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-unanimous non-partisan
support among Congress over the years, and the wide- spread 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.