2297.COV_P 4/5/13 2:47 PM Page 1 oceanSAMP

The Rhode Island Ocean Special Area Management Plan: Managing Ocean Resources Through Coastal and Marine Spatial Planning A Practitioner’s Guide

2013 By Jennifer McCann and Sarah Schumann With Grover Fugate, Sue Kennedy, and Chip Young Monica Allard-Cox, Editor 2297.COV_P 4/5/13 2:38 PM Page 2 2297.P01_23_P 4/10/13 7:29 PM Page 1

The Rhode Island Ocean Special Area Management Plan: Managing Ocean Resources Through Coastal and Marine Spatial Planning

A Practitioner’s Guide

2013 By Jennifer McCann and Sarah Schumann With Grover Fugate, Sue Kennedy, and Chip Young Monica Allard-Cox, Editor

ATMOSP ND HE A RI IC C N A A D E M I C N O I S L T

A R

N

A

O T

I

I

T O

A

N N

U .S E . C D R E E P M A M RT O MENT OF C 2297.P01_23_P 4/10/13 7:30 PM Page 2

Additional copies of this publication are available from the University of Rhode Island Coastal Resources Center/Rhode Island Sea Grant College Program by contacting (401) 874-6107 or [email protected]. Visit the web site at http://seagrant.gso.uri.edu/.

Loan copies of this publication are available from the National Sea Grant Library, Pell Library Building, University of Rhode Island Bay Campus, Narragansett, RI 02882-1197.

This publication is sponsored by the Rhode Island Coastal Resources Center and the Rhode Island Sea Grant College Program. The U.S. Government is authorized to produce and distribute reprints for governmental purposes notwithstanding any copyright notation that may appear hereon.

This document should be referenced as: McCann, J. and S. Schumann, with G. Fugate, S. Kennedy, and C. Young. 2013. The Rhode Island Ocean Special Area Management Plan: Managing Ocean Resources Through Coastal and Marine Spatial Planning. University of Rhode Island Coastal Resources Center/Rhode Island Sea Grant College Program, Narragansett, R.I.

Graphics consultant: Kim Plosia

All photos property of URI Coastal Resources Center/Rhode Island Sea Grant College Program except where noted.

ATMOSP ND HE A RI IC C N A A D E M I C N O I S L T

A R

N

A

O T

I

I

T O

A

N N

U .S E . C D R E E P M A M RT O MENT OF C

2 2297.P01_23_P 4/5/13 12:05 PM Page 3

Table of Contents

Foreword ...... 4

Creating the Ocean SAMP The Process ...... 7 The Area ...... 8 The Team...... 8 The Data ...... 10 The Policy Cycle ...... 13 The Funding ...... 14 The Goals & Principles ...... 14 The Stakeholders ...... 17 Ocean SAMP Implementation Encouraging Appropriate Development ...... 24 Monitoring Requirements for Development ...... 27 Coordination...... 28 Putting the Ocean SAMP into Practice...... 30 A Living Document...... 31 Conclusion ...... 31 Ocean SAMP Resources and Research The Ecosystem...... 33 Cultural and Historical Resources...... 36 Commercial and Recreational Fishing...... 38 Transportation and Navigation Resources ...... 41 Recreation and Tourism Resources ...... 43 Climate Change...... 47 Prospective New Uses of the Ocean SAMP...... 48 Assessing Progress Marine Spatial Planning as a Tool ...... 52 Tracking the Process of Coastal Governance ...... 52 Tracking the Outcomes of Coastal Governance ...... 54 Assessing the Achievement of the First Order Outcomes ...... 55

Acronyms...... 61

Literature Cited ...... 62

3 2297.P01_23_P 4/10/13 7:30 PM Page 4

how the ocean waters off of Rhode Special Area Management Plan Island are already being used by (Ocean SAMP), the finished product Foreword people and wildlife, develop regula- accommodates present uses and tions to minimize conflict between responsibly accounts for the By JENNIFER McCANN uses, determine where offshore re- emergence of new ones. It is now, and GROVER FUGATE newable energy should be sited and and always will be, a dynamic, managed, and gain public approval adaptive plan. and buy-in for the process and its In 2008, we found ourselves with the future goals. This venture would The Ocean SAMP is helping Rhode project of a lifetime: the opportunity demand that we apply our existing Island decide, as collaboratively and to give the state a comprehensive knowledge of coastal management openly as possible, where it makes regulatory plan for its ocean waters tools and techniques to the ocean the most sense for people to do that reflects exceptional science, realm, a bigger challenge than any many things: build offshore renew- rigorous yet flexible policies, and ex- of us had faced before. able wind turbines, fish commercially tensive public participation—a plan and recreationally, protect habitat, that would give Rhode Islanders a Now, thanks to innumerable skilled, sail and race boats—the list is long significant role in determining how talented, and concerned individuals and varied. The array of coastal the state’s offshore waters should be and organizations that daily brought management tools and strategies developed, or simply be left alone. their best thinking and brightest to achieve that aim is equally far- talents to the task, Rhode Island has ranging, and includes strengthening The project seemed daunting. In two an ocean spatial plan that is a leading federal consistency capabilities and years—a short time frame, as coastal national model for how to both coordination policies, establishing and ocean planning goes—we would develop and implement such a plan. advisory boards, and ensuring that try as fully as possible to understand Called the Rhode Island Ocean major stakeholders and regulatory agencies are connected to the effort as it moves into implementation.

It was developed through a process designed to honor traditional uses A healthy economy and a healthy ocean go hand and reduce conflicts. Its policies reflect science and stakeholder in hand. This plan enables both. This plan will involvement. We have established a diverse team of experts who have create jobs, while helping to meet the White created the University of Rhode Island Center of Excellence for House’s energy goal of reducing the nation’s use Ocean Spatial Planning and Offshore Renewable Energy, and nurtured a of oil by one-third by a little more than a decade partnership with other organizations, including Roger Williams University from now. in Rhode Island, Cranfield University in the United Kingdom, and Den- DR. JANE LUBCHENCO, mark’s University of Aarhus, that FORMER UNDER SECRETARY OF COMMERCE FOR continues to grow and prosper. For Rhode Islanders, the Ocean SAMP, 4 OCEANS AND ATMOSPHERE AND NOAA ADMINISTRATOR 2297.P01_23_P 4/5/13 1:54 PM Page 5

“The ocean is critical to our economy and our an area that includes a body of water together to identify and help resolve almost the same size as the entire habitat concerns. Federal agencies, way of life here in Rhode Island. The SAMP is state, has been able to: including the Bureau of Ocean an important tool that relies on both science Energy Management, are required • Provide 54 percent of the entire to fully employ the content of the and public input to help us develop strategies study area with increased Ocean SAMP and its process as they ecological protection make decisions on future wind to protect and manage our ocean and coastal • Identify a 13 square-mile renewable turbine development and siting. energy zone in state waters that resources. The Ocean SAMP could help set directs development to a location The pages of this publication the national standard for developing a with the least conflict between describe the Ocean SAMP process, as existing uses and the natural well as present some of the strategies comprehensive and cooperative approach environment, while streamlining that were applied to achieve its goals. the regulatory process As we start sharing lessons learned to state and regional ocean resource • Place Rhode Island in a powerful with others from prior planning and position to determine how and current implementation, others can management.” where development should take collaboratively “SAMP” their coastal place in nearby federal waters and ocean waters. U.S. SENATOR JACK REED • Provide a specific and required framework that constructively We invite you to explore this engages major stakeholders includ- practitioner’s guide. It is exciting and ing fishermen, alternative energy rewarding to be able to share Rhode proponents, environmentalists, Island’s ocean planning effort and scientists, federal and state agen- help build the capacities of other cies, the Narragansett Indian tribe, coastal places—perhaps yours—to and concerned citizens in the ensure the protection and use of implementation of the Ocean SAMP marine resources for this and • Streamline the regulatory process ongoing generations. for the installation of offshore wind turbines, while minimizing the impact on natural systems and SIGNATURE IMAGE existing activities such as com - Jennifer McCann mercial and recreational fishing Director of U.S. Coastal Programs, URI Coastal Resources Center New science continues to provide the Director of Extension Programs, Ocean SAMP with better information Rhode Island Sea Grant College to implement regulatory actions in Program both federal and state waters spe - cifically for offshore wind turbines. Developers are required to meet with fishermen from Rhode Island and Grover Fugate neighboring Massachusetts as devel- Executive Director opment proceeds. Researchers and R.I. Coastal Resources Management environmentalists are working Council 5 2297.P01_23_P 4/10/13 7:30 PM Page 6

A SPECIAL PLAN FOR A SPECIAL PLACE: Creating the Ocean SAMP

6 2297.P01_23_P 4/5/13 12:07 PM Page 7

and surrounding federal waters in The CRMC holds regulatory authority The Energy The Process order to identify how this region is to manage most activities in state used, and guide balanced manage- waters, which extend 3 miles from Imperative Rhode Island’s Ocean Special Area ment of its human and natural re- shore. Responding to the governor’s Management Plan (Ocean SAMP) is sources in keeping with the state’s call for streamlining the regulatory a multi-pronged planning tool built environmental, social, and economic process for wind turbine installation, on three integrated approaches: needs and concerns. and recognizing the need for addi- In 2007, Rhode Island research, policy making, and public tional information and public buy-in Governor Donald Carcieri engagement. Each of these ele- Federal approval by NOAA soon in order for this to be a successful and the state’s Office of ments provides a unique perspective followed in summer 2011. According project, the Council proposed to the Energy Resources deter- on the Ocean SAMP area; combined, to Jane Lubchenco, under secretary governor the development of an mined that tapping Rhode they provide a comprehensive, of commerce for oceans and atmos- Ocean SAMP. (See next page) Island’s offshore wind versatile and powerful means to phere and NOAA Administrator, the resources would be an manage this valuable resource. Ocean SAMP “takes into account all The Ocean SAMP is not a final essential step to meeting ocean uses for enhancing commer- answer, but a start—a start to the state’s goal of deriving In October 2010, the R.I. Coastal cial, recreational, and environmental ensuring that Rhode Island manages 16 percent of its electrical Resources Management Council goals. This plan is what President its ocean waters not only to protect power from Rhode Island’s (CRMC) formally approved the Obama envisioned in the National its riches of natural resources, but own renewable sources by 2019. state’s Ocean SAMP. The document Ocean Policy, and it sets a great to promise they will be there for maps Rhode Island’s ocean waters example for other coastal states.” generations to come. The governor invited repre- sentatives from Rhode Island munici palities, the state’s envi- ronmental community, maritime businesses and industry, and governmental officials to partici- pate in discussions regarding the development of offshore wind energy in state waters. A study developed on behalf of this group determined that offshore wind farms could supply 15 percent or more of Rhode Island’s electricity. The study also showed that 10 specific areas in state waters were suitable for consideration as wind farm locations, based on existing information and considering the “monopile” wind turbine structure, which could only be installed in waters no deeper than 25 meters.

7 2297.P01_23_P 4/10/13 7:31 PM Page 8

CREATING THE OCEAN SAMP The Area

What’s a SAMP? The waters featured in the Ocean SAMP research and planning process begin 500 Special Area Management Plans - SAMPs are ecosystem-based feet seaward of the Rhode Island coastline management strategies designed to preserve and restore ecological and stretch as far as 30 miles offshore, systems. Recognized at the federal level as a regulatory document, SAMPs encompassing portions of Block Island are developed and implemented in coordination with local municipalities, as Sound, Rhode Island Sound, and the well as government agencies and community organizations. Plan elements incorporate the best available science and are amended as new research Atlantic Ocean. This 1,467 square-mile and issues arise. area, nearly the size of the state itself, was selected for special attention due to its Through more than 100 public meetings and a public review period that ecological, economic, and cultural value to garnered over 2,000 responses, everyone from large advocacy groups to Rhode Island. Although portions of the individual community members expressed their connections to the Ocean Ocean SAMP region lie beyond the 3-mile SAMP area and their concerns about its future use. Some spoke of a direct reach of Rhode Island jurisdiction, the economic interest in the area’s resources, others of the recreational fulfill- entire area is vital to the state’s way of life. ment they derive from its use, and many more of its ecological role in con- serving and enhancing regional marine life. All emphasized the importance of using caution when permitting future uses, and of the need to under- stand and address, before the fact, potential impacts from these uses. The Team By contributing content and commentary to the SAMP document, stakeholders helped craft a governance system for the Ocean SAMP area Creation of the Ocean SAMP was aided by that will serve the public’s needs in the long run. The role of stake holders having scientists and project management did not end with approval of the Ocean SAMP document; various ongoing professionals at URI undertake the stakeholder advisory panels give the public a permanent role in guiding necessary research, outreach, and project Ocean SAMP implementation. coordination. These experts had hands-on experience with the study area and the Over one hundred scientists played a significant role in working with SAMP process. They also lived in the state regulators and stakeholders on better understanding the natural or nearby region, giving their work per- environment and also the potential effects new development, including offshore renewable energy, could have on Rhode Island’s offshore system. sonal as well as professional significance. With Ocean SAMP adoption achieved and implementation underway, Rhode And because many of the people involved Island continues to better understand state ocean waters and the tools with had already established close working which marine resources can be managed and enhanced for decades to relationships from prior projects, the plan come. was able to move forward more quickly. It also aided project managers in identifying This is evident in the state’s effort to make full use of its federal con sistency such things as who worked well together authority, and to secure a “geographic location description”— a designation and who could work under pressure and that will streamline the state’s input to federal decisions concerning devel- deal comfortably with the public, which opment applications in the Ocean SAMP area. Ongoing research projects maximized everyone’s overall contribution. continue to provide new information about the organisms, habitats, geology, 8 and human uses significant to the area. 2297.P01_23_P 4/5/13 12:08 PM Page 9

9 2297.P01_23_P 4/10/13 7:39 PM Page 10

The Organization

As seen on the organizational chart, special legal, scientific, CRMC looked to URI—particularly its boundary area, stressing future-use stakeholder, state, and federal committees were set up to ensure Graduate School of Oceanography, priorities, and identifying conflicts ample engagement by all parties in the process. (Because New York, Department of Ocean Engineering, and possible impacts on the marine Connecticut, and Massachusetts abutted the study area, relevant College of the Environment and Life environment. As for a potential wind state agencies from these three states also served on the state Sciences, and Rhode Island Sea farm, it was an open question agencies committee.) The intent of setting up legal and scientific Grant College Program—to play whether there would be any place leadership roles in the development at all suitable for offshore wind committees was to ensure that major aspects of the Ocean SAMP of the SAMP. turbines, and if so, where and how initiative were reviewed, and advice provided by these experts. should this new industry be man- Unfortunately, because of the accelerated Ocean SAMP process URI was respected by many aged in a way that minimized con- timeline—among other factors—these two committees were not as resource users, state and federal flict with existing and future human effective as expected. Major legal and scientific decisions were agencies, academics, and non- uses, and the natural ecosystem? necessary on a daily basis, and there was no time to wait what governmental organizations for its might have been weeks to coordinate schedules and set up meet- ability both to facilitate an open and High-level decision makers at URI ings. The Ocean SAMP management team therefore changed its transparent process, as well as to were key to making things happen. initial operational process, and involved legal and scientific experts provide objective, science-based For example, Graduate School of from the committees individually, rather than as a group. research. Members of this URI team Oceanography academic deans

had previously completed six other served on the management team,

SAMPs for other coastal ecosystems and attended bi-weekly meetings } throughout the state, and had expe- to assist the project leaders in rience in facilitating discussions be- overcoming political, technical, and

PROJECT MANAGER tween organizations and individuals administrative challenges that that SENIOR ADVISOR SENIOR ADVISOR Grover Fugate Malcolm Spaulding Dennis Nixon Executive Director with intense conflicts. They were could have stalled the process. URI Ocean URI Graduate School RI Coastal Resources Management Engineering also able to develop and implement of Oceanography Council (CRMC) a communications strategy that CO-PRINCIPAL INVESTIGATOR CO-PRINCIPAL INVESTIGATOR engaged all stakeholders, and COMPARATIVE } Policy & Outreach Data Acquisition POLICY ASSESSMENT Jennifer McCann Sam DeBow utilized diverse media outlets (e.g., WORKING GROUP URI Coastal Resources Center URI Graduate School web, public lectures, and stake- The Data /RI Sea Grant of Oceanography holder meetings) to reach the public. To identify research needs, the

STRUCTURES & FOUNDATIONS The project team also involved the team reviewed the federal Bureau STATE FEDERAL Roger Williams University School of of Ocean Energy Management AGENCY AGENCY ENGINEERING OUTREACH & DATA SYNTHE- Law Marine Law Institute, home of (BOEM)-required information for FINANCE/ ADVISORY ADVISORY COMMUNI - SIS & SAMP GEOSPATIAL DATA ADMIN CATIONS FORMULATION the Rhode Island Sea Grant Legal offshore wind siting and installation, PHYSICAL OCEANOGRAPHY Program, to provide legal expertise the Cape Wind Environmental Im- HUMAN pact Statement, the topics discussed OUTREACH GEOSPATIAL DATA as the plan was being developed. INFO MGMT ACTIVITIES LEGAL SCIENCE in other Rhode Island SAMPs, and ADVISORY ADVISORY MARINE MAMMALS & TURTLES TASK TASK Unlike the state and federal gov - spoke to many of the stakeholders. NATURAL MEDIA FORCE FORCE EVENTS FEATURES AIR QUALITY & METEOROLOGY ernment agencies involved, URI’s SITING STUDY – GEOLOGY ETC. charge was not to determine where Early on, Rhode Island Sea Grant POLICY & MIS CRMC PR held a multi-day event with re- GOVERNANCE STAKEHOLDER BIRDS offshore wind energy turbines WORKING searchers who had, over the years, GROUP should be placed. Rather, it was to MARINE ARCHAEOLOGY do an overall strategic mapping of researched different aspects of the the waters in the Ocean SAMP Ocean SAMP study area to gain a 10 2297.P01_23_P 4/5/13 12:53 PM Page 11

Expanding the Research Focus

The management team regularly met with the researchers to ensure that the research was responding to the issues and could be incorporated into the development of the SAMP. The Ocean SAMP team developed a set of questions that was constantly asked of the researchers. These questions included:

Describe how your findings help us understand how the SAMP study area functions as an ecosystem that is 1 heavily impacted by human activities. Has your research identified areas, processes, or resources that should be protected, conserved, or otherwise 2 given special consideration by the SAMP? To the best of your knowledge, what has your work revealed that may be relevant to designating areas suit- 3 able/unsuitable for activities such as marine transportation, wind turbines, fisheries, recreational boating, etc.? What, in your opinion, are the potentially significant unknowns in your topic or in the SAMP area that are 4 relevant to the use-zoning and policy development process for the Ocean SAMP? Identify the unknowns you will likely be providing us at the end of your research.

As you look to the future and the likely trajectory of change in human activities and ecosystem conditions 5 over the next 50 years, what are the changes that may be anticipated in the features of the SAMP area? What are the potential implications of such changes as we consider use zoning and the siting of wind farms?

Are there specific recommended actions (e.g., regulatory, policy, management) you would like the Ocean 6 SAMP to support or implement in response to your findings? 7 What do you think the implications of global climate change will be on your research topic?

This process enabled the team to move research activities beyond simply data-gathering and analysis into the shaping of policy and providing a future vision for the area. In the long run, that resulted in two important decisions made by the management team: n To designate all waters less than 20 meters in depth to be areas of preservation where no large-scale development would be allowed, which was directly based on the research done by URI and international avian experts. n To determine the location of the renewable energy zone, which was directly attributable to models by the ocean engineers, seabed characterizations and other research completed by geologists and physical oceanographers, and the information collected from discussions with Ocean SAMP stakeholders.

11 2297.P01_23_P 4/5/13 12:09 PM Page 12

CREATING THE OCEAN SAMP

better understanding of available team to complete necessary In the effort to learn as much as information. Through this process additional research tasks. possible about the Ocean SAMP not only was the most current and area, researchers conducted a broad published information identified, The process of prioritizing the array of research activities, including: but several insightful but overlooked research as well as describing its gray literature and dissertations scope was shared during stake- • Assessing coastal and offshore bird were discovered in the URI library. holder meetings and through the abundance and distribution Stakeholders identified existing web site. When a researcher was through land-based, ship-based, economic studies done by consult- going out on a research vessel or and aerial bird counts ants, and retired university profes- deploying a buoy to collect data, • Performing archaeological surveys sors stepped forward to provide the Ocean SAMP team sent out a to identify submerged cultural sites economic data—thought to be description to the stakeholders of • Mapping the ocean floor and its nonexistent—on past international what was happening, what they geological features, using sonar, sailboat racing regattas, such as the should look for, and why this re- grab-samples, and underwater renowned Newport-to-Bermuda search was going on. When possible, video cameras race. Team members also contacted this was captured and disseminated • Mapping commercial and European researchers as well as on video to provide stakeholders recreational fishing grounds professionals working in the oil and more information on the process. collaboratively with fishermen gas industry to identify existing re- • Measuring phytoplankton pro- search on the economic, biological, Whenever possible, researchers ductivity, using water samples and environmental effects of employed local fishermen to gathered by fishermen offshore oil and gas development. engage in the Ocean SAMP research. • Mapping recreational uses through Fishermen felt that more research consultation with charter boat The research topics were prioritized should be done on fishing and captains, sailing regatta organizers, and projects planned based on the fisheries, and pointed the team dive boat captains, and whale issues identified and the gaps in in the right direction based upon watch guides existing information. their local knowledge. The Ocean • Gathering a complete oral history SAMP team appropriately incor- of the Narragansett Indian tribe Early in 2011, some scopes of work porated this as the research agenda • Considering the impacts of climate were revised once the team realized was developed. In addition, the change off Rhode Island’s shores that the developer was not focusing team met with Narragansett Tribal based on projections of current just on waters shallower than 25 representatives periodically to regional trends meters, to accommodate monopile exchange information and share • Modeling the meteorological, wind energy turbines. Instead, due results. (There were attempts to acoustic, and wave environments to new technology, the preferred invite tribal members onto the of the Ocean SAMP area in order developer proposed to install a research cruises; however, this never to identify appropriate sites and “jacketed turbine design,” with succeeded.) One major tribal con- possible impacts of wind turbines which the viable depth for installa- cern was that a geologist might look • Developing an index to rank sites in tion now could reach to 60 meters. at something as a researcher and terms of their suitability for wind In addition, in 2011, more funds were not consider its value or significance turbine installation provided to the team by the state to the tribe. and the U.S. Department of Energy, which allowed the Ocean SAMP 12 2297.P01_23_P 4/10/13 7:31 PM Page 13

The Ocean SAMP Timeline A Strategic Process for Effecting Change August 1, 2008 – July 31, 2010

More sustainable forms of coastal development In order to ensure the public and the Ocean SAMP team was clear on the process and when the different components of the policy cycle were planned to be implemented, the team developed a gen- eral timeline. To maintain accountability, the timeline was featured at every major meeting and prominent on the web site.

Step 1: Step 2: Step 3: Issue Identification/ SAMP Formal Assessment Preparation Adoption

JULY 2008 JULY 2009 JULY 2010

• Define boundaries, • Review goals and • Formal hearings goals and principles boundaries and reviews of the draft SAMP • Set up public • Develop objectives engagement and policies • Adoption of the policy cycle. Major components of SAMP by CRMC The Policy Cycle this cycle included the need to: • Prepare technical • Draft SAMP chapters information • Submit to federal To develop the Ocean SAMP • Develop time-bound and measur- • Continue to conduct agencies for process, the SAMP team applied able social and environmental • Identify issues/ research approval the policy cycle developed by the goals that were supported and concerns and URI Coastal Resources Center, understood by all user groups opportunities • Develop burdens which had helped create the state’s • Build support from well-informed first coastal management policy in resource users of proof for permit the 1970s. • Develop sufficient capacity to both • Prepare draft applicants develop and implement the Ocean ecosystem and • The process, adopted by the SAMP use zone maps United Nations, is a five-step ap- • Obtain formal adoption of the proach to plan and track ecosys- Ocean SAMP at both the state and tem-based management projects federal levels over short-term and long-term time frames. The team focused on completing steps 1 through 3 in the 13 2297.P01_23_P 4/10/13 7:32 PM Page 14

CREATING THE OCEAN SAMP

University agreed to donate the use The Funding of its research vessel, the Endeavor, The Goals & to complete many of the required Although the Ocean SAMP team research activities. This in-kind Principles initially requested $6 million to support totaled at least $1 million. complete the SAMP, the state ini- The Ocean SAMP team believed tially only provided the effort with Because the major driver for this in establishing goals that would $3.2 million from the Rhode Island project was to identify locations for respond to the priority issues identi- Renewable Energy Fund. Several wind farm placement that would fied by the stakeholders, and define months later, the state recognized have the minimum impact on exist- desired societal and environmental that the SAMP process would likely ing uses, the Ocean SAMP required a outcomes. Although the proposed put Rhode Island in the lead on off- significant amount of new informa- wind power projects made accom- shore renewable energy installation tion, and most of the funding was plishing these goals all the more and additional funds ($2.8 million) devoted to research. Although also urgent, the goals themselves reflect were provided by the Rhode Island significant, the smallest component a more comprehensive approach to Economic Development Corpora- of the budget was the SAMP docu- managing ocean resources for the tion. During Year 2, the U.S. Depart- ment development and outreach. benefit of the many users, human ment of Energy also contributed This aspect of the budget was ap- and otherwise, that depend on funds ($666,050) to fill in data gaps plied to project management, includ- them. This strategy produced the and continue research activity. Over ing developing the supported goals, following set of goals everyone 200 members of the URI faculty and sharing the information with the working on the project, including staff also recognized the significance public and decision makers for the the stakeholders, sought to adhere of this project, and many of them formation of policy, synthesizing the to in creating the final plan. dedicated a significant amount of science, and writing the document. their state-funded time to the com- pletion of the effort. In addition, the Goals

FOSTER A PROPERLY FUNCTIONING ECOSYSTEM THAT IS BOTH ECOLOGI- CALLY SOUND AND ECONOMICALLY Estimate of Ocean SAMP Funds Distribution BENEFICIAL. The marine ecosystem off Rhode Island’s shores provides a YEAR FUNDING AMOUNT SYNTHESIS OF GENERATING SAMP DOCUMENT ADMIN. (APP.) range of environmental, economic, SECURED (IN MILLIONS) EXISTING INFO NEW INFO DEVELOP & AND SOURCE OUTREACH and social benefits. But prior to the Ocean SAMP, gaps in understanding 2010 $3.2 (RI) 40% 15% 35% 10% of this environment stymied com- prehensive management of the area. 2011 $2.8 (RI) 10% 80% 0% 10% Accordingly, a major goal of the Ocean SAMP is to improve knowl- 2011 $0.61 (DOE) 30% 40% 20% 10% edge about the area’s ecology and to create policies that restore and 2011 $1 (In-kind) 20% 80% 0% 0% maintain its integrity and resilience. Attaining this goal requires adaptive policies to safeguard the natural 14 2297.P01_23_P 4/10/13 7:32 PM Page 15

INITIAL PUBLIC CONCERNS

The Ocean SAMP team knew stakeholders and to provide Ocean SAMP Place-Based Issues from the start that the issues them with the information they (Turbine-specific) surrounding the project, no- needed in order to feel more tably the placement of offshore comfortable with the process. • Wind turbines will restrict wind turbines, would be con- fishing and business tentious. In many cases, such as Some of the initial concerns • Collisions with the turbines for those involved in the fishing stakeholders expressed by boats will be significant industry, people felt their liveli- included: • The area’s marine life and hoods were being threatened. wildlife will be harmed Others were worried about Ocean SAMP Process-Based Issues • Tourists will hate looking at possible threats to the ocean the turbines, as they spoil the environment and wildlife. • This is a “done deal” since the natural vista developer of the wind farm • Power cables are going to Despite their misgivings, many was selected and sites were affect the health of marine of the individuals and groups identified prior to the Ocean life, wildlife, and all Rhode affected became immediately SAMP process Islanders involved in the process using the • The developer will have more vehicles created by the Ocean access to the information and The Ocean SAMP team worked SAMP team. While being under- the public will not be treated to bring these concerns to the standably concerned, fishermen, equally attention of stakeholders and shippers, sailors, and others • Stakeholders will not have project staff alike, and back- were also open to the new influence over siting or any and-forth discussions allowed science and research being other regulations everyone involved to under- conducted on the area before • The timeframe is too short to stand the issues more clearly in passing judgment on the project. do a well-thought-out process order to find an agreeable solu- • How can the Ocean SAMP tion. The trust built between Thanks to a formal but flexible really reduce the permitting the Ocean SAMP team and all stakeholder process that was de- time frame for the installation the stakeholders over the signed to encourage input and of offshore wind turbines? course of developing the plan participation by as many people • How can the Ocean SAMP be helped in great part to resolve and civic organizations as possi- just a routine program change many of these issues. ble, many voices were heard. to the state’s coastal program The team strived to find the and not require a major re- right way to engage the various view by NOAA?

15 2297.P01_23_P 4/5/13 12:10 PM Page 16

CREATING THE OCEAN SAMP

resources of the area in the face of climate change, current human uses, and potential impacts of new uses. Setting the Goals

PROMOTE AND ENHANCE EXISTING We learned that goals and principles cannot be formalized during the USES. Many different uses take first months, but should be developed once the project team and man- place in the Ocean SAMP area; all agers have engaged in constructive dialog and once the stakeholders contribute to Rhode Island’s vibrant have a better feel for the project. Eventually, the stakeholder issues will maritime culture. In support of these be incorporated into the goals and principles. This does not mean the uses, there needs to be a focus on stakeholders are 100 percent in agreement with the project, but at least improving understanding of existing they know their opinions and concerns are being taken into considera- activities in the Ocean SAMP area, tion, that they are legitimate and recognized members of the planning building productive relationships process, and that the project team is responding to their issues. We with current resource users, and publicly acknowledged stakeholders’ list of concerns and posted it on the crafting policies to minimize project web site, and we proposed ways the Ocean SAMP team would re- potential negative impacts on spond to these issues, including providing experts to respond to them. the way the area is currently We also worked with stakeholders to document how, where, and when employed by identified and the stakeholders used the marine ecosystem in the study area and how projected future uses. that interaction affected the natural resources. We feel that this process developed a mutual respect among project staff and stakeholders, and ENCOURAGE MARINE-BASED that this helped us ultimately to create a workable and credible plan. ECONOMIC DEVELOPMENT THAT CONSIDERS THE ASPIRATIONS OF LOCAL COMMUNITIES, AND IS CONSISTENT WITH AND COMPLE - determine appropriate roles for Principles MENTARY TO THE STATE’S OVERALL future activities, including offshore ECONOMIC HEALTH, FULLY renewable energy, in the Ocean Several key principles were created INTEGRATED WITH SOCIAL AND SAMP area. to guide the collaborative devel - ENVIRONMENTAL NEEDS AND GOALS. opment of the Ocean SAMP. The New uses of the ocean environment, BUILD A FRAMEWORK FOR COORDI- principles responded to the issue of such as offshore wind farms, have NATED DECISION-MAKING BETWEEN information being available at the the potential to spur economic STATE AND FEDERAL MANAGEMENT same time to everyone involved, and development and advance progress AGENCIES. The Ocean SAMP area to ensure that decisions were not towards societal goals, such as contains both federal and Rhode made behind closed doors or reducing greenhouse gas emissions. Island state waters, and abuts the without input from the entire group. However, to assure a net benefit to state waters of Massachusetts, These principles also helped to society, the promise of new uses Connecticut, and New York. In light ensure that user groups understood must be balanced with the benefits of the multiple jurisdictions affected and actively supported the Ocean of protecting ecosystems and by uses within this area, engaging SAMP goals, there was wide public current uses. For that reason, it is combined federal and state agencies support for the Ocean SAMP paramount to develop decision- in all phases of the Ocean SAMP process, and the Ocean SAMP was making tools, standards, and process is necessary, all the while recognized as important and legiti- performance measures to help promoting regular communication mate by institutions that would be among neighboring states. involved in its implementation. 16 2297.P01_23_P 4/5/13 2:09 PM Page 17

“What the stakeholder process confirmed is DEVELOP THE OCEAN SAMP DOCU- the impact of an activity on the • Collect available information to MENT IN A TRANSPARENT MANNER. ecosystem before that future use is direct research and policy that Rhode Islanders Transparency guides the develop- approved. These studies might in- development strongly and enduringly ment of all documents and proce- clude gathering information on base- dures related to the Ocean SAMP line resource conditions, potential The SAMP team contacted value the waters off project. Project activities and phases environmental and economic impacts, organi zations large and small when their coast. What takes are designed to be easily under- and possible mitigation measures. forming the stakeholder group. In standable to the general public. addition to formal groups, members place in these waters is Accurate information must be made ESTABLISH MONITORING AND EVAL - of the public were invited to attend important to life in available to the public in an appro- UATION THAT SUPPORTS ADAPTIVE meetings and were granted equal priate, diverse, and timely manner. MANAGEMENT. Incorporating footing with the organizations. Due Rhode Island. The monitoring and evaluation in the to the visibility of this effort, the Ocean SAMP as a INVOLVE ALL STAKEHOLDERS. Ocean SAMP will contribute towards Ocean SAMP team used an experi- marine spatial plan is a Targeted outreach efforts ensure implementing a systematic process enced, well-respected facilitator opportunity is available for all stake- for continually improving manage- familiar with the team and the issue, vital expression of those holders to have access to the Ocean ment policies and practices—in other who worked as a volunteer to lead valuations. The Ocean SAMP planning process as early as words, adaptive management—in an the monthly stakeholder meetings possible. Stakeholder participation environment exposed to constant and serve as an additional liaison to SAMP is more than a ensures that a broad range of issues, change. The SAMP process is flexible the group’s members. scientific and technical concerns, and creative ideas are enough to react to such changes, heard and examined throughout the and allow plans to be revised in due During one of the first meetings, document; it is an SAMP process. course. A strong stakeholder the ground rules for the stakeholder expression of the process, coordination among federal process were set down clearly and HONOR EXISTING ACTIVITIES. and state regulatory agencies, and a firmly: That the Ocean SAMP stake- interests of the State.” The Ocean SAMP area is a highly transparent monitoring and evalua- holder process would be a compre- KEN PAYNE, employed and biologically and tion mechanism ensures this activity. hensive and meaningful involvement economically valuable place, with of the stakeholders through operat- STAKEHOLDER FACILITATOR major uses such as fishing, recre- ing principles which described group ation and tourism, transportation, processes and member roles. This and military activities taking place The Stakeholders included the following: within its boundaries. These uses, One of the major components of along with the area’s biology and • The stakeholder process will the Ocean SAMP process was the habitat, must be fully understood respect that there are legitimate development of the stakeholder and highly respected as decisions and informative minority views process. There were three main for the incorporation of future and concerns that need to be objectives in bringing together as activities are determined. recognized and recorded many interested groups and • Stakeholder meetings will have individuals as possible: the dual purposes of first, provid- BASE ALL DECISIONS ON THE BEST ing participants information about AVAILABLE SCIENCE. All management • Identify and prioritize stakeholder and regulatory decisions will be based what is happening in the devel- and client issues on the best available science and on opment of the Ocean SAMP, and • Design a public process that would ecosystem-based management second, hearing from stakeholders provide stakeholders with both approaches. The Ocean SAMP will and the public, regarding their access and influence over decisions require that the necessary studies be positions, opinions, and 17 performed to better understand perspectives CREATION 2297.P01_23_P 4/5/13 12:54 PM Page 18

One Stakeholder’s Story CREATING THE OCEAN SAMP Doug Harris is the Preservationist for Ceremonial Landscapes for the Narragansett Indian Tribal Historic Preservation Office. These comments were taken from an interview with him at the 2012 Ronald C. Baird Sea Grant Science Symposium on international marine spatial planning.

“In the first stakeholder meeting at the University of Rhode Island, I was one of the first people to stand up to present, and I explained to the rest of the stakeholders there that the oral history of the Narragansett Indian Tribe says that more than 15,000 years ago, the ancient villages of the Narragansett were out where the ocean is now. And that, as the story goes, the ocean waters began to rise and the people had to evacuate. So what I presented to the stakeholders was, ‘What will you do or what will this process do about these ancient sites that may, in fact, still be intact down under the sediment of the ocean floor out on the continental shelf?’ That question sort of floated around the room for a number of sessions, and a year and a half later, the ocean geologists came back and said that their studies had determined that not only 15,000 years ago, but as long ago as 24,000 years ago, what is now the ocean was an open and grassy plain out on the continental shelf.”

• The chairperson will seek to have Ocean SAMP issues and become support existing events that offer the discussion at stakeholder involved in the creation of the plan. the project team and stakeholders meetings be vibrant, and explore an opportunity to better nuances of meaning and the value The Ocean SAMP team set specific understand issues of issues and concerns raised, objectives to reach this goal: • Develop communication tools that while placing a priority on assuring will provide up-to-date information that all persons are fairly heard and • Ensure all stakeholders and citizens to all those involved and to the their views considered have an opportunity to engage, public as a whole and are provided access to The overall goal of the stakeholder researchers and decision makers process was to engage a well-in- and influence over the final plan formed and well-represented con- • Organize educational and infor - stituency that would understand the mational outreach efforts and/or 18 2297.P01_23_P 4/5/13 12:13 PM Page 19

Strategies for stakeholder where over time people’s networks involvement tend to interweave in ways that may not occur in a larger population. The CONSIDER BOTH TRADITIONAL AND team identified members who had NON-TRADITIONAL STAKEHOLDERS. an existing relationship with each The team met with all stakeholders stakeholder group to initiate dis - individually to identify their specific cussions. In this case, the project issues. These groups included, but leader from the state coastal council were not limited to, fishermen, the already had an existing relationship marine trades industry, the Narra- with the local Narragansett Tribe, gansett Tribe, and local unions. so he facilitated that discussion. Ocean SAMP staff explained the Other team members with strong project, ensured the stakeholders relationships with municipalities and knew they were invited to fully the fishing community did the first participate in the development of outreach there. It was important to the Ocean SAMP, and determined meet stakeholders in small groups. appropriate mechanisms to ensure In addition, at least two project team stakeholders were engaged if the members attended every meeting proposed activities (e.g., monthly with stakeholders. Sometimes one stakeholder group meetings, web person on the team could pick up site) were not adequate. on an item the other did not notice. As the process moved forward, ASK OTHERS TO IDENTIFY STAKE- stakeholders had the luxury of HOLDERS. Based on recommenda- reaching out to different members tions from the stakeholders, the team of the team with whom they were met with individual citizens and/or comfortable or had a prior working organizations who had a special relationship. At times, stakeholders story to tell or who had a direct link preferred to contact and ask a to the SAMP that may not have been “silly” question of a graduate clearly evident. For example, re- student rather than the head of searchers were initially not aware the coastal zone management that shark diving was an active program. All questions were infor- industry within the Ocean SAMP mally collected and shared with area, a commercial enterprise that the entire team. This helped project was in danger of being overlooked. staff to respond more effectively to what was on the minds of the DETERMINE IF ANYONE ON THE TEAM stakeholders. HAD AN EXISTING RELATIONSHIP WITH SPECIFIC PEOPLE OR ORGANI- RESEARCH PRIOR TO MEETINGS WHAT ZATIONS. The Ocean SAMP team STAKEHOLDERS’ INTERESTS WERE, realized that the personal touch was AND ANTICIPATE AND RESPOND TO always best wherever it could be THEIR QUESTIONS. The Ocean SAMP utilized. It was also a practical team understood prior to their meetings that fishermen would be consideration in a very small state, 19 2297.P01_23_P 4/5/13 12:55 PM Page 20

CREATING THE OCEAN SAMP Ocean SAMP Stakeholders

Ken Payne, volunteer moderator Dan Beardsley, Rhode Island League of Cities Karina Lutz, People’s Power & Light and Towns Mike Marchetti, ENESA Jeff Broadhead, Washington County Regional Gregg Mataronas, SPFA Planning Council Steve Medeiros, RISAA Paige Bronk, City of Newport Robert Mushen, Town of Little Compton John Brown, Narragansett Indian Tribe Ray Nickerson, Town of South Kingstown Chris Brown, RICFA Eleftherios Pavlides, Wind Power RI Project, RWU Alison Buckser, Rhode Island Chapter of the Sierra Club Margaret Petruny-Parker, CFRF Charlie Cannon, Rhode Island School of Design Ted Platz, RIMA Jeffry Ceasrine, Town of Narragansett David Prescott, Rhode Island Chapter of the Surfrider Foundation Paul Costabile, NMPA Michael Ryan, National Grid Vicki deAngeli, Jamestown Chamber of Commerce Paul Sanroma, Rhode Island Wind Alliance Lanny Dellinger, RILA Bill Silkes, Ocean State Aquaculture Association Julio DiGiando, Jamestown Town Council Evan Smith, NBCCVB Denny Dillon, RIPCBA David Spencer, Atlantic Offshore Lobstermen’s Association Tina Dolen, Aquidneck Island Planning Commission Keith Stokes, Newport County Chamber of Commerce Charlene Dunn, Charlestown Town Council Larry Taft, Audubon Society of Rhode Island Bernard Fishman, Rhode Island Historical Society Darlene Towne Evans, South Kingstown Richard Fuka, RIFA Chamber of Commerce Gina Fuller, Westerly Town Council Kathleen Wainwright, TNC Kim Gaffett, Town of New Shoreham Russell Wallis, OSFA Myrna George, South County Tourism Council Wendy Waller, STB Tricia Jedele, CLF Laurie White, Greater Providence Chamber Doug Harris, Narragansett Indian Tribe of Commerce Debbie Kelso, Narragansett Chamber of Jessica Dugan Willi, Block Island Tourism Commerce Council Michael Keyworth, RIMTA Ronald Wolanski, Town of Middletown John F. Killoy III, Rhode Island AFL-CIO

20 2297.P01_23_P 4/5/13 2:12 PM Page 21

concerned about access and possi- these concerns were reflected in meetings or at outreach events, and ble impacts on all aspects of fish and the SAMP document. Stakeholders sent the summary to the people who the fishing industry. The team reviewed the SAMP chapter by offered their input. For the fisher- learned that the fishermen were ex- chapter, and CRMC established an men, the team wrote up their issues tremely concerned about the poten- extended comment period for the of concern as they were perceived tial effects that electromagnetic final document to allow extensive and ways in which the team could fields and noise (e.g., pile driving) public input. best respond to their needs, and would have on fish. Team leaders most importantly, followed up on invited European experts to meet PROVE YOU ARE LISTENING. The team any agreed-upon actions. This work with the fishermen to discuss the wrote down what members heard at was also posted on the web site. more advanced European fisheries experience. The team recognized that environmental organizations would be very concerned about wildlife, and was able to respond comprehensively to those concerns. One aspect, however, that was not anticipated was that environmental attorneys were very concerned about what “real” regulatory power the SAMP would have. In response, the team organized special meetings among NOAA legal staff and the concerned organizations to discuss this critical, long-term issue.

LISTEN AND UNDERSTAND. Team members recognized that stake holders should not have to always go to Ocean SAMP events; rather the team established a two-way street for learning and communication, which included having members of the Ocean SAMP team attend or participate in stakeholders’ events. Additionally, in meeting with stakeholders, the team not only asked about their concerns, they also asked stakeholders spe - cifically what they would like to get out of the effort. The team sought to address issues personally or through arranging meetings with experts, and they also ensured 21 2297.P01_23_P 4/5/13 12:16 PM Page 22

CREATING THE OCEAN SAMP

Eventually, an entire section of the MEET FREQUENTLY WITH LEGISLA- MAKE THE PUBLIC AWARE OF YOUR site was dedicated to this communi- TORS AND FEDERAL REPRESENTA- SHARED EFFORTS. Team members cation with the fishing community. TIVES. At the very beginning of the encouraged stakeholders to play an SAMP process, the team met for active, visible role in the process, in- IF STAKEHOLDERS ARE NOT ENGAG- background briefing sessions with cluding asking stakeholders to write ING, CALL THEM AND MEET AGAIN. state legislative leaders and the opinion pieces or co-author them The Ocean SAMP team frequently Rhode Island Congressional dele- with SAMP members for publication communicated with the stakeholders gation (and/or their top aides) to in local news outlets. who would clearly be the most answer their questions and ensure impacted or would have expertise they understood the process, so that CULTIVATE STRATEGIC PARTNERS. to contribute to the effort (e.g., when a constituent contacted them, The Ocean SAMP team worked to fishermen, government, tribal rep- they could respond accurately and develop strategic partnerships with resentatives, and trade unions). appropriately. The Ocean SAMP organizations for mutual benefit. For One-on-one meetings were the most team repeated this process when example, the Ocean SAMP team effective. Phone calls or Skype were significant new information joined with Rhode Island Natural second resorts, but distance be- emerged. At each briefing session, History Survey (RINHS), a local tween offices made those methods team members asked policymakers organization active in environmental most practical in some cases. Team to contact them if they heard education issues, to organize a public members tried to minimize use of something that contradicted the lecture series on the environmental e-mail, as the ability for intentions or information the team had provided effects of offshore wind turbines, as information to be misinterpreted or them with. This helped legislators well as to hold a conference on the poorly understood is high. respond quickly to their constituents same topic. The Ocean SAMP team with the correct information, which was able to promote marine planning benefitted both the legislators and to a diverse audience on a topic that the project’s ultimate success. many people—especially RINHS

22 2297.P01_23_P 4/5/13 12:56 PM Page 23

were aware of the progress to date. Backgrounding briefings with media, politicians, and major local organ izations not only worked to build trust, but also offered answers to questions those groups would likely be asked. This helped to avoid confusion and address misrepresen- tations by opponents of the project.

TAKE CARE OF THE TEAM—THE MOST IMPORTANT STRATEGY OF ALL In a project of this magnitude, in which a number of individuals with different specialties worked on different aspects of the larger plan, it might have been easy for team members to feel that they were working alone. Project leaders worked to set aside time was for everyone to share what he or she was hearing on the street or learning from the new research. This was of particular help at times when frustrations mounted or an individual faced personal attacks when reaching out in public situations members—were extremely passionate organi zations were also part of the on an issue as controversial as the about. The RINHS benefited in bring- communications strategy. The team plan could appear. Efforts made to ing a critical issue to its membership partnered with the public libraries take care of the team proved with financial and planning resources to enable researchers to share their extremely important in ensuring provided by the Ocean SAMP. information in public forums and that the team remained strong provide citizens a chance to ask and healthy, and maximized the DEVELOP DIVERSE COMMUNICATIONS. questions. The team also joined individuals’ strengths and expertise. The Ocean SAMP team developed forces with Rogers Williams Uni- While long hours were common, different mechanisms to communi cate versity, Rhode Island Sea Grant, and project leaders strove to make information: a web site, listserv, and the RINHS to organize events on members of the team rest when they podcasts to summarize information, in specific legal, environmental, and needed it. The team also regularly addition to traditional public relations ecological aspects of the effort, celebrated successes—even if that and printed outreach materials. and all benefitted by pooling their was just recognition at a meeting or financial resources to make the going out to lunch. These actions Annual public reports, monthly most impact at least expense. were very important in building trust stakeholder meetings, and indi - Team leaders also met with the and camaraderie within the team. vidual stakeholder meetings with media and state and federal fishermen and environmental gov ernment leaders to ensure they 23 2297.P24_31_P 4/5/13 12:22 PM Page 24

Ocean SAMP Implementation

24 2297.P24_31_P 4/10/13 7:33 PM Page 25

Implementing the Ocean SAMP Working Group (JAWG) composed Monitoring requirements involves several activities, from of all federal and state agencies with for development enhancing policies with the knowl- a regulatory responsibility towards a edge gleaned from new research, proposed project, as well as the Nar- The Council, in coordination with the to testing marine spatial planning ragansett Indian Tribe. The function JAWG, shall determine requirements tools and techniques for improved of this group is to work collabora- for monitoring prior to, during, and ecosystem-based management, to tively in determining project-specific after construction. Specific monitor- sharing the SAMP lessons learned requirements to be followed during ing requirements shall be deter- with other places. Going forward, as construction, operations, and de- mined on a project-by-project basis even more data is collected and used commissioning of a project, includ- and may include but are not limited to support and refine state policies, ing those pertaining to monitoring to the monitoring of: the SAMP will increasingly provide and mitigation of adverse impacts guidance on offshore development in that the project may cause. i. Coastal processes and physical state waters. The table on page 26 oceanography offers the current permitting stipula- To foster sound permitting decisions, ii. Underwater noise tions for new development in the improve knowledge of the Ocean iii. Benthic ecology Ocean SAMP area, requirements that SAMP area, and enable adaptive iv. Avian species will continue to be honed as more is management that responds to v. Marine mammals learned about the potential impacts impacts of development as they are vi. Sea turtles and benefits of development on detected, the Ocean SAMP requires vii. Fish and fish habitat ocean resources and uses. developers to track ecological and viii. Commercial and recreational human-use trends at a project site fishing before, during, and after construc- ix. Recreation and tourism Encouraging appropriate tion. Prior to the start of a project, a x. Marine transportation, naviga- development developer must submit two data- tion, and existing infrastructure based documents: a pre-construc- xi. Cultural and historic resources The Ocean SAMP recognizes off- tion Site Assessment Plan (SAP) shore renewable energy as an option detailing the studies that it intends RECREATIONAL BOATING: The Council to mitigate climate change, create to perform for characterization of shall require, where appropriate, that jobs, and diversify Rhode Island’s the project site, and a Construction project developers perform system- energy base. It establishes a thor- and Operations Plan (COP) outlining atic observations of recreational ough and transparent offshore construction, operations, and de- boating intensity at the project area development permitting process commissioning plans for a proposed at least three times: pre-construction, oriented towards realizing the prom- facility. Pending approval of the SAP during construction, and post- ise of offshore renewable energy and COP, a developer must fund an construction. Observations may be while avoiding significant adverse independent review of the design, made while conducting other field impacts on ecological and long- fabrication, and installation of a pro- work or aerial surveys and may in- standing human uses of the area. posed facility to certify that the proj- clude either visual surveys or analysis ect complies with sound engineering of aerial photography or video pho- To assure that permitting decisions practices. Once a project is under- tography. The Council shall require, are well-informed and complemen- way, the JAWG determines a suite where appropriate, that observations tary to the regulatory requirements of monitoring requirements that a capture both weekdays and week- of relevant agencies, the Ocean developer must follow. ends and reflect high-activity periods SAMP establishes a Joint Agency including the July 4th holiday 25 2297.P24_31_P 4/5/13 12:30 PM Page 26

IMPLEMENTING THE OCEAN SAMP Summary of Permitting Requirements for New Development in the Ocean SAMP Area

Permitting Requirement Ecological Resources Cultural & Historical Fishing Resources Transportation Resources Recreational Resources Resources

CRMC will deny or modify Adverse impacts on natural Adverse impacts on cultural, Significant long-term (greater Significant impacts on Significant impacts on proposed new uses with resources, particularly fish historical, and tribal resources than two seasons) adverse marine transportation and marine recreation and potential for the spawning and nursery in the Ocean SAMP area impacts on fisheries stocks navigation tourism or on the eco- following: habitats and practices logical services support- ing wildlife viewing opportunities

When making permitting Habitat Advisory Board Federal and state agencies Fishermen’s Advisory Board The U.S. Coast Guard, the Recreational boating decisions, the CRMC will (six members appointed from and the Narragansett (nine members, from R.I. and U.S. Navy, the U.S. Army organizations consult with the non-profit and research Indian Tribe MA) and other interested Corps of Engineers, following: communities) commercial and recreational NOAA, marine pilot fishermen organizations, and marine safety organizations

Survey requirements Physical, geological, and Assessment of potential Fish and fishery uses in a Risks posed by a project Recreational boating in- (vary by project): biological characteristics of a impacts to archaeological proposed project area; to navigational uses in the tensity at a project site proposed development site; resources; visual impact potential impacts on these vicinity potential impacts of a project assessment uses resulting from on water quality, biological development resources, threatened and endangered species, sensitive biological habitats, and fisheries resources

Monitoring requirements Coastal processes, physical Status of adjacent cultural Changes in commercial and Changes in marine trans- Recreational boating and (vary by project): oceanography, underwater and historical resources recreational fishing practices, portation, navigation, and other facets of recre- noise, benthic ecology, avian abundance of targeted existing infrastructure in ational usage at the site species, marine mammals, sea species, and landings in and around the project site turtles, fish, and fish habitat the area

The following areas Areas with unique or fragile Features of particular Areas of high fishing activity, Navigation, military, and Areas of substantial receive varying levels of physical features, important historical significance or including glacial moraines infrastructure areas; Areas recreational value special protection: habitats, and high natural cultural value where development poses productivity; waters measur- risks to navigation in areas ing less than 20 meters of high-intensity commer- (about 65 feet) in depth; cial marine traffic Areas identified as critical under the Endangered Species Act

Developers must Use the best available tech- Halt activity and notify the Configuration must minimize Configuration must Configuration must construct project nology and techniques to mit- Council if a potential archeo- disruption of fishing activities, minimize disruption of minimize disruption of infrastructure in igate any adverse impacts to logical resource is discovered for instance by including navigation, for instance by recreational boat traffic, compliance with the threatened and endangered vessel traffic lanes including vessel traffic for instance by including following: species, marine mammals and lanes. moorings and vessel critical habitat traffic lanes

26 2297.P24_31_P 4/5/13 12:42 PM Page 27

Renewable Energy Zone Map

RENEWABLE ENERGY ZONE. Based on the analysis of information including wind speeds, water depth, substrate types, existing uses, and protected areas, as well as considering the potential effects of offshore wind turbines on wildlife and existing uses from renewable energy, the Ocean SAMP has a designated Renewable Energy Zone (REZ). Approximately 2 kilometers (1.2 miles) wide and 34 square kilometers (13 square feet) long, this area extends from the east to the south- west of Block Island, just landward of the state water boundary. Developers that submit development proposals within the REZ within two years of Ocean SAMP approval may use data from the SAMP to complete their permitting process, expediting their permitting process.

27 2297.P24_31_P 4/5/13 12:31 PM Page 28

IMPLEMENTING THE OCEAN SAMP

weekend and the period in June the proposed project area and the CRMC and federal agencies. The when Block Island Race Week takes alternatives. This assessment shall primary federal agencies relevant to place. The quantitative results of evaluate commercial and recre- the Ocean SAMP are BOEM and the such observations, including raw ational fishing effort, landings, and U.S. Army Corps of Engineers, the boat counts and average number of landings value at three different permitting authority for energy vessels per day, will be provided to stages: preconstruction (to assess structures in state waters. the Council. baseline conditions); during con- struction; and during operation. At The CRMC set an early precedent for COMMERCIAL AND RECREATIONAL each stage, all four seasons of the collaborating with these agencies by FISHING ACTIVITY: A biological year must be evaluated. Assessment involving them in definition of the assessment of commercially and may use existing fisheries monitor- Ocean SAMP’s scope and objectives, recreationally targeted fish species ing data but shall be supplemented and maintained these relationships shall be required within the project by interviews with commercial and by periodically checking in with area for all offshore developments. recreational fishermen. Assessment these agencies to assure compati- This assessment shall examine the shall address whether fishing effort, bility of Ocean SAMP policies with relative abundance, distribution, and landings, and landings value has federal regulatory requirements. As different life stages of these species changed in comparison to baseline a result, the Ocean SAMP creates at all four seasons of the year. This conditions. The Council will not re- state renewable energy permitting assessment shall comprise a series of quire this assessment for proposed requirements that dovetail with surveys, employing survey equipment projects within the REZ that are those utilized by BOEM, producing a and methods that are appropriate for proposed within two years of the streamlined permitting process and sampling finfish, shellfish, and crus- adoption of the Ocean SAMP. decision-making efficiency. tacean species at the project’s pro- posed location. Such an assessment FACILITY AND INFRASTRUCTURE: As noted previously, the Ocean shall be performed at least four The Council in coordination with SAMP creates an ongoing role for times: pre-construction (to assess the JAWG may also require facility federal agencies in carrying out its baseline conditions); during construc- and infrastructure monitoring policies by designating the JAWG, tion; and at two different intervals requirements, that may include but whose task is to establish case-by- during operation. At each time this are not limited to post-construction case monitoring and mitigation assessment must capture all four monitoring including regular visual requirements for proposed offshore seasons of the year. This assessment inspection of inner array cables and development projects. may include evaluation of survey the primary export cable to ensure data collected through an existing proper burial, foundation, and Since the Ocean SAMP area extends survey program, if data are available substructure inspection. as far as 27 miles beyond Rhode for the proposed site. The Council Island’s 3-mile state waters bound- will not require this assessment for ary, large parts of it are not directly proposed projects within the REZ Coordination manageable under Ocean SAMP that are proposed within two years of policies. The key to bringing these the adoption of the Ocean SAMP. FEDERAL AGENCIES parts into line with Ocean SAMP Because the Ocean SAMP area priorities is the federal consistency An assessment of commercial and includes both state and federal provision of the federal CZMA. This recreational fisheries effort, landings, waters, implementing the Ocean provision gives states legal grounds and landings value shall be required SAMP to its full potential requires to contest activities undertaken or for all proposed offshore develop- seamless synchronization between permitted by federal agencies in 28 ments. Assessment shall focus on federal waters that (a) have reason- 2297.P24_31_P 4/5/13 12:42 PM Page 29

ably foreseeable effects on human power in the Ocean SAMP area. BOEM for permitting evaluations. uses or natural resources in state Because this region lies equidistant Ocean SAMP information is being waters, and (b) conflict with the from Rhode Island and Massachu- incorporated into the BOEM Environ- state’s coastal zone management setts, both states have an interest in mental Assessments for this area. plan. Additionally, due to the impor- developing wind energy there. Furthermore, due to the GLD and tance of the Ocean SAMP area to federal consistency, the policies of the the state of Rhode Island, the CRMC On July 26, 2010, governors of Ocean SAMP still apply to this area. opted to go beyond federal consis- Rhode Island and Massachusetts tency and secured a Geographic signed a memorandum of under- THE NARRAGANSETT INDIAN TRIBE Location Description (GLD) from standing (MOU) concerning a The tribe’s proximity to the Rhode NOAA’s Office of Coastal Resources 400-square-mile area in this region, Island seacoast, longstanding Man agement. As its name implies, a which they labeled the Area of connection to the Ocean SAMP area, GLD is based on a description of Mutual Interest (AMI). The MOU is a and status as a federally recognized the location for which it is sought pledge by both states to collaborate tribe make it an essential collaborator and an assessment of the types of in the development of offshore wind in Ocean SAMP implementation. The federally permitted activities that energy projects in the AMI, and to tribe’s historic preservation office might take place there and how share equitably in the ensuing plays a role in SAMP implementation federally approved projects may benefits. It prohibits each state from through its position on the JAWG. have a foreseeable effect on the developing projects in the AMI with- Through this role, the tribe will evalu- state’s coastal resources and uses. out the support of its neighbor. ate proposed new uses of the SAMP Thanks to Ocean SAMP research, area in light of cultural, historic, and the CRMC was able to document The MOU designates a crucial role other relevant concerns. how projects and activities permit- for Ocean SAMP in this collabora- ted in federal waters could affect tion, by making it the governing Putting the Ocean SAMP Rhode Island’s coastal zone. A GLD planning document for the entire into practice has one important advantage over AMI. Moreover, the MOU instructs the traditional federal consistency the CRMC to designate the Massa- Two years of research, interagency provision: rather than placing the chusetts Executive Office of Energy coordination, and participatory pub- onus on the state to request federal and Environmental Affairs as a lic planning generated a comprehen- consistency review over proposed formal stakeholder in the SAMP sive set of Ocean SAMP policies that projects in federal waters, it re- process, to be considered on equal are fair, efficient, and grounded in quires federal agencies to consult footing with other Ocean SAMP sound science. As the CRMC puts with states on proposed projects stakeholders in decisions concerning these policies into practice, it will they permit or approve to ensure the AMI. Massachusetts fishermen continue to rely on input from the consistency with a state’s coastal are also included on the Ocean scientists, state and federal agencies, zone management program. This SAMP Fishermen’s Advisory Board. and stakeholders that made this assures that projects, whether in achievement possible. These collab- state or federal waters, adhere to Since the AMI is in federal waters, the orations ensure that the CRMC’s the same policies and standards. decision to permit development of decisions pertaining to the Ocean wind energy there ultimately falls to SAMP area reflect the broadest NEIGHBORING STATES BOEM. To facilitate this process, possible public interest and the best Federal waters lying directly south Ocean SAMP policies highlight the available science. of the border of Rhode Island and AMI as an optimal location for off- Massachusetts possess some of the shore wind energy development and 29 best conditions for offshore wind make Ocean SAMP data available to 2297.P24_31_P 4/5/13 12:32 PM Page 30

IMPLEMENTING THE OCEAN SAMP Areas of Mutual Interest for Rhode Island and Massachusetts

SCIENTISTS findings of current climate science infrastructure to proactively plan for The CRMC will confer with state and for the region and the implications and adapt to climate change impacts federal agencies, academic institu- for Rhode Island’s coastal and off- such as increased storminess, temper- tions, environmental organizations, shore regions, as well as the possible ature change, and acidification in addi- and scientists when making management ramifications. The tion to accelerated sea level rise. The decisions governing the selection of horizon for evaluation and planning findings of this panel will be forwarded future development sites and identi- needs to include both the short term on to the legislatively appointed fication of most valuable ecological (10 years) and longer term (50 years). Rhode Island Climate Change areas within the Ocean SAMP area. The Science Advisory Panel for Cli- Commission for their consideration. Consultation with scientists will mate Change will provide the Council ensure that these decisions are with expertise on the most current INTERAGENCY COORDINATION based on the best available science global climate change-related science, The Ocean SAMP JAWG, comprised and modeling tools. monitoring, policy, and development of representatives of relevant state design standards relevant to activities and federal agencies as well as the The Council will convene a panel of within its jurisdiction of the Ocean Narragansett Indian Tribe, will create 30 scientists biannually to advise on SAMP and its associated land-based project-specific construction and 2297.P24_31_P 4/5/13 12:32 PM Page 31

operation requirements that con- tives, and principles on an ongoing administrative process, the CRMC form to the regulatory requirements basis. It will communicate results of will conduct a major review of the of all agencies involved. these assessments continually document every five years. In keep- through the Ocean SAMP website ing with SAMP principles, the review STAKEHOLDERS and through formal biannual process will rely heavily on participa- The CRMC will work with resource communications to the public. tion of stakeholders and on use of users and advocacy organizations to the best available science. achieve a balance of uses within the OCEAN SAMP SCIENCE Ocean SAMP area and to protect valu- RESEARCH AGENDA Conclusion able habitat as well as recreational, In conjunction with federal, state, navigational, and fishing sites from and local governments, scientists, With Ocean SAMP adoption impacts of future development and environmental organizations, and achieved and implementation climate change. Regular stakeholder users of the Ocean SAMP area, the underway, the Ocean SAMP project participation in implementation is pre- CRMC will oversee a permanent continues to enable Rhode Island to scribed through semi-annual meetings science research agenda designed move forward in understanding state of the Fishermen’s Advisory Board to promote continual learning about ocean waters and the tools with and the Habitat Advisory Board. On the Ocean SAMP area. This group which marine resources can be an as-needed basis, the CRMC will will help the Council identify data managed and enhanced for decades also confer with public advocacy and gaps, research priorities, potential to come. The state’s effort to make citizens’ groups, recreational organiza- partners, and potential funding full use of its federal consistency tions, marine pilots associations, and sources for further research. Newly authority and secure a GLD not only marine safety organizations to assure gathered information on the area’s allowed the Ocean SAMP to apply compatibility among current and fu- natural resources, human activities, across federal and state waters, ture uses of the Ocean SAMP area. impacts due to climate change, and but will also streamline dialogue interactions with offshore develop- concerning development applica- A living document ment will inform ongoing revisions tions in the Ocean SAMP study area. to Ocean SAMP policies. Learning continues to take place The Ocean SAMP is more than a set OCEAN SAMP BIANNUAL with research projects on the ani- of policies that respond to proposed mals, habitats, geology, and human projects, it is also a dynamic struc- PUBLIC FORUM Every two years, the CRMC will uses significant to the area. Other ture for continually studying, moni- convene a public forum featuring states are studying the example of toring, and planning for the Ocean progress updates on Ocean SAMP the Rhode Island Ocean SAMP, and SAMP area in the face of changes implementation and new research in turn, the experiences of other and challenges that may arise in the findings, including updated projec- places are helping Rhode Island to future. The Ocean SAMP’s system- tions of the impacts of global climate enhance its approach to ecosystem- atic evaluation and revision frame- change on the area. The biannual based management. The Ocean work assures that it adapts to forum will provide opportunities for SAMP has demonstrated the strong changing environmental conditions exchange of information, ideas, and links that people and communities and evolving public assessments of strategies, and identify potential share with their ocean waters. It’s the Ocean SAMP area. revisions to Ocean SAMP policies. not a final answer, but a start—a start to ensuring that Rhode Island PROGRESS ASSESSMENT AND manages its ocean waters not only MONITORING PROCESS FIVE-YEAR REVIEW to protect its riches of natural The CRMC will monitor progress Although the Ocean SAMP may resources, but to promise them to towards Ocean SAMP goals, objec- be amended at any time through 31 future generations to come. 2297.P32_51_P 4/5/13 1:08 PM Page 32

Ocean SAMP Resources and Research

32 2297.P32_51_P 4/5/13 1:08 PM Page 33

abundant in the Ocean SAMP area Ecological Impacts of Climate Change The Ecosystem during the winter months.

The Rhode Island Ocean SAMP area Ten thousand years ago, rapid sea level rise transformed the terrestrial comprises portions of Rhode Island Supportive habitats ecosystem that then dominated the Ocean SAMP area into the marine Sound and Block Island Sound as ecosystem that occupies it now. Science indicates that the area is again well as a section of the Atlantic Much of this marine life relies on the undergoing rapid climatic change, this time associated with rising Ocean out to the continental shelf rich benthic habitats found in the greenhouse gas concentrations in the atmosphere. Global trends slope. It is an ecologically unique Ocean SAMP area. For example, towards warming waters, ocean acidification, rising sea levels, and transition zone characterized by the glacial moraines are important increasing storms are expected to have significant yet hard-to-predict mixing of deep offshore waters with habitat areas for a diversity of fish implications for the area. the shallower, more productive and other organisms because of their estuarine waters of Narragansett relative permanence and structural SHIFTING SPECIES RANGES As Ocean SAMP area waters warm, cold- Bay and Long Island Sound. complexity. Glacial moraines create water species like cod and lobster are expected to retreat northward, environments that exhibit some of with warm-water species taking their place. Such a shift could have the highest biodiversity within the major implications for fisheries. Abundant marine life Ocean SAMP area. Most of the glacial moraines mapped through the SHIFTING MIGRATION SCHEDULES Temperature-induced modifications The Ocean SAMP area is a bio - Ocean SAMP research effort are in the timing and intensity of annual migrations may throw predator- logically productive area, with an located in federal waters. The glacial prey cycles off kilter. For instance, early arrival of a comb jelly species abundance of finfish, shellfish and moraines and other unique features is thought to have an adverse effect on crab and lobster larvae, with crustacean species, marine mam- create and define the value of the potential consequences for local fisheries. mals, sea turtles, and birds. Block area for fisheries, tourism, recreation, HABITAT LOSS Island Sound and Rhode Island and other human uses, as well as its Physical elimination or alteration of ocean and coastal Sound are characterized by a ecological value to the eastern North habitat may negatively affect certain species. For instance, piping seasonal flux of offshore organisms: Atlantic ecosystem. The Ocean plovers and least terns, which are both threatened species, may lose every summer, there is an influx of SAMP is helping define the distinct critical beach nesting habitat due to sea level rise. plankton from offshore. Animals linkages between the resources in ACIDIFICATION As ocean waters absorb atmospheric carbon dioxide, including commercially and rec- this offshore area and the coastal they become more acidic. Acidity impairs the shell-building ability of reationally important finfish and uses and resources of Rhode Island’s lobsters, clams, and plankton, interferes with the oxygen intake mecha- crustacean species as well as whales coastal zone. nisms of squid and fish, and disrupts the olfactory cues used by larval and other marine mammals, follow fish to locate suitable habitat. this source of food inshore. This seasonal influx of plankton also Protecting ecosystems DISEASE Warming waters are expected to facilitate the spread of marine includes larvae of commercially diseases. Increased temperatures have already been implicated in the important species such as lobster The Ocean SAMP formally increased incidence of shell disease among lobsters in the Ocean SAMP and menhaden, which spawn off- recog nizes the importance of area, further threatening an already vulnerable fisheries resource. shore but grow to adulthood further preserving and restoring the area’s INVASIVE SPECIES inshore. Birds are also a key part of ecosystem, particularly in light of Warming waters are expected to decrease the re- the Ocean SAMP area ecosystem. the vast uncertainties imposed by silience of native sp ecies while expanding hospitable ranges for invasive Passerines regularly migrate climate change. Its policies strive species that disrupt or prey upon local marine life. No data yet exist on through, with Block Island being an to maintain a delicate ecological this compounding effect in the Ocean SAMP area. important stopover point in this balance in the area through com - migratory path, and waterbirds are prehensive and forward-looking 33 2297.P32_51_P 4/5/13 1:38 PM Page 34

OCEAN SAMP RESOURCES & RESEARCH

New Insights Gained about Seaduck Feeding Behavior

Through the Ocean SAMP, URI avian species on the East Coast, in waters up to 40 researchers have been able to take a closer meters (nearly 130 feet) deep, where winter- look at how a wide variety of birds, including ing sea ducks are not typically found. Black wintering sea ducks, make use of Rhode scoters have been found to be particularly Island’s nearshore and offshore waters. URI sensitive to offshore wind development. At this professor and avian expert Peter Paton ex- point it is unclear if the birds are foraging in plains that until recently, the body of research these deeper waters, says Paton, but the sight- on sea duck habitat use has maintained that ings are important, because they suggest that most species typically only utilize and forage these birds, and perhaps other species, may be in waters with maximum depths of 20 meters, accessing their habitats more extensively than or nearly 66 feet, to feed on the sea floor for previously understood. Thanks to the ongoing their staple foods of clams, mussels, snails, nature of the SAMP, the opportunity and marine worms. Paton’s recent low-altitude exists for re searchers like Paton aerial bird surveys over the Ocean SAMP to continue to update the plan study area have documented black scoters, as new findings emerge. a common wintering sea duck

34 2297.P32_51_P 4/5/13 1:09 PM Page 35

decision-making structures that draw to understanding the area’s Where impacts are unavoidable, “The SAMP is an exhaustive on the expertise of both scientists changing natural resources; and developers are responsible for and resources users. These include: • A panel of climate scientists that minimizing and mitigating them. resource inventory for a will update the CRMC biannually Extensive research and mapping • A Habitat Advisory Board (HAB) on newly detected climate change work allowed the Ocean SAMP to lot of data that was out composed of nine members drawn impacts and options for adaptation apply several levels of protection for there. That lets us know from the research and non-profit in the Ocean SAMP area. ecologically sensitive areas: communities and charged with what needs to be protected, advising the CRMC on potential The Ocean SAMP makes ecological • Areas with unique or fragile impacts of new uses and prioritiza- protection a major consideration in physical features, important habi- and where there are tion of future ecological research; the permitting of new uses of the tats, and high natural productivity opportunities for new • A science research agenda—devel- Ocean SAMP area. To assure that are listed as Areas of Particular oped by scientists, partner federal new uses do not create adverse Concern (APCs). Developers must devel opment without and state agencies, environmental impacts on the area’s ecosystem, the avoid them, and, where avoidance forcing major environ- organizations, and users of the Ocean SAMP holds that prospective is not possible, must minimize and Ocean SAMP area—to help the developers must avoid significant mitigate impacts to the resources mental or other tradeoffs.” CRMC identify data gaps, research adverse ecological impacts, in they contain. priorities, potential partners, and particular those affecting fish • Waters measuring less than 20 JOHN TORGAN, available funding sources relevant spawning and nursery habitats. meters (about 65 feet) in depth FORMERLY BAYKEEPER FOR are listed as Areas Designated for SAVE THE BAY, AND MEMBER Protection (ADPs) due to their OF THE OCEAN SAMP function as sea duck foraging STAKEHOLDER GROUP Ocean SAMP Habitats habitat. Large-scale offshore developments (e.g., offshore wind MORAINES Moraines are mounds of glacially deposited geological debris that farms consisting of more than five crisscross the floor of the Ocean SAMP area. Their elevation and intricacy makes turbines, wave or tidal energy them some of the richest habitat in the Ocean SAMP area. As a result, numerous generation devices, offshore liqui- organisms depend on them for food and shelter. Moraines act as a magnet for fied natural gas (LNG) platforms, commercially and recreationally important species of fish and lobster. The Ocean and artificial reefs) are prohibited SAMP protects moraines by classifying them as Areas of Particular Concern in these areas. (APC). • Areas identified as critical under the Endangered Species Act are off FISH HABITAT Many fish species depend on habitat found within the Ocean limits to all offshore development. SAMP area during some stage in their life cycles. Ocean SAMP policies highlight the importance of spawning and nursery areas, since these habitats provide a vital link during the most vulnerable stages of fish life cycles. Moraines act as a magnet for Mapping currently underway will provide a more complete picture of key fish commercially and recreationally im- habitats in the Ocean SAMP area. portant species of fish and lobster. The Ocean SAMP protects moraines SEA DUCK FORAGING HABITAT Sea ducks, which include eiders and scoters, by classifying them as Areas of feed by diving for worms and other invertebrates on the seafloor. To protect Particular Concern (APC). vital duck foraging habitat, the Ocean SAMP classifies all waters with depths less than or equal to 65.6 feet (20 meters) as Areas Designated for Preserva- tion (ADP). 35 2297.P32_51_P 4/5/13 1:09 PM Page 36

OCEAN SAMP RESOURCES & RESEARCH

Narragansett and Wampanoag dreds of thousands of vessels carry- Cultural and Indian Tribes first feasted from its ing coal and petroleum to Rhode shores. With the advent of com- Island ports. The grounding of the Historical Resources mercial harvesting methods in the North Cape oil barge in 1996 was 1600s, fishing became a source not but the latest in a centuries-long Human life has been intertwined only of food but of profit. The string of energy-related transpor- with the Ocean SAMP area for at abundance of fish resources was a tation accidents; most of the ships least 7,500 years. Humans may have motivating factor in the migration of lying in the depths of the Ocean even lived in the area during the ice tens of thousands of Europeans to SAMP area sank while transporting age, when sea levels were much New England. coal during a busy industrialization lower than they are today. Archaeo- period between 1870 and 1920. Off- logical surveys and historical re- ENERGY Beginning with the harvest shore renewable energy represents a search conducted for the Ocean of firewood and peat on Block Island new chapter in the evolving role of SAMP highlight the rich and still- during colonial days, the Ocean the Ocean SAMP area in providing evolving heritage of the area. SAMP area has played a critical role for Rhode Island’s energy needs. in powering Rhode Island. Since the FOOD The Ocean SAMP area has dawn of the fossil fuel age, the area LEISURE Rhode Island’s shores have nourished humans ever since the has been a key passageway for hun- been a choice vacation destination

“A largely forgotten chapter”: The Ocean SAMP Area and the 19th-Century Coal Trade

While the SAMP lays out policies and practices for Civil War. It has been a largely forgotten chapter in the managing a wide spectrum of coastal and ocean re- state’s maritime or industrial history. Where merchant sources and uses, the question of how Rhode Island vessels such as the famous Brown family East Indiaman will approach the issue of developing its offshore re- Ann and Hope that wrecked at Block Island in 1815 newable energy resources, mainly windpower, has were highly visible in cultural terms and associated emerged as a subject of SAMP dialogue. But this is far with the wealth and social status of their owners, the from the first time that Rhode Island’s ocean waters coal vessels, with a few notable exceptions, rarely con- have served as the backdrop against which local, re- tributed to the social status to their owners, officers, or gional, and national energy issues have played out for crew. Indeed other merchant mariners regarded the two centuries. Consider the 19th-century coal trade, grimy armada of coaling vessels and their crews with says URI underwater archeologist Rod Mather, whose mixture contempt and pity due to the low wages, harsh research is captured in the Cultural and Historical Re- living conditions, mixed racial composition of the work- sources chapter of the SAMP: “The Ocean SAMP area’s force, and the frequent accidents they endured (The energy landscape is very important in the history of Seaman’s Bill, Hearings Held Before the Committee on Rhode Island and greater New England. The coal ves- Merchant Marine and Fisheries on House Bill 11372, 36 sels provided critical infrastructure without which the December 14, 1911).” region would have languished economically after the 2297.P32_51_P 4/10/13 7:34 PM Page 37

since the late 19th century. New- Protecting cultural and Features of particular cultural or port’s extravagant seaside cottages historical resources historical value, such as shipwrecks hail from the Gilded Age of the late and underwater archaeological sites, 19th century, while the state’s nu- The Ocean SAMP formally recog- receive special protection. The merous beaches have drawn Rhode nizes the area’s cultural and histori- Ocean SAMP designates these sites Island’s urban residents for more cal significance for Rhode Island, as APCs; prospective developers than 100 years. Rhode Island has and calls upon the CRMC to engage must avoid APCs, and, where avoid- hosted international America’s Cup state, federal, and tribal entities ance is not possible, must minimize yachting races, and seaside vistas when evaluating potential impacts and mitigate impacts to the and maritime pastimes continue to of new uses on these resources. resources they contain. spur major economic and cultural activities within and around the Ocean SAMP area. Potential Historic Shipwreck Locations DEFENSE The Ocean SAMP area has played a role in at least 20 military conflicts since colonial times. The area has been the site of skirmishes, transit of vessels, training and test- ing, and development of weapons. Military presence peaked during World War II, with the establishment of several naval stations along Rhode Island’s coast. Vestiges re- main, in the form of unexploded ordnance and ship and plane wrecks littering the seafloor. The most notable is the wreck of the German U-boat 853, sunk off of Block Island only days before Germany’s World War II surrender.

NARRAGANSETT INDIAN TRIBE ORAL HISTORY The Narragansett Indian Tribe is the oldest known culture in Rhode Island. Archaeological evi- dence and oral history suggest that the tribe has lived in the area for over 30,000 years. Thanks to work by Dr. Ella W. T. Sekatau, the tribe’s official historian, the Ocean SAMP SHIPWRECKS The Ocean SAMP area’s history remains in evidence on its seafloor, contains the first-ever recorded in the form of sunken ships. At least 600 ships—schooners, steamers, fishing version of the tribe’s oral history, boats, submarines, tugs, and barges—are estimated to have sunk within the covering events from its first known Ocean SAMP area. Fifty of these lie at known locations, and are listed as APCs. 37 origins until the present time. 2297.P32_51_P 4/5/13 1:10 PM Page 38

OCEAN SAMP RESOURCES & RESEARCH

an array of gear types and species. popular pastime for Rhode Islanders Commercial and Fishing includes bottom trawling for and a major attraction for out-of- flatfish, cod, and squid; mid-water state tourists. In 2007, 182,000 Recreational trawling for herring and mackerel; anglers fished Rhode Island waters, dredging for scallops; rod-and-reel making total of 1.2 million trips. The Fishing fishing for striped bass, fluke, and bulk of recreational fishing takes tuna; gillnetting for skate, fluke, and place in the summer, during the Fishing is one of the oldest and the monkfish; and trap fishing for migrations of top recreational fish most significant human uses in the lobster, sea bass, and scup. like tuna, scup, bluefish, and striped Ocean SAMP area in both economic bass. The Rhode Island Saltwater and cultural terms. Catching fish—for According to fishermen who helped Anglers Association sponsors 15 profit, sport, or food—occurs in al- craft the Ocean SAMP, fishing pat- tournaments per year, as well as a most every segment of the Ocean terns are highly seasonal, due to the “yearlong” tournament targeting 15 SAMP area at some point during the influx of warm-water migrants in species; all of the tournaments year. Fishermen collaborated with summer and cold-water migrants in involve species found in the Ocean SAMP researchers to generate an winter. Fishermen follow the fish, SAMP area. account of where they fish, when often concentrating on transitional they fish, and what gear they use. habitats where fish converge during Recreational fishermen may try their This data will help shield fisheries their migrations. A prime fishing area luck from shore, from private boats, from impacts associated with off- is Cox’s Ledge, which is used by or from one of the approximately shore development. many different commercial gear 150 charter and party boats licensed types as well as recreational anglers. in Rhode Island. The waters COMMERCIAL FISHING Commercial surrounding Block Island are a fishing in the Ocean SAMP area RECREATIONAL AND FOR-HIRE particularly popular spot for occurs year-round and encompasses FISHING Recreational fishing is a recreational fishing.

Promoting and enhancing fishing Estimated Added Income in Rhode Island from Fishing The Ocean SAMP formally recognizes the paramount economic, cultural, and social value to Rhode Island of $75.2 million generated by commercial fishing (National Oceanic and the commercial and recreational Atmos pheric Administration/National Marine Fisheries Service fisheries taking place throughout the [NOAA/NMFS]. 2008) Ocean SAMP area. It calls for a two- fold approach that simultaneously $69 million generated by seafood processors and wholesalers safeguards fisheries from adverse (NOAA/NMFS. 2008) impacts associated with new development while improving the $52 million generated by recreational fishing (U.S. Department of sustainability of fishing practices. Commerce. 2008) The Ocean SAMP creates a role 38 for commercial and recreational 2297.P32_51_P 4/10/13 7:34 PM Page 39

Commercial and Recreational Fishing Areas “This area includes

AREAS OF HIGH FISHING ACTIVITY Although the entire Ocean SAMP area is used for fishing, some areas are especially some of the best fishing fertile. These often lie along the edges of distinct habitats, where mud meets sand, sand meets gravel, gravel meets locations in the R.I. area. boulders, or boulders meet ledge. The FAB will identify areas of high fishing activity in or around proposed develop- ments. These areas will be treated as APCs. Any development must be done in such a manner that recreational fishing interests are considered.” RICH HITTINGER, FIRST VICE PRESIDENT, R.I. SALTWATER ANGLERS ASSOCIATION

39 2297.P32_51_P 4/5/13 1:11 PM Page 40

OCEAN SAMP RESOURCES & RESEARCH

“Every square inch of the fishermen in shaping implementation Moreover, the Ocean SAMP creates a of its fisheries-related policies pathway for all fishermen to access Ocean SAMP is being used through a nine-member Fishermen’s developers, by requiring each at some time during the year. Advisory Board (FAB). Composed of developer to appoint and fund a six Rhode Island fishermen and three third-party fisheries liaison for the We must use the SAMP to Massachusetts fishermen, the FAB is duration of a project. tasked with advising the CRMC on ensure that the Rhode Island The Ocean SAMP designates areas proper siting of new developments of high fishing activity, including fishing and coastal com - and mitigation of any ensuing im- glacial moraines, as APCs. The pacts. Mitigation requirements will be munities that the industry CRMC may, through consultation established by the CRMC on a case- supports do not become with the FAB, specify additional by-case basis, and may include finan- prime fishing areas as APCs. The collateral damage in the effort cial compensation, effort reduction, Ocean SAMP requires prospective habitat preservation and restoration, developers to avoid APCs, and, to develop renewable energy. ” or infrastructure improvements. where avoidance is not possible, to LANNY DELLINGER, PRESIDENT, minimize and mitigate impacts to 40 R.I. LOBSTERMEN’S ASSOCIATION the resources they contain. 2297.P32_51_P 4/5/13 1:11 PM Page 41

“My agency, the Coast Guard, is committed to ensuring a balanced, safe NAVY USE The Navy controls two re- consideration of these uses is a use of our waterways by all Transportation and stricted zones in the Ocean SAMP priority when permitting proposed area, one for torpedo testing and an- new uses of the area, and creates a those with an interest in Navigation other for mine-laying exercises. In role for federal agencies and marine addition, U.S. Naval Undersea War- pilots organizations when evaluating our ocean resources. The Resources fare Center (NUWC) tests equip- these proposals. Ocean SAMP process ment such as unmanned vehicles in Located at the center of a constella- the area. Roughly seven naval ves- Extensive mapping of navigation provided us with an tion of ports and the shipping lanes, sels pass through the Ocean SAMP and transportation activities the Ocean SAMP area is a busy mar- area en route to Newport each year, throughout the Ocean SAMP area opportunity to participate itime thoroughfare. By cataloging and New London-based submarines pinpointed sites that are indis- with other local, state, and maritime activities and navigation cross its southwest corner to reach pensable to shipping and military patterns, the Ocean SAMP offers a offshore transit lanes. areas. The Ocean SAMP lists these federal stakeholders in a deeper understanding of these uses as APCs. Prospective developers and protects them from the impacts must avoid these areas, and where truly comprehensive of development and climate change. Promoting and enhancing avoidance is not possible, they must review of the current and Knowledge contributed by the U.S. transportation and navigation minimize and mitigate impacts Coast Guard (USCG), NOAA, the there. In addition, the Ocean SAMP potential future uses of Northeast Marine Pilots, R.I. Depart- The Ocean SAMP formally recog- prohibits large-scale offshore devel- Rhode Island’s coastal ment of Environmental Management nizes the economic, historic, and cul- opment in areas of high-intensity (RIDEM), and local port and vessel tural value to Rhode Island of commercial marine traffic if it poses waters.” operators was key to this effort. transportation and navigation in the risks to navigation in area. Ocean SAMP area. It ensures that — EDWARD LEBLANC, USCG SHIPPING Freight vessels enter Nar- ragansett Bay daily through the Ocean SAMP area, most bound for Providence and Fall River with car- gos of petroleum and coal. In addi- tion, many other ships traverse the Ocean SAMP area en route between Employment Value of Transportation and New York, Boston, and points north Navigation to Rhode Island and south. Four official pilot board- ing areas at the entrance of Narra- gansett Bay indicate places where 2,053 jobs at the Ports of Providence and Davisville commercial ships pick up pilots to guide them through state waters. (FXM Associates, 2008)

TRANSPORTATION Passenger ferry ser - vice connects Block Island to points in 2,602 jobs at Naval Undersea Warfare Center (NUWC Division Rhode Island, Connecticut, Massachu- Newport, 2009) setts, and New York. In 2006, ferries traveling through the Ocean SAMP area conveyed over 700,000 passen- gers to their destinations. 41 2297.P32_51_P 4/10/13 7:35 PM Page 42

OCEAN SAMP RESOURCES & RESEARCH

Navigation, Military, and Infrastructure Areas Designated as Areas of Particular Concern Eyeing the Potential for NAVIGATION, MILITARY, AND INFRASTRUCTURE AREAS The Ocean SAMP area is crisscrossed by shipping lanes, ferry Short Sea Shipping routes, dredge disposal sites, military testing areas, unexploded ordnance, pilot boarding areas, anchorages, and submarine transit lanes. Because all of these represent vital uses that cannot be displaced or altered with- As a living document, the SAMP always out provoking danger or economic disruption, the Ocean SAMP lists them as APCs. considers the past, addresses present needs, and looks ahead to possible fu- ture uses. One potential transportation use being raised is short sea shipping, as described in the Marine Transportation, Navigation & Infrastructure chapter of the Ocean SAMP: “Commercial traffic in the Ocean SAMP area may increase in the future if a short sea shipping indus- try develops in Rhode Island. Short sea shipping is the movement of goods (usually containerized) domestically aboard barges, with the goal of reducing truck traffic on congested highways. The corridor between Boston, New York, and Washington, D.C., has been proposed as an attractive region in which to develop short sea shipping routes due to the amount of traffic congestion, the region’s population density, and the availability of port facilities (R.I. Eco- nomic Monitoring Collaborative 2007). No short sea shipping routes are cur- rently in use in the area, but some sources indicate that if this use were to develop, Rhode Island ports, particularly Providence, could serve as a central hub (R.I. Economic Monitoring Collaborative 2007; National Ports and Waterways In- stitute, University of New Orleans 2004). If short sea shipping were to develop in Rhode Island, it would greatly increase the number and frequency of vessel transits through the Ocean SAMP area.”

42 2297.P32_51_P 4/5/13 1:13 PM Page 43

distance cruising between ports. Of migration patterns; and shark view- Recreation and particular economic importance are ing, which takes place within floating the seven inshore and 16 long-dis- or submersible cages, occurs over a Tourism Resources tance sailing races that are held on a large geographical range during regular basis in the area and sustain summer months. The Ocean SAMP area’s winds, wa- Rhode Island’s century-old reputa- ters, and wildlife make it a prime tion a world-class sailing center. BEACHES From the shore, the Ocean destination for adventure and relax- SAMP area provides spectacular ation, particularly during summer DIVING Scuba divers are drawn to views and cultivates a maritime months. These amenities not only the shipwrecks and marine life found character valued by locals and enrich life for Rhode Islanders, but in the Ocean SAMP area, particularly tourists alike. Portions of coastal also act as a major draw for tourists. during warmer months. Ocean SAMP Rhode Island adjacent to the Ocean As Rhode Island’s fourth largest in- research found that approximately SAMP area are heavily dependent on dustry, tourism accounts for $6.8 bil- 10 licensed dive boats operate in the these primarily seasonal amenities lion of spending in the state and area, in addition to an unidentified for income associated with recre- generates 12 percent of tax rev- number of private boats. ation and tourism. enues. Based on input from boaters, tour operators, and other stakehold- WILDLIFE WATCHING The opportunity ers, the Ocean SAMP describes to glimpse whales, birds, and sharks Promoting and enhancing recreational usage patterns in the is a small but highly valued use of recreation and tourism area and offers policies to protect the Ocean SAMP area. Conversa- these uses from potential impacts of tions with tour guides uncovered ge- The Ocean SAMP recognizes that future development. ographic and seasonal patterns in marine recreation and tourism are wildlife viewing, noting that whale not only vital to Rhode Island’s BOATING Ocean SAMP research watching is best in July and August; economy but are also instrumental highlights the popularity of the area bird watching occurs throughout the in shaping the state’s culture and for sport fishing, sailing, and long- year, in locations determined by identity. These uses are a prime consideration when permitting proposed new uses in the Ocean SAMP area, and recreational boating organizations have a role in evaluat- ing these proposals. Value of Boating in Rhode Island Extensive mapping of recreational activities throughout the Ocean 2,071 people employed in the boating SAMP area located sites of substan- tial recreational value, such as sail- industry (Thunberg, 2008) boat racing grounds and offshore dive locations. The Ocean SAMP lists 43,000 boats registered in Rhode Island these as APCs. Prospective develop- (Ninigret Partners, 2006) ers must avoid these areas, and where avoidance is not possible, must minimize and mitigate impacts to the resources these areas contain. 43 2297.P32_51_P 4/10/13 7:35 PM Page 44

OCEAN SAMP RESOURCES & RESEARCH Offshore Dive Sites Designated as Areas of Particular Concern

DIVE SITES Offshore recreational divers prize the adventure and historic value of the Ocean SAMP area’s shipwrecks. Due to the irreplaceable and highly valuable nature of these dive sites for recreation and tourism, the Ocean SAMP lists them as APCs.

44 2297.P32_51_P 4/10/13 7:35 PM Page 45

Sailboat Racing in the Ocean SAMP Area

SAILBOAT RACING AREAS Sailboat races are a valued cultural and recreational tradition in the Ocean SAMP area, and rep - resent a significant boon to Rhode Island’s economy. The waters south of Brenton Point are a hub for buoy racing, and many long-distance races also start or end in these waters; from 1930 to 1983, this was the site of the internationally renowned America’s Cup race. Block Island is a popular destination or waypoint for many races, including Block Island Race Week. Because of the importance of these two areas in sailboat racing, the Ocean SAMP lists them as APCs.

45 2297.P32_51_P 4/10/13 7:36 PM Page 46

OCEAN SAMP RESOURCES & RESEARCH

A Long and Valued History as an Ideal Sailing and Boating Locale

The Ocean SAMP Recreation and Tourism chapter offers America, identifies Block Island as a recommended rich detail about the tradition of boating—from race destination and directs boats to anchor in the Great Salt sailing to pleasure cruising—in Rhode Island’s ocean Pond, rather than Old Harbor on the east side of the is- waters and harbors. Heralded events such as the Amer- land. It identifies Block Island as “a place where you’ll ica’s Cup and the Newport-Bermuda Race have earned meet every cruising yacht and yachtsman between Cape Rhode Island global recognition as a yachting capital, Cod and New York. It’s the goal of many a small boat’s while waters closer to shore provided relaxation and cruise from both the western end of Long Island Sound respite to those lucky enough to own a vessel: “In and the ports to the eastward, the place where bigger addition to seaside tourism, Block Island has historically yachts almost always stop in when bound either east or been a popular destination for recreational boaters and west, and the scene of many a yacht club rendezvous and sailors. A 1948 cruising guide, Yachting in North cruising-race finish” (Connett 1948). 46 2297.P32_51_P 4/5/13 1:15 PM Page 47

Ocean SAMP area are likely to increase runoff from land, leading to Climate Change either decrease within the area, be- higher rates of water pollution, nutri- come available for a shorter amount ent enrichment, and sedimentation Records show that over the last of time, or shift their presence to of waterways. hundred years, New England has the area’s deeper waters. Several experienced increases in air and commercially important species, ocean surface temperatures, sea including American lobster, Atlantic Sea level rise level, wetness and storminess, and cod, silver hake, and winter floun- acidity of sea water, with a con - der, belong in this group. In con- Rising sea level poses a variety of comitant decrease of wind speeds. trast, species at the northern end of complications for marine activities. In anticipation of these changes, the their range in the Ocean SAMP area Sea level rise may improve navigabil- Ocean SAMP process convened are likely to become available in ity of waterways by increasing water scientists and resource users to larger quantities or for longer depth, but it may also reduce vessel speculate on possible implications periods of time. These include passing heights under bridges, in- for human uses of the Ocean SAMP Atlantic croaker, black sea bass, crease the vulnerability of coastal area. This forethought forms the blue crab, butterfish, scup, and infrastructure, and eliminate or alter basis of flexible policy mechanisms summer flounder. These changes the barrier beaches, salt marshes, capable of adapting to the impacts may exert pressure on fishermen to and other habitats that make Rhode of climate change as they become travel further in pursuit of fish, tar- Island’s shoreline appealing for better understood. get different species, and employ recreation. different fishing methods.

Rising temperatures Diminishing wind speeds Increasing precipitation and Ostensibly, increases in air and storm intensity Projected weakening of wind speeds water temperatures may benefit may make the Ocean SAMP area recreation and transportation in the Projected increases in overall less attractive for sailing, putting Ocean SAMP area by lengthening wetness, storm frequency, and storm a damper on the area’s popular shipping and boating seasons and intensity may pose negative con- sailboat races. In addition, changes reducing winter icing of vessels and sequences for boat travel in the in wind patterns may alter ocean waterways. At the same time, how- Ocean SAMP area. Greater and more currents, requiring modifications of ever, warmer water temperatures frequent storms may damage infra- vessel routes. may harm recreation and tourism in structure and vessels, diminish visi- the area by increasing populations bility at sea, increase erosion around of jellyfish and harmful algae and by coastal infrastructure, disrupt cargo Ocean acidification shortening the viewing season for loading and unloading procedures, seals and winter migratory birds. interfere with ferry schedules, and By causing faster rates of corrosion, make fishing and recreational boat- ocean acidification is expected to Human activities in the Ocean ing more dangerous. Storms may increase the vulnerability of infra- SAMP may also endure impacts also shorten the boating season, structure and vessels and speed the from the reshuffling of species that counteracting the positive effect of rate of decay of the area’s culturally is expected to occur as a result of warmer weather on recreation and and recreationally important ship- warming waters. Species at the tourism in the Ocean SAMP area. wrecks. Moreover, acidification may southern end of their range in the Indirectly, greater precipitation may have devastating effects on marine 47 2297.P32_51_P 4/5/13 1:16 PM Page 48

OCEAN SAMP RESOURCES & RESEARCH

invertebrates, undermining the greenhouse gas pollution that marine food web that sustains causes climate change, while estab- Prospective New both commercial and recreational lishing adaptive policies to plan for fisheries. and respond to impacts that are Uses of the Ocean unavoidable. SAMP Area Economic and legal aspects Through the Ocean SAMP, the CRMC commits itself to evaluating Climate change may indirectly affect the feasibility, safety, and effective- While recognizing the contribution human activities in the Ocean SAMP ness of proposed Ocean SAMP area that the Ocean SAMP area makes to area by altering economic and legal uses under projected conditions in a Rhode Island’s economy and culture, aspects pertinent to the area’s use. climate changed world; barring the Ocean SAMP recognizes that po- Warming temperatures are expected projects that would threaten public tential new uses of the Ocean SAMP to shift energy demand from cooler safety or not perform as intended area are on the horizon, and includes to warmer months, altering the traf- under such conditions; supporting policies dictating how such uses will fic patterns of vessels supplying fuel enhanced building standards for be evaluated when they are formally to the region. Insurance companies coastal infrastructure such as ports, proposed. Proposals will be rigor- may raise premiums on shipping and docks, and bridges; and encourag- ously reviewed for negative impacts, coastal infrastructure, affecting pric- ing public education about climate and areas already targeted for pro- ing and profitability of port and change and its impacts on the area. tection (APCs and ADPs) will con- shipping activities. Sea level rise ef- The Ocean SAMP calls for periodic tinue to be protected. Mitigation fectively shifts the line between updates on the information under- measures will be determined on a state property and private or local pinning these and future measures project-by-project basis to ensure property landward, which may result through formal engagement with they are tailored to address specific in legal complications with repercus- scientists in relevant fields. impacts and issues. sions for the Ocean SAMP area. Combined with storm hazards and rising temperatures, sea level rise may decrease coastal property val- ues and reduce income from Flexibility in the Face of Climate Change tourism. Complex effects like these illustrate the wide-ranging signifi- The Ocean SAMP recognizes that global climate change is occurring at cance of climate change for Rhode rates faster than originally predicted and that management must adapt in Island and the Ocean SAMP area. response. Current research on climate change in the region shows that: Average annual air temperatures in Rhode Island have risen by 1.7°F since 1905. Adapting to climate change Annual average water temperatures off the southern New England coast The Ocean SAMP integrates antici- have risen by about 2.2°F since the 1970s. pated impacts from climate change In Newport, sea level has risen an average of 0.1 inch per year since 1930. into every aspect of its planning Over the past century, precipitation in Rhode Island has increased by 0.12 process. Its policies simultaneously inch per year. promote energy conservation and 48 renewable energy to mitigate the 2297.P32_51_P 4/5/13 1:16 PM Page 49

Renewable energy tion, and are considered by some to Marine reserves and parks be safer than onshore LNG storage. Growing demand for electricity in Potential impacts of offshore LNG Marine reserves ban the taking or New England, coupled with con- include increased ship traffic and disruption of wildlife and habitats; cerns about climate change and oil accidental spills. marine parks allow limited fishing supplies, prompted Rhode Island to activity. Both provide benefits for pledge to obtain 16 percent of its conservation and fishery enhance- energy from renewable sources Short sea shipping ment. Potential impacts include the by 2019. Because wind power is removal of space from extractive currently the only renewable energy As East Coast highways become fur- uses and conflicts with fishermen. generation technology capable of ther congested, New England may providing utility-scale energy to turn to short sea shipping—the re- Rhode Island, the Ocean SAMP gional-scale movement of cargo via Wind energy area’s offshore wind resources are small, versatile vessels—to move expected to play a key role in cargo from port to port. Potential The Ocean SAMP area possesses meeting this pledge. Ocean impacts include increased vessel many attributes of an ideal wind SAMP research assessed various traffic, influx of new invasive species, power venue: high wind speeds, potential impacts of offshore and increased underwater sound strong regional demand for elec - renewable energy. that could affect marine mammals tricity, and well-established local and fish. maritime skills and infrastructure. Moreover, ecological trade-offs Mining appear to be less significant in the Artificial reefs Ocean SAMP area than in adjacent Sand and gravel are increasingly waters. hard to find on land in Rhode Artificial reefs are boulders, concrete Island. The Ocean SAMP area may slabs, tires, or wrecks, purposefully But while the Ocean SAMP area of- possess these resources in ex- placed or left in the water to attract fers many advantages for wind ploitable quantities, and mining fish. Fishermen benefit from result- power generation, not all parts of them could become of interest ing fish aggregations, although it is the area are equally favorable. An in the future. Potential impacts debatable whether artificial reefs in- essential task facing Ocean SAMP include destruction of bottom crease overall fish abundance. researchers was to pinpoint individ- habitat and increased suspended ual locations throughout the Ocean sediment, which can lead to water Aquaculture SAMP optimal for wind power. This quality issues. meant not only assessing the eco- Seafood farming has the potential to nomic costs and benefits of wind complement commercial fishing as a power throughout the Ocean SAMP Liquefied natural gas (LNG) productive use of the Ocean SAMP area, but also considering the area’s marine environment. Re- ecological, economic, and social Natural gas shipped overland to searchers are exploring possibilities impacts of constructing wind tur- Rhode Island homes falls short of for aquaculture in conjunction with bines in different areas. By ruling out current demand, particularly in offshore energy structures. Potential locations of high value or sensitivity winter. Offshore LNG facilities, which impacts include competition with in advance, Ocean SAMP research store gas shipped in from afar by wild fisheries and conflicts with gives developers greater confidence tankers, present a prospective solu- energy usage. that their projects will be approved, 49 2297.P32_51_P 4/5/13 1:16 PM Page 50

OCEAN SAMP RESOURCES & RESEARCH

satisfies stakeholder demands Sound. These represent areas where animals. Incidence of these effects is without the need for proposal-by- the benefits of wind power outweigh expected to last from a few months proposal battles, and protects the the costs by the largest margin. to a few years, but cumulative im- natural resources and human uses pacts may last longer. found in the areas in question. Potential impacts of wind TURBINE FOUNDATIONS AND energy production on OPERATIONS Choosing appropriate locations ecosystems and existing Research indicates that turbine for wind energy human uses foundations can affect their envi- rons in negative and positive ways. The most significant challenge in Installation of utility-scale wind At very small scales, they may alter identifying favorable sites for wind farms in the Ocean SAMP area is water flow, alter sediment composi- power stems from the trade-off predicted to have a number of tion, and reconfigure species between maximizing wind speeds, benefits for Rhode Island, ranging composition on the seafloor. Noise which increase with distance from from avoided emissions of green- produced from the moving parts of shore, and minimizing construction house gases and other pollutants, to a turbine can be transmitted into effort, which is lower in shallow diversification of energy sources, to the water column and be audible to waters closer to shore. Ocean SAMP port development and job creation. mammals; for most species, this researchers resolved this opposition However, Ocean SAMP research noise is perceptible only within a by creating the TDI. points out that offshore wind farms range of tens of yards, but some pose a variety of possible impacts can hear it over several miles. By The TDI is a site-specific ratio on existing ecosystems and human providing hard surfaces in the water weighing the challenges of wind uses that must be considered column, turbine foundations act as turbine construction to the expected when evaluating any proposed artificial reefs, attracting fish, inver- energy output in a given location. development. tebrates, or other species. By creat- Construction challenges are a func- ing refuge from birds and mobile tion of water depth, seafloor hard- CONSTRUCTION fishing gear, turbines may act as ness, and distance from land; energy Research and modeling suggest that marine reserves, causing fish and output is a function of wind speeds. the most significant impacts in the invertebrate populations in and The SAMP team calculated a TDI for wind farm life cycle take place dur- around them to swell. Combined, every 10,000 square-meter block of ing construction. Installation of these effects may alter food webs the Ocean SAMP area. cables and turbine foundations may and associated fisheries in unpre- stir up sediment, possibly smother- dictable ways. By mapping the results of this ing organisms that live on the sea analysis, Ocean SAMP researchers floor and affecting phytoplankton TURBINE BLADES created a visual representation of production and fish eggs and larvae. Rotation of turbine blades is thought the distribution of costs and benefits The noise of pile driving may repel to have potential effects on bird be- of wind power. Based on this picture, fish and interfere with marine mam- havior. Prior research has shown that they identified two optimal locations mal communication, possibly leading some birds, such as gulls and cor- for wind power in the Ocean SAMP to temporary or permanent hearing morants, appear to be drawn to wind area: a small zone just south of Block loss in these animals. Increased ves- turbines, while others, such as ducks, Island in state waters, and a larger sel traffic may cause a decline in seem to avoid them. Potential emi- zone just north of Cox’s Ledge in the water quality and can disturb and gration of sea duck populations could have positive repercussions for 50 federal waters of Rhode Island even lead to collision with marine 2297.P32_51_P 4/10/13 7:36 PM Page 51

their bottom-dwelling prey species. CABLES have been linked to delayed develop- “The TDI considers the Presence of turbine blades may Little is known about the ecological ment of fish eggs and to both avoid- also affect human uses of the Ocean impacts of the submarine cables ance and attraction behavior in fish whole study area, and so SAMP area by obstructing navigation used to transmit electricity from wind and crustaceans. Further study may and transforming visual panoramas. farms to land. These cables may pro- discover additional effects. you end up with the duce electromagnetic fields, which optimal area. That’s opposed to what goes on TDI Results Including Effects of Glacial Geology historically, which is that the developer picks a prime site and then several alternatives, compares the alternatives to the prime, and one is suspicious about how the sites were selected.” DR. MALCOLM SPAULDING, URI OCEAN ENGINEER

51 2297.P52_64_P 4/5/13 1:22 PM Page 52

Assessing Progress

52 2297.P52_64_P 4/5/13 1:23 PM Page 53

Marine spatial planning (MSP) Tracking the processes of of the policies and actions is Step 4. is a tool for understanding coastal governance Evaluation and a re-examination of the governance system how the issues themselves have and structuring coastal A simple and widely used framework changed rounds out a generation ecosystem change for documenting coastal governance of the management cycle as Step 5. processes is the Joint Group of Experts on the Scientific Aspects of Ideally, ecosystem governance The Ocean SAMP project reflects a evolves as a process of sustained significant focus on understanding Marine Environmental Protection Cycle (GESAMP Cycle). The cycle learning and adaptation that the governance context and offering proceeds through a sequence of practical policies and solutions that begins with an analysis of problems and opportunities (Step 1). It then these cycles. Each cycle or are appropriate for this context. A generation of management may governance baseline is seen as a proceeds to the formulation of a course of action (Step 2). Next is a address an expanding agenda of foundation for an adaptive process issues and/or a larger geographic that uses the principles of ecosys- stage when stakeholders, managers, and political leaders commit to a set area. This conceptually simple cycle tem-based management in the im- —the Policy Cycle—is useful because plementation of MSP. When applied of policies and a plan of action and allocate the resources by which it draws attention to the inter- to MSP, a governance baseline helps dependencies between the steps answer such questions as: the necessary actions will be imple- mented (Step 3). Implementation within each generation and between • What are the features of the exist- ing governance system and its The Policy Cycle strengths and weaknesses as these relate to the desired outcomes of a MSP initiative? A Strategic Process for Effecting Change • What are the features and long- More sustainable forms of coastal development term trends in the ecosystems of concern and the flows of goods and services that the MSP initiative should address? • How has the planning process been structured to win trust and foster collaboration among a diversity of stakeholders? • Has the MSP initiative been de- signed to incorporate the science most relevant to the issues of the ecosystem? • To what degree are the enabling con- ditions present for the effective im- plementation of the MSP initiative? • What aspects of the governance structure are weak and merit additional attention? (Olsen and McCann 2011) 53 2297.P52_64_P 4/5/13 1:23 PM Page 54

ASSESSING PROGRESS Rhode Island Ocean SAMP Policy Cycle: Identification of Key Activities

STEP KEY ACTIVITIES

Step 1: Issue Identifica- Taking Stock: tion and Assessment 1. Define local, state, and global drivers and determine how they influence the process. 2. Establish the core team. 3. Determine project end date/milestones and budget. Pre-planning: 4. Identify and prioritize stakeholder and client issues. 5. Collect available information for issues and drivers. 6. Determine and prioritize research agenda based on meetings and collected information. 7. Define Ocean SAMP boundaries, goals and principles. 8. Design a public process that provides stakeholders with both access and influence over decisions.

Step 2: Preparation Defining and Communicating Existing Conditions: of the SAMP 1. Implement the research agenda, focusing on the priorities identified in the “Taking Stock” phase. 2. Engage stakeholders in research. 3. Communicate research to stakeholders. Developing Policies Transparently: 4. Craft policies for each Ocean SAMP chapter, using stakeholder input and the best available science. 5. Organize workshops and meetings with stakeholders to review chapters and ensure expertise and concerns incorporated into chapter.

Step 3: Formal Adoption 1. Formal public workshops and public comment period implemented. 2. Ocean SAMP is adopted by CRMC. 3. Ocean SAMP is adopted NOAA as a routine programmatic change to the Rhode Island Coastal Management Program. 4. The Ocean SAMP is endorsed by lead federal agencies.

Step 4: Implementation 1. Ocean SAMP implementation funding is secured. 2. CRMC is implementing adaptive management approaches. 3. Permits for new activities within the Ocean SAMP boundaries are processed. 4. Performance standards for permitted activities are monitored and enforced. 5. Impacts on the ecosystem and selected human activities are monitored. 6. Mechanisms to ensure the Ocean SAMP is the guiding document for the entire study area (both federal and state waters) are put in place. 7. Joint Advisory Working Group is organized. 8. Stakeholder advisory committees are organized and commence meeting.

Step 5: Evaluation 1. Program outcomes are documented. (Moving Forward with 2. Management issues are reassessed. Implementation) 3. Priorities and policies are adjusted to reflect experience and changing social and environmental conditions. 4. External evaluations are conducted at junctures in the program’s evolution. 5. New issues or areas are identified for inclusion in the program. 6. Biannual public forums are held to review monitoring results and revise policies to address the SAMP goals.

54 2297.P52_64_P 4/5/13 1:23 PM Page 55

successive generations of man - Tracking the outcomes of The First Order defines the results of agement. The five steps may be coastal governance completing Steps 1 through 3 of the completed in other sequences, as for policy cycle. In the case of the Ocean example, when an initiative begins The “Orders of Outcomes” (Olsen, SAMP, the First Order examines with enactment of a law (Step 3) that 2003; UNEP/GPA, 2006; Olsen et al, whether the enabling conditions provides the mandate for analyzing 2009) provides a framework to have been assembled for the formal issues and developing a detailed plan assess progress toward the goals of adoption of the Ocean SAMP and of action (Steps 1 and 2). Altering the an ecosystem-based management its subsequent successful sequence, however, often comes at program. Each order is composed of implementation. the cost of efficiency, as when it two to five categories of indicators becomes apparent that the authori - that mark the path toward more The Second Order defines the ties provided by the law prove to be sustainable forms of development. outcomes that are the result of inadequate for implementing the The framework demonstrates tangi- implementing a plan of action actions that are required. Progress ble levels of achievement toward the (Steps 3 and 4 of the policy cycle). and learning are greatest when there ultimate and distant goal of sustain- These are grouped into three cate- are many feedback loops within and able development. gories: changes in the behavior of between the steps (GESAMP 1996; target user groups, changes in the Olsen et al. 1997, 1999).

In the case of the Ocean SAMP, the Orders of Outcomes plan was shaped around a set of goals that aim at: 1) Fostering a properly functioning ecosystem that is both ecologically sound and economically beneficial; 2) Promoting and enhancing existing uses; 3) Encouraging marine-based economic development that considers the aspirations of local communities and is consistent with, and complementary to, the state’s overall economic development, social, and environmental needs and goals; and 4) Building a framework for coordinated decision making between state and federal management agencies.

How effective the SAMP is will be determined by the degree to which the plan achieves the goals.

55 2297.P52_64_P 4/5/13 1:24 PM Page 56

ASSESSING PROGRESS

behavior of key institutions, and Assessing the achievement governance arrangements, institu- changes in how and where financial of the first order outcomes tional roles (including clarity on a investments are made. lead agency) and decision-making Based on experience in a wide rules. Formal approval of program The Third Order marks the achieve- diversity of settings (Olsen, 2003, policies and action plan, by the ap- ment of the specific societal and Olsen et al, 2009), the hypothesis is propriate level of government, signals environmental quality goals that that the following four categories of that the First Order threshold of gov- prompted the entire effort. For the outcomes, or enabling conditions, ernmental commitment is in place. Ocean SAMP, Third Order impacts must be present: are anticipated to include an efficient 4. Sufficient capacity is present and equitable decision-making 1. Unambiguous goals have been within the institutions responsible for process for new offshore facilities, the adopted against which the efforts of the program to assemble and imple- generation of electrical power from the program can be measured. Such ment the SAMP policies and action offshore wind turbines, and a related goals must provide the rationale for plan. Such capacity is expressed by decrease in the state’s contributions the SAMP’s objectives and policies as the ability to: 1) Collect and apply to carbon dioxide production. Envi- these are applied to the: 1) Activities scientific information for decision ronmental outcomes may include the permitted in specific areas and; 2) making; 2) Coordinate interdiscipli- mitigation or avoidance of negative Performance standards that must be nary teams and resolve conflicts; and impacts from new offshore facilities met by activities under the purview 3) Design and implement associated on fish, shellfish, birds, bats, and of the SAMP. Such goals and objec- public education programs. marine mammals. Evidence of Third tives must be based upon a thor- Order outcomes usually requires ough understanding of the issues Assessing the success of the Ocean several years to accumulate. that the SAMP will address. SAMP in terms of the Second and Third Orders can occur only after a The Fourth Order asks whether the 2. A core of well-informed and proposal for an offshore wind farm or conditions achieved are contributing supportive stakeholder consti - another large offshore development to a healthy, just, and equitable soci- tuencies and government agencies has been filed with the appropriate ety that is sustaining the qualities of actively supports the program. state and federal agencies and has the ecosystem as a whole. The Fourth Ideally, there should be a foundation been evaluated according to the Order goal is commensurate to of support for the SAMP among the Ocean SAMP policies and proce- “sustainable development.” Progress public and within the user groups dures. It will then become apparent towards the Fourth Order must be that will be affected by the SAMP’s whether the application of the SAMP assessed over the long term. implementation. approach to a CMSP process incor- porating areas under both state and 3. Governmental commitment to the federal jurisdiction will produce a initiative is expressed by the dele- more efficient and less contentious gation of the necessary authorities decision-making process. Over the and the allocation of the financial long-term, it will be possible to resources required for long-term assess whether the SAMP approach implementation. Such commitment has produced an expression of may be expressed by legislation or ecosystem management that strikes through formal agreements among a balance between competing human governmental agencies. Either ap- activities and sustains the flows of goods and services to its associated 56 proach requires consistent and clear human population. 2297.P52_64_P 4/5/13 1:24 PM Page 57

Baseline Conditions for the Rhode Island Ocean Special Area Management Plan Process: Progress in Assembling the Enabling Conditions (First Order Outcomes) as of Time 1, August 2009 and Time 2, March 2011

Clear Goals (Three Indicators)

QUESTION 0 1 2 3 Time 1 Time 2

Have management issues to No action to date Broad issues Some issues Issues have been 2 3 be addressed by the SAMP identified by identified with identified and been identified and project team; stakeholders; prioritized with prioritized? some stakeholder prioritization stakeholders. involvement. underway.

Justification for the rankings: At the time of the first ranking, the largest strides, in terms of prioritization of management issues, were being made through the TDI effort, which addressed siting potential for offshore renewable energy resources projects. Now, several other key issues are being addressed, in great part due to: 1) Significant public input and collaboration among researchers and stakeholders; 2) Issues identified from the European offshore wind turbine experience; and 3) Topics which federal agencies (e.g. BOEM and Army Corps of Engineers) would require for the siting of offshore renewable energy. For example, due to the success of the SAMP bird studies (stud- ies that would be required by the federal agencies), we have been able to put forth specific protection areas for duck species that forage off the coast in the SAMP area. In another example, we have been able to develop a regional advisory body comprised of Rhode Island and Massachusetts fishermen who are committed to enhancing the SAMP further and are providing ongoing feedback on fish resources and fisheries issues. While the work of this group, the Fisherman’s Advisory Board, has not been evaluated yet, a framework has been put in place through the SAMP.

QUESTION 0 1 2 3 Time 1 Time 2

Do the SAMP’s goals define No goals defined Preliminary goals Desired long-term Goals define both 1 3 both desired societal and are being discussed goals address desired societal environmental conditions? with stakeholders. either societal or and environmental environmental outcomes. outcomes.

Justification for the rankings: At the time of the first ranking, SAMP goals had been discussed in initial fashion with the stakeholder group, but not formalized. By Time 2, through an in-depth public process, goals had been defined that address both societal and environmental outcomes.

QUESTION 0 1 2 3 Time 1 Time 2 Are the SAMP goals detailed No targets Targets are Targets specify Targets have 1 1 through time bound and defined expressed in either a date or been defined in quantitative targets (how non-quantitative a quantitative quantitative much, by when)? terms. measure, but terms (how much, not both. by when).

Justification for the rankings: SAMP policies are not currently detailed in this manner. The team is considering if it has enough information to develop these goals. 57 2297.P52_64_P 4/5/13 1:24 PM Page 58

ASSESSING PROGRESS

Constituencies (Three Indicators)

QUESTION 0 1 2 3 Time 1 Time 2

Do the user groups who will Many important User groups are With a few impor- Relevant user 1 3 be affected by the Ocean user groups are aware of Ocean tant exceptions, groups understand SAMP’s actions understand unaware of the SAMP goals and user groups under- Ocean SAMP goals and support its goals, Ocean SAMP’s targets but the stand and support and targets and strategies and targets? goals, strategies degree of support the Ocean SAMP. actively support and targets. varies. them.

Justification for the rankings: While major stakeholder groups, including commercial and and recreational fishermen, had been identified and contacted by Time 1, the process of identifying specific issues was only getting underway. By time 2, intensive consultations and in- formation gathering – including, especially, the integration of local knowledge—had been completed for the formally adopted Ocean SAMP document. User groups continue to be engaged in amendment development and implementation. The high ranking awarded for Time 2 is based on the responses of those who have chosen to engage in the planning process.

QUESTION 0 1 2 3 Time 1 Time 2

Is there public support for the There is little pub- Public awareness Public support is Surveys reveal that 1 3 Ocean SAMP? lic awareness of is incipient. building up due to there is wide pub- the Ocean SAMP. public education lic support for the efforts, positive Ocean SAMP and press coverage, its goals and and endorsement targets. from community leaders.

Justification for the rankings: Again, these ratings are based upon the reactions of those who have chosen to engage in the process and the generally favorable reactions of the media.

QUESTION 0 1 2 3 Time 1 Time 2

Do the institutions that will There is little While pertinent With few excep- The Ocean SAMP 1 3 assist in implementing the awareness of the institutions are tions, pertinent is recognized as Ocean SAMP and/or will be Ocean SAMP aware of the institutions important and affected by its actions within institutions Ocean SAMP, their understand and legitimate by understand and support that will be degree of support support the MSP institutions that its agenda? important is unclear. and have publicly will be involved in partners during endorsed it. its implementation. implementation.

Justification for the rankings: State agencies, including the Rhode Island Department of Environmental Management, the Rhode Island Economic Development Corporation and the Rhode Island Historical Preservation & Heritage Commission were actively engaged in SAMP development and will be active in its implementation. At the federal level, close communication and consultation with the lead fed- eral agencies has been sustained and there is strong support for the Ocean SAMP process and products.

58 2297.P52_64_P 4/5/13 1:25 PM Page 59

Formal Commitment (Three Indicators)

QUESTION 0 1 2 3 Time 1 Time 2

Has the Ocean SAMP been Formal approval There is a legisla- Policies and The SAMP has 1 2 formally approved? process has not tive mandate for actions are being obtained approval been initiated. SAMPs. negotiated with required for approving implementation authorities.

Justification for the rankings: At the time of the first ranking, the SAMP was in the development phase. Now, the SAMP has been ap- proved by the state of Rhode Island and is in the process of obtaining federal approval.

QUESTION 0 1 2 3 Time 1 Time 2 Has the CRMC been provided CRMC authorities CRMC has the nec- The necessary The necessary 2 2 with the authorities it needs are inadequate. essary mandate agreements with agreements for to successfully implement the and authorities. state and federal SAMP implemen- Ocean SAMP? agencies are being tation have been negotiated. negotiated with state and federal agencies.

Justifications for the rankings: As of Time 2, the CRMC has the necessary agreements to implement the SAMP within state waters, so the ranking is 3 for that portion of the SAMP area. However, the majority of the SAMP area lies in federal waters beyond the 3-mile limit of state jurisdiction. The Ocean SAMP has been designed to plan for this larger area on the assumption that the consistency clause in the federal Coastal Zone Management Act will: 1) Enable the state to partner with the responsible state agencies when federal permitting actions are made; and 2) Simplify the federal review and permitting process within the SAMP area. The SAMP is being developed in close coordination with the relevant federal agencies. CRMC is working to secure a Geographic Location Description (GLD) which, when approved by the U.S. National Oceanic and Atmospheric Administration, would extend the state’s authority to exercise its federal con - sistency over a wide range of federal actions occurring within a geographically defined area of federal waters within the Ocean SAMP area. CRMC is also planning to develop MOUs with lead offshore renewable agencies (BOEM and the U.S. Federal Energy Regulatory Commission [FERC]) to ensure that the Ocean SAMP document is recognized as the guiding regulatory document for this area.

QUESTION 0 1 2 3 Time 1 Time 2

Have sufficient financial re- No financial Some pledges and Adequate short .Sufficient financial 2 2 sources been committed to resources commitments are term funding (two resources are in fully develop and implement committed for secured, but signif- years) is secured place to fully im- the SAMP over the long term? implementation icant funding gaps for developing the plement the SAMP of the SAMP remain. SAMP over the long term.

Justification for the rankings: The SAMP project is sufficiently funded for planned 2011—2012 implementation, due to the infusion of federal stimulus funds, but there is no formal line item or commitment from any source to support SAMP refinement and continued implementation for the long term.

59 59 2297.P52_64_P 4/5/13 1:25 PM Page 60

Institutional Capacity (Four Indicators) ASSESSING PROGRESS

QUESTION 0 1 2 3 Time 1 Time 2 Have the institutions responsi- Institutional Institutional In some key insti- Sufficient institu- 2 2 ble for SAMP implementation capacity neces- capacity to tutions institutional tional capacity is demonstrated their capacity sary to implement implement the capacity is ade- present in institu- to implement its plan of the SAMP is not SAMP is marginal. quate but there are tions with responsi- action? present. important weak- bilities for imple- nesses in others. menting the SAMP.

Justification for the rankings: CRMC recognizes that it does not currently have the staff capacity necessary for implementing the SAMP in both state and federal waters. It does have the necessary capacity for SAMP implementation in state waters. The Ocean SAMP regula- tions, however, require that when CRMC is engaged in the review and oversight for large offshore development anywhere within the Ocean SAMP area, the developer will cover the cost for CRMC to contract the necessary expertise that is required. CRMC will also con- tinue to maintain its relationship with URI to acquire science and technical expertise as needed.

QUESTION 0 1 2 3 Time 1 Time 2 Have important actions and No pilot actions Pilots are Pilots are Policies and 2 2 policies been successfully have been underway to completed and construction stan- tested at the pilot scale? initiated. assess viability outcomes have dards have been of actions and shaped actions successfully tested policies. and policies. at pilot level. Justification for the rankings: The ranking remains at a 2 because two potential pilot projects are awaiting possible development and im- plementation. First, there is the possibility that five to eight wind turbines may be installed off the southeast shore of Block Island. This would, in effect, be a pilot project for the proposed 100 larger turbines to be subsequently sited in federal waters within the SAMP region. Second, there is the Area of Mutual Interest (AMI) effort which would provide an innovative test case in terms of regional coordination between Rhode Island and Massachusetts on offshore renewable energy siting initiatives in federal waters. However, the planning for these projects is at a standstill.

QUESTION 0 1 2 3 Time 1 Time 2

Does the Ocean SAMP project No personnel Staffing for Staffing is Sufficient human 2 2 possess the human resources have been as- program imple- adequate in some resources are in to implement its plan of signed responsi- mentation is institutions but not place to fully action? bility for program inadequate. in others. implement the implementation. program.

Justification for the rankings: CRMC has established a strong working relationship with URI to provide continuous technical support to implement the SAMP. This relationship, however, is based on grant or soft money. Through the Ocean SAMP regulations, CRMC will need to gain the necessary technical expertise for making decisions on large offshore development when necessary.

QUESTION 0 1 2 3 Time 1 Time 2 Has the Ocean SAMP No evidence Practice of adap- Important insti- Program as 2 3 project demonstrated the of adaptive tive management tutions engage a whole has ability to practice adaptive management. is incipient and is in periodic self demonstrated management? being expressed as assessments and its ability to learn minor adjustments have modified and adapt by to operational their behavior modifying im- procedures. based on experi- portant targets ence and learning. and/or policies. Justification for the rankings: As the SAMP is now being implemented within state waters, the project has had the opportunity to un- dergo its first round of program amendments and revisions, and to benefit from the ongoing incorporation of new research data. Thus, SAMP policies and the science that informs them are being integrated into the process and are expressions of adaptive management. 60 This will be monitored as the SAMP process continues. The greater challenges of adaptive management will likely occur as the process for negotiating permits for major offshore facilities gets underway. 2297.P52_64_P 4/5/13 1:25 PM Page 61

AS- Acronyms SESSING PROGRESS

ACOE: U.S. Army Corps of Engineers JAWG: Joint Agency Working Group RISAA: Rhode Island Saltwater Anglers Association ADP: Area Designated for Protection LNG: Liquified Natural Gas RISG: Rhode Island Sea Grant AMI: Area of Mutual Interest MOU: Memorandum of College Program Understanding APC: Area of Particular Concern SAMP: Special Area Management MSP: Marine Spatial Planning BOEM: U.S. Bureau of Energy Plan Management NIT: Narragansett Indian Tribe SAP: Site Assessment Plan CMSP: Coastal and Marine Spatial NOAA: National Oceanographic and TAC: Technical Advisory Committee Planning Atmospheric Administration TDI: Technology Development Index COP: Construction and NOAA/NMFS: National Operations Plan Oceanographic and Atmospheric URI: University of Rhode Island Administration/National Marine CRC: URI Coastal Resources Center USCG: U.S. Coast Guard Fisheries Service CRC/RISG: University of Rhode NOAA/OCRM: National Island Coastal Resources Oceanographic and Atmospheric Center/Rhode Island Sea Grant Administration/Office of Ocean and College Program Coastal Resource Management CRMC: Rhode Island Coastal NOPP: National Oceanographic Resources Management Council Partnership Program Coastal Zone Management Act NUWC: U.S. Naval Undersea Warfare FAB: Fishermen’s Advisory Board Center FERC: Federal Energy Regulatory Ocean SAMP: Rhode Island Ocean Commission Special Area Management Plan GESAMP: Joint Group of Experts REZ: Renewable Energy Zone on the Scientific Aspects of Marine Environmental Protection RIDEM: Rhode Island Department of Environmental Management GLD: Geographic Location Designation RIOER: Rhode Island Office of Energy Resources HAB: Habitat Advisory Board

61 61 2297.P52_64_P 4/5/13 1:26 PM Page 62

ASSESSING PROGRESS Literature Cited

Douvere, F. 2008. The importance of Gentner, B. and Steinback, S. 2008. McLeod, K.L., and Lubchenco, J., marine spatial planning in advancing The Economic Contribution of Palumbi, S.R., Rosenberg, A. A. ecosystem-based, sea use manage- Marine Angler Expenditures in the Scientific consensus statement on ment. Marine Policy (pdf, 1.03 United States, 2006. U.S. Dept. of marine ecosystembased manage- MB), Volume 32: 762-771 Commerce, NOAA Tech. Memo. ment. Prepared by scientists and NMFS-F/SPO-94. policy experts to provide informa- Douvere, F., and Ehler, C. N. 2009. tion about coasts and oceans to New perspectives on sea use man- GESAMP (Joint Group of Experts on U.S. policymakers. Communication agement: Initial findings from Euro- the Scientific Aspects of Marine Partnership for Science and the Sea pean experience with marine spatial Environmental Protection). 1996. The (COMPASS). 2005 planning. Journal of Environmental Contributions of Science to Coastal Management, 90(1), 77-88. Zone Management. Rep. Stud. Ninigret Partners. 2007. Rhode GESAMP, (61):66 p. Island Recreational Saltwater Fishing Ehler, C. and Douvere, F. Visions Industry Trends and Economic Im- for a Sea Change. Report of the First IOC. 2007. Visions for Sea Change: pact. Prepared for the RI Saltwater International Workshop on Marine Report of the First International Anglers Association. Spatial Planning. Intergovernmental Workshop on Marine Spatial Plan- Oceanographic Commission and ning: Manual and Guides. No. 48, National Marine Fisheries Service. Man and the Biosphere Programme. Intergovernmental Oceanographic 2010. Fisheries Economics of the IOC Manual and Guides, 46: ICAM Commission, IOCAM Dossier No. 4. United States, 2008. U.S. Dept. Dossier, 3. Paris: UNESCO, 2007 Commerce, NOAA Tech. Memo. (English). Juda, L. 1999. Considerations in De- NMFS-F/SPO-109, 177 p. veloping a Functional Approach to Ehler, C. 2008. Conclusions: the Governance of Large Marine National Oceans Economics Benefits, Lessons Learned, and Ecosystems. 30 Ocean Development Program. 2009. Ocean Economy: Future Challenges of Marine and International Law 89-125. Rhode Island. Online at: Spatial Planning. Marine Policy, 32, http://www.oceaneconomics.org. pp. 840-843. Juda, L. and Hennessey, T. 2001. Last accessed October 21, 2009. Governance Profiles and the Man- FXM Associates. 2008a. Economic agement of the Uses of Large Marine Naval Undersea Warfare Center Effects of Allens Avenue Businesses. Ecosystems. 32 Ocean Development (NUWC) Division Newport. 2009. Prepared for the Providence and International Law 41-67. NUWC Division Newport’s economic Working Waterfront Alliance, impact topped half-billion mark in Rhode Island. 2008. Press Release, January 29, 2009. Online at: FXM Associates. 2008b. Economic http://www.navsea.navy.mil/nuwc/ne Effects of the Port of Davisville, RI. wport/pages/pr.aspx. Last accessed Prepared for the Quonset Develop- October 21, 2009. ment Corporation, Rhode Island. 62 2297.P52_64_P 4/5/13 1:26 PM Page 63

Olsen, S.B. (2003) Frameworks and Rabinowicz, E., Thomson, K.J. and UNEP/GPA (2006) Ecosystem- indicators for assessing progress in Nalin, E. (2001). Subsidiarity, the Based Management: Markers for integrated coastal management CAP and EU enlargement. Swedish Assessing Progress. UNEP/GPA, initiatives. Ocean & Coastal Institute for Food and Agricultural The Hague. Management 46 (3-4): 347-361. Economics: Lund (Sweden). 2001:3 University of Rhode Island Coastal Olsen, S.B. and McCann J. (2011). Sherman, K. and Hempel, G. (Edi- Resources Center and Sustaina - “Rhode Island’s Approach to Marine tors) 2008. The UNEP Large Marine Metrix. 2010. H n Mpoano: Our Spatial Planning.” Unpublished Ecosystem Report: A perspective on Coast, Our Future — Western Region paper. changing conditions in LMEs of the of Ghana Building Capacity for world’s Regional Seas. UNEP Re- Adapting to a Rapidly Changing Olsen, S.B., Fugate G., McCann J. and gional Seas Report and Studies No. Coastal Zone. Spaulding M. (2010) “Assembling 182. United Nations Environment the Enabling Conditions for the Programme. Nairobi, Kenya. Implementation of a Marine Spatial Plan: Rhode Island’s Approach.” Spaulding, M. L., A. Grilli, C. Damon, Unpublished paper. and G. Fugate, 2010, Application of Technology Development Index and Olsen, S.B., G.G. Page, E. Ochoa. Principal Component Analysis and 2009. The Analysis of Governance Cluster Methods to Ocean Renew- Responses to Ecosystem Change: A able Energy Facility Siting, Journal Handbook for Assembling a Profile. of Marine Technology, Special Land-Ocean Interactions in the Edition on Offshore Wind, January Coastal Zone (LOICZ) Reports and February 2010 Studies #34. State of Rhode Island. Coastal Olsen, S.B., Tobey, J. and Zhou L. Resources Management Council. (2009). “The Baseline Conditions The Rhode Island Ocean Special For The Implementation of The Area Management Plan, V. I and II. Rhode Island Ocean Special Rhode Island: Narragansett, 2010. Area Management Plan.” Unpub- Print and web. lished paper. Thunberg, E. 2008. Trends in Olsen, S.B., Lowry, K. & Tobey, J. Selected Northeast Region Marine (1999) A Manual for Assessing Industries. Woods Hole, MA: National Progress in Coastal Management. Oceanic and Atmospheric Adminis- Coastal Resources Center, University tration Northeast Fisheries Science of Rhode Island, Narragansett. Center, July 2008.

63 2297.P52_64_P 4/5/13 1:26 PM Page 64

ASSESSING PROGRESS

64 646464 2297.COV_P 4/5/13 2:47 PM Page 1 oceanSAMP

The Rhode Island Ocean Special Area Management Plan: Managing Ocean Resources Through Coastal and Marine Spatial Planning A Practitioner’s Guide

2013 By Jennifer McCann and Sarah Schumann With Grover Fugate, Sue Kennedy, and Chip Young Monica Allard-Cox, Editor 2297.COV_P 4/5/13 2:38 PM Page 2