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Framework for Action:Galveston Bay

Management Evaluation

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Galveston BayNational Estuary Program

GBNEP-27January 1993

CL printed on recycled paper using soy-based ink

Framework for Action:Galveston Bay Management Evaluation

Framework for Action:Galveston Bay Management Evaluation

Susan G. HaddenPrincipal Investigator

LBJ School of Public AffairsThe University of Texas

Prepared bySusan G. Hadden and Lauren Riggin

The Galveston Bay National Estuary Program

Publication GBNEP-27January, 1993

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This project has been funded in part by the United States EnvironmentalProtection Agency under assistance agreement # CE-006550-01 to the Texas WaterCommission. The contents of this document do not necessarily represent theviews of the United States Environmental Protection Agency or the Texas WaterCommission, nor do the contents of this document necessarily constitute theviews or policy of the Galveston Bay National Estuary Program ManagementConference or its members. The information presented is intended to providebackground information, including the professional opinion of the authors, forthe Management Conference deliberations in drafting of official policy in theComprehensive Conservation and Management Plan (CCMP). The mention oftrade names or commercial products does not in any way constitute anendorsement or recommendation for use.

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Policy

The Honorable Rodney Ellis, ChairTexas Senate

Mr. John HallChair,

Texas Water Commission

Mr.James BlackburnFounding Chairman,

Galveston Bay Foundation

Mr. Charles MillerPast Chairman of the Board

Greater Houston Partnership

Vice-ChairRegional Administrator, EPA Region 6

Ms. Terry HersheyVice-Chair,Texas Parks and Wildlife Commission

Mr. Charles W. JennessChair,Texas Water Development Board

The Honorable Jon LindsayCounty Judge, Harris County

Local Governments Advisory CommitteeThe Honorable Ray Holbrook, Chair

Management CommitteeMr. Myron O. Knudson, Chair Ms. Barbara Britton, Vice-Chair

Scientific/Technical Advisory CommitteeDr. Robert McFarlane, Chair Ms. Teresa Battenfield, Vice-Chair

Citizen's Advisory Steering CommitteeMs. Sharron Stewart, Chair Mr. Ron Embry, Vice-Chair

Galveston Bay Public ForumDr. Don Bass, Chair

Program DirectorDr. Frank S. Shipley

The Galveston Bay National Estuary Program

Texans increasingly express their expectations for a clean environment in termsof entire ecosystems. Until recently, our tendency was to view environmentalproblems in isolated pieces we could understand—indeed this view wasinstitutionalized (and seemingly immortalized) in an elaborate mosaic offragmented jurisdictions. The Galveston Bay National Estuary Program(GBNEP) is a forerunner in elevating hands-on management of coastalenvironments to the level of the ecosystem; and in doing so, is encouraging anintegration of traditionally disparate institutions.

The GBNEP was established under the authority of the Water Quality Act of 1987to develop a Comprehensive Conservation and Management Plan (CCMP) forGalveston Bay. The purpose of the CCMP is to address threats to the Bayresulting from pollution, development, and overuse. To address these threats,five years of work commenced in 1990, consisting of three phases: (1)Identification of the specific problems facing the Bay; (2) A Bay-wide effort tocompile data and information to describe status, trends, and probable causesrelated to the identified problems; and (3) Creation of the CCMP itself to enhancegovernance of the Bay at the ecosystem level. The GBNEP is accomplishing thiswork through a cooperative agreement between the U.S. EPA (Region 6) and theState of Texas (administered by the Texas Water Commission).

The structure of the GBNEP reflects a strong commitment to consensus-buildingamong all Galveston Bay user groups, government agencies, and the public. TheGBNEP "Management Conference" consists of six Governor-appointedcommittees with broad representation, totaling about one hundred individuals.Meetings of these committees are also open to the public, and public participationin policy-setting and in Bay management are considered strengths of theprogram. When submitted to the Governor of Texas in late 1994, the CCMP willreflect thousands of hours of involvement (much in the form of volunteer time) byindividuals who in various ways use, enjoy, or help govern this vital coastalresource.

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TABLE OF CONTENTS

GLOSSARY xiv

PART I: INTRODUCTION

EXECUTIVE SUMMARY 1Action Plan Topics 1Management Topics 6

1. INTRODUCTION 9Purpose 9Evaluation Criteria 10Report Organization 13Report Limitations 14Acknowledgments 14

2. OVERVIEW OF GALVESTON BAY 17

PART II: ACTION PLAN TOPICS

3. POINT SOURCE POLLUTION 21Regulatory Framework 25Municipal Waste water Treatment 42Oil and Gas Activities: Texas Railroad Commission 52Summary Evaluation 56

4. NONPOINT SOURCE POLLUTION 59Regulatory Framework 63Agriculture G5Stormwater Runoff 69Septic TanksEvaluating Nonpoint Source Management 79Summary Evaluation 80

5. SPILLS/DUMPING 83Spills 83

Regulatory Framework 84Spill Risk Factors in Galveston Bay 93Evaluation 100

Dumping and Marine Debris 102Regulatory Framework 104Public Participation 107

Summary Evaluations 108

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6. DREDGING/FILLING 113Regulatory Framework 114Agencies and Implementation 119Review of Federal Dredge and Fill Projects 131Evaluation 133Summary Evaluation 140

7. FRESHWATER INFLOW 143Water Ownership and Rights 143Galveston Bay Inflow Trends 144Water Rights Permitting 148Enforcement 153Evaluation 154Summary Evaluation 158

a SHORELINE DEVELOPMENT 161Local Land Management and Economic Development 162Federal and State Coastal Management 171Evaluation 175Summary Evaluation 176

9. HABITAT PROTECTION 179Federal Regulatory Framework 180State Programs for Habitat Protection 193Evaluation 199Summary Evaluation 201

10. SPECIES PROTECTION 208Fish and Shellfish 203Birds 208Endangered Species 209Evaluation 211Summary Evaluation 213

11. HUMAN HEALTH 215Shellfish 215Fish 231Contact Recreation 233Evaluation 235Summary Evaluation 236

12. SUBSIDENCE/EROSION 239Subsidence

Regulatory Framework 240Implementation 240Evaluation 245

Bay and Coastal Erosion 216Summary Evaluation 250

PART III: ANALYSIS AND RECOMMENDATIONS

13. ENVIRONMENTAL MANAGEMENTFOR GALVESTON BAY 253Environmental Planning 253Environmental Permitting 256Environmental Monitoring 261Environmental Enforcement 264General Problems of the Regulatory Process 266Pollution Prevention 267Nonregulatory Environmental Management 270Programs Conflicting with Bay Goals 275Research 276Conclusion 280

14. IMPLEMENTING THE CCMP 283Resources 283Obstacles 288Institutions for Managing Galveston Bay 291Information Management and Coordination 295Conclusion 297

15. CONCLUSIONS AND RECOMMENDATIONS 301Characteristics of the Framework for Managing

the Environment of Galveston Bay 301Assumptions Underlying Our Recommendations 304Recommendations 305Conclusion 312

LIST OF INTERVIEWS 313INDEX 321

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GLOSSARY

ACHP Advisory Council on Historic PreservationACP Area Contingency Plan (spill response)ACP Agricultural Conservation ProgramASCS U.S. Agricultural Stabilization and Conservation ServiceBAT Best Available TechnologyBCT Best Conventional Pollutant Control TechnologyBMP Best Management PracticeBOD Biological Oxygen Demand (a water pollution criterion)CCC Coastal Coordination CouncilCCMP Coastal Coordination and Management PlanCG U.S. Coast GuardCHPUD City of Houston Public Utilities DepartmentCMC Center for Marine ConservationCorps US Army Corps of EngineersCPF Coastal Protection FundCWA Clean Water ActCZM Coastal Zone Management PlanDHS U.S. Department of Human ServicesDMR Discharge Monitoring ReportDOT Department of TransportationDSSC Division of Shellfish and Sanitation ControlEA Environmental AssessmentEIS Environmental Impact StatementEPA U.S. Environmental Protection AgencyETJ Extraterritorial JurisdictionsFDA Food and Drug AdministrationFONSI Finding of No Significant ImpactFCWA Federal Clean Water ActFWS U.S. Fish and Wildlife ServiceGAO General Accounting OfficeGBNEP Galveston Bay National Estuary ProgramGCA Gulf Coast Waste Disposal AuthorityGIS Geographic Information SystemGLO General Land OfficeGMFMC Gulf of Mexico Fishery Management CouncilHGCSD Houston Galveston Coastal Subsidence DistrictHSC Houston Ship ChannelICT Interagency Coordination TeamIPM Integrated Pest ManagementISSC Interstate Shellfish Sanitation ConferenceLEPC Local Emergency Planning CommitteeLOP Letter of PermissionMARPOL Marine Pollution Treaty (Annex V)MBTA Migratory Bird Treaty ActMEH Mandatory Enforcement HearingMMPA Marine Mammal Protection ActMOA Memorandum of Agreement

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MRSC Marine Spill Response CorporationMUD Municipal Utility DistrictNCP National Contingency PlanNMFS National Marine Fisheries ServiceNOAA National Oceanic and Atmospheric AdministrationNPDES National Pollutant Discharge Elimination SystemNFS Non-point SourceNSSP National Shellfish Sanitation ProgramONRW Outstanding National Resource WatersOPA Oil Pollution Act of 1990OSC On-Site Coordinator (spill response)OSCCP On-Site Coordinator Contingency Plan (spill response)OSPRA Oil Spill Prevention and Response ActOSSF On-Site Sewage FacilitiesPISCES Professional Involvement of Seafood Concerned EnterprisesPSF Permanent School FundRCP Regional Contingency Plan (spill response)RGL Regulatory Guidance LetterKRjC Texas Railroad CommissionRRT Regional Response Team (spill response)SBA Small Business AdministrationSCS Soil Conservation ServiceSRF State Revolving FundTWC Texas Water CommissionTPWD Texas Parks and Wildlife DepartmentSHPO State Historic Preservation OfficerSPCB Structural Pest Control BoardTACB Texas Air Control BoardTDA Texas Department of AgricultureTDH Texas Department of HealthTMDL Total Maximum Daily LoadTRA Trinity River AuthorityTHE Toxic Reduction EvaluationTSS Total Suspended SolidsTWDB Texas Water Development BoardUSDA U.S. Department of AgricultureVTS Coast Guard's Vessel Traffic ServiceWQA Water Quality ActWQS Water Quality Standards

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