Assessing the state of the art in national ocean policy studies

Abstract

For over a decade the nation‐states of the world have been redefining the legal and political status of the world's oceans, both unilaterally and in multilateral negotiations. Despite the growing importance of ocean policy, we know too little concerning what are current nation‐state marine interests, how they make their marine related decisions, or how they organize themselves for marine policy. This paper was written as an organizing paper for a workshop to assess the state of the art in national ocean policy studies. It was sponsored by the Marine Science Affairs Program, International Decade of Ocean Exploration Office, National Science Foundation. The paper states the goal of the workshop, it defines the terms of reference, such as public policy, public policy analysis, comparative public policy analysis and national ocean policy; it offers a “systems”; influenced model for the evaluation of national ocean policy, and it identifies the state of our knowledge of the various components of national ocean policy by performing a computer‐based survey of the literature. Some 5,000 studies were examined and reduced to 1,000 relevant items. Highlights of the findings show that: 1) we know most about the output stage of ocean policy, less about input, little about process; 2) we know most about bureaucratic ocean decisions, less about legislative, little about judicial ocean decisions; 3) output studies rose and declined, input studies have increased steadily, and process studies may show a sharp rise; 4) we know most about the United States, Japan, and the USSR, less about Western Europe, little about the Third World; and 5) most of the studies were conducted by those using “traditional”; research tools.     

Guiding the ocean search process: Applying public land experience to the design of leasing and permitting systems for ocean mining and ocean shipwrecks

Abstract

The federal administration of the Mining Law of 1872 and of the Mineral Leasing Act of 1920 offers a wealth of experience on the public lands that should be taken into account in managing ocean resources that are similarly under government control. The government has faced a conflict between policy goals because the earlier assurance of development rights stimulates exploration but also makes it more difficult to assure environmental protection. Greater public expenditures for planning and advance information gathering may reduce such conflicts but are limited in their extent by economic considerations. This article analyzes past government attempts to deal with such issues in leasing offshore and onshore oil, and gas, coal, and in the administration of the “hardrock”; claim and patent system. The article suggests alternative ways of sequencing the acquisition of minerals and environmental information in the design of future systems for managing ocean resources.     

Identifying the Science and Technology Dimensions of Emerging Public Policy Issues through Horizon Scanning

Public policy requires public support, which in turn implies a need to enable the public not just to understand policy but also to be engaged in its development. Where complex science and technology issues are involved in policy making, this takes time, so it is important to identify emerging issues of this type and prepare engagement plans. In our horizon scanning exercise, we used a modified Delphi technique [1]. A wide group of people with interests in the science and policy interface (drawn from policy makers, policy adviser, practitioners, the private sector and academics) elicited a long list of emergent policy issues in which science and technology would feature strongly and which would also necessitate public engagement as policies are developed. This was then refined to a short list of top priorities for policy makers. Thirty issues were identified within broad areas of business and technology; energy and environment; government, politics and education; health, healthcare, population and aging; information, communication, infrastructure and transport; and public safety and national security.     

The study of environmental public policy: A preliminary directory

Selected contributions to the study of environmental public policy are reviewed in the context of the difficulties faced in making such studies cumulative. The information obtained for a preliminary directory of students of environmental public policy is outlined and briefly analyzed. The directory itself is presented.     

陆源人类活动对近海生态系统的影响

随着海岸带快速城市化和经济发展,人类活动对近海生态系统的影响日益增加。通过对国内外大量相关文献的分析和与国际专家的研讨,分别从海洋资源开发、海岸带城市化和环境变化等几个方面概述了陆源人类活动对近海生态系统的影响。目前陆源人类活动导致近海生态系统出现的主要问题有:海洋生物资源过度捕捞、海岸带富营养化、海洋酸化、珊瑚礁退化、海洋垃圾、以及海岸带矿产开采等高强度开发活动引发的重金属和持久性有机污染物污染等。这些问题会直接导致海洋生物群落结构变化、影响水质、降低海洋生物多样性,最终影响海洋生态系统服务功能,威胁海洋生态系统健康。这些问题的根源多来自陆地,必须将海洋和陆地作为一个有机整体,整合海陆系统相互作用的科学计划,推进海洋资源和近海生态系统的可持续管理。     

Global distribution and diversity of marine Verrucomicrobia

Verrucomicrobia is a bacterial phylum that is commonly detected in soil, but little is known about the distribution and diversity of this phylum in the marine environment. To address this, we analyzed the marine microbial community composition in 506 samples from the International Census of Marine Microbes as well as 11 coastal samples taken from the California Current. These samples from both the water column and sediments covered a wide range of environmental conditions. Verrucomicrobia were present in 98% of the analyzed samples, and thus appeared nearly ubiquitous in the ocean. Based on the occurrence of amplified 16S ribosomal RNA sequences, Verrucomicrobia constituted on average 2% of the water column and 1.4% of the sediment bacterial communities. The diversity of Verrucomicrobia displayed a biogeography at multiple taxonomic levels and thus, specific lineages appeared to have clear habitat preference. We found that subdivision 1 and 4 generally dominated marine bacterial communities, whereas subdivision 2 was more frequent in low salinity waters. Within the subdivisions, Verrucomicrobia community composition were significantly different in the water column compared with sediment as well as within the water column along gradients of salinity, temperature, nitrate, depth and overall water column depth. Although we still know little about the ecophysiology of Verrucomicrobia lineages, the ubiquity of this phylum suggests that it may be important for the biogeochemical cycle of carbon in the ocean.     

Modeling Selective Pressures on Phytoplankton in the Global Ocean

Our view of marine microbes is transforming, as culture-independent methods facilitate rapid characterization of microbial diversity. It is difficult to assimilate this information into our understanding of marine microbe ecology and evolution, because their distributions, traits, and genomes are shaped by forces that are complex and dynamic. Here we incorporate diverse forces—physical, biogeochemical, ecological, and mutational—into a global ocean model to study selective pressures on a simple trait in a widely distributed lineage of picophytoplankton: the nitrogen use abilities of Synechococcus and Prochlorococcus cyanobacteria. Some Prochlorococcus ecotypes have lost the ability to use nitrate, whereas their close relatives, marine Synechococcus, typically retain it. We impose mutations for the loss of nitrogen use abilities in modeled picophytoplankton, and ask: in which parts of the ocean are mutants most disadvantaged by losing the ability to use nitrate, and in which parts are they least disadvantaged? Our model predicts that this selective disadvantage is smallest for picophytoplankton that live in tropical regions where Prochlorococcus are abundant in the real ocean. Conversely, the selective disadvantage of losing the ability to use nitrate is larger for modeled picophytoplankton that live at higher latitudes, where Synechococcus are abundant. In regions where we expect Prochlorococcus and Synechococcus populations to cycle seasonally in the real ocean, we find that model ecotypes with seasonal population dynamics similar to Prochlorococcus are less disadvantaged by losing the ability to use nitrate than model ecotypes with seasonal population dynamics similar to Synechococcus. The model predictions for the selective advantage associated with nitrate use are broadly consistent with the distribution of this ability among marine picocyanobacteria, and at finer scales, can provide insights into interactions between temporally varying ocean processes and selective pressures that may be difficult or impossible to study by other means. More generally, and perhaps more importantly, this study introduces an approach for testing hypotheses about the processes that underlie genetic variation among marine microbes, embedded in the dynamic physical, chemical, and biological forces that generate and shape this diversity.     

Ocean acidification refugia in variable environments

Climate change refugia in the terrestrial biosphere are areas where species are protected from global environmental change and arise from natural heterogeneity in landscapes and climate. Within the marine realm, ocean acidification, or the global decline in seawater pH, remains a pervasive threat to organisms and ecosystems. Natural variability in seawater carbon dioxide (CO₂) chemistry, however, presents an opportunity to identify ocean acidification refugia (OAR) for marine species. Here, we review the literature to examine the impacts of variable CO₂ chemistry on biological responses to ocean acidification and develop a framework of definitions and criteria that connects current OAR research to management goals. Under the concept of managing vulnerability, the most likely mechanisms by which OAR can mitigate ocean acidification impacts are by reducing exposure to harmful conditions or enhancing adaptive capacity. While local management options, such as OAR, show some promise, they present unique challenges, and reducing global anthropogenic CO₂ emissions must remain a priority.     

A novel spatio-temporal scale based on ocean currents unravels environmental drivers of reproductive timing in a marine predator

Life-history strategies have evolved in response to predictable patterns of environmental features. In practice, linking life-history strategies and changes in environmental conditions requires comparable space–time scales between both processes, a difficult match in most marine system studies. We propose a novel spatio-temporal and dynamic scale to explore marine productivity patterns probably driving reproductive timing in the inshore little penguin (Eudyptula minor), based on monthly data on ocean circulation in the Southern Ocean, Australia. In contrast to what occurred when considering any other fixed scales, little penguin''s highly variable laying date always occurred within the annual peak of ocean productivity that emerged from our newly defined dynamic scale. Additionally, local sea surface temperature seems to have triggered the onset of reproduction, acting as an environmental cue informing on marine productivity patterns at our dynamic scale. Chlorophyll-a patterns extracted from this scale revealed that environment factors in marine ecosystems affecting breeding decisions are related to a much wider region than foraging areas that are commonly used in current studies investigating the link between animals'' life history and their environment. We suggest that marine productivity patterns may be more predictable than previously thought when environmental and biological data are examined at appropriate scales.     

Aquatic polymers can drive pathogen transmission in coastal ecosystems

Gelatinous polymers including extracellular polymeric substances (EPSs) are fundamental to biophysical processes in aquatic habitats, including mediating aggregation processes and functioning as the matrix of biofilms. Yet insight into the impact of these sticky molecules on the environmental transmission of pathogens in the ocean is limited. We used the zoonotic parasite Toxoplasma gondii as a model to evaluate polymer-mediated mechanisms that promote transmission of terrestrially derived pathogens to marine fauna and humans. We show that transparent exopolymer particles, a particulate form of EPS, enhance T. gondii association with marine aggregates, material consumed by organisms otherwise unable to access micrometre-sized particles. Adhesion to EPS biofilms on macroalgae also captures T. gondii from the water, enabling uptake of pathogens by invertebrates that feed on kelp surfaces. We demonstrate the acquisition, concentration and retention of T. gondii by kelp-grazing snails, which can transmit T. gondii to threatened California sea otters. Results highlight novel mechanisms whereby aquatic polymers facilitate incorporation of pathogens into food webs via association with particle aggregates and biofilms. Identifying the critical role of invisible polymers in transmission of pathogens in the ocean represents a fundamental advance in understanding and mitigating the health impacts of coastal habitat pollution with contaminated runoff.     

Local Ecological Knowledge and Scientific Data Reveal Overexploitation by Multigear Artisanal Fisheries in the Southwestern Atlantic

In the last decades, a number of studies based on historical records revealed the diversity loss in the oceans and human-induced changes to marine ecosystems. These studies have improved our understanding of the human impacts in the oceans. They also drew attention to the shifting baseline syndrome and the importance of assessing appropriate sources of data in order to build the most reliable environmental baseline. Here we amassed information from artisanal fishermen''s local ecological knowledge, fisheries landing data and underwater visual census to assess the decline of fish species in Southeastern Brazil. Interviews with 214 fishermen from line, beach seine and spearfishing revealed a sharp decline in abundance of the bluefish Pomatomus saltatrix, the groupers Epinephelus marginatus, Mycteroperca acutirostris, M. bonaci and M. microlepis, and large parrotfishes in the past six decades. Fisheries landing data from a 16-year period support the decline of bluefish as pointed by fishermen''s local knowledge, while underwater visual census campaigns show reductions in groupers'' abundance and a sharp population decline of the Brazilian endemic parrotfish Scarus trispinosus. Despite the marked decline of these fisheries, younger and less experienced fishermen recognized fewer species as overexploited and fishing sites as depleted than older and more experienced fishermen, indicating the occurrence of the shifting baseline syndrome. Here we show both the decline of multigear fisheries catches – combining anecdotal and scientific data – as well as changes in environmental perceptions over generations of fishermen. Managing ocean resources requires looking into the past, and into traditional knowledge, bringing historical baselines to the present and improving public awareness.     

Increase in Antimicrobial Resistance in Bacteria Isolated from Stranded Marine Mammals of the Northwest Atlantic

Studies on marine mammals can inform our understanding of the environmental health of the ocean. To evaluate the potential for changes in antimicrobial resistance, we analyzed a database spanning 2004–2010 that consisted of bacterial isolate identity and antimicrobial sensitivity for stranded pinnipeds in the Northwest Atlantic. Samples (n = 170) from treated animals yielded 310 bacterial isolates representing 24 taxa. We evaluated changes in antimicrobial class resistance from 2004 to 2010 for eight taxa. Escherichia coli displayed a significant increase in resistance to several antimicrobial classes. Other taxa displayed significant increases in resistance to aminoglycosides, and/or fluoroquinolones. In addition, we observed a significant increase in multiple antimicrobial resistance in cultures from untreated animals. These results demonstrate an increase in resistance among common bacterial pathogens of marine mammals over a time span of 6 years.     

An Integrated Assessment Model for Helping the United States Sea Scallop (Placopecten magellanicus) Fishery Plan Ahead for Ocean Acidification and Warming

Ocean acidification, the progressive change in ocean chemistry caused by uptake of atmospheric CO₂, is likely to affect some marine resources negatively, including shellfish. The Atlantic sea scallop (Placopecten magellanicus) supports one of the most economically important single-species commercial fisheries in the United States. Careful management appears to be the most powerful short-term factor affecting scallop populations, but in the coming decades scallops will be increasingly influenced by global environmental changes such as ocean warming and ocean acidification. In this paper, we describe an integrated assessment model (IAM) that numerically simulates oceanographic, population dynamic, and socioeconomic relationships for the U.S. commercial sea scallop fishery. Our primary goal is to enrich resource management deliberations by offering both short- and long-term insight into the system and generating detailed policy-relevant information about the relative effects of ocean acidification, temperature rise, fishing pressure, and socioeconomic factors on the fishery using a simplified model system. Starting with relationships and data used now for sea scallop fishery management, the model adds socioeconomic decision making based on static economic theory and includes ocean biogeochemical change resulting from CO₂ emissions. The model skillfully reproduces scallop population dynamics, market dynamics, and seawater carbonate chemistry since 2000. It indicates sea scallop harvests could decline substantially by 2050 under RCP 8.5 CO₂ emissions and current harvest rules, assuming that ocean acidification affects P. magellanicus by decreasing recruitment and slowing growth, and that ocean warming increases growth. Future work will explore different economic and management scenarios and test how potential impacts of ocean acidification on other scallop biological parameters may influence the social-ecological system. Future empirical work on the effect of ocean acidification on sea scallops is also needed.     

Social and economic policy issues relevant to marine aquaculture

This paper presents a critical review of current social, economic and policy issues relevant to marine aquaculture (mariculture) in Europe. Tools for identifying the full range of social, economic and environmental issues that influence the sustainable development of mariculture are examined. Under present sectoral approaches to policy, investment, development planning and natural resources management, these issues continue to be treated in isolation. The four main challenges presented in this paper are: (i) how to create a more objective information base with which to assess the social, economic and environmental factors that condition the sustainability of mariculture; (ii) how to provide information from different disciplines in an easy to obtain and compatible format; (iii) how to better integrate knowledge and skills from different disciplines to create a holistic and robust framework for assessing options for mariculture development that integrates social, economic and environmental parameters; and (iv) the effective integration of these assessments into the formulation of policy, investment strategies, spatial plans and natural resources management for coastal areas. Specific issues that need to be addressed within the framework for the integrated evaluation of the economic, social and environmental parameters governing the sustainable development of mariculture include: ? development of more accurate information on the economic, social and environmental benefits and costs of well‐planned and managed mariculture; ? clearer definition of gaps in existing knowledge on factors critical to the sustainable and equitable development of mariculture; ? development of pro‐active consideration of the coastal land and water resource requirements of mariculture as part of strategic economic planning, spatial planning and natural resources management; ? the need for more equitable treatment of mariculture regarding rights of access to sites for development and use of resources; ? development of awareness among decision‐makers, planners, and managers from different sectoral agencies of the contribution that mariculture may make in promoting the sustainable use of coastal ecosystems; ? promotion of a shift in emphasis away from controlling the end use of resources and toward a more balanced approach to coastal development where emphasis is also given to maintaining the health and productivity of coastal ecosystems and the resources they generate that sustain different forms of activity, including mariculture.     

Challenges for Risk Assessors

At the early part of the 21st century, occupational safety and health risk assessors face a variety of challenges. In addition to technical issues, the challenges for risk assessors include: assessment of risks of mixtures/and synergistic effects; incorporation of biological information into risk assessments; development of different ways of presenting risk information to better inform policy makers and the public; better expressions of uncertainty and assumptions; and harmonization of assessments across agencies and countries. All of these challenges will occur against a background of unfolding understanding of human and other genomes. Risk assessors will be motivated and pressured to use genomic and related technologies, but ethical, social, and technical issues need to be addressed before widespread use.     

Climate shifts the interaction web of a marine plankton community

Climatic effects in the ocean at the community level are poorly described, yet accurate predictions about ecosystem responses to changing environmental conditions rely on understanding biotic responses in a food‐web context to support knowledge about direct biotic responses to the physical environment. Here we conduct time‐series analyses with multivariate autoregressive (MAR) models of marine zooplankton abundance in the Northern California Current from 1996 to 2009 to determine the influence of climate variables on zooplankton community interactions. Autoregressive models showed different community interactions during warm vs. cool ocean climate conditions. Negative ecological interactions among zooplankton groups characterized the major warm phase during the time series, whereas during the major cool phase, ocean transport largely structured zooplankton communities. Local environmental conditions (sea temperature) and large‐scale climate indices (El Niño/Southern Oscillation) were associated with changes in zooplankton abundance across the full time series. Secondary environmental correlates of zooplankton abundance varied with ocean climate phase, with most support during the warm phase for upwelling as a covariate, and most support during the cool phase for salinity. Through simultaneous quantitation of community interactions and environmental covariates, we show that marine zooplankton community structure varies with climate, suggesting that predictions about ecosystem responses to future climate scenarios in the Northern California Current should include potential changes to the base of the pelagic food.     

The big ecological questions inhibiting effective environmental management in Australia

The need to improve environmental management in Australia is urgent because human health, well‐being and social stability all depend ultimately on maintenance of life‐supporting ecological processes. Ecological science can inform this effort, but when issues are socially and economically complex the inclination is to wait for science to provide answers before acting. Increasingly, managers and policy‐makers will be called on to use the present state of scientific knowledge to supply reasonable inferences for action based on imperfect knowledge. Hence, one challenge is to use existing ecological knowledge more effectively; a second is to tackle the critical unanswered ecological questions. This paper identifies areas of environmental management that are profoundly hindered by an inability of science to answer basic questions, in contrast to those areas where knowledge is not the major barrier to policy development and management. Of the 22 big questions identified herein, more than half are directly related to climate change. Several of the questions concern our limited understanding of the dynamics of marine systems. There is enough information already available to develop effective policy and management to address several significant ecological issues. We urge ecologists to make better use of existing knowledge in dialogue with policy‐makers and land managers. Because the challenges are enormous, ecologists will increasingly be engaging a wide range of other disciplines to help identify pathways towards a sustainable future.     

Climate Change and Range Expansion of the Asian Tiger Mosquito (Aedes albopictus) in Northeastern USA: Implications for Public Health Practitioners

The Asian tiger mosquito, Aedes albopictus (Skuse), is an invasive species with substantial biting activity, high disease vector potential, and a global distribution that continues to expand. New Jersey, southern New York, and Pennsylvania are currently the northernmost boundary of established Ae. albopictus populations in the eastern United States. Using positive geographic locations from these areas, we modeled the potential future range expansion of Ae. albopictus in northeastern USA under two climate change scenarios. The land area with environmental conditions suitable for Ae. albopictus populations is expected to increase from the current 5% to 16% in the next two decades and to 43%–49% by the end of the century. Presently, about one-third of the total human population of 55 million in northeastern USA reside in urban areas where Ae. albopictus is present. This number is predicted to double to about 60% by the end of the century, encompassing all major urban centers and placing over 30 million people under the threat of dense Ae. albopictus infestations. This mosquito species presents unique challenges to public health agencies and has already strained the resources available to mosquito control programs within its current range. As it continues to expand into areas with fewer resources and limited organized mosquito control, these challenges will be further exacerbated. Anticipating areas of potential establishment, while planning ahead and gathering sufficient resources will be the key for successful public health campaigns. A broad effort in community sanitation and education at all levels of government and the private sector will be required until new control techniques are developed that can be applied efficiently and effectively at reasonable cost to very large areas.     

Natural variation in SAR11 marine bacterioplankton genomes inferred from metagenomic data

Background  

One objective of metagenomics is to reconstruct information about specific uncultured organisms from fragmentary environmental DNA sequences. We used the genome of an isolate of the marine alphaproteobacterium SAR11 ('Candidatus Pelagibacter ubique'; strain HTCC1062), obtained from the cold, productive Oregon coast, as a query sequence to study variation in SAR11 metagenome sequence data from the Sargasso Sea, a warm, oligotrophic ocean gyre.