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.     

Helping Communities Adapt and Plan for Coastal Hazards: Coastal Zone Management Program Recommendations for National Tool Developers

Adapting to changing coastlines is an unprecedented planning challenge as coastal hazards, including those associated with climate change, influence all areas of resource management. Tools have been developed to aid in understanding coastal hazards and to facilitate the planning and implementation of adaptation strategies. Through interviews with members of eight geographically distributed state Coastal Zone Management (CZM) Programs and several federal and nonprofit partners, we explored the utility of current tools for on-the-ground adaptation planning and implementation needs. State CZM Programs operate as trusted information brokers at the nexus between national resources and local needs. Here we provide seven recommendations for how to overcome the challenges identified with tool discovery, lack of trust, and the coarse spatial resolution of national tools. Our findings suggest local community needs are better addressed when end-users play a role in the tool development process. We also recommend leveraging CZM Program connections because they have the knowledge and expertise to identify solutions and disseminate information. While the recommendations presented here were taken from the perspective of state CZM Programs regarding coastal tools, the lessons learned may provide valuable insight into the tool development process for other resource management fields.     

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.     

Examining Local Coastal Zone Management Capacity in U.S. Pacific Coastal Counties

The coastal zone has critical natural, commercial, recreational, ecological, industrial, and esthetic values for current and future generations. Thus, there are increasing pressures from population growth and coastal land development. Local coastal land use planning plays an important role in implementing the U.S. Coastal Zone Management Act (CZMA) by establishing goals and performance policies for addressing critical coastal issues. This study extends the CZMA Performance Measurement System from the national level to the local land use level by measuring coastal zone land use plan quality and political context in fifty-three Pacific coastal counties. Plan quality is measured using an evaluation protocol defined by five components and sixty-eight indicators. The results indicate a reasonable correspondence between national goals and local coastal zone land use planning goals, but a slight gap might exist between the national/state versus local levels in the overall effectiveness of coastal zone management (CZM) efforts. The results show many U.S. Pacific coastal counties lack strong coastal zone land use plans because the average plan quality score was only 22.7 out of 50 points. Although these plans set relatively clear goals and objectives, they are somewhat weaker in their factual basis, identify a limited range of the available planning tools and techniques, and establish few coordination and implementation mechanisms. The regression analysis results indicate that CZM plan quality was not significantly related to any of the jurisdictional characteristics.     

Applying a Mediated Negotiation Framework to Integrated Coastal Zone Management

Conflict is intrinsic to coastal zone management, yet relatively few peer-reviewed studies have examined how coastal managers might apply conflict resolution processes in the coastal zone management (CZM) context. The authors believe that many of these disputes can be addressed by using a structured mediation model that involves face-to-face negotiation with a broad range of stakeholders to build consensus-based agreements for integrated coastal zone management (ICZM). To explore this further, the article examines four questions. First, it examines how CZM literature characterizes conflict and conflict resolution. Second, it looks at how essential principles from the field of alternative dispute resolution and environmental mediation can be best employed in the ICZM context. In particular, it explores the various elements of a stepwise agreement building model, a mediated negotiation process model the authors use in practice that bases its success on a foundation of four principles: representation, participation, legitimacy, and accountability. Next, it details three essential tools used in this process, stakeholder analysis, joint factfinding, and single-text negotiation, that the authors believe to be promising for developing and adopting stable, well-informed, and implementable agreements for ICZM. Finally, the article examines how these structuring principles and process strategies have been used in two recent case studies regarding the management of the San Francisco estuary and its tributaries.     

Coastal Crisis: The Failure of Coastal Management in the Spanish Mediterranean Region

It is a fact that coastal zones in the Mediterranean are becoming progressively more seriously degraded. Instrumental to the phenomenon in Spain is the evident failure of the coastal management that the institutions have pursued for over three decades, both under the old, state-centralized model, and the new organizational model with the political division of land into autonomous regions. This failure can in part be explained not only by the inadequate tools the administration possesses to address the dynamism and complexity of the new economic activities that have sprung up along the coast, but also by incoherent sectoral policies. Finally, there has been no all-encompassing political strategy capable of dealing with coastal communities' demands for development and the need for the protection of ecosystems and their natural resources. All this has resulted not only in a deterioration of the area, but also in the discrediting of actions implemented by the institutions, and their plans and programs being perceived as an obstacle to economic development.     

An application of interactive management information systems to environmental planning: Coastal zone management

Recent emphasis in comprehensive planning for coastal zone regions has created the need for more effective tools for information processing and analysis to aid policymakers and planners in developing strategies for preservation of coastal zone areas. New agencies with broad powers have been created at both state and federal levels to deal with growth management in large coastal regions. However, coastal zone management (CZM) agencies have not yet been able to deal effectively with development processes. A “holding action”; is being maintained in the face of mounting pressure by developers, while planners struggle to develop (1) a data base with sufficient detail for planning; (2) a fair and rapid process for reviewing environmental impact statements and granting of development permits; and (3) a system for making the development permit application process more routine. The key to success of the CZM process is the development of a management information system (MIS) created explicitly for CZM. The prototypical system designed by the authors combines graphic display capabilities (i.e., map display) with interactive on‐line computing and large storage‐capacity computers. Problems of data structure development are documented, together with problems of assembling a large‐scale, highly detailed data base. Of particular importance is the need for well‐developed objectives and specifications for the use of computer‐based data in resolving disputes on environmental issues. A set of objectives and specifications for a prototypical coastal zone MIS is developed. The system is described in detail, showing how its capabilities directly address policy questions formulated by coastal zone planners.     

Gender Issues within the Population-Environment Nexus in Philippine Coastal Areas

Sixty percent of the Philippine's population resides in the coastal zone. Women and men in coastal communities depend chiefly on the sea for subsistence. Over fifty percent of the dietary protein requirements of coastal communities are derived from municipal fisheries and shallow coastal habitats (reef fishes, marine plants, and mangroves). Coastal populations are young and expanding at rates that exceed regional and national averages. Expanding human pressures and man-made disturbances (over harvesting, destructive fishing, siltation, etc.) that offset natural processes are destroying habitats and creating protein food security crises and increasing malnutrition. At the same time conflicts among users of coastal resources are escalating. Access constraints, gender inequities, and cultural barriers stymie options for women and men to plan their families and create alternative livelihoods. National and local government agencies are addressing food security concerns through vertical policies and programs (e.g., fisheries management, integrated coastal management). The IPOPCORM project uses a cross-sectoral approach and quasi-experimental evaluation design to test the hypothesis that food security will be achieved more quickly when coastal resources management (CRM) and reproductive health (RH) management are implemented together. The purpose of this article is to review the project's experience and highlight the trends observed in program monitoring and evaluation during 2001–2004, which suggest better impact on RH, CRM, and gender indicators in the sites where the synergistic approach is being applied.     

Response of coastal zone management programs to sea level rise in the United States

Abstract

State coastal zone management programs are responding to the potential impacts of accelerated sea level rise through a wide range of activities and policies. This article provides a brief overview of the Coastal Zone Management Act and other federal laws that provide the basis for coastal state regulatory activities. It surveys the level of response to sea level rise by state coastal management programs in 24 marines coastal states, from formal recognition to implementation of policies addressing the issue. Individual state CZMP responses and policies that have been implemented or proposed are categorized. The adaptation of sea level rise to ongoing institutional objectives is discussed and policy constraints and trends are summarized.     

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.     

Perceptions of the performance of state coastal zone management programs in the United States. II. Regional and state comparisons

A mail survey of coastal user groups, academics, and state coastal zone management program managers was conducted to determine the perceptions of the performance of state coastal zone management programs relative to the protection of coastal resources, the management of coastal development, the improvement of public access, and the management of coastal hazards. Information on the perceived importance of the selected issues to each of the 24 states being studied was also solicited. Findings on the perceptions of various categories of interest groups, academics, and program managers with respect to the overall performance of state coastal zone management programs in the four issue areas were presented in an earlier article, “Perceptions of the Performance of State Coastal Zone Management Programs in the United States”; (Knecht et al., 1996). The present article draws on a subset of these data—the responses from the coastal user groups and the academics—and presents the findings at the regional and individual state level. In terms of perceived performance of state coastal zone management programs on a regional basis relative to the selected issue areas, the highest rating went to the Great Lakes region for its management of public access. However, the North Atlantic region received the highest performance rating for the three other issue areas: protection of coastal resources, management of coastal development, and management of coastal hazards. Looking at state performance with regard to the coastal issues judged to be of most importance to the states—the protection of coastal resources and the management of coastal development—respondents indicated that states should improve their performance in both areas, with the greatest need related to the management of coastal development. Overall, the states of the North Atlantic, Great Lakes, and South Atlantic regions were perceived to be performing somewhat better relative to the four issue areas than the states in the Pacific and Gulf of Mexico regions. While the data do not shed light on the reasons for these regional differences, we suggest that, in the case of the Pacific region at least, the differences could be associated with higher expectations among the resident population with regard to environmental quality in general and coastal management in particular.     

Attitudes toward Participation in Cooperative Coastal Management: Four European Case Studies

Findings are reported of the VALCOAST project that had as one of its research objectives to ascertain: (a) stakeholder willingness to participate and cooperate in coastal management (CM), given local and national CM practices; and (b) stakeholder assessment of the "accessibility" and "friendliness" of current CM processes. The project involved case studies and stakeholder interviews in Belgium, Greece, Spain, and the UK. Major findings include: (1) most stakeholders are willing to cooperate in three out of the four case areas, but not to the same extent; (2) the participating "officials" in the case studies are expecting the stakeholders to be less willing to cooperate than the latter indicate; (3) stakeholders in all case studies do not expect to be heard by those responsible for CM, find it difficult to learn about the relevant institutional arrangements, and consider the communication of the objectives and anticipated impacts of CM policies to be inadequate. It is concluded that the strong evidence of stakeholders' potential willingness to cooperate in local initiatives is very encouraging for a devolved, regional approach to European Union coastal management policies, provided that this potential is capitalized upon in such policy processes.     

The First Step for the Environmental Management of Australian Beaches: Establishing an Effective Policy Framework

Beach management and coastal management are interwoven and scale-dependent activities in Australia. Present coastal policies are broad and designed for large, national, and statewide scales. They specify ecologically sustainable development as the overarching goal for coastal management and provide the context for beach management. On smaller scales, an approach focusing on the reduction of geomorphic hazards as the basis of beach management was established by the Coastline Hazard Policy, with nonhazard aspects of beach management such as ecological, economic, and social concerns assuming secondary importance. Although beach management can occur effectively under these coastal management arrangements, better guidance is required to make this process as effective and efficient as possible. This guidance - the policy framework - could be better developed for beach management and better integrated with existing coastal management arrangements. While this policy development is not strictly necessary to achieve positive outcomes from beach management, it is necessary to effectively guide implementation of the existing broad coastal policies. Effective goals for beach management are yet to be thought out and clearly articulated in Australia. A good start would be to couple the present goals of ecologically sustainable development and hazards reduction into a coherent goal for beach management. A specific policy for beaches should be developed given the importance of beaches in Australia.     

Initiatives in Philippine Coastal Management: An Overview

Standardized and free-format questionnaires on the state of coastal management were fielded to coastal management practitioners during three workshops and a national feedback and recommendation workshop. The most commonly cited responses were identified for each of 13 political regions and overall trends were identified. Management frameworks frequently included research, community organizing, education, livelihood, resource enhancement, resource protection, regulation, and networking components. Gender issues, documentation, and infrastructure investment were rare. The most commonly perceived environmental problem was illegal/ destructive fishing and its associated overfishing and low fish catch. The most commonly cited socioeconomic problem was the inadequacy of law enforcement. The best monitored variables were usually those related to environmental management: status and change of habitats, resources, and degree of enforcement/patrolling activities. The most common nonregulatory enhancement, aside from environmental education (which is the most popular), was mangrove reforestation. In terms of regulations, the majority of the respondents have reportedly formulated an integrated coastal management plan. In practice, regulating destructive and illegal fishing practices and then the establishment of fish sanctuaries are the next most implemented. The most popular quality-of-life enhancement strategies focused on the improvement of sustainable fishing as a livelihood and on a variety of supplementary livelihoods. The most usual institutional intervention being implemented was the setting up of local community people's organizations. Major factors which may influence success or failure of coastal management and recommendations on research, community organizing and livelihood, legislation and policies, implementation and coordination, and networking are also summarized.     

Governing Coastal Spaces: The Case of Disappearing Science in Integrated Coastal Zone Management

Scientific knowledge is central to “good” governance of coastal spaces: developing methods through which the complexities of the coastal zone can be understood by stakeholders to improve the sustainable management of coastal systems. Enhancing our knowledge of the range of processes that shape coastal spaces and define the total behavioural environment of the system remains a primary challenge for the coastal research community. However, this article raises the argument that current approaches to Integrated Coastal Zone Management (ICZM)—the preferred governing framework for the coastal environment, do not give sufficient emphasis to this fundamental need. Improving the basic scientific knowledge that underpins policymaking at the coast is argued to be urgently needed. Issues such as that of developing a communality of the purpose and approach between stakeholders within the coastal zone (through conflict resolution and access to information, for example) seem to claim the rights of the integrated management research agenda. However, the very nature of ICZM as “worthwhile coastal management” requires that integrated management represents more than a governing framework. Successful integration in coastal management must also be underpinned by knowledge of the integrated behavior of the system. Science has an increasingly marginalized position within ICZM and as a result geographers, contributing knowledge of the patterns and processes of the human and environmental landscapes, are also becoming a disappearing breed in integrated coastal management.     

Inventory,Classification, and Analysis of Special Management Areas Associated with U.S. Coastal Programs

Area-based management approaches may be beneficial in integrating sectoral, single-purpose laws and regulations; however, these benefits may not be attained if special area designations are equally sectoral or single-purpose in nature. Over 60 types of special management areas were documented under U.S. coastal programs, and a new classification scheme was developed to allow comparisons and analyses across programs. Results indicate that requirements and incentives for special area designations under the Coastal Zone Management Act did little to standardize or influence area-based management systems associated with state and territory coastal programs. Further, the absence of clear patterns within and between coastal programs with respect to special area policies suggests a limited commitment to this important aspect of coastal management. Continued research is needed to document the effectiveness of the various area-based management approaches presented in this article.     

Capacity Building for Integrated Coastal Management in Asia-Pacific: The Case for Case Studies

Development of awareness and capacity is a central component to the delivery of ICM and spans from local communities to national-level politicians. Education and training activities associated with ICM must be extremely varied to match both the existing capacity and role that the stakeholders play within the process of ICM. Consequently, there cannot be considered any effective “generic” ICM training; training must be tailored to match the requirements of target groups. The transfer and uptake of good-practice thus becomes an important aspect of quality enhancement in ICM capacity development. Six case studies from the Asia-Pacific region are presented that show diverse and innovative examples of good practice. A comparative analysis of these case studies is carried out in terms of institutional level of impact. In addition a generic systems-based evaluation framework is used to determine the extent to which the training impacts upon ICM implementation indicators. It is concluded that the exchange, transfer, and translation to local conditions of appropriate good practice in ICM capacity development can be an important element in enhancing the impact of ICM programs on the coastal environments and societies. Furthermore, there appears to be a positive link between the involvement of national/state/regional stakeholders in capacity-building initiatives and impacting a wider variety of indicators of ICM delivery.     

Integrated Coastal Management in the Philippines: Testing New Paradigms

With fisheries declining, coral reefs battered, mangrove forests under threat, pollution levels rising, and coastal communities experiencing increased poverty, the Philippines faces severe challenges in managing its coastal resources. Coastal management efforts began in the Philippines more than 20 years ago through various community-based projects. Now, integrated coastal management is expanding in the country and holds the potential to reverse the trends. This article analyzes the situation in relation to new approaches for coastal management being undertaken through the Coastal Resource Management Project supported by the United States Agency for International Development implemented by the Department of Environment and Natural Resources. This project, drawing on the lessons generated by past and ongoing coastal management initiatives, is emphasizing integrated approaches to management over narrowly focused fisheries management and habitat protection efforts. It highlights the increasingly important role of local governments and the changing roles of national government to effectively support integrated coastal management. Multisectoral collaboration is explained as standard procedure to achieve outcomes that are broad based and sustainable. Local and national level activities are contrasted and shown as essential complements in building institutionalization of resources management within all levels of government. A practical result framework is explained for measuring relative success at the local government level of implementing best practices for coastal management. Finally, lessons being learned related to collaboration, level of focus, education, and communication; who is responsible; and expansion of the project are highlighted.     

Can Coastal Management Programs Protect and Promote Water-Dependent Uses?

Anecdotal evidence indicates that commercial and recreational water-dependent uses have been under development pressure in recent years, and in some cases have been converted to other uses. The conversion of water-dependent uses, which range from commercial shipyards to recreational marinas, may have many public costs, including the loss of access to public trust waters, the loss of jobs and associated economic activity, and the loss of traditional working waterfronts. This two-part study investigated the role of five coastal management programs in the northeastern United States in managing, monitoring, and protecting water-dependent uses. First, coastal managers in Massachusetts, Rhode Island, Connecticut, New York and New Jersey were interviewed to assess the conversion problem. Second, in collaboration with New York City-based Regional Plan Association, follow-up interviews were conducted with coastal managers and local planners in Connecticut, New York, and New Jersey to gain greater insight into the role of coastal management programs and local governments in managing and promoting water-dependent uses. This article presents select findings from this study and discusses recommendations for improving the capacity of coastal management programs and local governments to manage water-dependent uses for the benefit of the public.