Tag: government

Toxins in Marine Mammals: a Story

By: Alexa Kownacki, Ph.D. Student, OSU Department of Fisheries and Wildlife, Geospatial Ecology of Marine Megafauna Lab

As technology has developed over the past ten years, toxins in marine mammals have become an emerging issue. Environmental toxins are anything that can pose a risk to the health of plants or animals at a dosage. They can be natural or synthetic with varying levels of toxicity based on the organism and its physiology. Most prior research on the impacts toxins before the 2000s was conducted on land or in streams because of human proximity to these environments. However. with advancements in sampling methods, increasing precision in laboratory testing, and additional focus from researchers, marine mammals are being assessed for toxin loads more regularly.

A dolphin swims through a diesel slick caused by a small oil spill in a port. (Image Source: The Ocean Update Blog)

Marine mammals live most of their lives in the ocean or other aquatic systems, which requires additional insulation for protection from both cold temperatures and water exposure. This added insulation can take the form of lipid rich blubber, or fur and hair. Many organic toxins are lipid soluble and therefore are more readily found and stored in fatty tissues. When an organic toxin like a polychlorinated biphenyl (PCB) is released into the environment from an old electrical transformer, it persists in sediments. As these sediments travel down rivers and into the ocean, these toxic substances slowly degrade in the environment and are lipophilic (attracted to fat). Small marine critters eat the sediment with small quantities of toxins, then larger critters eat those small critters and ingest larger quantities of toxins. This process is called biomagnification. By the time a dolphin consumes large contaminated fishes, the chemical levels may have reached a toxic level.

The process by which PCBs accumulate in marine mammals from small particles up to high concentrations in lipid layers. (Image Source: World Ocean Review)

Marine mammal scientists are teaming with biochemists and ecotoxicologists to better understand which toxins are more lethal and have more severe long-term effects on marine mammals, such as decreased reproduction rates, lowered immune systems, and neurocognitive delays. Studies have already shown that higher contaminant loads in dolphins cause all three of these negative effects (Trego et al. 2019). As a component of my thesis work on bottlenose dolphins I will be measuring contaminant levels of different toxins in blubber.  Unfortunately, this research is costly and time-consuming. Many studies regarding the effects of toxins on marine mammals are funded through the US government, and this is where the public can have a voice in scientific research.

Rachel Carson examines a specimen from a stream collection site in the 1950s. (Image Source: Alfred Eisenstaedt/ The LIFE picture collection/ Getty Images.)

Prior to the 1960s, there were no laws regarding the discharge of toxic substances into our environment. When Rachel Carson published “Silent Spring” and catalogued the effects of pesticides on birds, the American public began to understand the importance of environmental regulation. Once World War II was over and people did not worry about imminent death due to wartime activities, a large portion of American society focused on what they were seeing in their towns: discharges from chemical plants, effluents from paper mills, taconite mines in the Great Lakes, and many more.

Discharge from a metallic sulfide mine collects in streams in northern Wisconsin. (Image Source: Sierra Club)

However, it was a very different book regarding pollutants in the environment that caught my attention – and that of a different generation and part of society – even more than “Silent Spring”. A book called “The Lorax”.  In this 1972 children’s illustrated book by Dr. Seuss, a character called the Lorax “speaks for the trees”. The Lorax touches upon critical environmental issues such as water pollution, air pollution, terrestrial contamination, habitat loss, and ends with the poignant message, “Unless someone like you cared a whole awful lot, nothing is going to get better. It’s not.”

The original book cover for “The Lorax” by Dr. Seuss. (Image source: Amazon.com)

Within a decade, the US Environmental Protection Agency (EPA) was formed and multiple acts of congress were put in place, such as the National Environmental Policy Act, Clean Air Act, Clean Water Act, and Toxic Substances Control Act, with a mission to “protect human health and the environment.” The public had successfully prioritized protecting the environment and the government responded. Before this, rivers would catch fire from oil slicks, children would be banned from entering the water in fear of death, and fish would die by the thousands. The resulting legislation cleaned up our air, rivers, and lakes so that people could swim, fish, and live without fear of toxic substance exposures.

The Cuyahoga River on fire in June 1969 after oil slicked debris ignited. (Image Source: Ohio Central History).

Fast forward to 2018 and times have changed yet again due to fear. According to a Pew Research poll, terrorism is the number one issue that US citizens prioritize, and Congress and the President should address. The environment was listed as the seventh highest priority, below Medicare (“Majorities Favor Increased Spending for Education, Veterans, Infrastructure, Other Govt. Programs.”). With this societal shift in priorities, research on toxins in marine mammals may no longer grace the covers of the National Geographic, Science, or Nature, not for lack of importance, but because of the allocation of taxpayer funds and political agendas. Meanwhile, long-lived marine mammals will still be accumulating toxins in their blubber layers and we, the people, will need to care a whole lot, to save the animals, the plants, and ultimately, our planet.

The Lorax telling the reader how to save the planet. (Image Source: “The Lorax” by Dr. Seuss via the Plastic Bank)

Citations:

“Majorities Favor Increased Spending for Education, Veterans, Infrastructure, Other Govt. Programs.” Pew Research Center for the People and the Press, Pew Research Center, 11 Apr. 2019, www.people-press.org/2019/04/11/little-public-support-for-reductions-in-federal-spending/pp_2019-04-11_federal-spending_0-01-2/.

Marisa L. Trego, Eunha Hoh, Andrew Whitehead, Nicholas M. Kellar, Morgane Lauf, Dana O. Datuin, and Rebecca L. Lewison. Environmental Science & Technology 2019 53 (7), 3811-3822. DOI: 10.1021/acs.est.8b06487

Data Wrangling to Assess Data Availability: A Data Detective at Work

By Alexa Kownacki, Ph.D. Student, OSU Department of Fisheries and Wildlife, Geospatial Ecology of Marine Megafauna Lab

Data wrangling, in my own loose definition, is the necessary combination of both data selection and data collection. Wrangling your data requires accessing then assessing your data. Data collection is just what it sounds like: gathering all data points necessary for your project. Data selection is the process of cleaning and trimming data for final analyses; it is a whole new bag of worms that requires decision-making and critical thinking. During this process of data wrangling, I discovered there are two major avenues to obtain data: 1) you collect it, which frequently requires an exorbitant amount of time in the field, in the lab, and/or behind a computer, or 2) other people have already collected it, and through collaboration you put it to a good use (often a different use then its initial intent). The latter approach may result in the collection of so much data that you must decide which data should be included to answer your hypotheses. This process of data wrangling is the hurdle I am facing at this moment. I feel like I am a data detective.

Data wrangling illustrated by members of the R-programming community. (Image source: R-bloggers.com)

My project focuses on assessing the health conditions of the two ecotypes of bottlenose dolphins between the waters off of Ensenada, Baja California, Mexico to San Francisco, California, USA between 1981-2015. During the government shutdown, much of my data was inaccessible, seeing as it was in possession of my collaborators at federal agencies. However, now that the shutdown is over, my data is flowing in, and my questions are piling up. I can now begin to look at where these animals have been sighted over the past decades, which ecotypes have higher contaminant levels in their blubber, which animals have higher stress levels and if these are related to geospatial location, where animals are more susceptible to human disturbance, if sex plays a role in stress or contaminant load levels, which environmental variables influence stress levels and contaminant levels, and more!

Alexa, alongside collaborators, photographing transiting bottlenose dolphins along the coastline near Santa Barbara, CA in 2015 as part of the data collection process. (Image source: Nick Kellar).

Over the last two weeks, I was emailed three separate Excel spreadsheets representing three datasets, that contain partially overlapping data. If Microsoft Access is foreign to you, I would compare this dilemma to a very confusing exam question of “matching the word with the definition”, except with the words being in different languages from the definitions. If you have used Microsoft Access databases, you probably know the system of querying and matching data in different databases. Well, imagine trying to do this with Excel spreadsheets because the databases are not linked. Now you can see why I need to take a data management course and start using platforms other than Excel to manage my data.

A visual interpretation of trying to combine datasets being like matching the English definition to the Spanish translation. (Image source: Enchanted Learning)

In the first dataset, there are 6,136 sightings of Common bottlenose dolphins (Tursiops truncatus) documented in my study area. Some years have no sightings, some years have fewer than 100 sightings, and other years have over 500 sightings. In another dataset, there are 398 bottlenose dolphin biopsy samples collected between the years of 1992-2016 in a genetics database that can provide the sex of the animal. The final dataset contains records of 774 bottlenose dolphin biopsy samples collected between 1993-2018 that could be tested for hormone and/or contaminant levels. Some of these samples have identification numbers that can be matched to the other dataset. Within these cross-reference matches there are conflicting data in terms of amount of tissue remaining for analyses. Sorting these conflicts out will involve more digging from my end and additional communication with collaborators: data wrangling at its best. Circling back to what I mentioned in the beginning of this post, this data was collected by other people over decades and the collection methods were not standardized for my project. I benefit from years of data collection by other scientists and I am grateful for all of their hard work. However, now my hard work begins.

The cutest part of data wrangling: finding adorable images of bottlenose dolphins, photographed during a coastal survey. (Image source: Alexa Kownacki).

There is also a large amount of data that I downloaded from federally-maintained websites. For example, dolphin sighting data from research cruises are available for public access from the OBIS (Ocean Biogeographic Information System) Sea Map website. It boasts 5,927,551 records from 1,096 data sets containing information on 711 species with the help of 410 collaborators. This website is incredible as it allows you to search through different data criteria and then download the data in a variety of formats and contains an interactive map of the data. You can explore this at your leisure, but I want to point out the sheer amount of data. In my case, the OBIS Sea Map website is only one major platform that contains many sources of data that has already been collected, not specifically for me or my project, but will be utilized. As a follow-up to using data collected by other scientists, it is critical to give credit where credit is due. One of the benefits of using this website, is there is information about how to properly credit the collaborators when downloading data. See below for an example:

Example citation for a dataset (Dataset ID: 1201):

Lockhart, G.G., DiGiovanni Jr., R.A., DePerte, A.M. 2014. Virginia and Maryland Sea Turtle Research and Conservation Initiative Aerial Survey Sightings, May 2011 through July 2013. Downloaded from OBIS-SEAMAP (http://seamap.env.duke.edu/dataset/1201) on xxxx-xx-xx.

Citation for OBIS-SEAMAP:

Halpin, P.N., A.J. Read, E. Fujioka, B.D. Best, B. Donnelly, L.J. Hazen, C. Kot, K. Urian, E. LaBrecque, A. Dimatteo, J. Cleary, C. Good, L.B. Crowder, and K.D. Hyrenbach. 2009. OBIS-SEAMAP: The world data center for marine mammal, sea bird, and sea turtle distributions. Oceanography 22(2):104-115

Another federally-maintained data source that boasts more data than I can quantify is the well-known ERDDAP website. After a few Google searches, I finally discovered that the acronym stands for Environmental Research Division’s Data Access Program. Essentially, this the holy grail of environmental data for marine scientists. I have downloaded so much data from this website that Excel cannot open the csv files. Here is yet another reason why young scientists, like myself, need to transition out of using Excel and into data management systems that are developed to handle large-scale datasets. Everything from daily sea surface temperatures collected on every, one-degree of latitude and longitude line from 1981-2015 over my entire study site to Ekman transport levels taken every six hours on every longitudinal degree line over my study area. I will add some environmental variables in species distribution models to see which account for the largest amount of variability in my data. The next step in data selection begins with statistics. It is important to find if there are highly correlated environmental factors prior to modeling data. Learn more about fitting cetacean data to models here.

The ERDAPP website combined all of the average Sea Surface Temperatures collected daily from 1981-2018 over my study site into a graphical display of monthly composites. (Image Source: ERDDAP)

As you can imagine, this amount of data from many sources and collaborators is equal parts daunting and exhilarating. Before I even begin the process of determining the spatial and temporal spread of dolphin sightings data, I have to identify which data points have sex identified from either hormone levels or genetics, which data points have contaminants levels already quantified, which samples still have tissue available for additional testing, and so on. Once I have cleaned up the datasets, I will import the data into the R programming package. Then I can visualize my data in plots, charts, and graphs; this will help me identify outliers and potential challenges with my data, and, hopefully, start to see answers to my focal questions. Only then, can I dive into the deep and exciting waters of species distribution modeling and more advanced statistical analyses. This is data wrangling and I am the data detective.

What people may think a ‘data detective’ looks like, when, in reality, it is a person sitting at a computer. (Image source: Elder Research)

Like the well-known phrase, “With great power comes great responsibility”, I believe that with great data, comes great responsibility, because data is power. It is up to me as the scientist to decide which data is most powerful at answering my questions.

Data is information. Information is knowledge. Knowledge is power. (Image source: thedatachick.com)

 

Science (or the lack thereof) in the Midst of a Government Shutdown

By Alexa Kownacki, Ph.D. Student, OSU Department of Fisheries and Wildlife, Geospatial Ecology of Marine Megafauna Lab

In what is the longest government shutdown in the history of the United States, many people are impacted. Speaking from a scientist’s point of view, I acknowledge the scientific community is one of many groups that is being majorly obstructed. Here at the GEMM Laboratory, all of us are feeling the frustrations of the federal government grinding to a halt in different ways. Although our research spans great distances—from Dawn’s work on New Zealand blue whales that utilizes environmental data managed by our federal government, to new projects that cannot get federal permit approvals to state data collection, to many of Leigh’s projects on the Oregon coast of the USA that are funded and collaborate with federal agencies—we all recognize that our science is affected by the shutdown. My research on common bottlenose dolphins is no exception; my academic funding is through the US Department of Defense, my collaborators are NOAA employees who contribute NOAA data; I use publicly-available data for additional variables that are government-maintained; and I am part of a federally-funded public university. Ironically, my previous blog post about the intersection of science and politics seems to have become even more relevant in the past few weeks.

Many graduate students like me are feeling the crunch as federal agencies close their doors and operations. Most people have seen the headlines that allude to such funding-related issues. However, it’s important to understand what the funding in question is actually doing. Whether we see it or not, the daily operations of the United States Federal government helps science progress on a multitude of levels.

Federal research in the United States is critical. Most governmental branches support research with the most well-known agencies for doing so being the National Science Foundation (NSF), the US Department of Agriculture (USDA), the National Oceanic and Atmospheric Administration (NOAA), and the National Aeronautics and Space Administration. There are 137 executive agencies in the USA (cei.org). On a finer scale, NSF alone receives approximately 40,000 scientific proposals each year (nsf.gov).

If I play a word association game and I am given the word “science”, my response would be “data”. Data—even absence data—informs science. The largest aggregate of metadata with open resources lives in the centralized website, data.gov, which is maintained by the federal government and is no longer accessible and directs you to this message:Here are a few more examples of science that has stopped in its track from lesser-known research entities operated by the federal government:

Currently, the National Weather Service (NWS) is unable to maintain or improve its advanced weather models. Therefore, in addition to those of us who include weather or climate aspects into our research, forecasters are having less and less information on which to base their weather predictions. Prior to the shutdown, scientists were changing the data format of the Global Forecast System (GFS)—the most advanced mathematical, computer-based weather modeling prediction system in the USA. Unfortunately, the GFS currently does not recognize much of the input data it is receiving. A model is only as good as its input data (as I am sure Dawn can tell you), and currently that means the GFS is very limited. Many NWS models are upgraded January-June to prepare for storm season later in the year. Therefore, there are long-term ramifications for the lack of weather research advancement in terms of global health and safety. (https://www.washingtonpost.com/weather/2019/01/07/national-weather-service-is-open-your-forecast-is-worse-because-shutdown/?noredirect=on&utm_term=.5d4c4c3c1f59)

An example of one output from the GFS model. (Source: weather.gov)

The Food and Drug Administration (FDA)—a federal agency of the Department of Health and Human Services—that is responsible for food safety, has reduced inspections. Because domestic meat and poultry are at the highest risk of contamination, their inspections continue, but by staff who are going without pay, according to the agency’s commissioner, Dr. Scott Gottlieb. Produce, dry foods, and other lower-risk consumables are being minimally-inspected, if at all.  Active research projects investigating food-borne illness that receive federal funding are at a standstill.  Is your stomach doing flips yet? (https://www.nytimes.com/2019/01/09/health/shutdown-fda-food-inspections.html?rref=collection%2Ftimestopic%2FFood%20and%20Drug%20Administration&action=click&contentCollection=timestopics&region=stream&module=stream_unit&version=latest&contentPlacement=2&pgtype=collection)

An FDA field inspector examines imported gingko nuts–a process that is likely not happening during the shutdown. (Source: FDA.gov)

The National Parks Service (NPS) recently made headlines with the post-shutdown acts of vandalism in the iconic Joshua Tree National Park. What you might not know is that the shutdown has also stopped a 40-year study that monitors how streams are recovering from acid rain. Scientists are barred from entering the park and conducting sampling efforts in remote streams of Shenandoah National Park, Virginia. (http://www.sciencemag.org/news/2019/01/us-government-shutdown-starts-take-bite-out-science)

A map of the sampling sites that have been monitored since the 1980s for the Shenandoah Watershed Study and Virginia Trout Stream Sensitivity Study that cannot be accessed because of the shutdown. (Source: swas.evsc.virginia.edu)

NASA’s Stratospheric Observatory for Infrared Astronomy (SOFIA), better known as the “flying telescope” has halted operations, which will require over a week to bring back online upon funding restoration. SOFIA usually soars into the stratosphere as a tool to study the solar system and collect data that ground-based telescopes cannot. (http://theconversation.com/science-gets-shut-down-right-along-with-the-federal-government-109690)

NASA’s Stratospheric Observatory for Infrared Astronomy (SOFIA) flies over the snowy Sierra Nevada mountains while the telescope gathers information. (Source: NASA/ Jim Ross).

It is important to remember that science happens outside of laboratories and field sites; it happens at meetings and conferences where collaborations with other great minds brainstorm and discover the best solutions to challenging questions. The shutdown has stopped most federal travel. The annual American Meteorological Society Meeting and American Astronomical Society meeting were two of the scientific conferences in the USA that attract federal employees and took place during the shutdown. Conferences like these are crucial opportunities with lasting impacts on science. Think of all the impressive science that could have sparked at those meetings. Instead, many sessions were cancelled, and most major agencies had zero representation (https://spacenews.com/ams-2019-overview/). Topics like lidar data applications—which are used in geospatial research, such as what the GEMM Laboratory uses in some its projects, could not be discussed. The cascade effects of the shutdown prove that science is interconnected and without advancement, everyone’s research suffers.

It should be noted, that early-career scientists are thought to be the most negatively impacted by this shutdown because of financial instability and job security—as well as casting a dark cloud on their futures in science: largely unknown if they can support themselves, their families, and their research. (https://eos.org/articles/federal-government-shutdown-stings-scientists-and-science). Graduate students, young professors, and new professionals are all in feeling the pressure. Our lives are based on our research. When the funds that cover our basic research requirements and human needs do not come through as promised, we naturally become stressed.

An adult and a juvenile common bottlenose dolphin, forage along the San Diego coastline in November 2018. (Source: Alexa Kownacki)

So, yes, funding—or the lack thereof—is hurting many of us. Federally-funded individuals are selling possessions to pay for rent, research projects are at a standstill, and people are at greater health and safety risks. But, also, science, with the hope for bettering the world and answering questions and using higher thinking, is going backwards. Every day without progress puts us two days behind. At first glance, you may not think that my research on bottlenose dolphins is imperative to you or that the implications of the shutdown on this project are important. But, consider this: my study aims to quantify contaminants in common bottlenose dolphins that either live in nearshore or offshore waters. Furthermore, I study the short-term and long-term impacts of contaminants and other health markers on dolphin hormone levels. The nearshore common bottlenose dolphin stocks inhabit the highly-populated coastlines that many of us utilize for fishing and recreation. Dolphins are mammals, that respond to stress and environmental hazards, in similar ways to humans. So, those blubber hormone levels and contamination results, might be more connected to your health and livelihood than at first glance. The fact that I cannot download data from ERDDAP, reach my collaborators, or even access my data (that starts in the early 1980s), does impact you. Nearly everyone’s research is connected to each other’s at some level, and that, in turn has lasting impacts on all people—scientists or not. As the shutdown persists, I continue to question how to work through these research hurdles. If anything, it has been a learning experience that I hope will end soon for many reasons—one being: for science.

The Intersection of Science and Politics

By Alexa Kownacki, Ph.D. Student, OSU Department of Fisheries and Wildlife, Geospatial Ecology of Marine Megafauna Lab

As much as I try to keep politics out of my science vocabulary, there are some ties between the two that cannot be severed. Often, science in the United States is very linked to the government because funding can be dependent on federal, state, and/or local government decisions. Therefore, it is part of our responsibility as scientists to be, at least, informed on governmental proceedings.

The United States has one agency that is particularly important to those of us conducting marine science: the National Oceanic and Atmospheric Administration (NOAA). NOAA’s mission is science, service, and stewardship with three major components:

  1. To understand and predict changes in climate, weather, oceans and coasts
  2. To share that knowledge and information with others
  3. To conserve and manage coastal and marine ecosystems and resources

noaa org chart
Organizational Chart of NOAA. (Image source: OrgCharting)

Last year, the U.S. Senate confirmed Retired Rear Admiral Timothy Gallaudet, Ph.D., as the Assistant Secretary of Commerce for Oceans and Atmosphere for the Department of Commerce in NOAA. This position is an appointment by the current President of the United States, and is tasked with overseeing the daily functions and the strategic and operational future of NOAA. NOAA oversees the National Marine Fisheries Service (NMFS), which is an agency responsible for the stewardship and management of the nation’s living marine resources. NMFS is a major player when it comes to marine science, particularly through the determination of priorities for research and management of marine species and habitats within the United States’ exclusive economic zone (EEZ).

In dark blue, the United States’ Exclusive Economic zones, surrounding land masses in green. (Figure by K. Laws)

Recently, I had the opportunity to hear Dr. Gallaudet speak to scientists who work for, or in conjunction with, a NMFS office. After the 16% budget cut from the fiscal year 2017 to 2018, many marine scientists are concerned about how budget changes will impact research. Therefore, I knew Dr. Gallaudet’s visit would provide insight about the future of marine science in the United States.

Dr. Gallaudet holds master’s and doctoral degrees in oceanography from Scripps Institution of Oceanography, as well as a bachelor’s degree from the United States Naval Academy. He spent 32 years in the Navy before stepping into his current role as Assistant Secretary. Throughout the meeting, Dr. Gallaudet emphasized his leadership motto: All in, All Good, and All for One.

Dr. Gallaudet also spoke about where he sees NOAA moving towards: the private sector.

A prominent conservation geneticist asked Dr. Gallaudet how NOAA can better foster advanced degree-seeking students. The geneticist commented that a decade ago there were 10-12 PhD students in this one science center alone. Today, there is “maybe one”. Dr. Gallaudet responded that the science centers should start reaching out to private industry. In response to other questions, he continued to redirect scientists toward United States-based corporations that could join forces with government agencies. He believes that if NMFS scientists share data and projects with local biotechnology, medical, and environmental companies, the country can foster positive relationships with industry. Dr. Gallaudet commented that the President wants to create these win-win situations: where the US government pairs with for-profit companies. It is up to us, as the scientists, how we make those connections.

As scientists, we frequently avoid heated political banter in the hopes of maintaining an objective and impartial approach to our research. However, these lines can be blurred. Much of our science depends on political decisions that mold our future, including how funding is allocated and what goals are prioritized. In 2010, Science Magazine published an online article, “Feeding your Research into the Policy Debate” where Elisabeth Pain highlighted the interdisciplinary nature of science and policy. In Pain’s interview with Troy Benn, a PhD student in Urban Ecology at the time, Benn comments that he learned just how much scientists play a role in policy and how research contributes to policy deliberations. Sometimes our research becomes of interest to politicians and sometimes it is the other way around.

From my experiences collaborating with government entities, private corporations, and nonprofit organizations, I realize that science-related policy is imperative. California established a non-profit, the California Ocean Science Trust (OST), for the specific objective supporting management decisions with the best science and bridging science and policy. A critical analysis of the OST by Pietri et al., “Using Science to Inform Controversial Issues: A Case Study from the California Ocean Science Trust”, matches legislation with science. For example, the Senate Bill (SB) 1319, better known as the California Ocean Protection Act (COPA), calls for “decisions informed by good science” and to “advance scientific understanding”. Science is explicitly written into legislation and I think that is a call to action. If an entire state can mobilize resources to create a team of interdisciplinary experts, I can inform myself on the politics that have potential to shape my future and the future of my science.

An image of the NOAA ship Bell M. Shimada transiting between stations. Multiple members of the GEMM Lab conducted surveys from this NOAA vessel in 2018. (Image source: Alexa Kownacki)

Managing Oceans: the inner-workings of marine policy

By Alexa Kownacki, Ph.D. Student, OSU Department of Fisheries and Wildlife, Geospatial Ecology of Marine Megafauna Lab

When we hear “marine policy” we broadly lump it together with environmental policy. However, marine ecosystems differ greatly from their terrestrial counterparts. We wouldn’t manage a forest like an ocean, nor would we manage an ocean like a forest. Why not? The answer to this question is complex and involves everything from ecology to politics.

Oceans do not have borders; they are fluid and dynamic. Interestingly, by defining marine ecosystems we are applying some kind of borders. But water (and all its natural and unnatural content) flows between these ‘ecosystems’. Marine ecosystems are home to a variety of anthropogenic activities such as transportation and recreation, in addition to an abundance of species that represent the three major domains of biology: Archaea, Bacteria, and Eukarya. Humans are the only creatures who “recognize” the borders that policymakers and policy actors have instilled. A migrating gray whale does not have a passport stamped as it travels from its breeding grounds in Mexican waters to its feeding grounds in the Gulf of Alaska. In contrast, a large cargo ship—or even a small sailing vessel—that crosses those boundaries is subjected to a series of immigration checkpoints. Combining these human and the non-human facets makes marine policy complex and variable.

The eastern Pacific gray whale migration route includes waters off of Mexico, Canada, and the United States. Source: https://www.learner.org/jnorth/tm/gwhale/annual/map.html

Environmental policy of any kind can be challenging. Marine environmental policy adds many more convoluted layers in terms of unknowns; marine ecosystems are understudied relative to terrestrial ecosystems and therefore have less research conducted on how to best manage them. Additionally, there are more hands in the cookie jar, so to speak; more governments and more stakeholders with more opinions (Leslie and McLeod 2007). So, with fewer examples of successful ecosystem-based management in coastal and marine environments and more institutions with varied goals, marine ecosystems become challenging to manage and monitor.

A visual representation of what can happen when there are many groups with different goals: no one can easily get what they want. Image Source: The Brew Monks

With this in mind, it is understandable that there is no official manual on policy development.  There is, however, a broadly standardized process of how to develop, implement, and evaluate environmental policies: 1) recognize a problem 2) propose a solution 3) choose a solution 4) put the solution into effect and 4) monitor the results (Zacharias pp. 16-21). For a policy to be deemed successful, specific criteria must be met, which means that a common policy is necessary for implementation and enforcement. Within the United States, there are a multiple governing bodies that protect the ocean, including the National Oceanic and Atmospheric Administration (NOAA), Environmental Protection Agency (EPA), Fish and Wildlife Service (USFWS), and the Department of Defense (DoD)—all of which have different mission statements, budgets, and proposals. To create effective environmental policies, collaboration between various groups is imperative. Nevertheless, bringing these groups together, even those within the same nation, requires time, money, and flexibility.

This is not to say that environmental policy for terrestrial systems, but there are fewer moving parts to manage. For example, a forest in the United States would likely not be an international jurisdiction case because the borders are permanent lines and national management does not overlap. However, at a state level, jurisdiction may overlap with potentially conflicting agendas. A critical difference in management strategies is preservation versus conservation. Preservation focuses on protecting nature from use and discourages altering the environment. Conservation, centers on wise-use practices that allow for proper human use of environments such as resource use for economic groups. One environmental group may believe in preservation, while one government agency may believe in conservation, creating friction amongst how the land should be used: timber harvest, public use, private purchasing, etc.

Linear representation of preservation versus conservation versus exploitation. Image Source: Raoof Mostafazadeh

Furthermore, a terrestrial forest has distinct edges with measurable and observable qualities; it possesses intrinsic and extrinsic values that are broadly recognized because humans have been utilizing them for centuries. Intrinsic values are things that people can monetize, such as commercial fisheries or timber harvests whereas extrinsic values are things that are challenging to put an actual price on in terms of biological diversity, such as the enjoyment of nature or the role of species in pest management; extrinsic values generally have a high level of human subjectivity because the context of that “resource” in question varies upon circumstances (White 2013). Humans are more likely to align positively with conservation policies if there are extrinsic benefits to them; therefore, anthropocentric values associated with the resources are protected (Rode et al. 2015). Hence, when creating marine policy, monetary values are often placed on the resources, but marine environments are less well-studied due to lack of accessibility and funding, making any valuation very challenging.

The differences between direct (intrinsic) versus indirect (extrinsic) values to biodiversity that factor into environmental policy. Image Source: Conservationscienceblog.wordpress.com

Assigning a cost or benefit to environmental services is subjective (Dearborn and Kark 2010). What is the benefit to a child seeing an endangered killer whale for the first time? One could argue priceless. In order for conservation measures to be implemented, values—intrinsic and extrinsic—are assigned to the goods and services that the marine environment provides—such as seafood and how the ocean functions as a carbon sink. Based off of the four main criteria used to evaluate policy, the true issue becomes assessing the merit and worth. There is an often-overlooked flaw with policy models: it assumes rational behavior (Zacharias 126). Policy involves relationships and opinions, not only the scientific facts that inform them; this is true in terrestrial and marine environments. People have their own agendas that influence, not only the policies themselves, but the speed at which they are proposed and implemented.

Tourists aboard a whale-watching vessel off of the San Juan Islands, enjoying orca in the wild. Image Source: Seattle Orca Whale Watching

One example of how marine policy evolves is through groups, such as the International Whaling Commission, that gather to discuss such policies while representing many different stakeholders. Some cultures value the whale for food, others for its contributions to the surrounding ecosystems—such as supporting healthy seafood populations. Valuing one over the other goes beyond a monetary value and delves deeper into the cultures, politics, economics, and ethics. Subjectivity is the name of the game in environmental policy, and, in marine environmental policy, there are many factors unaccounted for, that decision-making is incredibly challenging.

Efficacy in terms of the public policy for marine systems presents a challenge because policy happens slowly, as does research. There is no equation that fits all problems because the variables are different and dynamic; they change based on the situation and can be unpredictable. When comparing institutional versus impact effectiveness, they both are hard to measure without concrete goals (Leslie and McLeod 2007). Marine ecosystems are open environments which add an additional hurdle: setting measurable and achievable goals. Terrestrial environments contain resources that more people utilize, more frequently, and therefore have more set goals. Without a problem and potential solution there is no policy. Terrestrial systems have problems that humans recognize. Marine systems have problems that are not as visible to people on a daily basis. Therefore, terrestrial systems have more solutions presented to mitigate problems and more policies enacted.

As marine scientists, we don’t always immediately consider how marine policy impacts our research. In the case of my project, marine policy is something I constantly have to consider. Common bottlenose dolphins are protected under the Marine Mammal Protection Act (MMPA) and inhabit coastal of both the United States and Mexico, including within some Marine Protected Areas (MPA). In addition, some funding for the project comes from NOAA and the DoD. Even on the surface-level it is clear that policy is something we must consider as marine scientists—whether we want to or not. We may do our best to inform policymakers with results and education based on our research, but marine policy requires value-based judgements based on politics, economics, and human objectivity—all of which are challenging to harmonize into a succinct problem with a clear solution.

Two common bottlenose dolphins (coastal ecotype) traveling along the Santa Barbara, CA shoreline. Image Source: Alexa Kownacki

References:

Dearborn, D. C. and Kark, S. 2010. Motivations for Conserving Urban Biodiversity. Conservation Biology, 24: 432-440. doi:10.1111/j.1523-1739.2009.01328.x

Leslie, H. M. and McLeod, K. L. (2007), Confronting the challenges of implementing marine ecosystem‐based management. Frontiers in Ecology and the Environment, 5: 540-548. doi:10.1890/060093

Munguia, P., and A. F. Ojanguren. 2015. Bridging the gap in marine and terrestrial studies. Ecosphere 6(2):25. http://dx.doi.org/10.1890/ES14-00231.1

Rode, J., Gomez-Baggethun, E., Krause, M., 2015. Motivation crowding by economic payments in conservation policy: a review of the empirical evidence. Ecol. Econ. 117, 270–282 (in this issue).

White, P. S. (2013), Derivation of the Extrinsic Values of Biological Diversity from Its Intrinsic Value and of Both from the First Principles of Evolution. Conservation Biology, 27: 1279-1285. doi:10.1111/cobi.12125

Zacharias, M. 2014. Marine Policy. London: Routledge.