine systems by 

prioritizing the most urgent gaps in research.

5.2.2 Removal and Recycling

Before the MDP was established in 2005, NOAA-supported removal activities focused on the 

Northwestern Hawaiian Islands (site of the PMNM) because of the impact to the critically endangered 

Hawaiian monk seal and coral reefs, and on South Carolina and Puget Sound, where removal of 

abandoned vessels and derelict fishing gear, respectively, was achieved through Congressionally-directed 

funding. After funding was received from Congress for the MDP, removal efforts in the Pacific were 

expanded from the Northwestern Hawaiian Islands to include the Main Hawaiian Islands, while additional 

removal projects throughout the country were encouraged through the competitive NOAA Restoration 

Center grant program described earlier. Removal projects, focusing on large debris like derelict fishing 

gear that is difficult for communities to remove on their own, have taken place across the country in 

numerous states and territories.

Though in most areas collected debris is taken to landfills, sustainable disposal is a growing 

element of debris removal activities. In the Hawaiian Islands, thanks to the contribution of over 20 

Government, industry, and private business partners, the “Nets to Energy” partnership takes derelict 

fishing nets and incinerates them to create energy. This idea was brought to the mainland, where 

the “Fishing for Energy” partnership now has relationships with 29 ports around the country. Both 

partnerships provide fishermen a no-cost, convenient location to dispose of fishing gear. Though not all 

the gear recovered at the mainland locations was derelict, the project partners are filling a gap identified 

by fishermen that was inhibiting the efficient disposal of old gear. The Nets to Energy partnership has 

converted over 685 metric tons of nets so far, and Fishing for Energy has recycled over 700 metric tons. 

In the Commonwealth of the Northern Mariana Islands, the MDP funded a nongovernmental organization, 

the Mariana Islands Nature Alliance, to launch a land-based debris prevention effort that installed mixedwaste and recycling bins at public beaches. The project is sustained through an Adopt-a-Bin program that 

recruits local businesses to sponsor the cost of weekly trash collection. In the project’s first six months, 

nearly eight tons of trash was kept from becoming marine debris.

In Alaska, the MDP continues to play a significant role in marine debris reduction through 

removal activities. Due to its location relative to currents and storm patterns, Alaskan coastlines can have 

very high debris deposition rates, creating a significant challenge and opportunity for removal. To date, 

20 marine debris grants have directly supported the removal of approximately 340 metric tons of marine 

debris in the region. In many cases, these removal operations are paired with return visits to previously 

cleaned areas in order to establish and monitor marine debris accumulation rates and trends.

Elsewhere, the MDP has worked with local recycling firms and partners in Washington State to 

coordinate a program that allows ports throughout the Pacific Northwest and Alaska to ship plastic debris 

for sorting and recycling, thus reducing the burden on landfills. In addition, Fishing for Energy partnered 

with the Oregon Department of Fish and Wildlife to recycle retrieved crab pots too dilapidated to be 

returned to owners and re-used, as well as lines, nets, and other debris recovered during crab pot removal 

operations.

In 2011, Community-Based Marine Debris Removal Grants removed approximately 166 tons 

of marine debris from waters along the East coast, including Florida, South Carolina, Rhode Island, 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 35

Massachusetts, and New Hampshire. Black Point Marina on Biscayne Bay was the first harbor in Florida 

to join the Fishing for Energy initiative. On July 16th, 2011, volunteers collected derelict crab pots and 

other marine debris from the Bay. Gear deposited by volunteer cleanup crews, fishermen, and other harbor 

users in the convenient and free Fishing for Energy disposal bin at the harbor is stripped of metals for 

recycling and processed into clean, renewable energy at the Miami-Dade County Resources Recovery 

Facility, an Energy-from-Waste facility operated by Covanta Energy. The MDP and the Virginia Institute 

of Marine Science in cooperation with state agencies and commercial crabbers are identifying, assessing, 

and recovering derelict blue crab pots in the Chesapeake Bay. Commercial crabbers impacted by 

the failure and subsequent closure of the Virginia winter blue crab dredge fishery were integral to the 

development of the project, which employed 70 crabbers in removing or disabling over 28,000 derelict 

pots, containing 27,000 animals (e.g. crabs, fish, and turtles), and 150 nets from the Bay during three 

seasons from 2008 to 2011. Data from the first two seasons of the study (2008-2009 and 2009-2010) 

suggest that removal efforts allowed approximately 913,450 blue crabs to remain in the system, a market 

value of $304,483. This project also engaged watermen to test an innovative solution to eliminate bycatch 

in lost pots by outfitting standard crabbing gear with an inexpensive panel made from a plant-based 

polymer that is fully biodegradable in the marine environment, dissolving after one season of use. This 

project engaged local stakeholders in supporting the recovery of an economically and culturally valuable 

fishery and exemplifies the solution-oriented work that the MDP would like to continue to support.

In the Great Lakes in 2010, the MDP partnered with the NOAA Restoration Center and Great 

Lakes Restoration Initiative to fund the first Great Lakes region marine debris removal project. In a 

heavily urbanized area, the Detroit Wayne County Port Authority along with Friends of the Rouge River, 

AKT Peerless Environmental Services, and 12 other partners, worked to remove marine debris in a once 

underappreciated area. Fordson Island is located in the Rouge River just upstream of the Detroit River in 

Michigan. The Rouge River watershed is the oldest and most heavily populated and industrialized area 

in southeast Michigan. With funding from NOAA, volunteers cleaned up the shoreline and jobs were 

created to remove abandoned and derelict vessels in the nearshore area. To date, 21 derelict boats have 

been removed along with approximately 40 tires and other surface debris from the island (through five 

volunteer removal events) for a combined total of 122 metric tons of debris removed.

During the reporting period, the MDP also supported removal projects in the Gulf of Mexico and 

Caribbean regions. In Mississippi, the Litter Free Waterways initiative operates in the lower Pascagoula 

River, habitat for a number of threatened and endangered species, which benefit from the removal of litter 

and debris from the waterway and banks of the river. In addition to litter, the project is responsible for the 

removal of white goods (e.g. refrigerators, stoves, water heaters, etc.) from the lower Pascagoula River 

basin. Over the course of the 2-year project, Coastal Rivers expects to remove 20 tons of debris from no 

less than 50 miles of waterways. In Puerto Rico, Surfrider Foundation’s Rincón chapter in collaboration 

with the MDP, the NOAA Restoration Center, Puerto Rico’s Department of Environmental and Natural 

Resources, and other local partners have begun work on the project titled “Coral Reef Protection through 

Marine Debris Removal in two Marine Protected Areas (MPAs); Arrecifes de Tourmaline and Reserva 

Marina Tres Palmas.” Phase I of the project is nearly complete, and in 2011, nearly 50 individuals and 

a handful of the island’s businesses contributed to help remove nearly 6,000 lbs. of boat debris off Cayo 

Ron reef where there is large population of corals. The debris, remnants of a shipwreck from 1996, 

was covering roughly 83 m2 of substrate scattered across 3.2 acres of coral reef habitat. A hydraulic 

underwater chainsaw was used to cut the boat hull and rudder into more manageable pieces to be taken 

back to land and deposited in a proper landfill. Removal of this debris will prevent any additional harm 

to the surrounding reef during storm events. Prior to removing the debris, 60 corals were carefully 

transplanted from the boat hull onto the adjacent reef. Phase II of the project includes initiating the 

outreach and education component of the project in 2012. In addition to removal projects, the MDP 

continued to provide support to USCG for on-going debris removal following Hurricane Katrina and 

support field activities associated with the Deepwater Horizon incident.
 36 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

5.2.3 Prevention, Education, and Outreach

The MDP’s prevention efforts have mainly centered on the development and dissemination of 

education and outreach materials and resources. These have been made available on the MDP website, 

https://marinedebris.noaa.gov, as well as at community events and conferences. These materials are 

free, downloadable from the website, and applicable to both traditional and non-traditional education. 

Materials include everything from a marine debris curriculum for grades K-12 to an educational poster for 

boaters on what can be legally disposed of at sea. 

The focus of the MDP outreach and communication efforts is to communicate to both internal and 

external audiences to achieve the following objectives:

1. Improve internal and external awareness and understanding of marine debris issues to foster 

stewardship of our oceans and coastal waterways.

2. Improve awareness and understanding of the MDP, its mission, and its activities both within 

NOAA and to the general public.

3. Raise awareness of marine debris issues among national and regional policy makers. 

4. Raise awareness and understanding of the MDP, its mission, and project activities specifically 

among national and regional policy makers.

5. Become a widely trusted resource for marine debris information nationally and internationally.

To meet these stated objectives, the MDP constantly updates education and outreach materials in 

order to provide the most accurate information possible. Examples of products to aid in education and 

prevention include: updated activity books and outreach materials for conferences and workshops, new 

regionally-targeted products, and updated 1-page descriptions of significant MDP activities. In 2011, as 

part of the monitoring and assessment project, the MDP produced an informational postcard detailing the 

goals and objectives of the project; this postcard is handed out to interested beachgoers encountered during 

field work conducted by the MDP and our partners. Prior to the beginning of the school year in fall 2011, 

a “Marine Debris in the Classroom” presentation was made to elementary through high school science 

teachers in Fairfax County, Virginia. These types of “train the trainer” outreach events are an effective 

method used by the MDP to expand awareness and understanding of marine debris issues. In addition to 

traditional and targeted audience-specific products, the MDP has created five new videos, two video public 

service announcements, and an audio podcast available for download from the website. In addition, the 

MDP and SEA-MDI out of the University of Georgia Faculty of Engineering developed the Marine Debris 

Tracker mobile application that can easily track and log marine debris items from a list of common debris 

items found on the beach on in the water; this app promotes “citizen science” and strengthens community 

engagement by allowing the public to record the debris location through GPS into a database. The MDP 

has also created a blog dedicated solely to marine debris issues to further expand the prevention campaign 

effort, getting approximately 1,000 hits per month. In addition, the MDP remains proud to host the annual 

“Keep the Sea Free of Debris” art contest that engages K-8 students to contribute artwork for a calendar 

and raise awareness about the global problem of marine debris. In response to public interest in and media 

attention to hot topics such as marine debris generated by the Japan tsunami in March 2011, the “Great 

Pacific Garbage Patch,” and plastics as marine debris, the MDP works with researchers and experts in 

these areas to create resources for accurate, up-to-date information on these topics. 

Specific to the March 2011 tsunami in Japan, the MDP developed a serious of outreach products 

for both government agencies and the general public, including a general FAQs document, information 

explaining different modeling and prediction tools for marine debris transport, as well as information 

on potential concerns of debris radioactivity. In December 2011, the program set up an email address, 

DisasterDebris@noaa.gov, where ocean-going vessels or beach-goers could report significant debris 

sightings related to the tsunami. The latest information can be found on the website, https://marinedebris.

noaa.gov/tsunamidebris.
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 37

5.2.4 Workshops and Conferences

Workshops are a significant method through which NOAA is able to gather and disseminate 

research results and new information, identify marine debris issues, facilitate networking within the 

marine debris community within a State, region, or Nation, and encourage and support actions to address 

marine debris. NOAA held eight workshops between January 2010 and December 2011, which focused 

on several topics, including microplastics, regional strategic planning, and detecting and assessing 

the impact of derelict fishing gear. Outcomes from these workshops included sharing best practices, 

documenting the state of knowledge in a specific field, and identifying new and emerging activities to be 

undertaken in the future. Each workshop brought together relevant local, State, national, or international 

experts and also produced proceedings documents. Workshops on more focused topics included: 

• The 5th International Marine Debris Conference;

• West Coast Governor’s Alliance;

• Potomac Watershed Trash Summit;

• Great Lakes marine debris (preliminary workshop July 2011; MDP-hosted workshop November 

2011); and

• Assessing the abundance and impact of microplastic marine debris using a risk assessment 

framework with participants from the United States, Europe, and Asia (November 2010, 

Tacoma, Washington).

As noted in previous sections, in March 2011, NOAA co-hosted the Fifth International Marine 

Debris Conference in cooperation with UNEP and other IMDCC agencies. This conference brought 

together the global marine debris community to heighten understanding and appreciation of the threats 

posed by marine debris, and was attended by 440 participants representing 38 countries. It served to 

highlight recent advances in marine debris research and encourage sharing of strategies and best practices 

to assess, reduce, and prevent the impacts of marine debris. The conference also provided an opportunity 

for the development of collaborative solutions to real problems, including the Honolulu Strategy, a global 

framework to prevent and manage marine debris that was published in March 2012. 

Along the West Coast, the MDP has worked hard to move the West Coast Governors Alliance 

Marine Debris Action Coordination Team (MD ACT) forward. By funding two of the team’s three 

workshops and participating directly in organizing and leading the workshops, the MDP enabled the MD 

ACT to formulate a West Coast Marine Debris Strategy, and put in place the foundation for a West Coastwide marine debris alliance.

The MDP was a proud sponsor of the 6th Annual Potomac Watershed Trash Summit held at 

George Mason University Founders Hall in Arlington, Virginia on October 19th, 2011. This event 

provided a unique venue for key stakeholders to collaborate on strategies to eliminate trash from 

local waterways, communities, and public lands. The Trash Summit, an element of Alice Ferguson 

Foundation’s Trash Free Potomac Watershed Initiative, is building momentum each year and driving 

action, including regional public policy, best management practices, business actions, and public 

education. The partnership between NOAA and the Alice Ferguson Foundation is based around the 

mutual vision that communities can come together to prevent the improper disposal of trash before it 

becomes marine debris.

In July 2011, the MDP assisted in the organization of the first marine debris workshop in the 

Great Lakes region with the Shedd Aquarium and The Alliance for the Great Lakes. This one day event 

brought together knowledgeable experts and those interested in marine debris in the Great Lakes region to 

discuss and highlight issues of concern surrounding the problem of marine debris. One of the top issues 

raised at this meeting was the need to better define the issue and the need for a regional action plan. In 
 38 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

December 2011, the MDP organized and hosted a second workshop that had three primary objectives. 

The first was to establish the current state of knowledge on land-based debris, derelict fishing gear, and 

historic sawmill and fill debris in an effort to move forward from the July meeting. The second goal of 

the workshop was to establish a shared vision that each organization in attendance could work towards 

in addressing the marine debris problem in the Great Lakes. This will be used as the basis for an initial 

regional action plan. Lastly, the workshop served as an opportunity to connect Federal agencies, States, 

and non-governmental organizations in the region to identify potential opportunities for collaboration 

related to marine debris.

In November 2010, the MDP organized the Second Research Workshop on Microplastic Marine 

Debris to assess the gaps in research needed to understand the environmental risks of microplastics. 

Outcomes of this meeting include proceedings that document the potential sources, effects, stressors, and 

impacts of microplastics, an expanded network of researchers investigating microplastic debris, and a 

better understanding of the research gaps that need to be addressed before an understanding of risk can be 

established.

The MDP also planned a workshop in Portland, Maine, in February, 2012 to bring together 

researchers, commercial fishermen, NGOs, managers, and legislators to discuss derelict fishing gear in 

New England. Action teams focusing on research, stakeholder involvement, regulation, and coordination 

convened to develop solutions to the challenges of prevention and recovery of derelict fishing gear in this 

region.

In addition to the many workshops organized directly, the MDP has also participated in a number 

of other workshops and conferences:

• Conference session: TOS/ASLO/AGU Ocean Sciences Meeting (February 2010)

• Workshop: Port Townsend Marine Science Center’s Plastics Summit (May 2010)

• Workshop: GESAMP International Workshop on Microplastics (June 2010)

• Conference session: International Association of Great Lakes Research (May 2011)

• Conference session: TOS/ASLO/AGU Ocean Sciences Meeting (February 2012)

• Conference session: Alaska Forum on the Environment – 2009, 2010, 2011, 2012

The MDP has organized and chaired sessions on marine debris at the following scientific 

conferences: Society of Environmental Toxicology and Chemistry, 2010 North America meeting (one 

session on the chemical impact of microplastics), Marine Technology Society Tech Surge 2011 (session on 

marine debris detection and removal approaches), Coastal Zone 2011 (two technical sessions on marine 

debris research and planning), and (in prep) the Society of Environmental Toxicology and Chemistry, 2012 

World Congress Meeting (one session on the chemical impact of microplastics).

5.2.5 Partnerships

Marine debris is a global issue, but priorities to address it vary widely across the world, nation, 

regions, states, and communities. Understanding these differences, the MDP engages in partnerships 

at different levels and with different entities to ensure that efforts in a particular area are carried out at 

the most effective level. Many of these partnerships are mentioned in previous sections, but additional 

examples are discussed here.

At the international level, the MDP supports Ocean Conservancy’s International Coastal Cleanup 

(ICC) with both funding and volunteers, as well as its annual ICC Conference for state and country 

coordinators and the development of an online marine debris reporting database. The ICC is a significant 

international effort to record data on the types of debris found on beaches and in the marine environment, 

with “nearly nine million volunteers from 152 countries and locations [that] have cleaned 145 million 

2 Ocean Conservancy, http://www.oceanconservancy.org/our-work/marine-debris/international-coastal-cleanup-11.html (Accessed 03 

 January 2012).
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 39

pounds of trash from the shores of lakes, streams, rivers, and the ocean on just one day each year.”2 The 

MDP began another international partnership in late 2011 with the Joint GESAMP to participate in their 

newest global working group. GESAMP scientists have chosen to investigate microplastic debris as a 

potential global pollutant and vector for toxic substances. This working group involves international 

scientists working on all aspects of the microplastics issue, including experts from academic, industry, and 

government sectors. The working group is a multi-year effort that will assess microplastics as a marine 

pollutant by researching sources and impacts on a global scale. The MDP will provide partial funding for 

the group’s annual meeting and will contribute staff expertise.

The Fishing for Energy project, also mentioned in the Removal and Recycling section (5.2.2), 

is a unique national partnership, composed of the MDP, NFWF, Covanta Energy, and Schnitzer Steel 

Industries, Inc. This partnership focuses on providing ports and fishermen with free disposal facilities, 

collection, and transport to suitable power plants for old and derelict fishing gear. Working together, the 

partners identify fishing ports across the country that have a sizable fishing fleet and may need disposal 

options, determine if their location makes them eligible, and then reach out to form the partnership. U.S. 

ports can also nominate themselves to become involved. Related port overhead costs for this partnership 

are low, and the partners recently established a grant opportunity to help ports and their partners expand 

their outreach, education, and other project-related activities.

At the regional level in the state of Washington, the MDP entered into a partnership with the 

Washington Clean Coast Alliance to support its main coastal cleanup program, Coast Savers. Stepping 

in at a critical moment when funding from other sources was no longer available, the MDP, through 

this partnership, provided the support and funding needed to obtain supplies and materials to conduct 

the cleanup in 2011. This support will continue for 4 more years. In Oregon, the MDP entered into 

a partnership with the Oregon Dungeness Crab Commission and the Oregon Department of Fish and 

Wildlife to capitalize on the successful American Recovery and Reinvestment Act derelict pot removal 

project and continue with the removal of derelict crab pots along the entire coast. Supporting this 

industry-led project, the MDP provided matching funds to support the removal, and conducted outreach 

for the project, the highlight of which was the announcement of the project by NOAA’s Administrator, Dr. 

Jane Lubchenco.

In the Alaska region, the MDP partnered with NOAA National Marine Fisheries Service Auke 

Bay Lab scientists to conduct a 2 year study on the abundance and impact of derelict Dungeness crab 

pots in the commercial fisheries of Southeast Alaska. This project was done in close collaboration with 

the Alaska Department of Natural Resources, who provided key inputs on fishing effort and practices 

that informed the selection of sites for sonar survey and SCUBA diver-based data gathering and removal 

operations. This 2009-2010 study also resulted in the hypothesis that drove a 2011 study on potential gear 

modifications that could lessen the impact of pots when lost. Due to the size and scope of the Alaskan 

coastline, partners are critical for all elements of marine debris work. The MDP has continued strong 

partnerships with Gulf of Alaska Keeper in their pioneering work on outer coast removal operations. In 

Homer, the Center for Alaskan Coastal Studies has continued to integrate their local volunteer-based 

removal operations with strong community outreach and awareness building as well as state-wide 

outreach through their challenge grant program. The Marine Conservation Alliance Foundation is another 

group that has had state-wide impacts on the marine debris issue, working through local communities 

to contract removal and grow a data collection program to understand debris composition statistics and 

trends.

The MDP is working with the Southeast Atlantic Marine Debris Initiative (SEA-MDI) to 

strategize regional marine debris efforts and apply regional expertise to develop culturally relevant 

outreach tools and innovative approaches to marine debris problems through a three-state (North 

Carolina, South Carolina, and Georgia) marine debris consortium. This program is developing and 

promoting innovative technologies, including the Marine Debris Tracker, a unique mobile application 

for smart phones that allows users to identify and report marine debris. In 2012 SEA-MDI will be 

awarding mini-grants to support projects in the region focused on prevention, removal, and disposal of 

commercial and recreational fishing gear and land based marine debris as well as marine debris education 

programs for the general public and school-age children. The MDP also partners with the Alice Ferguson 
 40 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Foundation on the Trash Free Potomac Watershed Initiative, which is building momentum each year and 

driving action, including regional public policy, best management practices, business actions, and public 

education. This partnership is based around the mutual vision that communities can come together to 

prevent the improper disposal of trash before it becomes marine debris.

In the Gulf of Mexico region in 2010 and 2011, the MDP partnered with the NASA DEVELOP 

program, an opportunity for students to train in the atmospheric and earth sciences, on a project that 

monitored marine debris dispersal using satellite-based sea surface height and sea surface anomaly data. 

These data were used to assess the sources and transport of debris that routinely washes ashore at the 

Padre Island National Seashore in Texas. The MDP also facilitated a partnership between Louisiana Sea 

Grant and NFWF following a compensatory restoration settlement. This project will remove and dispose 

of derelict blue crab traps in coastal Louisiana during the winter of 2011/2012, given the significant 

number of traps along the coast and the negative impacts to species and habitat. The MDP is partnering 

internally in the Gulf of Mexico region with the NOAA Disaster Response Center, a coastal crisis support 

facility and communications hub, on a project to incorporate lessons learned on marine debris following 

Hurricane Ike into a Gulf-wide planning and preparedness document to aid in response activities.

The Great Lakes region also engages a number of strategic partners, including the Alliance for 

Great Lakes to further develop marine debris monitoring protocols, the Shedd Aquarium to promote Great 

Lake debris issues, and the Cleveland Museum of Natural History to educate the public at conservation 

events. In addition, the MDP partners with Ohio Sea Grant to provide undergraduate research students an 

opportunity to learn about marine debris issues, and internally with the NOAA Restoration Center in the 

Great Lakes to help fund and implement marine debris removal projects, and to design projects through 

the Great Lakes Restoration Initiative.
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 41

Artwork from the NOAA Marine Debris Program’s annual “Keep the Sea Free of Debris” art contest serves as 

an outreach and educational tool used in our annual planner. Each year students, Kindergarten through eighth grade, 

submit artwork showing how marine debris impacts the ocean environment. 

Photo: NOAA Marine Debris Program
 42 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Fishing nets pulled up from the ocean column. When left in the ocean environment, derelict fishing gear can entangle, 

harm and even kill commercially important marine organisms through a process known as “ghost-fishing.”

Photo: NOAA
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 43

6.0 REVIEW OF U.S. COAST GUARD PROGRAM

Since the filing of its last Report with Congress on the status of USCG marine debris activities 

in 2008 and 2009, the USCG has continued to play an important role in the prevention and reduction of 

marine debris. Here, the USCG discusses the programs carried out in 2010 and 2011 which reflect its 

sustained commitment to the solutions of this persistent problem.

The USCG reduces sea-sourced marine debris by enforcing the vessel-generated waste provisions 

of MARPOL, APPS, and the regulations issued there under. The period between 2010 and 2011 saw 

further development of the USCG waste reception facilities program and its domestic and international 

outreach efforts. Through the continuance of its port state and domestic inspection programs, the USCG 

ensured adherence to the discharge requirements of APPS and worked toward the successful prosecution 

of those who did not adhere to those requirements.

Where the USCG has statutory authority, USCG Captains of the Port may remove vessels which 

pose a unique pollution risk. In furtherance of its commitment to environmental stewardship, the USCG 

assists its interagency partners in the removal and identification of marine debris in areas of particular 

ecological concern.

In addition to its operational activities, the USCG promotes international action against marine 

debris. On behalf of the United States and, in cooperation with the Federal interagency working group 

on MARPOL Annex V, the USCG provides important leadership at the IMO. Outside of the regulatory 

context, the USCG cooperated with international counterparts through the ISO to develop industrywide, ship-generated garbage standards. Here again, the USCG has provided an important leadership 

role as chair of and ISO work group to develop waste management standards. ISO 21070, Management 

and Handling of Shipboard Garbage, was published in 2011 and ISO CD 16304, Port Waste Reception 

Facility standard, is currently in development.

The USCG continues to educate boaters and mariners about the environmental and legal 

consequences of marine debris deposition. The USCG continues to promote marine debris awareness 

among the regulated public through its Sea Partners Campaign outreach program. Taken together, the 

USCG’s anti–marine debris activities are an essential part of the Federal government’s effort to combat 

the pervasive problem of marine debris.

6.1 Compliance and Enforcement
 44 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

6.1.1 Ship-Generated Garbage: Waste Reception Facilities

The USCG continues to administer a robust compliance program to ensure the adequacy of waste 

reception facilities in U.S. ports and terminals and their ability to receive MARPOL Annex V wastes from 

oceangoing ships. These efforts contribute to the reduction of ship-sourced pollution, which is responsible 

for a portion of the marine debris in the oceans. The USCG verifies that domestic waterfront facilities 

maintain the capability of receiving garbage and wastes from oceangoing ships through its COA program. 

The USCG continues to monitor compliance through annual facility inspections and harbor and port spot 

checks. Criteria for determining the adequacy of garbage reception facilities and their compliance with 

MARPOL Annex V can be found in 33 CFR § 158.400.

Through the Marine Information for Safety and Law Enforcement reporting system, the USCG 

is able to track facility inspection activity levels. Facility inspections for 2010 (15,027) and 2011 

(15,200) remained constant at high levels and included compliance checks on safety and security related 

requirements, as well as MARPOL V requirements. The USCG continues to monitor and gather specific 

information on MARPOL reception facilities, including information relating to inspections, deficiencies, 

investigations, and pollution incidents directly connected to MARPOL Annex V waste streams.

The USCG continues its work to improve reception facilities. USCG issued updated guidance 

to field inspectors and investigators in the form of a MARPOL “job aid” in 2008, and has since 

conducted annual facility inspector workshops for its field units to further improve the effectiveness 

and thoroughness of the facility inspections. The USCG initiates an investigation whenever a report 

of alleged inadequate reception facilities is received. The USCG performs thorough investigations to 

ensure that each identified facility is in compliance with the regulations or is taking corrective action to 

come back into compliance. In addition, the USCG notifies the appropriate Flag State when investigating 

an allegation of inadequacy made by a foreign vessel. The USCG also provides a synopsis of its 

investigation and any action taken to the Flag State authority and to IMO for publication in its Global 

Integrated Shipping Information System database on PRF inadequacy reports to ensure adequate reception 

facilities are available at U.S. ports and terminals.

The USCG maintains a list of U.S. ports and terminals that have been issued reception facility 

COAs in compliance with APPS. This data is available to the public on the USCG Maritime Information 

Exchange and is provided to the IMO for publication on their Global Integrated Shipping Information 

System website which the USCG helped implement.

6.1.2 Ship-Generated Garbage: Shipboard Compliance and Enforcement

The USCG ensures compliance with U.S. regulations related to marine environmental protection 

through inspections and boardings. In fulfillment of MARPOL Annex V obligations, the USCG inspects 

U.S. commercial vessels annually and examines foreign vessels through the port state control program. 

For recreational and commercial fishing vessels that are not required by law to be inspected, boardings 

(such as domestic fisheries protection activities, marine sanctuaries protection activities, and random “at 

sea” boardings) allow the USCG to verify environmental compliance. In 2010, the USCG performed 

MARPOL V examinations on approximately 12,949 U.S. commercial vessels and more than 8,370 foreign 

commercial vessels. In 2011 inspections included 13,657 U.S. commercial vessels and more than 9,300 

foreign commercial vessels. In 2010 and 2011, the USCG conducted more than 164,000 inspections or 

examinations on all vessel types.

In addition, the USCG may proffer suspension and revocation charges against U.S. merchant 

2 Data includes all pollution incidents, including those related to compliance with Annex V.
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 45

mariners’ credentials for willful or negligent acts. Appendix D of this report provides data on the number 

and type of MARPOL Annex V sanctions processed by the USCG since 1991.

6.2 Debris Removal

6.2.1 Statutory Activities 

The USCG’s primary responsibility for the removal of abandoned and derelict vessels on or 

adjacent to the navigable waters of the United States pertains to the prevention and mitigation of pollution 

related incidents. This includes not only the dumping or discharge of oil and hazardous substances, 

but also cases which pose a substantial threat of discharge. The USCG’s authority for responding to 

these incidents falls mainly under: the Clean Water Act (CWA; 33 U.S.C. § 1251 et seq.) for oil and the 

Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA; 42 U.S.C. § 9601 

et seq.) for other hazardous substances not covered under the CWA. Under each of these authorities, 

the USCG must determine that (1) the vessels are discharging substances or pose a substantial threat to 

discharge, (2) the responsible party is not mitigating or removing the pollution threat as required by law, 

and (3) the removal of a vessel is the best option to mitigate the incident. If the pollution can be mitigated 

from the vessel without its removal or destruction, this will be the primary option. The USCG also has 

authority under the Abandoned Barge Act (46 U.S.C. § 4701 et seq.) to remove abandoned barges under 

certain circumstances. When deciding upon the appropriateness of removal in the case of abandoned 

barges or other vessels, the threat of continued dumping is also considered. When a vessel could remain 

a possible location for continued dumping of oil or hazardous material, and additional damage to the 

environment and/or costs for cleanup would be incurred, vessel removal may be the most appropriate 

option.

One such initiative in 2011 was the removal of the barge DAVY CROCKETT from the Columbia 

River near Camas, Washington. Formerly used as an oil barge, the vessel was partially sunk on the 

river bank with an oil sheen stretching 14 miles downriver. The USCG, working with the Washington 

Department of Ecology and the Oregon Department of Environmental Quality immediately responded 

with pollution prevention measures and began wreck removal efforts under the National Incident 

Management System. The project, completed in November 2011, included the removal of over 38,000 

gallons of oil products, 4850 pounds of asbestos, and 1.25 million pounds of debris from the cleanup site, 

in addition to the steel from the vessel which was sent for recycling.3

In cases where vessels do not pose a pollution threat, the USCG coordinates with the USACE, 

NOAA, and state and local program managers to resolve and mitigate the incident. These often involve 

cases where vessels pose a threat to navigation, obstruct a navigable channel, or endanger protected or 

sensitive habitat. State authority is typically acted upon when neither USCG nor USACE has authority, 

i.e., when a vessel is not located in a navigable waterway, does not pose a pollution threat, or is a barge 

less than 100 GT. When state authority is acted upon, local USCG officials will monitor the status of the 

vessel and provide expertise to state and local officials to coordinate procedures for removal. 

3 Department of Ecology News Release, November 23, 2011, http://www.ecy.wa.gov/news/2011/329.html
 46 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

6.2.2 Marine Debris Removal Associated with Hurricanes Katrina and Rita

USCG operations in support of the 2005 Hurricanes Katrina and Rita marine debris removal 

efforts were conducted in four states under the auspices of the National Response Plan (NRP) (after 

January, 2008, the NRP was replaced by the National Response Framework (NRF)); these activities 

continued into 2011 and are scheduled to continue into 2012 (April –June of 2012) including execution of 

the final removal contracts and the demobilization of the command post.

The normal NRF Emergency Support Function for “Salvage and Debris Removal” is ESF-3, 

Public Works and Engineering. USACE is the lead agency for that type of support, if requested by an 

applicant in accordance with a Presidential major disaster or emergency declaration, as required by the 

Stafford Act. In this specific instance, given the scope and effect of Katrina and the combined effect 

of Rita and Katrina (and, later, Wilma), USACE focused its disaster response and recovery efforts on 

its primary missions of navigation, flood risk reduction, and ESF-3 response and recovery activities. It 

utilized its resources to remove sunken vessels and other obstructions from or immediately adjacent to 

Federally maintained navigation channels and to restore flood risk reduction features such as levees, 

floodwalls, and high-capacity, reliable pumping stations. Many, but by no means all, of the marine 

debris removals overseen by USCG after the 2005 hurricanes were outside authorized Federal navigation 

channels and were not impacting commercial navigation. This type of marine (wet) debris has since 

been discussed and considered as USACE, FEMA, USCG, and other agencies refined eligibility criteria 

for Federal assistance under ESF-3. USACE can now address marine debris (wet debris) outside of an 

authorized Federal navigation channel if a Presidential major disaster or emergency declaration is made 

(under the Stafford Act; 42 U.S.C. §§ 5121-5206) and FEMA determines that the wet debris needs to be 

removed from a channel or waterways it deems critical to local or regional area recovery. FEMA can give 

USACE the mission and funding to effect necessary wet debris removal.

The term “marine debris” was redefined multiple times by the various individual State Mission 

Assignment (MA) writers and the individual project managers during the course of the work.4 Eventually, 

the mission was assigned to the USCG in September of 2005 as ESF-“Other” and related task orders. The 

USCG removed vessels and other debris from various waterways and the Gulf of Mexico in four states.5 

Two States, Texas and Alabama, had lesser amounts of debris and funds expended for these activities. 

Mississippi and Louisiana had significant amounts of debris removed. Of those two, Louisiana was a 

significantly larger task and presented substantial logistical and regulatory complications.

Initially, costs were covered directly by funds obligated under the actual ESF-“Other” MA. 

Later, FEMA substituted various Inter-agency Agreements (IAAs) for the MAs in order to streamline 

funding processes, but there is no substantive difference as it relates to the intention of this report, and the 

operations delineated below depict both MA- and IAA-funded activities.

There were three debris removal operational categories under these projects:

1. vessels (inland) of all sizes and types, from large steel barges to small recreational vessels;

2. trees, white goods (including household appliances), and construction/demolition debris 

such as houses, docks and other structures which were blown into the waterways (inland); 

and,

3. materials of types 1 and 2 located in the waters of the Gulf of Mexico.

6.2.2.1 Removal Operations–Louisiana

4 It is important to note that use of the term marine debris is not synonymous with the NOAA-USCG rule promulgated 3 September 2009 

 defining marine debris; however, because marine debris is defined in that regulation as “For the purposes of the Marine Debris Research

 Prevention and Reduction Act only,” use of a different definition is appropriate in both contexts.

5 No operations relating to 2008 Hurricane Gustav or Ike are addressed in the USCG section of this report.
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 47

Removal operations in Louisiana between 2010 and 2011 consisted of the development, award and 

execution of three contracts for the removal and disposal of “Heavy Vessels.” These vessels were defined 

not by weight, but because they contained or were suspected of containing internal engines/generators 

of sufficient size to pose a significant potential pollution threat. Removal of these vessels required the 

use of larger and heavier equipment which could lift the vessel in a manner which would reduce the 

possibility of the catastrophic release of lubricants or fuel which might result in a hull failure. Destruction 

and disposal of these vessels was conducted in accordance with applicable state and Federal regulations 

and was primarily conducted within sealed, sand bagged berms constructed for that purpose at permitted 

sites. Full compliance with the mandated consultation under Section 7 of the Endangered Species Act 

and with the mandated consultation required under section 106 of the National Historic Preservation Act 

was executed and documented. These three contracts resulted in the removal and disposal of 95 “Heavy 

Vessels.” A sonar survey of 16 square miles of Lake Pontchartrain was conducted at FEMA’s request, 

using USCG equipment and personnel. FEMA used the resulting data to determine whether it would fund 

additional state debris removal operations in the lake. A contract was developed, awarded and executed 

for the removal of what was estimated to be 250,000 cubic yards of storm surge generated marine debris 

which had collected at a bend on the Pearl River. This “Log Jam” was so large it was re-directing the 

course of the river, and creating an extreme navigational hazard for local recreational traffic, which is 

quite heavy in that area. A contract was developed, awarded and executed for the removal of “Light 

Debris” in 10 southern parishes of coastal Louisiana, again stretching from the Mississippi border in the 

east (Pearl River) to Calcasieu Parish in the west. This “Light Debris” consisted of all the debris types 

described above, in 81 different waterways and included vessels, primarily recreational, which did not 

meet the definition of “Heavy Vessel” cited above. Finally, as a precursor to the award and execution 

of the final northern “Light Debris” contract, encompassing 11 parishes extending from the Mississippi 

border in the east (Pearl River) to the Texas border in the west (Sabine River), a resurvey of the eligible 

targets for that contract was conducted using in house USCG equipment and personnel. For this reporting 

period this unit was staffed by 15-19 USCG Reservists and one civilian. An additional 10 million 

dollars was allocated by FEMA for the conclusion of this mission. Two contracts for the removal of the 

remaining 7 heavy targets have been developed and await award and execution.6

 

These removal contracts remain to be to be awarded and executed. All have been developed 

and forwarded for solicitation. All USCG removal operations in support of the 2005 hurricanes will be 

completed within 120 days of the award of the largest of these three contracts, and its mission termination 

is scheduled, as cited above, for 2013.

6.2.2.2 Removal Operations–Mississippi

Removal operations in Mississippi were concluded in 2009. No further hurricane related Marine 

Debris removal operations were conducted in Mississippi during this reporting period.

6.2.3 Interagency Work in the Papahānaumokuākea Marine National Monument

The USCG continued its support of the marine debris removal partnership in the PMNM. As 

previously reported, in July 2009, the USCG teamed up with NOAA and the U.S. Army’s 7th Engineer 

Diving Team to remove more than 32 tons of derelict fishing nets and other refuse from the coral reefs in 

6 These costs do not include any funds expended for “Marine Debris” removal conducted under ESF-10, nor do they include the USACE removals 

covered by an MOU with the USACE.
 48 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

the PMNM. The USCG facilitated this cleanup by entering into a memorandum of understanding (MOU) 

with the U.S. Army’s 7th Engineer Diving Team for the conduct of joint diving and marine debris removal 

operations in the PMNM.

6.2.4 Interagency Work with the Army Corps of Engineers

The USCG and USACE continue to work closely at the national and local levels coordinating the 

removal of marine debris. Coordination among the agencies is essential to ensure maritime mobility and 

safety is maintained throughout our nation’s waterways. The USACE has the primary responsibility for 

removing wrecks and other obstructions from the navigable waters of the United States. While the USCG 

may assist with this effort, and may take the lead when oil or hazardous material is involved, its primary 

responsibility is to ensure the proper navigational marking of the wreck or obstruction. As a member 

of the National Dredge/Regional Dredge Team, the USCG is working with the USACE to consider 

development of a protocol for spill response/post–marine casualty dredging operations. The goal of the 

proposed protocol is to establish post-casualty dredging procedures in potentially contaminated areas, 

develop joint agency agreements, determine a range of contaminant sources and contents, and institute 

post-cleanup and long-term monitoring in order to study effects on the environment. The NDT plans to 

continue addressing this proposed protocol.

6.2.5 Interagency Work with NOAA for Marine Debris Tracking

On an informal basis, USCG District 17 (D-17) is providing assistance to NOAA by carrying 

ghost net tracking buoys aboard USCG vessels conducting High Seas Driftnet Enforcement patrols. The 

goal is to attach buoys to derelict nets encountered during patrols. The information collected from the 

buoys will allow researchers to both track the particular nets in order to facilitate future removal and 

improve debris transport models. Improved net tracking will assist in the removal of derelict nets before 

they threaten sensitive habitat or enter busy traffic lanes.

The USCG provides interagency assistance to NOAA on marine debris tracking and removal 

in conjunction with its statutory Law Enforcement and Aids to Navigation patrol missions, including 

coincident MD assist when feasible.

Some marine debris resulting from the Japan tsunami of March 2011 may be difficult to identify; 

however, the USCG continues to provide interagency assistance in surveilling for it, consistent with 

statutory missions. Marine debris can act as a fish aggregating device (FAD), and if a FAD of opportunity 

is located near or in the US EEZ, that can bring about a threat of illegal, unreported and unregulated 

fishing by a foreign fishing vessel, part of the USCG’s statutory law enforcement mission on the monthly 

PMNM surveillance flight.

6.2.6 Marine Debris Removals by Local Coast Guard Cutter Units

Local USCG cutter units in the Great Lakes and in Northern New England reported removals of 

derelict fishing gear (DFG), a significant source of marine debris, as part of continued assistance at the 

local and state level and where DFG can be a significant safety of navigation, environmental, and fisheries 

industry concern. In one operation, the USCG Cutter ABBIE BURGESS retrieved 89 lobster traps in 

cooperation with the Maine Marine Patrol that were returned to owners after being entangled in with each 

other during a dedicated operational period in March 2011. This operation was undertaken in response to 

requests from commercial fishermen unable to retrieve gear and the Maine Lobsterman’s Association. The 

effort was undertaken to remove vertical lines in the water that were irretrievable by individual lobster 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 49

vessels due to line snarls and eliminate irretrievable gear ghost fishing in this area.

6.3 International Activities

The IMO is a specialized agency of the United Nations which is responsible for measures to 

improve the safety and security of international shipping and to prevent marine pollution from ships. Its 

multinational decisions form the basis of member-state marine pollution enforcement regimes, including 

port state inspections, self-reporting, and record-keeping. As head of the U.S. IMO delegation, the USCG 

works to advance a number of key environmental interests at meetings of the IMO’s Marine Environment 

Protection Committee. The USCG coordinated the U.S. interagency group responsible for the review of 

MARPOL Annex V and the drafting of amendments.

Two significant developments during this two-year period were the Wider Caribbean Region 

special area coming into effect for MARPOL Annex V on May 1, 2011, and MEPC’s adoption of 

amendments to Annex V in July 2011. These amendments will enter into force January 1, 2013, and are 

discussed above in section 3.2 on multi-agency initiatives.

The USCG also actively participated in the development of the ISO standards for reception 

facilities and handling of ships’ waste.

6.4 Other MDRPRA Activities

The USCG and NOAA jointly promulgated the definition of “marine debris,” in fulfillment of 

the obligation under the MDRPRA. Marine debris is defined as follows: “for the purposes of the Marine 

Debris Research, Prevention, and Reduction Act (33 U.S.C. 1951–1958 (2006)) only, marine debris 

is defined as any persistent solid material that is manufactured or processed and directly or indirectly, 

intentionally or unintentionally, disposed of or abandoned into the marine environment or the Great 

Lakes.” In addition, the USCG sponsored a National Research Council report titled Tackling Marine 

Debris in the 21st Century.

6.5 Outreach

Sea Partners Campaign is the USCG’s environmental education and outreach program focused 

on developing community awareness of maritime pollution issues and improving compliance with marine 

environmental protection laws and regulations.

Sea Partners Campaign has educated hundreds of thousands of children on the stewardship of our 

oceans. In partnership with the USCG Auxiliary, the Sea Partners Campaign has been correlating marine 

debris, oil spill, and invasive species subject matter with national education standards. In addition to its 

educational outreach efforts, the Sea Partners Campaign continues its effort to reach out to the maritime 

industry beyond CY11. Through a proactive USCG presence at boat shows, distribution of MARPOL 

placards to merchant mariners, distribution of placards with anti-pollution messages to marinas and 

boating communities, outreach to marina owners and operators through the USCG Auxiliary, the USCG is 

committed to reaching a wide variety of audiences.

The USCG Auxiliary reports its vital operational hours for the Sea Partners Campaign in its 

reporting database, AUXDATA. In 2010 and 2011 combined, over 10,000 hours were committed toward 

the Sea Partners Campaign.
 50 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Abandoned and derelict vessels are a type of marine debris that can damage sensitive marine debris habitats and 

marine life. If they lie within a navigational path, ADVs can also pose a threat to other vessels. Photo: NOAA Marine Debris Program
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 51

7.0 FUNDING AND RECOMMENDATIONS

Section 5(c)(2)(E) of the MDRPRA requests an estimate of Federal funds spent on marine debris 

activities, as well as an estimate of non-Federal funding related to marine debris. The IMDCC has 

interpreted the requested non-Federal funding to be the required non-Federal match associated with the 

grants program outlined in Section 3(c)(2)(A) established under NOAA. Consistent with the timeframe 

of this report, the Federal agencies on the IMDCC provided the following information for fiscal years 

2010 and 2011.

Please note that many Federal agencies conduct daily activities within multiple programs, offices, 

and projects that are indirectly related to marine debris efforts. They do not receive funding specific to 

marine debris in their annual appropriations but instead receive funding by missions or programs. This 

complicates extracting the exact funding amount related to marine debris within these integrated actions. 

Therefore, the exact amount of effort being expended to address marine debris could be higher or lower 

than the amounts reported here due to these integrated activities.

Section 5(c)(2)(E) also requests the IMDCC provide recommendations for priority funding needs. 

Each year, the IMDCC sets priority activities for the Committee based on emerging issues, research 

results, and the priorities of the Administration and individual agencies. In the 2008 Recommendations 

to Congress Report, the IMDCC set four theme areas in which to work: (1) marine debris prevention, (2) 

response to marine debris in the environment, (3) research and development, and (4) cross-theme issues. 

For fiscal years 2010 and 2011, the IMDCC continued to focus on these areas, although individual agency 

priorities focused on some subset of these themes depending on individual agency missions, authorities, 

and responsibilities. The primary purpose of the IMDCC is to serve a coordination role, ensuring as 

agencies move forward with their priorities and partnering where appropriate that available resources are 

used in the most cost-effective manner possible. Accordingly, the IMDCC works to ensure that:

• Effort and resources are not duplicated on the same projects;

• Resources are leveraged where possible;

• Project results and information are shared across agencies; and

• Effective and efficient activities are supported.
 52 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

AGENCY FY2010

FY2010

nonFederal 

Match

FY2011

FY2011

nonFederal 

Match

General Activity 

Description Budget Line

DOC/ NOAA $3,996,000 $1,053,831 $3,990,008 $1,176,737 Research, removal, 

outreach and education, 

coordination, prevention, 

database development, 

partnerships, grants, and 

contracts.

Marine Debris

DOD

 Navy

 USACE

 

 Air Force

$5,614,000

$14,611,000

$1,400,000

$5,938,000

$15,217,000

$6,508,000

Navy: upgrades and 

maintenance of solid waste 

equipment on ships.

USACE: Drift and debris 

removal.

Air Force: relocation of 

Alaskan near-ocean landfills 

farther inland.

Debris Removal

DHS/ USCG $202,241,000 $202,224,000

See Section 6 for a 

comprehensive discussion 

of USCG activities.

Marine 

Environmental 

Protection

DOI

 FWS

 BSEE

$1,800,000

$50,000 

+ routine 

regulatory 

activities

$1,800,000

Routine 

regulatory 

activities

FWS volunteer and staff 

programs: research, 

removal, outreach/ 

education, coordination, 

prevention, database 

development, partnerships.

Regulatory programs 

prevent and respond to 

marine debris at regulated 

facilities/operations on the 

OCS.

Wildlife 

and Habitat 

Management 

Midway Atoll 

Marine Debris 

Research and 

Cleanup Project

DOJ Unable to provide a budget based on subject matter.

DOS $123,750 Public Outreach and Project 

Development Campaign on 

Reducing Marine Litter in 

the Wider Caribbean.

EPA < $100,000 < $100,000 Prevention, monitoring, 

research, outreach and 

education, and removal.

Marine Pollution

MMC $12,500 $0 5th International Marine 

Debris Conference.

* In order to display budget allocation by Mission-Program, USCG uses an activity-based cost model that averages past expenditures 

to forecast future spending. Budget authority for the Marine Environmental Protection (MEP) mission-program contributes in-part 

to marine debris activities in this table. MEP activities include enforcement of pollution protection regulations and marine pollution 

response, recovery and investigation.

Table 2: FY2010 to FY2011 IMDCC Agency Funding
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 53

APPENDICES

A. 2008 Recommendations

B. Overview of the Interagency Marine Debris Coordinating Committee

C. Federal Authorities by Agency

D. USCG MARPOL Annex V Violation Cases
 54 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Appendix A. 2008 Recommendations

The following recommendations are from the 2008 IMDCC Report to Congress (National 

Oceanic and Atmospheric Administration. 2008 Interagency Report on Marine Debris Sources, Impacts, 

Strategies & Recommendations. Silver Spring, MD. 62pp.). 

MARINE DEBRIS PREVENTION

1. Education and Outreach

1.1: Federal agencies should demonstrate leadership by distributing educational materials to 

personnel on the sources and impacts of marine debris as well as methods for prevention, with the 

goal of reducing the Federal contribution to marine debris.

1.2: Federal agencies should support public awareness campaigns by providing technical 

expertise and educational materials and by encouraging private sector participation, when 

appropriate. These campaigns may target specific threats and audiences to address the diversity 

of the marine debris issue.

1.3: Federal agencies should engage and partner with State, local, Tribal and non-governmental 

entities to support coordinated events, such as Earth Day, the International Coastal Cleanup, and 

other activities that have relevance to marine debris. These events should include nationwide 

educational and media outreach efforts to enhance awareness of sources and impacts of marine 

debris and to provide recommendations regarding specific actions that can be taken to prevent or 

reduce marine debris.

2. Legislation / Regulation / Policy

2.1: The IMDCC should review the findings from the National Academy of Sciences study that 

will assess the effectiveness of international and national measures to prevent and reduce marine 

debris and its impacts, and federal agencies should take action, as appropriate.

2.2: Federal agencies should seek ways to strengthen and enhance their ability to fulfill both 

regulatory and non-regulatory mandates for marine debris prevention, where appropriate. Table 

2, which lists Federal marine debris related authorities, may be used for review and assessment of 

existing authorities.

2.3: The IMDCC should coordinate a correspondence group of State, local, and Tribal 

Governments to determine the marine debris¬–related authorities and policies at those levels, 

including both those that address land-based sources of marine debris and those that address 

ocean-based sources. The correspondence group will be an important component in the IMDCC’s 

gap analysis of regulatory and non-regulatory authorities that can be used to promote marine 

debris prevention.

2.4: Federal agencies, coordinating through the IMDCC, should review existing international 

policies and strategies regarding marine debris from both land-based and ocean-based sources, 

and develop a white paper outlining possible policies or actions for consideration by the United 

States.

3. Incentive Programs
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 55

3.1: Federal agencies should support voluntary, incentive-based programs that encourage 

communities to adopt environmentally responsible practices. Examples may include Heal the 

Bay’s “A Day Without a Bag” Program (a southern California non-profit organization) and the 

Clean Marina Program, an initiative involving Federal agencies and State Governments.

3.2: Federal agencies should work with State, local, Tribal, and nongovernmental entities to 

develop efficient recycling incentive programs for municipalities or appropriate venues.

3.3: Federal agencies, where appropriate, should evaluate methods by which users of products 

that contribute significantly to marine debris can be given an incentive to select environmentally 

friendly alternatives or improve use of recycling infrastructure. Such incentive programs or pilot 

projects should include regular monitoring and evaluation of their effectiveness.

RESPONSE TO DEBRIS ALREADY IN THE ENVIRONMENT

4. Enforcement

4.1: Federal agencies should continue to review enforcement authorities regarding marine debris 

and items that may become marine debris, enhance the effective use of those authorities as needed 

and appropriate, and ensure a coordinated approach to enforcement of relevant authorities.

4.2: In appropriate cases, Federal agencies should refer violations of Federal law, such 

as the Act to Prevent Pollution from Ships, Clean Water Act, and Ocean Dumping Act, to the 

Environment and Natural Resources Division of the U.S. Department of Justice for civil or 

criminal enforcement action.

5. Cleanups

5.1: Federal agencies should work together and contribute to coordinated removal efforts of 

marine debris and items that can become marine debris in areas under Federal jurisdiction, with 

priority given to heavily impacted areas.

5.2: Federal agencies should examine how existing programs can be targeted to support difficult 

marine debris removal efforts. 

5.3: Federal agencies should partner with State, local, Tribal, and nongovernmental entities to 

continue to support and conduct cleanup efforts.

RESEARCH AND DEVELOPMENT

6. Research

6.1: Federal agencies, coordinating through the IMDCC, should sponsor and conduct research to 

characterize the nature of marine debris and further investigate reducing, mitigating, preventing, 

and controlling marine debris and assessing its impacts, with a particular focus on developing 

cost-benefit analyses for these actions.

6.2: Federal agencies, cooperating through the IMDCC, should improve efforts to monitor 

marine debris, including shoreline, floating, and submerged debris, using lessons learned from 

previous federally funded monitoring efforts.
 56 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

6.3: The IMDCC should convene a special session at least once a year to share and discuss 

the latest research findings on marine debris, with summaries and identified gaps to be passed 

to the Subcommittee on Integrated Management of Ocean Resources (SIMOR) and the Joint 

Subcommittee on Ocean Science and Technology.

6.4: Federal agencies, coordinating through the IMDCC, should sponsor and conduct research 

regarding the attitudes and practices of users of products that contribute to marine debris. In 

particular, such research should (a) investigate the willingness to alter attitudes and practices 

in a manner that would reduce marine debris; (b) identify preferences with regard to potential 

incentive programs and which types of incentives are most likely to produce positive responses; 

and (c) develop and test incentive programs intended to alter attitudes and/or practices among 

users of products that contribute to marine debris.

7. Technology Development

7.1: Federal agencies should partner with State, local, Tribal, and nongovernmental entities to 

encourage the development of specific technologies that could prevent or reduce the amount of 

debris entering the marine environment or that could mitigate the impacts of marine debris on 

navigation, human health and safety, the economy, habitats, and species.

7.2: Federal agencies should support research, technology development, and use of materials that 

will not persist in the marine environment.

CROSS-THEME

8. Fostering Coordination

8.1: Federal agencies should help sponsor and participate in workshops, conferences, and 

lectures that address issues related to marine debris and sources of marine debris to encourage the 

exchange of information that can inform the development of guidelines and implementation of 

actions to mitigate marine debris impacts.

8.2: Federal agencies should participate in ongoing international activities to mitigate the impacts 

and reduce the amount of marine debris. Federal agencies also should support efforts to increase 

the awareness of such international marine debris efforts and encourage participation of other 

nations and international organizations in those efforts, as well as consider options for new 

international activities and initiatives to mitigate the impacts and reduce the amount of marine 

debris.

8.3: The IMDCC should serve as a central point for coordination of Federal efforts to develop 

new policies, strengthen existing policies, identify new research topics or projects, and address 

requests from Congress for specific information or actions related to marine debris.

8.4: Federal agencies should pursue partnerships, as appropriate, with nongovernmental entities 

to develop, promote, and implement strategies for preventing, reducing, or mitigating the impacts 

of marine debris.

 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 57

Appendix B. Overview of the Interagency Marine Debris Coordinating Committee 

Table B.1 shows the overall drivers for Federal agencies to address marine debris and lists, in a 

concise format, the related activities and outputs of each agency that sits on the IMDCC. The IMDCC’s 

outcomes are also included.
 58 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

ACTIVITIES OUTPUTS OUTCOMES

Increased understanding of sources, impacts, and mitigation effort related to marine debrisImproved public awareness of the marine debris impacts and actions that can and should be taken to reduce marine debris pollutionDecreased amount of material becoming marine debrisStronger protection of marine environment from pollution and marine debrisIncreased international coordination to manage marine debrisCleaner oceans, coasts, and waterways 

Statutory and 

Regulatory Public Interest (e.g., news stories

on Pacific Trash Gyre)Concern for ecological, human health and safety, economic, and social impacts

Environmental Protection AgencyMPPRCA, MPRSA, SPA, CWA, RCRA, PPA Address land- and ocean-based sources through solid waste, stormwater, non-point 

source, and ocean regulations, voluntary programs, and outreach. 

Department of Homeland Security - USCG MPPRCA, APPS, DAA, SPA, MDRPRA

Compliance and enforcement for ship-generated garbage.

Department of StateMARPOL Annex V and other relevant international agreements. Assistance to other countries on controlling land-based sources of pollution and derelict fishing gear. 

Department of Interior

Fish and Wildlife Service

 Reports on cleanups ESA reports and mitigation action plans Reports on refuge status and conditions

Bureau of Safety and Environmental Enforcement

 Issuance/enforcement of pollution prevention and control regulations through 

warnings, fines, and facility/component shut-ins 

 Site cleanup/removal or reefing of hurricane destroyed/end-of-life platforms  Industry structural design standards/recommended practices revisions, and 

incorporation of revisions into notices/regulations, to improve rig station keeping and ensure platform survivability during hurricanes 

 Site clearnce after decommissioning

Environmental Protection Agency

 Publications (BMPs, factsheets, reports) for municipal, industrial, and general 

audiences on solid waste, stormwater, and marine debris

 Non-point source and marine debris prevention toolboxes Research on marine debris found on beaches and in ocean

Department of Commerce - National Oceanic and Atmospheric Administration

 Federal Information Clearinghouse Research and assessment of marine debris impacts to living marine resources Topic-specific workshops for marine debris researchers and practitioners Nets to Energy and Fishing for Energy partnerships Over 150 grants and contracts since 2005

Department of the Interior

Fish and Wildlife Service ESA, MMPA, DAA, NWRSA and NWRSIA, AFCACleanup of shoreline/nearshore habitats. Impacts on fish/wildlife resources and habitats. Management of National Wildlife Refuge and National Monuments.

Bureau of Safety and Environmental Enforcement

OCSLAA, OPA, EPAct

Address marine debris from regulated facilities and operations through regulations, compliance, enforcement, voluntary programs, and partnerships with the offshore industry.

Department of JusticeJudicial enforcement of environmental violation.

Department of State

 Annex V amendments and related guidelines  Assistance to other countries on controlling land-based sources of pollution Conduct bilateral and multilateral cooperation and coordination with other countries on issues 

related to marine debris. 



Marine Mammal Commission

 Related research and management publications Recommendations to Federal agencies on protecting/conserving marine mammals Distribution of information on biological impacts of marine debris

Department of Commerce – National Oceanic and Atmospheric AdministrationMDRPRA, MPPRCA, MSRA, CZMA, ESA, MMPA, DAA, NMSA, CRCAAddress marine debris through mapping, identification, impact assessment, removal and prevention, focusing on living marine resources and navigation. Reduce and prevent loss of fishing gear. Public outreach and education. Department of Defense 

U.S. Army Corps of EngineersRHA, FCAObstructions in navigable waterways.NavyCompliance with APPS for solid waste management and disposal of plastics from vessels. Preparation of vessels used as artificial reefs in accordance with Nat’l BMPs.

Marine Mammal Commission MMPAResearch and recommendations on impacts to marine mammals.

ACTIVITIES Table B.1. Overview of the Interagency Marine Debris Coordinating Committee 

Department of Justice

 Fines and other penalties for marine debris/garbage violations

Department of Defense 

U.S. Army Corps of Engineers

 Report on obstructions removed from navigable waterways

Navy

Department of Homeland Security – USCG 

 Certification of adequacy for port and waterfront facilities Inspections aboard vessels to ensure compliance with ship-generated garbage 

regulations

 Detection and investigation of ship-generated garbage violations Annex V revisions

DRIVERS 
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 59

AFCA Anadromous Fish Conservation Act

APPS Act to Prevention Pollution from Ships

CRCA Coral Reef Conservation Act of 2000

CWA Clean Water Act

CZMA Coastal Zone Management Act of 1972

DAA Driftnet Act Amendments of 1990

EPAct Energy Policy Act of 2005

ESA Endangered Species Act of 1973

FCA Flood Control Act of 1954

MDRPRA Marine Debris Research, Prevention, and Reduction Act

MMPA Marine Mammal Protection Act

MPPRCA Marine Plastic Pollution Research and Control Act of 1987

MPRSA Marine Protection, Research, and Sanctuaries Act of 1972

MSRA Magnuson-Stevens Fishery Conservation and Management Reauthorization Act of 2006

NMSA National Marine Sanctuaries Act

NWRSA National Wildlife Refuge System Act of 1966

NWRSIA National Wildlife Refuge System Improvement Act of 1997

OCSLAA Outer Continental Shelf Lands Act and Amendments

OPA Oil Pollution Act of 1990

PPA Pollution Prevention Act of 1990

RCRA Resource Conservation and Recovery Act

RHA Rivers and Harbors Act of 1899

SPA Shore Protection Act

USCG U.S. Coast Guard

Table B.2. IMDCC Overview Acronyms
 60 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Appendix C. Federal Authorities by Agency

Table C.1. Federal Authorities by Agency. 

Authorities listed are those that (1) explicitly mention marine debris in their authority; (2) address sources 

and items that may become marine debris (e.g., plastic, fishing gear, garbage); or (3) address entities that may be 

impacted by marine debris. An “X” in the last column indicates that the legislation has a regulatory component.

Authority Explicity mentions 

marine debris

Addressess sources 

and items that may 

become marine 

debris

Addresses entities 

that may be 

impacted by marine 

debris

Regulatory

Marine Debris 

Research, 

Prevention, and 

Reduction Act, 33 

U.S.C. 1951 et seq.

NOAA, USCG

Coral Reef 

Conservation Act 

of 2000, 16 U.S.C. 

6406(b)(3)

NOAA

Coastal Zone 

Management Act 

of 1972, 16 U.S.C. 

1456(b)

NOAA

Marine Plastic 

Pollution Research 

and Control Act 33 

U.S.C. 1914-1915

EPA, NOAA EPA, NOAA, USCG

Driftnet Act 

Amendments of 

1990, 16 U.S.C. 1826

NOAA, FWS, DOS X

Marine Protection, 

Research and 

Sanctuaries Act, 33 

U.S.C. 1401–1445 

(Ocean Dumping 

Act) Title I & II

EPA X

Shore Protection 

Act, 33 U.S.C. 2603 EPA, USCG X

Clean Water Act, 33 

U.S.C. 1346(f), 1342, 

1329

EPA X

MagnusonStevens Fishery 

Conservation and 

Management Act, 

16 U.S.C. 1801 et 

seq.

NOAA X
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 61

Authority Explicity mentions 

marine debris

Addressess sources 

and items that may 

become marine 

debris

Addresses entities 

that may be 

impacted by marine 

debris

Regulatory

Resource 

Conservation and 

Recovery Act, 42 

U.S.C. 6901 et seq.

EPA

Pollution Prevention 

Act of 1990, 42 

U.S.C. 13101–13109 

et seq.

EPA

Act to Prevent 

Pollution from 

Ships (APPS), 33 

U.S.C. 1901 et seq. 

as amended by 

the Marine Plastic 

Pollution Research 

and Control Act

USCG X

Rivers and Harbors 

Act of 1899, 33 

U.S.C. 407, 409, 414, 

415

USACE X

Amended Section 2 

of the Flood Control 

Act of 1954, Sec. 

208

USACE

An Act authorizing 

the construction, 

repair, and 

preservation of 

certain public 

works on rivers 

and harbors for 

navigation, and 

flood control, and 

for other purposes. 

P.L. 94-587, Sec. 202

USACE X

OCS Lands Act, 43 

U.S.C. 1331 et seq. 

and Amendments 

43 U.S.C. 1801 et 

seq.

BSEE X

Oil Pollution Act of 

1990, 33 U.S.C. 2701 

et seq. and E.O. 

12777

BSEE X

Energy Policy Act 

of 2005, 42 U.S.C. 

15801 et seq.

BSEE X

Table C.1. Federal Authorities by Agency continued.
 62 PROGRESS REPORT ON THE IMPLEMENTATION OF THE MARINE DEBRIS RESEARCH, PREVENTION, AND REDUCTION ACT

Authority Explicity mentions 

marine debris

Addressess sources 

and items that may 

become marine 

debris

Addresses entities 

that may be 

impacted by marine 

debris

Regulatory

National Marine 

Sanctuaries Act, 16 

U.S.C. 1431 et seq.

NOAA NOAA X

National Wildlife 

Refuge System 

Administration 

Act of 1966 & 

National Wildlife 

Refuge System 

Improvement Act 

of 1997, 16 U.S.C. 

668dd

FWS

Anadromous Fish 

Conservation Act, 16 

U.S.C. 757a et seq.

FWS

Endangered Species 

Act of 1973, 16 

U.S.C. 1531 et seq.

NOAA, FWS X

Marine Mammal 

Protection Act, 16 

U.S.C. 1402

NOAA, MMC, FWS X

Table C.1. Federal Authorities by Agency continued.
INTERAGENCY PROGRESS REPORT ON MARINE DEBRIS

 63

Appendix D. USCG MARPOL Annex V Violation Cases

Table D.1. USCG MARPOL Annex V Violation Cases.

Table D.2. USCG MARPOL Annex V Violation Citations
Rebecca M. Blank, Ph.D.

Acting Secretary, U.S. Department of Commerce

Jane Lubchenco, Ph.D.

Under Secretary of Commerce for Oceans and Atmosphere

David Kennedy

Assistant Administrator, Ocean Services and Coastal Zone Management

NOAA’s National Ocean Service