Executive Summary

EXECUTIVE SUMMARY

California is blessed with spectacular ocean resources along its entire 1,100 mile coast. The ocean serves as a source of food, recreation, and energy resources, and provides a critical transportation link between California and other states and nations. As California moves toward the 21st century, its rapid population growth, cultural diversity, and growing economic base will continue to place demands on the State's ocean and coastal resources, making management of these resources increasingly complex.

A complicated system of laws, regulations, and specific designations have been developed over time to protect and manage these ocean resources, although these measures were developed without the assistance of a comprehensive planning and management approach. "California's Ocean Resources: An Agenda for the Future" (Agenda) helps provide this assistance; it describes California's ocean ecosystem, identifies the contribution of selected ocean-dependent industries to the California economy, summarizes the statutes and agency management roles that relate to ocean management, and identifies a mission and four goals for the State to pursue. The Agenda also analyzes 11 major ocean management issues, offers specific recommendations for addressing these issues, and provides an approach for the Governor, the Legislature, government agencies, industry, and the public to use in improving the management of California's precious ocean resources.

CALIFORNIA OCEAN RESOURCES MANAGEMENT ACT

The California Ocean Resources Management Act (CORMA; Public Resources Code 36000 et seq.) requires the Resources Agency to develop a report and plan to help manage California's economic, environmental, aesthetic, recreational, and scientific needs regarding the use and enjoyment of the State's outstanding ocean resources. The 1991 amendments to the CORMA transferred responsibility for all nonstatutory marine and coastal resource management programs to the Secretary for Resources.

CALIFORNIA'S OCEAN RESOURCES MANAGEMENT PROGRAM

The mission of the California Ocean Resources Management Program is:

To ensure comprehensive and coordinated management, conservation and enhancement of California's ocean resources for their intrinsic value and for the benefit of current and future generations.

Four goals have been established to guide the California Ocean Resources Management Program in realizing this mission.

California's Ocean Resources: An Agenda for the Future Executive Summary
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Goal 1: Stewardship. To assess, conserve, and manage California's ocean resources and the ecosystem that supports those resources.

For the purposes of this Agenda, four major resource zones are identified in California's ocean ecosystem which sustain California's ocean and coastal resources. There are at least 11 major management issues which arise in sustaining these resources in the short-term (up to 5 years) and long-term (up to 20 years). Effective management requires development of a comprehensive inventory of resources, habitats, and other features that make up the ocean ecosystem.

Goal 2: Economic Sustainability. To encourage environmentally sound, sustainable, and economically beneficial ocean resource development activities.

Seven major ocean-dependent industries in California have been evaluated to determine their economic contribution to the State and regional economies. This information is critical for placing the economic uses of ocean resources in the proper context with regard to stewardship responsibilities of the Ocean Resources Management Program.

Goal 3: Research, Education and Technology. To advance research, educational programs, and technology developments to meet future needs and uses of the ocean.

There are a multitude of research initiatives, education programs, and new technology developments relating to California's ocean resources. However, there is a need for developing comprehensive inventories of such initiatives, programs, and technologies to identify the State's most important priorities.

Goal 4: Jurisdiction and Ownership. To maximize California's interests within State Tidelands, the Territorial Sea, and the Exclusive Economic Zone.

There are numerous local, State, and federal entities with ownership of, or jurisdiction over, ocean resources in California. A comprehensive management approach is needed to address cross-jurisdictional management issues affecting California's ocean and coastal waters.

These goals can be achieved through a mix of government, private sector, and public/private partnership arrangements, but in all cases, can only be achieved through cooperative efforts and understanding among the diverse group of stakeholders in ocean resource management.

Agenda Development

This Agenda was developed in phases which included the distribution of a workplan (April 28, 1993) and a detailed summary and analysis of ocean management issues (September 27, 1993). Six coastal workshops and a legislative oversight hearing were held in November of 1993 to receive testimony regarding the summary and analysis of issues. The Resources Agency received extensive data and information in written comments and extended the comment period into the first quarter of 1994 due to the high level of interest in the project. The final Agenda will be published after written and public meeting comments on the draft Agenda are thoroughly analyzed.

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CONTEXT FOR OCEAN RESOURCE MANAGEMENT IN CALIFORNIA

To develop a context for ocean management, this Agenda summarizes the economic contribution key ocean-dependent industries make to the California economy, identifies the State and federal jurisdictions and agency responsibilities for managing the waters off California's 1,100 mile coastline, and describes California's ocean ecosystem.

Economics of Seven Ocean-Dependent Industries

The California Research Bureau conducted an economic analysis of seven ocean-dependent industries in California and concluded that these industries contributed $17.3 billion dollars to the State's economy in 1992, supporting over 370,000 jobs in California (California Research Bureau, 1993). The industries studied in the analysis include commercial fishing, mariculture, kelp harvesting, offshore oil and gas, mineral production, port activity, and coastal tourism and recreation. Of the $17.3 billion dollar total, $9.9 billion resulted from coastal tourism and recreation spending and $6.0 billion from sea ports and ship building. These findings underscore the importance of managing California's ocean resources in a sustainable manner to provide long-term economic, as well as environmental, benefits to the State. The State must continue to pursue efficient and effective processes for protecting ocean resources, while also addressing the legitimate needs of ocean-dependent industries.

Ocean Jurisdiction and Management

The waters off the California coast include a complex array of State, federal, and international jurisdictions. These jurisdictions include State Tide and Submerged Lands (State Tidelands), the Outer Continental Shelf, the Territorial Sea, the Contiguous Zone, the Exclusive Economic Zone, and High Seas. State Tidelands are owned and regulated by the State of California; however, the State's ability to control or benefit from the resources or uses beyond State Tidelands are frequently unclear under existing law and practice. Although California has been involved in issue-specific ocean management activities for over 100 years, it has been unable to establish a comprehensive ocean management regime. There is need for a more comprehensive planning and management approach to help reduce confusion, delay, or duplication in matters relating to ocean resource management. With the exception of California's Coastal Management Program, previous comprehensive planning, coordination, and research efforts have not proved to be overwhelmingly successful.

California's Ocean Ecosystem

California's ocean ecosystem, and the habitats that make up this ecosystem, must be better understood and integrated into any management strategy the State adopts. For the purposes of this analysis, these habitats are divided into four zones: the inland watershed zone, the enclosed waters zone, the nearshore ocean zone, and the offshore ocean zone. These four zones are dynamic and interdependent, forming one of the biologically richest ecosystems in the world. Management of California's ocean resources must consider habitat interdependence and be responsive to the fact that any impacts generated in one resource zone may ultimately affect resources in another zone.

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OCEAN MANAGEMENT ISSUE ANALYSES AND RECOMMENDATIONS

This Agenda identifies and addresses 11 ocean management issues that face the State of California now, or are likely to in the reasonably foreseeable future. Specific recommendations are made for addressing these issues, and are intended to help achieve the mission and goals of the Ocean Resources Management Program. Full implementation of the mission, goals, and recommendations will require a mix of government, private sector, and public/private partnership approaches.

Three chapters address natural processes and some uses which impact these processes:

Habitats and Living Resources
Water Quality
Shoreline Erosion

The remaining eight chapters address specific issues which affect ocean resources or their management:

Ports and Harbors
Oil and Gas
Vessel Traffic Safety
Tourism and Recreation
Research and Education
Information Technology
Mineral Resource Extraction
Desalination

Habitats and Living Resources

The waters off the Pacific coast include some of the richest biological diversity, or biodiversity, in United States coastal waters. California's living marine resources depend on the health of the entire ocean ecosystem to support thousands of flora and fauna species. This ecosystem includes habitats located within inland, enclosed, nearshore, and offshore waters. A variety of ocean and coastal industries, including commercial fishing, mariculture, biotechnology, tourism, and recreation, depend on the maintenance and enhancement of ocean resources located off the California coast.

Ocean species, and the ecosystem that supports them, do not adhere to political boundaries; therefore, it makes little sense to limit management efforts in such a fashion. Future ocean management should rely more on protecting and managing the habitats necessary to support California's ocean resources, and on building partnerships between government agencies at all levels, members of the public, and the private sector. Both the State of California and federal government are beginning to manage natural resources on an ecosystem basis rather than adhering to rigid jurisdictional or geographic boundaries.

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Finding. California's ocean ecosystem supports a wide assemblage of ocean and coastal life that includes plants, invertebrates, fish, seabirds, and mammals. The productivity of this ecosystem is, and will continue to be, critical to sustaining important ocean-dependent industries including commercial and recreational fishing industries, and the State's substantial tourism industry.

Recommendation A-1.

Finding. The array of California's ocean and coastal managed area designations is complex and often confusing. This complexity and confusion poses questions as to the effectiveness and enforceability of designations meant to safeguard the State's ocean and coastal biodiversity and to promote public use and enjoyment of these resources. The existing categories of State ocean and coastal managed areas along the coast and in State tidelands have generally evolved on a case-by-case basis through legislative and administrative action and by public referendum. The designations have not necessarily conformed to any plan designed to establish these managed areas in the most effective way or in the most representative or unique areas of the ocean and coastal environment.

Recommendation A-2.: Produce a single source document which includes maps of existing ocean and coastal managed areas in California (for example, parks, sanctuaries, reserves, refuges, seashores, and areas of special biological significance) with clearly stated explanations of rules, regulations, and allowed uses within each designation. The public has expressed confusion over the complexity of the existing ocean and coastal managed area designations. A single source document, accessible through the California Environmental Resources Evaluation System, would improve understanding of existing managed areas.
Recommendation A-3.: Develop a more effective and less complicated statewide system of ocean and coastal managed areas. A comprehensive program is needed, with clear criteria for creating, administering, and enforcing management measures in these specially designated areas.

Finding. Many of California's ocean and coastal fishery stocks are currently reduced and other stocks are likely to face similar declines in the near future without a comprehensive plan to actively counter these declines. The factors contributing to declines are complex and include the loss of inland and coastal spawning habitat, water pollution, natural events like drought and El Niño, and overfishing. Watersheds and their inland and coastal streams have been adversely affected by increased urbanization, agricultural practices, forestry operations, modification of waterways, and restricted water flows. The status of several fish populations is difficult to assess due to the cost and consequent lack of monitoring and assessment information upon which to base sound management decisions.

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Recommendation A-4.

Water Quality

The State of California has established ocean and coastal water quality standards pursuant to State law and responsibilities delegated by the U.S. Environmental Protection Agency. Several new

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efforts are underway to provide further protection of ocean and coastal water quality as a result of recently enacted legislation and newly developed partnership approaches.

Long-term maintenance and enhancement of the State's ocean and coastal waters can only be achieved with coordinated efforts to manage California's entire ocean ecosystem. There is growing recognition that the majority of impacts to California's enclosed waters and nearshore ocean resource zones derive from pollution transported through inland waterways leading to the ocean. However, ocean water quality can be affected by activities within any of the resource zones.

Finding. Nonpoint source pollution, or polluted runoff, is arguably the State's most significant source of water pollution, impairing estuaries, bays, and nearshore waters. An extensive system to regulate point source pollution has been in place for many years. However, reducing nonpoint source pollution in California requires the renewed commitment and cooperation of federal, State, and local agencies, local land-use interests, the private sector, and the broader public in the complicated task of managing entire watersheds. Implementing both Section 319 of the Clean Water Act and Section 6217 of the Coastal Zone Management Act will require a long-term financial commitment from the federal government to assist California in meeting these federal mandates.

Recommendation B-1.: Conduct a thorough inventory and assessment of all ongoing watershed management projects that impact California's ocean ecosystem. The majority of this information exists, but it has not been compiled in one place for the purpose of comprehensive ocean water quality management. This information should be made accessible through the California Environmental Resources Evaluation System, the data management system developed at the Resources Agency.
Recommendation B-2.: Pursue new and innovative approaches to watershed management, such as watershed conservation banks, which maximize results and the efficiency of expenditures. Water quality goals may potentially be met more effectively through existing permit processes by allowing municipalities or other permit applicants to mitigate their project impacts at regional conservation banks. This approach could yield greater benefits for water quality at reduced costs.
Recommendation B-3.: Pursue more technical and financial assistance from the federal government for supporting California's efforts to develop nonpoint pollution strategies pursuant to Section 6217 of the Coastal Zone Act Reauthorization Amendments of 1990 and Section 319 of the Clean Water Act. Solutions to nonpoint source pollution require extensive coordination and cooperation among a wide variety of participants. This level of coordination cannot be maintained without additional federal assistance.

Finding. The State of California does not have a system to comprehensively monitor water quality in the inland watershed, enclosed waters, or nearshore ocean zones. Sound water quality management decisions require a solid base of information collected from a variety of sources. Most of the existing monitoring programs are designed to measure the impacts of point source pollutant

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loads. However, the majority of California's waterways and small estuarine systems are not monitored on a regular basis. Improved monitoring will be necessary for the State of California to achieve a systematic understanding of nonpoint source pollution and to measure the effect of efforts to reduce this water pollution source.

Recommendation B-4.
Inventory existing water quality monitoring efforts and use this information to develop a comprehensive water quality monitoring program for coastal streams, bays, estuaries, and nearshore ocean waters. The monitoring data from federal, State, and local governments, and other sources of technical information, should be made accessible through the California Environmental Resources Evaluation System. The water quality monitoring program should include:

an evaluation of mechanisms for providing technical and financial assistance to local governments to monitor water quality within watersheds;
an evaluation of the effectiveness and potential expansion of citizen water quality monitoring efforts, if quality assurance and control issues for data collection can be developed and implemented; and
development of a standard protocol for sampling and data collection methods to ensure that the information generated will be useful to water quality decision makers.

Finding. Several successful programs have been developed by government agencies and non-profit groups to reduce marine debris on California beaches and in the ocean. These programs include recycling, bottle redemption, beach cleanups, and educational efforts. Many recommendations included in the "California Marine Debris Action Plan" (Center for Marine Conservation, 1990) are being pursued, such as establishing educational campaigns, providing grants to cities for promoting recycling, and collecting data on the types of trash found on beaches. These efforts and others that target control of marine debris should be continued.

Shoreline Erosion

The physical configuration of the California shoreline is dynamic and constantly changing due to coastal erosion. The rate of this erosion is determined by natural events, such as rough seas, high tides, nearshore currents, rainfall and runoff, landslides, and earthquakes, as well as human developments that restrict the sources of sand for beaches. Historically, most beaches in California were relatively narrow, but varied depending on the factors influencing erosion. In the last 20 years, the State has suffered major public and private property losses from severe erosion in such coastal areas as Marin, Santa Cruz, San Luis Obispo, Santa Barbara, Los Angeles, Orange and San Diego counties.

California's beaches, coastal bluffs, bays, estuaries, and other shoreline features are altered according to the availability of beach sand, the wave and current energy impinging on the coast, and

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other physical processes that affect the movement of sand. A constant supply of sand is necessary for beaches to form and be maintained along this shoreline. Many human activities have unfortunately reduced the supply of sand that reaches the ocean and, in turn, deprived beaches of replenishment. These activities include dam construction, river channelization, and other developments. Lack of replenishment creates greater vulnerability for shorelines that have always been subject to varying levels of erosion. There are few practical solutions to improving sand supply from inland sources, so management of shoreline erosion will likely continue to focus at the land/sea interface along the California coastline. The challenges for the State of California are to better understand its eroding coastline and to improve its assessment of how natural and economic resources can be protected.

Finding. The vast majority of the California coastline is actively eroding, which has been accelerated by natural events and human alterations to the environment. A variety of project-specific and regional approaches are available for addressing the issue of coastal erosion. Although some regional inventory approaches have been developed for coastal communities, no up-to-date statewide coastal hazards inventory is currently available. Additionally, the expertise to address these problems is distributed between several agencies in State government.

Recommendation C-1.

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Ports and Harbors

California conducts a tremendous amount of commerce through its port facilities. It has been estimated that California transports approximately 184 million tons of cargo and over three million passengers by vessel each year, representing one of the world's largest volumes of ocean trade and passenger transport (U.S. Army Corps of Engineers, 1993). With its numerous ports and intermodal links, California serves as a critical thoroughfare for the nation's increasing role in Pacific Rim trade. Trade with Pacific Rim nations accounted for 25% of the Nation's imports and exports in 1980; by 1993, that share of trade was almost 35% of the national total and rising (U.S. Department of Commerce, 1994). An economic analysis conducted by the California Research Bureau has found that, in 1992, ports and port-related activities contributed approximately $6 billion to the California economy (California Research Bureau, 1993).

The waters within California's ports also provide critical sheltered habitat for a wide variety of ocean and coastal species that are ecologically important, as well as being important to commercial and recreational fishery interests. Ocean and coastal resources are affected by port maintenance and development activities because dredge, fill and other operations within the ports can adversely impact or eliminate habitat. In addition, dredge materials are sometimes proposed for disposal at ocean sites which also can adversely impact a wide variety of ocean and coastal resources.

Finding. California's ports are vital components of the national, State, and local economies, generating over $6 billion for the California economy in 1992. Port maintenance or improvement activities, which can be achieved in an environmentally acceptable manner, are important factors in maintaining a growing port industry. State processes for evaluating proposed projects, associated mitigation measures, and monitoring procedures can be complex and time consuming. This situation is compounded by requirements of the various federal agencies that often have separate processes and standards for this development. Government agencies and ports must continue to pursue innovative planning approaches, regulatory procedures, and technical analyses that will lead to greater effectiveness and efficiency in meeting California's port development needs.

Recommendation D-1.
Improve existing processes for reviewing and acting upon port maintenance and improvement proposals. Improving the efficiency of regulatory and planning procedures is a complex undertaking due to the nature of the issues at stake, such as the type and location of development (dredging, filling, pier construction), degree of habitat impact (wetland, subtidal), and availability and suitability of mitigation options. An evaluation should consider new procedures, approaches, or mitigation strategies and should be based in part on a thorough review and consideration of the following documents, among others:

The State Coastal Conservancy's report prepared pursuant to AB 2356 (Chapter 751, Stats.1989) regarding port development and problems associated with mitigation processes. The report, to be submitted to the Secretary for Resources, will provide a number of recommendations for improving the determination and implementation of appropriate mitigation for port development projects.

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The report prepared by the California Association of Port Authorities pursuant to SB 1677 (Chapter 575, Stats.1992) regarding subtidal mitigation options, and the technical analysis of that report conducted by the State Coastal Conservancy, California Coastal Commission, and California Department of Fish and Game.
The Long-Term Management Strategy for San Francisco Bay, which is providing a consensus-based approach to dredging and dredge disposal options for the Bay.

Oil and Gas

Offshore oil and gas facilities have been operating in California since the late 1800's. Government management and regulation of these operations began with efforts to help solve mineral ownership disputes and to standardize drilling practices. However, environmental problems, brought on in part by rapid growth in the industry throughout this century, led to increased regulation.

In 1992, ocean-dependent oil and gas activities were estimated to have contributed $850 million to the State's economy, employing approximately 25,600 people (California Research Bureau, 1993). The State has had to balance economic benefits against the adverse impacts to coastal views, the health of marine resources, and air quality. Concerns regarding the cumulative impacts of offshore oil and gas development, combined with a number of major marine oil spills throughout the world in recent years, have led to a permanent moratorium in California on offshore oil and gas leasing in State waters and a deferral of leasing in federal waters. However, development on existing State and federal leases is not affected and may still occur within offshore areas leased prior to the moratorium taking effect.

Finding. Future oil and gas leasing off the California coast would likely cause unacceptable adverse impacts to offshore resources and coastal communities while providing little contribution to national energy production. A number of factors lead to this conclusion, including visual impacts, navigation risks, drill muds and cuttings disposal practices, air quality impacts, oil spill risks, ecosystem degradation, and uncertain cumulative impacts from existing, approved, proposed, or projected developments.

Recommendation E-1.

Finding. The cumulative impacts of offshore oil and gas operations for existing or future development in State Tidelands and the Outer Continental Shelf are poorly understood. New leasing is currently not allowed in State or federal waters offshore California, yet new developments can still be proposed on existing State or federal leases. A substantial number of undeveloped leases exist along the California coast, such as the federal waters within the northern Santa Maria Basin offshore San Luis Obispo and Santa Barbara counties.

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Recommendation E-2.: Study and evaluate the cumulative impacts of oil and gas production in State Tidelands and the Outer Continental Shelf. The oil and gas industry, State of California and Department of the Interior's Minerals Management Service have not produced sufficient information regarding the cumulative impacts of offshore oil and gas development. Currently, the Minerals Management Service's Pacific Outer Continental Shelf Region is conducting a cooperative federal/state/local government study to evaluate methods for reducing the onshore impacts in San Luis Obispo, Santa Barbara, and Ventura counties from further development on currently leased Outer Continental Shelf tracts. If successful, this type of cooperative approach could be used to study and understand other types of cumulative impacts from offshore oil and gas developments.

Finding. The State of California has determined that transportation of crude oil to refinery centers by pipeline substantially reduces the potential adverse impacts of oil transportation. The California Coastal Act declares that, "transportation studies have concluded that pipeline transport of oil is generally both economically feasible and environmentally preferable to other forms of crude oil transport." [PRC 30265(b)] This amendment to the Coastal Act was made in 1984, with supporting studies dating back as far as the early 1970s. The State should continue to facilitate discussions between the oil and gas industry, local government, and the public regarding proposals to construct pipelines for transporting oil.

Finding. The State of California has developed a substantial capacity to help prevent oil spills and respond to those that do occur, but each major spill response can be used to identify methods for improving that capacity. The Office of Oil Spill Prevention and Response (OSPR), and the authorities created by the Oil Spill Prevention Act of 1990, are establishing new and innovative approaches to oil spill prevention and response in California. In this regard, emphasis should be placed on completing and implementing the objectives of OSPR's Coastal Protection Review, which is required to ensure that the best achievable protection measures are implemented to prevent and respond to oil spills along the California coast.

Finding. Many offshore oil and gas platforms are reaching the end of their design life and decisions must be made regarding the most appropriate methods to rehabilitate, use, or dispose of these facilities. The current policies and regulatory procedures regarding offshore platforms that have reached the end of their design life reflect a goal of restoring production sites to pre-project conditions. This policy fails to consider other abandonment alternatives, such as creating artificial reefs. The abandonment of each offshore production system involves independent regulatory processes and case-by-case decisions on what to do with the production platform, buoy systems, subsea pipeline systems, and any associated marine terminals or onshore facilities.

Recommendation E-3.: Develop an approach to determine whether offshore oil and gas platforms that have completed their design life should be retrofitted, removed, or partially left in place. Retrofitting platforms could extend their drilling life and increase the amount of oil and gas resources which may be recovered without any new facility development. Removal of outdated facilities could reduce navigation hazards, eliminate visual impacts, and eliminate future

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spills from residual oil deposits which may remain within subsea pipeline systems. Leaving facilities partially in place could reduce the costs of abandonment and/or allow conversion of platforms to potential reef habitat.

Finding. The use of extended reach drilling technology can allow the production of offshore reserves from onshore locations. This technology can reduce many, though not all, adverse impacts historically encountered with oil and gas development from offshore locations. Extended reach drilling can take the place of offshore oil and gas platforms which have substantial impacts on the marine environment. However, onshore drilling operations can have direct impacts on local communities and onshore resources, depending on their location and operational procedures. This technology would be most appropriate if sited with existing industrial developments.

Vessel Traffic Safety

The waters offshore California and within its ports are used for shipping by U.S. and foreign flag tanker, cargo, and passenger ships, as well as barges. Substantial volumes of petroleum products are transported off the California coast from Alaska and foreign countries, and between California production sources. The Los Angeles, Long Beach and San Francisco Bay ports include some of the highest volume oil transfer facilities in the United States. Unfortunately, collisions or ship groundings off the California coast, or within its sometimes congested ports, can occur as a result of these operations.

These waters are also used by other watercraft, such as sport and commercial fishing vessels and recreational vessels. While the vast majority of vessel transits are conducted safely, a number of unfortunate shipping mishaps and near misses in recent years have focused national attention on the issue of vessel traffic safety.

Finding. Vessel traffic safety off the California coast remains a major policy concern for California. While significant progress has been made in improving vessel traffic safety both offshore California and in its ports, the State must continue to identify and evaluate appropriate government and private sector solutions or methods for reducing vessel traffic hazards. For instance, the harbor safety committees established pursuant to the Oil Spill Prevention and Response Act of 1990 (Chapter 1248, Stats.1990) have made recommendations regarding vessel traffic safety and have developed consensus-based measures to reduce the risk of vessel accidents within or on approach to major ports in California. The Harbor Safety Committees have established partnerships, resulting in new vessel traffic information systems, improvement to existing information systems, and setting standards for the use of tug escort vessels to reduce the risk of vessel groundings or collisions.

Recommendation F-1.

Implement the measures necessary to further reduce vessel traffic hazards within port areas or off the coast. Specifically, the State should:

consider expanding the jurisdiction of Harbor Safety Committees to assist with vessel traffic safety issues at offshore marine terminal mooring operations;

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consider establishing Vessel Traffic Information Service systems in Santa Monica Bay and the Santa Barbara Channel, similar to those in the Los Angeles/Long Beach harbors; and
urge the U.S. Coast Guard, in coordination with the Office of Oil Spill Prevention and Response, to complete ongoing evaluations and initiate measures for reducing offshore vessel traffic hazards, such as:
- establishing an area to be avoided by tanker traffic off the coasts of Northern and Central California to keep all vessel traffic a safe distance from the California coast;
- altering the San Francisco Traffic Separation Scheme to allow tankers to approach San Francisco Bay from transit routes located farther offshore; and
- stationing emergency rescue vessels in strategic locations along the California coast, equipped to tow a disabled vessel, fight fires, or assist in spill response.

Tourism and Recreation

California's coast is a major destination for visitors on both business and leisure travel, with an international reputation for beautiful sandy beaches, rocky intertidal areas, and massive coastal headlands creating opportunities for a wide range of coastal experiences. Maintaining and enhancing California's ocean ecosystem is critically important for those who wish to swim, surf, sail, or fish in clean and productive ocean waters. These and other recreational opportunities also contribute substantially to the economy of the State and the nation.

The California Comprehensive Offshore Resource Study indicates that 86 cents of every dollar spent on tourism statewide in 1986 was spent within coastal counties (State Lands Commission, 1994). The California Research Bureau's economic analysis prepared in support of this Agenda determined that ocean and coastal tourism and recreation contributed $9.9 billion to the State's economy in 1992, making it the largest spending component of the seven ocean-dependent industries included in the analysis. Therefore, it is in the State's interest to encourage ocean and coastal recreational activities and tourism, which is being done through various public and private promotional programs. At the same time, the State must ensure that tourism and related activities are compatible with environmental protection goals and that conflicts between user groups are managed properly.

Finding. California's ocean-dependent tourism and recreation industry has developed as a result of the State's international reputation for clean ocean waters, spectacular views, diversity of marine species, and numerous ocean-based recreational opportunities. As human populations continue to expand, pressures on coastal and ocean resources will increase. California's ocean resources must serve the needs not only of Californians, but also visitors from around the world. Management strategies should help stimulate sustainable ocean and coastal tourism, but they must also address impacts to California's ocean ecosystem. As environmental and marine education

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becomes more prevalent in our society, the public is demanding environmental protection to ensure the maintenance of productive ocean and coastal waters.

Recommendation G-1.: Improve the potential for sustainable ocean and coastal tourism by including an ocean and coastal focus in the annual marketing plan developed by the Trade and Commerce Agency's Division of Tourism. This focus should include methods to further quantify the economic contributions of ocean and coastal tourism to the California economy, as well as provide a program to promote environmentally sound and sustainable ocean and coastal tourism in California.

Finding. Conflicts between personal watercraft users, surfers, windsurfers, kayakers, and commercial and recreational boaters are increasing in congested port and high use open ocean areas, while other uses, such as chum for attracting white sharks for tourism, are creating additional conflicts. These conflicts are now being addressed on a case-by-case basis by different levels of government and the private sector, but regional or statewide solutions may need to be crafted in the future to address some of the more serious conflicts.

Research and Education

A substantial number of public and private programs have been developed in California to help educate the general public about ocean resources. Formal curricula in ocean sciences now exist for children in Kindergarten through grade 12 and for college students within California's State colleges and universities. In addition to educational programs, ocean research is conducted through a variety of programs at the college level. The California Sea Grant Program provides valuable program guidance and funding for a variety of ocean research programs throughout the State.

Exciting challenges await the research community with the vast potential for developing new and innovative ocean technologies. This information and technology development will be critical in achieving the ocean stewardship goal identified in this Agenda. Additionally, this research can help achieve economic goals by providing the technical basis for encouraging environmentally sound, sustainable, and economically beneficial ocean resource development activities.

Finding. The State lacks a comprehensive listing of current or recent ocean and coastal research activities being conducted by or funded through the State of California. This information is needed to determine what research categories have received priority in the recent past, and where limited State funds should be spent in the future. The Ocean Research and Goals Statement adopted by the Resources Agency Sea Grant Advisory Panel (RASGAP) emphasizes the need to support scientifically sound research that addresses key coastal or ocean resource management, policy, science, and engineering issues that face the State of California now or in the reasonably foreseeable future

Recommendation H-1.: Develop an inventory of current or recent State-funded ocean and coastal research activities to ensure that limited State funds are spent on needed ocean and coastal research. The research priorities established by the

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RASGAP should be used in conjunction with such an inventory to help determine where limited research funds can provide the maximum benefit to the State of California.

Finding. California has high quality ocean education curricula and programs, but lacks a central directory to identify them. Educators and students frequently have difficulty identifying curricula and programs that focus on ocean education. Although many excellent programs have been developed to distribute this information, a centralized directory available through on-line computer services would provide even greater access.

Recommendation H-2.: Develop and make available through on-line computer services a central directory of ocean education programs in California. This directory should include, at a minimum, curricula and programs available for K-12 and college programs, as well as the resources available in each program. The directory would need to be updated regularly and should be made accessible through the California Environmental Resources Evaluation System.

Finding. Although California's colleges and universities have substantial ocean science research and education capacities, they lack an established ocean policy program. California has had to reconcile major ocean policy questions over the years concerning a wide variety of ocean and coastal development proposals and natural resource management disputes. Ocean policy graduate education programs currently exist in other states and, although some courses are offered at California institutions, a full interdisciplinary ocean policy program has yet to be established.

Recommendation H-3.: Develop an ocean policy program within California's private or public colleges or university systems. Developing such a program will help maintain California as a leader in ocean policy and management. California has extensive expertise in the policy, scientific, and legal aspects of ocean management which could be used to develop one or more such programs within the State.

Finding. California has been a leader in developing ocean technologies by proactively seeking and promoting their research and development. Much of this research and technology development was the result of expenditures by the military and offshore oil and gas industry, both of which have substantially reduced expenditures on such research. New technical developments in ocean-related energy generation and storage, biotechnology, shipping safety, submersible technology, and communications can provide substantial benefits to society if fully developed. These developments can be stimulated through joint federal, State, and industry partnerships.

Recommendation H-4.: Promote ongoing research into emerging ocean technologies and develop the government/private sector partnerships to carry out these research initiatives. The California Sea Grant Program can provide a start, but new initiatives with substantially higher levels of public and private investment should be explored to stimulate new technology research. In addition, ocean information and technology, not previously available to the public, is now being made available through the U.S. Navy and other government

California's Ocean Resources: An Agenda for the Future Executive Summary
The Resources Agency of California July 1995 (Draft)

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and private sector organizations, and could provide valuable data for new technological developments.

Information Technology

Ideally, California's natural resource managers should have at their immediate disposal the best available data and information for resource management, planning, and regulatory efforts. However, in reality these managers are often forced to develop plans or implement regulatory policies based on generalized, incomplete, and sometimes inconsistent information. Ocean managers, unlike their counterparts on land, are faced with the onerous task of tracking resources that may lie above, below, or on the surface of the sea, in addition to the land resources that impact the ocean ecosystem. For the regulated community, project costs on land or offshore can increase if environmental, economic, engineering, or regulatory information necessary to determine project feasibility or acceptability is not available. Timely access to geographically located information is critical for both policy makers and others who need to rapidly assemble the complicated scientific, planning, or regulatory processes that apply to a certain geographic area. Many technologies currently in place or being developed are revolutionizing the way we gather and analyze information about California's natural resources.

Finding. California will benefit substantially by developing and using innovative technical approaches to increase our understanding of California's ocean ecosystem, as well as developing methods to display, analyze, and communicate this information. These technical innovations will improve the efficiency and effectiveness of California's ocean ecosystem management. The pilot geographic information system being developed by the Department of Fish and Game in the Monterey Bay Area will provide a system to demonstrate the many applications of this technology for ocean management efforts. Developing an ocean resources geographic information system should continue to be a top priority, as it will provide a critical management tool for ocean managers and will be an important component of the CERES.

Mineral Resource Extraction

Mining operations for sand, gravel, stone, and salt exist within both enclosed coastal waters and in some nearshore waters along the California coastline. The federal government is exploring the most appropriate locations to initiate new offshore mining of sand and gravel resources, although no new offshore operations are currently being proposed in California. Mineral extraction in deep ocean waters off California's coast have been considered in the past, but were dismissed due to technical, economic, and environmental considerations. However, deep ocean operations may be proposed again in the future.

Recreational mineral collecting or extraction also occurs along the California coast. For example, jade has been collected for years by scuba divers within Jade Cove, a small stretch of Big Sur coastline located within State tidelands and the Monterey Bay National Marine Sanctuary. The majority of jade collecting is for relatively small pieces used in personal collections or for sale after polishing or sculpting. Restrictions applicable to these practices have been the recent subject of regulatory revision by State and federal agencies.

California's Ocean Resources: An Agenda for the Future Executive Summary
The Resources Agency of California July 1995 (Draft)

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Desalination

Desalination, the process of converting saline water into potable water, has provided a limited source of water for some of California's coastal communities. This technology can be invaluable for coastal and island communities whose groundwater supplies have been reduced or eliminated by events such as droughts and salt water intrusion, and when no other sources are available. Thus, desalination receives increasing attention in drought years when water supplies become greatly threatened or diminished, while in above-average water years, permit requests for desalination facilities are frequently withdrawn. Due to the high cost and energy demand of the desalination process, it is rarely the first choice as a water supply alternative. Therefore, facility proposals are generally not made when conventional water sources are available. The current drought-response approach to desalination forces local governments and the State to conduct expedited review of these facilities during scarce water periods. Currently, neither the State nor most local governments have a long-term contingency plan regarding use of desalination plants for potable water production.

Finding. Desalination can be an important technology for ensuring a reliable coastal water supply. Desalination is used in several locations along the California coast, although it is relatively expensive and can have adverse environmental impacts. The State should encourage research on how to minimize the costs and inherent environmental impacts associated with use of this technology.

ACHIEVING GOALS: ACCOUNTABILITY AND COORDINATION

Attaining these objectives, however, is complicated by multiple agencies of jurisdiction, each with respective mandates and responsibilities that are sometimes conflicting and other times duplicative. What is self-evident to even a casual observer is the need to simplify and bring more cohesiveness to ocean management. This task is best accomplished by those entities involved in the day-to-day management of California's ocean resources. For these reasons, effective ocean resource management and implementation of the priorities identified in this Agenda would be enhanced by increased coordination efforts at the State level.

Recommendation:: Convene a State cabinet-level ocean resources management coordinating council, composed of agency and department directors with ocean resource management responsibilities, to help integrate the multiple agencies and programs of ocean and coastal jurisdiction. This council would provide a cabinet-level forum intended to formulate comprehensive consensus-based approaches for resolving California's ocean resource management issues. Only the most important and controversial ocean management issues should be raised to the level of the council. It should meet on a regular basis and seek the advice and recommendations of the interested public, private, or governmental parties ("stakeholders") who work with these issues on a regular basis, but final decision-making authority would reside with the inter-agency members and their respective departments, boards and commissions. This process will provide the regular communication link necessary for these agencies to form a cohesive system of ocean management for California.

California's Ocean Resources: An Agenda for the Future Executive Summary
The Resources Agency of California July 1995 (Draft)

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