I

GUAM’S Coral Reef Management Priorities

GUAM

GUAM’S

CORAL REEF MANAGEMENT PRIORITIES
GUAM’S

CORAL REEF MANAGEMENT PRIORITIES

The Territory of Guam and NOAA Coral Reef Conservation Program. 2010.Guam’s Coral Reef Management Priorities. 

Silver Spring, MD: NOAA. 

The NOAA Coral Reef Conservation Program would like to thank all those involved in the process to identify and publish the 

coral reef management priorities for Guam. The commitment, time and effort invested in this process is greatly appreciated. 

These priorities will play an important role in defining NOAA’s partnership with the jurisdiction to work towards coral reef 

conservation. Special thanks to Zhe Liu for graphic design and Lauren Chhay for photo support. 

Cover Photo Credit: Dave Burdick
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GUAM’S Coral Reef Management Priorities

CONTENTS

INTRODUCTION

SECTION ONE: SCOPE, DEVELOPMENT AND PRIORITIZATION PROCESS

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES 

APPENDIX ONE: PRIORITY SETTING PROCESS PARTICIPANTS

APPENDIX TWO: CONTEXT

APPENDIX THREE: PRELIMINARY IDENTIFICATION OF CAPACITY GAPS

BIBLIOGRAPHY OF CORAL REEF MANAGEMENT AND CONSERVATION 

DOCUMENTS FOR GUAM BY AGENCY

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INTRODUCTION

The work presented here is being facilitated 

by the NOAA Coral Reef Conservation 

Program (NOAA CRCP) as part of an ongoing 

effort to develop place-based, local coral reef 

management priorities in each of the seven 

U.S. state and territorial coral reef jurisdictions 

(American Samoa, Commonwealth of the 

Northern Mariana Islands, Florida, Hawai`i, 

Guam, Puerto Rico and the U.S. Virgin Islands) 

and conduct capacity assessments to identify 

the support needed to accomplish those 

priorities. The first step in this effort has 

been to work with the core group of coral 

reef managers (local, place-based) in each 

jurisdiction to articulate a set of strategic 

coral reef management priorities. The 

second, and next, step will be to complete a 

capacity needs assessment that helps each 

state and territory realize these priorities. 

This priority setting process stems from an 

external review of NOAA CRCP conducted 

in 2007 to independently assess how 

effectively the program has met its goals. 

The review included recommendations for 

future improvements. In response to the 

review, NOAA CRCP developed a “Roadmap 

for the Future,” laying out new principles and 

priorities. A key part of this new Roadmap 

includes developing management priorities 

for each and all of the coral reef jurisdictions 

and conducting capacity assessments to 

achieve these priorities. NOAA CRCP is 

providing support to the jurisdictions to 

coordinate with the broader management 

community in each place to determine these 

strategic goals and objectives for each state 

and territory. Priority setting initiatives 

began in 2009 with implementation phased 

in two to three jurisdictions per year. The 

capacity assessments will follow, beginning 

in late 2010. 

The purpose of this Priority Setting document is to articulate a set of 

strategic coral reef management priorities developed in consensus 

by the coral reef managers in Guam. NOAA will use this document in 

conjunction with its NOAA Coral Reef Conservation Program Goals 

& Objectives 2010-2015 (available at www.coralreef.noaa.gov) to 

direct its investment in activities in each jurisdiction through grants, 

cooperative agreements and internal funding. NOAA will also make 

the document available to other potential funders (non-governmental 

organizations [NGOs], federal partners, etc.) and encourage 

leveraging and new or expanded partnerships to build common coral 

reef conservation goals. 
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GUAM’S Coral Reef Management Priorities

Scope, Development and Prioritization 

Process: This section details the 

process by which the priority goals and 

objectives were reached, including the 

preparation for the workshop, work done 

at the workshop and the post-workshop 

refining process.

Strategic Coral Reef Management 

Priorities: This section presents 

the entire framework of goals and 

objectives developed and agreed 

upon by the core group during this 

process. The Priority Goals and 

Objectives are highlighted in this 

section. These are the top priorities 

for management action as agreed 

upon by the core managers group.

Linkages to NOAA’s National 

Goals and Objectives: This section 

describes how the local jurisdiction 

management priorities align with 

NOAA CRCP’s priorities and direction.

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2 3

This Priority Setting document is divided into the following sections: 
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SECTION ONE:

SCOPE, DEVELOPMENT 

AND PRIORITIZATION 

PROCESS

This document captures the final set of 

priorities agreed upon by the core managers 

group at the priority setting workshop. The 

core managers group is defined as the “placebased” coral reef managers who have the 

direct responsibility for managing the coral 

reef ecosystem in a particular geographic 

location. The managers as well as those 

who were asked to participate in the initial 

analysis and review this document are listed 

in Appendix One.

In preparation for the workshop, previously 

identified goals and objectives were taken 

from current management documents and 

presented in the Situation Analysis. The 

Situation Analysis is a preparatory document 

that summarizes: coral reef threats, condition 

and trends; key management issues; and 

key agencies’ management goals ahead 

of meetings and interviews. Its primary 

purpose is to compile and consolidate 

available management documents from 

various management bodies and geographic 

localities. Appendix Two presents a summary 

of the Situation Analysis’ findings.

This Situation Analysis was augmented by a 

series of interviews that captured managers’ 

working perceptions of management goals as 

they are stated in management documents. 

Taken together, along with the current 

version of Guam’s Local Action Strategy (LAS) 

document, this information formed the basis 

for the workshop discussions by offering an 

initial set of goal areas to consider. 

During the interviews with the core coral 

reef managers and management advisors 

in Guam, facilitators identified challenges to 

and current deficiencies in achieving stated 

goals and objectives, noting specific capacity 

gaps that likely will need attention. This 

information will serve as the starting point 

for the capacity assessment, to be completed 

in the following year. It is summarized in 

Appendix Three.

Workshop participants worked from the 

Situation Analysis, interviews and current 

version of Guam’s LAS document to create a 

comprehensive set of goals and objectives for 

five priority areas. These were agreed upon 

by the core group as areas that were most 

important to the successful management and 

conservation of the Guam’s coral reefs. 

They are: 

■ Impacts of Land-Based Sources of 

Pollution

■ Fisheries and Impacts of Fishing
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GUAM’S Coral Reef Management Priorities

■ Impacts of Military Build-Up

■ Impacts of Recreational Use

■ Impacts of Climate Change

These five priority areas are encompassed 

by two larger overarching goals that guide 

coral reef management efforts on Guam. 

The first is the Micronesia Challenge (www.

micronesiachallenge.org). This regional 

commitment to effectively conserve at 

least 30 percent of the near-shore marine 

resources and 20 percent of the terrestrial 

resources across Micronesia by 2020, 

provides a framework to guide resource 

management and conservation in Guam. 

The government of Guam and its coral reef 

managers are committed to achieving the 

goals of the Challenge in Guam. Closely 

related to the Micronesia Challenge is the 

need to increase the resiliency of Guam’s 

reefs and coastal communities in the face of 

climate change, rapid population increase 

and ocean acidification. The theme of reef 

resiliency is an important component of 

reef management on Guam and serves as a 

connection between all five priority areas.

For the purpose of this

exercise, the following 

definitions were used: 

Goals are defined as the highest-level 

result the jurisdiction seeks to achieve (e.g., 

stable, sustainable coral reef ecosystems) in 

the next five to seven years. 

Objectives are defined as the 

environmental, social and institutional 

outcomes the jurisdiction must achieve 

to reach the end goal. Objectives are 

generally actionable within a three- to 

five-year time frame. 

Actions are projects, procedures or 

techniques intended to implement an 

objective. 

During the second day of the priority setting workshop, core managers met in small groups to identify specific actions to 

implement the agreed upon priority goals. Photo Credit: Kathy Chaston, NOAA CRCP
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On the first day of the workshop, small groups 

presented their recommendations to all 

participants for discussion and evaluation. 

Each participant then identified his or her top 

eight priority objectives. During the second 

day of the workshop, participants identified 

specific management actions intended to 

implement those objectives they identified as 

having the highest priority. 

This document presents both the 

comprehensive set of goals and objectives 

as developed by the core group as well as 

the priorities. The priorities are those goals 

and objectives the core group identified 

through the above process as those 

that require immediate attention over 

the short term. These Priority Goals and 

Objectives will guide NOAA CRCP funding 

allocations for management activities. The 

NOAA CRCP understands and respects the 

flexibility required by coral reef managers 

in implementing complex conservation and 

management programs. Should the partners 

seek funding for projects related to offpriority issues (either in the comprehensive 

framework of goals and objectives in this 

document or a new emerging issue not 

reflected in this document) it will need to be 

fully explained why the requested funding 

is most appropriate for the off-priority work 

versus efforts to address the priority Goals 

and Objectives identified through this process. 

The Priority Goals and Objectives are 

highlighted in purple/bold and purple/italic

font, respectively. 

The top five priority GOALS 

identified and ranked by the 

workshop participants are: 

1. Improve the condition of coral reef 

ecosystems by reducing the amount 

of sediment and pollution from 

development, fires, recreational users 

and agriculture in Guam’s watersheds.

2. Protect Guam’s coral reef fisheries 

resources for current and future 

generations through effective 

management that conserves aquatic 

and marine ecosystems and ensures 

the condition, welfare and integrity of 

marine ecosystems.

3. Mitigate the existing and anticipated 

pressures of rapid development on 

Guam’s coral reefs by implementing 

the Guam Natural Resources Strategy 

with a focus on Apra Harbor through 

2012.

4. Improve the condition of Guam’s coral 

reef ecosystems by reducing negative 

recreational impacts.

5. Improve management of Guam’s coral 

reef ecosystems to enhance resilience 

and recovery processes.

Within the context of these goals, several 

objectives call out specific priority locations 

for activities. Objectives highlighted Piti-Asan 

Watershed, Manuell-Geuss Watershed, and 

one other watershed (to be determined), as 

priorities for working toward the reduction of 

land-based sources of pollution. Additional 

objectives related to protection of Guam’s 

fishery resources prioritize activities in the 

existing marine preserves and objectives 

related to mitigation of the military build-up 

focus on Apra Harbor. 

SECTION ONE: SCOPE, DEVELOPMENT AND PRIORITIZATION PROCESS
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GUAM’S Coral Reef Management Priorities

SECTION TWO:

STRATEGIC CORAL 

REEF MANAGEMENT 

PRIORITIES

This section presents the entire framework 

of goals and objectives developed and 

agreed upon by the core group during this 

process. In this section, the Priority Goals 

and Objectives are highlighted in purple/

bold and purple/italic font, respectively. 

These are the top priorities for management 

action as agreed upon by the core 

managers group. These Priority Goals and 

Objectives will guide funding allocations for 

management activities. 

Not all goals or need areas identified through 

this initiative—either through the Situation 

Analysis or the workshop—rose to the level 

of being a priority for all managers or are 

encompassed in the needs of the entire 

jurisdiction. Many of these issues are of 

significant importance to specific geographic 

areas, but may not be relevant to the entire 

territory of Guam.

IMPACTS OF LAND-BASED

SOURCES OF POLLUTION

GOAL 1: Improve the condition of 

coral reef ecosystems by reducing the 

amount of sediment and pollution from 

development, fires, recreational users 

and agriculture in Guam’s watersheds.

Objectives:

1.1 Implement Conservation Action Plans 

(CAPs) for priority watersheds by 2015 

as a model approach to site-based 

planning and management. (The 

Piti CAP includes activities to manage 

land-based sources of pollution and 

recreational impacts to reefs, increase 

awareness of the impacts to reefs 

and fill gaps in knowledge through 

management-related research.)

Key Actions To Achieve this Objective:

a. Develop a prioritized action plan for 

implementation using CAP tables by 

2010 (developed using the Miradi 

tool). 

b. Implement action plan starting with 

projects designated as high priority by 

2011. 
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c. Provide effective enforcement against 

illegal activities.

d. Measure effectiveness of actions on 

annual basis with Coral Reef Working 

Group (CRWG) and use this annual 

assessment to revisit CAP annually and 

revise as necessary. 

e. Identify one additional priority 

watershed, in addition to Manell Geus, 

for CAP that would be completed in 

the next seven years. Incorporate 

experience gained through the 

implementation of the Piti CAP and 

action plan by 2013.

f. Partner with other Guam and federal 

agencies in additional priority 

watersheds to develop management 

plans to minimize sediment runoff.

1.2 Encourage implementation of revised 

Guam Soil Erosion and Sediment 

Control and Stormwater Rules and 

Regulations, Guam Seashore Reserve 

Plan, and updated zoning and building 

codes pending formal approval by 

Guam administration. 

Key Actions To Achieve this Objective:

a. Encourage expedited review and 

approval of the Guam Soil Erosion and 

Sediment Control and Stormwater 

Rules and Regulations (Revisions 

may be delayed by Executive Order) 

starting in 2010.

b. Complete final version of CNMI and 

Guam Stormwater Management 

Manual and the Seashore Reserve Plan 

by 2010 (incorporate the Department 

of Public Works Stormwater 

Manual into the Guam Stormwater 

Management Criteria).

c. Update zoning and building codes 

upon completion and approval of 

the CNMI and Guam Stormwater 

Management Criteria and Seashore 

Reserve Plan by 2011 (assuming 

approval of Guam Erosion Control 

and Stormwater Management 

Regulations). 

d. Design an enforcement strategy for 

the CNMI and Guam Stormwater 

Management Criteria and Seashore 

Reserve Plan by 2012. 

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

Left Image: A reef community near Anae Island, on the southwest coast of Guam, that is heavily impacted by regular sedimentation events. 

Photo Credit: Dave Burdick Right Image: Algae growth shown overgrowing coral may be associated with nutrient-rich runoff in Tumon Bay. 

Photo Credit: Kathy Chaston, NOAA CRCP
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GUAM’S Coral Reef Management Priorities

e. Design a strategy for assessing the 

effectiveness of the implementation of 

the Stormwater Management Criteria 

and Seashore Reserve Plan by 2013.

1.3 Educate target stakeholder groups 

about the sedimentation issues 

associated with specific watershed uses 

and activities.

Key Actions To Achieve this Objective:

a. Define target stakeholder groups.

b. Target education and outreach efforts 

in priority watersheds identified in 

Objective 1.1. 

c. Engage community before developing 

and implementing specific regulations 

by 2010.

d. Engage social marketing expert to 

develop targeted outreach campaign 

for these watersheds by 2011. Expert 

should consider RARE-type campaign 

in addressing arson issues. (RARE is 

an organization whose mission is 

to conserve imperiled species and 

ecosystems by inspiring people to care 

about and protect nature.) The expert 

should also incorporate findings from 

appropriate studies into outreach 

messages.

e. Partner with NGOs or similar 

organizations to implement targeted 

outreach campaigns once developed 

and approved by CRWG by 2012. 

f. Create public information officer 

position. This position is needed 

to promote a range of coastal 

management and coral management 

initiatives, including this outreach 

campaign by 2010.

Scoping conducted to identify stormwater retrofit opportunities; stormwater management is a tool in managing runoff. 

Photo Credit: Kathy Chaston, NOAA CRCP
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FISHERIES AND IMPACTS OF 

FISHING

GOAL 2: Protect Guam’s coral reef 

fisheries resources for current and 

future generations through effective 

management that conserves aquatic 

and marine ecosystems and ensures 

the condition, welfare and integrity of 

marine ecosystems.

Objectives:

2.1 Increase management-related 

monitoring and research of coral reef 

fisheries to determine the status of 

target reef fishery stocks, levels of effort 

that are sustainable, habitat impacts 

and management effectiveness.

Key Actions To Achieve this Objective:

a. Synthesize existing fisheries data 

from monitoring and research 

projects, including but not limited to 

the Division of Aquatic and Wildlife 

Resources (DAWR) creel surveys, 

to establish a baseline dataset for 

Guam that describes current resource 

status. This dataset will be used to 

support and improve enforcement 

and management actions. Collect 

this information in a common and 

accessible database that allows 

resource managers to store and share 

data by 2013.

b. Develop uniform monitoring 

protocols so trends in the resource 

can be consistently measured 

between sites and over time by 2011. 

Train agency staff and partners in 

uniform monitoring techniques. 

Provide resources to analyze data and 

report results to reef management 

community, fishermen and legislature.

c. Identify priority-monitoring sites, 

including key fisheries spawning 

aggregations and nursery areas. 

Conduct monitoring inside and 

outside of marine preserves. Provide 

the necessary resources to hire and 

train marine protected area (MPA) 

guides to assist with site-specific 

monitoring using uniform protocols 

by 2012.

d. Conduct research aimed at 

understanding connectivity across 

the archipelago, between existing 

marine preserves on Guam and 

between preserves and non-preserve 

areas. Research activities may involve 

adult and larval fish tagging/tracking, 

meso- and fine-scale ocean current 

characterization and related research 

endeavors.

e. Develop connectivity models at 

regional, local and site-specific scales 

based on data obtained through 

targeted research activities.

f. Implement major objectives in 

the National Marine Fisheries 

Service (NMFS) Habitat Assessment 

Improvement Plan, which are relevant 

to Guam’s coral reefs, such as conduct 

improved habitat assessments to: 

refine/narrow definitions of Essential 

Fish Habitat (EFH) and Habitat of 

Particular Concern; prioritize habitat 

protection, restoration, and mitigation; 

improve accuracy of EFH consultations 

regarding proposed (fishing or 

non-fishing) impacts; improve 

quantification of habitat value/loss 

and mitigation recommendations; 

and, improve integrated ecosystem 

assessments (ecosystem-based fishery 

management).

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES
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GUAM’S Coral Reef Management Priorities

2.2 Create community management 

programs that increase public 

knowledge of, support for, and 

participation in marine preserves and 

science-based management. 

Key Actions To Achieve this Objective: 

a. Initiate Limits of Acceptable Change 

analysis in Piti and Tumon (started 

in September 2009, will feed into 

community watch).

b. Starting with existing MPA and 

priority watersheds, identify potential 

communities to pilot a community 

management program by 2012. 

c. Seek additional staff to facilitate 

development of community 

management programs, including 

a fisheries extension officer, public 

information officer and outreach 

specialist, by 2012.

d. Work with community to develop and 

implement management programs, 

such as the community watch 

program, by 2012. 

2.3 Increase socioeconomic monitoring 

and research to better understand the 

interactions of users with the resources. 

Key actions To Achieve this Objective:

a. Assess fishing techniques to 

determine the impacts, number of 

users and cultural importance of the 

methods.

b. Increase creel survey analysis to assess 

the socioeconomic characteristics of 

fishermen and their effort and success 

at recreational and commercial fishing.

2.4 Support, enhance and improve the 

regulations of resource use activities 

that impair fisheries or fish habitat.

Key Actions To Achieve this Objective:

a. Increase enforcement capacity 

of regulatory agencies, including 

augmenting salaries of enforcement 

personnel and providing needed 

equipment and supplies, by 2011.

Marine preserves like Piti Bomb Holes Marine Preserve are proven fishery management tools that increase the size of reef fish 

within and surrounding their borders. Photo Credit: Dave Burdick
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b. Establish a Conservation Officer 

Reserve Program by 2011. The 

framework for the program was 

recently established under Guam 

Public Law 28–30 and will allow 

DAWR to offer a stipend to parttime “reservists” and increase DAWR 

enforcement capacity. The program 

has not yet been implemented. 

c. Examine fish life history data to 

consider species-specific regulations.

2.5 Improve educational programs to 

enhance understanding of fisheries 

status and management needs.

2.6 Develop partnerships with federal 

resource managers to facilitate 

effective management of aquatic 

resources in federally controlled areas 

(e.g., National Park Service).

Key Actions to Achieve this Objective :

a. Meet with federal resource managers 

to discuss opportunities for 

collaboration (e.g., Guam government 

staff could assist with biological 

monitoring). 

b. When appropriate, develop a 

memorandum of agreement among 

management agencies to identify 

purpose, respective roles and 

authorities. 

2.7 Develop management strategies to 

address indigenous fishing rights as 

ordered by Public Law 29–127. 

Key Actions To Achieve this Objective:

a. Review data related to cultural and 

historical fishing methods, areas and 

socioeconomics.

b. Work with fishing community and 

other stakeholder groups to develop 

viable alternatives to address Public 

Law 29–127. 

c. Develop and implement regulations 

under Public Law 29–127.

d. Monitor socioeconomic, cultural and 

biological impacts of regulations.

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

Healthy coral reefs provide important habitat for reef fish. Photo Credit: Dave Burdick
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GUAM’S Coral Reef Management Priorities

IMPACTS OF MILITARY BUILD-UP

GOAL 3: Mitigate the existing and 

anticipated pressures of rapid 

development on Guam’s coral reefs 

by implementing the Guam Natural 

Resources Strategy with a focus on 

Apra Harbor through 2012.

Objectives:

3.1 Adopt and implement Compensatory 

Mitigation Policy by summer 2010. The 

policy shall address all aspects of an 

effective multi-agency approach to 

mitigation and will be compatible with 

existing federal policies while addressing 

Guam’s unique resource-management 

challenges.

Key Actions To Achieve this Objective:

a. Ensure that each relevant Guam permit 

agency has designed a standard 

review process for ensuring that 

permit applications comply with the 

Compensatory Mitigation Policy by 

July 2010.

b. Ensure that permit applicants submit 

mitigation plans that comply with the 

Compensatory Mitigation Policy by 

November 2010.

c. Ensure that each Guam permit agency 

has a standard process for ensuring 

effective technical review of the 

mitigation plans submitted by March 

2011.

3.2 Develop and implement 

comprehensive monitoring of water 

quality and coral reef ecosystem 

parameters within watersheds targeted 

for watershed restoration, with a 

focus on evaluating the effectiveness 

of watershed restoration efforts 

implemented as compensatory 

mitigation for impacts to coral reef 

resources. 

3.3 Implement the goals and conservation 

actions listed in Chapters 6–17 of the 

Guam Natural Resources Strategy. The 

content of each chapter is described 

below. 

■ Chapter 6, Species of Greatest 

Conservation Need, addresses 

biodiversity in the context of species of 

greatest conservation need, including 

terrestrial and inland aquatic resources, 

marine mammal protection and coral 

reef protection, as outlined by the 

Department of Agriculture.

■ Chapter 7, Invasive Species, discusses 

the management context, community 

interest and goals and conservation 

actions surrounding invasive species 

management.

■ Chapter 8, Marine Preserves, discusses 

the management context, community 

interest and goals and conservation 

actions surrounding marine preserve 

management.

■ Chapter 9, Impact Mitigation, outlines 

the management context, community 

interest and goals and objectives 

surrounding impact mitigation.

■ Chapter 10, Monitoring Protocols, 

provides the management context, 

community interest and goals and 

objectives to implement monitoring 

protocols.

■ Chapter 11, Agency Capacity, provides 

the management context, community 

interest and goals and actions to 

address agency capacity issues.

■ Chapter 12, Historic Preservation, 

provides the management context, 

community interest and goals and 

preservation actions surrounding 

historic preservation management.

■ Chapter 13, Wetlands and Watersheds, 

provides the management context, 

community interest and goals and 
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conservation actions surrounding 

wetlands and watershed 

management.

■ Chapter 14, Legal Framework, 

describes legal issues and concerns 

surrounding natural resource 

management, policy issues and 

agency coordination, and presents 

goals and action plans to address the 

legal framework challenges.

■ Chapter 15, Department of Defense, 

summarizes integrated and cultural 

resource management plans 

developed by the U.S. Navy and U.S. 

Air Force.

■ Chapter 16, Guam National Wildlife 

Refuge (GNWR), describes the creation 

and management of the GNWR and 

the Comprehensive Conservation Plan 

being developed for the refuge.

■ Chapter 17, Financing Natural 

Resource Management, presents 

strategies for funding natural resource 

management activities.

IMPACTS OF RECREATIONAL USE

GOAL 4: Improve the condition of 

Guam’s coral reef ecosystems by 

reducing negative recreational impacts.

Objectives:

4.1 Adopt, implement and enforce existing 

recreational plans and programs 

including the Seashore Reserve, 

Recreation Water Use Management 

Plan, CAPs and the Marine Preserve EcoPermit and enact new regulations for 

recreational use by 2015.

Key Actions To Achieve this Objective

a. Review existing plans and programs 

and synthesize existing and proposed 

rules and regulations and identify 

critical gaps by 2011.

b. Based on these gaps, work with 

attorney to draft additional rules 

and regulations for recreational use 

of reefs by 2013. (Examples include 

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

Development activities are increasing in anticipation of the military build-up in Guam. It is important that proper mitigation planning is 

set in place when impacts to coral ecosystems can not be avoided. Photo Credit: Kathy Chaston, NOAA CRCP
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GUAM’S Coral Reef Management Priorities

zoning to define areas for specific 

recreational uses, limiting the number 

of boats at dive sites, etc.)

c. Present rationale for regulations to 

chamber of commerce, Guam Visitors 

Bureau (GVB), etc., for new and existing 

regulations to build a common 

understanding and constituency for 

implementation by 2012. 

d. Develop community education and 

outreach programs to inform users of 

existing and new regulations, plans and 

programs. 

e. Collaborate with other outreach 

activities where possible, especially 

those in CAP watersheds. Link to 

proposal for a public information officer 

to coordinate all outreach programs by 

2012. 

f. Increase capacity of regulatory agencies 

to effectively enforce existing plans, 

programs and new regulations.

4.2 Expand education efforts tailored to 

specific resource user groups, including 

unlicensed dive operators (certification 

course, yearly report out).

4.3 Build partnerships with GVB, Guam 

Hotel and Restaurant Association, the 

Tourism Education Council, marinebased tour operators and chamber 

of commerce to educate visitors 

and residents about how to reduce 

recreational threats to coral reefs.

4.4 Examine sustainable finance mechanism 

to support the management and 

protection of resources. Examples 

include visitor fees, endowments, in-lieu 

fees, etc. 

A snorkeling guide observes his clients while standing atop coral colonies in the Tumon Bay Marine Preseve, causing damage to the 

delicate corals. Education about recreational impacts and enactment and enforcement of regulations for recreational use should reduce 

negative impacts from recreational use. Photo Credit: Dave Burdick
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IMPACTS OF CLIMATE CHANGE

GOAL 5: Improve management of 

Guam’s coral reef ecosystems to 

enhance resilience and recovery 

processes.

Objectives:

5.1 Establish and prepare response teams 

to address bleaching events, disease 

and predator outbreaks and other acute 

events (e.g., ship groundings, chemical 

spills).

Key Actions To Achieve this Objective:

a. Finalize response plans for bleaching 

events, disease and predator 

outbreaks, and other acute events 

(e.g., ship groundings, chemical/

oil spills) and develop toolkits for 

response.

b. Develop and implement regulations 

to facilitate improved response to 

anthropogenic acute events (e.g., 

ship groundings, chemical/oil spills), 

including natural resource damage 

assessment, fines and compensatory 

mitigation, by 2012.

c. Facilitate annual training to improve 

response-team skills.

d. Develop and test approaches for 

mitigation and rehabilitation after 

impacts.

5.2 Address the issue of human 

community resilience to climate 

change, in the presence of coral 

reef loss and degradation. (Resilient 

communities are capable of bouncing 

back from adverse situations. They 

can do this by actively influencing and 

preparing for economic, social and 

environmental change.)

Key Actions To Achieve this Objective:

a. Evaluate the social, economic 

and political impacts of increased 

frequency of reef impacts, particularly 

bleaching/disease events. 

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

Bleached coral in the shallow waters of the Tumon Bay Marine Preserve. Photo Credit: Dave Burdick
17

GUAM’S Coral Reef Management Priorities

b. Incorporate adaptation strategies 

developed by other islands and 

jurisdictions into the climate change 

LAS, as appropriate.

5.3 Investigate connectivity at sitespecific, local, archipelagic, and 

regional scales for multiple taxa 

(corals, fish, other inverts, algae) and 

develop management strategies (such 

as marine protected area siting and 

prioritizing land management) to 

increase reef resiliency. 

Key Actions To Achieve this Objective:

a. Develop connectivity models at 

site-specific, local, archipelagic 

and regional scales based on data 

obtained through targeted research 

activities, including current modeling, 

tagging/tracking and genetic analysis.

b. Use models to identify sources and 

sinks for key species of various taxa 

and conduct targeted research 

to investigate the validity of the 

models. Use the data to refine 

reef management strategies to 

maximize resilience (e.g., MPA 

siting, prioritization of land-based 

management activities, etc.).

5.4 Increase understanding of the causes 

of coral bleaching and diseaseassociated mortality on Guam and 

investigate approaches to stimulate 

recovery and rehabilitation. 

Key Actions To Achieve this Objective:

a. Increase understanding of the causes, 

spread and impacts of the six known 

diseases affecting Guam’s reefs and 

identify three main environmental 

drivers of bleaching and disease in 

Guam. 

b. Develop and test approaches for 

rehabilitation of key reef areas.

Healthy coral in the shallow waters of Guam. Photo Credit: Dave Burdick
18

5.5 Quantify the extent of nuisance and 

invasive species affecting Guam’s reefs 

and investigate and test management 

approaches.

Key Actions To Achieve this Objective:

a. Provide input to and implement the 

marine portion of the Micronesia 

Biosecurity Plan.

b. Collect baseline data on invasive 

species presence and impacts 

in Guam’s near-shore habitats, 

particularly Apra Harbor by 2012. 

Continue evaluation at regular 

intervals.

5.6 Establish current baselines and 

investigate consequences of climate 

change, such as ocean acidification 

and sea level rise in coral reef 

ecosystems of the Western Pacific.

SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

Resilient coral ecosystems are better able to recover from adverse impacts; Guam’s objectives include addressing ecosystem resilience. 

Photo Credit: Dave Burdick
19

GUAM’S Coral Reef Management Priorities

SECTION THREE:

LINKAGES TO 

NOAA’S NATIONAL 

GOALS AND 

OBJECTIVES 

Table 1 shows how Guam’s Priority Goals and Objectives correlate to the NOAA CRCP 

National Goals and Objectives for coral reef conservation. Table 1 was developed after the 

Guam Coral reef management priority setting process was complete to explicitly identify 

potential partnerships between the managers in Guam and NOAA CRCP. Addressing both 

local jurisdictional priorities and national goals and objectives will increase efficiency and 

leveraging of the resources available for coral reef conservation. NOAA CRCP will use this 

table to inform future investments in coral reef conservation in Guam. 
20

Guam’s Priority Goals and 

Objectives

NOAA’s National Goals and 

Objectives for Coral Reef 

Conservation

Explanation of Correlation

(as needed)

GOAL 1: IMPROVE THE CONDITION OF CORAL REEF ECOSYSTEMS BY REDUCING THE AMOUNT OF SEDIMENT AND POLLUTION 

FROM DEVELOPMENT, FIRES, RECREATIONAL USERS AND AGRICULTURE IN GUAM’S WATERSHEDS.

OBJECTIVE 1.1: Implement CAPs for 

priority watersheds by 2015 as a model 

approach to site-based planning and 

management. (The Piti CAP includes 

activities to manage land-based sources 

of pollution and recreational impacts to 

reefs, increase awareness of the impacts 

to reefs and fill gaps in knowledge 

through management-related research.)

Land-Based Sources of Pollution (LBSP) 

Impacts Objective 1.3: Implement 

watershed management plans and 

relevant LAS within priority coral reef 

ecosystems and associated watersheds 

to improve water quality and enhance 

coral reef ecosystem resilience. Where 

needed, develop (or update) watershed 

management plans that incorporate coral 

reef protection measures.

CAPs are site-based plans that address 

watershed management and other 

issues and identify specific actions at the 

local level to reduce threats to resources. 

OBJECTIVE 1.2: Encourage 

implementation of revised Guam Soil 

Erosion and Sediment Control and 

Stormwater Rules and Regulations, Guam 

Seashore Reserve Plan and updated 

zoning and building codes pending 

formal approval by Guam administration.

LBSP Impacts Objective 3.4: Ensure that 

the necessary and consistent regulatory 

and programmatic framework exists and 

is enforced to implement watershed 

management strategies necessary to 

protect coral ecosystems.

In Guam, the plans, rules and regulations 

identified in the objective make up the 

regulatory and programmatic framework 

for addressing land-based sources of 

pollution. 

OBJECTIVE 1.3: Educate target stakeholder 

groups about the sedimentation issues 

associated with specific watershed uses 

and activities.

LBSP Impacts Objective 3.5: Increase public 

and political awareness and understanding 

of the ecological and socioeconomic 

impacts of land-based sources of pollution 

on coral reef resources to promote better 

stewardship and informed decisions 

regarding activities in watersheds that may 

adversely impact coral reef ecosystems.

No explanation needed.

SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES 

Table 1
21

GUAM’S Coral Reef Management Priorities

Guam’s Priority Goals and 

Objectives

NOAA’s National Goals and Objectives for 

Coral Reef Conservation

Explanation of 

Correlation

(as needed)

GOAL 2: PROTECT GUAM’S CORAL REEF FISHERIES RESOURCES FOR CURRENT AND FUTURE GENERATIONS THROUGH EFFECTIVE 

MANAGEMENT THAT CONSERVES AQUATIC AND MARINE ECOSYSTEMS AND ENSURES THE CONDITION, WELFARE AND INTEGRITY OF 

MARINE ECOSYSTEMS.

OBJECTIVE 2.1: Increase 

management-related monitoring 

and research of coral reef fisheries to 

determine the status of target reef 

fishery stocks, levels of effort that 

are sustainable, habitat impacts and 

management effectiveness.

Fishing Impacts Objective 1.3: Obtain essential life history 

and ecological information on key species or functional 

groups to support management actions. 

Fishing Impacts Objective 1.4: Obtain necessary 

information on fishing effort in U.S. coral reef ecosystems 

by measuring fishing intensity, fishing mortality, 

frequency, area coverage, community dependence, etc., to 

inform management activities.

Fishing Impacts Objective 1.5: Predict appropriate levels 

of extraction for key species or groups by developing and 

utilizing valid, precise, place-based and realistic ecosystem 

dynamics models.

Fishing Impacts Objective 1.6: Conduct applied biological, 

social and economic research and monitoring to evaluate 

effectiveness of coral reef ecosystem management actions 

on key species or groups. 

Guam’s objective identifies 

the need for more information 

on fishery status, which is 

addressed in the National Fishing 

Impacts Objectives 1.3 and 1.4. 

The objective also identifies 

the need for information on 

levels of fishing effort that are 

sustainable, which correlates 

to National Fishing Impact 

Objective 1.5. And finally, the 

Guam objective identifies the 

need for understanding efficacy 

of management actions, which 

is called out in Fishing Impacts 

Objective 1.6.

OBJECTIVE 2.2: Create community 

management programs that increase 

public knowledge of, support for, and 

participation in marine preserves and 

science-based management. 

Fishing Impacts Objective 2.4: Work with relevant 

agencies, offices and communities to create, implement 

and improve the management of MPAs that protect key 

coral reef ecosystem components and functions.

Fishing Impact Objective 3.1: Increase participation of 

stakeholder or citizen groups in fisheries management 

planning, decision-making and monitoring activities that 

improve conservation of coral reef ecosystems. 

Fishing Impact Objective 4.3: Develop targeted, locallyrelevant outreach and communication strategies to 

increase community understanding and support for 

regulations to protect key coral reef ecosystem species/

functional groups and expanded use of marine protected 

areas.

Each of the national objectives 

identify better engagement of 

communities to support MPAs 

or fisheries management, which 

correlates with Guam’s objective.

Table 1 continued
22

Guam’s Priority Goals and 

Objectives

NOAA’s National Goals and 

Objectives for Coral Reef 

Conservation

Explanation of 

Correlation (as needed)

OBJECTIVE 2.3: Increase socioeconomic 

monitoring and research to better 

understand the interactions of users 

with the resources. 

Fishing Impacts Objective 1.4: Obtain necessary 

information on fishing effort in U.S. coral reef 

ecosystems by measuring fishing intensity, fishing 

mortality, frequency, area coverage, community 

dependence, etc., to inform management 

activities.

Fishing Impacts Objective 2.5: Conduct biological 

and socioeconomic research and monitoring to 

assess the performance of MPAs with respect 

to protection and restoration of key coral reef 

ecosystem components and functions.

Fishing Impacts Objective 3.4: Conduct biological 

and socioeconomic research and monitoring 

necessary to assess the effectiveness of compliance 

and enforcement activities, understand community 

concerns, flag roadblocks to implementation and 

incorporate into management efforts.

National Fishing Objective 1.4 

identifies the need to obtain 

information on community 

dependence to inform 

management activities, which 

correlates to Guam’s intent to 

better understand the interaction 

between users and fisheries 

resources. 

National Fishing Objective 

2.5 identifies the need for 

socioeconomic research to 

assess MPA performance, which 

correlates to Guam’s objective to 

the extent that users’ perceptions 

of effectiveness or the social and 

economic factors that influence 

MPA effectiveness is investigated. 

National Fishing Objective 

3.4 identifies the need for 

socioeconomic research and 

monitoring to understand 

community concerns and assess 

compliance effectiveness, which 

corresponds to Guam’s intent to 

better understand the interactions 

of users with the resources.

OBJECTIVE 2.4: Support, enhance and 

improve the regulations of resource 

use activities that impair fisheries or 

fish habitat.

Fishing Impacts Objective 3.2: Strengthen local 

agency and community capacity for effective and 

consistent enforcement of regulations or behaviors 

that reduce impacts of fishing on coral reef 

ecosystems. 

No explanation needed.

GOAL 3: MITIGATE THE EXISTING AND ANTICIPATED PRESSURES OF RAPID DEVELOPMENT ON GUAM’S CORAL REEFS BY 

IMPLEMENTING THE GUAM NATURAL RESOURCES STRATEGY WITH A FOCUS ON APRA HARBOR THROUGH 2012.

OBJECTIVE 3.1: Adopt and implement 

Compensatory Mitigation Policy 

by summer 2010. The policy shall 

address all aspects of an effective 

multi-agency approach to mitigation 

and will be compatible with existing 

federal policies while addressing 

Guam’s unique resource-management 

challenges.

None

SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES 

Table 1 continued
23

GUAM’S Coral Reef Management Priorities

Guam’s Priority Goals and 

Objectives

NOAA’s National Goals and 

Objectives for Coral Reef 

Conservation

Explanation of 

Correlation (as needed)

GOAL 4: IMPROVE THE CONDITION OF CORAL REEF ECOSYSTEMS BY REDUCING NEGATIVE RECREATIONAL IMPACTS.

OBJECTIVE 4.1: Adopt, implement 

and enforce existing recreational 

plans and programs including the 

Seashore Reserve, Recreation Water Use 

Management Plan, CAPs and the Marine 

Preserve Eco-Permit and enact new 

regulations for recreational use by 2015.

None

GOAL 5: IMPROVE MANAGEMENT OF GUAM’S CORAL REEF ECOSYSTEMS TO ENHANCE RESILIENCE AND RECOVERY PROCESSES.

OBJECTIVE 5.1: Establish and prepare 

response teams to address bleaching 

events, disease and predator outbreaks 

and other acute events (e.g., ship 

groundings, chemical spills).

Climate Impacts Objective 1.3: Develop and 

implement climate-related crisis response plans 

in all U.S. coral reef jurisdictions to provide a 

framework for early warning, communication, 

monitoring, research and management response 

to protect coral reef ecosystems from acute 

events such as coral bleaching, infectious disease 

outbreaks, tropical storm impacts and major 

rainfall events. 

The framework provided in the 

development of climate-related 

crisis response plans can also 

be used to address other acute 

events, such as ship groundings 

and chemical spills as identified by 

Guam. 

Table 1 continued
24

APPENDIX ONE: 

PRIORITY SETTING PROCESS 

PARTICIPANTS

Core Group: place-based managers of specific 

coral reef areas.

Each member of this group was invited to attend 

the workshop, to partake in an interview prior 

to the workshop and to participate in document 

revisions. 

Vangie Lujan, Bureau of Statistics and Plans, 

Guam Coastal Management Program 

(GCMP)

Dave Burdick, GCMP

Esther Taitague, GCMP

Victor Torres, GCMP

Jay Gutierrez, Department of Agriculture 

DAWR (could not attend the workshop)

Brent Tibbatts, DAWR—in lieu of Jay 

Gutierrez

Tino Aguon, DAWR

Jeffrey Quitugua, DAWR

Val Brown, NOAA, NMFS, at DAWR

Jesse Cruz, Guam Environmental Protection 

Agency (GEPA) (could not attend 

the workshop but attended the second 

meeting) 

Trina Leberer, The Nature Conservancy

Mark Capone, National Park Service

Advisors: managers of jurisdictions and 

populations impacting Guam’s coral reefs.

Each member of this group was invited to 

interview prior to the workshop and to participate 

in document revisions.

Mike Gawel, GEPA

Peggy Denney, Guam Environmental 

Education Partners Incorporated

Justin K. Santos, Department of Agriculture–

Forestry

Joseph Torres, Deptartment of Agriculture 

and WPRFMC, Member

Charles Sayon, Department of Defense

Randel Sablan, Joint Guam Program Office

Science Advisors: members of the scientific 

community with expertise in various aspects of 

coral reef ecosystems.

Each member of this group was invited to review 

documents and to offer revisions.

Laurie Raymundo, University of Guam (UOG)

Tom Schils, UOG

Peter Schupp, UOG

Bob Richmond, University of Hawai`i

Bob Schroeder, NOAA, Pacific Islands 

Regional Office

Arielle Levine, NOAA, Pacific Islands Fisheries 

Science Center (PISFC)

Oliver Vetter, NOAA, PIFSC, Coral Reef 

Ecosystem Division (CRED)

Rusty Brainard, NOAA, PIFSC, CRED

Joyce Miller, NOAA, PIFSC, CRED

Benjamin Richards, NOAA, PIFSC, CRED

Bernardo Vargas-Angel, NOAA, PIFSC, CRED

Dwayne Minton, U.S. Fish and Wildlife Service 
25

GUAM’S Coral Reef Management Priorities

APPENDIX TWO: 

CONTEXT

The Situation Analysis is a preparatory document 

that summarizes coral reef threats, condition 

and trends; key management issues; and key 

agencies’ management goals. As an initial 

step in the priority setting process, it was used 

ahead of meetings and interviews to provide a 

reference point and boundary for priority setting 

discussions with place-based coral reef managers 

in Guam. The documents that make up the basis 

of this analysis were identified during interviews 

with place-based coral reef managers in Guam 

and via a desk review of existing management 

plans from those agencies that are responsible 

for or affect Guam’s coral management. The 

coral reef managers interviewed for this study 

were identified by the NOAA CRCP team with 

input from the NOAA CRCP point of contact in 

Guam and included NOAA CRCP, NOAA National 

Marine Fisheries Service (NMFS), NOAA–NMFS/

Western Pacific Regional Fishery Management 

Council, Bureau of Statistics and Plans Coastal 

Management Program, Guam Department of 

Agriculture/Division of Aquatic and Wildlife 

Resources, Guam Department of Agriculture/

Division of Forestry and Soil Resources, The 

Nature Conservancy, Guam Environmental 

Protection Agency, National Park Service, Guam 

Environmental Education Partners, Inc. and 

Department of Defense. 

The Situation Analysis identified the following 

issue areas—which reflect both specific threats 

as well as tools to mitigate threats—as those 

that were most commonly referred to in the 

documents reviewed. These results are listed in 

no particular order.

Regulation and Enforcement refers to enforcing 

regulations already in place as well as updating 

regulations to reflect current needs and stresses. 

This includes permitting, reviewing construction 

plans and fishery regulation. As the ecosystem 

evolves due to changing uses and increased 

anthropogenic stresses as well as the effects of 

global climate change, regulations must evolve to 

meet the needs. As such, research and monitoring 

are often linked to updating regulations. In 

addition, this issue often coincides with significant 

education and outreach goals, as having public 

input to regulations and dispersing information 

on regulations is the first step toward user-group 

compliance. 

Construction and Human Impacts refers both to 

development meant to improve environmental 

quality as well as efforts to mitigate human 

impacts due to construction and commercial 

development. This includes stormwater and 

waste-water management, efforts to mitigate and 

control non-point source pollution and dredging 

and other coastal development activities. A 

major developer in Guam is the U.S. Department 

of Defense, which is planning to expand the 

base, including the harbor usage. This issue area 

also includes the impacts of recreational reef 

use (fishing, diving, boating, etc.) as well as the 

expansion and maintenance of trail networks and 

park facilities. 

Education and Outreach goals cut across all areas 

of management and conservation. Because of its 

geography, the culture and economy of the island 

are irrevocably intertwined with the condition of 

the coral reef ecosystem. The reefs are a tourism 

draw and a fishery, and they protect the island from 

the full impact of strong storm systems. The status 

of the ecosystem is dependant upon sustainable 

users. Education and outreach programs are vital 

to public and visitor understanding of human 

impact and sustainable use. 
26

Research and Maintaining Natural Habitats

includes research and monitoring in high impact 

areas, such as popular snorkel/dive sites and 

highly developed coastlines. Research and habitat 

maintenance goals also include designating 

and enforcing no-motor and no-take areas. 

Maintaining natural habitats refers to MPAs, as 

well as fish stocks, beaches and other areas for the 

purpose of tourism.

Based on the literature reviewed in this document, 

other important goals for coral reef management 

in Guam relate to the following: 

Fishing is an economic keystone for Guam. 

Fishing is both a commercial and personal 

livelihood for residents as well as a recreational 

activity for visitors and locals alike. This issue area 

includes goals related to commercial fish stock 

management and gear regulation, protection of 

designated species, permitting and enforcement 

of regulations, and water quality and pollution.

Water Quality includes monitoring and data 

collection from a number of sites for bacteria and 

nutrient levels as well as turbidity, sedimentation 

reduction and management to control pollution 

through permits and water quality standards. This 

issue area overlaps significantly with land-based 

sources of pollution because major contributors 

to poor and declining water quality are point 

and non-point sources of pollution. In addition, 

water quality issues overlap with goals pertaining 

to research and natural habitats, particularly in 

reference to monitoring.

Land-Based Sources of Pollution pertains to 

actions that degrade water quality or have a direct 

impact on reef condition. Most common LBSP 

are stormwater, waste water and sediment from 

erosion and runoff from construction, urban/

commercial areas, wild-lands off-roading and 

grasslands arson. 

Zoning and Mooring refers to the need to 

designate specific areas for specific activities and 

includes recommendations for general calls for 

area-wide zoning schemes, such as a mix of MPAs, 

anchoring/no-anchoring areas, multi-use areas, 

no-take marine reserves, etc.

A reefscape in the waters offshore of southwestern Guam demonstrates some of the biodiversity found in this region. 

Photo Credit: Dave Burdick

APPENDIX TWO: CONTEXT
27

GUAM’S Coral Reef Management Priorities

APPENDIX THREE: 

PRELIMINARY IDENTIFICATION 

OF CAPACITY GAPS

During the interviews with coral reef managers 

in Guam, facilitators worked to understand the 

working relationship between managers and 

management documents. Facilitators noted and 

identified challenges to and current deficiencies 

in achieving stated goals and objectives, noting 

specific capacity gaps that likely will need attention.

Using a tool developed by the Coastal Resources 

Center at the University of Rhode Island for 

comparative assessments of coastal ecosystem 

governance, a capacity and governance baseline 

was established from data collected during the preworkshop interviews. This approach involves three 

categories, phrased as key statements, for enabling 

conditions that allow an initiative to successfully 

execute a sustained plan of action designed to 

influence the course of events in an ecosystem.

The three categories are constituencies, 

commitment and capacity. This baseline will also 

identify the immediate capacity gaps that are 

directly related to implementing this strategic 

approach. These gaps will be explored further and 

a capacity assessment will be developed in phase II 

of this effort, beginning in fiscal year 2010.

Constituencies

Premise: 

To achieve success, a core of well-informed and 

supportive constituencies comprised of stakeholders 

in both the private sector and government agencies 

must actively support the program.

Measures: 

1. The user groups who are affected by your 

program understand and support the 

goals, strategies and targets.

2. There is public support for your program.

3. The institutions that assist in 

implementing your program, or the 

institutions that are affected by the plan, 

understand and support it.

Results:

The goals of the GCMP are strongly supported 

by key resource managers in the GEPA, the 

Department of Agriculture and several prominent 

nongovernmental organizations, including The 

Nature Conservancy. These resource managers 

understand the need for strengthened controls 

over land-based sources of pollution, including 

runoff from construction activities, burning of fields 

as part of hunting activities and the increasing 

land disturbance caused by off-road vehicles. 

All are also in agreement about the potential 

impacts of the military build-up and the need for 

careful analysis and mitigation. GCMP staff are 

working closely with the consultants preparing the 

Environmental Impact Statement governing buildup activities. Beyond the initial circle of resource 

managers, the support of resource users is more 

mixed. Some dive shops and other commercial 

recreational users understand and actively 

support minimizing the impacts of snorkeling, 

diving, anchoring and the like. On the other hand, 

some small, primarily foreign-owned recreation 

operations are less familiar with the goals of marine 

preserve management and how easily corals can 

be damaged. Among fishers, support is also mixed. 

A small, but vocal, group of fishers and their 

supporters are seeking to increase access to marine 

preserves on the part of a few users.
28

COMMITMENT

Premise: 

To achieve success, it is necessary that 

the delegated authorities have expressed 

commitment to the policies of a program and to 

the allocation of financial resources required for 

long-term program implementation.

Measures: 

1. The appropriate level of government has 

formally approved the plan of action.

2. The government provided the program 

with the authorities it needs to 

successfully implement its plan of action.

3. Sufficient financial resources have been 

committed to fully implement the 

program over the long-term.

Results: 

One of the principal components of coastal 

resource management in Guam is the system 

of five marine preserves. There is strong 

commitment to the reserves on the part of key 

resource managers, but less support among 

some fisher groups and their political supporters 

and some recreational users. A bill currently 

under consideration would open the preserves 

to preferred users, but is opposed by the marine 

resource management community. Encouraging 

compliance with preserve rules is a key concern. 

Outreach efforts are generally good. Enforcement 

is uneven, in part because of inadequate funding 

and access to boats. Prosecution of violators 

is almost nonexistent. Regarding LBSP, new 

stormwater regulations are now being reviewed. 

The intent is to reduce site-based runoff and 

sedimentation in near-shore waters. There seems 

to be general support for these new regulations. 

Planning and zoning controls in near-shore areas 

need updating and strengthening in order to 

reduce land-based sources of pollution, minimize 

impacts on wetlands and maintain aesthetic 

values.

CAPACITY

Premise: 

To achieve success, it is necessary for sufficient 

capacity be present within the institutions 

responsible for the program to implement its 

policies and plan of action.

Key questions:

1. Your program possesses the human 

resources to implement its plan of action.

2. Your program possesses the institutional 

resources (equipment, materials, etc.) to 

implement its plan of action.

3. There are internal or external barriers to 

successfully implement plan of action. 

What are these?

Results:

Guam has a core of skilled, knowledgeable and 

capable resource managers. However, there are 

several primary capacity barriers. One is that the 

scale of the military build-up makes it very difficult 

for Guam to stretch its limited management 

resources to engage in sufficient oversight. The 

military itself seems committed to ensuring that 

new infrastructure is carefully designed, meets 

Leadership in Energy and Environmental Design 

requirements, etc., but the volume of construction 

activities, the large number of contract workers and 

the proliferation of contractors and subcontractors 

make it impossible for Guam officials to ensure 

compliance with management goals without 

substantial federal assistance. Two, the federal 

need for talented resource managers is resulting in 

“brain drain” among Guam’s managers. Talented 

managers and resource specialists are being 

offered generous contracts that far exceed their 

Guam salaries. Loss of key people, salaries that 

are low relative to colleagues and the immensity 

of the resource management needs combine to 

undermine the morale of some staff.

This initial assessment will be followed by a 

more detailed assessment and analysis that will 

focus on capacity gaps in relation to the specific 

management goals and objectives that are 

finalized in this priority setting process. 

APPENDIX THREE: PRELIMINARY IDENTIFICATION OF CAPACITY GAPS
29

GUAM’S Coral Reef Management Priorities

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Process. Guam Environmental Protection 

Agency in cooperation with the Bureau 

of Statistics and Plans, Guam Coastal 

Management Program (October 2003).

BIBLIOGRAPHY OF CORAL REEF MANAGEMENT AND CONSERVATION DOCUMENTS FOR GUAM BY AGENCY
31

GUAM’S Coral Reef Management Priorities

Jennifer Kozlowski and Bill Millhouser (eds.) 

(May 2008). Report on the Status of Local 

Action Strategies to Conserve and Protect 

Coral Reefs for years 2002–2006, Report to 

the U.S. Coral Reef Task Force from the Task 

Force Steering Committee.

USDA Forest Service, Government of Guam 

Division of Forestry and Soil, USFWS, 

NOAA and ACOE. Cetti Bay Reforestation 

Monitoring Plan. 

U.S. Department of Commerce, 

National Oceanic and Atmospheric 

Administration, Office of Ocean and 

Coastal Resource Management and the 

Guam Coastal Management Program, 

Bureau of Planning, Government of 

Guam(August 1994). Procedures Guide 

For Achieving Federal Consistency with the 

Guam Coastal Management Program

Citations for Capacity Assessment 

2008 Status of the Reefs

Burdick, D., V. Brown, J. Asher, M. Gawel, L. 

Goldman, A. Hall, J. Kenyon, T. Leberer, E. 

Lundblad, J. McIlwain, J. Miller, D. Minton, 

M. Nadon, N.Pioppi, L. Raymundo, B. 

Richards, R. Schroeder, P. Schupp, E. 

Smith and B. Zgliczynski (2008). The State 

of Coral Reef Ecosystems of Guam. pp. 

465-510. In: J.E. Waddell and A.M. Clarke 

(eds.), The State of Coral Reef Ecosystems 

of the United States and Pacific Freely 

Associated States: 2008. NOAA Technical 

Memorandum NOS NCCOS 73. NOAA/

NCCOS Center for Coastal Monitoring and 

Assessment’s Biogeography Team. Silver 

Spring, Maryland. 569pp.

Burdick, D., V. Brown, J. Asher, M. Gawel, L. 

Goldman, A. Hall, J. Kenyon, T. Leberer, E. 

Lundblad, J. McIlwain, J. Miller, D. Minton, 

M. Nadon, N.Pioppi, L. Raymundo, B. 

Richards, R. Schroeder, P. Schupp, E. 

Smith and B. Zgliczynski (2008). Status of 

the Coral Reef Ecosystems of Guam: 2008. 

Guam Coral Reef initiative.

2005 Status of the Reefs

Porter, V., Leberer, T., Gawel, M., Burdick, D., 

Gutierrez, J., Torres, V. and Lujan, E. (2005). 

The State of the Coral Reef Ecosystems of 

Guam in The State of Coral Reef Ecosystems 

of the United States and Pacific Freely 

Associated States: 2005. NOAA Technical 

Memorandum NOS NCCOS 11. NOAA/

NCCOS Center for Coastal Monitoring and 

Assessment’s Biogeography Team. Silver 

Spring, Maryland. 522 pp.

Porter, V., Leberer, T., Gawel, M., Burdick, 

D., Gutierrez, J., Torres, V. and Lujan, E. 

(2005). Status of the Coral Reef Ecosystems 

of Guam. University of Guam Press, 

Mangilao. Technical Report 113. 80 pp.

Coral Reef Economic Valuation

van Beukering, P., H. Wolfgang, M. Longland, 

H. Cesar, J. Sablan, S. Shjgstad, B. 

Beardmore, Y. Liu and G. O. Garces (2007). 

University of Guam Technical Report No. 

116: The economic value of Guam’s coral 

reefs. 6 pp.

Pacific CREIOS Workshop

NOAA Coral Reef Conservation Program 

(2009). Pacific CREIOS Workshop Report.

Workshop held November 18–20, 2008, 

in Honolulu, HI. Accessed at: http://

coralreef.noaa.gov/creios/pac_report.pdf

NOAA Coral Reef Conservation Program 

(2008). Pacific CREIOS Workshop Briefing 

Book. Accessed at: http://coralreef.noaa.

gov/creios/pac_brfbook.pdf

Guam Coral Reef Initiative (2008). Pacific 

CREIOS Workshop: Guam Team 

Presentation. Accessed at: http://

coralreef.noaa.gov/creios/pac_guam.pdf

Guam Year of the Reef

GYOR (2008). Abstract Booklet. Guam Coral 

Reef Symposium 2008. Accessed at: http://

www.guamiyor08.com/files/Abstract_

Booklet_web.pdf
32

Other

Gombos, M., J. Gutierrez and V. Brown (2007). 

Guam Coral Reef MPA Summary. pp89–96. 

In Wusinich-Mendez, D. and C. Trappe 

(ed.) (2007). Report on the Status of Marine 

Protected Areas in Coral Reef Ecosystems 

of the United States Volume 1: Marine 

Protected Areas Managed by U.S. States, 

Territories and Commonwealths: 2007. 

NOAA Technical Memorandum NOS. 

NOAA Coral Reef Conservation Program. 

Silver Spring, Maryland. 153pp. Accessed 

at: http://node.guamepa.net/programs/

emas/index.html

All Islands Committee (2009). Guam overview.

Accessed at: http://allislandscorals.org/

index.php?option=com_content&task=vi

ew&id=45&Itemid=55

BIBLIOGRAPHY OF CORAL REEF MANAGEMENT AND CONSERVATION DOCUMENTS FOR GUAM BY AGENCY
33

GUAM’S Coral Reef Management Priorities

To access this report online or for more information, visit:

http://coralreef.noaa.gov/aboutcrcp/strategy/reprioritization/managementpriorities/
34

To access this report online or for more information, visit:

http://coralreef.noaa.gov/aboutcrcp/strategy/reprioritization/managementpriorities/