2012-2013 PROGRESS REPORT ON THE
 

IMPLEMENTATION OF THE MARINE DEBRIS ACT
 

Interagency Marine Debris Coordinating Committee
 

September 2014
 

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

Interagency Marine Debris Coordinating Committee
 

Chair, Department of Commerce, National Oceanic and Atmospheric Administration
 

Vice-Chair, Environmental Protection Agency
 

Department of Defense, Navy
 

Department of Defense, United States Army Corps of Engineers
 

Department of Homeland Security, USCG
 

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
 
 

Committee Members 

Nancy Wallace 

IMDCC Chair Robert Benson 

Department of Commerce IMDCC Vice-Chair 

National Oceanic and Atmospheric Environmental Protection Agency 

Administration Office of Water 

National Ocean Service 

Federal Department and Agency Members 

Alison Hammer Weingast
 

Department of Commerce
 

National Oceanic and Atmospheric 

Administration
 

David Condino
 

Department of Homeland Security
 

USCG
 

Bret Wolfe
 

Department of the Interior
 

Fish and Wildlife Service
 

Kelly Cohun
 

Department of State
 

Office of Ocean and Polar Affairs
 

Jason Landrum, Executive Secretary
 

Department of Commerce
 

National Oceanic and Atmospheric 

Administration
 

Mike Pletke
 

Department of Defense
 

Navy
 

James Sinclair
 

Department of the Interior
 

Bureau of Safety and Environmental
 

Enforcement
 

Kate Bowers
 

Department of Justice
 

Michael Kidby
 

U.S. Army Corps of Engineers 

Cliff McCreedy
 

National Park Service
 

David Laist
 

Marine Mammal Commission
 

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Table of Contents 

Interagency Marine Debris Coordinating Committee...................................................................... i
 

Committee Members....................................................................................................................... ii
 

Tables............................................................................................................................................. iv
 

Acknowledgments........................................................................................................................... v
 

Acronyms....................................................................................................................................... vi
 

1.0 Executive Summary............................................................................................................. 7
 

2.0 Introduction.......................................................................................................................... 8
 

3.0 Implementation of IMDCC recommendations and strategies ........................................... 10
 

3.1	 Status of activities related to IMDCC recommendations ........................................... 10
 

Education and Outreach........................................................................................................ 10
 

Statutory Authority / Regulation / Policy ............................................................................. 11
 

Incentive Programs ............................................................................................................... 12
 

Enforcement.......................................................................................................................... 13
 

Cleanups................................................................................................................................ 13
 

Research................................................................................................................................ 15
 

Technology Development..................................................................................................... 16
 

Fostering Coordination ......................................................................................................... 16
 

4.0 NOAA Summary of Marine Debris Inventory .................................................................. 19
 

5.0 Review of the NOAA Marine Debris Program.................................................................. 20
 

5.1 Program Administration and Structure....................................................................... 20
 

5.2 Removal...................................................................................................................... 20
 

5.3 Prevention and Reduction........................................................................................... 21
 

5.4 Research...................................................................................................................... 22
 

5.5 Regional coordination................................................................................................. 24
 

5.6 Emergency response to severe marine debris events.................................................. 25
 

6.0 Review of U.S. Coast Guard programs.............................................................................. 27
 

6.1	 Compliance and Enforcement .................................................................................... 28
 

Ship-Generated Garbage and Port Reception Facilities (PRF)............................................. 28
 

Ship-Generated Garbage: Shipboard Compliance and Enforcement.................................... 28
 

6.2	 Debris Removal .......................................................................................................... 29
 

Marine Debris actions in the Gulf of Mexico coastal waters................................................ 29
 

Marine Debris actions in the Pacific..................................................................................... 30
 

Work with the USACE ......................................................................................................... 31
 

6.3 International Activities ............................................................................................... 31
 

6.4 Outreach...................................................................................................................... 32
 

7.0 Funding and Recommendations......................................................................................... 33
 

Appendix B. Overview of the Interagency Marine Debris Coordinating Committee............39
 

Appendix C. Federal Authorities by Agency..........................................................41
 

Appendices.................................................................................................................................... 34
 

Appendix A. 2008 Recommendations...................................................................35
 

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Tables
 

Table 1. FY2012 to FY2013 NOAA/USCG Agency Funding........................................33
 

Table 2. NOAA Marine Debris Program-Funded Prevention 

through Education and Outreach Projects................................................... 45
 

Table 3. NOAA Marine Debris Program-Funded Removal Projects............................46-47
 

Table 4. NOAA Marine Debris Program-Funded Research Projects................................48
 

Table B1. Overview of the Interagency Marine Debris Coordinating Committee............ .....40
 

Table B2. IMDCC Overview Acronyms ...................................................................................41
 

Table C1. Federal Authorities by Agency...................................................................................42
 

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Acknowledgments
 

The Interagency Marine Debris Coordinating Committee would like to acknowledge Dianna 

Parker 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. A special thanks goes to Asma Mahdi for 

creating the final document layout. 

Cover photo credit: NOAA’s Pacific Islands Fisheries Science Center, Coral Reef Ecosystem Division 

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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 

IAA	 Inter-agency Agreement 

ICC	 International Coastal Cleanup 

IMDCC	 Interagency Marine Debris 

Coordinating Committee 

IMO	 International Maritime 

Organization 

ISO	 International Organization for 

Standardization 

MA 

MARPOL 

MDP 

MDRPRA 

MEPC 

MISLE 

MMC 

MOU 

MPPRCA 

NDT/RDT 

NOAA 

NRF 

NRP 

NWR 

NWSC 

PACAREA 

USACE 

USCG 

Mission Assignment 

International Convention for the 

Prevention of Pollution from 

Ships 

NOAA Marine Debris Program 

Marine Debris Research, 

Prevention, and Reduction Act 

Marine Environment Protection 

Committee 

Marine Information for Safety 

and Law Enforcement 

Marine Mammal Commission 

Memorandum of Understanding 

Marine Plastics Pollution 

Research and Control Act 

National Dredge Team/Regional 

Dredge Team 

National Oceanic and 

Atmospheric Administration 

National Response Framework 

National Response Plan 

National Wildlife Refuge 

Northwest Straits Commission 

Pacific Area 

U.S. Army Corps of Engineers 

U.S. Coast Guard 

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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 2012 and December 

2013 to address marine debris, as mandated by the Marine Debris Act (33 U.S.C. 1951 et seq., as 

amended.). The Act requires the IMDCC to submit biennial progress reports that evaluate the 

United States and international progress in meeting the purposes of the Act. 

This is the third progress report since the publication of the first Interagency Report on Marine 

Debris Sources, Impacts, Strategies, and Recommendations, submitted to Congress in August 

2008. This progress report includes all of the information requested in the Act, Section 5(c)(2), 

entitled “Biennial Progress Reports,” including: 

Section 3.0: the status of implementation of any recommendations and strategies of the 

Interagency Committee and analysis of their effectiveness. 

Section 4.0: a summary of the marine debris inventory to be maintained by the National 

Oceanic and Atmospheric Administration (NOAA). 

Section 5.0: a review of the NOAA program, including projects funded and 

accomplishments relating to reduction and prevention of marine debris. 

Section 6.0: a review of Coast Guard programs and accomplishments relating to marine 

debris removal, including enforcement and compliance with MARPOL requirements; and 

Section 7.0: estimated Federal and non-Federal funding provided for marine debris and 

recommendations for priority funding needs. 

The appendices contain specific information on the recommendations from the initial Report to 

Congress, an overview of the IMDCC, relevant Federal agency authorities, and projects funded 

through the NOAA Marine Debris Program. 

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2.0 Introduction 

Marine debris has become one of the most widespread pollution and coastal hazard issues our 

oceans and waterways face today. It is a global challenge that threatens the well-being of 

coastlines, coastal economies, wildlife, marine habitats, human health and safety, and navigation. 

Marine debris is defined in the Marine Debris Act (33 U.S.C. 1951 et seq., as amended) 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 Great Lakes.’ 

These items enter the marine environment either directly through human action – such as 

littering, dumping, or other improper waste management – or indirectly when blown or washed 

out to sea via rivers, streams, and storm drains. In some cases, coastal storms and natural 

disasters can be another source of marine debris, creating increased hazards in our inland and 

coastal waters. 

In recent years, marine debris has received increasingly more attention on an international level. 

Major disaster events such as the March 2011 tsunami in Japan have elevated the marine debris 

issue to the forefront of media and public interest. While natural disasters certainly add to the 

marine debris problem and must be addressed, there is a vibrant marine debris community 

working to address the persistent, man-made problem that threatens our global oceans. 

Unanswered questions about marine plastics and how they affect the health of our oceans are 

propelling new research. As society has developed new uses for plastics, the variety and 

quantity of plastic items found in the marine environment has increased dramatically. These 

products range from common domestic material (bags, polystyrene cups, bottles, balloons) to 

industrial products (strapping bands, plastic sheeting, hard hats, resin pellets) to lost or discarded 

fishing gear (nets, buoys, traps, lines). Based on research to date, once in the marine 

environment, most commonly used plastics do not completely degrade into carbon dioxide, 

water, and inorganic molecules. Instead, they break down into smaller and smaller pieces, 

known as “microplastics” if they are less than 5mm long. 

Studies and anecdotal evidence have shown that fish, birds, and marine mammals eat plastic, 

which may cause irritation or damage to the digestive system. The international research 

community will likely spend the next few years focusing on documenting the occurrence of 

microplastics in the environment and studying effects on both animals and humans. 

There is also ongoing movement within the community to address derelict fishing gear. Crab 

pots, lost fishing nets, and derelict vessels can scour, break, smother, or otherwise damage 

important coral reefs, sea grass beds, and other sensitive areas as they drift through currents. 

Many of these habitats serve as the basis of marine ecosystems and are critical to the survival of 

many species. Nets and pots indiscriminately tangle and kill countless marine mammals, 

seabirds, fish, and invertebrates; mammal entanglement has surged with the increase in 

commercial fishing and the invention of a synthetic, more durable fishing net. 

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From abandoned fishing gear to plastic bags, marine debris turns pristine waters throughout the 

world into garbage dumps. However, this problem is not unsolvable. It is preventable, because 

it is for the most part caused by humans. 

People and their actions, whether intentional or accidental (a carelessly discarded plastic bottle or 

a lost net), are the leading source of marine debris. In order to adequately address the issue of 

marine debris, a comprehensive approach that is local in scale, global in scope, and focused on 

prevention at the source must be used. The marine debris 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 a lack of infrastructure or funds. 

By educating the public about their role in the improper management of trash, litter, and other 

items affecting marine and coastal environments, we identify both the origin of the debris and the 

types of activities/behavior that generate and convey marine debris. The most successful 

solution requires a mobilization of public and private-sector actions and environmental 

stakeholders, resulting in a change in attitudes and practices that will prevent marine debris at its 

source. Because marine debris is also an international issue, these solutions must happen on a 

global scale. Much of the debris that impacts the U.S. shorelines is generated via land-based 

sources from other countries or is generated by the international fishing and shipping fleets. 

This solution-based approach to marine debris prevention is effective when coupled with 

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

environment. 

The Federal agencies conducting marine debris activities will continue to focus on a combination 

of research, reduction, and prevention, and employing strategies such as the Honolulu Strategy, a 

global framework for action. The partnerships between Federal, State, and local stakeholders are 

also critical and must continue for these activities to be successful. NOAA and its IMDCC 

partners appreciate the attention Congress pays to this particular issue and will continue to build 

on existing efforts, as well as improve and find new ways to solve it. 

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3.0 Implementation of IMDCC recommendations and strategies 

The IMDCC is a Federal interagency body responsible for developing and recommending 

comprehensive and multi-disciplinary approaches to reduce the sources and impacts of marine 

debris to the Nation’s marine environment, natural resources, public safety, and economy. The 

IMDCC also ensures the coordination of Federal agency marine debris activities both nationally 

and internationally, to ensure activities are collaborative and not duplicative. The IMDCC also 

recommends research priorities, monitoring techniques, educational programs, and regulatory 

action. The IMDCC is made up of the following federal agencies: 

Department of Commerce/National Oceanic and Atmospheric Administration (NOAA); 

Department of Defense/Army Corps of Engineers (USACE), U.S. Navy (Navy); 

Department of Homeland Security/U.S. Coast Guard (USCG); U.S. Environmental 

Protection Agency (EPA); Department of the Interior/U.S. Fish and Wildlife Service 

(USFWS), National Park Service (NPS); Bureau of Safety and Environmental 

Enforcement (BSEE); Department of State (DOS); Marine Mammal Commission 

(MMC); Department of Justice (DOJ), and any other federal agency or organization that 

has an interest in ocean issues and water pollution prevention and control. 

In addition, Federal agencies within the IMDCC continue to address aspects of marine debris 

pertinent to each agency’s mandates and capabilities. 

3.1 Status of activities related to IMDCC recommendations 

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. For a complete list of recommendations 

provided in the 2008 Interagency Report, please see Appendix A. 

Education and Outreach 

NOAA Marine Debris Program 

Each year, the program partners with Federal, State, local agencies, and non-governmental 

organizations to educate the public about marine debris. For more information, please view the 

complete overview of the MDP’s education and outreach priorities on page 21. 

Environmental Protection Agency 

EPA provides information online to inform the public about marine debris programs and to 

provide information on actions that the public can take to reduce the loadings of trash and debris 

into the marine environment. The national EPA Trash Free Waters website, located at 

http://water.epa.gov/type/oceb/marinedebris/, includes a Marine Debris Prevention Toolkit with 

information and links to a wide range of resources available to help many different 

constituencies take action. The website also provides educational materials, including a new 

‘Marine Debris Hero’ game and a host of other resources that can be incorporated into school 

science programs. EPA’s Pacific Southwest regional website, located at 

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http://www.epa.gov/region9/marine-debris/, also provides extensive information on marine 

debris programs and resources, including online podcasts from experts on marine debris. 

EPA’s Trash Free Waters program has initiated a process to analyze and address factors that 

limit the success of the many education and outreach programs that seek to prevent littering and 

improper trash disposal. The Agency will work with communication experts in government and 

the private sector to develop strategies that combine innovative messaging with targeted actions 

to define the next generation of behavior modification strategies for trash prevention. 

U.S. Fish and Wildlife Service 

The USFWS has permitted documentary filming at Midway Atoll National Wildlife Refuge that 

features the effects of marine debris on the albatross that nest there. These films may be viewed 

at http://plasticparadisemovie.com/ and http://www.midwayfilm.com/. The USFWS also worked 

with the Smithsonian Institution to ship four plastic-laden albatross carcasses for research and 

public display. The USFWS includes information about the dangers of marine debris to wildlife 

at many of our refuge visitor centers and outreach programs. 

To draw attention to the dangers of marine debris and also reduce litter on the refuge, the J.N. 

“Ding Darling” National Wildlife Refuge in Florida ended the sale of single-use plastic bottles at 

its Nature Store. 

Department of State 

In 2012, DOS used social media to encourage participation in the International Coastal Cleanup 

and included a blog entry on the State Department DipNote blog about U.S. engagement in 

global efforts to address the challenge of marine debris. In 2013, DOS expanded outreach 

activities related to the International Coastal Cleanup and encouraged U.S. Embassies and 

Consulates to host marine debris and waterways cleanups on the date of the International Coastal 

Cleanup on September 21 and to work with local communities to turn salvaged materials into art 

projects as part of a State Department-facilitated Marine Debris Art Challenge. Cleanup 

activities took place in two dozen countries involving a wide variety of local organizations and 

partners who worked side-by-side with U.S. diplomats. DOS used social media and the DipNote 

blog to share photographs of the cleanup activities and art projects, which exemplified a great 

deal of creativity and inspiration, in an effort to further raise awareness of the global scope of the 

problem of marine debris. 

Bureau of Safety and Environmental Enforcement 

The BSEE Marine Trash & Debris Program requires annual training of all workers employed or 

contracted by oil and gas operators in the offshore Gulf of Mexico. The training highlights the 

problems caused by marine debris and explains required protocols that workers must follow to 

prevent loss of debris into the marine environment. 

Statutory Authority / Regulation / Policy 

Environmental Protection Agency 

There are a number of statutory and regulatory tools that exist at the Federal, State, and 

municipal levels to explicitly limit the amount of trash that enters aquatic ecosystems. Within 

11
 
 

 

 

 

 

 

 

 

 

EPA’s statutory authorities, Municipal Separate Storm Sewer System (MS4) permits can be 

written to set standards for trash being released from stormwater outfalls into municipal rivers 

and streams. In addition, a small number of municipal jurisdictions have set Total Maximum 

Daily Load limits for trash entering water bodies, as a means of complying with state and 

regional water quality standards. 

The Clean Water Act does not mandate the use of these regulatory mechanisms for trash, 

however; they are tools that localities may use in conjunction with other non-regulatory 

measures to reduce trash loadings into water. During the past year, EPA’s Trash Free Waters 

program has embarked on a series of regional initiatives to help States, cities, and other 

important constituent groups determine whether and how best to apply the wide range of 

regulatory and non-regulatory tools at their disposal to keep trash out of water. The program has 

initiated a planning process in the Mid-Atlantic region, building on the successful regional 

strategy developed by EPA in California, with new regional initiatives starting in 2014. 

U.S. Navy 

In the period since the previous IMDCC progress report, the U.S. Navy completed installation of 

upgraded plastic waste processors (PWPs) on all surface warships. The new PWP features 

increased capacity, greater reliability, easier repair, and no limitations on its use—even in the 

heaviest seas. In addition, the Navy has begun to examine methods and equipment to be 

integrated into new design warships to enable zero discharge of paper, cardboard, metal, and 

glass in order to fully comply with new domestic and international discharge regulations. 

Bureau of Safety and Environmental Enforcement 

The BSEE Marine Trash & Debris Program issued revised guidance, effective January 2012, 

updating and clarifying policies and procedures for compliance of offshore oil and gas operators 

in the Gulf of Mexico. In September 2012, BSEE also provided revised requirements for Safety 

and Environmental Management Systems, a performance-focused tool for integrating and 

managing offshore operations, as well as guidance on required post-hurricane inspections. BSEE 

regulations require operators to remove structures, equipment, and obstructions on leases and 

within easements and rights-of-way following cessation of operations. In 2012, a total of 285 

structures were removed; in 2013, a total of 211 structures were removed. 

Incentive Programs 

NOAA Marine Debris Program 

The NOAA Marine Debris Program continues to partner with Covanta Energy, Schnitzer Steel, 

and the National Fish and Wildlife Foundation on Fishing for Energy, an innovative program to 

provide fishermen with a no-cost option to dispose of unwanted gear. The gear is then turned to 

energy in Covanta’s Facilities. To date, more than 2.2 million pounds of gear has been collected 

through Fishing for Energy. 

Environmental Protection Agency 

EPA is conducting a literature search and analysis of available data on the cost impacts of trash 

on the economy. The scope of the project includes the societal costs of “reactive” trash 

management (both the direct costs of clean-up/remediation and the indirect costs to local 

12
 
 

 

 

 

economies and business sectors) and the benefits of “preventive” actions. The Agency will 

release a white paper in 2014 with an analysis that will inform decisions on steps that can be 

taken to create economic incentives for reducing litter. 

During the past year, EPA’s Trash Free Waters program developed several other projects that 

seek innovative incentives for citizens, businesses, and government agencies to prevent loadings 

of land-based trash into water much more effectively, including the regional planning efforts 

described above. Among these projects is a multi-stakeholder effort to develop public-private 

partnerships to greatly increase the recovery and reuse of packaging waste. A sustainable 

materials management initiative of this type would include actions to create markets for products 

created from recovered packaging. 

Enforcement 

United States Coast Guard 

On behalf of the United States, in cooperation with its interagency partners, the USCG provides 

important leadership at the International Maritime Organization (IMO). New MARPOL Annex V 

amendments, prohibiting the discharge, with very few exceptions, of all Annex V wastes (i.e., 

ship-generated garbage – much of which would contribute to marine debris), came into effect on 

January 1, 2013. 

Bureau of Safety and Environmental Enforcement 

The BSEE Marine Trash & Debris Program conducted on-site inspections of a number of oil 

and gas platforms in the Gulf of Mexico. Improvements in compliance were evident by the end 

of 2013. 

Cleanups 

NOAA Marine Debris Program 

Each year, the NOAA Marine Debris Program funds approximately 10 removal projects, in 

cooperation with the National Marine Fisheries Service Restoration Center. These communitybased removal projects, which occur nationwide, empower local groups to remove derelict 

vessels, tires, pilings, nets, or litter from their coastlines. For a more in-depth list of the MDP’s 

cleanup priorities, see page 20. 

Environmental Protection Agency 

EPA encourages participation in the annual International Coastal Cleanup events sponsored by 

the Ocean Conservancy. 

EPA’s Pacific Southwest Regional Office (Region 9) undertook significant efforts to remove 

threats to human health and the environment posed by marine debris at several sites on the West 

Coast. Because marine debris typically harbors hazardous substances and/or oil, existing Federal 

pollution response authorities and funding sources were used these risks (e.g., the 

Comprehensive Environmental Response, Compensation and Liability Act (CERCLA), the 

Clean Water Act (CWA) as amended by the Oil Pollution Act (OPA), and their implementing 

13
 
 

 

 

 

 

 

 

 

 

 

regulations, found at the National Oil and Hazardous Substances Pollution Contingency Plan (the 

NCP)). 

Region 9 has coordinated with USCG and California EPA (CalEPA) on key abandoned vessels 

and marine debris cleanups in Northern California, including in the Petaluma River, Bodega Bay, 

the California Bay-Delta, the Sacramento River, Humboldt Bay, the Tijuana Estuary, and the 

Oakland Estuary (San Francisco Bay). Since 2011, EPA and its Federal and State partners 

removed over 200 abandoned vessels and other marine debris at these sites at a total combined 

cost of approximately $15 million. Of this amount, approximately 40 percent came from EPA’s 

Regional Superfund Advice of Allowance and 20 percent from the National Oil Spill Liability 

Trust Fund. The remainder of the costs, approximately 40 percent, was contributed by CalEPA 

and included allocations as well as a $650,000 grant from the Cosco Busan Oil Spill Settlement 

fund administered by the National Fish and Wildlife Foundation. The projects included removal 

of abandoned vessels, dilapidated piers, debris piles and addressed hazardous waste containers, 

oil tanks, lead-based paints, asbestos, marine batteries and e-wastes among many other 

contaminants and solid waste. 

These Region 9 clean-ups provided valuable lessons learned for future actions, demonstrating 

that the sooner an abandoned vessel or other marine debris is removed from the aquatic 

environment, the less expensive the operation and the less impact on the environment. For 

example, in 2013, as part of its CERCLA Oakland Estuary Marine Debris Removal Action, EPA 

over $3 million to pump out an estimated 1,700 cubic yards of contaminated sediment from two 

large sunken tugs before they could even be raised to address the oil and hazardous substance 

threats. At least one of these boats, the 150 foot tugboat “Respect,” was a long-standing 

candidate for removal prior to sinking because it posed a potential obstruction and potential 

hazard to navigation. EPA analysis indicates that, had the boat been removed under the Rivers 

and Harbors Act while it was still floating in 2007, the estimated cost of removal would have 

been less than $500,000 and there would have been no release of oil, asbestos, and other 

contaminants that entered the estuary after sinking. 

U.S. Fish and Wildlife Service 

Every September, dozens of coastal National Wildlife Refuges and refuge Friends Groups 

organize their local communities to participate in the International Coastal Cleanup. Refuge 

visitor services staff use these cleanup events as opportunities to also provide an educational 

experience for the public about the threats that marine debris poses to wildlife. 

The Kodiak National Wildlife Refuge in Alaska detailed a crew from the Youth Conservation 

Corps to clean 15,000 pounds of beach debris. The students posted a film of their efforts on 

YouTube. 

In January 2013, the USFWS worked with the Washington State Department of Natural 

Resources and the North Olympic Salmon Coalition to remove 12 tons of creosote-treated wood 

debris from Dungeness National Wildlife Refuge. 

In October 2012, Superstorm Sandy blew boats, docks, trees, and other debris into national 

wildlife refuges in Virginia, Delaware, New Jersey and New York. Hardest hit was the Edwin B. 

14
 
 

 

 

 

 

Forsythe NWR near Atlantic City, New Jersey, where the storm left behind a 22-mile trail of 

debris in the fragile tidal marshes and woodlands. At one time, Forsythe had over 200 derelict 

boats stuck in marshes. The USFWS received $65 million in Federal emergency funding for 

projects at national wildlife refuges and fish hatcheries that were damaged during Sandy. In 

September 2013, the USFWS awarded an initial contract of $4 million for the cleanup and 

restoration of environmentally sensitive coastal areas in the Forsythe Refuge. 

U.S. Navy 

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 clean-ups at its installations. 

Department of State 

In 2013, DOS conducted outreach activities related to the International Coastal Cleanup and 

encouraged U.S. Embassies and Consulates to host marine debris and waterways cleanups on the 

date of the International Coastal Cleanup on September 21. Cleanup activities took place in two 

dozen countries involving a wide variety of local organizations and partners who worked sideby-side with U.S. diplomats. 

Research 

NOAA Marine Debris Program 

In order to better understand the derelict fishing gear problem, the NOAA MDP has supported 

multiple research efforts to measure and address the impacts of derelict crab traps in Alaska’s 

Dungeness crab fisheries. We have also provided funding to address the impacts of 

microplastics, published standardized monitoring protocols, and worked to investigate the 

economic impact of marine debris. For a more in-depth list of the MDP’s research priorities, see 

page 22. 

Environmental Protection Agency 

In 2013, the EPA Trash Free Waters program initiated a project to convene a panel of experts to 

assess the current state of knowledge about possible human health effects from eating fish that 

have consumed microplastics in oceans and the Great Lakes. The panel will be convened by the 

National Academies of Science (NAS) in March 2014. The Trash Free Waters program also 

initiated the project to assess cost impacts of trash to society, described in the incentives section, 

above. Also in 2013, staff scientists from EPA and NOAA met (under the auspices of the 

IMDCC) to share information on their respective research agendas related to marine debris. 

Headquarters and regional staff participated in this valuable information exchange. 

In a letter signed on November 14, 2013, EPA Region 9’s Administrator announced the 

Agency’s plan to conduct a Preliminary Assessment (PA) on Tern Island located within the 

Northwestern Hawaiian Islands (NWHI) Papahānaumokuākea Marine National Monument in 

response to the Center for Biological Diversity’s petition for a PA assessing the impact of plastic 

marine debris within the entire NWHI, including portions of the Pacific Garbage Patch. Tern 

Island, which is currently managed by the USFWS, was used as an airstrip during WWII and 

then as a Coast Guard station; as a result the Island contains numerous dumps with buried 

electronic equipment and other waste. EPA, in partnership with the USFWS, intends to evaluate 

potential and observed releases of hazardous substances from Tern Island, including hazardous 

15
 
 

 

 

 

 

 

 

 

 

substances that adsorb to small plastic marine debris (microplastics) in the surrounding surface 

water. Because Tern Island provides critical breeding and foraging habitat for the extremely 

endangered Hawaiian monk seal and the threatened Hawaiian green sea turtle, the EPA Regional 

Administrator noted that it “presents a scientifically meaningful opportunity to evaluate the 

potential toxicological impact of plastic marine debris ingestion on highly sensitive receptors.” 

U.S. Fish and Wildlife Service 

The USFWS is participating in collective efforts to monitor for marine debris in Alaska. During 

the summer of 2012 and 2013, National Wildlife Refuges in Alaska conducted monthly debris 

surveys at six remote field camps, and reported objects sighted during vessel operations. 

Technology Development 

NOAA Marine Debris Program 

In June 2013, the NOAA MDP cooperated with the NOAA Unmanned Aircraft Systems (UAS) 

Program, NOAA National Environmental Satellite, Data, and Information Service, and the 

University of Alaska at Fairbanks on a project to evaluate the potential for use of small 

unmanned aerial system in detecting debris, including surveys both at-sea and on shore. For a 

more in-depth list of the MDP’s modeling and detection priorities, see page 21. 

Environmental Protection Agency 

Although EPA’s Trash Free Waters (TFW) program does not include a specific technology 

development project, TFW initiated a multi-stakeholder project in 2013 to develop public-private 

partnerships to greatly increase the recovery and beneficial reuse of packaging waste. Among 

the projects ideas under consideration are initiatives to support the development of more 

recyclable packaging materials (particularly for plastic materials), which would help to create 

markets for products created from recovered packaging. 

Fostering Coordination 

NOAA Marine Debris Program 

NOAA is currently involved in The Global Partnership on Marine Litter (GPML), a new 

initiative led by UNEP that seeks to protect human health and the global environment by 

reducing and managing marine litter. The GPML is voluntary and open to international 

agencies, governments, business, academia, local authorities, non-governmental organizations, 

and individuals. It will act as a coordinating forum for global activities and have three 

overarching goals, based on the goals in the Honolulu Strategy. It will also focus on capacity 

building, information collection and sharing, financing, policies, and technologies. Throughout 

2012 and 2013, the MDP also coordinated efforts to develop and enhance state action plans in 

the Great Lakes region, in Hawaii, and in Washington with the West Coast Governor’s Alliance. 

Environmental Protection Agency 

The EPA TFW program is inherently collaborative, forging relationships among all relevant and 

interested programs (Federal, State, local, public & private sector, businesses, NGOs, etc.). In 

2013, the program initiated stakeholder dialogue and consensus processes for several projects, 

including a regional planning initiative for the Mid-Atlantic, an initiative to increase recovery 

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and beneficial reuse of packaging and plastic trash, and an information exchange between 

NOAA and EPA researchers. 

In addition, TFW is part of a larger Agency effort to address ocean and coastal priority issues in 

a more integrated way in support of the National Ocean Policy. The program has facilitated 

greater communication and integration of related programs at the Headquarters and regional 

levels (e.g., stormwater, urban waters, green infrastructure, sustainable materials management, 

National Estuary programs, and large aquatic ecosystem programs for the Great Lakes, the Gulf 

of Mexico, and the Chesapeake Bay). 

U.S. Fish and Wildlife Service 

The USFWS is working with the States of Oregon and Washington to coordinate and manage 

marine debris assessment and cleanup of national wildlife refuges affected by Japan tsunami 

marine debris. The USFWS also participates on the Aquatic Nuisance Species Task Force to 

help raise awareness and respond to threats of invasive species introductions from Japan tsunami 

marine debris. 

Department of State 

Representatives from DOS and NOAA attended the Third Intergovernmental Review Meeting 

(IGR-3) on the Implementation of the Global Programme of Action for the Protection of the 

Marine Environment from Land-based Activities (GPA) in Manila from January 25-26, 2012. 

Preceding the IGR-3, U.S. delegates also attended a Global Conference on Land-Ocean 

Connections (GLOC) from January 23-24, 2012, also in Manila, to discuss emerging issues and 

science-policy interlinkages, including issues related to marine debris; results of the GLOC 

meeting fed into the IGR-3 meeting. Through the IGR-3 outcome document, the Manila 

Declaration, delegates, including those from the United States, decided that the UNEP GPA 

Coordination Office should focus its work on three priority land-based pollution source 

categories for 2012-2016: litter (or debris), nutrients and wastewater. Through the Manila 

Declaration, delegates also recognized the global scale of, and decided to work to find innovative 

solutions and initiatives to, the marine litter problem, and recommended the establishment of a 

Global Partnership on Marine Litter (GPML). 

The United States participated in the United Nations Conference on Sustainable Development in 

Rio de Janeiro from June 20-22, 2012, endorsing the outcome document, “The Future We 

Want,” which noted with concern that the health of oceans and marine biodiversity are 

negatively affected by marine pollution, including marine debris, especially plastic; committed to 

action to reduce the incidence and impacts of such pollution on marine ecosystems, including 

through the effective implementation of relevant conventions adopted in the framework of the 

International Maritime Organization, and the follow-up of relevant initiatives such as the GPA, 

as well as the adoption of coordinated strategies to this end; and committed to take action to, by 

2025, based on collected scientific data, achieve significant reductions in marine debris to 

prevent harm to the coastal and marine environment. 

DOS sent a representative to the October 2-4, 2013 Second Global Conference on Land-Ocean 

Connections Meeting (GLOC-2) held in Montego Bay, Jamaica. Among the objectives of the 

conference were to identify approaches to address current and emerging issues in the marine and 

coastal sector, with a focus on the three priority land-based pollution source categories of the 

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GPA for 2012-2016 (marine litter, nutrients and wastewater), and to serve as a Partnership 

Forum for three Global Partnerships on marine litter, nutrients and wastewater. One of the key 

outcomes of the meeting was the formalization of the structure for the Steering Committee of the 

GPML. Although NOAA was unable to attend the GLOC-2 meeting, a NOAA representative 

has offered to serve as the Chair of the Steering Committee of the GPML, and in 2013, the 

IMDCC began discussions to consider U.S. partnership in the GPML. 

In both 2012 and 2013, DOS provided $60,000 to the Secretariat of the Pacific Regional 

Environment Programme (SPREP) for programming related to reducing land-based sources of 

marine pollution, including marine debris, in the Pacific Islands Region. In 2013, the United 

States also supported the use of U.S. contributions to the Noumea Convention Operating Fund 

administered by SPREP, of which the United States is a member, for the project “Marine Plastic 

Litter, status and recommendations for Pacific based research and action.” A total of $45,000 in 

funds provided by the United States will be allocated from the Noumea Convention Operating 

Fund to implement the project between 2014-2016. The project will include the development of 

a background position paper on marine plastic litter, status and recommendations for the Pacific 

region, and further refinement of selected priority actions and implementation of at least two 

priority strategies that will result in improvements in information about, and management of 

marine litter in the Pacific region between 2014 and 2016. 

Throughout 2012 and 2013, DOS continued to play a role in interagency efforts to prepare for 

and address impacts of marine debris originating from the March 2011 Japan tsunami. 

Specifically, DOS ensured effective diplomatic cooperation with Japan on tsunami marine 

debris, facilitating meetings with staff from the Embassy of Japan in Washington, DC, and 

working through the U.S. Embassy in Japan to facilitate meetings between other U.S. agencies 

and the Government of Japan. These meetings have helped U.S. government officials establish a 

common understanding with Japanese counterparts on various aspects of the tsunami marine 

debris issue, such as information sharing and public communications. DOS assisted in 

coordinating with the Government of Japan to receive updated information on Japanese models 

of tsunami marine debris timelines and trajectories, as well as information about the type and 

quantity of debris that was carried away by the tsunami, and worked closely with the 

Government of Japan to determine how to handle specific cases involving items that are clearly 

linked to the tsunami. In November 2012, DOS facilitated the diplomatic coordination of a 

generous gift of $5 million from Japan to the United States, through the NOAA MDP, to support 

efforts in response to marine debris washing ashore in the United States from the March 2011 

earthquake and tsunami in Japan. 

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4.0 NOAA Summary of Marine Debris Inventory 

In June 2013, the NOAA MDP launched the Marine Debris Clearinghouse, an online database 

that will serve as the Federal Government’s information hub for marine debris stakeholders. 

This resource benefits the nation’s coastal managers, researchers, and communities as they work 

to study and mitigate marine debris and its impacts. 

The site, developed in partnership with NOAA’s Coastal Data Development Center, provides 

users access to information on ongoing and historical marine debris projects related to removal, 

research, and outreach. The site’s sophisticated search function allows users to query specific 

project data, such as date and description, location, and marine debris type. 

Looking ahead in 2014, the Clearinghouse will include new features, including a resource library 

that will provide access to regional action and response plans, technical documents, and “stateof-the-science” papers that discuss key findings and knowledge gaps in marine debris research 

and operations. http://clearinghouse.marinedebris.noaa.gov/ 

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5.0 Review of the NOAA Marine Debris Program 

5.1 Program Administration and Structure 

The NOAA Marine Debris Program (MDP) leads Federal efforts to research, prevent, and reduce 

the impacts of marine debris. Its staff, which is positioned across the country, supports marine 

debris projects in partnership with State and local agencies, tribes, non-governmental 

organizations, academia, and industry. The program also spearheads national research efforts 

and works to change behavior in the public through outreach and education initiatives. 

In December 2012, Congress passed legislation reauthorizing the MDP. The new, amended 

Marine Debris Act largely preserved the program’s mandates to research, prevent, reduce, and 

remove marine debris, but it added a new core function: addressing severe marine debris events. 

The act recognizes the need to address the unusual amounts and types of marine debris following 

events such as tsunamis or hurricanes and NOAA’s critical role, placing the program at the 

forefront of coordination and scientific support for these events. 

In 2012 and 2013, the MDP continued supporting and implementing projects across the country 

that address the adverse impacts of marine debris on the United States economy, the marine 

environment, and navigation safety through identification, determination of sources, assessment, 

prevention, reduction, and removal of marine debris. 

5.2 Removal 

Since its inception in 2006, the program has supported local and national marine debris removal 

projects, ranging from grants to community-based organizations to the annual International 

Coastal Cleanup. Through its local grants, NOAA has funded dozens of marine debris removal 

projects and removed about 4,000 metric tons of marine debris from our oceans. 

In 2012 and 2013, the program provided nearly $2 million administered through NOAA’s 

Restoration Center to support locally driven, community-based marine debris removal and 

prevention projects. Twenty-one groups in 11 coastal States and U.S. territories received 

funding for projects ranging from derelict net removal in Washington State to derelict vessel 

removal in Alabama’s Dog River watershed. For a complete list of projects awarded in FY2012 

and FY2013, please see Table 3. 

The MDP is also a major contributor in funding and technical assistance for the Ocean 

Conservancy’s International Coastal Cleanup, the largest, single-day volunteer clean up event. In 

September 2012, 561,633 volunteers cleaned up nearly 18,000 miles of coastline around the 

world, picking up approximately 10 million pounds of trash. The most commonly-found items 

include those that we use every day, from food wrappers to beverage containers to plastic bags. 

Ocean Conservancy is in the process of counting results from 2013’s cleanup. 

As part of an ongoing effort since 1996, trained NOAA divers with the NOAA Pacific Islands 

Fisheries Science Center’s Coral Reef Ecosystem Division remove derelict nets and gear each 

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year from the coral reefs and coastlines in the Northwestern Hawaiian Islands. In 2012 and 

2013, the effort, funded in part by the MDP, removed about 56 metric tons of nets and plastics 

from the shoreline and nearshore reefs. 

5.3 Prevention and Reduction 

While the program funds removal, it also focuses on the critical aspect of prevention, which is 

the key to solving the marine debris problem. The program has a robust outreach initiative, 

which includes working with teachers, aquariums, zoos, and other learning centers to educate the 

public about marine debris. 

The program has initiated partnership projects through its Prevention through Education and 

Outreach funding opportunity with groups such as the Ocean Conservancy, Oregon State 

University, Anchorage Museum, and a host of other stakeholders with the ability to reach new 

audiences. In FY2013, the MDP provided $458,264 in grants to launch eight new initiatives 

ranging from curriculum development and teacher workshops, to museum displays, to dock-side 

education programs. The intent of these partnerships is to educate the public about marine debris 

through dedicated prevention activities including, but not limited to: 1) encouraging changes in 

behavior to address marine debris; 2) developing, using, and disseminating tools, products, and 

campaigns to improve efforts to address marine debris; and, 3) engaging the public in active, 

personal participation (e.g. a small-scale shoreline cleanup with students or other hands-on 

activities, etc.). For a complete list of prevention projects awarded in FY2012 and FY2013, 

please see Table 2. 

The MDP is also a partner in Fishing for Energy, a nation-wide partnership with National Fish 

and Wildlife Foundation, Covanta Energy, and Schnitzer Steel that provides fishermen no-cost 

opportunities to dispose of unwanted gear. The program informally supports its partners’ 

initiatives around the Nation, providing expertise and staff time to outreach projects. Since 

launching in 2008, Fishing for Energy has processed more than 2.2 million pounds of old fishing 

gear from 41 ports across the Nation, a portion of which has been retrieved directly from the 

ocean by fishers. In 2013, the partnership added Martha’s Vineyard, MA, and Miami – Port 

Everglades, FL, to its port list. In August 2013, partners in the Fishing for Energy initiative 

gathered at Covanta Energy-from-Waste facility in Haverhill, MA, to celebrate a significant 

milestone: the facility has turned more than 300,000 pounds of derelict fishing gear into 

renewable electricity. 

The Fishing for Energy project also supports research and removal projects with the participation 

of the fishing community. For example, in FY2012, the program provided funding to the 

Provincetown Center for Coastal Studies in Massachusetts to assess derelict gear with sonar in 

Cape Cod Bay. The group enlisted the help of four active fishing vessels to aid in removal in 

2013, with the goal of removing an estimated 40 tons of lost, abandoned, or jettisoned gear. 

Digital communications 

Interest in marine debris grew significantly across the country over the past few years, in large 

part due to hot media topics such as “garbage patches” and debris from the Japan earthquake and 

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tsunami disasters. In an effort to improve communications and provide the public the kind of 

instant information it demands, the program redeveloped and launched its website on a new, 

dynamic Drupal platform. The program’s website now offers a suite of new tools and features, 

including current news stories, curriculum and tools for teachers, a video gallery, and a Google 

map showing “Marine Debris Where You Live.” 

5.4 Research 

The MDP has developed a research strategy that will guide holistic, efficient, and impactful 

research projects through 2016, focusing on plastics, their degradation rates, and chemical 

impacts, as well as the economic impacts of marine debris and the benefits of removing it. The 

program funded several research projects in FY2012 and FY2013 that further our understanding 

of these issues. For a full list, please see Table 4. These projects include: 

Plastics and chemicals 

•	 The Regents of the University of California, Davis to explore how microplastics 

contaminated with absorbed chemicals impact species that ingest them, as well as the 

likelihood of microplastic particles and chemicals to be transferred to a higher trophic 

level. ($200,000) 

•	 Sea Education Association to explore how animal behavior influences the ingestion of 

potentially harmful microplastic particles. ($117,751) 

•	 Virginia Institute of Marine Science to determine which factors, such as temperature and 

pH, are important influences on the way chemicals and plastics interact in the 

environment. ($173,497) 

In 2012, the MDP also funded research through the University of Maryland to analyze samples 

the program collected during surface trawl samples in the Chesapeake Bay. The researchers 

found microplastics in almost all of the samples, validating an analytical quantification technique 

developed by the University of Washington Tacoma and the MDP, and further confirming that 

microplastics are a problem in coastal systems. 

Derelict fishing gear 

In 2012 and 2013, the MDP continued to work actively in the State of Alaska in order to 

understand the impacts of derelict fishing gear. Culminating a 2-year study of derelict crab pots, 

the MDP worked with National Marine Fisheries Service scientists at NOAA’s Auke Bay Labs 

to examine behaviors of Dungeness crabs entrapped in pots. The experiment uncovered a crucial 

fact: traps are not opening as expected, even when the escape cord degrades, and without any gap 

in the lid, crabs were unable to escape. When we modified the trap with a gap between the pot 

lid and the frame, crabs were able to escape. The MDP worked with the scientists to test 

multiple alternate escape mechanisms, identifying potential changes to crab pot designs which 

could reduce ghost-fishing impacts of lost gear. The MDP and Auke Bay Labs will now move 

forward with testing biodegradable panels in the field. This research could lessen the impact of a 

Dungeness crab trap once it becomes derelict. 

Detection and modeling 

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One of the primary challenges of research on at-sea debris is detecting and quantifying widely 

dispersed open ocean debris. Once the debris comes ashore, it can become concentrated on 

“catcher” beaches that are inaccessible or inhabited by protected species, posing further 

challenges in access and detection. The NOAA MDP cooperated with the NOAA UAS Program, 

NOAA National Environmental Satellite, Data, and Information Service, and the University of 

Alaska at Fairbanks on a project to evaluate the potential for use of small UAS in detecting 

debris, including surveys both at-sea and on shore. As part of this project, NOAA conducted 

field testing of a UAS on the Olympic Coast of Washington in June 2013. The mission had three 

elements; a primary seabird survey, shoreline debris detection, and targeted offshore debris 

survey. Post-processing of the data is ongoing, but initial results showed low debris densities 

offshore and pockets of higher debris density at “catcher” beaches onshore. These onshore 

results will be “ground-truthed” using field observations from shoreline survey teams, allowing 

for a clear analysis of the UAS’ effectiveness. 

In FY2013, the program also provided funding support to University of Hawaii, through 

NOAA’s Joint Institute for Marine and Atmospheric Research (JIMAR) Cooperative Institute, 

looking at debris accumulation on Tern Island and identifying how those trends are impacted by 

ocean forcing factors, such as waves and currents. 

Economic impacts 

Marine debris is a persistent problem that may alter the value of recreational areas, such as 

beaches, but few studies have attempted to estimate these economic costs. To fill this knowledge 

gap, the MDP provided funding in FY2012 to Industrial Economics, Inc. to conduct a 

preliminary study to estimate the costs of marine debris to beach visitors in and around Orange 

County, California. As part of the effort, Industrial Economics, Inc. will estimate how valuable 

local beaches are for these coastal communities and measure marine debris local beaches so that 

it can directly estimate the lost value generated by the presence of that debris. The MDP will use 

the study results to refine future marine debris economic cost assessments, and identify priority 

areas where marine debris prevention and removal efforts are needed. 

Marine Debris Monitoring and Assessment Project 

Over the last 2years, the MDP has increased the number of partner organizations monitoring and 

assessing shoreline sites as part of the Marine Debris Monitoring and Assessment Project (MDMAP), focusing efforts on regions impacted by Japan tsunami marine debris. The MD-MAP 

surpassed 150 monitoring sites in Alaska, British Columbia, Washington, Oregon, California, 

and Hawaii, and the program is expanding to other States in FY2014, starting with Virginia. In 

November 2013, the program published publicly-available standard techniques for assessing 

debris on shorelines, on water surfaces, at-sea, and in benthic environments. 

Through the project, the MDP has collected baseline data that will help identify targets for 

mitigation, evaluate the effectiveness of marine debris prevention efforts, and determine marine 

debris impacts on the marine environment. Survey data and photos are placed in an online 

database that the MDP developed in 2013 to facilitate data analysis and regional comparisons of 

debris types, abundances, and trends. 

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5.5. Regional coordination 

One of the MDP’s most effective roles in the marine debris community is its coordination 

activities. The program has regional coordinators for Alaska, Washington, Oregon, California, 

Hawaii and the Pacific Islands, the Gulf of Mexico, the Caribbean, the East Coast, and the Great 

Lakes. These coordinators provide technical expertise to partners in their region on marine 

debris projects, assess regional needs, work with State and local agencies to implement 

prevention strategies, and act as a hub of information for coastal managers, non-profits, and other 

groups interested in addressing marine debris. The program’s coordinators are in the process of 

working collaboratively with State and local agencies to draft and implement marine debris 

action plans that will aid States in preventing and reducing debris, as well as mitigating coastal 

impacts. 

Workshops and action plans 

The 2012-2013 period brought a renewed focus for the MDP on regional coordination and State 

action planning. The program identified a need for additional support on the East Coast and Gulf 

of Mexico, and hired regional coordinators for the Gulf of Mexico, Northeast, Southeast, and 

Caribbean regions. Given this region’s susceptibility to hurricanes and tropical storms, the 

MDP’s new regional coordinators will focus on action and response planning with state and local 

partners in these regions. 

Throughout 2012 and 2013, the MDP, in partnership with the Alliance for the Great Lakes and 

Old Woman Creek National Estuarine Research Reserve, brought together a diverse group of 

stakeholders to develop a strategic plan for addressing land-based marine debris – the first of its 

kind for the Great Lakes region. Representatives from Federal, State and local agencies, as well 

as non-governmental organizations participated in three workshops organized by the MDP, 

identifying five major goals: Addressing science, policy, outreach and education, impact 

reduction through removal, prevention, and strategic partnerships. The group also identified 

specific actions under each goal and will finalize them in FY2014. 

Since 2008, the MDP has supported the West Coast Governor’s Alliance (WCGA), working 

closely with the WCGA Marine Debris Action Coordination Team, to draft a strategy that 

provides a framework to identify, assess, prevent, and reduce marine debris. The program 

funded two of the three workshops needed to bring the team together to outline and draft the 

strategy, and in June 2013, the WCGA Executive Committee approved it. The strategy will 

serve as a baseline to achieve debris reduction targets through removal and prevention efforts. 

The MDP also organized and supported several planning workshops on the West Coast in 

association with tsunami debris from Japan, including a workshop on invasive species held in 

August 2012 and a contingency planning table-top exercise for the State of Washington in 

November 2012. 

In Alaska, the MDP worked with the State to use debris density data and impact assessments to 

help the State rank beaches and allocate resources for future cleanups. The prioritization will 

remain a resource for future cleanup planning in the marine debris community. 

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In April 2012, the MDP sponsored a 2-day workshop in Honolulu with Hawaii State and local 

partners devoted to updating the Hawaii Marine Debris Action Plan. The primary purpose of the 

meeting was to capture in the plan all that has taken place across the state since the roll-out in 

January 2010. In addition, there were presentations and discussions on The Honolulu Strategy: 

A Global Platform for Marine Debris Prevention and Management and Japan tsunami marine 

debris. The Honolulu Strategy is one of the key outcomes of the Fifth International Marine 

Debris Conference held in Honolulu in March 2011. 

5.6 Emergency response to severe marine debris events 

Japan Tsunami Marine Debris 

On March 11, 2011, an earthquake with a magnitude of 9.0 rocked the country of Japan, 

triggering a tsunami with waves up to 130 feet that devastated over 200 miles of land. The 

events produced a staggering loss of human life and property, and in its wake the problem of 

marine debris unfurled. As the tsunami receded from land, it washed much of what was in the 

inundation zone back into the ocean. Heavier materials sank closer to shore, while buoyant 

materials went on to make up the debris fields initially captured by satellite imagery and aerial 

photos of the waters surrounding Japan immediately after the tsunami. In the months that 

followed the tsunami, it became apparent that the untold amount of property loss was to become 

a marine debris issue not just for Japan, but also for its neighbor across the Pacific, the United 

States. 

Throughout 2012 and into 2013, the MDP’s attention focused largely on responding to Japan 

tsunami marine debris (JTMD). The MDP led Federal efforts to collect data on JTMD quantity, 

location, and movement; assess potential impacts; and plan for efforts to reduce possible impacts 

to our natural resources and coastal communities. The efforts undertaken by NOAA include a 

wide range of activities from detection and modeling, to establishing a debris sightings database 

and visualization, to monitoring and removal. 

The program recognized the need for additional funding for cleanup efforts in response to 

tsunami debris. In June 2012, the MDP allocated $50,000 for debris projects to each of the 

impacted States – Alaska, Washington, Oregon, California, and Hawaii – to aid in removal and 

cleanup efforts. Then, in December 2012, Japan provided $5 million to the United States, 

through the MDP, with the intent to support marine debris response efforts, such as removal of 

debris, disposal fees, cleanup supplies, detection and monitoring. NOAA continues to work 

closely with the States to determine immediate needs. The MDP provided an initial sum of 

$250,000 to each of the affected States (Alaska, Washington, Oregon, California and Hawaii), 

with many States requesting additional funding. NOAA holds the balance in reserve to distribute 

on a case-by-case basis, as needs arise. 

Many partner agencies, including those in the IMDCC, have supported and engaged in NOAA’s 

efforts, as well as contributed technical expertise and resources. The MDP has produced a full 

report on interagency activities, which may be viewed at 

http://marinedebris.noaa.gov/sites/default/files/Japan_Tsunami_Marine_Debris_Report.pdf. 

25
 
 

 

Post-Sandy Response 

During the 2012 hurricane season, Sandy inflicted severe damage to communities and coastal 

resources over large areas of the Mid-Atlantic and Northeast states, leaving a swath of 

destruction and large amounts of debris in the waters and marshes of affected States. This debris 

poses hazards to navigation, commercial fishing grounds, and sensitive ecosystems. 

NOAA is leading efforts with Federal, State, and local partners to collect data, assess the debris, 

and reduce possible impacts to our natural resources and coastal communities. After the initial 

emergency response, the NOAA MDP pulled together State and local agencies in impacted 

States to determine needs, coordinate debris response activities, and begin initial assessments. 

The program worked with partners to develop a model showing areas where debris most likely 

accumulated and analyzed sonar and LiDAR survey data to find submerged debris. 

In the Disaster Relief Appropriations Act of 2013, Congress provided the program with $4.75 

million to locate and remove the marine debris Sandy generated. The program will continue 

activities in FY2014 with a combination of aerial, underwater, and shoreline surveys necessary 

to assess the quantity and location of marine debris in the impacted coastal areas. These 

assessments allow NOAA to estimate the debris’ impacts to economies and ecosystems, identify 

priority items for removal, develop best removal practices, and support limited removal efforts. 

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6.0 Review of U.S. Coast Guard programs 

Since the filing of its last report with Congress on the status of USCG marine debris activities in 

2010 and 2011, 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 2012 and 

2013 which reflect its sustained commitment to eliminating this persistent problem. 

The USCG combats ship-sourced marine debris by enforcing the vessel-generated waste 

provisions of MARPOL, APPS, and the regulations issued there under. The 2012-2013 period 

saw further development of the USCG waste reception facilities program and its domestic and 

international outreach efforts. Through its port state control examination and domestic 

inspection programs, the USCG ensured compliance with MARPOL and the U.S. laws and 

regulations implementing it. 

Where the USCG has statutory authority, USCG Captains of the Port (COTP) may place on hold 

vessels which pose a unique pollution risk. In furtherance of its commitment to environmental 

stewardship, the USCG assists its interagency partners in the identification and removal of 

marine debris in areas of particular ecological concern. 

On behalf of the United States, in cooperation with its interagency partners, the USCG provides 

important leadership at the International Maritime Organization (IMO). New MARPOL Annex 

V amendments, prohibiting the discharge, with very few exceptions, of all Annex V wastes (i.e., 

ship-generated garbage – much of which would contribute to marine debris), came into effect on 

January 1, 2013. 

In 2012, the USCG participated in a program of assistance sponsored by the IMO on Port 

Reception Facilities in the Mediterranean and Gulfs region, and in 2013 the USCG hosted a 

program of assistance on Port Reception Facilities (PRFs) in the Caribbean region, bringing 

together delegates from 13 Caribbean nations and over 30 experts on ship’s waste from around 

the world for a seminar dedicated to preventing pollution from ships and providing adequate 

reception facilities. 

The USCG also continued its cooperation with international partners through the ISO to develop 

industry-wide standards as chair of an ISO work group to develop waste management standards. 

ISO 21070, Management and Handling of Shipboard Garbage, was published in 2011 and in 

2013 the standard was identified for work on a revised edition to include new MARPOL Annex 

V provisions. ISO International Standard 16304, Port Waste Reception Facilities, was published 

in 2012 and is also slated for revisions. 

The USCG continues to educate mariners about the environmental and legal consequences of 

marine debris deposition by promoting marine debris awareness among the regulated public 

through its Sea Partners Campaign outreach program and in partnership, under a Memorandum 

of Understanding, with the North American Marine Environmental Protection Association. 

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. 

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6.1 Compliance and Enforcement 

The USCG continues to administer a robust MARPOL compliance program for ships and to 

ensure the adequacy of waste reception facilities in U.S. ports and terminals and their ability to 

receive MARPOL Annex V wastes from ships. These efforts contribute to the reduction of shipsourced pollution, which is responsible for a portion of the marine debris in the oceans. 

Ship-Generated Garbage and Port Reception Facilities (PRF) 

The USCG verifies that domestic waterfront facilities maintain the capability of receiving 

garbage and wastes from ships through its Certificate of Adequacy (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. In the CY 2012-2013 

reporting period the USCG conducted over 15,000 Facility Inspections each year. 

The USCG continues to monitor and gather information on MARPOL reception facilities, 

including information relating to inspections, investigations, and pollution incidents directly 

connected to MARPOL Annex V waste streams. In FY 2012 the USCG conducted 422 facility 

inspections related to MARPOL Annex V and issued or renewed 237 COAs and in 2013 the 

USCG conducted 276 facility inspections related to MARPOL Annex V and issued or renewed 

276 COAs. Currently there are 1290 U.S. ports and terminals that have been inspected and issued 

a COA. 

The USCG continues its work to enhance compliance with MARPOL regulations at ports and 

facilities. 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 responds to the Flag State of ships alleging inadequate 

facilities and provides a synopsis of its investigation and any action taken to ensure adequate 

reception facilities are available at U.S. ports and terminals. The USCG will publish updated 

guidance on MARPOL and reporting procedures to field units, ports and terminals, and ship 

operators in 2014. 

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 (CGMIX) and is provided to the IMO for publication on their Global 

Integrated Shipping Information System (GISIS) website which the USCG helped implement. 

Ship-Generated Garbage: Shipboard Compliance and Enforcement 

The USCG ensures compliance with MARPOL, APPS, and U.S. regulations related to marine 

environmental protection through inspections and boardings. The USCG inspects U.S. 

commercial vessels annually and examines foreign vessels through its port state control program. 

Inspectors may target suspected polluters for violations. 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, 

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where appropriate) allow the USCG to verify environmental compliance. In 2012-2013 the 

USCG conducted over 144,000 boardings. 

6.2 Debris Removal 

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 actual 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) for oil and the 

Comprehensive Environmental Response, Compensation, and Liability Act 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 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 pollution is also considered. 

When a vessel remains a possible source for continued discharge of oil or hazardous material, 

and additional damage to the environment or costs for cleanup would be incurred, vessel removal 

may be the most appropriate option. 

In cases where vessels do not pose a pollution threat, the USCG coordinates with the U.S. Army 

Corps of Engineers (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, for example, when a vessel 

is not located in a navigable waterway, does not pose a pollution threat, or is a barge less than 

100 gross tons. 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. 

Marine Debris actions in the Gulf of Mexico coastal waters 

USCG District 8 and local USCG units have worked to identify derelict vessels and barges and 

are working with Federal partners and local and State partners to initiate action for removals. 

USCG Sector Mobile, AL, has initiated a project to review over 700 potential derelict vessels 

that were identified in the Sector Command Center derelict vessel log. The list includes just over 

200 potential pollution threats that encompass all three States of Mississippi, Alabama and 

Florida. The USCG has established a plan of action to mitigate the threat and will also work 

with local NOAA Marine Debris program officials and local and State agencies to access grant 

money so that the USCG can remove the threat of pollution, and local/State authorities can 

remove and dispose of the vessel. 

29
 
 

 

 

 

 

 

 

 

 

 

Marine Debris actions in the Pacific 

Coast Guard District 11 Coordination with Federal, State & local partners 

Marine Debris Removal Associated with West Sacramento LASH Barges. On July 12, 2013, 

USCG Sector San Francisco received notification from EPA of a report by the California 

Department of Recycling and Recovery (CalRecycle) of an illegal disposal site at the Port of 

Sacramento near the City of West Sacramento, CA. CalRecycle conducted initial assessments of 

the 41 disposal sites. The survey showed multiple LASH Lighters, a dry dock, and several 

abandoned vessels to contain an unknown quantity of oil, hazardous substances, and low-level 

radioactive materials. Given the abundance of pollutants and contaminates, CalRecycle required 

USCG assistance to fully mitigate the pollution threat. 

Following a site assessment that occurred on August 13, 2013, Sector San Francisco determined 

the site poses a substantial threat to the environment. Sector San Francisco prepared a Federal 

On-Scene Coordinator’s Decision Memo documenting access to both the Oil Spill Liability Trust 

Fund and Comprehensive Environmental Response Compensation and Liability Act fund to 

initiate response actions designed to fully mitigate the pollution threat. Once the pollution threat 

was mitigated by several USCG units, CalRecycle was able to continue removing the 20 barges 

and associated dry dock from the port. 

Marine Debris Removal Associated with the Oakland Estuary Project 

On August 24, 2012, CalRecycle sent a letter to USACE, USCG, and EPA requesting their 

participation in a joint venture raising, evaluating, assessing, and removing abandoned wrecks 

and other marine debris from the Oakland Estuary. The abandoned wrecks and marine debris 

were located throughout the Oakland Estuary, including the shoreline along Coast Guard Island 

and the San Leandro Bay. The EPA offered to be the lead Federal agency with the Army Corps 

and District-11 Coast Guard units offering resources and support to the effort. USCG gave EPA 

authority to be the Federal Oil Spill Coordinator (FOSC) in the Coastal Zone for the assessment 

and removal of hazardous material, but retained FOSC authority for all oil. The site consisted of 

four sunken abandoned wrecks and other clusters of marine debris containing hazardous 

substances situated in the Oakland Estuary. One of the vessels that posed a threat to the 

environment was the 150’ T/V Respect. The US EPA contracted a local OSRO to remove 

sediment from inside the Respect as part of its preparation for salvage. During the sediment 

removal, a fuel tank was discovered along with 31,000 gallons of oil laden sediment. D11 units 

assisted in the raising of the Respect and the removal of the oil laden sediment. At the 

conclusion of this joint initiative, 72 derelict vessels were removed, 1,700 cubic yards of 

contaminated sediments, and 10.5 tons of hazardous materials. 

United States Coast Guard (USCG) Pacific Area Command (PACAREA) actions related to 

Japan Tsunami Marine Debris (JTMD) 

PACAREA Prevention and Incident Management members participated in bi-weekly, then 

monthly, and finally bi-monthly JTMD update conference calls that were led by the NOAA 

Office of Response and Restoration. USCG units in the Pacific Theatre requested navigation 

warnings for reported debris that potentially posed a risk to safe navigation. USCG aviation 

30
 
 

 

 

 

 

 

 

 

 

 

 

 

assets were utilized to conduct over-flights (when possible and in conjunction with other 

sorties/missions) to verify reports of significant debris sightings. USCG units in PACAREA 

relayed all reports of potential JTMD to disasterdebris@noaa.gov. 

USCG PACAREA units from District-11, District-13, District-14, and District-17 worked with 

local, State and Federal partners in the region on JTMD efforts, led by NOAA, to monitor, 

identify and mitigate associated risks from JTMD. 1,969 reports were submitted to 

the DisasterDebris@noaa.gov site since initiated in late December 2011, and included 816 at Sea 

Sightings (4 Confirmed JTMD) and 1,153 Shoreline Sightings (35 Confirmed JTMD). The most 

notable JTMD related event was the sinking of the Japanese Fishing Vessel RYOU-UN MARU 

by Coast Guard Cutter ANACAPA in April 2012. 

Interagency Work in the Papahānaumokuākea Marine National Monument 

The USCG and Papahānaumokuākea Marine National Monument (PMNM) staffs continued 

throughout the 2012-2013 reporting period to work closely to identify marine debris in the 

Northwestern Hawaiian Islands. In addition to the living marine resources statutory missions, 

USCG D-14 aircrews search for marine debris while engaged in dedicated law enforcement 

missions. In addition, PMNM staff periodically accompanies pre-scheduled USCG surveillance 

flights within the Monument area. 

Work with the U.S. 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. The USACE has also issued a general permit (i.e., Nationwide Permit 22) 

under Section 10 of the Rivers and Harbors Act of 1899 and Section 404 of the Clean Water Act 

to authorize the removal of vessels from navigable waters. 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 Team/Regional Dredge Team (NDT/RDT), 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. 

6.3 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. 

31
 
 

 

 

 

 

 

 

 

IMO delegation, the USCG works to advance a number of key environmental interests at 

meetings of the IMO’s Marine Environment Protection Committee. 

The U.S. led the effort to bring the Wider Caribbean Region special area discharge restrictions 

into effect for MARPOL Annex V on May 1, 2011, and MEPC’s adoption of multiple 

amendments to Annex V in July 2011. The amendments to MARPOL Annex V came into force 

on January 1, 2013, and with limited exceptions, prohibit the discharge of all garbage from ships 

into the sea. 

The USCG continues to actively participate in the development of the ISO standards for 

reception facilities and handling of ships’ waste. 

6.4 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. 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. In 2012, the USCG entered 

into a Memorandum of Agreement with the North American Marine Environmental Protection 

Association (NAMEPA) to work together on outreach and education materials to industry and 

the boating public. In 2013, NAMEPA, with USCG assistance updated guidance to mariners on 

new MARPOL regulations and impacts of marine debris from ships. The USCG Auxiliary 

reports its vital operational hours for the Sea Partners Campaign in its reporting database, 

AUXDATA. In 2012 and 2013combined, over 16,000 hours were committed toward the Sea 

Partners Campaign. 

32
 
 

 

 

 

 

 

 

 

 

 

 

7.0 Funding and Recommendations 

Section 5(e)(5) of the Marine Debris Act 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 2012 and 2013. 

Table 1: FY2012 to FY2013 NOAA/U.S. Coast Guard/USACE Marine Debris Funding 

AGENCY FY2012 FY2012 

nonFederal 

Match 

FY2013 FY2013 

nonFederal 

Match 

General Activity 

Description 

Budget Line 

DOC/NOAA $4,618,000 $3,069,079 $4,658,000 $2,087,973 Research, removal, 

outreach and education, 

coordination, prevention, 

database development, 

partnerships, grants, and 

contracts. 

Marine Debris 

U.S. Coast 

Guard* 

$246,453,000 $240,668,000 See Section 6 for a 

comprehensive discussion 

of USCG activities. 

Marine 

Environmental 

Protection 

USACE $16,554.250 $16,570,860 Drift and Debris Removal 

Program authorized by 

Section 202 of WRDA 

1976 (Public Law 54-587) 

Drift and 

Debris 

Removal 

* In order to display budget allocation by Mission-Program, USCG uses an activity-based cost model that averages 

past expenditures to forecast future spending. Discretionary 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. 

Please note that many IMDCC 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. Here are a few specific highlights regarding agency 

marine debris funding: 

•	 EPA’s water program and Pacific Southwest region put seed money toward trash 

prevention and reduction efforts, as well as marine debris research and efforts to address 

debris impacts from severe weather events and the tsunami in Japan. 

•	 The U.S. Navy provided $3,169,000 and $2,285,000 in FY12 and F13 respectively for 

upgrades and maintenance of solid waste equipment on Navy ships. 

•	 DOS provided funding for public diplomacy activities that addressed marine debris. 

33
 
Appendices
 

A. 2008 Recommendations 

B. Overview of the Interagency Marine Debris Coordinating Committee 

C. Federal Authorities by Agency 

D. NOAA Marine Debris Program-funded projects 

34
 
 

 

 

 

 

 

 

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 

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 nongovernmental 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 

(NAS) 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. 

35
 
 

 

 

 

 

 

 

 

 

 

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 

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 DOJ 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. 

36
 
 

 

 

 

 

 

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. 

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 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. 

37
 
 

 

 

 

 

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. 

38
 
 

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. 

39
 
 

 

 

 

 

 

 

 

 

ACTIVITIES Table B.1. Overview of the Interagency Marine Debris Coordinating Committee 

DRIVERS ACTIVITIES OUTPUTS OUTCOMES 

Environmental Protection Agency 

MPPRCA, 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 State 

MARPOL 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 

S f 

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 

ESA, MMPA, DAA, NWRSA and NWRSIA, AFCA 

Bureau of Safety and Environmental Enforcement 

OCSLAA, OPA, EPAct 

Fish and Wildlife Service 

Cleanup of shoreline/nearshore habitats. Impacts on fish/wildlife resources and 

habitats. Management of National Wildlife Refuge and National Monuments. 

Address marine debris from regulated facilities and operations through regulations, 

compliance, enforcement, voluntary programs, and partnerships with the offshore 

industry. 

Department of Justice 

Judicial enforcement of environmental violation. • Fines and other penalties for marine debris/garbage violations 

Department of State 

• Annex V revisions 

• Assistance to other countries on controlling land-based sources of pollution 

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 

MDRPRA, MPPRCA, MSRA, CZMA, ESA, MMPA, DAA, NMSA, CRCA 

Address 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 

MMPA 

Department of Commerce – National Oceanic and Atmospheric Administration 

U.S. Army Corps of Engineers 

RHA, FCA • Report on obstructions removed from navigable waterways 

Obstructions in navigable waterways. 

Navy 

Compliance 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. 

Research and recommendations on impacts to marine mammals. 

Department of Justice 

U.S. Army Corps of Engineers 

Navy 

Marine Mammal Commission 

Department of Defense 

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 

Statutory and 

Regulatory 

Public Interest 

(e.g., news stories 

on Pacific Trash 

Gyre) 

Concern for 

ecological, human 

health and safety, 

economic, and 

social impacts 

Increased 

understanding of 

sources, impacts, 

and mitigation 

effort related to 

marine debris 

Improved public 

awareness of the 

marine debris 

impacts and 

actions that can 

and should be 

taken to reduce 

marine debris 

pollution 

Decreased amount 

of material 

becoming marine 

debris 

Stronger 

protection of 

marine 

environment from 

pollution and 

marine debris 

Increased 

international 

coordination to 

manage marine 

debris 

Cleaner oceans, 

coasts, and 

waterways 
 

 

 

 

 

 

 

 

 

 

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 

Explicitly 

mentions 

marine debris 

Addresses sources 

and items that 

may become 

marine debris 

Addresses entities that 

may be impacted by 

marine debris 

Regulatory 

Marine Debris 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 

Comprehensive 

Environmental Response, 

Compensation, and 

Liability Act (CERCLA) 

42 U.S.C. 9601, 9604, 

9607 

EPA X 

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 

41
 
 

 

 

 

 

 

Authority 

Explicitly 

mentions 

marine debris 

Addresses sources 

and items that 

may become 

marine debris 

Addresses entities that 

may be impacted by 

marine debris 

Regulatory 

Shore Protection Act, 33 

U.S.C. 2603 EPA, USCG X 

Clean Water Act, 33 

U.S.C. 1321 EPA X 

Clean Water Act, 33 

U.S.C. 1346(f), 1342, 

1329 

EPA EPA X 

Magnuson-Stevens 

Fishery Conservation and 

Management Act, 16 

U.S.C. 1801 et seq. 

NOAA X 

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. 403 407, 

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 

USACE X 

42
 
 

 

 

 

Authority 

Explicitly 

mentions 

marine debris 

Addresses sources 

and items that 

may become 

marine debris 

Addresses entities that 

may be impacted by 

marine debris 

Regulatory 

navigation, and flood 

control, and for other 

purposes. P.L. 94-587, 

Sec. 202 

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, EPA X 

Energy Policy Act of 

2005, 42 U.S.C. 15801 et 

seq. 

BSEE X 

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 

43
 
 

 

Table 2: NOAA Marine Debris Program-funded Education and Outreach Projects 

Recipient Project Title Funding 

Year 

Federal Funding Total Project Cost State 

Gulf of Maine 

Lobster Foundation 

Derelict Fishing Gear and 

Industry Assessment in the 

Gulf of Maine 

2012 $149,982 $201,232 Maine, 

Massachusetts, New 

Hampshire 

Anchorage Museum GYRE - A Museum Exhibit 

with Debris as Material and 

Message 

2013 $65,000 $436,000 Alaska 

Monterey Bay 

Aquarium 

Ocean Plastic Pollution 

Summit for Teachers 

2013 $52,306 $114,791 California 

Sea Research 

Foundation 

Teen Marine Debris Initiative 2013 $20,714.65 $20,714.65 Connecticut 

Florida Fish and 

Wildlife Conservation 

Commission 

Florida Lobster Fishery 

Research Converted to Public 

Information 

2013 $ 49,443 $99,330 Florida 

University of Georgia Project SORT: Using Marine 

Debris Surveys to Encourage 

Environmental Stewardship 

2013 $63,920 $127,842 Georgia, North 

Carolina, South 

Carolina 

Ocean Conservancy Talking Trash and Taking 

Action Campaign 

2013 $100,000 --­ National 

Oregon State 

University 

Engaging Students in Marine 

Debris Efforts Utilizing a 

Comprehensive, Integrated 

STEAMSS Curriculum 

2013 $56,880 $ 114,526 Oregon 

Rozalia Project for a 

Clean Ocean 

Marine Debris Prevention 

through Education and 

Outreach 

2013 $ 50,000 $150,000 VT, ME, NY, NH, 

MA, RI, CT, PA, VA, 

CA, WA 

44
 
Table 3: NOAA Marine Debris Program-Funded Removal Projects 

Recipient Project Title Funding 

Year 

Federal Funding Total Project Cost State 

Provincetown Center 

for Coastal Studies 

Cape Cod Bay Derelict Gear 

Assessment and Retrieval 

Program 

2012 $ 120,665.00 $ 206,600.00 Massachusetts 

Virginia Institute of 

Marine Science 

Removal of Crab Pots from 

Known Hotspots in Virginia 

2012 $50,000 $100,118 Virginia 

City of Tenakee 

Springs 

Tenakee Springs Debris 

Removal 

2012 $45,000 $94,734 Alaska 

Island Trails Network Tugidak Island Marine 

Debris Removal 

2012 $124,316.14 $256,742.14 Alaska 

San Francisco 

Baykeeper 

Point Molate and Contra 

Costa County Removal 

2012 $52,030 $104,060 California 

University of Florida Debris Removal in Sea Turtle 

and Shorebird Habitat of NW 

Florida 

2012 $113,750 $270,676 Florida 

Broward County, FL Broward County Tire 

Removal 

2012 $250,000 $2,078,434 Florida 

Alliance for the Great 

Lakes 

Belle Isle Marine Debris 

Removal and Prevention 

2012 $53,555 $107,142 Michigan 

Cornell Cooperative 

Extension Association 

Long Island Sound Derelict 

Lobster Gear Assessment, 

Removal and Prevention 

2012 $149,999.73 $308,378.86 New York 

Northwest Straits 

Commission 

Puget Sound Derelict Fishing 

Net Removal 

2012 $249,879.15 $499,862.30 Washington 

Richard Stockton 

College 

Derelict Crab Trap Removal 

in Mullica River/Great Bay 

Estuary 

2012 $114,965 $236,368 New Jersey 

45
 
 

 

 

 

 

Recipient Project Title Funding 

Year 

Federal Funding Total Project Cost State 

Dauphin Island Sea 

Lab 

Derelict Vessels and Habitat 

Impairment in Dog River 

Alabama 

2013 $99,766.25 $201,729 Alabama 

Sitka Sound Science 

Center 

Tsunami debris removal and 

Education in and around 

Sitka, AK 

2013 $120,000 $240,000 Alaska 

Alaska Marine 

Stewardship 

Foundation 

Debris Removal in Bering 

Sea Communities 

2013 $210,000 $420,000 Alaska 

Wiyot Tribe Wiyot Tribe Marine Debris 

Removal Project 

2013 $125,000 $170,778 California 

Coastal Cleanup 

Corporation 

Elliott Key, Florida Sea 

Turtle Nesting Habitat 

Restoration 

2013 $16,953 $43,619 Florida 

Kaho'olawe Island 

Reserve Commission 

Marine Debris Removal on 

Kaho'olawe 

2013 $ 100,529.98 $230,952 Hawaii 

Hawaii Wildlife Fund Hawaii Island Marine Debris 

Removal Project 

2013 $45,000 $101,640 Hawaii 

Hofstra University Debris Removal from the Salt 

Marsh at Lido Beach 

2013 $75,000 $169,138 New York 

North Carolina 

Coastal Federation 

Recycling North Carolina 

Derelict Crab Pots into 

Oyster Reefs 

2013 $35,576 $77,646 North Carolina 

Corp. for the 

Conservation of the 

San Juan Bay Estuary 

Volunteer Marine Debris 

Removal at Condado Lagoon 

2013 $40,000 $80,000 Puerto Rico 

Northwest Straits 

Commission 

Puget Sound Derelict Fishing 

Net Removal 

2013 $99,994.80 $199,991.59 Washington 

46
 
 

Table 4: NOAA Marine Debris Program-Funded Research Projects 

Recipient Project Title Funding 

Year 

Federal Funding Total Project Cost State 

NOAA Gulf of the Shoreline Monitoring in Gulf 2012 $43,723.51 $43,723.51 California 

Farallones National of the Farallones National 

Marine Sanctuary Marine Sanctuary 

NOAA Olympic Shoreline Monitoring in 2012 $53,336 $53,336 Washington 

Coast National Washington State 

Marine Sanctuary 

Virginia Institute of 

Marine Science 

Testing Biodegradable Panels 

and O-rings for Lobster Pots 

2012 $78,872 $157,746 Massachusetts, Maine 

University of Effect of wind-driven mixing 2012 $61,521 $61,521 Washington 

Washington, Joint on plastic debris 

Institute for the Study 

of Atmosphere and 

Ocean 

University of Hawaii, Seasonal Fluctuations in 2012 $33,000 $33,000 Hawaii 

Joint Institute for Northwestern Hawaiian 

Marine and Islands Marine Debris 

Atmospheric Deposition 

Research 

University of Analysis of microplastics in 2012 $30,000 $30,000 Maryland 

Maryland Chesapeake Bay and coastal 

mid-Atlantic water samples 

University of Ecotoxicological effects of 2013 $200,000 $420,000 California, National 

California, Davis microplastics and sorbed 

priority pollutants in aquatic 

foodchains 

Virginia Institute of Influence of Environmental 2013 $173,497 $ 347,657 Virginia 

Marine Science Conditions on Chemical 

Leaching and Sorption to 

Microplastic Debris 

Sea Education Investigating selective 2013 $ 117,751 $238,950 Massachusetts 

Association grazing by copepods on 

microplastic particles 

47
 
48
 
Penny Pritzker
 

United States Secretary of Commerce
 

Dr. Kathryn D. Sullivan
 

Under Secretary of Commerce for Oceans and Atmosphere
 

Dr. Holly A. Bamford
 

Assistant Administrator, National Ocean Service