Chapter One HISTORICAL OVERVIEW OF THE COASTAL Precursors of Coastal Management: Recognition of the Resource Crisis 1962-1971 Passage of 1972 Coastal Management Act: Struggle for Program Control 1969-1972 State Coastal Program Planning: National Energy Crisis Impacts 1973-1980 Coastal Program Implementation: Effects of a Hostile Administration 1980-1988 Reassessing the Coastal Program: Forging an Arena for the Nineties 1988-1990 Endnotes States in the Federal Coastal Zone Management Program Table 1. Approved State Coastal Management Programs INTRODUCTION The purpose of this chapter is to present an overview of the history of the program carried out under the Coastal Zone Management Act (CZMA) of 1972, from the early stirrings of the "coastal management" idea in the 1960s to its present mature stage in 1990. While the primary thrust here is to describe the program over time, it is impossible to avoid some assessment of its accomplishments and shortcomings in the course of the description. The primary question of interest is: How have the nation's coastal resources been managed under the CZMA? The chapter is arranged in chronological fashion, proceeding through several time periods marked by coastal program developments. Given the broad and complex nature of the program and its responsiveness to societal change, such stages tend to include several concurrent and overlapping historical trends in addition to the major program activities. The primary stages include: 1) 2) 3) 4) 5) Precursors of Coastal Management: Recognition of the Resource Crisis 1962-1971 To orient the reader, an overview of actions during the program stages is presented first and then amplified in the following discussion. This overview is keyed on the listing of events in the CZMA chronology contained in the Appendix at the end of this chapter. More details on selected aspects of the program, including federal consistency, the National Estuarine Reserve Research System (NERRS), the Coastal Energy Impact Program (CEIP), state coastal management activities, and the economics of coastal zone management are presented in the following chapters of this report. Overview of Program Stage Actions Precursors The Coastal Zone Management (CZM) program was preceded by a decade marked by rising tides of concern for protecting coastal recreation areas and estuaries, while at the same time making productive use of coastal resources, setting up what some perceive as dichotomous goals of coastal conservation and development. These concerns were crystallized in a number of federally-commissioned reports, the most notable of which was the Stratton Commission's 1969 report, Our Nation and the Sea. While the idea of coastal management legislation was under debate, a related Congressional debate on a national land use policy act was raging. Had it passed, a national land use act could have preempted the coastal management act, under the logic that coastal management was simply a subset of comprehensive land use management. At the same time, an effort was underway to modernize and strengthen the legal framework of land use regulation, exemplified in the American Law Institute's Model Land Development Code, and a push began for more environmentally sensitive land use planning under the National Environmental Policy Act of 1969. Passage of the 1972 Act Starting in 1969, a number of coastal management bills were introduced in Congress, distinguished by whether they emphasized “ocean development” under the aegis of the newly created National Oceanic and Atmospheric Administration (NOAA) in the Department of Commerce (DOC) or “conservation and land use" under the traditional federal land agency, the |