BACKGROUND

Maintaining and enhancing California's ocean ecosystem is critically important for those who wish to swim, surf, sail, or fish in clean and productive ocean waters. These and other recreational opportunities contribute substantially to the economy of the State and the nation. The California Comprehensive Offshore Resource Study prepared by the State Lands Commission indicates that 86 cents of every dollar spent on tourism statewide in 1986 was spent within coastal counties (State Lands Commission, 1994). The California Research Bureau's economic analysis prepared in support of this Agenda determined that ocean and coastal tourism and recreation contributed $9.9 billion to the State's economy in 1992, making it the largest spending component of the seven ocean-dependent industries included in the analysis. However, with this thriving industry comes recreational use conflicts which must be managed proactively to maintain the health of California's ocean resources that attract so many visitors.

The rapid increase in ocean recreation activities in the last 40 years has created new coastal industries in California. Advances in recreational equipment technology have been a primary factor in these new recreational activities. The 1950's and 60's included a revolution in ocean recreation as the sports of surfing and scuba diving emerged. Activities such as wind surfing and the use of personal watercraft (sometimes referred to as "thrill craft") have dramatically increased in the past 20 years. As the public seeks new ways to enjoy the ocean, sports such as kayaking and open water rowing have been adapted for use in bays, estuaries, and the open ocean. Long enjoyed activities, such as sport fishing, snorkeling, and body surfing also continue along the California coast.

ISSUE ANALYSIS

California's reputation as a major coastal vacation and recreation center draws hundreds of thousands of tourists each year, and the appeal of the coastal lifestyle has resulted in a rapidly increasing coastal population. Federal, State, and local programs which protect ocean and coastal resources play an important role in maintaining the California coast as a major visitor destination.

California's Ocean Resources:  An Agenda for the Future				      Chapter 5G:  Tourism and Recreation
The Resources Agency of California						 		    July  1995  (Draft)

Evaluation and Promotion of Coastal and Ocean Tourism

The California Trade and Commerce Agency's Division of Tourism, has the mission of creating jobs and tax revenues by stimulating economic activity through increased tourism expenditures. Using surveys to develop profiles of average visitors, the division determines the statewide economic benefits of tourism and also computes tourism revenues for each county in California. An annual report provides estimates of visitor travel patterns, also determined through an extensive survey. The division provided important information to the California Research Bureau for their economic analysis of ocean-dependent industry. However, the studies and reports provided to the Research Bureau do not separate coastal tourism travel patterns or economic impacts from other areas of the State. In addition, the division does not have programs that specifically promote ocean and coastal tourism. Most programs specifically promoting ocean and coastal tourism are developed by local governments or the private sector.

Emergence of Eco-Tourism

Eco-tourism has had a variety of definitions. Many agree, however, that the term is centered around the concept of "sustainable tourism" which was defined for discussion purposes at Globe '90, a conference sponsored by the Canadian government in Vancouver in March 1990, as:

"leading to the management of all resources in such a way that we can fulfill economic, social, and aesthetic needs while maintaining cultural integrity, essential ecological processes, biological diversity, and life support systems."

The concept of eco-tourism is transforming many fundamental elements of the tourism industry. According to Diane Merlino (Editor, Travel and Tourism News), the eco-tourism initiative emerged in the 1970s as a reaction to the "negative consequences of tourism development, including the destruction of natural resources and ecosystems, cultural devastation, and glaring economic discrepancies." She goes on to say that "new ideologies and coalitions established by the responsible tourism movement helped spawn environmental tourism in the early 1980s which led in turn to the birth of eco-tourism."

Leaders in trade organizations of the tourism industry are recognizing that sustainable tourism, or eco-tourism, will depend on the industry developing, adopting, and providing the information necessary to implement codes of conduct and good practice. For example, the personal watercraft industry has begun distributing literature to watercraft dealers explaining ways to avoid offending other users and to help protect marine resources. Coastal resort hotels sometimes advise patrons on ways to avoid damaging the marine environment. These are examples of positive approaches which should be considered for all aspects of the ocean and coastal tourism industry.

The State and federal government are also taking measures to ensure that tourism minimally impacts the ocean ecosystem. For instance, programs are in place to reduce the impacts of whale watching excursions, sightseeing, and kayaking. Tours of National Marine Sanctuaries, National Estuarine Research Reserves, and State reserves are specifically designed to maximize visitor enjoyment and education, while minimizing environmental impacts.

California's Ocean Resources:  An Agenda for the Future				      Chapter 5G:  Tourism and Recreation
The Resources Agency of California						 		    July  1995  (Draft)

The State of California has a variety of programs intended to protect and enhance ocean and coastal resources, and/or to develop facilities to support California's coastal recreation and tourism. The natural beauty of the California coast and integrity of California's fish and wildlife populations protected by State programs are immense draws for both tourists and residents. The substantial contribution of ocean-dependent tourism and recreation to the State economy supports the concept that responsible environmental management is an investment in resource protection as well as a healthy economy.

The California Coastal Act was crafted by the legislature to protect and enhance marine and coastal resources while also protecting recreational opportunities and public access to the shoreline. These principals must be incorporated in the local coastal programs developed by all local governments along the California coast. The California Coastal Commission, which implements the Coastal Act, has developed initiatives such as the Adopt-A-Beach program, Coast Weeks, and Coastal Clean-up Day which provide interesting and informative recreational opportunities that encourage ecologically sound enjoyment of coastal and ocean resources. The California Department of Parks and Recreation (DPR) provides ocean recreation opportunities along 264 miles of ocean frontage parks, or about 24% of the California coastline, serving more than 43 million visitors each year. In addition, the DPR manages 11 marine underwater parks encompassing almost 10,000 acres.

The California Department of Fish and Game enhances tourism experiences by enforcing the State's wildlife protection laws, thus maintaining these resources for public enjoyment. The Coastal Conservancy acquires land for State and regional parks, provides funding for the construction of numerous trails, paths, foot bridges and stairways to the ocean, and provides funding to restore tourist-oriented facilities, including major ocean piers, through its urban waterfront program. Additionally, the Coastal Conservancy's resource enhancement, restoration and agricultural preservation programs help to ensure that scenic areas remain undeveloped and wildlife habitats are protected and restored.

Federal programs establishing National Marine Sanctuaries, Estuarine Research Reserves, and Recreational Areas conserve the quality of California's ocean resources, helping to maintain California's ocean ecosystem and, in turn, stimulate tourism. Federal agencies such as the U.S. Fish and Wildlife Service, NOAA, and U.S. Environmental Protection Agency have specific programs for protecting and managing ocean resources. These programs are described in more detail in other chapters and Appendix C.

Regional and local park districts also play a major role in supporting and managing tourism and recreational experiences along the coast. City and county parks are located throughout California's 1,100 mile coastline. These local governments frequently provide a wide range of services at these parks, including life guards, peace officers, and visitor support facilities.

Impacts of Tourism and Recreation

Tourism and recreational activities can result in adverse environmental impacts to ocean and coastal resources as well as create user conflicts. Strategies for addressing these impacts and conflicts can

California's Ocean Resources:  An Agenda for the Future				      Chapter 5G:  Tourism and Recreation
The Resources Agency of California						 		    July  1995  (Draft)

often be handled through local management and use restrictions. For example, surfing has been restricted for years on popular beaches during peak use times to minimize injury to swimmers. This type of restriction has been implemented on a case-by-case basis and is usually enforced by local parks and recreation or beach departments. However, other use conflicts present issues of greater than local significance that may need to be addressed at the State and/or federal level. Some examples of these issues include personal watercraft, recreational boating, shark chumming, and the conflicts that sometimes arise as a result of the public knowingly or unknowingly damaging unique ocean and coastal species or their habitats.

Personal Watercraft. Use of personal watercraft (sometimes referred to as "thrill craft") is growing substantially in California. These watercraft are ridden similar to a motorcycle, in either a sitting or standing position, and are propelled by powerful jets, capable of rapidly reaching speeds in excess of 30 miles per hour. Data from the California Boating Accident Report for 1993 indicates that personal watercraft accounted for 33.5 percent of all reported accidents and 41 percent of all reported injuries. With personal watercraft comprising only 11 percent of all registered vessels in California, the number of accidents is disproportionate to their numbers.

Boat wake jumping activities represent ten percent of all personal watercraft accidents and often result in serious injuries, many of which occur from collisions with other watercraft, boats, or swimmers. Nineteen states have adopted measures restricting wake jumping within 60 feet of a vessel, limiting certain types of "reckless behavior," and requiring additional safety features to be incorporated in the design of the watercraft. Several local governments have also placed restrictions on the use of these watercraft. Regulations for the Monterey Bay National Marine Sanctuary (MBNMS) restrict personal watercraft use to four operating areas with access corridors to reduce conflicts with other users and reduce impacts to sensitive marine resources. Conflicts between personal watercraft and other users are occurring at other coastal locations in California. It may be necessary to enact legislation at the State or regional level to establish new safety procedures for use of these watercraft.

Recreational Boating. California has an unprecedented number of recreational vessels registered for use in the waters of the State. Although many voluntary programs exist, the State has no requirement for training or certification to operate these vessels. Some recreational boating conflicts in harbor areas may be the result of insufficient training concerning navigation rules and in the skills required to operate such vessels. The Harbor Safety Committees from Los Angeles/Long Beach and San Diego have recommended that the State require testing and licenses for all boat operators. Developing a comprehensive training and licensing program would require new legislation.

Shark Chumming. A controversy has developed around the commercial practice of throwing fish or animal parts into the water to attract Great White Sharks off Año Nuevo Island located within the MBNMS. The practice, known as chumming, attracts sharks so that customers can view them from cages suspended underneath a boat. Substantial concern has been raised by other users of these waters, such as scuba divers, surfers, and operators of commercial fishing vessels (commercial fishermen must occasionally enter the water to free up tangled gear). The MBNMS Advisory Council recommended that this practice be eliminated after studying the issue and reviewing a technical analysis prepared by its Research Activity Panel. The National Oceanographic and Atmospheric Administration is promulgating regulations to eliminate chumming for sharks

California's Ocean Resources:  An Agenda for the Future				      Chapter 5G:  Tourism and Recreation
The Resources Agency of California						 		    July  1995  (Draft)

within MBNMS waters. However, this is another issue that may need to be addressed at a regional or statewide level if similar conflicts arise in other areas of the coast.

Species and Tourism Conflicts. The public is fascinated with observing the abundant living marine resources that exist along or offshore the California coastline, such as sea lions, whales, and shore birds. However, this fascination can sometimes lead to visitation which is harmful to these species and the habitats upon which they depend. For instance, a breeding colony of elephant seals has been established in the coves south of Piedras Blancas in northern San Luis Obispo county, only the second such breeding colony on the entire mainland coast of California. The elephant seal population is increasing dramatically; the first year at Piedras Blancas the colony experienced just a few births, the second year 60, the third year 260, and by the fourth year over 600 pups were born.

Within sight of State Highway 1, the colony has attracted an unprecedented number of tourists, which has, unfortunately, created several hazards: excessive traffic along the two lane highway, illegal parking which can reduce the highway to a single lane, tourists crossing over barbed wire and private property to reach the colony, tourists on the beach who are unprepared to fend off advances from 3,000 pound marine mammals, and elephant seals being chased, poked with sticks, or otherwise harassed. The Resources Agency and its Department of Parks and Recreation have taken the initiative to work with federal, State, and local agencies, private property owners, and the public to develop an approach for protecting the public as well as the elephant seals. The effort seeks to eliminate illegal parking and road hazards, provide controlled public access, and protect and manage this unique resource. If successful, this effort will provide an opportunity for a spectacular and safe eco-tourism attraction along the northern San Luis Obispo county coast.

FINDINGS AND RECOMMENDATIONS

Finding

California's ocean-dependent tourism and recreation industry has developed as a result of the State's international reputation for clean ocean waters, spectacular views, diversity of marine species, and numerous ocean-based recreational opportunities. As human populations continue to expand, pressures on coastal and ocean resources will increase. California's ocean resources must serve the needs not only of Californians, but also visitors from around the world. Management strategies should help stimulate sustainable ocean and coastal tourism, but they must also address impacts to California's ocean ecosystem. As environmental and marine education becomes more prevalent in our society, the public is demanding environmental protection to ensure the maintenance of productive ocean and coastal waters.

Recommendation G-1.

Improve the potential for sustainable ocean and coastal tourism by including an ocean and coastal focus in the annual marketing plan developed by the Trade and Commerce Agency's Division of Tourism. This focus should include methods to further quantify the economic contributions of ocean and coastal tourism to the California economy, as well as provide a program to promote environmentally sound and sustainable ocean and coastal tourism in California.

California's Ocean Resources:  An Agenda for the Future				      Chapter 5G:  Tourism and Recreation
The Resources Agency of California						 		    July  1995  (Draft)

Conflicts between personal watercraft users, surfers, windsurfers, kayakers, and commercial and recreational boaters are increasing in congested port and high use open ocean areas, while other uses, such as chum for attracting white sharks for tourism, are creating additional conflicts. These conflicts are now being addressed on a case-by-case basis by different levels of government and the private sector, but regional or statewide solutions may need to be crafted in the future to address some of the more serious conflicts.

California's Ocean Resources:  An Agenda for the Future				      Chapter 5G:  Tourism and Recreation
The Resources Agency of California						 		    July  1995  (Draft)