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.     

Coastal zone management from an administrative perspective: A case study of the san francisco bay conservation and development commission

Abstract

Competent administration of the Coastal Zone Management Act of 1972 (CZMA) must proceed on an informed understanding of the organization styles and capacities of agencies presently dealing with similar problems. One such agency, the San Francisco Bay Conservation and Development Commission (BCDC), the forerunner of the California model of coastal management, is analyzed here to shed light on where we are headed and what we can expect administratively as the CZMA becomes an operation reality.

The major administrative insights offered fall into the areas of: (1) effectiveness assessment‐the BCDC's success is systematically defined and measured, and a discussion of what effectiveness evaluation implies in the area of coastal resource management is undertaken; (2) understanding organizational success—the BCDC's administrative style is analyzed in terms of the synergy which has been created between its organizational structure and decision‐making process; and (3) implications of agency success—which of the BCDC's lessons are most valuable and how these can be applied to other situations are shown.     

Israel's coastal program: Resource protection through management of land use

Abstract

Presently, much of Israel's 190‐kilometer‐long Mediterranean coast is either unoccupied, devoted to unsuitable uses, or is in use by activities which have no special need to be near the water's edge. This has resulted from years of lack of appreciation by policy‐makers of the coast as a valuable resource, of national development policies that directed attention to other regions, and of the relatively limited demand for coastal recreation.

In the last decade the importance of these factors has diminished. In turn, there is now mounting pressure for the development of coastal land. Increasingly, rising standards of living with a greater demand for recreational facilities, the growth of tourism as a major industry, and demands of the environmental lobby for conservation of part of the coastal land are factors bound to cause intensive change along the coast and to affect the quality of its resources. These trends have brought about public intervention in deciding the future of the coast. This paper reviews and analyzes Israel's coastal policy and its resource management programs, and also discusses the potential challenges to their full implementation.

Three types of programs were suggested as the main management tools: a coastal research and development effort, national coastal land use planning and pollution prevention, and monitoring and control programs. Major objectives of the programs were to be achieved through land use controls. Consequently, an important role is given in the development and implementation of the coastal program to agencies responsible for the management of physical land use planning and development.

Successful implementation of the management program, however, will depend on the ability of its administrators to coordinate the actions of many interests, on success in changing attitudes among decision‐makers as to the value of the coast, and on widening support for coastal resource conservation among a presently uninvolved public.     

OCS development: A community's acceptance of risk

Abstract

Port O'Connor, Texas, a small unincorporated community on the Gulf Coast, was studied to assess the residents’ attitudes toward the potential growth related to Outer Continental Shelf (OCS) development. In contrast to attitudes of residents in many East Coast communities, residents of Port O'Connor do not feel threatened by OCS‐related growth. Rather, the risks they perceive result from increased tourism. They are well familiar with the social costs of tourism. They are less familiar with the social risks involved in increased OCS activities.

In terms of coastal zone management policy, this study highlights the importance of attending to the concerns of local residents for their social structure and way of life. The social risks imposed by increased OCS activity must be considered important factors in plans for OCS development.     

The Quiet Revolution in Visual Resource Management: A view from the coast

Abstract

This introductory piece traces the growth of knowledge and activity associated with visual resource management in general. A specific framework of questions regarding methods of coastal zone visual resource management is presented. The state‐of‐the‐art in methodological studies is listed for each question, and the methodological questions are related to the major articles with the special issue of the Coastal Zone Management Journal. Major legal federal statutes, state statutes, and court cases are reviewed in light of visual resource management in the coastal zone. The remaining articles within the special issue that deal with integration of VRM into decision‐making are then arrayed against a management framework. This framework includes regulatory situations for (1) public land management and planning, (2) public projects involving private lands, and (3) public regulation of private projects.     

On a clear day in Ogunquit,Maine

Abstract

Winning a court case against a federal agency may seem to be the sweetest success for an environmental group, but losing litigation is not total failure. In the case of Ogunquit Village Corporation et al., vs. R. M. Davis the plaintiff lost the legal skirmish against the Soil Conservation Service, but in doing so significantly aided the struggle within the agency to implement more environmentally sensitive planning and engineering procedures. This paper describes the court case in terms of the Soil Conservation Service's procedural and policy responses including the agency's modus operandi and the internal paths/pitfalls involved with the implementation of visual resource management. The author also speculates as to the visual resource understanding of the evidence presented by the plaintiff and a possible but unstated visual basis for the original complaint.     

Coastal management as a bargaining process

Abstract

Major challenges are ahead in managing the coastal zone of western Canada. Until now there has been no legislated focus through a coastal zone management act nor a policy for the management of coastal resources. Instead, policies and institutions have been evolving out of existing legislation responding to opportunities and needs as they have arisen. Management is predominantly a bargaining process the success of which depends on opportunities for informed participation by the affected interests. Considering the relatively small investments in management, bargaining appears to have worked rather well, but there are weaknesses. Fortunately, significant opportunities exist to improve performance at relatively low cost. In particular, there should be a shift from the past emphasis on inventorying, monitoring, and coordination, to the development of functional knowledge and sectoral planning that can be the basis for informed and representative bargaining.     

Implementation Challenges for Quota Set-Asides: Policy Analysis to Inform Fisheries Management Decision-Making

Abstract

The implementation of catch share programs can have socio-economic and ecological benefits, yet may also change the distribution of those benefits within a fishery or across communities. Quota set-asides can mitigate the impacts of these changes. During the implementation of the West Coast groundfish trawl catch share program, 10% of the quota was set aside to be used toward five goals in the Adaptive Management Program (AMP). This quota was to serve as an insurance policy during the substantial changes that were expected to occur under the new management regime. However, this program has not yet been fully developed, in part due to delayed decision-making and the controversial nature of allocating quota. Here, we examine and score six policy options for the AMP against four criteria: effectiveness, flexibility, political viability, and implementability. While each of the options has strengths and weaknesses, those that ranked highly include allocating quota pounds (QP) via the status quo and via auction. Our results highlight the drawbacks of delaying contentious decisions, where uncertainty for participants can constrain operational decisions and subsequent economic gains. We demonstrate the utility of this decision-making framework for evaluating tradeoffs between alternatives, especially for a program with multiple, competing objectives.     

Implementing coastal zone management: 1972–1990

Abstract

The implementation history of the Coastal Zone Management Act offers insights into the process of long‐term intergovernmental policy implementation. This five‐stage history is explained as a coproduction process, in which coastal state, environmental, and development advocacy coalitions interacted with congressional committees and the federal coastal office to shape coastal policy and manage coastal development. The coproduction approach proved invaluable during the Reagan assault on the coastal program, when the states and Congress assumed responsibility for keeping the program alive. Acknowledging underlying stakeholder dynamics as the basis for coastal program evaluation could strengthen future coastal management implementation.     

The heritage coast program in England and Wales

Abstract

The Countryside Commission for England and Wales has adopted a coastal management system that identifies high‐value scenic areas and manages these as Heritage Coasts. The Heritage Coast program is a collaborative one between central and local government, with the central government providing technical expertise and half the funds and local authorities providing development control and staff. The approach has been successful in having most of the important scenic areas designated as Heritage Coasts, but has been less successful at getting active on‐ground management on the coasts. Less than half the defined Heritage Coasts have management plans or Heritage Coast staff. Reasons for the slow adoption of the program are discussed.     

Editorial prologue

Abstract

The economic and environmental consequences of a proposed Louisiana superport have been studied by researchers during the last three years. These studies provided technical information and management alternatives. Management alternatives included state control to avoid multiple superport developments, details for an Environmental Protection Plan, comparisons of onshore and offshore sites, and planning for ancillary development. Policy decisions which resulted include many of the recommendations of the research. It is suggested that environmental research can influence policy decisions and limit the options available to a decision maker provided some legal structure is created, quality control is implemented, and technological and environmental problems are recognized. Various analytical tools, such as energy cost accounting, group critique, and simulation models, have wide application for use in coastal zone management.     

Marina inventory and berthing supply projections: Mississippi's Gulf Coast

Abstract

The location as well as pace of marina development is a major issue in current coastal zone management. The supply and demand for marinas providing certain services in specific locations are growing and must be met. At the same time the environmental integrity of the coastal zone must be maintained against the many possible impacts of marina development. Compounding these problems from the view of both the developer and coastal zone manager is the absence of necessary data and accepted methodologies for estimating future supply needs for marine berthing. This paper describes a multi‐focii approach to the establishment of an information base and marina supply projections for the Mississippi Gulf Coast. Data on existing marina types, services, and facilities are obtained via fieldwork; future marina slip supply needs are estimated using a combination of several techniques and data sources. The study serves two purposes. First, it initiates the basis for improved management of marina development on Mississippi's Gulf Coast. Second, on a more theoretical level, it stimulates research toward developing and validating supply and demand projection techniques for marinas.     

Regional fishery management councils and the display of scientific authority

Abstract

Natural resource management entities such as the Regional Fishery Management Councils established by the Magnuson Fishery Conservation and Management Act of 1976 depend heavily on science to inform policymakers and to legitimate the policy process. This paper discusses the importance of fishery science to the council system, contrasts the functions of Scientific and Statistical Committees (SSCs) serving the Pacific Fishery Management Council and the New England Fishery Management Council, and remarks on the implications of differences in the display of scientific authority by these SSCs.     

Evaluation of manatee habitat systems on the northwestern Florida coast

Abstract

Threats to the survival of West Indian manatees (Trichechus manatus) vary throughout their range so that protection of this endangered species requires careful planning on a regional and local basis. The importance and vulnerability of various components of manatee habitats in the Crystal River area of northwestern Florida were assessed, using an ordinal‐combination mapping technique similar to procedures practiced in urban and regional planning. Habitat components were mapped and evaluated in juxtaposition with relevant characteristics of human use of the area, to identify areas of existing and potential manatee/human conflicts in need of reconciliation. Areas evaluated as the most important manatee habitats within this region include Crystal Bay and River, Homosassa River, and the Suwannee River estuary. Existing overlap of human activities with important manatee habitats is most critical near the urban communities of Crystal River and, to a lesser degree, Homosassa Springs. The need for integration of this ecological information into coastal land‐use planning is discussed.     

Noaa's civil penalty policy: Time for a change

Abstract

This article explores the lack of uniform penalty assessment in the National Oceanic and Atmospheric Administration's (NOAA) civil penalty policy under the Fishery Conservation and Management Act (the Magnuson Act). The author sugests that NOAA's inconsistent penalty assessment invites noncompliance by fishers because they view the penalties as unfair and arbitrary. In particular, deterrence is undermined by the absence of a provision that removes the economic benefits of noncompliance. NOAA's policy is contrasted with the Environmental Protection Agency's (EPA) civil penalty policy, which uniformly assesses penalties while tailoring the penalty to the individual facts of the case and effectively removing the economic incentives of noncompliance. If NOAA implemented a policy similar to EPA's, NOAA would secure increased Magnuson Act compliance and higher penalty amounts.     

Lancaster sound regional study: Coastal and marine resource planning in the Canadian high arctic

Abstract

The Lancaster Sound Regional Study serves as a pilot project for regional planning in the Arctic. Probably the most biologically productive area of all arctic regions, Lancaster Sound represents a unique Canadian heritage. And since it occupies the strategic eastern entrance to the Northwest Passage, the Sound has long been a summer shipping route. Now, proposals are under review that would permit year‐round shipping of oil and gas from the Beaufort Sea by means of ice‐breaking tankers. Also proposed are the exploration and development of possible hydrocarbon reservoirs within the Sound. Actual decisions for the area's use must respect the interests of the native Inuit who have lived there for centuries as well as the preservation of the environment. This paper describes the preliminary phase of the regional planning for the region: the preparation of a public discussion paper to elicit informed comment and opinion on future uses of the Sound. It is a first step toward recommending suitable management and use options for the region.     

Spatial aspects of shoreline management in Puget sound reconsidered

Abstract

Shoreline management in the state of Washington attempts to provide opportunities for both urban and rural interests to express themselves. Local governments have wide latitude in determining the spatial patterns which they deem desirable. The state provides general guidelines to insure that local governments adhere to the policy of the act. On shores designated as shores of state‐wide significance the state has reserved the right to protect state interests over local interests. Since the Washington State Shoreline Management Act generally covers only 200 ft inland from the ordinary high tide line, and each local government develops its own management program, it is doubtful that nodal or spread development on a regional level in Puget Sound can be meaningfully addressed under its provisions. There may, however, be evidence of nucleation or spread patterns at the local level.     

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.     

Support for Oregon land‐use planning: A multi‐level analysis

Abstract

This article analyzes support for and opposition to state land‐use planning in Oregon, using voting records from the 1976 referendum to repeal Oregon's regulatory legislation and survey data. Support for controlled growth legislation is found to be a product of both individual‐level characteristics and characteristics of the larger community where one resides. The most influential contextual variables are the county's economy and the class composition of the city. The authors conclude that coastal zone managers must exercise caution when interpreting individual survey data which indicate support for various environmental concerns. Contextual differences must be taken into consideration because sources of support for coastal zone management may vary among individuals, depending on the nature of the communities in which they live.     

American Samoa: Establishing a coastal area management model for developing countries

Abstract

Debate over the appropriateness of U.S. approaches to coastal management procedures for developing countries has increased over the past few years. The coastal management program which was developed for American Samoa offers the opportunity to test the utility of the U.S. approach to CZM for developing nations.

American Samoa represents a blend of traditional and new cultures and thus may be a microcosm of developing countries. American Samoa's development of a CZM plan is examined with emphasis on similarities and differences with U.S. experience. A culture‐oriented framework is presented which can shape programs appropriate to developing countries. Finally, a process and a set of guidelines provide an outline for those attempting the difficult task of applying U.S. environmental planning and management to other countries.