Copyright 1999 Federal News Service, Inc.
Federal News Service
FEBRUARY 25, 1999, THURSDAY
SECTION: IN THE NEWS
LENGTH:
3431 words
HEADLINE: PREPARED TESTIMONY BY
TERRY
GARCIA
ASSISTANT SECRETARY FOR OCEANS AND ATMOSPHERE
NATIONAL OCEANIC
AND ATMOSPHERIC ADMINISTRATION
U.S. DEPARTMENT OF COMMERCE
BEFORE THE
HOUSE RESOURCES COMMITTEE
FISHERIES CONSERVATION, WILDLIFE
AND OCEANS SUBCOMMITTEE
BODY:
INTRODUCTION
Good
morning, Mr. Chairman, and members of the Subcommittee.
My name is Terry
Garcia. I am the Assistant Secretary for Oceans and Atmosphere for the National
Oceanic and Atmospheric Administration (NOAA). I thank you for this opportunity
to testify today on the reauthorization of the Coastal Zone Management Act, or
CZMA. The CZMA is a landmark resources management law that has benefitted the
Nation, the States and the citizens of our country since its enactment in 1972.
My testimony will focus on the President's Lands Legacy
Initiative and the following four points raised in your letter to Dr.
Baker:
- the clarity of the coastal management program's goals; - the
mechanisms that are in place to measure the effectiveness of the program in
meeting those goals; - the effectiveness of the program in meeting those goals;
and - ideas regarding the 1999 reauthorization of the CZMA.The President's
Land Legacy Initiative
The President recently announced a
$1 billion Lands Legacy Initiative to expand federal efforts to
save America's natural treasures. The Lands legacy Initiative
would provide $105 million to NOAA to protect America's valuable ocean and
coastal resources and to strengthen state and local efforts to address the
problems caused by sprawl.
America's ocean and coastal areas are under siege
by a whole suite of activities, including coastal population growth,
development, maritime commerce, commercial and recreational fishing, and
tourism. The economic and environmental well-being we derive from the essential
natural resources and beauty provided by these areas is being undermined by the
economic and aesthetic uses that make these diverse areas valuable to the
Nation. Escalating losses and degradation of coastal wetlands, fisheries
habitat, and coral reef ecosystems must be reversed.
The Lands
Legacy Initiative will target funds to strengthen and expand protection
of the nation's most significant ocean and coastal areas; restore critical
coastal habitat and vibrant coral reef ecosystems; and provide states and local
governments with the tools and resources for environmentally-sound smart growth
strategies. This includes $32 million for Partnerships to Promote Community
Based Smart Growth; $15 million for the enhancement of our National Marine
Sanctuaries; $14.7 million to enhance the protection of critical estuaries
through the National Estuarine Research Reserve System; $10 million to determine
ways to use dredged material in environmentally-sound beneficial ways; $10
million to help restore fragile coral reefs injured by human impacts; and $22.7
million to increase the number and geographical scope of community-based fish
habitat restoration efforts.
The Lands Legacy Initiative
provides us with a unique opportunity to ensure that our coastal and ocean areas
are used, conserved and protected for the benefit of present and future
generations.
The Clarity Of The Coastal Management Program's Goals.
The
CZMA's goals and objectives, as provided for in the Act's findings and policy
statements, are clear and reflect current coastal and estuarine management
issues and needs. These objectives describe the importance to the nation of the
coastal zone for its variety of natural, commercial, recreational, ecological,
industrial and aesthetic resources; and the need to preserve, protect, develop
and restore or enhance these resources for this and succeeding generations. The
CZMA defines and authorizes the Coastal Zone Management Program and the National
Estuarine Research Reserve System. It emphasizes a partnership with the states.
It is a critical national authority that works with all sectors of government to
comprehensively manage and address the many and increasing pressures on the use
of our coastal areas and our coastal and ocean environments.
The coastal
management program is implemented by state coastal management programs and
National Estuarine Research Reserves, in partnership with the federal
government. Participation is voluntary and eligible states may develop coastal
management programs or reserves pursuant to federal requirements. As part of
federal approval, state coastal management programs and reserves receive annual
operating funds through cooperative agreements with NOAA. These funds are used
by state agencies and local governments for a variety of management, research,
permitting, enforcement, education and project specific activities. In addition,
federal approval of a state coastal management program triggers the CZMA federal
consistency requirement. Federal consistency requires that certain actions, in
or outside the coastal zone, that affect any coastal use or resource must be
consistent with the enforceable policies of state coastal management programs.
The federal consistency requirement is a powerful tool that states use to
address effects on coastal uses or resources that are the result of federal
actions.
For over twenty-five years the CZMA has provided national goals,
priorities and guidance for how states and the Federal Government manage the
Nation's coastal and ocean resources. States have made great strides
implementing federally approved management programs which reduce threats to
coastal wetlands, improve coastal water quality, expand public access to the
coast, revitalize urban waterfronts and educate the public about the need to
manage and protect coastal and ocean resources.
While the goals of the CZMA
are clear, much remains to be done. Implementation of the CZMA's goals by state
coastal management programs, estuarine research reserves, and NOAA requires
ongoing vigilance, effort and resources to meet increasing pressures on coastal
and ocean resources. Stresses on coastal and ocean resources are increasing
dramatically, and so are the resulting management challenges. For example, from
1996-2015, the coastal population is projected to increase from 141 million to
161 million with the accompanying increases in solid waste production, urban
runoff, losses of green space and wildlife habitat, water quality declines, and
other stresses on the coastal and marine environment. These challenges include
continued rapid population growth in coastal areas at much higher rates than
inland, loss and degradation of habitats and biodiversity, water quality
problems, continued user conflicts, and increased separation of coastal
residents from natural resources. This is why the reauthorization of the CZMA in
1999 is so important to NOAA, the coastal states and to the nation.
The
Mechanisms That Are In Place To Judge The Effectiveness Of The Program In
Meeting Its Goals.
There are mechanisms in place to judge the effectiveness
of the implementation of the CZMA. These include both statutory and
administrative mechanisms. Statutory mechanisms include (1) program oversight by
NOAA, (2) required program evaluations under section 312 of the CZMA, and (3)
the submission and federal approval of program changes.
(1) The CZMA
requires that NOAA provide on-going oversight of state coastal management
programs and estuarine research reserves.
Such ongoing interaction
provides NOAA and the states with opportunities to assess the effectiveness of
management activities on a regular basis and work together to revise annual work
plans and specific projects and activities as needed.
(2) The periodic
section 312 program evaluations provide a more extensive and systematic
mechanism to assess the effectiveness of the state programs. Through the section
312 process, NOAA, every three years, conducts an intensive investigation of
state coastal management and estuarine research reserve programs to ensure that
states are adequately implementing their approved programs. These reviews
include substantial input from other federal agencies and the public. NOAA's
findings identify program accomplishments, any deficiencies and emerging issues.
While NOAA has found that states are adequately implementing their management
programs, the findings often include necessary actions to address program
deficiencies or emerging issues, which the state programs are required to
address in the next annual work plan and cooperative agreement. These
evaluations have documented the effectiveness of the programs and have helped
ensure the vitality of the programs. For example, one evaluation found that the
implementation of Mississippi's wetland permit program was inadequate. As a
result, the state re-allocated funds to improve monitoring and enforcement,
which enhanced the state's ability to continue to meet the CZMA's national
objectives to protect wetlands.
(3) While not as direct a method for
determining effectiveness as program oversight or section 312 evaluations, the
effectiveness of state programs is also evaluated through the CZMA's program
change requirement. State coastal management programs are required to submit
changes to their programs to NOAA for federal approval. The need to make program
changes is determined through NOAA's program oversight role, the section 312
evaluations, or, in most cases, by a state's own determination.
NOAA has
also recently begun to more efficiently administer and evaluate the program. The
Coastal and Marine Management Program (CAMMP) information system is a data
collection and retrieval program that is designed to allow states to submit
grants and other program information electronically. NOAA, the coastal states,
reserves, local governments, other federal agencies, academic institutions,
think tanks, and other interested parties, will be able to compile, manipulate
and report on coastal management activities. The CAMMP system is a high priority
for NOAA and the first phase of the system was implemented this month. The Grant
Application and Reporting Section of the CAMMP system will allow state coastal
management programs and estuarine reserves to prepare annual grant applications
via the Internet, and, over the next few years, to conduct the entire grant
application process over the Internet.
In addition to these mechanisms, NOAA
funded an Effectiveness Study. This study is an intensive and comprehensive
analysis of the effectiveness of state programs and was begun in 1995 by several
academic institutions and consultants across the country. Draft results have
been submitted within the last few months and the results are expected to be
published later this year. The Study found that state programs are effective in
addressing key CZMA objectives. However, to better determine effectiveness in
the future, the Study recommends that there be a more systematic and sustained
collection of outcome information. This is precisely what the CAMMP system will
allow NOAA to do: assess, quantify and report on the effectiveness of state
programs.
The Effectiveness Study found that most states are effective or
very effective in protecting estuaries and coastal wetlands, that state programs
have progressively upgraded their management tools to improve how they deal with
impacts to beaches and dunes, that state programs are national leaders in
improving access to the coast, that state programs have been instrumental in
waterfront revitalization leveraging over $430 million in non CZMA funds, and
that a substantial number of states are effective in the development of large
seaports.
The Effectiveness Of The Program In Meeting Its Goals.
The
state and federal coastal management program is effective in many ways. This is
evidenced by the near-unanimousnon-partisan support among Congress over the
years, and the widespread support of state and local governments, interest
groups and the public. The benefits of the CZMA and the support it fosters can
be seen in the effectiveness of the national system of state coastal management
programs, the growing network and use of estuarine research reserves, the
vitality of our coastal economies, and the protection and sustainability of
important coastal resources and habitats.
Some of the accomplishments
include the following: The national system of coastal management programs is
nearly complete with 95,142 miles, or 99.7 percent, of the 95,439 miles of the
nation's shoreline under management by 32 federally-approved state, territorial,
and commonwealth coastal programs. Twenty nine of these states have also
received conditional approval of their coastal nonpoint pollution control
programs.
Demonstrating the growing state interest in this federal program,
three new state coastal management programs, those of Ohio, Georgia, and Texas,
have been approved by NOAA within the past three years. The nation's 33rd
coastal management program, Minnesota's, only awaits final transmittal by the
new Governor, before approval by NOAA. In addition, we anticipate receiving
Indiana's draft program for review later this year. Of the nation's 35 coastal
states and territories eligible for participation under the CZMA,only Illinois
is not currently participating.
The effectiveness of the CZMA's goals is
also seen in the growth and importance of the National Estuarine Research
Reserve System. Reserves are protected land and water areas in 19 states and
territories that are part of a national system administered by NOAA. The states
operate the individual reserves, participate in developing goals for the System,
and implement System-wide activities. Reserves protect representative examples
of estuarine habitat and conduct a suite of activities that improve the
stewardship of estuaries, including: long- term research, system-wide water
quality monitoring, technical training for coastal decision makers, public
education and interpretation programs, and demonstration projects. Reserves are
important for habitat protection since they manage discrete protected lands and
waters and help forge community-based solutions to estuarine environmental
problems, such as voluntary changes to farming practices, development of new
septic tank standards, or restoration of wetlands.
There are 23 federally
designated National Estuarine Research Reserves in nineteen states and
territories, including the Jacques Cousteau reserve designated in New Jersey
just last year and the Kachemak Bay (Alaska) reserve designated this month.Four
additional reserves are in development in Grand Bay (Mississippi),
Guanama-Tolomato-Matanzas (GTM) (Florida), San Francisco Bay (California), and
in the St. Lawrence River in upstate New York. The Grand Bay and GTM reserves
are on schedule to be designated by NOAA in the Summer of 1999. Over 900,000
acres of estuarine habitat are now protected by the National Estuarine Research
Reserve System. Habitat protected by the System will increase this year to over
1,000,000 acres with additional acquisitions by existing reserves, and with the
designation of the Mississippi and Florida reserves. Visitors to reserves now
number over 1 million per year.
The reserve system has initiated a unique
system-wide monitoring program for water quality and weather parameters that can
link short- term events to habitat changes. Reserves also are helping local
decision makers and professionals in coastal areas apply new and innovative
methods and technologies. In response to the Administration's Clean Water Action
Plan, Reserves are joining their efforts with EPA's National Estuary Programs to
share more broadly lessons learned with coastal programs and communities. In
addition, the CZM programs are working to further enhance their links with NEPs
and to work together in providing support to local coastal communities to
address impacts and pressures on estuary resources.The Biennial Report that NOAA
sends to Congress documents the effectiveness of these programs. This report
should be delivered to Congress shortly. The report, as required by the Act, is
a comprehensive account of the accomplishments of NOAA, the coastal states and
reserves, in advancing the goals of the CZMA during the fiscal years 1996 and
1997. Before I move on to specific reauthorization recommendations, let me
highlight for you some specific CZMA and Reserve success stories.
In San
Francisco Bay, the San Francisco Bay Conservation and Development Commission, a
federally approved CZMA program, has reversed wetland loss from 2,300 acres per
year to only 4 acres per year. This effort has been aided by the efforts of the
California's Department of Fish and Game, and other Federal agencies including
the Department of Interior's Fish and Wildlife Service, the Environmental
Protection Agency, and the Army Corps of Engineer.
Under section 306A of
the CZMA, the Coastal Resource Improvement Program, states have used federal and
state funds to provide substantial public access to the coast through coastal
parks, fishing piers, boat launches, dune walkovers, foot and bike trails, beach
clean-ups, parking lots and access roads, land acquisition, historic structure
restoration, urban waterfront revitalization and other projects. Rough estimates
show that state have used over $50 million in federal funds, equally matched
with state and local funds, since 1985 for over 1,000 access and resource
protection projects.
State coastal management programs have provided support
to numerous coastal communities for environmentally-sound waterfront
revitalization. Virginia has used limited CZMA funds to spur development of an
eco-industrial park in Cape Charles, Virginia. The City of Wilmington, North
Carolina used CZMA funds to develop a riverfront plan that served as a catalyst
for $4 million in public investment and $100 million in private investment along
the Cape Fear River. This project restored dilapidated warehouses and piers,
created vessel and public access to the City's waterfront, and turned the
waterfront into a vibrant economic and social center for the City.
These are
just a few of the examples of the effectiveness of the CZMA program. The
Biennial Report will provide additional examples.
Ideas Regarding The 1999
Reauthorization Of The CZMA.
Turning now to the 1999 reauthorization of the
CZMA, NOAA fully supports the CZMA and is committed to working with Congress,
the coastal states, and other interests, to continue the Act's national
programs. The Congress and the Administration have an opportunity to position
the CZMA to meet the requirements of the next century, while maintaining the
aspects of the CZMA that have served the country well for over a quarter of a
century. These include the flexibility of the state-federal partnership, using
state programs as the "on the ground" delivery mechanism, and consideration of
the national interest in coastal uses and resources.
NOAA suggests that
Congress consider the following concepts to address these issues and challenges:
- address emerging habitat issues, such as protection of coral reefs,
protection of essential fish habitat, and habitat restoration;
- focus the
implementation phase of the coastal nonpoint pollution control program within
the CZMA on NOAA's traditional habitat protection and restoration mission, and
specify state coastal management program agencies' responsibilities in the
management of polluted runoff;
- provide support to local coastal
communities to develop environmentally protective solutions to the impacts and
pressures on coastal uses and resources by encouraging revitalization of
previously developed areas;
- improve coastal management decision-making by
strengthening the ability of coastal states and NOAA to provide technical
assistance, management-oriented research, innovative technology development and
mediation services; - enhance the link between the estuarine reserves and
coastal management programs; and
- make other technical amendments to
improve the effectiveness, efficiency and flexibility of the CZMA's
state-federal partnership.
Conclusion
In closing, the 1999
reauthorization of the CZMA provides a unique opportunity to provide a vision
and a framework for coastal and ocean resources management and stewardship into
the 21st century. The effectiveness of the CZMA and the broad-based support for
the Act can enable the Administration and the Congress to accomplish the Act's
objectives. A reauthorized and enhanced Act, with adequate funding authorized
and appropriated, will set in motion the means by which we can ensure that the
Nation's coastal and ocean uses and resources are used, conserved and protected
for the benefit of present and future generations. The Administration looks
forward to working with you on this task. That concludes my remarks and I would
be glad to answer any questions.
END
LOAD-DATE:
March 2, 1999 
