Georgia sound, Vol. 4, no. 1 (Jan. - Mar. 1998

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PROGRAM UPDATE
By: Kathy Zagzebski
Happy New Year!!! This year we have a wonderful holiday present to be thankful for--federal approval of the Georgia Coastal Management Program!
I write my last Program Update with mixed emotions. I am leaving the Georgia Coastal Management Program in January to take a new job in California. While I'm very excited about this opportunity to manage the stranding department at The Marine Mammal Center, I will miss Georgia and the friends I have made here.
I remember coming to Georgia in July, 1996. The subtle beauty of the marshlands struck me immediately. I love the herons, egrets, ibis, and storks, standing still as statues, picking delicately for food, or flying with awkward gracefulness overhead. I love the expansive dune fields, especially on Cumberland, scoured by the sea to the east and buttressing the upland to the west, anchored in the middle with morning glories and pennywort. And, I love to stand on the beach and gaze out at the vast expanse of ocean and. just. think.
Coastal Georgia is indeed a special place. The struggle to achieve a coastal management program in Georgia has been long and challenging. I've enjoyed helping develop the GCMP. It has been interesting also to learn about coastal management's history in Georgia; the issues we are struggling with today are the same issues the first coastal zone advisory council and coastal management board struggled 'Oith in the '70s. We all know the issues; it's a matter of making increasingly difficult decisions as we try to progress economically while retaining the environmental quality of life we value. No one is fooled--the road ahead is not easy. Increased coastal population is leading to increased and conflicting uses of fragile coastal resources. Businesses and environ- 0 mental organizations often are at odds with each other. Government agencies are being asked to do more with less. Yet these issues are not insurmountable. Proper planning for growth, the realization that the "environmental" solution may be the best "economical" solution, and the increased emphasis on customer service from government agencies are all steps in the right direction. With a mission to balance economic development and environmental protection, the Georgia Coastal Management Program is an excellent tool to help Georgians manage coastal resources. I challenge all of you-agencies, businesses, organizations, and individuals--to use this program wisely, to help achieve the Coastal Georgia you are proud to leave as a legacy to your grandchildren!

Happy New Year!!

THE GEORGIA SOUND * Winter 1998 * Page 2
Georgia's Journey to Coastal Management

Some people may believe the Georgia Coastal Management Program is new to our coast. That couldn't be further from the truth! Coastal Zone Management has been a long-standing tradition in the State of Georgia. The following time1ine summarizes the State's efforts to protect it's important coastal resources.

1890 1970 1974-1979
1976
1978 1978
1979 1979
Nov. 1979 Aug. 1981 1984 1984 Oct. 1992
Oct. 1992

Passage of fust coastal protection laws. Georgia Coastal Marshlands Protection Act passed. Georgia works to develop its Coastal Management Program under the provisions of the federal Coastal Zone Management Act passed in 1972. Governor George Busbee appoints Coastal Zone Management Advisory Council, a 34-member group of citizens representing a variety of public interests First Georgia Coastal Management Act passed. Passage of the Act creates the Georgia Coastal Management Board, an ll-member group of citizens representing a variety of public interests Georgia Shore Protection Act passed Georgia withdraws from participation in the national CZM program before receiving federal approval, but continues to develop a state program. Georgia Coastal Management Board approves Draft Coastal Management Program Georgia Coastal Management Board adopts fust Georgia Coastal Management Plan Georgia Coastal Management Act of 1978 sunsets. Georgia Coastal Management Board sunsets. Governor Zell Miller directs DNR Coastal Resources Division to investigate developing a Georgia Coastal Management Program for federal approval. Governor Zell Miller appoints citizen Coastal Zone Advisory Committee, a 27-member group of citizens representing a variety of public interests.

Sept. 19 Nov. 1994 May 1995 Aug. 1995 March 1996 July 1996 Sept. 1996 Nov. 1996 Nov. 1996
Jan. 1997 Jan. 1997 Feb. 1997 April 1997 April 1997 June 1997 July 1997 Aug. 1997 Dec. 1997 Jan. 1998

Coastal Zone Advisory Committee sunsets. DNR Commissioner reappoints citizen Coastal Advisory Committee. Draft Program Document published for public review. Second Draft Program Document published for public review. General Assembly passes resolution to create Joint Legislative CZM Study Committee. Joint Legislative CZM Study Committee appointed. Joint Legislative CZM Study Committee meets for the fust time. Third Draft Program Document available for public review. Joint Legislative CZM Study Committee recommends sending Georgia Coastal Management Act to General Assembly for consideration. Final Draft Program Document available for public and NOAA review. Georgia Coastal Management Act passes Georgia House, 154 to 8. Georgia Coastal Management Act passes Georgia Senate, 54 to O. Governor ZeII Miller signs Georgia Coastal Management Act into law. Governor ZeII Miller submits Georgia program to NOAA for review. Coastal Advisory Committee expanded to include increased representation. Coastal Resources Division establishes Savannah site office. Draft Environmental Impact Statement published for public review. Final Environmental Impact Statement published for public review. NOAA approves the Georgia Coastal Management Program!!!

It is interesting to note that Georgia's first efforts at coastal management, in the form of the Coastal Marshlands Protection Act, predate the federal efforts! The "Marsh Act" (as it is informally known) is still recognized as one of the premier pieces of legislation protecting marshlands in the country! Some common themes tie Georgia's recent efforts at creating a coastal management program to the State's initial efforts. From the beginnings of CZM in the 1970's, the State has involved citizens as important components in the decision-making process. Furthermore, the very first coastal management plan adopted in 1981 included a networked program that relied upon existing laws, which is the same approach Georgia is using today! Finally, the first coastal management plan highlighted the importance of public information, and the present Coastal Management Program also stresses public information, education, and outreach as critical activities to involve the public in coastal resource management. As Georgia moves forward with program implementation, the State will continue its emphasis on involving and educating the public in natural resource management.

THE GEORGIA SOUND * Fall 1997 * Page 3
NOAA Welcomes Georgia to National Coastal Zone Management Program
To the citizens of Georgia:
It is with great honor that the National Oceanic and Atmospheric Administration's Office of Ocean and Coastal Resource Management welcomes Georgia as the 32nd participant in the national Coastal Zone Management partnership. The U.S. Congress in 1972 recognized a national interest in the effective management, beneficial use, protection, and development of the nation's coastal zone by passing the Coastal Zone Management Act. Since 1974, with the approval of the first state coastal management program in the state of Washington, 27 coastal states and five island territories have developed programs that support sustainable development while protecting sensitive resources and encouraging public access to the coast. Together these programs now protect over 99 percent of the nation's 95,000 miles of oceanic and Great Lakes coastline. With the approval of Georgia's program, all ocean-facing states are included in the national partnership. Georgia joins Texas and Ohio as states entering the national program in the past year.The coastal zone management program is a true partnership between citizens and government at all levels. Reflecting the diverse natural environment of the coastal zone and the varied uses of coastal lands and waters throughout the country, each state program is tailored to its unique resources and needs. The state programs, based onstate and local laws, are backed by NOANs technical and financial assistance. The "federal consistency" authority embodied in the Coastal Zone Management Act enables state coastal management programs to ensure that federal agency activities, like private activities, are consistent with the program.
NOAA once again welcomes Georgia into the national program and we look forward to Georgia's voice in guiding the program's future. The success of the Georgia program isa tribute to the commitment of the citizens of Georgia and the hard work and determination of the Department of Natural Resources. Without the persistence of program managers and staff in the Coastal Resources Division, the program would not have gotten off the ground. NOAA salutes all those whose work enabled the Georgia Coastal Management Program to become a reality.
Jeffrey R. Benoit Director, Office of Ocean and Coastal Resource Management, National Oceanic and Atmospheric Administration
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THE GEORGIA SOUND * Winter 1998 * Page 4
Habitat Management in Georgia's Coastal Area
A series by: Terry West
(This four page article is an introduction to a multi-issue series Mr. West is writingfor The Georgia Sound)

The entire scope of legal authorities related to the protection and management of Georgia's coastal environment is spread out over several Federal, State, and local government agencies. However, there are three State legal authorities crucial to Georgia's Coastal Management efforts which are administered directly by the Coastal Resources Division of the Georgia Department of Natural Resources. These cornerstone coastal management authorities are the Coastal Marshlands Protection Act of 1970, the Shore Protection Act, and the Revocable License authorizations for use of State owned tidal lands and waters.
The Habitat Management Program, within the Ecological Services Section of the Coastal Resources Division, is responsible for the administration of these regulatory authorities. Under the supervision of Program Manager Terry West, the Habitat Management Program staff of five associates perform an average of more than 200 direct personal services per month related to these three authorities. These services include processing of permit applications, delineating jurisdictional areas, performing compliance inspections of permitted projects, investigating

unauthorized anellor illegal activities, and consulting with various individuals regarding legal requirements and project designs.
These three authorities encompass a jurisdictional area of more than 750,000 acres which includes the tidal marshlands and water bottoms of all tidally influenced rivers and creeks, the sand beaches and dune areas of Coastal Georgia's barrier islands, and the offshore ocean waters and submerged water bottoms out to the three mile limit of State ownership. Under the Public Trust Doctrine of Law, the State of Georgia holds title to all waters, and the lands beneath, which are influenced by the normal ocean tides. These tidal waters and lands are held in trust by the State for the benefit of the public. Rare exceptions to the Public Trust Doctrine of Law are Crown Grants from the King of England which remain valid, and grants of tidal lands and waters made by the Georgia General Assembly. But, even these rare exceptions of "granted" tidal lands and waters are subject to most of the regulatory requirements of the Coastal Marshlands Protection Act and Shore Protection Act, including the permit requirements for anyalterations, impacts, or activities.

Increasing population and development on Georgia's coast puts increasing demands on the Coastal Resources Division tasked with balancing environmental preservation with economic development.

THE GEORGIA SOUND * Winter 1998 * Page 5
Habitat Management in Georgia's Coastal Area
A series by: Terry West

Georgia has more tidal marshlands than any other state on the east coast. These delicate ecosystems are vital to the longterm health of Georgia's coastal area.

Coastal Marshlands Protection Act

of 1970

Georgia has more tidal marshlands acreage than any other east coast state. Combined,Georgia and South Carolina account for well over 50% of the remaining tidal marshlands on the U.S. eastern seaboard. These marshlands are the most biologically developed salt marshes in the United States. These tidal marshlands are vitally important to finfish and shellfish production, as well as performing valuable functions of filtering wastes and pollutants from estuarine waters and serving as storm buffers between the open ocean and the mainland. Although Georgia's coast is about 100 miles as the crow flies from Tybee Island to St. Marys, the tidal creeks and rivers intertwined within our estuarine area create more than 2300 linear miles of coastal shoreline.

The Coastal Marshlands Protection Act established a permitting process as the primary. means for controlling impacts to tidal marshlands. The legislation created a Coastal Marshlands Protection Committee vested with powers to issue orders and render decisions on permit applications. By law, this committee consists of three members: the Commissioner of the Department of Natural Resources, and two other individuals who must be residents of one of Georgia's six coastal counties, chosen by the Board of Natural Resources; Examples of projects requiring permits from the Coastal Marshlands Protection Committee include commercial marina facilities, boat ramps., bridges, industrial docking facilities, and community dock facilities.

THE GEORGIA SOUND * Winter 1998 * Page 6
Habitat Management in Georgia's Coastal Area A series by: Terry West

Georgia's initial effort for Federal approval o~ a comprehensive Coastal Management Plan, 1976 to 1979, succeeded in identifying a need for State legislation to protect the sand dunes, beaches, and offshore waters. The Shore Protection Act was enacted by the General Assembly and signed into law in 1979.
Georgia has about 100 miles of sand beaches located on our 15 major ocean facing barrier islands. About 19 miles of these sand beaches are located on the four barrier islands accessible by automobile, and therefore developed for residential and/or commercial purposes. All ofthese beaches are an integral part of coastal Georgia's more than $1 billion a year tourism industry, an industry which in

1995 surpassed agriculture as the leading economic industry in the state.
Like the Coastal Marshlands Protection Act, the Shore Protection Act established a permitting process as the primary means of controlling impacts to jurisdictional areas. The Shore Protection Act also created a Shore Protection Committee, identical to the Coastal Marshlands Protection Committee, and with the same powers to issue orders and render decisions on permit applications. Examples of projects which require Shore Protection Committee permits are beach renourishment projects, groins, jetties, rock revetments to protect property, sand dune crossover structures, and any buildings within the jurisdictional areas.

Shore Protection Act
of 1979

This dune cross-over structure is an example of a project that needs a Shore Protection Act permit. Any structure built within the shoreline jurisdiction is responsible for getting a permit.

THE GEORGIA SOUND * Winter 1998 * Page 7
Habitat Management in Georgia's Coastal Area
A series by: Terry West

These docks are examples of projects that require a revocable license for the use of State owned tidal lands and waters.
Revocable License for Use of State Owned Tidal Lands and Waters

In addition to the Coastal Marshlands Protection Act and Shore Protection Act requirements for permits, there is also a separate permit for any structures, facilities, or projects located upon State owned tidal lands and/or waters. This authority for supervision of State owned tidal lands and waters was originally delegated to the Governor by the General Assembly in 1863. Up until 1994, all other authorizations for use of State owned tidal lands and waters were issued in the form of Revocable License agreements by the Department of Natural Resources' Real Estate Unit located in Atlanta. In what is probably the most important and far reaching Habitat Management Program initiative to date, the authority for issuing Revocable License authorizations, and tidal water bottoms leases, was transferred to the Habitat Management Program in August, 1994.
This transfer of the Revocable License authority combined the process for Coastal Marshlands

Protection Act and Shore Protection Act permit applicants. The Revocable License authorization process was immediately incorporated into each Act's normal permitting process, thus eliminating duplicate paperwork, increasing staff efficiency, reducing permitting time, and streamlining the permitting process for coastal projects. The processing and review of Revocable License requests for single-family, recreational docks by the Habitat Management Program greatly reduced the time for authorizations of such facilities and allowed for more thorough, on-site cooperative decisions with the U.S. Army Corps of Engineers. Since August, 1994, the Habitat Management Program has issued 578 Revocable License authorizations: an average of about 14 per month, and 173 per year. Approximately 75% of the Revocable License authorizations issued are for private, single-family, recreational dock facilities.

THE GEORGIA SOUND * Winter 1998 * Page 8

With Implementation Comes New Faces & New Organization

The times, they are a-changin'! Several Georgia Coastal Management Program staff members are leaving to pursue other opportunities. Kathy Zagzebski, Program Manager, is moving to California, and Michelle Aldenderfer, Education and Information Officer, is moving to Florida. The Ecological Services Section has been reengineered to accommodate the changes and prepare for implementation of the GCMP.
The following is a partial list of services provided under the Georgia Coastal Management Program, and contact names for each service. The figure shows the new organization structure for the section. All individuals may be reached at 912/264-72181. Additionally, at any time you may contact Duane Harris, Stuart Stevens, or Phil Flournoy for other information.

Program Management and Administration Regulatory Authorities NOAA Award Management/Budget Federal Consistency Coastal Incentive Grants Public Outreach and Education Coastal Management Lists, Status, Files

Dr. Stuart Stevens Terry West Phil Flournoy Kelie Cochran Jim Seymour LeaKing Rhonda Knight

New faces in the office include Jim Seymour, who will be administering Coastal Incentive Grants; Lea King, who will be coordinating public outreach and education for the Georgia Coastal Management Program; and Naney Buder, who will be coordinating public outreach and education for the rest of the Coastal Resources Division.
Jim Seymour is a small business co-owner from Brunswick who previously held administrative positions at ABC Home Nursing Services. Additionally, he was director of the human resources department at the Coastal Area Planning and Development Commission (the predecessor of the Regional Development Center), where he administered a grant program similar to our Coastal Incentive Grants. He'll be a big help in getting our pass-through grant program up and running!
Lea King comes to the DNR from the Brunswick office of the American Heart Association, where she was the field director responsible for handling publicity, education programs, fundraising, and volunteer recruitment. A public relations professional, she received her bachelor's degree in communications from Valdosta State College. Her communication skills will be put to good use as education and information officer for the Georgia Coastal Management Program.
Naney Buder has in-depth experience in public relations, marketing, and advertising. She comes to us from a public relations firm in Seattle, Washington, where she planned and directed communication programs for national accounts. She received her bachelor's degree in journalism from the University of Georgia. She'll find her public relations skills invaluable in handling marine fisheries issues!

THE GEORGIA SOUND * Winter 1998 * Page 9
Ecological Services Section

Section Chief Program Audit and Client Services
Dr. Stuart Stevens

Education and Outreach

Lea King

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Program Manager Habitat Management
Terry West

I
Program Manager Operations
Phil Flournoy

Permit Coordinator

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Rubinette Douglas

Grants Administration
I-
Jim Seymor

Compliance Assurance-South
I-
Sam Latham
- Compliance Assurance-North Tom Miller

CoastalArk Outreach/Training
I-
Janet Evans Training and Planning
I-
vacant

Water Quality Impact Assessment

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Kelie Cochran

Water Quality Research Paulette Crawford

Technicial Assistance
L..
Cindy Gregory

Technicial Assistance
L..
Rhonda Knight

The services created through implementation of the Georgia Coastal Management Program are executed by the Ecological Services Section of the Coastal Resources Division. The above diagram presents this structure with the new employees' names. To reach any of the above people, please call the Coastal Resources Headquarters at (912) 264-7218. To reach Tom Miller in ourSavannah satellite
office, please call (912) 691-6810

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THE GEORGIA SOUND * Winter 1998 * Page 10

FEDERAL CONSISTENCY UPDATE New Fisheries Cooperative Efforts

With the approval of the Georgia Coastal Management Program in January, federal consistency provisions of the federal Coastal Zone Management Act will become effective. Federal agenciesconducting activities in Georgia should be aware of the federal consistency requirement. Section 307 of the federal Coastal Zone Managment Act of 1972, as amended, states that: "each federal agency activity within or outside the coastal zone that affects any land or water use or natural resource of the coastal zone shall be carried out in a manner which is consistent to the maximum extent practicable with the enforceable policies of approved state management programs." An interagency workshop to learn about federal consistency with respect to Georgia's program is tentatively scheduled for Fall, 1998. For more information about federal consistency, contact David Kaiser, NOAA Federal Consistency Coordinator, at 3011713-3098 xl44. For information about Georgia's program, contact Kelie Cochran, GCMP Federal Consistency Coordinator, at 912/264-7218.
COASTAL INCENTIVE GRANTS UPDATE
The Coastal Incentive Grant applications are piling in! Already (as of the late December print date of this newsletter) we have many excellent proposals! In fact, we have more proposals than funding available! It's great to see such overwhelming response to this new grant program. The response demonstrates Georgia's need for more resources to address coastal issues, and we're happy that the Georgia Coastal Management Program can help provide additional resources!
A note to grant applicants: Thank you for your application! We recognize the thought and effort put into every application, and we applaud you for your ideas! We hope to fund as many projects as possible! Please be aware, however, that our resources are limited and we not be able to fund every project every year. If you have any questions about Coastal Incentive Grants, please call Jim Seymour at 912/264-7218.

Increased population growth in Georgia's coastal counties has placed more pressure on our valuable natural resources. This is especially true of marine fisheries resources. Realizing that current fisheries data collection methods are inadequate in meeting management needs, the Atlantic coastal states in partnership with with federal agencies are in the process of implementing the Atlantic Coastal Cooperative Statistics Program (ACCSP). The ACCSP is a comprehensive coastwide fisheries data collection program encompassing commercial and recreational fisheries biological, fishing effort, and social data. ACCSP goals include establishing coast-wide data collection standards, eliminating duplicative reporting requirements, improving estimates of bycatch and discards, protection of corporate and individual privacy, and making fisheries data accessible to commercial harvesters, recreational anglers, managers, and the general public. For more information on how the ACCSP will be implemented in Georgia please contact Julie Califf or Clark Evans at the Coastal Resources Division (912) 264-7218.
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THE GEORGIA SOUND * Winter 1998 * Page 11

GEORGIA COASTAL MANAGEMENT PROGRAM

SUMMARY

The State of Georgia recognizes the beautiful and precarious nature of its vital natural resource system. Through the 1997 Georgia Coastal Mangement Program Act, the Department of Natural Resources, Coastal Resources Division received authority to develop the Georgia Coastal Management Program (GCMP). In an unprecedented public involvement process, the citizens of Georgia worked with the DNR to develop a program that balances economic development with preservation of coastal resources. As the lead agency for the Coastal Management Program, the Coastal Resources Division conducts several functions including resource management, ecological monitoring, permitting, technical assistance, and federal consistency review: Local, State, and federal agencies perform their respective functions in accordance with the GCMP. Following is a breakdown of the different sections that comprise the Georgia Coastal Management Program document.
Where is the coastal zone?
Georgia's coastal zone covers all tidally-influenced waters and includes eleven counties:

Brantley Bryan Camden
McIntosh

Charlton Chatham Effingham
Wayne

Glynn Liberty Long

Enforceable Policies
The policies in this section of the GCMP are supported by 34 State laws and associated regulations. The Coastal Advisory Committee (CAC) made their recommendations and the GCMP staff meshed these concepts with existing state laws. These laws and the established coastal network of State, local and federal agencies comprise the enforceable policy section.

Uses Subject to Management

Special Management Areas

Coastal Incentive Grants

Many activities and industries rely on Georgia's coastal resources for their economic well-being. These same activities can conflict with one another and impact the very resources on which they are dependent. The GCMP addresses the following:
Development & Manufacturing Transportation Facilities Agriculture & Silviculture Recreation & Tourism Marine Related Facilities Fisheries, & Wildlife Public Service Facilities Dredging Energy Facilities

These areas are considered of such special concern that the State has established regulatory controls over them. These areas were identified by the CAC as environmentally fragile or economically significant. These include:
Areas of Historic Significance Barrier Islands
Marsh Hammocks Aquifer Mngmt. & Protection Economic Development Areas
Public Access Freshwater Wetlands Navigational Channels
Beaches & Dunes Rivers & Adjacent Wetlands
Shorebird Nesting Areas Ocean Management Heritage Trust Lands State Wildlife Areas State Parks Jekyll Island Sapelo Island NERR

As part of the GCMP, the CRD will award "Coastal Incentive Grants" to county and municipal governments, state agencies, and educational and research intitutions for projects that further the mission of the GCMP. The Coastal Advisory Committee (CAC) sets annual themes and funding criteria. The theme of the 1997-1998 Coastal Incentive Grant cycle is "Coastal WaterRelated Resources."

THE GEORGIA SOUND * Winter 1998 * Page 12

With the January 5 closure of the public comment period for the GCMP Final Environmental Impact Statement, the Georgia Coastal Management Program is eligible for federal approval! The ceremony to designate the State of Georgia into the national coastal zone management program is scheduled for January 8 in Savannah. Scheduled to attend are officials from NOAA, Georgia DNR Commissioner Lonice Barrett, local government officials, coastal advisory committee members, and GCMP staff. This is an exciting moment for us, and we would like to
take this opportunity to thank all the folks who helped us develop Georgia's coastal management program. Hat's off to everyone!!!

Designation Ceremony

Georgia Coastal Management Program Department of Natural Resources Coastal Resources Division One Conservation Way, Suite 300 Brunswick, GA 31520-8687