We must consider other measures in the coastal area. Recreational or esthetic easements may be one alternative way of regulating or restricting the uses of land in the coastal areas.

The establishment of pollution control or stringent air emission standards, ambient air standards, water pollution standards, and the regulation of dredging for oyster shell and for other commercial purposes are others. All of these can be used in one form or another, alone or in combination, to restrict development or to direct development in the State toward meeting the overall goal of the State and the Federal Government, while not compromising the integrity of the local government.

We feel quite strongly that in order to implement such a program, we are going to have to have the assistance of local government. The State does not have the money, the resources, or the people to get each plat of land and determine the highest type of use to be made of that land. This should be the responsibility of local authority,

All the State can do is to indicate through some type of guidelines, the types of use that we require, and also to indicate what types of areas are worthy of preservation, what areas are best suited for utilization for wildlife management areas, and what areas should be used for industrial development and commercial and urban expansion.

I have previously stated that we are very fortunate in the State of Texas in that much of our coastline is relatively undeveloped.

We are at the point now that if we consider the problems and if we make rational decisions and if we can get the assistance needed from the Federal Government in helping us to develop our plans, then we will be able to move forward with a comprehensive program incorporating all these values, leading hopefully to a coastal area which will be preserved, which will be conserved and which can be properly developed.

We feel that one of the major problems that we have had in our planning is not including legal scholars.

We have not understood the constraints that are placed upon us by our political organization.

We need to understand these so that we can produce some solutions consonant with our political structure.

Therefore, the State of Texas has moved forward in developing at the Bates College of Law, physically located at the University of Houston, an institute of coastal and marine law.

Hopefully, some day this institute will become a separate institute, separate and apart from either the Bates College of Law or the University of Houston operating in areas of understanding the international problems of marine law as well as the legal problems and constraints that operate within our coastal zones.

There must be interaction between these legal scholars and the scientific, technical community developing the criteria by which we should manage, understand and protect our coastal resources within our coastal areas.

At the same time we are conducting legal research, we are also working with scientific and technical people in an interdisciplinary approach, including biologists, engineers, chemists, medical doctors, economists, sociologists and many other disciplines to prevent our

overlooking any significant part of our State activities pertaining to the coastal zones.

Now, each of these areas that we have been discussing this morning, will be strengthened by the enactment of H.R. 9229 or a similar bill. We, and I include the national legislative conference as well as the Governor's Office of the State of Texas, we feel that the passage of such a bill is now necessary.

Mr. LENNON. Let me interrupt you at this point and go off the record. (Discussion off the record.)

Mr. LENNON. Back on the record.

Mr. GOODWIN. This bill is extremely important to all of us.

We wholeheartedly endorse its intent. With the passage of this legislation we in the States will be able to work with both Federal and local agencies in developing the type of coastal program that we need for the future of the country.

Thank you, very much, Mr. Chairman.

That concludes my testimony.

I will be glad to attempt to answer any questions.

Mr. LENNON. The gentleman from Texas, Mr. de la Garza.

Mr. DE LA GARZA. Thank you, Mr. Chairman.

Mr. Goodwin has a very comprehensive prepared statement and in view of the difficulties of time, Mr. Chairman, I withhold any questions. Mr. LENNON. The gentleman from Massachusetts, Mr. Keith.

Mr. KEITH. Are you going to be in town later this afternoon? Mr. GOODWIN. I will be in town until about 4. I have to leave to go to Dulles Airport by then.

Mr. KEITH. I would like to talk to you about some of the problems concerning oil and fishery resources, in particular.

We have to build up momentum and we have to reach some decisions relating to the fishery resources as well as the oil resources. You could be helpful to me in this respect.

What is done with the revenues generated within the 3-mile limit from the offshore oil?

Mr. GOODWIN. These revenues allocated funds for the benefit of the schoolchildren of Texas.

These all go into a designated fund for the education of our schoolchildren.

Mr. KEITH. I asked that question because the offshore resources beyond that help in the outdoor recreation program.

They are earmarked for purposes that relate more closely to this legislation.

Mr. GOODWIN. In Texas, as you probably are aware, the revenues go out to our 3-league limit for mineral exploration purposes only. Mr. KEITH. Yes, you have a special situation.

Thank you, Mr. Chairman.

Mr. LENNON. Mr. Mills?

Mr. MILLS. No questions.

Mr. LENNON. We certainly appreciate your statement, sir, and if you decide that you want to implement it in any way, or suggest language of what we have in the final draft of the bill, not only the final draft but the most recent draft that has come to your attention, we will be glad to hear from you.

Let me ask you this question, sir.

In the ocean dumping bill which is under the jurisdiction of the Environmental Protection Agency and to some degree under the Secretary of the Army, through the Corps of Engineers, there was introduced and added to the ocean dumping bill a provision relating to marine sanctuaries. We had two gentlemen who were very much interested in this, and I, too, am interested in it. The gentlemen who took the strongest position on this, and rightly so, were the gentleman from Massachusetts with us this morning, Mr. Keith, and the gentleman, Mr. Frey from Florida, How do you separate coastal zone management from estuarine and marine sanctuaries?

To me, they are inextricably tied together.

Mr. GOODWIN. You cannot separate them. It is very interesting to those of us working in the area that many people are concerned with the preservation of species, but not of their habitat.

It is very important that we integrate into any coastal resource management program estuarine areas, estuarine sanctuaries, if you will, to preserve the habitat for those water fowl and other species of bird and animals and also plants. Many of the plant species in the coastal zones are unique and arise because of environmental situations that are unique to those areas.

If we do harm these things, then we are going to destroy the habitat and destroy many of our species.

I would like to make one point that I did not raise before, Mr. Chairman, concerning the bill that might prove to be a problem.

Mr. LENNON. Go right ahead. I do not know any legislation that does not create a problem.

Mr. GOODWIN. That is that for purposes of grants it is well stated on page 8, line 23, well, start with line 20 in section 3 under (c), it

says:

The management planning program and changes thereto have been reviewed and approved by the Governor. The Governor of the coastal State has designated a single agency to receive and administer the grants for implementing the management plan and programs set forth in paragraph 1 of this subsection.

In going back to the beginning of the bill, the Secretary is authorized to make annual grants to any coastal State, but it might prove a problem in some States which organize along functional lines and not along an executive form.

Our agencies, for example, are fairly autonomous.

They are operated by boards whose members are appointed by the Governor, one-third every 2 years, and the Governor's term is every 2 years, and it takes two terms of the Governor before he has a majority on the boards of the agencies of the State.

It might be that the Secretary would have conflicting requests coming into him from any number of State agencies interested in jumping on the bandwagon.

It seems to me in trying to develop a coastal resources management plan under this act, you might consider adding that the Governor of the coastal State has designated the single agency to receive and administer the grants for developing and implementing the management plan which would clarify this problem and give the Governor the initiative or the authority or responsibility that is needed in the beginning as well as to determine the agency or agencies that must, in fact, implement the management plan.

Sorry to have digressed for such a long period, Mr. Chairman. Mr. LENNON. I appreciate your thoughts in that regard and especially since you are here speaking for the national legislative conference of the several States.

We would like for all of you gentlemen to submit to counsel by mail, or personally, any suggestions that this committee might want.

I can see now it is going to be involved in this legislation and our considering of it for some little time because we do not want to precipitously push it through and then have questions raised sometime in the future about our not listening to everybody who wanted to be heard.

We would appreciate any views that you have.

Dr. Guernsey, is there any possibility that you will be in Washington during the month of July, because I am sure that we are not going to be able to conclude these hearings in 3 days.

STATEMENT OF DR. LEE GUERNSEY, DEPARTMENT OF NATURAL RESOURCES, TALLAHASSEE, FLA.

Dr. GUERNSEY. I will be glad to arrange to return, if the committee wishes.

Mr. DE LA GARZA. Mr. Chairman, in view of the difficulties of Dr. Guernsey, I wonder if he has any statement he might want to briefly make in addition to his prepared text, out of courtesy to his not being able to get on today.

Mr. LENNON. I commend the gentleman for his thoughtfulness and I will ask Dr. Guernsey to come forward and give us anything he wants to say. Doctor, we will be happy to hear you.

Dr. GUERNSEY. Mr. Chairman, the State of Florida welcomes the opportunity of appearing before this committee to comment on the merits of H.R. 2493. I am representing the Governor, who sends his personal regrets that he is not able to testify, and the Florida Coastal Coordinating Council, which consists of the executive directors of the Florida Departments of Natural Resources (chairman), Air and Water Pollution Control, and the trustees of the Internal Improvement Trust Fund (State lands agency).

H.R. 2493 will help to establish a national policy that will encourage and assist the coastal States to exercise a better balance between development and protection of their coastal zone. This bill is consistent with the objectives of our Coastal Coordinating Council, and I urge you to favorably consider it as an expression of support to what Florida is doing about their extensive coastal zone.

Of the approximately 88,000 miles of coastline that exists along the edge of the United States, about 7 percent of the Nation's coastline exists in Florida. In fact, Florida has 6,263 miles of exposure on the Gulf of Mexico and the Atlantic Ocean and over 1,500 miles of beach. The State total is second only to that of Alaska, and Florida has considerably more residential and recreational development pressure, as I'm sure you will agree. If coastal zone management is a problem anywhere, it exists in its most complicated form in Florida.

In recognition of this extensive coastal zone and the intensive developments associated with our shoreline and beaches, the 1970 Florida

Legislature established the Coastal Coordinating Council, which was charged, among other duties, with developing a comprehensive State plan for the protection, development, and zoning of the coasts of Florida. The Coastal Coordinating Council has now been in operation for about 10 months, and we have worked diligently to prepare this comprehensive plan. In preparation for better coastal zone management we have published an atlas entitled "Florida Coastal Zone Land Use and Ownership," and a report entitled "Escarosa: A Preliminary Study of Coastal Zone Management Problems and Opportunities in Escambia and Santa Rosa Counties, Florida." We have also compiled "Florida Coastal Zone Applied Research Needs," which defines a large proportion of our current research and informational needs. Copies of each of these publications will be mailed to each of you distinguished gentlemen upon my return to Florida. We have received numerous favorable comments about each of these three reports. We feel that we have pioneered new concepts in coastal zone management practices and procedures that may be a model for other States. We would be appreciative of any further suggestions that you may have for further improvement.

But there is much work to be done and there are many unresolved problems in Florida's coastal zone. I would like to briefly mention a few of these to you now.

Today, Florida has a congested, expanding metropolitan population concentrated in large parts of its coastal zone. We also have lesser developed coastal areas which still contain many of the amenities and aesthetics that attracted the original settlers to our shores and we hope to save these from haphazard, unplanned developments.

According to the Bureau of Census, more than 80 percent of Florida's 6,500,000 population resides in the 38 coastal counties. Some 16 of these coastal counties contain 72.5 percent of the total Florida population. All coastal counties are rapidly attracting more residents as well as ever increasing numbers of tourists. The coastal zone is even more concentrated than the U.S. coastal population where 60 percent of the people live within 250 miles of the Atlantic, Pacific, and Gulf Coasts.

There is no doubt that the degradation of the environmental quality of our coastal zone caused by an increased population is of major public today. Historically an intense development has taken place at the interface between developed land and the ocean. Yet, this narrow environment must be maintained in a healthy condition if the ocean is to meet the requirements of a growing population for food, minerals, recreation, and other benefits. Through this interface are transported most liquid wastes and an increasing amount of solid wastes. Consequently, coastal waters and estuaries have become the sink of most of man's liquid wastes as well as much of his solid wastes. The wastes created by our increasing population are severely stressing the quality of coastal zone waters. They will continue to be the ultimate sink for residues of man's activities unless better management takes place in our coastal zone.

The Nation has recently become aware of the declining quality of our coastal zone. Now a national conscience about the quality of our coastal zone has been awakened by numerous oil spills, closed beaches,