A Football Field Lost Every 45 Minutes: Evaluating Local Capacity to Implement Louisiana's Coastal Master Plan

As Louisiana continues to experience substantial coastal wetland loss—at the rate of a football field every 45 min—and multiple disasters, state and federal officials struggle with implementing restoration plans in this highly productive ecosystem. The 2007 Louisiana Comprehensive Master Plan for a Sustainable Coast is the first large-scale restoration plan in the United States to incorporate hazard mitigation. However, there is no mandate for local governments to adhere to this plan. Building upon the planning quality and evaluation literature, this study analyzes comprehensive land use plans in Louisiana's coastal zone to systematically assess the quality of the plans within the context of a non-mandated, $50 billion large-scale state restoration plan. Results indicate a great disparity in plan quality; a majority of the local governments lack the capacity to implement the nonstructural programmatic elements of the state's plan. The study concludes with a discussion and recommendations for practice and future research.     

Forty Years of the CZMA: Impacts and Innovations

This article addresses federal, state, and local regulatory regimes for controlling commercial advertising in coastal waters. It focuses on a new method of outdoor advertising that utilizes a billboard towed by a tug in coastal waters. Specifically, it explores the extent to which legal action to regulate advertising from floating billboards in U.S. waters could withstand constitutional scrutiny. The issue is examined within the contexts of commercial speech and navigational servitude. Additionally, the article discusses the preservation of viewscapes along the coast and the applicability of the public trust doctrine. Jurisdictional issues are examined along with the role of states' harbor management plans and local ordinances in regulating commerce and providing anchorage limitations. The article argues that regulation of floating billboards must not necessarily be based on aesthetics, but the public trust doctrine. The article concludes that the language of the Coastal Zone Management Act (CZMA) and interpretations of its scope, as well as Supreme Court decisions in favor of aesthetic zoning, support the inclusion of such regulations in states' coastal zone management plans.     

Adaptation Pathways in Coastal Case Studies: Lessons Learned and Future Directions

Climate change adaptation presents a difficult challenge for coastal towns around the world, forcing local governments to plan for sea level rise in a contentious decision-making space. The concept of “adaptation pathways,” a diagnostic and analytical tool to assist in adaptive planning and decision-making, is gaining traction as a way of framing and informing climate adaptation. It provides decisionmakers a way to acknowledge the inter-temporal complexities and uncertainties associated with the novel dynamics of climate change and a mechanism to manage these challenges in the local context. In 2012, the Australian Government funded an 18-month program to provide decisionmakers in the coastal zone an opportunity to test the utility of the adaptation pathways concept for coastal climate adaptation. Using a selection of completed projects as case studies, we performed a document analysis to better understand the learnings from the projects. The main themes surrounded: (1) the utility of the adaptation pathway framework in developing options, (2) decision-making rationale and criteria, and (3) stakeholder participation in pathway development. A project participant survey was developed to further understand these themes. Our analysis reveals that “adaptation pathways” was generally framed narrowly and conservatively to emphasize extant economic, administrative and legal considerations over community, participatory, or exploratory ones. Although some case study projects were able to reach a point in the pathway discussion to actively involve stakeholders in their decision-making process, many case studies continued to build technical data as a method for defending policies and actions. These results indicate that coastal adaptation can take-up adaptation pathways as a useful concept for decision-making and planning; however, many councils may still require assistance in stakeholder communication processes in order to develop sociallyacceptable plans that take into account the full range of values affecting local coastal environments.     

Providing Public Access to the Shore: The Role of Coastal Zone Management Programs

In many coastal states and territories, coastal zone management (CZM) programs have been the prime catalyst in leveraging public access initiatives among state and federal agencies, public organizations, and the private sector. A wide range of tools are used, including acquisition, regulations, technical assistance, and public education. The diversity of approaches is illustrated through a variety of case examples. Although hard numbers for measuring outcomes were not uniformly available, between 1985 and 1988, when federal and state CZM funding dedicated to public access was tracked, $141.5 million (unadjusted 1988 dollars) were spent on 455 public access-related projects. A policy shift occurred in the 1990s away from reliance on acquisition and regulation as the most effective means of providing access and toward technical assistance and public outreach-a response to the overall decrease in funds available for access. CZM programs have been able to balance the contradictory goals of the federal Coastal Zone Management Act of 1972 (CZMA), such as protecting coastal resources while providing for increased public access to those resources. It is recommended that CZM programs conduct assessments to determine the kind of access needed in the future and where it should be located. And, due to the creativity and innovation that states and territory coastal programs use to achieve access, it is recommended that a national clearinghouse be established for documenting and sharing information on innovative tools and programs.     

The Effectiveness of Coastal Zone Management in the United States

The Coastal Zone Management Effectiveness Study was undertaken between 1995 and 1997 to determine how well state coastal management programs in the United States were implementing five of the core objectives of the U.S. Coastal Zone Management Act (CZMA). The five core objectives studied were: (1) protection of estuaries and coastal wetlands; (2) protection of beaches, dunes, bluffs and rocky shores; (3) provision of public access to the shore; (4) revitalization of urban waterfronts; and (5) accommodation of seaport development (as an illustration of the policy to give priority to coastal-dependent uses). Separate articles in this issue of Coastal Management report the findings of the five studies, each dealing with one of the core objectives. Each of the articles assesses issue importance, processes and tools used, and the limited outcome data available for that objective. This article provides an overview of the purposes of the study, the methodology used, the summary findings of each study, and overall conclusions and recommendations of the study team. State coastal programs are found to be effective in addressing the five CZMA objectives examined, but this conclusion is based on very limited information about program outcomes. A more definitive conclusion will require better outcome information. Coastal managers in the United States have not agreed upon indicators of success, which severely inhibits systematic and sustained collection of outcome information. A national outcome monitoring and performance evaluation system is recommended to address these deficiencies and allow better determinations of program effectiveness in the future.     

Conservation and development in Oregon's coastal zone

Abstract

Coastal zone management in Oregon is based on the state's general land‐use law. This body of law is designed to deal with population increase, urbanization, and preservation of agricultural land, as well as with other problems throughout the state. Early planning and policy recommendations for the coast were in the hands of a commission having predominantly local membership. This commission produced an extensive series of studies, policies, and recommendations which were assembled as a proposed management tool for natural resources. Staff of the commission was then absorbed into the state land‐management agency, which developed final goals and guidelines for compliance with the Coastal Zone Management Act. Adoption of the coastal goals in December 1976 has triggered deadlines for local government compliance within the coastal zone. The management program is now undergoing federal review.     

Armoring Against Coastal Climate Adaptation in the US: A Massachusetts Perspective

Massachusetts, like many coastal states in the US, stands to be impacted from climate-induced sea level rise. As a result, climate-sensitive coastal policy instruments are critical for providing adequate adaptation options, including an option to allow coastal features to migrate inland. But the migration of coastal features is under threat due to extensive private armoring. This essay highlights specific regulatory instruments at the federal and state level dealing with hard armoring using Massachusetts as an example. It argues specific federal and state regulations legitimize and incentivize hard armoring over other coastal land use planning methods. The current level of armoring in Massachusetts is highlighted and implications under current federal and state policy frameworks are explained. Suggestions for coastal states planning for sea level rise are discussed, including the need for state planning to take the lead. Recommendations for changes at the federal level are also highlighted.     

CZM in California: Successes and Challenges Ahead

California has a forty-year history of successful coastal zone management. The San Francisco Bay Conservation and Development Commission, the California Coastal Commission, and the State Coastal Conservancy have protected and made accessible hundreds of miles of shoreline. While each agency has played a critical role, this article focuses on the Coastal Commission. Implementing the California Coastal Act, the Coastal Commission has partnered with local government, other agencies, nongovernmental organizations (NGOs), and the public to concentrate new development in already developed areas, and much of the rural coastal zone looks as it did in 1972. The Commission has protected and expanded public shoreline access through its regulatory actions. Using strong ecological science the Commission has protected a wide variety of sensitive habitats and wetlands. And under the authority of the Coastal Zone Management Act, the Commission has reviewed thousands of federal projects to assure that they are consistent with the Coastal Act. Challenges continue, though, including population growth, sea-level rise, and inadequate funding to update local coastal land use plans to address new issues, such as climate change adaptation. New investment is needed at the national, state, and local level to continue the success of the California program.     

Affordable housing in California's Coastal Zone: A tale of state authority vs. local autonomy

Abstract

This article examines the efforts of the California Coastal Commission to pursue simultaneously goals of environmental quality and affordable housing in the same state‐imposed regulatory program. The authors conclude that the Commission made substantial progress toward realizing both ends. However, the coastal body fell victim to its own successes, and housing was removed from its jurisdiction. As the Coastal Commission exercised its authority, opposition grew in strength and numbers. Key opponents included local government, which lost land‐use regulatory power to the Commission, the building industry, whose relationships with coastal localities were disrupted, and local property owners, whose land was restricted to uses other than the most profitable one.     

The Strategy for Coastal Sustainability: A Spanish Initiative for ICZM

The Spanish Strategy for Coastal Sustainability (SCS) was an initiative aimed at implementing coastal interventions under the principles of Integrated Coastal Zone Management (ICZM) and improving the state of the coast at the Spanish national level. The SCS, promoted by the Spanish Ministry of the Environment, started as a broad national strategy in 2005 and was finally delivered as a coastal planning instrument at the regional level in late 2007, designed to address coastal policies within the Spanish maritime–terrestrial public domain (MTPD). The initiative was triggered by the increasing pressure on the coastal zone and its preparation was supported by different European initiatives, first of all the European Recommendation on ICZM (413/2002/EC), while taking into consideration the future requirements of the Mediterranean Protocol on ICZM of the Barcelona Convention, signed in February 2008. Technically, the preparation of the SCS included four steps: (i) a Stakeholder Identification and Engagement process, including a stocktaking of the laws and regulations, (ii) the design of a broad Strategic Framework for the Spanish coastal zone, including a set of specific objectives and the instruments for its implementation, (iii) the signature of cooperation agreements for ICZM between the central government and the regions, and (iv) a detailed Technical Diagnosis at the local scale, designed to address future coastal interventions in the maritime–terrestrial public domain and its areas of influence. This article aims to: (i) illustrate the triggering factors of the SCS, including the Spanish coastal issues, the administrative framework at the national level, and the European and international policies addressing coastal management and (ii) illustrate the approaches and methodologies used for the preparation of the SCS, reporting the most relevant quantitative results. The article concludes that the SCS gave a strong contribution in the construction of a base of knowledge for the coastal zone and to improve coastal management practices. Despite this, complex distributions of competences still undermine the implementation of strategic interventions. In this context, the future ratification of the ICZM Protocol of the Barcelona Convention represents an opportunity to use the SCS process results and improve coastal management practices and the state of the coast.     

CZARA of 1990: A Critical Time for Coastal Management

To appreciate the present, sometimes you need to reflect on the past and wonder “what if?” This is one of those times. In recognition of the 40th anniversary of the Coastal Zone Management Act and acknowledgment of the dedication of the program's practitioners, it is important to note that the successful implementation of the Nation's primary coastal law has depended, and will continue to depend, on its legitimacy and institutionalization in the political culture of the country. Today, the national coastal management program, while underfunded and, in recent years, subject to wavering political support, has nevertheless reached a certain level of stability to safeguard the country's coastal resources. It is fitting, therefore, in this special issue of Coastal Management to recall a time when the future of the CZMA was in serious doubt.     

Governance for Sustainable Coastal Futures

The mobile nature of soft coasts means that coastal communities face uncertainty in their property values and peace of mind when the existing coastal defense is lowered or removed. The acceptance by the U.K. government that coastal realignment in areas of low population density and limited ecological value is unavoidable means that the current state of affairs, where coastal residents have broadly come to assume that they will be defended if they make enough fuss, cannot continue. The government is currently unwilling to confront this consternation and continues to refuse to pay compensation for lost property value. This is creating an outcry over loss of fairness of treatment. This dispute raises important questions of governance for coastal change. This participatory research project worked closely with English Nature, North Norfolk District Council, local residents associations, the Environment Agency, and the Department for Environment, Food and Rural Affairs. What emerged in the analysis were unresolved tensions between national strategic frameworks, emerging planning arrangements, changing economic assessments, and the desirability of delivering, through a number of public and voluntary agencies, local flexibility in participation and in coastal design. This article reports on the research process, the challenges for coastal governance, and the scope for creative partnerships between science, planning, policy delivery, and public acceptance.     

Coastal Zone Management: Using No-Build Areas to Protect the Shorefront

Five coastal counties in Florida were studied to assess the effect of state-mandated local comprehensive plan policies on hurricane evacuation clearance times and public shelter demand. Numbers of residential units in 2002 and at the time of plan approval were estimated from property parcel data. Abbreviated transportation models were used to calculate 2002 evacuation times and shelter demand and to ascertain the impacts of post-plan residential growth within hurricane hazard areas. Calculated increases in clearance times and shelter demand are not in concert with the state's mandate to maintain or reduce clearance times. State law currently limits the leverage of the state planning agency to compel local governments to implement the required comprehensive plan policies. We recommend a concurrency management strategy that parallels the state's requirement to provide adequate transportation facilities to accommodate the impacts of future residential growth. Such a policy could be employed in other states as well.     

Assessing economic activity in coastal areas: A shift‐share approach

Abstract

An essential aspect of economic analysis associated with planning efforts is identifying the composition of existing economic activity and understanding historical trends in economic change. The shift‐share model is a useful and inexpensive tool for this purpose. Shift‐share analysis evaluates changes in local economic activities relative to changes in a reference area (usually the state or nation). Economic change is separated into a reference area component, an industry mix component, and a local share component. These measure, respectively, the effect on the local economy due to changes in the reference area, factors specific to the local mix of industries, and the changing competitive position of the local area relative to the reference area.

A shift‐share analysis of Florida's coastal counties reveals that all grew much faster over the 1965–1975 period than did the national economy. This rapid growth is primarily a result of a net shift of economic activity toward the study area relative to the nation. However, a few coastal counties did exhibit a mix of slow‐growing industries. Specific industry results for Florida counties at the eighty‐industry level reveal that many industries showed significant shifts toward Florida's coastal counties. The performance of individual industries in the coastal counties generally exceeded that of the same industries in noncoastal counties.     

Institutions Shaping Coastal Ecosystems: The Algarve Case

Water and land use have changed dramatically over the last thirty years in Southern European coastal zones. For climatic and economic reasons coastal tourism development is often accompanied by simultaneous intensification of agricultural activity. The literature highlights a number of emerging resource pressures. The intensity of land use, excessive infrastructure development, and overexploitation of water resources pose the primary problems. Unsustainable development is often ascribed to mal-performing institutions (e.g., environmental management and land use planning), but there is a lack of studies analyzing the way in which institutions contribute to the problem. We address this gap by devising an analytical strategy that combines function analysis with the analysis of governance structures, property rights, and actors. This strategy is applied to the analysis of changes in ecosystem functions of the Portuguese coastal zone of the Algarve between the mid-eighties and today. Based on the analysis we call for an improvement of the performance of formal institutions in the Algarve. Actors in charge of implementing reformed institutions have to be given the financial and human means to implement formal property rights. Furthermore, entitlements for resource exploitation and interconnected transactions should not anymore be taken for granted. Specifically, institutions to control land use should be made more effective and incentives, that exclusively promote development, such as the construction tax, need to be questioned.     

Policy considerations for wetland wastewater treatment in the coastal zone: A case study for Louisiana

Two major environmental problems currently affecting the Louisiana coastal zone are a high rate of wetland loss and high levels of surface water pollution. The application of secondarily treated wastewater to wetlands can be a means of dealing with both of these problems. The benefits of wetland wastewater treatment include improved surface water quality, increased accretion rates to balance a high relative water level rise due mainly to subsidence, improved plant productivity and habitat quality, and decreased capital outlays for conventional engineering treatment systems. Wetland treatment systems can, therefore, be designed and operated to restore deteriorating wetlands. Hydrologically altered wetlands, which are common in the Louisiana coastal zone, are appropriate for receiving municipal and some types of industrial effluent. While the U.S. Environmental Protection Agency has determined wetland wastewater treatment is effective in treating municipal effluent, it has discouraged the use of natural wetlands for this purpose. At the same time, funds are being used for the construction of artificial wetlands to treat municipal effluent. In the Louisiana coastal zone, however, wetlands are deteriorating and disappearing due to hydrological alteration and a high rate of relative sea level rise. If no action is taken, these trends will continue. Effluent discharge to existing wetlands should be incorporated into a comprehensive management plan designed to increase sediment and nutrient input into subsiding wetlands in the Louisiana coastal zone, improve water quality, and result in more economical waste‐water treatment. The authors believe that the Louisiana example serves as a model for other coastal areas especially in light of projections of accelerated sea level rise.     

Improving the State of Coastal Areas in the Asia-Pacific Region

Stresses impacting the coastal zone in the Asia-Pacific region are briefly reviewed under the headings of sustainable coastal activities, coastal ecosystem management, community/resource interactions, coastal resource economics and sustainability, coastal area planning, and integrated coastal policies. Recent contributions on mitigation of these stresses are introduced, with emphasis on the Coastal Zone Asia-Pacific Conference, held in Bangkok, May 2002, where various innovative approaches to research, education, information sharing, and coastal policies aiming at improving the state of the coastal areas were presented. These include the roles of community in integrated coastal management; tools and planning for management of coastal areas; education program and capacity building; and the establishments of national and regional frameworks for integrated coastal management. As appropriate information and its transfer are critical to these processes, an analysis is presented of the content of the database on coastal projects in the region, highlighting areas of research interests, funding sources, and achievements. Another database on coastal ecosystems, currently under development, is presented as an example of the type of resource that can be expected to help advance our knowledge and ability to improve the management of coastal areas. Overall, these tools should allow us, given the political will, to improve the state of coastal areas.     

An Assessment of Coastal Development and Land Use Change Using the DPSIR Framework: Case Studies from the Eastern Cape,South Africa

Coastal areas are experiencing high levels of development, largely driven by a number of aesthetic and recreational factors, increased mobility, availability of disposable income for middle and upper income groups and the promise of job opportunities and improved economic well-being for lower income groups. As existing coastal urban nodes expand development “shifts” to less developed areas and places increasing pressure on the surrounding natural environment. This article considers the coastal zone of two municipalities in the Eastern Cape, South Africa, with similar environmental characteristics but disparate socioeconomic and governance histories. It identifies and integrates the drivers of development and land use change in the coastal zone of these municipalities by means of an adapted Driver-Pressure-State-Impact-Response (DPSIR) Framework. Development and land use change are driven by a combination of social, economic, and legislative factors that need to be considered for future management and planning in this unique dynamic system.     

Science Needs for Sea-Level Adaptation Planning: Comparisons among Three U.S. Atlantic Coastal Regions

To identify priority information needs for sea-level rise planning, we conducted workshops in Florida, North Carolina, and Massachusetts in the summer of 2012. Attendees represented professionals from five stakeholder groups: federal and state governments, local governments, universities, businesses, and nongovernmental organizations. Over 100 people attended and 96 participated in breakout groups. Text analysis was used to organize and extract most frequently occurring content from 16 total breakout groups. The most frequent key words/phrases were identified among priority topics within five themes: analytic tools, communications, land use, ecosystem management, and economics. Diverse technical and communication tools were identified to help effectively plan for change. In many communities, planning has not formally begun. Attendees sought advanced prediction tools yet simple messaging for decision-makers facing politically challenging planning questions. High frequency key words/phrases involved fine spatial scales and temporal scales of less than 50 years. Many needs involved communications and the phrase “simple messaging” appeared with the highest frequency. There was some evidence of geographic variation among regions. North Carolina breakout groups had a higher frequency of key words/phrases involving land use. The results reflect challenges and tractable opportunities for planning beyond current, geophysically brief, time scales (e.g., election cycles and mortgage periods).