NERRS management plans

Reserve System Management Plan Guidelines and Resources

RESERVE SYSTEM MANAGEMENT
PLAN GUIDELINES AND RESOURCES
2012

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TABLE OF CONTENTS
Introduction............................................................................................................................................1
Purpose of a Reserve Management Plan...........................................................................................1
Key changes from 2006 Reserve Management Plan Guidelines....................................................2
Components of a Management Plan..................................................................................................3
How to Use these Guidelines..............................................................................................................5
Part I: Process and Approach for Revising a Reserve Management Plan...........................6
The Process of Writing a Management Plan...............................................................................6
Creating a Strategy for Plan Revision.................................................................................................7
Review and Approval Process............................................................................................................10
Following the Regulations..................................................................................................................14
Adaptive Management Approach to Strategic Planning.........................................................16
What is Adaptive Management?........................................................................................................16
Why is Adaptive Management a Good Choice for the Reserve System?...................................17
Key Elements of Adaptive Management........................................................................................17
Linking to Local and National Priorities.........................................................................................19
Preparing to Write a Strategic Plan..............................................................................................24
Stratgic Planning Process...................................................................................................................24
Identifying Program Target Audiences............................................................................................25
Assessing Skills and Capacities of Reserve Programs...................................................................25
Developing Reserve Program Niches..............................................................................................30
Developing the Reserve Niche.........................................................................................................31
Developing Shared Vision and Mission Statement & Goals, Objectives and Strategies…....31
Part II: Guidance for Reserve Management Plan Components..........................................32
Required and Optional Elements Checklist..............................................................................33
Executive Summary..........................................................................................................................35
Introduction to the Reserve System............................................................................................36
Introduction to the Reserve............................................................................................................40
History and Local Management of the Reserve...........................................................................41
Ecological Attributes and Values....................................................................................................41
Social Attributes and Values............................................................................................................42

Reserve System Management Plan Guidelines and Resources

Archeological and Cultural Resources...................................................................................................42
Threats and Stressors...............................................................................................................................43
Reserve Boundary.....................................................................................................................................45
Strategic Plan...........................................................................................................................................52
Reserve Vision.........................................................................................................................................52
Reserve Mission.......................................................................................................................................52
Reserve Coastal Management Issues....................................................................................................52
Creating Relevant Goals.........................................................................................................................53
Creating Meaningful Objectives............................................................................................................53
Creating Clear Actions............................................................................................................................55
Developing Practical Performance Measures......................................................................................55
Reserve System Program Foundations.............................................................................................58
Research and Monitoring Program.......................................................................................................59
Education Program..................................................................................................................................63
Coastal Training Program........................................................................................................................65
Administrative Plan.................................................................................................................................67
Organization Framework and Management Authorities....................................................................67
Current Staff and Needs.........................................................................................................................68
Strategic Partnerships...............................................................................................................................68
Advisory Committees..............................................................................................................................69
Objectives and Strategies.........................................................................................................................70
Volunteer Plan (Optional).......................................................................................................................70
Vehicle and Vessel Plan (Optional).......................................................................................................70
Communication Plan (Optional)...........................................................................................................71
Resource Protection Plan......................................................................................................................72
State Management and Statutory Authorities.......................................................................................72
Allowable and Unallowable Uses...........................................................................................................72
Surveillance and Enforcement...............................................................................................................73
Resource Protection Challenges.............................................................................................................73
Objectives and Strategies.........................................................................................................................73
Monitoring and Evaluation.....................................................................................................................74
Public Access and Visitor Use Plan...................................................................................................75
Current Public Access.............................................................................................................................75
Public Access Challenges........................................................................................................................76
Public Access Opportunities and the Visitor Experience.................................................................76
Objective and Strategies..........................................................................................................................76
Monitoring and Evaluation....................................................................................................................76
Facility Development and Improvement Plan...............................................................................78
Purpose of Facilities and Construction Philosophies.......................................................................78
Description of Current Facilities.........................................................................................................79
Facility Challenges and Gaps.................................................................................................................79

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Planned Facilities......................................................................................................................................80
Facility Upgrades......................................................................................................................................84
Exhibits......................................................................................................................................................85
Land Acquisition Plan...........................................................................................................................86
Acquisition Values....................................................................................................................................86
Priority Acquisition Areas.......................................................................................................................86
Priority Acquisition Areas Strategy........................................................................................................87
Resource Manipulation Plan..............................................................................................................97
Current and Proposed Resource Manipulations.................................................................................97
Restoration Plan....................................................................................................................................99
What is Restoration Ecology?.............................................................................................................99
What is Restoration Science in the Reserve System?.......................................................................99
Priority Restoration Areas..................................................................................................................101
Priority Restoration Projects..............................................................................................................102
V. Monitoring and Evaluation...........................................................................................................102
Appendices
1. Memorandum of Understanding Template
2. Federal Consistency Template
3. Environmental Compliance Placeholder
4. Public Comment Template
5. Federal Register Notice Template
6. Summary of Climate Change Phenomena with Observed and Projected Changes
7. Summary of Observed and Projected Regional Climate-related Changes
8. Placeholder for National Estuarine Research Reserve System Climate Sensitivity Analysis
9. Conducting a Reserve Vulnerability Assessment
10. Planning for Sustainable Facilities
11. Reserve System Code of Federal Regulations
12. 2011-2016 Reserve System Strategic Plan
13. 2011-2016 NOAA Strategic Plan
Figures
1. Relationship of Reserve Management Plan Components............................................................4
2. Adaptive Management Approach to Strategic Planning for the Reserve System...................18
3. Strategic Planning Pyramid..............................................................................................................24
4. SWOT Chart......................................................................................................................................25
5. Organization Niche..........................................................................................................................31
6. National Estuarine Research Reserve System Map.....................................................................37
7. State of the Coast.............................................................................................................................40
8. North Inlet-Winyah Bay Core and Buffer....................................................................................46
9. Organizational Relationship............................................................................................................68
Tables

Reserve System Management Plan Guidelines and Resources

INTRODUCTION
The National Estuarine Research Reserve System (Reserve System) is a network of 28 areas
representing different biogeographic regions and estuarine types within the United States
that are protected for long-term research, monitoring, education and coastal stewardship.
Established by the Coastal Zone Management Act of 1972, as amended, the Reserve System
is a partnership program between the National Oceanic and Atmospheric Administration
and the coastal states. As part of this partnership, Federal regulations, 15 C.F.R. Part 921.13,
require reserves to have a NOAA-approved management plan that is updated every five
years. National Estuarine Research Reserve management plans serve as the foundation and
guide for reserve activities and collectively they describe the capacities of the Reserve System.
These documents can be used as potential source documents for other partner programs,
e.g. National Estuary Program and Coastal Zone Management Program, as well as national
efforts e.g. National Climate Assessment. NOAA’s Estuarine Reserves Division (ERD)
works collaboratively with each reserve to support the development and approval of their
management plan to ensure compliance with Federal regulations and alignment with national
priorities and programs.

Purpose of a Reserve Management Plan
Reserves are increasingly confronted with anthropogenic and natural stressors while needing
to plan for the continued protection and use of the reserve for research, education and public
use. Reserves are also grappling with complex questions regarding new uses in or near reserves
that may or may not be compatible with the Reserve System’s mission. A thoughtful and
comprehensive management plan will provide a foundation for addressing the challenges of
protecting and managing a reserve. Hence, the purpose of a reserve management plan is to:
□□ Provide the vision and framework to guide reserve activities during a five year period;
□□ Present opportunities to discuss reserve niche and strategic collaborations with
partners;
□□ Communicate how the reserve is addressing priority coastal management issues via
their goals, objectives and strategies;
□□ Highlight reserve priorities, and staff capabilities and needs, to address those priorities;
□□ Demonstrate how system-wide programs are locally relevant and nationally significant;
□□ Enable reserves and NOAA to track progress and realize opportunities for growth;
□□ Prepare the reserves to acquire facilities construction and land acquisition funds.

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Key Changes from 2006 Reserve Management Plan
Guidelines
Within the last six years almost all reserves have revised a management plan, providing
significant experience and information to draw from regarding the process and content of
management plans. Additionally, the Reserve System has grown and matured in the areas of
strategic planning and program development and is addressing new challenges, such as climate
change. This guidance aims to apply information gained and support the reserves in creating
a management plan to meet today’s challenges. Hence, there are several updates of note from
“NERR Management Plan Guidelines 2006” including:
□□ This guidance promotes a query-based approach by providing thought-provoking
questions to help reserves craft components of the management plan.
□□ The Reserve System created the “2011-2016 Reserve System Strategic Plan” which
outlines three focus areas: water quality, habitat protection, and climate change. While
water quality and habitat protection have been a focus of the Reserve System since its
inception, climate change is a new focus. A changing climate will have profound
impacts on coastal resources, communities, and infrastructure. It will be imperative to
understand impacts and consider options for adapting to and mitigating these impacts.
Considering climate change in all aspects of planning and programming are emphasized
and encouraged.
□□ Coastal management within the context of these three focus areas is sufficiently
complex and requires an adaptive management approach. This approach is
emphasized and encouraged. Adaptive management allows for collaborative learning,
application of management actions based on current knowledge, and evaluation of
actions to lead to improve management and achievement of objectives.
□□ Each reserve sector contributes to this adaptive management approach most effectively
when expertise and assets are integrated to provide a complete assessment of the issues
and solutions to coastal management challenges. The strategic plan, a key component of a
management plan, illustrates how staff skills and assets can be collectively applied to meet
these challenges. Creating an integrated strategic plan that leverages these skills and
assets to address local priorities and system-wide goals is emphasized and encouraged.
□□ While an integrated approach to planning is encouraged, it is still important to understand
the different capacities of programs at the reserve. The system-wide foundational
programs in research and monitoring, education and outreach, and coastal training help
define reserve niche, provide context for why and how the reserve will address their coastal
management issues, and support reserve goals by implementing integrated strategies. It is
important to discuss these programs from a national and local context.
□□ It is important to understand why the objectives within your plan have or have not
been achieved during the five year period. This will inform future management choices
and focus for revisions to the plan. Reserves are encouraged to develop performance
measures to track program performance and outcomes. Performance measures should
be directly related to reserve objective statements.

Reserve System Management Plan Guidelines and Resources

□□ Understanding both the natural and social context of the reserve is necessary to
effectively manage the resources. Improved coastal management starts with educated
citizens making informed choices about natural resources; hence, it is essential to
understand the dynamics of both natural and human communities. This focus has been
built into the “Introduction to the Reserve” section.
□□ References and resources are included in each section of the guidance that provides
information, tools, and further guidance for adequately addressing that topic area.

Components of a Management Plan
Per Federal regulations, 15 C.F.R. Part 921.13, management plans must describe the reserve’s most
pressing coastal management issues; goals, objectives, and actions for addressing those issues; plans
for administration, research, education/interpretation, public access, construction, acquisition,
resource protection, and, if applicable, restoration and habitat manipulation; and include a
memorandum of understanding between NOAA and the state agency.
Based on these regulations and Reserve System experience in creating and reviewing
management plans, required and optional components are listed below. Details regarding
required and optional information, as well as options for organizing this information can be
found in Part Two: Guidance for Reserve Management Plan Components. A checklist for each
required component, including subcomponents, is available at the beginning of Part Two.

Required Components
Executive Summary
Introduction to the Reserve System
Introduction to the Reserve
Reserve Strategic Plan
Program Foundations *
Research and Monitoring
Education
Coastal Training
Administrative Plan
Resource Protection Plan
Public Access and Visitor Use Plan
Facility Development and Improvement Plan
Acquisition Plan
Resource Manipulation Plan (If applicable)
Restoration Plan (If applicable)
Appendices:
•NERRS Regulations
•Memorandum of Understanding between State Host
Agency and NOAA
•All Memorandums of Understanding between land
managers within the Reserve
•Federal Consistency Determination
•Public involvement and comments
*See Program Foundations Chapter for options
regarding organization of this material

Optional Components
Communications Plan
Volunteer Plan
Vessel and Vehicle Plan
Contingency or Hazard Response Plans
Special Area Plans
Species Lists

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Figure 1 illustrates the relationship among reserve management plan components, within the
context of the state and Reserve System, and how these components work together to meet
reserve target audience needs. The information in the ‘Introduction to the Reserve System’
and ‘Introduction to the Reserve’ provide context for all subsequent components of the
plan. The reserve strategic plan – reserve goals, objectives, and actions- is at the heart of the
management plan. Reserve people (i.e. administration), infrastructure (i.e. facilities) and the
management authorities that protect the reserve serve as foundations for accomplishing goals
and objectives meeting the needs of reserve target audiences. Reserve research and monitoring,
education, training, and stewardship sectors work together in an integrated fashion to support
implementation of the strategic plan. Stewardship functions are captured within the research
and monitoring, resource protection, public access, and land acquisition components, as well
as optional restoration and resource manipulation components. The program foundations
component captures consistent information for each system-wide program including context,
capacity, delivery, needs, opportunities. And finally, it should be noted that reserve programs
operate within the context of the Reserve System and state agency priorities. Evidence of
alignment with these national and local priorities should be apparent throughout the plan.

SYSTEM STRATEGIC PL
ERVE
AN
RES

UTHORITIES
TA
N
E

OPLE
PE

RESERVE GOALS
+
OBJECTIVES

MAN
AG
EM

Resource
Manipulation

IN
F

Training

TURE
RUC
ST
RA

RESERVE TAR
GET
AUD
IEN
CE
S

Research &
Monitoring

IENCES
AUD
GET
AR
ET
RV
SE
RE

Education

Restoration

Resource
Protection,
Public Access,
Acquisition

RGET AUDIENC
RVE TA
ES
RESE

RES
LAN
ERV
IC P
E STA
TE AGENCY STRATEG

INTEGRATION

INTEGRATION

Figure 1. Relationship of Reserve Management Plan Components

IF APPLICABLE

Reserve System Management Plan Guidelines and Resources

How to Use These Guidelines
These guidelines are broken into two parts. Each part uses a query based-approach to promote
thinking about current status and opportunities. Some of these questions may be easy to
answer, others challenging. Please address as many as possible in a robust, yet succinct way.
ERD will use the questions in Part Two as a guide when reviewing the management plan.
Part One provides information about the process and timeline for writing a management
plan, a suggested adaptive management framework for strategic planning, and how to prepare
for writing an integrated strategic plan as part of the process for completing the management
plan. The process and timeline provide key steps and considerations during development of
the plan. The timeline provides required steps, who should undertake them and how long
the steps generally take is provided. The adaptive management section provides a suggested
way of thinking about the strategic planning process in a framework that supports use of
baseline data and stakeholder information for which goals, objectives and actions are devised.
It supports monitoring the implementation of objectives via development of targets and
measures and using the information from this evaluation as a tool for collaborative learning
to determine next steps, appropriate points for stakeholder engagement, and opportunities
for communicating results and/or challenges. The section on preparing to write a strategic
plan provides a suggested way for reserve staff to work together to understand their skills and
capacities, target audiences and niche for programs and the reserve as a whole so that they can
write an effective strategic plan.
Part Two provides specific information to support development of each component of the
plan including:
■ questions to promote thinking about current status and opportunities ■ required and
optional elements ■ case studies ■ references ■ tools and resources
Each management plan revision should be a close collaboration between NOAA and the
reserve. The revision process should begin with a discussion between the NOAA ERD
program specialist and reserve manager to discuss this guidance, approach to the plan, and
timeline for completing the plan.
These guidelines can be found on the NERRS Intranet, under NERRS Guidance, Policy and
Planning documents, sub-tab Management Plans. https://www8.nos.noaa.gov/nerrsintranet/
home.aspx

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PART I: PROCESS
AND APPROACH FOR
REVISING A RESERVE
MANAGEMENT PLAN
Part One provides information regarding the process, timeline, and approach for writing a
management plan. All of the sections within Part One are meant to provide information to
prepare and guide the reserve in developing their management plan. With regard to the process
of writing a management plan, key focus areas include creating a strategy for plan revision,
managing the process, confirming priorities, planning strategically, achieving integration
and engaging stakeholders. A process map and timeline is included that outlines steps and
staff involved. Federal requirements are clearly articulated; these include federal consistency,
environmental compliance, public involvement, and the approval process.
Part One provides an overview of adaptive management including why it is a good choice for
the reserve system, key elements of the approach, and suggestions for linking local and national
priorities in the context of an adaptive management planning approach.
And finally, Part One concludes with tips on how to prepare to write the reserve’s strategic plan.
The strategic plan is a key section within a management plan that outlines the vision, mission,
goals, objectives, and actions the reserve will undertake during the five year period of the plan.
It is important to prepare and organize information in an integrated way prior to writing the
strategic plan. A framework is suggested for how reserve staff can work together to identify
program target audiences, assess skills and capacities of reserve programs, and identify reserve
program niches. These steps will lead to defining the reserve’s niche and creating appropriate
goals, objectives and strategies for the reserve. These steps will help ensure the reserve is
focusing on their unique contributions, reducing duplication, and working across disciplines to
achieve desired results.

Reserve System Management Plan Guidelines and Resources

The Process of Writing a Management Plan
I. Creating a strategy for plan revision
As with any project, it will be helpful if reserves have a plan for how to approach the
management plan revision. This includes a strategy for how to determine primary coastal
management issues, reserve and program niche and impact, how to interact with the public
throughout the process, and roles and responsibilities related to completing the plan. The next
section on adaptive management provides a list of guiding questions that may be useful to
help narrow the coastal management issues relevant to the reserve that also support national
priorities. Writing a plan provides the opportunity to identify those issues, the impact the
reserve can make in five years, and how the reserve will get there.

A. Managing the Process
Reserves may opt to develop their plans in-house, contract out, or potentially a combination of
both may be applied. There are advantages and disadvantages to each approach.
If reserves choose to develop the plan without outside support, they have complete control
over the process and the quality. However, it is very time consuming for the entire staff. To
ensure a smooth process, reserves should assess whether their staff have the appropriate skills
(writing, editing, project management, facilitation) and the time to dedicate to the project. The
plan will benefit from a lead that establishes clear expectations, consistent writing assignments,
and keeps the group working toward an agreed upon timeline. If chapters are to be written by
separate staff, establish a common outline for those chapters before beginning to write and
make sure an editor or the plan lead will be making revisions so that the document is consistent
in style and voice.
Contracting out part or all of the process means that some of this work will be done by other
people, saving reserve staff time. Reserve staff will still have a big time commitment to provide
the content and perspectives needed, and if the reserve is unhappy with the contractor, the
process can be expensive and unproductive. Interview contractors ahead of time, be clear
about what you want help with (is it facilitating the strategic thinking, writing, editing, graphical
support, etc.) and make sure they have the expertise to support you. Based on a 2007 survey of
managers, over half of reserves employ outside expertise to complete their plans. Additional
results of this survey regarding management plan process and content can be found on the
NERRS intranet homepage, under NERRS Guidance, Policy and Planning documents, sub-tab
Management Plans.

B. Confirming your priorities
Whether the reserve will craft the plan itself or work with a contractor, an important first step
is to agree upon priorities that serve the reserve’s unique niche and complement other efforts
in the area. The next section “The Adaptive Management Approach” offers information and
questions to facilitate thinking through the life cycle of the strategic plan and some potential
first steps regarding identifying priorities:

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1. Review existing state or agency priorities, the 2011-2016 Reserve System Strategic Plan,
site- specific needs assessments, program strategies, site profiles, and other planning
documents.
2. Use existing advisory groups or set up a Management Plan Advisory Group to ground
truth coastal management issues and niche.
3. Use surveys and/or focus groups with thought leaders, surrounding community, key
partners, etc. to determine coastal management issues and niche.

Narragansett Bay Reserve: Finding their niche
At the start of their management plan development process, the Narragansett
Bay Reserve conducted a survey with the public and ran a series of focus
groups with key partners to provide input on the niche of the Reserve in
their watershed. For a description of their process and information about the
questions they used, see the appendix in their 2010 Management Plan (http://
www.nerrs.noaa.gov/Doc/PDF/Reserve/NAR_MgmtPlan.pdf).

C. Planning Strategically
Once the reserve identifies the priority issues and their niche, it is time to articulate the desired
impact reserve programs will make during the five year life of the plan. There are many tools
available to help organizations think strategically about where they want to be and what they
want to change. Examples familiar to reserves include SWOT analysis, Logic Models, Structured
Decision Making, issue-based planning, etc. ERD encourages reserves to research different
options for approaching strategic planning, and to choose one appropriate for the reserve.
Basic steps in the process are included within the “Preparing to Write a Strategic Plan” section
of these guidelines. Reserve strategic thinking should lead to goals that speak to how the
reserve will influence the most critical coastal management issues of the local area and how to
strengthen programs over the next five years to address gaps between current activities and what
needs to be done. The strategic plan component of the management plan should not be a list of
current reserve activities; reserves should articulate desired impact and how it will get there. This
is often a challenging process. It is important to involve staff and key partners, as appropriate, in
this process. This phase of plan development may benefit from facilitation expertise.

D. Achieving Integration
If reserve strategic goals are focused on the impact the reserve will have on priority coastal
management issues in the next five years, those goals are likely to require the effort of many
staff members in a coordinated way. Historically, reserves have developed goal statements
specific to foundational programs like research, education, training, stewardship, etc. and
integrating across these programs has been difficult to do.

Reserve System Management Plan Guidelines and Resources

Chesapeake Bay, Virginia Reserve: Program based strategic planning
The Chesapeake Bay Virginia management plan is organized by foundational program
chapters. Those chapters are linked to critical coastal management issues identified in
the beginning of the plan through the use of symbols. Goals and objectives in each
chapter have one or more symbol next to it, indicating which coastal management
issue(s) that goal or objective supports. (http://www.nerrs.noaa.gov/Doc/PDF/Reserve/
CBV_MgmtPlan.pdf )
While the NOAA regulations require plans for research, monitoring, and education, reserves
are encouraged to create an integrated strategic plan whereby an objective is accomplished by
multiple sector specific actions/strategies. As long as actions are associated with a sector or
multiple sectors, this approach meets the regulations. If reserves start with the goals related
to the coastal management issues and then think about how foundational programs and staff
support those goals, there is a higher chance of being able to illustrate connections between
your coastal management priorities and foundational programs.

San Francisco Bay and GTM Reserves: Issue-based strategic planning
The San Francisco Bay, California and GTM, FL management plans provide
information on the programmatic descriptions separate from identification of issue
areas with associated integrated goals, objectives and actions. This approach allows
for clear leadership of actions to be provided within the context of an issue, goal and
objective important to the entire reserve. (http://nerrs.noaa.gov/Doc/PDF/Reserve/
SFB_MgmtPlan.pdf and http://nerrs.noaa.gov/Doc/PDF/Reserve/GTM_MgmtPlan.
pdf )

E. Engaging Stakeholders
It is important to involve key stakeholders in the management plan revision process. Think
about the people that can help the reserve accomplish its goals, close working partners,
groups that may be doing similar or related work, and the reserve’s biggest supporters or
detractors. Try to develop a plan to involve these people at appropriate stages throughout
the revision. Involving existing advisory boards or creating new ones specific to helping with
this task can assist reserves to refine their local role, engage the public, guide programs, tap
expertise in their area, identify duplicative efforts or opportunities to partner and increase
effectiveness. Be clear with the advisory board members about what their role will be,
what the time commitment will be, and how their input will be used. Keeping the group or
groups engaged throughout the entire process or a distinct part of the process with multiple

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exchanges will enhance the value of these groups. Strive to make meetings and working sessions
interactive and keep the dialogue moving from one meeting to the next.
Engaging staff throughout the management plan process is critical to success; not only in
completing the document but in implementing the plan. Be clear about time expectations and
deliverables with staff in the beginning of the process, use good facilitation to make sure staff
views are heard and incorporated into the plan, and set up regular meetings and/or agreed
upon communication avenues to make sure everyone stays on track and is aware of new
developments. Understanding the many demands upon staff time and creating incentives for
participation will be important.
Public involvement is not only very useful in developing a management plan, but it is also
required. Reserves may choose to recruit members of the public for advisory boards or you may
choose to develop a separate public involvement strategy. Engaging the public throughout the
process (e.g. a kick off public meeting, a meeting to go over a draft, and a final public comment
meeting) will ensure that people feel a part of the process and have an opportunity to comment
on the direction of the plan as it evolves and becomes more detailed. Consider interactive ways
to solicit feedback and insight from the public such as focus groups, Q and A sessions, issue
mapping, etc. Many social science and advanced facilitation techniques may be helpful to you in
this process. If you anticipate any contentious issues to arise, ERD should be apprised and also
recommends that the reserve get a neutral facilitator or mediator involved who has experience
with public conflict resolution. Several resources to support the material within this section can
be found in Part Two under the Strategic Plan component of the guidelines.

II. Review and Approval Process
A. Timeline
Revising a management plan may take varying amounts of time. Some will assess and modify
continually, negating a large time investment when a revision is due. Others may have significant
events or changes that require a more substantial time investment. Regardless, plan revisions
should take ideally no more than 12-18 months. Revisions are due at the time of the previous
plan’s expiration date, which is five years after the current plan’s notice of approval in the
Federal Register. The timeline in Table 1 provides information about the expected tasks that
require back and forth correspondence between the site and ERD throughout the process.
Reserves are encouraged to develop a timeline for the management plan revision that includes
these steps and any other steps you will need to take locally, including state requirements. ERD
is a partner in completing a management plan; all correspondence and progress should be
documented by both ERD and the reserve to ensure continuity of operations regardless of
staff turnover.

Reserve System Management Plan Guidelines and Resources

Table 1. Reserve Management Plan Development Timeline
Action

Reviewers

Reserve discusses strategy for plan
development and creates timeline
for project with ERD liaison

Reserve

Reserve submits outline to ERD
liaison

ERD program specialist

Reserve involves stakeholders/public
to inform plan contents
Reserve identifies all Memorandums
of Understanding (MOU) that
require updating and works with
partners to update
Note: the MOU between the state
host agency and NOAA should
follow the template provided in
Appendix 1.

ERD program specialist
ERD program specialist team lead

Time
Variable: 12- 18 months before
expected completion date

ERD program specialist team lead

ERD program specialist will provide
consolidated comments within two
weeks of receipt of outline

Reserve/stakeholders

Throughout the revision process

Reserve
Program partners
NOAA (if applicable): ERD
program specialist will coordinate
appropriate reviewers

Variable
Note: MOUs can take several
months to review due to legal review
procedures.

Reserve
Reserve develops plan

Stakeholders (optional)

Variable

ERD program specialist
Reserve submits drafts of chapters
for preliminary ERD feedback
(optional)

ERD program specialist
ERD program specialist team lead
(optional)

ERD program specialist provides
comments within two weeks per
chapter submission

ERD program specialist
ERD program specialist team lead
ERD research coordinator
Reserve submits complete draft of
plan to ERD electronically

ERD education coordinator
ERD coastal training program
coordinator
ERD stewardship coordinator
General Counsel for Ocean Service
(GCOS)

ERD program specialist will provide
consolidated comments within two
months of receipt of draft

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Action
Reserve submits complete draft to
state agency
Reserve submits complete draft
to Coastal Zone Management
Program representative for Federal
Consistency certification

Reviewers

Time

State agency representatives

Variable

Coastal Zone Management Program
representative

Variable

Note: Please use Federal Consistency
template found in Appendix 2.
ERD and Reserve manager/staff
discuss comments on plan and
resolve outstanding questions/issues
based on NOAA, state agency and
state CZMP reviews
Reserve submits final plan for
approval

ERD program specialist
Reserve manager/staff
ERD program specialist
ERD program specialist team lead

ERD chief
ERD conducts National
Environmental Policy Act (NEPA)
review of plan and prepares findings.
ERD program specialist
A programmatic Environmental
Assessment and guidance for
additional topic specific assessments OCRM NEPA coordinator
required (in preparation) can be
found in Appendix 3.
ERD prepares a Federal Register
Notice providing a 30 day public
comment period on the plan and
NEPA assessment

Variable

2-4 weeks

Three months

ERD program specialist
ERD chief

Two weeks

OCRM director

Reserve simultaneously prepares
a similar notice for 30 day public
comment period and posts draft
plan to Reserve Website

Reserve manager/staff

Same week as above

Reserves are encouraged to hold a
public meeting to brief stakeholders
on the management plan

Reserve manager/staff

One day

Reserve System Management Plan Guidelines and Resources

Action
Program specialist brief ERD chief

Reviewers
ERD program specialist

Time
One day

ERD chief
After the 30 day comment period,
Reserve addresses all comments
received and adds appendix to
Reserve manager/staff
plan that outlines how comments
were addressed. ERD amends,
ERD program specialist
as applicable, the site specific
OCRM NEPA coordinator
environmental assessment. A
template for public comment can be
found in Appendix 4.
Reserve posts final plan on Reserve
Website; ERD posts final plan on
NERRS Website; Reserve submits
updated boundary map to CDMO;
NOAA approves final NEPA
documentation.
ERD prepares Federal Register
Notice announcing the availability
of the plan and sends to Federal
Register for publication
ERD prepares and submits
letter of approval to state host
agency/university director cc: to
appropriate state host agency and
CMP representatives

Reserve and ERD work together
to address comments within one
month of receipt of comments

Reserve manager/staff
ERD program specialist
ERD web developer

One day

OCRM NEPA Coordinator
ERD program specialist
ERD chief

Two weeks

OCRM director
ERD program specialist
ERD chief
OCRM director

One week

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After all comments have been addressed, the plan is complete and ready for approval. NOAA
will draft a Federal Register Notice announcing the availability of the approved plan. NOAA
will send a letter to the state agency (cc: reserve) notifying them of the approval. The approval
letter and Federal Register Notice is filed at OCRM. The day that the Federal Register Notice
announcing the plan is published is the official management plan approval date. Plans should be
made available on the reserve Website and will be posted on nerrs.noaa.gov.

III. Following the Regulations
Specific requirements involved in revising a management plan are referenced above. Details
about these requirements including MOUs, NEPA, Federal Consistency, and the public
involvement and plan approval processes include:
1. Memorandums of Understanding
A memorandum of understanding between the state and NOAA regarding the federalstate relationship that expresses the long-term commitment by the state to maintain and
manage the reserve in accordance with Section 315 of the Coastal Zone Management
Act, 16 U.S.C. 1461, and applicable regulations, is required. Additionally, all other
necessary MOUs must be included in the plan (15 CFR Part 921.13 (a)(11)). Examples
of additional MOUs are those agreements between the state agency and other entities
that manage land within the reserve. These agreements should ensure that all lands within
the reserve are managed for the purposes by which the reserve was established and are
coordinating management activities. The template for the MOU between NOAA and the
reserve host agency can be found in Appendix 1.
2. Federal Consistency
If the state has a federally approved coastal management program, the final plan must
include a certification that the National Estuarine Research Reserve is consistent to the
maximum extent practicable with that program. This is required by our regulations; see
Sections 921.13 (a), 921.4(b) and 921.30(b). To satisfy this requirement, a letter that states
that the plan is consistent with goals of the state Coastal Zone Management Program
must be signed by appropriate state leadership. The process and template is outlined
in Appendix 2. For additional information on Federal Consistency, please see http://
coastalmanagement.noaa.gov/consistency/welcome.html
3. Environmental Compliance
The National Environmental Protection Act (NEPA) is the tool NOAA will use to
evaluate environmental compliance with applicable rules and regulations. NEPA requires
federal agencies to undertake an assessment of the environmental effects of their
proposed actions prior to making decisions. The NEPA review can result in one of three
determinations:
(1) If the action is unlikely to cause any environmental harm, it is qualified as a
Categorical Exclusion.

Reserve System Management Plan Guidelines and Resources

(2) If it is uncertain if there will be environmental effects, an Environmental
Assessment (EA) is conducted by NOAA.
(3) If significant environmental effects may or will occur, an Environmental Impact
Statement (EIS) must be prepared.
It has been determined via National Administrative Order 216-6 that management plans
cannot be categorically excluded. It has also been determined by NOAA’s General
Counsel Ocean Service and NOAA’s Program, Planning and Integration Division that
ERD should develop a programmatic environmental assessment (PEA) to cover all
reserve management plan revisions. ERD will work with OCRM’s NEPA Coordinator
to draft this assessment. Once this assessment is complete, it will be applied to all
management plan revisions. It is anticipated the PEA will be completed during Federal
Fiscal Year 2013. A boundary expansion will require an additional assessment before
the plan can be approved. Plan components potentially requiring additional assessment,
if and when funded by NOAA, include all construction activities (including trail
development), land manipulation activities, invasive species control activities, restoration
activities, and boundary changes. Each operations, construction, and land acquisition
award will be assessed for environmental compliance and may require additional topic
specific environmental assessments. Additional resources on NEPA can be found at
http://www.epa.gov/compliance/basics/nepa.html and http://www.nepa.noaa.gov/.
4. Public Involvement
Community members are important constituents and partners to reserves. Developing a
public involvement strategy for developing your management plan is important to engage
the community in your work, seek their advice and expertise in your programming, and
ensure that you are aware of any potential conflicts. Ideally, public input would be sought
at several points in the process of developing a management plan and responses to those
comments would be easily accessible to the public during the process. Management plan
revisions will be published in the Federal Register Notice for a 30-day public review
and comment period. The reserve is responsible for publishing an equivalent notice
in the local media to provide a 30 day public comment period when the draft is done.
If comments are submitted during the public review comment period, they should
be addressed, as reasonable, and incorporated into the plan. These comments and a
description of the entire public process should be included as an appendix of the final
plan. An example can be found in Appendix 4.
5. Approval Process and Compliance
After all comments have been addressed, the plan is complete and ready for approval.
NOAA will draft a Federal Register Notice announcing the availability of the approved
plan. NOAA will send a letter to the state agency (cc: reserve) notifying them of the
approval date. The day that the Federal Register Notice announcing the plan is released
is the official management plan approval date. The plan is valid for five years from that
date. The next draft plan should be submitted to NOAA’s Estuarine Reserves Division
prior to that expiration date. The approval letter and Federal Register Notice is filed at
OCRM.

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Adaptive Management Approach to Strategic
Planning
About this Section
The Reserve System addresses complex coastal management issues by integrating and applying
research, education, training and stewardship expertise within the current network of 28
protected areas. The Reserve System is focusing investment and expertise to address climate
change, water quality and habitat protection challenges. These nationally significant issues
require specific and strategic local response best achieved through adaptive management
whereby improved understanding of resources leads to improved management choices and
ultimately improved protection of the resources. (Williams, et.al. 2009) This section provides
a suggested adaptive management framework to help reserves row in the same direction
as part of a partnership program and create meaningful management plans to strategically
address national and local priorities.
This section briefly explains what
“Ecosystems are not only
adaptive management is, why it is a
more
complex than we
good fit for the Reserve System, and
think; they’re more complex
describes the key elements of adaptive
than we can think.”
management.

I. What is adaptive
management?

–Egler

As defined by the National Research Council, adaptive management is “a decision process
that promotes flexible decision making that can be adjusted in the face of uncertainties as
outcomes from management actions and other events become better understood.” It is a
structured approach for improving resource management by learning from these outcomes.
(Sexton, et. al., 1999) This approach provides a practical path to linking learning with policy
and implementation. (Stankey, 2005) While the concept of learning from experience and
subsequently modifying behavior has been around for some time, the specific idea of adaptive
management as an approach to natural resource management can be linked to the seminal work
of Holling, Walters and Lee. (Holling, 1978; Walters, 1986; and Lee, 1993)
Adaptive management is much more than tracking actions and making management changes
after failed policies or actions. (MacDonald, et.al., 1999) It involves exploring a number of
potential actions to achieve management objectives based on current science, predicting
the outcomes of those actions, implementing one or more of the actions, monitoring the
success or lack thereof, and then applying the results or using that information to modify
future actions. (Murray and Marmorek, 2004) Careful monitoring of outcomes both advances
scientific understanding and helps adjust policies or operations as part of an iterative learning
process. The iterative and collaborative learning process that emphasizes learning while doing
is a key factor for success and requires partnerships of managers, scientists, educators and

Reserve System Management Plan Guidelines and Resources

key stakeholders who learn together to create sustainable resource systems. (Bormann, et.
al., 2006) Adaptive management seeks insights into the behavior of ecosystems, and it draws
upon theories from ecosystem sciences, economics and social sciences, engineering, and other
disciplines. Its true measure is in how well it helps meet environmental, social, and economic
goals, increases scientific knowledge, and reduces tensions among stakeholders. (Water Science
and Technology Board, et.al. 2004)

II. Why is adaptive management a good choice for the Reserve System?
The Reserve System has a mandate to protect and preserve estuarine environments for specific
purposes and is well suited and designed to monitor and apply knowledge in a long-term
capacity to improve coastal management. The Reserve System’s place-based network provides
an ideal platform for iterative decision-making whereby clear objectives can be identified,
monitored, and adapted. Furthermore, reserves are well suited to undertake this approach given
the criteria and key elements discussed
in the next section. We have a mandate,
mission and institutional capacity to
address many of the pressing coastal
issues, such as climate change, that create
implicit uncertainty in environmental
conditions and hence a flexible approach
to dealing with them.

“Knowledge has to be
improved, challenged, and
increased constantly, or it
vanishes.”
–Drucker

III. Key elements of adaptive management
When applying an adaptive management approach, two key conditions should be met: 1) there
must be a necessary mandate to take action in the face of uncertainty and the problem must be
important enough to require action of some kind and 2) there must be institutional capacity and
commitment to sustain an adaptive program, providing long-term measurement and evaluation
of outcomes. (Lee, 1993; Wilhere, 2002) In addition to these two overarching conditions, there
are additional elements or conditions for adaptive management to be successful. (Williams et.al.
2009) These are referenced in Figure 2 and include:
1) Adequate baseline understanding and assumptions about the system being managed
as a foundation for learning. From this understanding, appropriate management objectives
and actions can be determined.
2) Clear and measureable management objectives should be identified to measure
progress and understand when it is appropriate to re-evaluate actions.
3) Opportunities are present to select from a range of management actions to meet
objectives. The value of using current information based on prediction rather than
assumption to make these determinations is important in an uncertain environment.
Actions should be multi-disciplinary, participatory and should be evaluated for impacts
and consequences. Additionally, where feasible, it is important to explain uncertainty using
testable models- conceptual, qualitative and/or quantitative depending on capacity.

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4) Mechanisms for incorporating learning to inform future actions should be
used throughout the process. This assumes that the process, institutions and actions
themselves are flexible enough to account for learning and the application of that
knowledge. It is ideal when responses to management actions can be assessed before a
decision about the next management action is made. Organizations must monitor, assess
and re-evaluate.
5) Monitoring can be established and maintained to evaluate outcomes of actions.
Adaptive management requires measuring the response to actions taken to determine if
the program is on track to meet objectives or needs to re-evaluate actions.

Figure 2. Adaptive Management Approach to Strategic Planning for the Reserve System

In order to create informed objectives, it is important to understand the baseline conditions
and actions that have brought the system to its current state. Reserves have resources, such
as ecological characterizations, SWMP data and syntheses, and stakeholder information from
Education and Coastal Training Program activities, which provide a baseline of information
to create measurable objectives, implement management strategies, monitor and assess their
efficacy, communicate success and/or challenges and re-evaluate to determine subsequent
management actions. It is important for practitioners and stakeholders to bring concepts
from different disciplines during all phases of the adaptive management process to facilitate
mutual learning and commitment to sustaining the resources being managed. This promotes
the ability of all parties to gain scientific, social and economic knowledge and understanding,
reduce potential tensions, and provide for an iterative and collaborative learning process to
improve understanding and management over time. Flexibility is important in the decisionmaking process to revisit management actions in response to measured outcomes. (Doremus
et.al. 2001) Figure 2 above shows how adaptive management is applied to the Reserve System
strategic planning framework.

Reserve System Management Plan Guidelines and Resources

IV. Linking local and national priorities in the context of adaptive
management planning
Using management plans and the concept of adaptive management is contingent on knowing
what you want to achieve within the appropriate context. It is important to both understand
the local reserve priorities, but also how these relate and contribute to the priorities of the state
agency and the Reserve System. These priorities provide the context for reserve planning and
opportunity to use the management plan to revisit the reserve niche every five years. This niche
should result in work that is complementary, not duplicative, of other state and local programs.
More information about defining niche within the context of local, state and national priorities
is identified in the next section ‘Preparing to Write a Strategic Plan’.
The questions below, as well as the information above on adaptive management, are good
starting places to help the reserve conceptualize the scope and scale of the management plan
and begin thinking strategically, preparing the reserve to identify niche, goals, and objectives.

Waquoit Bay Reserve: Aligning national and local priorities
The 2011-2016 Reserve System Strategic Plan lays out three areas for strategic focus and
investment; one of these is water quality. For Waquoit Bay, this national priority is also
a local priority; specifically nitrogen pollution. The communities surrounding Waquoit
Bay are facing difficult decisions as they grow. Current septic systems are not doing a
good enough job keeping nitrogen out of Cape Cod’s waters; and this is leading to water
pollution that threatens the environment, quality of life and the livelihood of this tourist
destination. Over the past twenty years, the Waquoit Bay Reserve has attracted researchers
from around the world to study the sources and impacts of nitrogen in the bay. CICEET
and GRF projects have concentrated on this topic, reserve led monitoring is linked to this
topic, and reserve led research and synthesis of research has contributed to a wealth of
information and new questions. Reserve K-12 education programs, community education
programs, and CTP have focused on bringing the science of nitrogen pollution to the
public and are focusing on what people can do as citizens or as decision makers to be
a part of (or find) the solution. Integrated work by staff at the reserve is addressing
a locally important coastal management issue that contributes directly to the national
priorities of the system. To learn more visit: www.waquoitbayreserve.org/index.aspx

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□□ What are the expectations, mandates, and important goals of the state partner?
□□ What are the critical ongoing/existing estuarine environmental issues locally that are not
covered by the partner goals?
□□ What are the local emerging issues or threats that are likely to become increasingly
important in the next five years?
□□ What science, education, training, stewardship, or leadership is needed to address the most
pressing local issues relevant to the reserve?
□□ Who else is working on these issues near the reserve?
□□ What are the working relationships with key state programs on these issues, such as the
Coastal Management Program?
□□ What topics and functions are appropriate for reserve to work on given staff strengths,
limitations or constraints, infrastructure, resources, and state partner priorities?

Because of the state-federal partnership inherent to the Reserve System, this means that
management plans must articulate both how reserves address local coastal management issues
and how local work also contributes to the national system. The 2011-2016 Reserve System
Strategic Plan focuses its core strengths of research, stewardship, education, and training on
three national priorities – climate change, habitat protection, and water quality.
Nationally, we are working toward all of the objectives stated in that plan. Some will be achieved
through coordinated national programs, like the System-wide Monitoring Program. Others
represent a collective vision for the work individual reserves do, such as implementing research
projects that use reserves as sentinel sites for detecting and understanding the effects of climate
on estuaries. It is unlikely that an individual reserve will address all of the objectives in the
Reserve System Strategic Plan, but it is expected that a significant portion of the reserve’s work
contributes to the system wide goals and objectives. The following questions will help reserves
begin thinking about how to align their plan to address goals and objectives within the Reserve
System Strategic Plan:

□□ Which Reserve System Strategic Plan objectives and strategies can the reserve address well?
□□ How is the reserve addressing climate change, water quality and habitat issues? How are
national programs like SWMP, CTP, GRFs, NSC and KEEP contributing to the gaps,
stressors, and needs identified by the reserve? Could they better support local needs?
□□ What are the critical stressors, information needs or gaps, etc. related to habitat, water
quality, and climate at your reserve? What is your role in addressing those gaps, both as a
reserve and within your programs (research, education, training, etc.)?

Reserve System Management Plan Guidelines and Resources

References
Bormann, B.T., D.C. Lee, A.R. Kiester, D.E. Busch, J.R. Martin, and R.W. Haynes. (2006)
Adaptive Management and Regional Monitoring. Chapter 10 in: R.W. Haynes, B.T. Bormann,
and J.R. Martin (Eds.). Northwest Forest Plan—the First Ten Years (1994-2003): Synthesis of
Monitoring and Research Results. PNW GTR 651, USDA Forest Service, Pacific Northwest
Research Station, Portland, OR.
Doremus, H. (2001) Adaptive management, the Endangered Species Act, and the institutional
challenges of “new age” environmental protection. Washburn Law Journal 41:50-89.
Elliott, G., M. Chase, G. Geupel, and E. Cohen. (2004) Developing and Implementing an
Adaptive Conservation Strategy: A Guide for Improving Adaptive Management and Sharing the
Learning Among Conservation Practitioners. PRBO Conservation Science, CA.
Hennessey, T.M. (1994) “Governance and Adaptive Management for Estuarine Ecosystems: the
Case of Chesapeake Bay.” Coastal Management. Volume 22. Pgs. 119-145.
Holling, C.S. (1978) Adaptive Environmental Assessment and Management. John Wiley and
Sons, New York, NY.
Kessler, W., Salwasser, H., Cartwright, C. and Kaplan, J. (1992) New Perspectives for Sustainable
Natural Resources Management. Ecological Applications, 2(3), ppg. 221-225. Retrieved from
http://www.jstor.org/stable/1941856.
Lee, K.N. (1993) Compass and Gyroscope: Integrating Science and Politics for the
Environment. Island Press, Washington, DC.
MacDonald, G. B., J. Fraser, and P. Gray (editors) (1999) Adaptive Management Forum: Linking
Management and Science to Achieve Ecological Sustainability. Ontario Ministry of Natural
Resources, Peterborough, Ontario, Canada.
Murray, C. and D.R. Marmorek (2004) Adaptive management: A science-based approach to
managing ecosystems in the face of uncertainty. In: N.W.P. Munro, T.B. Herman, K. Beazley
and P. Dearden (Eds.). Making Ecosystem-based Management Work: Proceedings of the
Fifth International Conference on Science and Management of Protected Areas, Victoria, BC,
May, 2003. Science and Management of Protected Areas Association, Wolfville, Nova Scotia.
Available at: http://www.essa.com
Stankey, G.H., R.N. Clark, and B.T. Bormann (2005) Adaptive management of natural resources:
theory, concepts, and management institutions. PNW-GTR-654, USDA Forest Service, Pacific
Northwest Research Station, Portland, OR.

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Sexton, W.T., A. Malk, R.C. Szaro, and N. Johnson (editors) (1999) Ecological Stewardship:
A Common Reference for Ecosystem Management, Volume 3: Values, Social Dimensions,
Economic Dimensions, Information Tools. Elsevier Science, Oxford, UK.
Walters, C.J. (1986) Adaptive Management of Renewable Resources. Blackburn Press, Caldwell,
NJ.
Water Science and Technology Board, Ocean Studies Board, Earth and Life Studies (2004)
Adaptive Management for Water Resources Project Planning. National Research Council of
the National Academies, The National Academies Press. Washington, D.C. Retrieved from the
National Academies Press Website: http://books.nap.edu
Wilhere, G.F. (2002) Adaptive management in habitat conservation plans. Conservation Biology
16:20-29.
Williams, B.K, Szaro, R.C, and Shapiro, C.D. (2009) Department of Interior Adaptive
Management Technical Guide. Adaptive Management Working Group. Retrieved from: http://
www.doi.gov/initiatives/AdaptiveManagement/

Reserve System Management Plan Guidelines and Resources

Resources
U.S. Fish and Wildlife Service Training at National Conservation Training Center
Introduction to Structured Decision-making: Training that provides an introduction to
structured decision-making in the context of natural resource management challenges. The
training also provides hands-on experience with decision tools, decision trees, multiple objective
ranking techniques and expert panels covering critical thinking, logic, and reasoning strategies.
Adaptive Management: Structured Decision Making for Recurrent Decisions: Training where
adaptive management is framed within the context of structured decision making, with an
emphasis on information and tools to address uncertainty regarding responses to management
actions and the value of reducing uncertainty to improve management.
Ecosystem-based Management Tools Network provides focus questions, suggested reading,
case studies, approaches, tools, and links to other core elements of ecosystem-based
management tools network.
Adaptive Management: A Tool for Conservation Practitioners provides steps in the process and
principles of adaptive management
Adaptive Management Technical Guide provides a scoping key and focus questions for
successful implementation.
Learning for Sustainability: Adaptive Management -Learning While Doing provides
information, guides and selected readings on the use and application of adaptive management
with uncertainty – including selections on adaptive management increasing resiliency to climate
change.

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Preparing to Write a Strategic Plan
I. Strategic Planning Process
Strategic planning is a systematic process to assess an organization’s direction and priorities. A
good strategic planning process requires time and effort to gather and analyze data and trends
to set a baseline of understanding; assess target audiences related to all program areas; identify
organization niche and priority goals, objectives, and actions; implement actions to work towards
meeting objectives; and monitor and evaluate progress towards them.
In order to do this effectively in the field of coastal management, reserves must understand
and operate within the context of the social environment. This includes understanding the
social, economic, political and cultural dynamics of the community in which the organization
operates. Working with an understanding of these forces and engaging stakeholders from all
realms throughout all stages is highly encouraged. This will be important for recognizing how
the opportunities and challenges presented by the environment influence the reserve’s ability to
achieve its goals and objectives for its target audiences.
The strategic planning pyramid below identifies the elements of strategic planning from the
initial step of assessing the target population to the final step of implementing and evaluating
progress. All staff should participate in each step of this process to ensure ownership of the plan
which ultimately leads to successful implementation.

Figure 3. Strategic Planning Pyramid

Reserve System Management Plan Guidelines and Resources

II. Identifying Program Target Audiences
It is important to first identify the target audiences for a program’s efforts. Target audiences
may be within or outside the host agency and comprised of individuals who have the ability to
influence and support the reserves’ major resource issues. Each program at the reserve should
assess their target audiences by understanding their skills and needs, as well as the activities and
products currently employed to serve that audience. It is important to understand emerging
issues and needs that these audience may need to address and/or influence. This step can be
accomplished via formal needs assessments, focus groups, surveys, etc. Note: the state Coastal
Management Program is a key partner in identifying audiences and an audience themselves.

III. Assessing Skills and Capacities of Reserve Programs
The next step should be to assess reserve programs skills and capacities as this will affect what
can be realistically accomplished. One way to approach this step is via a SWOT (strengths,
weaknesses, opportunities, and threats) analysis. Programs can answer certain questions to
provide important information about program expertise, contributions to target audiences,
trends, and skills the program may need in the future to be successful. (Mind Tools, 2009)
Questions to inform this analysis include:
Strengths: What are the reserve program’s
unique skills and resources? What does the target
audience view as the program’s expertise? What
trends can the program build on?
Weaknesses: What does the program lack that
the target audience needs? What skills or resources
do reserve programs need?
Opportunities: What can the reserve program
offer that meets the needs of the target audience
to effectively manage coastal resources? How are
other programs addressing target audience needs?
Threats: Because of program weaknesses, what
threatens reserve programs? What expertise
Figure 4. SWOT Chart
do reserve programs lack to meet future target
audience needs?

To complement this approach, ERD has developed questions for each system-wide program
to help identify strengths, weaknesses, and opportunities to then identify the niche for each
specific program relevant to reserve locales. The questions for each program are binned similarly
and contain many of the same questions for consistency in approach; however, there are
nuances between the programs based on the nature of the program. Additionally, suggested key
documents are included as reference for each program when considering these questions.

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A. Research and Monitoring Program
Priority Issues – What are the priority issues for your reserve that your research program can
address? How did you determine them? Do they align with the broader issues being identified at
your reserve for this plan? Do they align with the NERRS Strategic Plan, SWMP plan, and other
System-wide documents?
Priority Audiences – How does the research program currently support reserve, coastal
management program, local community, and regional science priorities? Who are the target
audiences that interact with and benefit from the research program? How were these audiences
identified? What do you know about the skills, abilities, and current level of knowledge of the
target audiences?
Program Alignment and Delivery – How have you or do you plan to adopt and adapt
system-wide programs (e.g. biological monitoring and sentinel sites)? How does the research
program support and align with system-wide plans and efforts (e.g. Climate Change Initiative
Implementation Plan, System-wide Monitoring Program Plan, Research and Monitoring Plan,
Community Education efforts)? What major activities will the research program implement that
will address the priority issues identified above within the next 5 years? How does the research
program work with and build upon other programs/initiatives at the reserve and within the
Reserve System (i.e. provide information for education products or programs)?
Program Needs and Gaps - What are the major program needs and gaps that may or may not
be able to be addressed during the period of this management plan? How will these needs and
gaps affect research programming and subsequent impacts to the research program?
Program Impacts – What are the major impacts and outcomes you envision as a result of
research activities? What will human and natural communities gain from these activities?
Current and Anticipated Partnerships - Who are your partners and why do you partner with
them? Who do you hope to partner with in the future? Do you partner with NOAA offices,
other than ERD? If so, please describe. If not, are there opportunities to build partnerships?
Program Monitoring and Evaluation – How do you evaluate the success of your research
program? What are your expected outcomes?
Dissemination of Program Results – How do you plan to communicate program impacts
and results? Please be reminded that the current Reserve System Research Database provides
you a method by which you can aggregate research projects to share. In this section, we are
also interested in knowing what other mechanisms you have to disseminate program results
and information beyond the audience immediately involved in the activities of the project, e.g.
conferences, journal publications, newsletters, social media, etc.
Supporting Documents:
We recommend consultation of the following documents: 2011-2016 Reserve System Strategic
Plan, Climate Change Implementation Plan, Research and Monitoring Plan, System-wide

Reserve System Management Plan Guidelines and Resources

Monitoring Program Plan, and Reserve System Sentinel Sites Program Guidance, Coastal
Management Program Section 309 Assessment and Strategies.

B. Education Program
Priority Issues – What are the priority issues for your reserve that your education program can
address? How did you determine them? Do they align with the broader issues identified within
the management plan and 2011-2016 Reserve System Strategic Plan? What recommendations
from your MA and NA will you implement that will further your goals to grow, strengthen and/
or expand a K-12 program in your area (district, county, coastal area, state, region, etc.)?
Program Context – What have you learned since the last management plan that has affected this
plan? What have you learned, after completing a market analysis and needs assessment, which
has affected this plan? Information on current and projected population data is also important
in setting programmatic context. What is your program’s geographic scope? What is the total
population of the audience you plan to target? What percentage of that population do you plan
to target within the next 5 years? What do you know in terms of (1) your current reach (number
of counties, districts, and in-land areas), (2) the areas you plan to target with your distinct
programs and (3) why?
Priority Audiences – Who are the target audiences that interact with and benefit from the
education program? How were these audiences identified? What do you know about the
skills, abilities, and current level of knowledge of the target audiences? Are underserved and
underrepresented populations a target audience for your programs? Most reserves can lump
their education programs into one or several of the following program categories, serving
different target audiences: professional development programs, students programs, public
outreach programs, and/or community education programs. Please consider how best to
distinguish these target audiences and the differences in how you plan to serve them in this
section of the management plan.
Program Alignment and Delivery – How have you or do you plan to adopt and adapt
system-wide programs, for example, K-12 Estuary Education Program, and incorporate it as
part of your educational programming? How does the education program support and align
with system-wide plans and efforts (e.g. Climate Change Implementation Plan, SWMP Plan,
Research and Monitoring Plan)? What major activities will you implement that will address the
priority issues your identified above within the next 5 years? What methodologies do you plan
to employ in your program? How do you work with and build upon other programs/initiatives
at the reserve and within the Reserve System (i.e. specific reserve research products that are
used)?
Program Needs and Gaps – What are the major program needs and gaps that may or may not
be able to be addressed during the period of this management plan? How will these needs and
gaps affect potential programming and subsequent impacts?
Program Impacts – What are the major impacts and outcomes you envision as a result of
education activities? What will human and natural communities gain from these activities? What
is the desired change in the target audience’s behavior?

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Current and Anticipated Partnerships - Who are your partners and why do you partner with
them? Who do you hope to partner with in the future? Do you partner with NOAA offices? If
so, please describe. If not, are there opportunities to build partnerships? We highly recommend
outlining project partners such as curriculum coordinators, school principals, state science
teacher associations, teachers, supervisors, department chairs, state science supervisors, among
other key education administrators.
Program Monitoring and Evaluation – How do you evaluate your success? Have you
developed a logic model for your program? Do you have an evaluation plan in place? What are
your expected outcomes within the next 5 years?
Dissemination of Program Results – How do you plan to communicate program impacts
and results? Please be reminded that the current Reserve System Performance Measure Database
provides you a method by which you can share your success stories and program results with
other reserves. In this section, we are also interested in knowing what other mechanisms you
have to disseminate your stories beyond the audience immediately involved in the activities of
the project. Are you planning to present at local, regional or national education conferences? If
so, which ones? Do you have a newsletter? Do you use social media to communicate? Will you
publish your results in a journal, if so, which one(s)?
Other Considerations:
Guiding principles used in the design and implementation of reserve education programs:
□□ Educate about estuaries holistically to include ecological, cultural, historical, and scientific
related facts and concepts
□□ Promote a sense of stewardship and individual responsibility
□□ Address coastal issues from a local, state, regional, national, and global perspective
□□ Approach estuary education through a perspective that includes watersheds, and
biogeographic regions
□□ Increase understanding and appreciation of the Reserve System, research conducted at
reserves and the use of System-wide Monitoring Program data
Supporting Documents:
We recommend consultation of the following documents: 2011-2016 Reserve System Strategic
Plan; K-12 Estuary Education Program (KEEP) Framework document; Teachers on the
Estuary Program Description Community Education Framework Document; Education
Sector Performance Measurement Guidance; and the NOAA Education Strategic Plan 20092029. For your reference, all approved Education Program Descriptions can be found on
the Reserve System Intranet. Additional reserve system guiding documents that may be
appropriate references in this section include the Climate Change Implementation Plan, Systemwide Monitoring Program Plan, Reserve System Sentinel Sites Program Guidance. Coastal
Management reference documents include the Coastal Management Program Section 309
Assessment and Strategies.

Reserve System Management Plan Guidelines and Resources

C. Coastal Training Program
The CTP Program Strategy should provide much of the substance of this section, especially if
the Program Strategy was developed in an integrated manner with other reserve programs and
assets.
Priority Issues – What are the priority issues for your reserve that your coastal training
program can address? How did you determine them? Do they align with the broader issues
identified within the management plan and 2011-2016 Reserve System Strategic Plan?
Program Context –What have you learned since the last management plan that has affected
your ideas for this plan? What have you learned, after completing a market analysis and needs
assessment, which has affected your ideas for this plan? What is the geographic scope for the
program and why?
Priority Audiences – Who are the target audiences that interact with and benefit from the
CTP? How were these audiences identified? What do you know about the skills, abilities, and
current level of knowledge of the target audiences?
Program Alignment and Delivery – How have you or do you plan to adopt and adapt systemwide programs (e.g. CTP)? How does the coastal training program support and align with
system-wide plans and efforts (e.g. Climate Change Implementation Plan, SWMP Plan, Research
and Monitoring Plan, Community Education) What major activities will you implement that
will address the priority issues you’ve identified within the next 5 years? What methodologies do
you plan to employ in your training? How do you work with and build upon other programs/
initiatives at the reserve and within the Reserve System (i.e. specific reserve research products
that are used)?
Program Impacts - What are the major impacts and outcomes you envision as a result of
training activities? What will human and natural communities gain from these activities? What is
the desired change in the target audience’s behavior?
Program Needs and Gaps - What are the major program needs and gaps that may or may not
be able to be addressed during the period of this management plan? How will these needs and
gaps affect potential programming and subsequent impacts? What training gaps are identified
and required to address issues in the next 5 years?
Current and Anticipated Partnerships - Who are your partners and why do you partner with
them? Who do you hope to partner with in the future? Do you partner with NOAA offices? If
not, how might you build better partnerships in the future?
Program Monitoring and Evaluation – How do you evaluate the success of your CTP? Have
you developed a logic model for your program? What are your expected outcomes?
Dissemination of Program Results – How do you plan to communicate program impacts
and results? Please be reminded that the current Reserve System Performance Measure

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Database provides you a method by which you can share your success stories and program
results with other reserves. In this section, we are also interested in knowing what other
mechanisms you have to disseminate your stories beyond the audience immediately involved
in the activities of the project. Are you planning to present at local, regional or national
conferences? If so, which ones? Do you have a newsletter? Do you use social media to
communicate? Will you publish results in a journal? If so, which ones?
Supporting Documents:
We recommend consultation of the following documents: 2011-2016 Reserve System Strategic
Plan, Climate Change Implementation Plan, System-wide Monitoring Program Plan, and
Reserve System Sentinel Sites Program Guidance, and Coastal Management Program Section
309 Assessment and Strategies. For your reference, all approved CTP Program Strategies can be
found on the Reserve System Intranet.

IV. Developing Reserve Program Niches
Assessing the information above allows
each program to develop their niche, the
intersection where the capabilities and activities
of the program are uniquely suited to meet the
needs of the target audience (Figure 5). This
information should be shared with all reserve
staff, ideally in a meeting where all programs
are present and can explain the information and
discuss how they can work together collectively.

Reserve Niche
The unique suite of functions
the reserve provides to meet
target audience needs that are
not met by others.

Where’s stewardship?
Due to the complexity and variability of how stewardship programs are focused and
operated at each reserve, this program has not been identified as system-wide program with
specific program niche questions as was done for research, education and coastal training.
Stewardship functions are captured within the research and monitoring, resource protection,
public access, and land acquisition components, as well as optional restoration and resource
manipulation components of a management plan. The skills and assets of the stewardship
staff are applicable and inter-related to all other components of reserve management. Figure
1, Relationship of Reserve Management Plan Components, illustrates how the functions of
stewardship are manifested in the planning paradigm. Reserves should answer questions for the
stewardship program similar to those for research and monitoring, education, and training.

What about other programs?
This guidance is only focusing on the system-wide programs for the reserve system. While
there are several other programs at the reserve that will contribute to this strategic planning
process, ERD is only providing thought questions for those programs with consistent

Reserve System Management Plan Guidelines and Resources

processes, protocols and evaluation mechanisms. It is highly advised that additional programs
come together and ask similar questions to determine program niche. The approach should be
appropriate and flexible for each reserve’s structure.

V. Developing the Reserve Niche
When each program understands their niche, the
reserve can synthesize these niches to develop the
niche of the reserve. The program’s combined
efforts meet the needs of a wider, complete
target audience. It is important to understand
the unique role the reserve will play in meeting
target audience needs as there may be several
providers offering similar products and services.
It is beneficial to either partner with other
organizations or focus unique skills and services
of the reserve to meet specific target audience
needs.

Figure 5. Organization Niche

Questions to inform niche development include:
What will the target audiences needs be in the
future? Which target audience needs can be
filled by other organizations? Based on program
strengths, which needs can the programs best meet? What are the unique products and services
the reserve offers that the target audiences cannot get elsewhere?

VI. Developing Shared Vision and Mission Statements & Goals, Objectives
and Actions
Once a shared organizational niche is determined, the reserve will develop a shared vision,
mission, goals, objectives and action s, culminating into the strategic plan. This is further
discussed in Part II in the Strategic Plan element.

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PART II: GUIDANCE
FOR RESERVE
MANAGEMENT
PLAN COMPONENTS
Part Two provides information for developing each component of a reserve management plan.
Each section provides guidance and supporting references, resources, and case studies to help
illustrate the content required for that component. Each section contains a checklist of required
and optional elements, questions to inform those elements, as well as resources and references to
support crafting the elements. An overall elements checklist is provided where optional elements
are indicated by ♦. This checklist is not meant to serve as a table of contents for the plan, but
may be used as such.
Organization of required components, and elements within components, may be ordered to
suit the reserve’s needs. All required elements must be included in the plan and follow a logical
progression so that they can be easily identified and understood. The questions provided in each
section are meant to be throught provoking. Some may be easy to answer within the plan, others
may prove more challenging. Reserves should address these questions to the best of their ability
and use them as a guide.
With regard to the program foundations component, elements within this component can be
organized in one chapter or within separate chapters for Research and Monitoring, Education,
and Training depending on how the reserve decides to organize the plan. With regard to the
strategic plan, it should be clear which sector is leading an action. It is suggested that each
objective be lead by a sector to coordinate multi-sector actions and evaluate progress.
Reserves may choose how they would like to organize information within the strategic plan and
program foundations element.

Reserve System Management Plan Guidelines and Resources

Required and Optional Elements Checklist
♦ indicates an optional element
Executive Summary
_Plan purpose and scope
_Reserve context
_Acreage
_Location of reserve
_Boundary modification (if applicable)
_ Priority coastal management issues
_Reserve niche and goals
_Reserve program descriptions
Introduction to Reserve System
_Mandatory Text
Introduction to the Reserve
_History and local management
_Ecological attributes
_Geomorphology
_Hydrology
_Climate and weather
_Key habitats and species
_Social attributes and values
_Population demographics
_Jobs and employment trends
_Ecosystem service valuation ♦
_Archaeological and cultural resources
_Archaeological sites
_Cultural sites or resources
_Value of resources
_Threats and Stressors
_Natural and anthropogenic stressors
_Climate phenomena and impacts
_Reserve sensitivity to impacts
_Reserve vulnerability ♦
_Boundary description
_Core and buffer rationale
_Boundary maps
_Core and buffer
_Land ownership
_Habitat types
_Land use type

_ Targeted watershed map including land use and
land cover
_ Boundary expansion rationale and GIS layers (if
applicable)
Reserve Strategic Plan
_Vision
_ Mission
_Priority coastal management issues
_Goals, objectives, and actions
_Performance measures for each objective ♦
Program Foundations
Research and Monitoring
_Mandatory system-wide text
_Program Context
_Program Capacities
_Program Delivery
_Needs and Opportunities
_Research related objectives and actions♦
_Monitoring and evaluation strategies♦
Education
_Mandatory system-wide text
_Program Context
_Program Capacities
_Program Delivery
_Needs and Opportunities
_Education related objectives and actions♦
_Monitoring and evaluation strategies♦
Training
_Mandatory system-wide text
_Program Context
_Program Capacities
_Program Delivery
_Needs and Opportunities
_Training related objectives and actions♦
_Monitoring and evaluation strategies♦

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Administrative Plan
_Organizational framework
_Current staffing and needs
_Strategic partnerships
_Advisory committees
_Administrative objectives and actions
_Volunteer plan ♦
_Vessel and vehicle plan ♦
_Communication plan ♦
Resource Protection Plan
_Management Authorities
_Allowable and unallowable uses
_Map of allowable uses
_Surveillance and enforcement capacities
_Resource protection challenges
_Resource protection objectives and actions♦
_Monitoring and evaluation strategies ♦
Public Access and Visitor Use Plan
_Current public access
_Map of public access points
_Public access challenges
_Public access and visitor experience
opportunities
_Public access objectives and actions♦
_Monitoring and evaluation strategies♦
Facility Development and Improvement Plan
_Purpose of facilities
_Current facilities
_Map of facility locations
_Facility challenges and gaps
_Planned facilities, facility upgrades, and
exhibits
_Climate and non-climate stressors
_Facility descriptions
_Operations and maintenance manual as
appendix ♦
_Long-term facility plan as appendix ♦

Land Acquisition Plan
_Reserve Acquisition Values
_Priority Acquisition Areas
_Description of acquisition areas
_Map of acquisition areas
_Prioritization process
_Climate and non-climate stressors
_Map of non-ecological acquisition values within
priority areas ♦
_Priority Areas Acquisition Strategy
_Tract acquisition strategy
_Tract ecological and/or programmatic values
_Preferred methods for establishing state control
_Fair market value estimates
_Potential acquisition partners
_Funding sources
_Estimated acquisition timeline
_Map detailing land uses on public and private tracts
outside the reserve boundaries ♦
_Management and/or stewardship considerations for
acquisition priorities ♦
_Description of collaborative process used in joint
acquisition projects ♦
Resource Manipulation Plan (if applicable)
_Current and proposed resource manipulation activities
_Map of manipulation activities
_Permitting/approval requirements
_Climate and non-climate stressors
_Current and potential partners
_Impacts of activities
_Monitoring and evaluation strategies ♦
Restoration Plan (if applicable)
_Priority restoration areas
_Description of restoration areas/habitats
_Map of restoration areas
_Climate and non-climate stressors
_Prioritization process and criteria
_Priority restoration projects
_Acres and outcomes
_Partners
_ Monitoring and evaluation strategies ♦

Reserve System Management Plan Guidelines and Resources

Executive Summary
About this Section
The executive summary should provide an overview of what readers will find in the plan,
identifying all elements per Federal Code of Regulations 15 CFR 921.13. It should define
the purpose and scope of the plan, describe reserve context, identify priority coastal zone
management issues the reserve will address, and provide an overview of the goals and
objectives, as well as indicate the programs employed to address the goals and objectives.

Plan Contents
I. Plan Purpose and Scope
This section should illustrate the purpose and
scope of the plan and provide the national and
local context for the plan. This section should
outline:
•The lifespan and geographic scope of the plan
•The priorities, general approach and how the
reserve will measure progress
•The intersection with state, regional and local
partner goals, plans and programs

II. Reserve Context
This section should describe reserve location and
administrative structure to provide a sense of
place and context for reserve work. This section
should outline:

Executive Summary
_Purpose and Scope
_Reserve Context
_Designation date and acreage
_State agency
_Location of reserve
_Boundary modification
(if applicable)
_Priority coastal management issues
_Reserve Niche
_Reserve Goals and Objectives
_Reserve Programs

• Reserve designation date, acreage, general location, and lead state agency
•Primary influences on the reserve (see Figure 3)
•Reserve’s role in addressing coastal management issues and context within system
•Expansion, if applicable, including acres added, where it will be added, value of the addition,
and the total acreage of the reserve after the boundary expansion

III. Coastal Management Issues and Reserve Goals
This section should outline the priority coastal management issues the reserve is addressing, as
well as identify the reserve’s niche, and goals.

IV. Reserve Programs
This section should provide a brief overview of reserve programs and how they will broadly
contribute and coordinate to achieve the goals. (See Figure 1, page 4)

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Introduction to the National Estuarine Research
Reserve System
About this Section
The following text should be included verbatim in the management plan to ensure that all
reserves are consistently describing the framework for the Reserve System. This section includes
information about the goals of the Reserve System, how reserves are designated and described,
and how they work administratively as single units and as a system.

Plan Contents
This section contains mandatory text which must be used verbatim in the plan to ensure a level
of consistency when discussing the Reserve System.
(Mandatory text begin)

Introduction to the National Estuarine Research Reserve System
The National Estuarine Reserve System was created by the Coastal Zone Management Act
of 1972, as amended, to augment the National Coastal Zone Management Program which is
dedicated to comprehensive, sustainable management of the nation’s coasts.
The Reserve System is a network of protected areas representative of the various biogeographic
regions and estuarine types in the United States. Reserves are established for long-term research,
education and interpretation to promote informed management of the Nation’s estuaries and
coastal habitats. (15 C.F.R. Part 921.1(a)) The Reserve System currently consists of 28 reserves in
23 states and territories, protecting over one million acres of estuarine lands and waters. (Figure
6) The Reserve System is a partnership program between the National Oceanic and Atmospheric
Administration (NOAA) and the coastal states. NOAA provides funding, national guidance
and technical assistance. The state partner manages reserve resources on daily basis working
collaboratively with local and regional partners.

Reserve System Management Plan Guidelines and Resources

Figure 6. National Estuarine Research Reserve System Map

National Estuarine Research Reserve System Strategic Goals
Estuaries are biologically rich, economically valuable, and highly vulnerable ecosystems. The
vision and mission of the Reserve System reflect the importance of these systems within our
communities.
Vision: Resilient estuaries and coastal watersheds where human and natural communities
thrive.
Mission: To practice and promote stewardship of coasts and estuaries through innovative
research, education, and training using a place-based system of protected areas.
The program goals, per Federal regulations 15 C.F.R. Part 921.1(b), outline five specific goals for
the Reserve System:
1.Ensure a stable environment for research through long-term protection of National
Estuarine Research Reserve resources;
2.Address coastal management issues identified as significant through coordinated estuarine
research within the System;
3.Enhance public awareness and understanding of estuarine areas and provide suitable
opportunities for public education and interpretation;
4.Promote Federal, state, public and private use of one or more Reserves within the System
when such entities conduct estuarine research; and

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5.Conduct and coordinate estuarine research within the System, gathering and making
available information necessary for improved understanding and management of estuarine
areas.
These foundational goals are complemented by those that are systematically set by the
program every five years. Strategic planning has been an integral part of the National Estuarine
Research Reserve System for nearly twenty years. The planning process is designed to bridge
national program direction with local coastal management needs through a representative and
participatory process that supports NOAA’s mission of science, service, and stewardship. The
2011-2016 Reserve System Strategic Plan focuses reserve core strengths of research, education,
and training on three core issues: climate change, habitat protection, and water quality. The
Reserve System Strategic Plan Goals are:
1.Protected Places: Estuaries and coastal watersheds are better protected and managed by
implementing place-based approaches at reserves.
2. Science: National Estuarine Research Reserve System scientific investigations improve
understanding and inform decisions affecting estuaries and coastal watersheds.
3. People: National Estuarine Research Reserve System education and training increases
participants’ environmental lit¬eracy and ability to make science-based decisions related to
estuaries and coastal watersheds.

Biogeographic Regions and Boundaries of the National Estuarine Research
Reserve System
NOAA has identified eleven distinct biogeographic regions and 29 subregions in the United
States, each of which contains several types of estuarine ecosystems (15 C.F.R. Part 921,
Appendix I and II). When complete, the Reserve System will contain examples of estuarine
hydrologic and biological types characteristic of each biogeographic region. As of 2012, the
Reserve System includes 28 reserves and two states in the process of designating a reserve.
Reserve boundary size will vary greatly depending on the nature of the ecosystem. Boundaries
must include an adequate portion of the key land and water areas of the natural system to
approximate an ecological unit and to ensure effective conservation. Reserve boundaries
encompass areas for which adequate state control has or will be established by the managing
entity over human activities occurring within the reserve. Reserve boundaries include a “core”
area which is comprised of key land and water encompassing resources representative of the
total ecosystem, which if compromised could endanger the research objectives of the reserve,
as well as a “buffer” area designed to protect the core area and provide additional protection for
estuarine-dependent species, including those that are rare or endangered. Buffer areas may also
include areas necessary for facilities required for research and interpretation. Additionally, buffer
areas are identified to accommodate a shift of the core area as a result of biological, ecological or
geo-morphological change which reasonably could be expected to occur. (15 C.F.R. Part 921.11
(c)(3))

Reserve System Management Plan Guidelines and Resources

National Estuarine Research Reserve Administrative Framework
The process for federal designation of a National Estuarine Research Reserve has many
steps and involves many individuals and organizations. While each reserve is a partnership
program between NOAA and a coastal state, there are many entities that collaborate to support
designation of a reserve. Other partners include federal and state agencies, non-profit groups,
universities and members of the local community. For more information on the designation
process see nerrs.noaa.gov/background.
Upon designation, the reserve implements the approved management plan and is eligible for
NOAA financial assistance on a cost-share basis with the state. A reserve may apply to NOAA’s
Estuarine Reserves Division for funds to help support implementation of the management
plan largely funding operations, research, monitoring, education/interpretation, training,
stewardship, development projects, facility construction, and land acquisition. Management
plans provide a vision and framework to guide reserve activities during a five year period and
enable the reserves and NOAA to track progress and realize opportunities for growth. Each
management plan contains the reserve goals, objectives, and strategies supported by programs
focused on research and monitoring, education and outreach, training, and stewardship. They
also outline administration, public access, land acquisition and facility plans and needs, as
well as restoration and resource manipulation plans, if applicable. Reserves are increasingly
confronted with complex questions regarding new uses in or near reserves that may or may
not be compatible with the Reserve System’s mission. A thoughtful and comprehensive
management plan provides a foundation for addressing these challenges to protect and manage
reserve resources wisely and ensure the public and coastal decision-makers value and protect
coastal resources.
The Estuarine Reserves Division of the Office of Ocean and Coastal Resource Management
(OCRM) administers the Reserve System. The Division establishes standards for designating
and operating reserves, provides support for reserve operations and system-wide programming,
undertakes projects that benefit the Reserve System, and integrates information from individual
reserves and programs to support decision-making at the national level. Additionally, OCRM
periodically evaluates reserves for compliance with Federal requirements and with the individual
reserve’s Federally-approved management plan, as mandated under Section 312 of the Coastal
Zone Management Act (15 C.F.R. Part 921.40).
The Estuarine Reserves Division currently provides support for four system-wide programs:
the System-Wide Monitoring Program, the K-12 Estuarine Education Program, the Graduate
Research Fellowship Program, and the Coastal Training Program. They also provide support
for initiatives focused on the Reserve System’s priorities: climate change, water quality and
habitat protection.
(Mandatory Text End)

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Introduction to the Reserve
About this Section
Estuaries are valuable to our
nation’s ecosystems, communities
and economies. Figure 7 illustrates
the three sectors of influence on
coastal resources and how their
intersections impact the state of
the coast. Reserves consider all
three of these sectors in their
efforts to protect coastal resources.
In an effort to provide context
for reserve strategic actions, it is
important to outline the geographic
and administrative context for the
reserve, and provide information
about reserve ecosystems (ecological
attributes) and reserve communities
and economies (social attributes and
cultural resources). It is important
Figure 7. State of the Coast
to understand the inextricable link
between natural resources and
humans as it greatly influences program management and decision making. By understanding the
human context, we can better understand relationships between humans and natural resources
and in turn use this information to develop appropriate education materials, research questions,
decision-making tools, etc. to improve coastal ecosystem management.
It will also be important to understand threats and stressors facing the reserves and how these
stressors may impact or alter these sectors and hence influence actions and decisions. It is
important to understand all of these aspects as they define the landscape of the reserve and the
basis for creating a meaningful management plan.
The purpose of this section is to provide:
• Overview of history of reserve designation and general administrative structure;
• General description of the reserve’s ecological and social attributes, and ecosystem values;
• Description of climate phenomena, impacts, exposure and adaptive capacities of
populations and ecosystems to the extent practicable; and
• Description of the reserve boundary, adjacent impacts, and expansion if applicable.
The description of the social setting should provide a general overview of key demographic
attributes including population; ocean and coastal related jobs, employment trends and gross

Reserve System Management Plan Guidelines and Resources

domestic product; hazards exposure. Other
key attributes important to consider could
be public health and ethnicity. It will be
advantageous to identify social trends and
projections and how these social attributes
may be affected by climate change. And
finally, the boundary description should
clearly delineate core and buffer areas,
habitats and land types, and ownership. All
required elements are detailed within the
plan contents section and data sources are
provided in the resources section on page 48.

Plan Contents
I. History and Local Management of
the Reserve
This section should describe the impetus for
and parties involved in the designation, as
well as brief overview of process undertaken
to designate and rationale for lands included
within the reserve. It should also describe
the lands identified for protected status and
if there were acquisitions made specifically
during the designation process. This section
should also include the general management
structure for the reserve, the state agency and
department responsible for management,
and land management partners.

II. Ecological Attributes and values
The description of the natural setting should
provide a general overview of the location
and extent of key physical and environmental
attributes of the reserve including geography,
geology, hydrology, biological resources,
climate, and weather. This information
should be a brief snapshot of the reserve’s
ecological characterization, site profile.
Geography and geology includes
general description of the topography
and geomorphology that creates the
unique reserve ecosystem, as well as
general geological setting, in addition to

Introduction to the Reserve
_History and local management
_Ecological attributes
_Geomorphology
_Hydrology
_Climate and weather
_Key habitats and species
_Social attributes and ecosystem values
_Population demographics
_Jobs and employment trends
_Value of ecosystem services ♦
_Archaeological and cultural resources
_Archaeological sites
_Cultural sites or resources
_Value of resources
_Threats and Stressors
_Natural and anthropogenic
_Climate phenomena and impacts
_Reserve sensitivity to impacts
_Reserve vulnerability ♦
_Boundary description
_Core and buffer rationale
_Boundary maps
_Core and buffer
_Land ownership
_Habitat types
_Land use type
_Targeted watershed map including
land use and type
_Boundary expansion rationale and
GIS layers (if applicable)

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classification. Hydrology within the watershed should be characterized by describing the average
tidal conditions the reserve experiences, the major inputs of fresh and salt water to the estuary,
and any water quality or quantity issues potentially affecting the reserve. The reserve’s climate
and weather should be characterized by describing the climate regime the estuary is situated
in, key weather patterns (e.g., El Niño, hurricanes) that may influence the reserve, and weather
trends the reserve experiences. Trends can be gathered from reserve SWMP data and may
include average annual minimum and maximum air temperature range and average annual rain
fall. The reserve’s biological resources should be characterized by describing the key habitats,
based on the Reserve System habitat classification scheme, within the reserve. A map should be
included that identifies the habitats within the reserve boundary, as well as targeted watershed if
possible. The most common animal and plant species in the reserve should be identified, as well
as key species of importance or concern, including those that may be endangered or threatened,
should be identified.

III. Social Attributes and Values
Understanding the social framework within the reserve and in areas adjacent to the reserve
will help to inform our ability to manage coastal resources and protect the reserve. A basic
understanding of the social framework within the reserve’s targeted watershed or defined
geographic area of interest should include a brief description of population demographics,
jobs and employment trends and social vulnerabilities, such as large populations of aged or
low income residents. Understanding that a socially vulnerable population will be vulnerable
no matter what the threat is an important factor to consider when framing issues and targeting
education materials. Population demographics can be characterized by population density, age,
gender, ethnicity, education level and housing information. Ocean and coastal related jobs can
be described by reviewing jobs by sector and job trends which are integrally related to gross
domestic product for the area.
Reserve natural resources provide a myriad of ecosystem services which have values both
market and non-market. Market values are the values of ocean and coastal resources directly
observed in the markets –employment in coastal industries. Coastal economies are measured
by establishment -place of business, wages, and GDP (National Ocean Economics Program,
2011). As example, we may look at fisheries and tourism as industries we can measure. Nonmarket values are those values not directly observed in the market (e.g. clean water and healthy
fish populations). The only option for assigning dollar values to them is to rely on non-market
valuation methods. (King, et.al, 2000) It is important to quantify these ecosystem values where
we can. The reserves provide high biodiversity, scenic beauty, and recreational opportunities, all
of which contribute tremendous economic value to society and are worthy of protection. Many
of the tools to assess non-market values are highly technical. Try to use available resources, like
the data provided by the National Ocean Economics Program and state studies, to describe these
values relative to your reserve.

IV. Archaeological and Cultural Resources
In addition to biological and social resources, the reserve may contain archaeological, cultural and
historical resources that provide information and research opportunities about past settlements.
These resources provide a sense of place and historical context and should be identified and

Reserve System Management Plan Guidelines and Resources

preserved as much as possible. It will be important to collaborate with the state archaeologist or
State Historic Preservation Office, and state maritime archaeologist if one exists.
This section should provide a brief overview and description for the archaeological and cultural
resources within the reserve, including the value and general location of these resources. If an
evaluation of these resources has been done, please include information about priority sites and
any efforts to protect them.

V. Threats and Stressors
While reserves were designated under the premise that they are relatively pristine, representative
estuarine ecosystems, they are and will likely be increasingly exposed to human and
environmental stressors that must be understood in order to manage and adapt to changing
conditions. This section should describe the priority stressors on the reserve.

A. Natural and Anthropogenic Stressors
There are natural and anthropogenic threats and stressors affecting all reserve environments.
Each reserve is subject to different stressors depending on their geographic location and
juxtaposition to urban and rural communities, as well as exposure to weather and climate
related hazards. This section should address threats to both biological and social resources
within and adjacent to the reserve. Threats such as sedimentation, nonpoint source pollution,
invasive species, population growth, episodic storm events, flood exposure, etc. all provide
unique challenges and should be described thoroughly to provide background and impetus for
the focus of the reserve’s strategic plan.

B. Climate Change Phenomena and Impacts
Coastal societies and ecosystems are dependent upon unique resources and subject to
unique hazards that inland landscapes may not be exposed to and hence understanding these
dependencies and threats is imperative for proper management. Climate change has and will
exacerbate existing stressors and create a domino of effects within natural and social systems.
This section should provide an overview of the expected climate change phenomena and
impacts the reserve will face, as well as an overview of results from efforts that have been made
to understand the current and projected impacts of climate change on the natural and social
landscape of the reserve. For general information on climate phenomena and expected changes
and impacts, please see Appendix 6 Summary of Climate Change Phenomena with Observed
and Projected Changes and Appendix 7 Summary of Observed and Projected Regional
Climate-related Changes.
Reserves should use available data, see Resources section below, to support this section, and are
encouraged to mine local data and information sources to further augment this description. Per
the resources below, reserves should describe flood exposure and assess impacts to human and
ecological communities, as well as infrastructure within the flood zone. Reserves should assess
land cover changes, and associated flood exposure, within the floodplain, as well as the risk and
impacts of natural disasters on reserve resources.

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C. Reserve Sensitivity and Vulnerability to
Climate Change

Not considering climate change in
As we try to understand and plan for the impacts
management is akin to traveling in
of climate change on natural resources and
unknown territory without a mapcommunities, it is important to be aware of the
one is not likely to arrive at the
general sensitivity, exposure and adaptive capacity
desired destination. --Scanning
of our natural resources and the communities
the Conservation Horizon
that depend on them. The Intergovernmental
Panel on Climate Change defines vulnerability
as a function of the sensitivity of a system to
climate changes, its exposure to those changes,
and its capacity to adapt to those changes. (IPCC, 2007) Understanding the risks to populations
and ecosystems provides important information for crafting effective conservation strategies
to protect coastal resources. By understanding general ecosystem vulnerability, reserves can
make better decisions on appropriate adaptation approaches: a) build resistance to stressors,
i.e. ecosystems can withstand disturbance b) enhance resilience, i.e. ecosystems can recover
from disturbance without significant loss of function or c) anticipate and facilitate ecological
transitions.
The Reserve System Climate Change Implementation Plan (CCIP) objective ‘NERRS assess
community and ecological sensitivity and vulnerability to climate change’ sets a course for over
half of the reserves in the System to understand vulnerability assessment methods by 2015 and
hopefully be able to apply those to assess the ecological and social vulnerabilities of reserve
ecosystems and communities. Additionally, a study is currently underway to assess the relative
sensitivity of ecological and social attributes to climate change stressors which will serve as a
basis for in-depth vulnerability assessments and provide an understanding for how to blend
social and ecological data.
1. Ecological and Social Sensitivity
If reserves have not conducted a comprehensive vulnerability assessment of ecosystems
and communities, existing data and information that describes natural resource sensitivity
and exposure within the reserve should be included. The Reserve System’s National Climate
Sensitivity Analysis should be a resource for this data. The Climate Sensitivity Analysis project
is analyzing existing SWMP and national census data to determine relative reserve ecosystem
and social sensitivity to climate change stressors across the Reserve System. A final report will
be late fall.
From an ecological perspective, SWMP variables in the climate sensitivity analysis are being
analyzed to determine their relative response to climate stressors such as precipitation and sea
level rise. SWMP data in this report cover the years 1995-2011 for most reserves and indicate
that there is temporal and spatial variability across the country in how different reserves
respond to climate stressors such as precipitation. This report can help reserves understand how
sensitive their reserve is to climate stressors relative to other reserves in the region and country.

Reserve System Management Plan Guidelines and Resources

From a social perspective, a modified Social Vulnerability Index (SOVI) will be used to
determine relative sensitivity of reserves to climate impacts based on the geographic area of
interest defined by each reserve. The University of South Carolina Hazards and Vulnerability
Research Institute created a Social Vulnerability Index (SOVI) which finds that social
vulnerability to hazards, including climate change, can be explained by approximately nine
significant components including socioeconomic status, elderly and children, rural agriculture,
housing density, black female-headed households, gender, service industry employment,
unemployed Native Americans, and infrastructure employment. (Cutter, 2006) Social
attributes linked to hazards can provide an understanding of potential social vulnerabilities.
Understanding dependent or at risk populations within and surrounding reserves such as the
very young or old, those dependent on marine economies, those dependent on weather-based
economies, etc. foster understanding of community sensitivity and ultimately vulnerability. By
better understanding these attributes and trends, reserves can develop targeted research and
education activities to promote resilient natural resources and communities.
For general information on reserve sensitivity, please refer to Appendix 8 National Estuarine
Research Reserve System Climate Sensitivity Analysis. If feasible, provide information on focus
areas for the reserve and potential for adaptation.
2. Reserve Vulnerability
For those reserves that have completed and/or will complete a vulnerability assessment prior
to the revision of their management plan, include a summary of the assessment. Reserves with
the capacity to do so are encouraged to conduct a vulnerability assessment prior to updating the
management plan, as it will affect the scope and scale of research, education and stewardship
activities. For more information about the general process for conducting a vulnerability
assessment, please see Appendix 9 Conducting a Reserve Vulnerability Assessment. If a
vulnerability assessment cannot be done prior to revising the management plan, it is advisable
to incorporate these efforts into the plan objectives and strategies. These efforts will provide
valuable information for applying adaptive management principles.

VI. Reserve Boundary
This section should describe the reserve in the context of the state, region, and watershed.
The reserve should identify the type of estuary it is (e.g. coastal plain, bar-built, deltaic system,
tectonic, fjord) and the major physical attributes that define the reserve.

A. Core and Buffer
The boundary should be clearly defined and a description of how core and buffer areas were
determined should be included. Adequate control, by the managing entity (ies), over human
activities occurring within all areas of the reserve boundary must be established. (15 CFR
921.11 (c)(3))Reserve boundaries will encompass two areas: key land and water or core zone,
and a buffer zone. These different areas will likely require differing levels of control.
Core designated areas must be “vital to the functioning of the estuarine ecosystem that it
must be under a level of control sufficient to ensure the long-term viability of the reserve

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for research on natural processes.” Key
land and water areas, which comprise the
core area, are those ecological units of a
natural estuarine system which preserve,
for research purposes, a full range of
significant physical, chemical and biological
factors contributing to the diversity of
fauna, flora and natural processes occurring
within the estuary. The determination
of which land and water areas are ``key’’
to a particular reserve must be based on
specific scientific knowledge of the area.
A basic principle to follow when deciding
upon key land and water areas is that they
should encompass resources representative
of the total ecosystem, and which if
Figure 8. North Inlet-Winyah Bay Core
compromised could endanger the research
and Buffer
objectives of the Reserve. Buffer zones
protect the core area and provide additional
protection for estuarine-dependent species, including those that are rare or endangered. When
determined appropriate by the state and approved by NOAA, the buffer zone may also include
an area necessary for facilities required for research and interpretation. Additionally, buffer zones
should be established sufficient to accommodate a shift of the core area as a result of biological,
ecological or geomorphologic change which reasonably could be expected to occur.
In order to objectively and systematically delineate these areas ‘within’ reserve boundaries, the
step-wise review of the data layers was derived by a NERRS workgroup and may help reserves
define these areas. These areas may shift over time and should be reviewed and validated as
appropriate and when reserves will be adding land to the boundary.
1)Habitat types that comprise the “estuarine system” (core) versus “non-estuarine system”
(buffer).
2)Levels/types of control/protection status. For example, those areas with state and federal
protection, preserve or refuge, would provide higher level of protection which should be
afforded in core areas.
3)Public trust areas.
4)Potential areas of impact from climate change to help understand potential shifts of core
and subsequently, buffer.

B. Land Ownership and Type
Land ownership and land use type should be described for all areas within the boundary. The
number of acres should be attributed to each land owner. Federal lands already in protected
status may not comprise a majority of the key land and water areas of a reserve, per 15 CFR
921.1(g). Land use adjacent to the reserve should also be identified with description of potential
impacts and challenges. A map should be included that identifies land ownership within and
adjacent to the reserve boundary.

Reserve System Management Plan Guidelines and Resources

C. Boundary Modifications
If a reserve plans to expand the boundary, they should propose to do so at the time of their
management plan revision. While a boundary can be expanded outside of this process, it is not
recommended unless circumstances necessitate this.
Reserves may expand their boundary to include those lands and/or waters that are necessary
to protect the ecological units of the natural estuarine system for research purposes. Areas
adjacent to these key land/waters that are essential to maintain the integrity of the ecological
unit may also be incorporated into the boundary. An important consideration is the potential
for habitat migration due to climate change. The lands/waters identified for inclusion in the
boundary must either be contiguous to the original boundary or the plan must demonstrate
how these areas are necessary for reserve research and/or education programs. Additions
should not be proposed for inclusion until they meet the criteria below:
1)Boundary should encompass an adequate portion of the key land and water areas of the
natural system to approximate an ecological unit
2)Adequate state control of the site(s) must be established
3)Site should be suitable for long-term research and be important for education and
interpretive efforts.
It is also desirable if climate change factors are assessed and integrated into boundary
modification decisions to consider potential habitat and species migrations.
The reserve must include the following if proposing to modify the boundary:
○○ Describe the proposed lands to be added or deleted by defining the location,
acres, habitats, and existing uses. State the total acreage of the new boundary, after
explaining why lands and/or waters are proposed for addition or deletion.
○○ Provide a map depicting original boundary and new (expansion or contraction)
boundary
○○ Provide a brief history of the additional lands (if expanding)
○○ Provide the rationale for expansion – the benefits these lands and/or waters provide
to the reserve from an ecological and/or programmatic perspective.
○○ Depict core and buffer on the new boundary map
○○ Identify land ownership and type on the new boundary map
○○ Identify how lands will be managed and the responsible parties for management
○○ Identify how lands will be used, e.g. value to program efforts, public access, etc.
Additionally, an MOU must be drafted between the state agency and the with land managing
partners if different from the state agency to affirm that the lands will be managed in
accordance with Reserve System regulations. The MOU must be included as part of the
management plan revision in an appendix.
Please note that GIS layers for boundary additions should be submitted to ERD so that
Coastal Change Analysis Program data can be updated.

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References
Cutter, S.L. (2006) Social Vulnerability to Environmental Hazards. Hazards and Vulnerability
Research Institute of University of South Carolina. Accessed from http://webra.cas.sc.edu/
hvri/products/sovi.aspx
Glick, P., B.A. Stein, and N.A. Edelson, editors (2011) Scanning the Conservation Horizon: A
Guide to Climate Change Vulnerability Assessment. National Wildlife Federation, Washington,
D.C. Accessed from www.nwf.org/vulnerabilityguide
Intergovernmental Panel on Climate Change (2007) Climate Change 2007: Impacts, Adaptation
and Vulnerability. Contribution of Working Group II to the Fourth Assessment Report of the
Intergovernmental Panel on Climate Change. M.L. Parry, O.F. Canziani, J.P. Palutikof, P.J van der
Linden, and C.E. Hanson (eds.) Cambridge University Press, Cambridge, UK. Accessed from
www.ipcc.ch/
Karl, T.R., J.M. Melillo, and T.C. Peterson, eds. (2009) Global Climate Change Impacts in the
Unites States. A State of the Knowledge Report from the U.S. Global Change Research Program.
Cambridge University Press. Accessed from www.globalchange.gov/publications/reports/
scientific-assessments/us-impacts
King, D.M., Mazzotta, M.J., (2000) Ecosystem Valuation, Supported by U.S. Department
of Agriculture National Resource Conservation Service and NOAA, Accessed from
ecosystemvaluation.org
National Ocean Economics Program (2011) Market and Non-Market Overview, Accessed from
oceaneconomics.org
National Center for Coastal Ocean Science (2011) Experts Evaluate “Indicators of Well-being”
Needed to Monitor Communities Impacted by the Deepwater Horizon Disaster. Posted on
March 18, 2011. http://coastalscience.noaa.gov/news/?p=1615

Reserve System Management Plan Guidelines and Resources

Resources
Natural Data Sources
Benthic Cover Data provides nearshore benthic habitat polygons derived from aerial optic or
swath acoustic imagery as part of NOAA’s Digital Coast.
Coastal Change Analysis Program (C-CAP) data is a source of coastal land cover and change
information, including inventories of intertidal areas, wetlands, and adjacent uplands, for use in GIS.
Also see the C-CAP Land Cover Atlas to explore the data on-line and print summary data sheets.
Coastal LIDAR provides data sets contributed by many different entities and groups,
distributed in user-specified formats, resolutions, and datums as part of NOAA’s Digital Coast.
Also see the Topobathy Data Inventory to see where high-resolution elevation data is available
for coastal and marine areas.
Geospatial One Stop provides geospatial data from several federal agencies applicable to
understanding coastal biophysical landscapes.
National Estuarine Research Reserve Site Profiles characterize the environmental features,
habitat types, species distribution, biological communities and current research available as well
as research gaps for each reserve.
National Estuarine Research Reserve Climate Sensitivity Analysis Project characterizes the
biophysical and social sensitivity of reserves to climate change (TBD November 2012)
Social Data Sources
There are several existing sources of information that provide socio-demographic information
for Reserve targeted watersheds. While the targeted watersheds may not include all of the
human communities that relate to and/or impact the reserve, they provide a standard database
of information for reserves. Additional site specific data is encouraged to complete a picture of
the socio-demographic landscape appropriate for each reserve.
NOAA’s Spatial Trends in Coastal Socioeconomics (STICS) Web site holds a plethora of
information to assist you in describing the social and economic landscape within reserve targeted
watersheds. The Web site contains demographic information from the U.S. Census Bureau,
personal income and employment from the Bureau of Economic Analysis, demographic
projections developed by Woods and Poole Economics, Inc., and marine recreation from the
National Survey on Recreation in the Environment. The Quick Report Tool on the STICs
Website offers a map-based interface to quickly determine estimates of demographic and
economic characteristics, many of which are clipped to the reserve targeted watersheds. STICs
offers:
Census data is available by state coastal zone boundary and includes population, population
density, race, sex, age and household information. You can also clip this data by zip code.

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Bureau of Economic Analysis data is available for NERRS targeted watersheds and includes
population, personal income, per capital personal income and earnings by industry.
Woods and Poole Economics, Inc. data is available for NERRS targeted watersheds and includes
projections to 2040 for population, population density, race, sex, total employment and earnings,
personal income, household income and total food service and retail sales.
National Ocean Economics Program coastal economy data is available for NERRS targeted
watersheds and includes number and types of industries, numbers employed per industry, wages
per industry, Gross Domestic product per industry.
NOAA’s Economics: National Ocean Watch describes six economic sectors that depend on the
oceans and Great Lakes including living resources, marine construction, marine transportation,
offshore mineral resources, ship and boat building, tourism and recreation. Annual time series
data are available for 448 coastal counties, 30 coastal states, and the nation, derived from the
Bureau of Labor Statistics and the Bureau of Economic Analysis. The economic indicators
include establishments, employment, wages, and GDP. Also see the ENOW Explorer for easy
on-line exploration of the data.
NOAA’s Coastal County Snapshots turns complex data into easy-to-understand stories and
includes charts and graphs to illustrate relationships. The data is organized by coastal state
and county and provides information on flood exposure including county demographics,
infrastructure, and environment within the flood zone; ocean jobs including economic value
of jobs depending on ocean and Great Lakes resources; and wetland benefits such as how they
contribute to safer, cleaner, and more productive coastal communities.
NOAA’s State of the Coast Web site provides quick facts and detailed statistics through
interactive visualizations that highlight what we know about coastal communities, ecosystems,
and economies, as well as how climate change might impact the coast. Information about
communities includes populations living in coastal watershed counties from 1970 projected
to 2030 and water uses and sources in coastal counties for each state from 1985-2005. Coastal
economy data includes coastal gross domestic product from 1999-2010 state recreation fishing
data from 1981-2009 and commercial fishing data from 1950-2010, information on the top
150 ports, and energy production estimates from 1960-2009. This site also includes ecosystem
statistics on coastal ecosystem health, invasive species, nutrient pollution, contaminants
and wetlands, as well as information on climate vulnerability. There is an index for coastal
vulnerability to sea-level rise; populations in the 100 year flood zone for 2000-2020, including
those at elevated risk such as the aged and impoverished; and 2010 federally insured assets.
Social Vulnerability Index for the United States was developed by the Hazards and Vulnerability
Research Institute at the University of South Carolina and synthesizes 32 socioeconomic
variables, which the research literature suggests contribute to reduction in a community’s ability
to prepare for, respond to, and recover from hazards. The data were culled from national data
sources, primarily those from the United States Census Bureau. Scores for variables identify
visually those counties most and least vulnerable. The numerical social vulnerability score
contends that 9 significant components explain 76% of the variance in the data. Among them

Reserve System Management Plan Guidelines and Resources

are socioeconomic status, elderly and children, rural agriculture, housing density, black femaleheaded households, gender, service industry employment, unemployed Native Americans, and
infrastructure employment.
National Estuarine Research Reserve Sensitivity Analysis Data (TBD)

Climate Data Sources
Climate Wizard provides a user friendly way to access leading climate change information and
visualize the impacts anywhere on Earth. The user can choose a state or country and can assess
how climate has changed over time and project what future changes are predicted to occur in
a given area. You can view historic temperature and rainfall maps, view future predictions of
temperature and rainfall, and download climate maps.
Ecoclim is a series of almost 10,000 future climate surfaces downscaled to 10km2 resolution
for the terrestrial surface of Earth. Ecoclim data are available either globally or clipped to seven
major zoogeographic regions –so very broad scale, but perhaps useful for big picture overview.
Another tool that does not operate on a GIS platform, but Web interface, is Climate Wizard.
NOAA’s Sea Level Rise and Coastal Flooding Impacts Viewer tool shows how various levels
of sea level rise will impact coastal communities. The current project areas include Mississippi,
Alabama, and parts of Texas and Florida, with additional coastal counties to be added in the
near future. Visuals and the accompanying data and information cover sea level rise inundation,
uncertainty, flood frequency, marsh impacts, and socioeconomics.
PRISM climate mapping system PRISM (Parameter-elevation Regressions on Independent
Slopes Model) is a unique knowledge-based system that uses point measurements of
precipitation, temperature, and other climatic factors to produce continuous, digital grid
estimates of monthly, yearly, and event-based climatic parameters. PRISM data sets are
recognized world-wide as the highest-quality spatial climate data sets currently available.
Sea Level Rise Affecting Marshes Model simulates the dominant processes involved in wetland
conversions and shoreline modifications during long-term sea level rise. It is a complex decision
tree incorporating geometric and qualitative relationships is used to represent transfers among
coastal classes. The process accounts for inundations, erosion, overwash, saturation, and
accretion. It is applied to 26 land categories derived from the National Wetlands inventory and
covers a span from dry land to open water. Model incorporates IPCC projections as well as fixed
rates of sea level rise to create sea level rise scenarios.
U.S. Global Change Research Program provides regional and sectoral climate change
information and data, as well as a resource library for better understanding of climate science
and climate impacts.
WorldClim is a set of global climate layers (climate grids), including past observed data, past
modeled data, and future modeled data with a spatial resolution of a square kilometer. They can
be used for mapping and spatial modeling in a GIS or other computer programs.

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The Strategic Plan: Adaptive Management through
Issue Based Planning
About this Section
Per the Federal Code of Regulations 15 CFR 921.13 (a)(1), management plans are required to
identify management issues, reserve goals and objectives, and actions for meeting the goals and
objectives. These items should be embodied in the strategic plan element of the management
plan. The strategic plan will provide direction and structure for the reserve to take cohesive
action towards meeting objectives over the next five years. This section outlines the elements of
the strategic plan; these include vision, mission, coastal management issues, goals, objectives, and
actions. There should be a clear link between the issues outlined and the goals and objectives
created to address them. The objectives will form the basis for evaluation of progress and
success, and the actions will inform how the plan is implemented. Examples, resources, and case
studies are provided to support the reserve strategic planning process. Part I of the Management
Plan Guidelines provides direction and advice on a process for developing many of the elements
within the strategic plan, please refer to Part I prior to crafting the strategic plan.

Plan Contents
I. Reserve Vision
The reserve vision statement is the overarching description of what the reserve would like to
achieve or accomplish. Vision statements should be forward looking and reflect how the reserve
wants to be distinguished.
Example: Vibrant estuaries cherished by their communities –San Francisco Bay Reserve

II. Reserve Mission
The reserve mission statement should describe
the reserve’s core purpose and focus, the reserve’s
reason for existence. This is a short static statement
written in the present tense that describes the
organizations unique contributions.
Example: To provide a basis for informed
stewardship of estuaries in Southwest Florida
through research and education – Rookery Bay
Reserve

III. Reserve Coastal Management Issues
Part I of this document provides guidance on
identifying and selecting reserve priority issues,
and Part II provides important information about
stressors on the reserve to consider as described
in the ‘Introduction to the Reserve.’ This section
should be a succinct culmination and prioritization

Strategic Plan
_Vision
_ Mission
_Priority coastal management
issues
_Reserve goals, objectives,
actions
_Performance measures for
each objective ♦

Reserve System Management Plan Guidelines and Resources

of issues for the reserve. The most pressing and pertinent coastal management issues facing
the reserve need to be identified in order to develop relevant goals and meaningful objectives.
Reserve issues should be included that relate to one of the issue areas identified in the 20112016 Reserve System Strategic Plan. There are many ways to arrive at determining the primary
challenges including research findings, needs assessments, focus groups, surveys, etc. All reserve
staff should be involved in the process to engage stakeholders and identify the most pressing
issues the reserve will address.

IV. Creating Relevant Goals
A goal is a broad statement of what the organization plans to do and/or enable in the future.
Goals should advance the mission of the program. They may be written for a five year time
frame or longer, but ultimately, they should be written so that significant progress toward
meeting them can be achieved. During a plan revision, it may be common for goals to remain
the same, but objectives and actions to change given the amount and type of progress made
towards that goal.
Goals should be written to address the most pressing coastal management issues, be based
on the reserve niche, and be supported by the program. A manageable number of goals,
approximately 3-6, should be written to capture the breadth and depth of the reserve’s niche.
Part I of this document encourages and integrated strategic planning process whereby multiple
programs contribute to the development and achievement of goals. Hence, all reserve programs
should contribute their skills and expertise to developing and accomplishing reserve goals.
Tips for Writing Goals
○○ Goals describe a desired future state that the organization attempts to realize.
○○ Goals should reflect conditions that can be changed and addressed via programs.
○○ Goals should be directional and leave room for continual improvement. Use words
that identify improvement –increase, improve, reduce, etc.
Example Goal Statements
○○ Reduce the impact of watershed land use on reserve resources
○○ Improve natural biodiversity within the reserve
○○ Reduce the impact of invasive species and habitat loss on reserve biodiversity

V. Creating Meaningful Objectives
An objective is a specific statement of expected results that contribute to the goal(s). Objectives
establish the standards of achievement in terms of some measure of improvement in existing
condition. Reserves should strive to create SMART objectives: specific, measurable, attainable,
relevant and time-bound. They should be results oriented and reflect the desired changes in the
target audience, resource, or organization. These statements are the most important statements
in strategic planning and focus should be placed first on ensuring they are attainable and
measurable within the time period of the plan. Objectives are the measuring stick towards the
goals; the reserve should be able to quantitatively measure progress based on these statements

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which can then be communicated to stakeholders and leadership. Writing good objectives takes
judgment and skill; and devoting the necessary time and effort pays off in better planning,
better results, and effective evaluation of progress. Each goal may have several objective
statements. While objectives will likely require several skill sets, or sector skills, to accomplish,
it is advisable that one sector take leadership for each objective, ensuring the coordination of
integrated, multi-sector actions and evaluation of progress. It is at this level, where adaptive
management becomes important to implement. Certain actions may not be yielding the desired
result and may need to be tweaked. As understanding of an issue increases, more appropriate
strategies may need to be employed. It will be important for the objective lead to understand if
the actions are effective or alternatives are required. Hence, it is suggested that objectives have a
designated sector lead to track progress.
Tips for Writing SMART Objectives
○○ “Specific” means using strong action verbs to focus on what you want to do.
Statements reflect clearly “what” needs to done, “why” it’s important, “who” is doing
it, and “when” it will be done.
○○ “Measurable” means ensuring that there is a quantitative way to measure the change
the reserve wants to realize.
○○ “Attainable” means that they need to stretch the organization, but not so far that
people lose motivation. They should be realized within the five year period of plan.
○○ “Realistic” means having the appropriate resources including the right people with
the right skills, money, equipment, and capacity.
○○ “Time-bound” means they should create motivation and urgency to accomplish them
within the five year period of the plan.
Example Objective Statements

Who/What
Who/What
Target
Target

Change
Change
Action Verb

Action Verb

In What
Expected
In What
Expected
results
results

By
By When
When
Time Frame

Local community
planners

improve

their capacity to write climate change
adaptation plans

within 1 year

Watershed
management
plans

are
developed to
improve

coordinated conservation strategies
focused on sustainable ecosystems

by 2013

Unauthorized
activities

are reduced

on the trail system to promote safe
user experiences

by 2014

Reserve System Management Plan Guidelines and Resources

VI. Creating Clear Actions
Actions should support achievement of the objectives. An action statement explains “how”
an objective will be met. Actions may be undertaken by one or multiple sectors, but should be
coordinated by the objective lead, so that as new information arises about the impacts of the
actions, management decisions can be adjusted or maintained. Sector leads for each action should
be indicated. Adaptive management focuses on learning and adapting, through partnerships
between reserve staff, resource managers, coastal decision-makers and stakeholders, who learn
together how to create and maintain sustainable resource systems. It is more than monitoring
activities and changing direction when failure arises. When developing actions, several alternatives
should be explored, the outcomes of these alternatives should be predicted based on the current
state of knowledge and then using professional judgment, those actions that are predicted to be
the most effective should be written into the plan. During the course of the plan, evaluation of
results should be ongoing to adapt when necessary.
Tips for Writing Actions
○○ Actions describe how you work and what you are working on
○○ Actions describe collaborations and mechanisms for achieving work products
Example Action Statements
○○ Provide training to community planners on understanding vulnerability and developing
adaptation plans focused on protecting resources within the reserve targeted
watershed.
○○ Partner with land owners within the reserve to identify existing conservation strategies,
their compatibility with one another, and options for improvement
○○ Coordinate with county land partners to place signs in high traffic areas of the trail
system to increase public awareness of authorized activities

VII. Developing Practical Performance
Measures
Performance measures track if and how well a
program is meeting its objectives and ultimately
its mission. They provide data on trends and can
inform future plans, policy and program budgeting.
They provide a quantitative means to communicate
those trends and progress toward objectives to key
audiences. In addition to the Reserve System national
performance measures developed to track Reserve
System progress, reserves are encouraged to develop
site specific performance measures and targets for
reserve objectives will help quantify progress and
facilitate communicating success to key stakeholders.

“ If you can’t measure it, you
can’t manage it.” –Kaplan

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At least three measures that relate to high priority management plan objectives should be
identified, per guidance from the National Policy and Evaluation Division(NPED). If during
a management plan revision, goals and objectives on which the measures and targets are based
were deleted or significantly changed; or if it was no longer possible to collect any data at all
for some extenuating circumstance, then NPED, ERD, and the reserve will work to identify a
new measure and target. During an evaluation, NPED will still look at the original measure and
target and also at the status of the new measure and target.
While the above measures are the only ones required, it is advisable that performance measures
and associated targets are established for as many objectives as possible. Performance measures
should help the reserve understand the key benefits of their activities to specific audiences and
should illustrate why the programs matter and to whom. It is important to have a baseline, set
targets, and identify the unit of measurement and how it will be counted. If baseline data isn’t
available, it may be more appropriate to collect data for a baseline than establish measures, so
that measures can be created in the future.
Example performance measures:
Objective:
Local
community
planners will
improve their
capacity to write
climate change
adaptation plans
by 2017.

Strategy:
The Reserve’s
Coastal Training
Program will
develop targeted
workshops
promoting the
understanding
and use of climate
change science
and monitoring,
including
information
gained from the
Reserve sentinel
site monitoring, to
inform adaptation
activities.

Performance
Measure: Number
of new targeted
workshops that build
coastal decisionmaker capacity and
promote the use of
recent research results
that address climate
change impacts and
adaptation alternatives.
Performance Measure:
Number of new
targeted workshops
that build coastal
decision-maker capacity
and promote the use of
recent research results
that address climate
change impacts and
adaptation alternatives.

Target:
Ten workshops
focused on building
coastal decisionmaker capacity to
use and apply climate
data and information
to develop adaptation
alternatives.

Reserve System Management Plan Guidelines and Resources

Resources
Program Development and Evaluation: Provides knowledge, skills and tools to design and
implement projects that have measurable impacts on a target audience. Tools include models
that provide situational analysis, priority setting, program action – the logic model – and
evaluation.
http://www.csc.noaa.gov/training/ and
www.uwex.edu/ces/pdande/evaluation/evallogicmodel.html and
www.uwex.edu/ces/pdande/progdev/index.html
NOAA’s Conducting Needs Assessments Course: Provides and on-line self-guided course
offering an introduction to needs assessments and how to conduct one.
NOAA’s Meaningful Evaluation Course: Provides an understanding of all elements of program
and project evaluation so programs can develop evaluation plans.
NOAA’s Focus Groups, Facilitation, and Engagement Publication: Provides information on
conducting focus groups, facilitating effective meetings, survey design and delivery, preparing to
write your strategic plan, stakeholder engagement, understanding risk behavior, and resiliency
planning.
NOAA’s Preparing to Write Your Strategic Plan Publication: Provides a multi-step process to
systematically assess the direction and priorities of an organization, as well as tools and job
aids for assessing target populations, performing SWOT assessments, developing niche, and
identifying program outcomes.
All About Strategic Planning: Provides information, guidance, and tools about the benefits and
process of strategic planning.
Strategic Planning in the Public Sector: Provides information and examples of process and
approaches to strategic planning.
Stakeholder Involvement: Environmental Protection Agency provides information on
stakeholder involvement evaluation and research including lessons learned, barriers and
innovative approaches to stakeholder involvement.
Perspectives on Strategic Planning in Public Sector: Report on strategic planning approaches,
philosophies and processes to achieve desired results.
Mind Tools, Ltd.: Provides information about how to undertake a SWOT analysis, discover
new opportunities, as well as manage and/or eliminate threats. Mind Tools also provides
information about strategy tools, project management, problem-solving, team management and
communication skills.
Structured Decision-making: Provides an organized approach to identifying and evaluating
creative options and making choices in complex decision situations.

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Reserve System Program Foundations
About this Section
Each reserve contributes to Reserve System-wide programs and priorities, as well as defines
local programs and priorities to address site specific needs and issues. It is important to
understand the key elements of system-wide program that contributes to national and local
efforts. These efforts are captured in the reserve’s strategic plan goals and objectives, and these
programs support the achievement of the goals and objectives. Because ERD is encouraging
an integrated approach to the strategic plan portion of the management plan (i.e. issue-based
goals), this means that each program may be leading several objectives to support each goal.
This section provides a standard format for describing the system-wide and local efforts for
each system-wide program, including mandatory text covering system-wide efforts and key
questions to organize information on program context, capacity, delivery, needs, opportunities
as well as the objectives and strategies from the strategic plan led by that program. Part I
‘Preparing to Write a Strategic Plan’ section two ‘Assessing Skills and Capacities of Reserve
Programs’ discusses how reserves may conduct program SWOT analysis. Information within
each program category- context, capacity, delivery, needs and opportunities- should be readily
available if the programs undertake a SWOT analysis. Reserves should respond to all of the
questions below to the best of their ability given the unique stage and nature of their reserve.
This information should provide readers a clear picture of program capacities and focus, as well
as how the program is supporting achievement of reserve goals and objectives. Together they
create a complete picture for how the system works nationally and locally.
While stewardship is a sector program at many reserves and there are national efforts to support
stewardship functions, this section concentrates on those sectors with system-wide programs.
Foundational capacities for stewardship vary across sites and will be captured within research
and monitoring, as well as the resource protection, land acquisition, public access and visitor use
components, and if applicable, the restoration and/or resource manipulation components.
Each program description can be organized in separate chapters or be culminated into a single
“Program Foundations” chapter. If reserves choose to create a sector based strategic plan (i.e. sector
based goals), each of these descriptions should be included with that sector based goal chapter.

Research and Monitoring
_Mandatory system-wide text
_Program Context
_Program Capacities
_Program Delivery
_Needs and Opportunities
_Research related objectives and
actions♦
_Monitoring and evaluation
strategies♦

Program Foundations

Education
_Mandatory system-wide text
_Program Context
_Program Capacities
_Program Delivery
_Needs and Opportunities
_Education related objectives and
actions♦
_Monitoring and evaluation
strategies♦

Training
_Mandatory system-wide text
_Program Context
_Program Capacities
_Program Delivery
_Needs and Opportunities
_Training related objectives and
actions♦
_Monitoring and evaluation
strategies♦

Reserve System Management Plan Guidelines and Resources

Plan Contents
I. Research and Monitoring Program
(Mandatory text begin)
The National Estuarine Research Reserve System’s mission provides that reserves are protected
and managed to afford opportunities for long-term research. Research at each reserve is designed
to fulfill the Reserve System goals as defined in the regulations (15 C.F.R Part 921(b)):
○○ Address coastal management issues identified as significant through coordinated
estuarine research within the System;
○○ Promote Federal, state, public and private use of one or more reserves within the
system when such entities conduct estuarine research;
○○ Conduct and coordinate estuarine research within the System, gather and making
available information necessary for improved understanding and management of
estuarine areas.
To sustain these System goals, the 2011-2016 Reserve System Strategic Plan outlines research
objectives that support the focus areas of climate change, habitat protection, and water quality:
○○ Expand capacity to monitor changes in water quality and quantity, habitat, and
biological indicators in response to land use and climate change drivers.
○○ Improve understanding of the effects of climate change and coastal pollution on
estuarine and coastal ecology, ecosystem processes, and habitat function.
○○ Characterize coastal watersheds and estuary ecosystems and quantify ecosystem
services to support ecosystem-based management of natural and built communities
○○ Increase social science research and use of social information to foster coastal
stewards that value and protect estuaries.
The Reserve System’s research and monitoring programs provide the scientific basis for
addressing coastal management challenges. Reserve research and monitoring activities provide
valuable information about estuarine resources to increase understanding and awareness of their
importance to a variety of audiences including scientists, resource managers, educators, and the
general public.

Reserve System Research Programs
Currently, there are two Reserve System-wide efforts to fund estuarine research. The Graduate
Research Fellowship Program supports students to produce high quality research in the reserves
that directly addresses coastal management challenges. The fellowship provides graduate students
with funding for 1-3 years to conduct their research, support reserve programs, and disseminate
results to the coastal management community. Projects must address coastal management issues
of local and national significance; support the reserve’s management plan priorities; and be
conducted at least partially within one or more reserves.

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Research is also funded through the National Estuarine Research Reserve System Science
Collaborative, a partnership between NOAA and the University of New Hampshire. The
Reserve System Science Collaborative is a program that focuses on integrating science into the
management of coastal natural resources. Currently administered through the University of
New Hampshire, the program integrates and applies the principles of collaborative research,
information and technology transfer, graduate education, and adaptive management with the
goal of developing and applying science-based tools to detect, prevent, and reverse the impacts
of coastal pollution and habitat degradation in a time of climate change. The program is
designed to enhance the Reserve System’s ability to support decisions related to coastal resources
through collaborative approaches that engages the people who produce science and technology
with those who need it. In so doing, the Science Collaborative seeks to make the process of
linking science to coastal management decisions, practices, and policies more efficient, timely,
and effective and share best practices and examples for how this can be done.

Reserve System Monitoring Program
The System-wide Monitoring Program provides standardized data on national estuarine
environmental trends while allowing the flexibility to assess coastal management issues of
regional or local concern and is guided by the Reserve System-wide Monitoring Program Plan.
The principal mission of the monitoring program is to develop quantitative measurements of
short-term variability and long-term changes in water quality, biological systems, and land use/
land cover characteristics of estuaries and estuarine ecosystems for the purposes of informing
effective coastal zone management. The program is designed to enhance the value and
vision of the reserves as a system of national references sites and focuses on three ecosystem
characteristics:
1.Abiotic Characteristics: Abiotic measurements are supported by standard protocols,
parameters, and approaches that describe the physical environment including weather,
water quality, hydrological, and sediment related parameters. The monitoring program
currently provides data on water temperature, specific conductivity, percent saturation
of dissolved oxygen, pressure, pH, turbidity, salinity, concentration of dissolved oxygen,
and pressure corrected water depth. Meteorological data include air temperature, relative
humidity, barometric pressure, wind speed, wind direction, rainfall, and photosynthetically
active radiation (PAR). In addition, the program collects monthly nutrient and chlorophyll
a samples and monthly diel samples at one SWMP data logger station. Data is Federal
Geographical Data Committee compliant and available via the Reserve System Centralized
Data Management Office.
2.Biotic Characteristics: As funds are available, reserves are focusing on monitoring habitats
and biodiversity.
3.Watershed and Land-use Classifications: The Reserve System is examining the link
between watershed land use and coastal habitat quality by tracking and evaluating changes
in coastal habitats and watershed land use/cover. This element is guided by the Reserve
System Habitat Mapping and Change Plan.

Reserve System Management Plan Guidelines and Resources

Building on these foundational elements, the Reserve System is developing a network
of sentinel sites and the capacity to assess the impact of sea level/lake level changes and
inundation on the diverse set of coastal vegetative habitats represented in the system. Reserves
are implementing a suite of activities, as described in the 2012 Reserve System Sentinel Site
Guidance Document, to assess the relationship between vegetative communities (marsh,
mangrove and submerged aquatic vegetation) and sea level. Reserves are adding surface
elevation tables and monitoring pore water chemistry along vegetation monitoring transects and
linking their system-wide monitoring program to a network of specialized spatial infrastructure
to allow precise measurement of local sea level and lake level changes and subsequent impacts
to key habitats. The Reserve System is working in partnership with NOAA’s National Geodetic
Survey and the Center for Operational Oceanographic Products and Services to support the
development of sentinel sites.
(Mandatory text end)

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Research Program Context
A. What is geographic scope of your program?
B. What information has been gained by the program since the last management plan?
C. Who are the target audiences for the research developed at the reserve?
D. How would the research community surrounding the reserve be characterized?
E. What are the most pressing research issues and questions that the reserve will address
and how do they align with the Reserve System Strategic Plan?
Research Program Capacity
A. What staff, facilities, infrastructure, etc. support your research program currently?
B. What partners will you work with to accomplish your research?
Research Program Delivery
A. How will the reserve locally implement the system-wide programs (e.g. SWMP, GRF) and
national programs (e.g. NSC) and priorities (e.g. NERRS Climate Change Initiative)?
B. How will the reserve implement local and regional monitoring and research?
C. How will the research program support other functions at the reserve?
D. How will the research program support or be influenced by other programs at the
reserve?
E. How does the reserve evaluate the research program currently? Will this change in the
next five years?
F. What are the major outcomes the research program wants to achieve? What research
and/or monitoring contributions will be made to the scientific or management
community?
Research Future Needs and Opportunities
A. What are the research needs and priorities identified by local stakeholders?
B. What is the nexus between those needs and projected capacity in the next five years?
C. What are the limitations of the research program? What are the opportunities?
Research Related Objectives and Strategies
A. List research objectives from strategic plan
B. List research strategies that will advance those objectives from the strategic plan

Reserve System Management Plan Guidelines and Resources

II. Education Program
(Mandatory text begin)

The National Estuarine Research Reserve System’s mission includes an emphasis on education,
interpretation, and outreach. Education at each reserve is designed to fulfill the Reserve
System goals as defined in the regulations (15 C.F.R Part 921(b)):
○○ Enhance public awareness and understanding of estuarine areas and provide suitable
opportunities for public education and interpretation;
○○ Conduct and coordinate estuarine research within the system, gathering and making available
information necessary for improved understanding and management of estuarine areas.
To sustain these System goals, the 2011-2016 Reserve System Strategic Plan outlines education
objectives that support the focus areas of climate change, habitat protection and water quality:
○○ Enhance the capacity and skills of teachers and students to understand and use
Reserve System data and information for inquiry-based learning; and
○○ Increase estuary literacy and promote active stewardship among public audiences
through the development and delivery of tools and programs addressing climate
change, habitat protection, and water quality.
The Reserve System provides a vehicle to increase understanding and awareness of estuarine
systems and improve decision-making among key audiences to promote stewardship of the
nation’s coastal resources. Education and interpretation incorporate science-based content
into a range of programs and methodologies that are systematically tailored to key audiences
around priority coastal resource issues.
Reserves conduct formal and informal education activities, as well as outreach activities that
target culturally diverse audiences of educators and students, environmental professionals,
resource users and the general public. Education and public programs, interpretive exhibits
and community outreach programs integrate elements of Reserve System science, research and
monitoring activities and ensure a systematic, multi-faceted, and locally focused approach to
fostering stewardship.
The reserves system is committed to preparing tomorrow’s future leaders with the knowledge
and understanding of our nation’s oceans and coasts to be responsible stewards. To fulfill this
commitment, the Reserve System has created the K-12 Estuarine Education Program (KEEP)
to increase the estuary literacy of students, teachers and the general public. The KEEP
Program helps students and teachers learn about essential coastal and estuarine concepts,
develop data literacy skills and strengthen their critical thinking, team building, and problem
solving skills. K-12 and professional development programs for teachers include the use of
established coastal and estuarine science curricula aligned with state and national science
education standards and frequently involves both on-site and in-school follow-up activity.
Community education and outreach is another priority for the Reserve System. Community
education programs foster behavioral change to promote resource conservation. These
programs work with audiences whose choices directly impact the integrity of our estuaries and
their associated watersheds.
(Mandatory text end)

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Education Program Context
A. What is geographic scope of your program?
B. What information has been gained by the program since the last management plan? (e.g.
from market analysis and needs assessments or other assessments)
C. Who are the target audiences for reserve education programming, identifying population
and reach, and why were they selected? Distinguish audiences among professional
development programs, students programs, public outreach programs, and/or community
education programs.
D. What are the priority issues for your reserve that your education program can address
and how do they align with the Reserve System Strategic Plan?
Education Program Capacity
A. What staff, facilities, infrastructure, etc. support your education program currently?
B. What partners will you work with to accomplish your education program?
Education Program Delivery
A. How will the reserve locally implement and/or align with the system wide programs (e.g.
KEEP, SWMP, GRF), national programs (e.g. NSC) and priorities (e.g. NERRS Climate
Change Initiative)?
B. What major activities will the education program implement and what methodologies
will it employ?
C. How will the education program support or be supported by other programs at the
reserve?
D. How will the education program deliver and disseminate results?
E. How does the reserve evaluate the education program currently? Will this change in the
next five years?
F. What major impacts or outcomes does the education program want to achieve and what
behavior change does the reserve wish to influence?
Education Future Needs and Opportunities
A. What are the education needs identified via assessment or by local stakeholders?
B. What is the nexus between those needs and projected capacity in the next five years?
C. What are the limitations of the education program? What are the opportunities?
Education Related Objectives and Strategies
A. List education objectives from strategic plan
B. List education strategies that will advance those objectives from the strategic plan

Reserve System Management Plan Guidelines and Resources

III. Coastal Training Program

(Mandatory text begin)

The National Estuarine Research Reserve System’s mission includes an emphasis on education
and interpretation. The Reserve System recognizes it has a responsibility to educate coastal
decision makers and supports the Reserve System goals, as defined in the regulations (15 C.F.R
Part 921(b)), through the Coastal Training Program:
○○ Enhance public awareness and understanding of estuarine areas and provide suitable
opportunities for public education and interpretation;
○○ Conduct and coordinate estuarine research within the system, gathering and making
available information necessary for improved understanding and management of
estuarine areas.
To sustain these System goals, the 2011-2016 Reserve System Strategic Plan outlines coastal
training objectives that support the focus areas of climate change, habitat protection and water
quality:
○○ Increase estuary literacy and promote active stewardship among public audiences
through the development and delivery of tools and programs addressing climate
change, habitat protection, and water quality.
○○ Improve the capacity and skills of coastal decision makers to use and apply sciencebased information in decisions that affect estuaries and coastal watersheds.
The Coastal Training Program provides up-to-date scientific information and skill-building
opportunities to coastal decision-makers responsible for making decisions affecting coastal
resources. Through this program, reserves ensure that coastal decision makers have the
knowledge and tools they need to address local critical resource management issues.
Coastal decision makers are defined as individuals whose duties include making decisions that
affect the coast and its resources. The target decision maker groups vary according to reserve
priorities, but generally include groups such as local elected or appointed officials, managers
of both public and private lands, natural resource managers, coastal and community planners,
and coastal business owners and operators. They may also include groups such as farmers,
watershed councils, professional associations, recreation enthusiasts, researchers, and more.
Reserves are uniquely positioned to deliver of pertinent information to local and regional
decision-makers given their place-based nature. Coastal Training Program coordinators know
the local people, places, and science are able to skillfully convene training participants and
experts to address coastal management issues. Coastal Training Programs are built upon solid
and strategic program documents, including an analysis of the training market and assessment
of audience needs. Coordinators then work with the results to identify how their program can
best address local and Reserve System priority issues.
Partnerships are integral to the success of the program. Reserves work closely with state
coastal management programs, Sea Grant Programs, NOAA Coastal Services Center and a
host of local partners in determining key coastal resource issues, target audiences, and expertise
to deliver relevant and accessible programs.
(Mandatory text end)

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Training Program Context
A. What is geographic scope of your program?
B. What information has been gained by the program since the last management plan? (e.g.
from market analysis and needs assessments or other assessments)
C. Who are the target audiences for reserve coastal training opportunities and why? What
do you know about the skills, abilities, and current level of knowledge of the target
audiences?
D. What are the priority issues for your reserve that your education program can address
and how do they align with the Reserve System Strategic Plan?
Training Program Capacity
A. What staff, facilities, infrastructure, etc. support your training program currently?
B. What partners will you work with to accomplish your training program?
Training Program Delivery
A. How will the reserve locally implement and/or align with the system wide programs (e.g.
KEEP, SWMP, GRF), national programs (e.g. NSC), and priorities (e.g. NERRS Climate
Change Initiative)?
B. What major activities will the training program implement and what methodologies will
it employ?
C. How will the training program support or be supported by other programs at the
reserve?
D. How will the training program deliver and disseminate results?
E. How does the reserve evaluate the training program currently? Will this change in the
next five years?
F. What major impacts or outcomes does the training program want to achieve and what
behavior change does it wish to influence?
Training Future Needs and Opportunities
A. What are the training needs identified via assessment or by local stakeholders?
B. What is the nexus between those needs and projected capacity in the next five years?
C. What are the limitations of the training program? What are the opportunities?
Training Related Objectives and Strategies
A. List training objectives from strategic plan
B. List training strategies that will advance those objectives from the strategic plan

Reserve System Management Plan Guidelines and Resources

Administrative Plan
About this Section
The administrative plan is a required element of a management plan and should outline
staff roles in administration, research, education, and surveillance and enforcement, per the
Federal Code of Regulations 15 CFR 921.13 (a)(2). The administrative plan should outline
the means and support necessary to implement the goals and objectives of the reserve. It
should provide an overview of the organizational and administrative framework that governs
management of the reserve, address the roles and responsibilities of staff, as well as identify
strategic partnerships and advisory committees. In effect, the administrative plan supports all
other components in the reserve management plan; objectives and actions do not need to be
integrated into the strategic plan element given this section will support achieving all reserve
goals and objectives.
Specifically the administrative plan should include: an organizational framework; staffing
plan; a description of strategic partnerships and advisory committees; and administrative plan
objectives and actions. Optional elements could include: volunteer plan; vessel and vehicle plan;
communications plan, and additional information about administrative initiatives of the state
and reserve that impact the future of reserve operations.

Plan Contents
I. Organization Framework and
Management Authorities
This section builds on the ‘Introduction
to the Reserve’ component to provide
more information about the state agency
administrative structure and management
authorities. This section should highlight
the mission of the agency and why it is an
appropriate match to host the reserve. An
organizational chart outlining the current
location of the reserve within the state agency
aligned with NOAA’s management structure
should be included; see Figure 9. Additionally,
an organizational chart of the reserve should be
included.
If applicable, this section should capture any
changes in the host agency since designation
and the reasons for those changes. It should also
include all information about state law, codes,
or management authorities that impact the
administration of the reserve.

Administrative Plan
_Organizational framework
_Organizational charts
_Current staffing and needs
_Strategic partnerships
_Advisory committees
_Administrative objectives
and actions
_Volunteer plan ♦
_Vessel and vehicle plan ♦
_Communications plan ♦

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II. Current Staff and Needs
This section should clearly outline the number of staff employed to support reserve programs,
as well as their roles and responsibilities. Indicate if employees are full-time, part-time or seasonal
and the location of their primary office. Include an administrative chart to visually represent the
reserve’s staff positions, administrative structure and oversight. If applicable, indicate strategies
to secure state funding for core staff positions.
Figure 9. Organizational Relationship

National Oceanic and
Atmospheric Administration

State Agency

National Ocean Service
Department
Office of Ocean and Coastal
Resource Management
Estuarine Reserves Division

Office/Division

Include detailed information about anticipated staffing needs to better support the mission
of the reserve and projected program developments. Outline the roles and responsibilities
of these anticipated positions, the goal-based justifications, and reference any supporting
documents that recommend these staffing needs (i.e. internal reviews and evaluations
findings). If available, include information on how these future positions would be funded.

III. Strategic Partnerships
The administration of a reserve occurs through a collaborative process involving a variety
of agencies and organizations at various levels of engagement. Strategic partnerships are
those that leverage specific resources to carry out core functions of the reserve and are often
associated with facilities, enforcement, or staffing. This section should not be an exhaustive
list of all reserve partnerships, but instead briefly describe key partnerships. If applicable, this
section could include information about the reserve’s Friends group, in particular the role and
responsibility of the group in supporting the mission of the reserve.
All Memoranda of Understandings should be included in the appendix of the management
plan. If there is a need to compile a complete list of all organizations the reserve current
partners with, it should also be included as an appendix.

Reserve System Management Plan Guidelines and Resources

IV. Advisory Committees
Reserve advisory committees are composed of local community stakeholders and assist in
guiding the policies and management of the reserve. This section should detail the roles,
membership and expectations of the reserve’s advisory committee. For example, do committee
members provide feedback and recommendations on site management and implementation
strategies; assist in seeking support for Reserve programs; represent the interests of users of
the Reserve and its’ products, expected to discuss relevant issues with the community and so
on. If applicable, provide information about sub-committees or task forces.
Optional additional information about the advisory committees could include:
□□
□□
□□
□□

How are members appointed and how long do they serve
General meeting structure (i.e. open to the public) and frequency of meetings
How are decisions made (i.e. consensus)
Information about the general composition of the committee by
○○ A list of the specific organizations/users represented on the advisory committees or
○○ A list of members and affiliations from a prior year

V. Objectives and Actions
The objectives and actions developed for the administrative plan should ensure the
administrative, operational and financial capacities of the reserve are adequate to effectively
implement the goals of the Reserve. Administrative objectives assist in the management of
the reserve by addressing the operational needs and plans to maintain and train staff, maintain
vessels and facilities, complete administrative processes, as well as work in the community
through strategic partnerships and advisory committees. Actions should be designed to
effectively and efficiently utilize the existing administrative, infrastructure, fiscal, and human
resources.
The objectives and actions developed here likely support and are related to achieving all of
the reserve goals and objectives. Hence, they do not need to be integrated into the strategic
plan. Reserves should clearly describe why these were crafted and how they move the reserve
forward in meeting their goals and objectives. However, reserves may choose to integrate
these objectives and actions if administrative issues are a central focus for the next five years.
In ERD’s experience, we have found that reserves find it difficult to merge these types of
objectives with programmatic objectives because they are central to supporting the entire plan.

North Carolina Reserve: Administrative Goal and Objectives
The North Carolina management plan developed a goal and several objectives that
support the administration and operations of the Reserve. In their Administrative
Plan chapter they outline strong, relevant activities that will help them achieve their
objectives. Reserves may choose to develop an administrative goal or they can simply
list objectives within this component that directly support objectives within the
strategic plan. (http://www.nerrs.noaa.gov/Doc/PDF/Reserve/NOC_MgmtPlan.pdf).

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VI. Optional plans that support programs and program management
A. Volunteer Plan
A volunteer plan can provide guidance for how a volunteer program builds connections with
the community and supports reserve programs in meeting their goals and objectives. Volunteers
are an invaluable resource to reserves. Considerations for creating a volunteer plan include:
Planning for volunteers
Prior to starting a volunteer program, it important to assess needs that can be filled by
volunteers and determine how the reserve will support the program as it does take a budget
and expertise to run an effective program. It will be important to create and market clear
position descriptions, including qualifications, purpose, timeframe, expected outcomes and
evaluation criteria (if applicable). It will also be important to establish policies and procedures
for administration and volunteers so that everyone is clear about what needs to happen before a
volunteer can begin and while working.
Recruiting and organizing volunteers
Once the reserve establishes why the program should exist and clear functions that can
be performed by volunteers, it is time to recruit, screen, interview and place volunteers in
appropriate positions aligned with their ability, expertise and interest. It will be important to
plan for the number of volunteers that can be adequately monitored and supported. Organizing
teams of volunteers for certain areas can be useful to manage volunteers and provides them
a network of people with similar interests to maintain engagement and give support to each
other. It will be important to consider how the reserve will orient and train volunteers to
perform duties and feel safe and productive when doing so. Once trained and performing
duties, it will be important to ensure proper supervision, support and evaluation of efforts.
Supervising, evaluating and retaining volunteers
Supervising volunteers takes time and attention to ensure they are effective, safe and happy. It
will be important to outline steps for developing an evaluation system to determine whether
the complement of volunteers continues to be suited to the reserve. It will also be important to
identify ways to recognize the volunteer contributions as this helps to develop a bond with the
reserve and ensure continued contribution.

B. Vessel and Vehicle Plan
A reserves fleet of vehicles and vessels can be critical to supporting reserve objectives and
activities. A fleet infrastructure plan could help determine when craft need to be repaired and/
or replaced, overseeing maintenance and repair work, procuring new craft and associated
equipment, training staff in the proper use and safety protocols for each type of craft and
associated equipment, and keeping required records for all fleet craft. If applicable, please
identify policies for vehicles, including hybrids and additional energy saving plans.

Reserve System Management Plan Guidelines and Resources

C. Communication Plan
It is critical to communicate the importance and impacts of reserve efforts, as well as deliver
key messages to key audiences regarding protecting and valuing the coastal resources reserves
protect. See general areas appropriate for a communications plan below. For assistance in
crafting a plan, key messages, and/or identifying key communication opportunities, contact the
OCRM communications director. Considerations for crafting a communications plan include:
Objectives and target audiences
Developing clear, measurable objectives is critical to the success of your communication plan.
Think about what you want your communications activities to accomplish which directly relates
to who you need to be communicating about what – for example, do you want to generate
excitement, build awareness, educate on priority issues, maintain positive information flow,
secure support for specific initiatives or projects? Identify who you want to communicate to
will help articulate approach and how they want to receive information. It will be important to
prioritize between primary audiences and others to achieve primary objectives.
Approach
It will be important to determine what methods the reserve will employ to reach target
audiences. Questions that may help inform approach include: What types of communication
media will the reserve use? Will a mix be useful for various objectives? Who will be involved in
a successful approach to both internal and external communications? How much time will be
focused on various elements?
Key messages, tactics, and costs
Key messages are important to create. Remember to address who, what when, where, why and
how to convey key information to influential audiences. Messages should be clear, benefitoriented, and written so that target audiences will understand and relate. It will be important
to develop a plan for how to communicate with target audiences and how often. Consider
the types of tactics that will be most effective – print, electronic, in-person. It is important
to choose substance over flash. Communication messages must be simple, clear, direct and
audience-focused - no matter how slickly they are packaged - or they won’t be read, heard or
understood. It will be wise to set a budget for developing and employing communications
strategies and products.
Timeline and evaluating success
It will be important to identify key times for targeting messages – are there key times when
audiences are more receptive and/or seeking information to make decisions, how long will
various efforts be pursued, how will you know when you’ve reached success? In order to
understand the last question, it will be helpful if tangible success measures are identified- are
you looking for a percentage change in audience behavior, are you hoping for increased financial
support, etc.? Whether successful or not, it will be important to engage audiences solicit
feedback on how to better engage and communicate with them.

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Resource Protection Plan
About this Section
The resource protection plan is a required element of a management plan, per the Federal
Code of Regulations 15 CFR 921.13. The general provisions provided by 15 CFR 921.1 state
reserves shall be open to the public to the extent allowed by state and federal law, multiple uses
are allowed to the degree compatible with reserve purpose and use levels prescribed in the
management plan. Additionally, regulations note that the management plan shall identify uses
requiring a state permit, as well as areas where uses are encouraged or prohibited. Protecting
the resources of the reserve serves as the foundation for all programmatic efforts and is
central to the success of the reserve. It is important for reserves to protect the ecological unit
representative of key land and waters within each biogeographic region and maintain it in the
face of human and natural stressors that are continually increasing.
This plan should provide a description of the authorities which protect the reserve, allowable and
unallowable uses per those authorities, uses requiring a permit, and surveillance and enforcement
strategies to ensure appropriate use of the reserve.

Plan Contents
I. State Management and Statutory
Authorities
The protection of the reserve relies on state
management and regulatory authorities. This section
should describe all authorities (federal, state, local
and tribal (if applicable)) related to the protection
and use of reserve resources. It should include a
complete description of rules and regulations that
govern access and activities on reserve property. It
should also identify key partners in developing and
upholding these authorities.
Questions to inform this section include: What are
the state, federal, and local regulatory authorities in
place to protect the reserve? What rules govern uses
and when were these developed? What partners
were and/or are involved in maintaining these
regulations?

II. Allowable and Unallowable Uses
This section should describe all allowable and
unallowable uses within the reserve, based on the

Resource Protection Plan
_Management Authorities
_Allowable and unallowable uses
_Map of allowable uses
_Surveillance and enforcement
capacities
_Resource protection challenges
_Resource protection objectives
and actions ♦
_Monitoring and evaluation plan
strategies ♦

Reserve System Management Plan Guidelines and Resources

above authorities, and where they may/may not occur respectively. A map and/or table that
provide an overview of these uses are encouraged. Any uses requiring a permit should be
identified. A rationale should be provided regarding why there are restrictions in certain areas.
Pre-existing uses that occurred prior to designation should be discussed and evaluated if those
uses are still occurring to determine compatibility with intent of reserve.
Questions to inform this section include: What are the allowable and unallowable uses in the
reserve? Why are these uses allowable and/or unallowable? How were these designations
determined? Where do these uses occur? Are there pre-existing uses that are still occurring and
are they compatible with the intent of the reserve? If not, how will the reserve resolve these
uses? Are there additional policies in development that may limit access in certain areas? When
will these be likely to be implemented? Is there a mechanism to communicate allowable uses to
users of the reserve?

III. Surveillance and Enforcement
This section should describe the personnel and strategies dedicated to enforcing the
management authorities to ensure appropriate uses of the reserve. The plan should clearly
outline how violations to specific uses will be addressed via the enforcement network with
jurisdiction over these resources. Key partnerships and other land owner protection plans that
support the management and protection of the reserve should be described and included within
an appendix if directly protecting reserve lands.
Questions to inform this section include: What agencies are responsible for surveillance and
enforcement of rules regarding use within the reserve boundary? What is the relationship
between the state agency and enforcement officials? Is there a plan in place for surveillance
and enforcement? Is there a clear line of communication between applicable reserve staff and
enforcement officials? What are the key partnerships important to protecting the reserve? What
role do these partners play?

IV. Resource Protection Challenges
Maintaining adequate control of reserve resources can be challenging for a variety of reasons.
This section should identify uses outside reserve boundaries that potentially impact reserve
resources. It should describe how existing authorities and processes protect the reserve and how
the reserve interfaces with these uses, e.g. is the reserve involved in reviewing permits for certain
activities that may impact the reserve.
Questions to inform this section include: What activities occurring outside or within the reserve
boundary impact or may potentially impact reserve resources? How does the reserve ensure
these activities are not detrimental to the reserve? How do staff members interface with local
entities to monitor and/or approve activities which may impact the reserve? Will reserve staff
members be involved in permit review for activities occurring adjacent to the reserve?

V. Objectives and Actions
Like the administrative plan, this plan provides a foundational capacity to support the
overarching goals and objectives within the strategic plan and be supported by other program

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efforts. If applicable, the reserve can decide to incorporate specific objectives related to resource
protection within the strategic plan or they can stand alone as foundational to all other elements
within the strategic plan.

VI. Monitoring and evaluation
In order to effectively monitor whether resources are adequately protected, reserves must
consider the following questions: What resource indicators does the reserve use to ensure
ecosystem health? How will you monitor allowable and unallowable uses and adjust strategies to
ensure protection? What are the frequency, timing and location of those monitoring activities?
How does the reserve detect change in both resource and social indicators?

Reserve System Management Plan Guidelines and Resources

Public Access and Visitor Use Plan
About this Section
The public access plan is a required element of a management plan, per the Federal Code of
Regulations 15 CFR 921.13. Public access can be defined as the ability of all members of the
community to pass physically and visually to, from, and along the ocean shore, other waterfronts,
and over public lands. The ability to enjoy the oceans, bays and rivers is directly related to the
ability to reach them. A public access plan must try to allow for the long-term public use and
enjoyment of the water and shoreline while minimizing damage to the resources. Depending on
the geographic proximity and current access available to visitors, reserves may want to consider
topics such as public transit, bike trails, ADA accessibility for all visitor facilities, and signage to
ensure visitors can locate accessible areas and follow necessary rules for using resources wisely.
This plan should discuss public uses, opportunities, and challenges within the reserve. Objectives
and actions should support public access and positive visitor experiences while maintaining
adequate long-term protection of reserve natural and cultural resources.

Plan Contents
The following are key elements to be included within this section of the management plan.
Discussion in response to the elements below should be addressed to the best of the reserve’s
ability given the unique stage and nature of the reserve.

I. Current Public Access
This section should include general information about
where and how visitors, researchers, and other interested
parties can access the reserve. This section should also
include all relevant information and data that supports
acceptable limits for public access or carrying capacity.
Carrying capacity is the type and level of visitor use
that can be accommodated while sustaining the desired
resource and visitor experience conditions in the reserve.
Visitor experience includes the perceptions, feelings, and
reactions a person has while visiting the reserve.
Questions to inform this section include: What are reserve
hours of operations and fees? Where are the land and
water access points? What is the rationale for current
public access structure? What purpose do these access
points serve and to whom i.e. target audiences for access?
Why are they relevant and important? Which public
uses are permitted at these access points? What specific
programs support access opportunities? What access is
permitted to historical and or cultural areas of significance
within the reserve?

Public Access and Visitor
Use Plan
_Current public access
_Map of public access points
_Public access challenges
_Public access and visitor
experience opportunities
_Public access objectives and
actions ♦
_Monitoring and evaluation
strategies ♦

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If the reserve has conducted carrying capacity studies, the following questions should be
addressed: What is the reserve’s current carrying capacity? What are the reserve’s limits of
acceptable change in addressing carrying capacity? Does the reserve have any statistics regarding
current attendance records, visitor use impacts and/or results of carrying capacity studies?

II. Public Access Challenges
This section should include an overview of challenges to provide public access and maintain
adequate control and protection of natural and cultural resources. Studies on carrying capacity
and surveys on visitor use can serve as foundations for future action.
Questions to inform this section include: What and where are the challenges in balancing public
access and protection of natural resources? What specific impacts has the reserve seen from
these challenges? Does the reserve anticipate exacerbation of these impacts? What changes
in demographics do you predict for the future? How do those changes impact planning for
the future? Will climate change impacts provide public access challenges? Will these impacts
potentially change the nature of access in certain areas? Are there particular species of concern
potentially impacted by large groups visiting the reserve at particular times of the year, e.g.
breeding season, growing season?

III. Public Access Opportunities and the Visitor Experience
While balancing information from current uses and challenges, this section should describe the
future opportunities to increase or decrease access to specific areas of the reserve.
Questions to inform this section include: Who are reserve future target audiences? What has
been learned since the last management plan that provides input for this plan? What specific
polices access policies will impact education, stewardship, research, and monitoring programs?
Is the reserve trying to increase, reduce, limit public access and visitor use, and why? What are
the primary themes that communicate the significance of the reserve to visitors? What strategies
does the reserve implement to ensure that those interpretative themes are communicated? How
does the reserve connect outdoor visitor use experiences to indoor exhibits?

IV. Objectives and Actions
If applicable, this section should provide an overview of the strategic plan objectives and
actions that relate to public access and visitor use. It will be important to consider the role of
education, interpretation and outreach in managing public access and visitor use.
If applicable, discuss indicators and procedures for monitoring and evaluating these actions to
determine if public access should be altered in the future.

V. Monitoring and Evaluation
In order to effectively monitor and evaluate the success of restoration habitats, consider the
following questions: Has habitat function and structure been established to meet targets? Has
biodiversity been established to meet targets? What are the long-term monitoring plans? Were
methods used appropriate for meeting targets? Were new protocols used and if so were they
effective in meeting targets?

Reserve System Management Plan Guidelines and Resources

Resources
NOAA’s Managing Visitor Use in Coastal and Marine Protected Areas Course: Provides
participants with tools to identify and define unacceptable visitor use impacts to natural
resources and visitor experiences. Participants of this course will be able to understand the
human dimensions of coastal and marine management, apply recreation and visitor use
management planning frameworks, identify visitor use issues, including visitor-resource and
visitor-visitor impacts, craft a clear problem statement, develop measurable indicators for
monitoring impacts and management and set standards for impact acceptability, and implement
visitor use monitoring methods and management strategies and tactics.
Managing Visitor Impacts in Parks: A Multi-Method Study of the Effectiveness of Alternative
Management Practices: Provides recommendations for outdoor recreation management within
protected areas such as parks.
Monitoring and Management of Recreation in Protected Areas: the Contributions and
Limitations of Science: Provides examples of significant contributions of science to visitor
monitoring and management. It covers the related scientific purposes of explanation, causation,
prediction and assessment.

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Facility Development and Improvement Plan
About this Section
The facilities plan is a required element of a management plan, per
the Federal Code of Regulations 15 CFR 921.13. Reserve facilities
provide functional space for reserve work and programming, and
serve as the face to the public providing venues for learning and
serving as a learning tool themselves. Reserve facilities must face all
of the pressures that come with working and building in the coastal
zone including withstanding storms, surge, erosion, and elements
of wind, salt, sand, humidity among others. Additionally, a changing
climate will exacerbate these pressures resulting in increased erosion,
frequency and intensity of storm events and associated surge, sealevel rise and associated salt water intrusion. These challenges require
reserves to build facilities that will withstand these pressures and serve
their intended purpose for the life-cycle of the structure. ERD is
encouraging reserves to build new and improve existing facilities so
that they are sustainable and resilient.

Facility Development and
Improvement Plan
_Purpose of facilities
_Current facilities
_Map of facility locations
_Facility challenges and gaps
_Planned facilities, facility
upgrades, and exhibits
_Climate and non-climate
stressors
_Facility descriptions
_Operations and maintenance
manual as appendix ♦
_Long-term facility plan as
appendix ♦

Supporting material is provided in Appendix 10 Planning for Sustainable Facilities that expounds on how
to assess vulnerability of potential investments, principles for sustainability and resiliency including examples
and options, and sustainable building codes and rating systems. Building principles are discussed in detail
and considerations, references and resources are provided to help reserves think about how to incorporate
sustainable principles into facility planning. Please note that the supporting material for this guidance is more
robust than other plan elements because it also supports planning requirements for the NOAA Programmatic
Framework for Considering Climate Change Impacts in Coastal Habitat Restoration, Land Acquisition and
Facility Development Investments.
This plan should discuss the reserve’s philosophy on sustainable building, purpose and description of existing
facilities, facility challenges and gaps, and plans for new facilities, facility upgrades, and exhibits. Like the
administration plan, facilities support reserve operations and reserve staff ability to meet objectives and actions
within the strategic plan. Reserves may either choose to craft specific objectives for this plan that do not need
to be incorporated into the strategic plan, or they may simply identify facility priorities. Either approach is
acceptable, but there should be a clear link between facility plans and the achievement of reserve goals and
objectives.

Plan Contents
I. Purpose of Facilities and Construction Philosophies
This section should describe the overall purpose and vision for what the facilities on the reserve
campus will help achieve. Reserves may see themselves as centers for regional excellence in providing
services; they may be local experts with a lower profile; and/or they may have facilities that showcase
sustainable building approaches and practices. Green or sustainable building is the practice of creating
structures and using processes that are environmentally responsible and resource-efficient throughout
a building’s life-cycle from siting to design, construction, operation, maintenance, renovation and
deconstruction. Building in this way reaps not only environmental, but economic and social benefits.

Reserve System Management Plan Guidelines and Resources

This section should describe the philosophies that the reserve ascribes to, as well as the state
laws, regulations and initiatives that support sustainable building.
Questions to inform this section include: What are the values of reserve facilities to the staff
and public? What are the general reserve philosophies around construction, operations and
maintenance of reserves facilities? What state laws, regulations, and/or initiatives support
sustainable building? What elements of sustainability are most important for the reserve to
achieve?

II. Description of Current Facilities
This section should describe each facility on the reserve campus. Descriptions of stationary and
travelling exhibits should be included.
Questions to inform this section include: What is the purpose of the facility? Where is it
located? When was it constructed? What are the components within the facility (if applicable)?
How is the facility used and by whom? Is there visitor use and capacity data to support these
facilities? How does the facility employ sustainable building principles? Are there plans to
upgrade the facility to improve sustainability and operational efficiency? If so, these should be
described generally in this section, but more specifically in the “Planned Facilities and Facility
Upgrades” section as appropriate.
A map should be included that identifies the location of all current facilities. Additionally,
include photos of major facilities.

III. Facility Challenges and Gaps
This section should describe the projected challenges that facilities will face whether that is from
age, use, natural or anthropogenic stressors including climate impacts and provide a rationale
and basis for new facility siting and upgrade priorities.
Questions to inform this section include: How old are the current facilities? Which ones are
in need of repair? How old are the current systems within the building? What can be done to
make them more efficient and supportive? What are the major stressors likely to affect facilities?
Will increased precipitation, lake or sea level change, or frequency and intensity of storms be
likely scenarios? Are facilities prepared for potential impacts?
This section should also describe the current facility gaps and needs as demonstrated through
some form of needs assessment. These needs should be grounded in data – capacity, visitor
use, functional needs, etc. – that identify the challenges that if overcome support the vision of
the program and are consistent with elements of a standard reserve and sustainable reserve
guidelines. (Dewberry Design, 2004) Much of this data may come from the needs and gaps
information identified in the “Program Foundations” section.
Questions to inform this section include: What are the key programmatic technical and
structural needs for reserve operations? What staff, visitor or stakeholder needs are not
currently being met? What are the projected needs of those audiences? How can the reserve
increase operational efficiency and reduce resources to meet those needs?

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IV. Planned Facilities
This section should describe the facility and/or facility upgrades that the reserve wants
to undertake during the period of the management plan that meets the identified needs
stated above. Detailed explanation of these facilities should include considerations for
siting (if applicable), sustainable design principles and climate change impacts. Please refer
to information generated from the ‘Introduction to the Reserve’ component to inform
development of this section.

A. Climate and non-climate stressors
In order to effectively plan for new facilities and/or the most appropriate facility upgrades,
reserves need to consider siting for optimal sustainability, survivability and accessibility while
also thinking hard about projected use and utility for staff and partners.
Questions to inform this section include: What are the major stressors likely to affect siting of
new facilities? Will increased precipitation, lake or sea level change, or frequency and intensity
of storms be likely scenarios? Will temperature ranges be shifting? What type of scenario
planning has the reserve done to appropriately site new facilities? What are the results of that
work? What are the projected uses and lifespan for the facility?
Hence, part of planning for future facilities, should include the following:
□□ Identification of the projected climate change impacts that will affect the investment.
Stressors and their subsequent impacts that should be addressed include changes in
precipitation, air temperature, change in sea level or lake level, and changes in storm
frequency and intensity. Please refer to Appendix 6 Summary of Observed and
Projected Regional Climate-related Changes and Appendix 7 Summary of Climate
Change Phenomena with Observed and Projected changes, as well as local information
relevant to understanding infrastructure sensitivity, exposure and/or vulnerability.
Climate data and scenario tools focusing on sea level change can be found in the
“Introduction to the Reserve” resources section as well as in Appendix 10 Planning for
Sustainable Facilities.
□□ Identification of the life span of the project based on these scenarios and projected
utility.It is the responsibility of project principals to identify the methods used to
determine the life span of the project based on scenarios and expected utility of the
structure. However, a 30 year life span is suggested for all major facilities.
□□ Gauging the extent to which the projected impacts will affect project objectives
and benefits over the life span of the project. By reviewing all of the factors above,
determine the risk and appropriate investment for long-term facility projects, as well as
potentially shorter-term upgrades and improvements in existing facilities.
□□ Making determinations about the extent of the climate impacts over time based on one
or more climate change scenarios. We advise applying a multi-scenario analysis based on
recommendations outlined by the National Research Council, the US Global Change
Research Program, and the Intergovernmental Panel on Climate Change.

Reserve System Management Plan Guidelines and Resources

B. Facility descriptions
Identify each project in order of priority and describe why the project is a priority for the
reserve. In order to describe these projects accurately, pre-work and planning will likely be a
necessity. If the reserve has already developed a facility master plan, please draw from this
document. For each project describe the following:
□□ Purpose and estimated life of the facility.
□□ Sustainability goals, targets and evaluation mechanisms.
□□ Elements of the project that support Reserve System Sustainable Building Principles.
□□ Cost estimate for each proposed facility which include associated costs for
environmental assessment, if applicable. An environmental assessment will need to
be prepared if the project occurs on undisturbed land and/or if it is expected to have
significant effects on the environment. Each project will be evaluated on a case by case
basis.
□□ Description of associated signage and/or exhibits that describe the sustainable
principles and features of the building if open to the public.
□□ Description of forecasted maintenance costs and state commitment to supporting these
costs.
The Reserve System Sustainable Building
Principles, adopted from “Guiding Principles
for Federal Leadership in High Performance
and Sustainable Buildings” set forth in the
Federal Leadership in High Performance
and Sustainable Buildings Memorandum of
Understanding (2006), are discussed in detail
along with examples in Appendix 10 Planning
for Sustainable Facilities. With regard to
addressing bullet three above, please refer
to Appendix 10 which contains supporting
information corresponding directly with
the questions below related to each building
principle.

Reserve System Sustainable
Building Principles
• Integrated design & sustainable siting
• Water efficiency
• Energy efficiency
• Materials and resource conservation
• Indoor environmental quality
• Operational efficiency

1. Integrated design and sustainable
siting
All projects should employ a collaborative, integrated planning and design process that starts at
the earliest stages of the design process, includes a variety of expertise relevant to each stage,
and maintains an integrated project team throughout all stages of the project considering the
lifecycle of the project.

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Questions to inform integrated design include: Will a collaborative integrated planning and
design process be used? Will performance goals for the green principles be established for the
project? What are there constraints to sustainable building? Are there local ordinances that will
make this challenging?
The coastal zone presents a harsh environment for facilities and climate change will present new
and exacerbate existing stressors. Projects should account for climate change impacts, as well as
elements such as natural light, habitat preservation, stormwater, and factors affecting accessibility.
Questions to inform siting include: Are potential sites for future facilities at risk to climate
impacts and/or natural hazards? Are potential sites for future facilities confined to the reserve
buffer areas? What are the state and local considerations for reserve facility siting?
Are you considering the full spectrum of lighting needs and impacts? How do you plan to
protect existing native habitat or restore a site with native species? How do you plan to address
stormwater discharges on the site? Are you considering implementing LID practices for
stormwater? Are you considering proximity to community features and transportation issues?

Mission-Aransas Reserve: Building Sustainably on the Texas Coast
In 2011, the Mission-Aransas Reserve celebrated the opening of its new Estuarine
Research Center on the UTMSI campus. Several years in the making, the Reserve
coordinated a collaborative approach bringing together an interdisciplinary team
of engineers, architects and reserve staff to design and construct a headquarters
and research facility to withstand harsh coastal conditions (i.e., high winds, salt,
torrential rains and storm surges) and meet specific sustainability goals. Their first
challenge was working within a culture where facilities development practices and
norms did not necessarily incorporate green principles.
To address conditions on the coast, the facility is designed to sacrifice the ground
floor housing non-critical building functions, an exterior rated to handle 130mph
winds and using concrete additives to prevent chloride penetration to name a
few. In addition, the grounds are being irrigated by air conditioning condensate
and rainwater captured from the roof to reduce impacts on municipal water
systems. During the construction, 83% of the construction waste was recycled and
82% of the materials used originated in Texas. Taken together, the project team
incorporated sustainable design and construction practices that qualified for LEED
Silver certification.
Throughout the project, the Reserve found that building sustainability with low
carbon footprints is difficult to do on the coast. However, commitment from
all the partners to sustainable designs and practices was critical to achieving a
facility that is durable, versatile and sustainable. For more information, contact the
Mission-Aransas Reserve.

Reserve System Management Plan Guidelines and Resources

2. Water efficiency
Water is a precious commodity and given availability and infrastructure stressors, we must
decrease the amount of water used and increase dependence on water that is collected, used,
purified, and reused on-site. Try to employ water saving mechanisms as much as feasible.
Questions to inform water efficiency include: How will you incorporate xeriscaping? Are you
being strategic in use of turf areas as part of the facility landscaping? How will you incorporate
efficient irrigation systems and schedules? What water use reduction practices will you
incorporate?

3. Energy efficiency
Buildings in this country use a significant amount of energy most of which is produced from
nonrenewable, fossil fuel resources which are contributing to greenhouse gas impacts. It is
imperative that reserves reduce their energy demands. It is worth re-emphasizing an integrated
project team since reducing energy demand requires a team including a variety of building
experts to do this effectively.
Questions to inform energy efficiency include: How will you ensure an integrated planning team
and process? How will you set energy efficiency targets and measure them? How will you reduce
heating, cooling and lighting loads? How will you employ renewable or high–efficiency energy
sources? How will you identify efficient HVAC and lighting systems? How will you reduce nonregulated energy consumption? How will you optimize system controls?

Great Bay Reserve: Stepping out on Geothermal and Solar
The Great Bay Reserve broke new ground for the New Hampshire Public Works
Department as the first state facility to install a geothermal system. Due to the
NHPWD’s lack of experience and the fact that they had to go with the lowest
bidder who then subcontracted out various parts, the system was delivered with
multiple challenges which required time and money to fix. A key lesson here is
to do as much homework as possible to make up for the experience your agency
may lack. While states must follow certain contracting rules, at a minimum, try to
ensure that there is one company, ideally one with local expertise, to manage the
entire project to ensure a seamless product and installation. On the flip side, the
solar roof was a great success because they hired a local contractor who designed
and installed the system. The bid process was a success as well since they bid
for solar with a roof component vs. bidding for a building with a geothermal
component. The reserve is already seeing about 20% energy saving. The roof
is projected to last about 40 years, almost twice that of an asphalt roof. Beyond
energy and materials savings, staff and visitors love coming to a green building.
For more information, contact the Great Bay Reserve.

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4. Materials and resource conservation
Preventing and recycling waste reduces depletion of natural resources, creates less pollution
by reducing manufacturing and transportation-related emissions, uses less energy and water
compared to many virgin material product manufacturing processes, and reduces greenhouse
gasses by using less energy for manufacturing and transportation. It is important to purchase
products and employ processes that do not pollute or unnecessarily contribute to the waste
stream, do not adversely affect health, and do not deplete limited natural resources.
Questions to inform material and resource conservation include: Do you have a plan for
managing construction waste? Have you evaluated environmental trade-offs for materials and
resources? Have you considered recycled materials and deconstruction assemblies as much as
possible? Have you considered using renewable, locally produced and low energy materials to the
full extent possible?

5. Indoor environmental quality
Indoor environmental quality encompasses indoor air and water quality, aesthetics, ergonomics,
acoustics, lighting, and electromagnetic frequency levels. It is important to value decisions
about these items and engage building occupants in making these decisions, as well as allow for
personal control of these items where practicable.
Questions to inform indoor environmental quality include: How will you achieve a comfortable
and healthy air and water quality for occupants? How will you reduce pollutants inside the
facility? How will you ensure a productive work environment?

6. Operational efficiency
Operational Efficiency will be a direct result of taking all other sustainable building principles
into account for new buildings. A whole building design approach ultimately yields the
best returns in reduced impact to the environment, efficient operation, and effective work
environment.
Questions to inform operational efficiency include: Have you identified operational efficiency
targets, especially for energy and water efficiency? Have you created a schedule for assessing
those targets? Have you developed an operations and procedures manual so that systems can be
cared for appropriately? Have you identified personnel to monitor and maintain the facility?

V. Facility Upgrades
All reserves should try to evaluate where sustainability can be improved for each facility on
the reserve campus. Where possible, audits to assess water and energy inefficiencies should be
performed to understand usage and options for minimizing usage. This information should
Directly inform efforts to address the Reserve System sustainable building principles.

Reserve System Management Plan Guidelines and Resources

Questions to inform this section include: What are the most significant energy and water sinks
at the reserve? What actions can be implemented to reduce energy and water usage? What
actions can be taken to address the other sustainable building principles, including exterior work
associated with landscaping/xeriscaping? What are the sustainability goals and targets for these
specific upgrades? How will the reserve evaluate the efficacy of the improvements over time?
How will the reserve maintain upgrades and ensure systems and improvements remain efficient?

VI. Exhibits
Reserve exhibits provide important passive and active learning opportunities for a variety of
visitors about the dynamic processes and benefits of estuaries, as well as the pressures they
are under and what the public can do to protect these resources. Exhibits should be theme
based, address reserve priority issues, and convey the reserve’s key messages. Exhibits should
be evaluated periodically to determine how to incorporate new information and best engage
audiences.
This section should include a general description and cost estimate for new exhibits and/or
exhibit upgrades based on some form of needs assessment. When possible, use sustainable
materials, and where applicable discuss sustainable building principles.
Additionally, interpretive materials and signage can be found both inside facilities as well
as outside within demonstration sites, land trails, water trails, amphitheaters, etc. Consider
the range of experiences available to visitors, and provide description of planned outdoor
interpretive materials and/or exhibits. Cost estimates should be included and these activities
should also be based on projected visitor use needs and impacts.

References
Dewberry Design Group Incorporated (2004) National Estuarine Research Reserve System
Standard Reserve
Dewberry Design Group Incorporated (2004) National Estuarine Research Reserve Sustainable
Design Guidelines
Note: A full suite of references, tools, and resources can be found in Appendix 10 regarding
building codes and standards, climate change tools, and sustainable building principles.

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Land Acquisition Plan
About this Section
The land acquisition plan is a required element of a management plan, per the Federal Code of
Regulations 15 CFR 921.13. Estuaries, and their associated habitats, offer numerous and diverse
benefits to society and natural systems. Some of these benefits include storm buffers to protect
property from hurricanes; nurseries for commercially important marine species; areas for to
enjoy for recreation and aesthetics. However, human development has significantly eliminated or
degraded the habitats that provide those societal values. To address the conservation of coastal
habitats, the U.S. Commission on Ocean Policy in 2004 recommended that each state identify
priority coastal habitats and develop plans, in partnership with willing landowners, federal
agencies and others, for coastal and estuarine land conservation.
NOAA supports this recommendation through several acquisition investment tools under the
Coastal Zone Management Act (CZMA) of 1972, as amended, including the Coastal Resource
Improvement Program authorized under Section 306A, the Coastal and Estuarine Land
Conservation Program under Section 307A, and the Reserve System Land Acquisition and
Construction Program under Section 315. Each of these programs provides an opportunity to
conserve coastal habitats.
This plan should identify ecologically key land and water areas for acquisition, prioritize these
areas according to their relative importance for specific values, and describe strategies for
establishing adequate long-term state control over these areas.

Plan Contents
I. Acquisition Values
This section should describe the reserve’s acquisition values. These values will form the basis
of an acquisition plan. Essentially, the reserve needs to identify those ecological, historical,
conservation, cultural, recreational, and other values that are important when considering future
acquisitions. These values should be connected to the reserve’s management plan goals and
objectives.
Questions to inform this section include: What broad acquisition values are important to the
reserve? Do the acquisition values match the reserves’ management goals and objectives? Has the
reserve considered non-ecological values?

II. Priority Acquisition Areas
This section should describe priority areas targeted for potential future acquisitions. To support
the identification of these priority areas, the reserve must include a description of the criteria
used to prioritize areas, the prioritization process used, and any additional factors that influenced
the selection of these areas. These areas do not need to be at the parcel level, but at a level
appropriate for the reserve.

Reserve System Management Plan Guidelines and Resources

A. Descriptions of Priority Acquisition
Areas
The description of each priority area should
include key habitats, existing ecological value, and
proposed value to the reserve’s ecological unit and/
or programming. A map should be included of all
acquisition areas, within the context of the reserve
boundary to understand if priorities are contiguous
and/or connected to the reserve via water corridor.
Each target acquisition area description must be
sufficient to reference when developing potential
land acquisition grant applications.
Questions to inform this section include: Are
the acquisition areas adjacent to existing reserve
boundaries (core or buffer)? Is there sufficient
existing information available to describe each area?
What are the key habitats within each area? How
are these areas contributing to protecting and/or
enhancing the ecological unit and/or programming
at the reserve? Does the reserve have the capability
to produce high quality maps of the areas? What
key values are supported through the targeted areas?
Optional Elements for Priority Acquisition Areas
The reserve could enhance their priority area
descriptions by including maps of important
non-ecological acquisition values within priority
areas. This supporting visualization could identify
important cultural resources; access pathways,
consumptive and non-consumptive recreation uses,
historic structures, education potential, etc.

B. Prioritization Process and Criteria
The reserve should describe the prioritization
process used to identify and rank the acquisition
areas. Key to this process is the identification of
ranking criteria. The criteria developed by a reserve
should incorporate climate and non-climate factors
into the prioritization process. These criteria are
typically created by the reserve staff with input
from partners, the reserve advisory board and
are linked tightly to objectives within the reserve
strategic plan. Benefits of creating criteria include:

Land Acquisition Plan
_Reserve Acquisition Values
_Priority Acquisition Areas
_Description of acquisition areas
_Map of acquisition areas
_Prioritization process
_Climate and non-climate
stressors
_Map of important nonecological acquisition values
within priority areas ♦
_Priority Areas Acquisition Strategy
_Tract acquisition strategy
_Tract ecological and/or
programmatic values
_Preferred methods for establishing
state control
_Fair market value estimates
_Potential acquisition partners
_Funding sources
_Estimated acquisition timeline
_Map detailing land uses on public
and private tracts outside the
reserve boundaries ♦
_Management and/or stewardship
considerations for acquisition
priorities ♦
_Description of collaborative
process used in joint acquisition
projects ♦

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○○
○○
○○
○○
○○

Help reserve managers, staff and partners visualize the conservation priorities
Provide a strategic approach to conserving ecosystem functions and services
Improve ecosystem and community resilience to climate and weather impacts
Leverage partners in support of reserve priorities
Improve the management of investment risks

Questions that inform this section include: Has the reserve identified a process or strategy for
acquiring new areas? What ranking criteria does the reserve use for prioritizing acquisition
areas? Is the prioritization process linked to the reserve management plan or other conservation
priorities within the state? Has the reserve sought the input of the Reserve Advisory Board or
other stakeholders? Has the reserve developed criteria that account for climate and non-climate
factors?

C. Factoring Non-Climate and Climate Stressors into Acquisition Planning
Historically, acquisition planning looked at a variety of anthropogenic and natural stressors to
support the prioritization process. Given the limited resources of states and land trusts, this
process is useful in identifying targets of future land conservation investments. Some of the
types of stressors considered in the past include the threat of development, invasive species, land
zoning, etc. Climate related stressor have not been commonly factored into this process.
In 2010, OCRM and the Office of Habitat Conservation jointly developed the NOAA
Programmatic Framework for Considering Climate Change Impacts in Coastal Habitat
Restoration, Land Acquisition and Facility Development Investments which identifies a
framework for considering climate change impacts in planning and decision-making for coastal
investments in restoration, facilities development and land acquisition. This framework provides
that new or updated acquisitions plans that are part of reserve management plans must integrate
climate considerations.
Reserves should create a set of climate considerations or criteria that are reflected in the
prioritization of acquisition areas. Climate related criteria developed by the reserve should be
applied equally to the prioritization process rather than outweighing other values or factors.
When factoring in climate stressors the reserve should also consider short and long-term
impacts. Some examples of climate stressors used to develop criteria might include changes
in relative sea or lake levels; changes in storm intensity, and changes in precipitation patterns.
(CELCP Guide, 2011)
Example Climate Stressor-Impact Links for Acquisition

Stressor

Short-term Impact

Sea Level Rise

↑ Inundation, ↑coastal erosion, ∆
salinity, functional ∆ in habitats

Storm Intensity

↑ storm surge, ↑coastal erosion

Storm Intensity

↑↓drought, ∆ salinity, ∆ sediment
and pollutant loadings, ↑flooding

Long-term Impact
disappearance of habitats, ∆
species diversity, functional ∆ in
habitats, habitat migration
damage to key habitats, ∆ species
diversity
∆ water quality, ∆ species
diversity, functional ∆ in habitats

Reserve System Management Plan Guidelines and Resources

In addition to impacts, reserves should value any potential ecological benefits derived from
climate stressors. Benefits could include creating habitat migration corridors, creating refugia
for sensitive species, and buffering for storms.
When identifying and describing climate and non-climate stressors, consider the following
questions to inform this section: What climate stressors are most relevant to the reserve?
What are the potential short and long-term impacts linked to the stressors? How will already
identified acquisition priorities be impacted by climate stressors? How can the reserve maintain
the ecological unit with key acquisitions? Are there other climate change planning documents
applicable to the reserve acquisition plan? What adaptive benefits or values are important
to the reserve when addressing climate impacts? What climate criteria are considered in the
prioritization of acquisition areas?

Example prioritization criteria for climate change considerations include:
□□ Degree of sensitivity of the area to locally relevant climate change impacts
□□ Impact to area’s primary acquisition values
□□ Resilience of the area to climate impacts that could include:
○○ Connectivity of habitats to allow for species migration
○○ Protect key ecosystem features that play a significant role in maintaining system
functions and natural processes
○○ Conserve habitat and species diversity
○○ Reduce anthropogenic stressors to existing habitats and conservation values
□□ Exposure to climate impacts over time. This could mean a 30 year time horizon but
ideally a 50 or 100 year time horizon should be considered.
□□ Elevation, especially important in coastal areas impacted by sea level change

What non-climate stressors are most relevant to the reserve? What are the potential short and
long-term impacts linked to the stressors or threats? How will already identified acquisition
priorities be impacted by these stressors? What adaptive benefits or values are important to the
reserve when addressing non-climate impacts? What non-climate criteria are considered in the
prioritization of acquisition areas?

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Example prioritization criteria for non-climate considerations include:
□□ Immediate threats of development
□□ Impact to area’s primary acquisition values
□□ Resilience of the area to anthropogenic impacts that could include:
○○ Connectivity of habitats to allow for species migration
○○ Protect key ecosystem features that play a significant role in maintaining system
functions and natural processes
○○ Conserve habitat and species diversity
□□ Exposure to invasive species impacts over time.
□□ Existing zoning practices
□□ Visitor uses impacts

III. Priority Areas Acquisition Strategy
Once priority acquisition areas have been established, the reserve should consider how it will
acquire lands and waters within an acquisition area. Tracts within larger areas identified should
be identified to the best of the reserve’s ability. Ranking priority tracts targeted for acquisition
provides reserves the opportunity to efficiently allocate limited acquisition resources to land or
waters that best support ecological functions and/or programmatic goals and objectives laid out
in the management plan. A table or list of the ranked areas should be included in the plan.
The reserve should describe the strategy or process used for establishing long-term protection to
ensure a stable environment for research and education within acquisition areas. These strategies
may be stated generally as they may be applied to all acquisition areas; however, if knowledge of a
particular strategy is applicable to specific smaller areas or tracts, then that should be identified. If
applicable, any required state level acquisition strategies should be described in this section.
It will also be important to understand how these acquisition strategies are consistent with
federal and state requirements and processes, as well as if acquisition projects are consistent and
complementary to other federal and state acquisition program plans, e.g. Coastal and Estuarine
Land Conservation Plans. The coordination with the state CELCP plan should be specifically
discussed, as well as coordination with other relevant conservation plans linked to reserve landowning partners.
Note: The reserve may choose to not identify specific parcels to target for future acquisition under the plan. These
parcels can be grouped together into tracts or subareas for the purpose of creating an acquisition strategy. In most
cases, reserves choose not to identify targeted parcels due to local considerations.

Reserve System Management Plan Guidelines and Resources

For each ranked priority area, and if possible, the tracts within the larger area, the following
should be identified and described:
□□
□□
□□
□□
□□
□□
□□

Acquisition strategy
Ecological and/or programmatic values
Preferred method for establishing state control should
Fair market values within acquisition areas
Potential acquisition partners
Potential funding sources
Acquisition timeline; and other supporting information, as applicable

Questions to inform this section include: Has the reserve discussed pros and cons of various
processes or strategies for acquiring new tracts/areas? Does reserve staff understand different
mechanisms for acquisition? Has the reserve considered the subsequent stewardship of areas
and parcels targeted for acquisition? What is the reserve’s timeline for acquisition of selected
priority areas within a 5-year timeframe? How does “core” verse “buffer” impact acquisition
planning? Who are the reserve’s potential partners or sources of match for acquisition
projects?

A. Tract Acquisition Strategy
The reserve should briefly describe the strategy or process used for establishing long-term
protection to ensure a stable environment for research and education. Various strategies may
be of value; for example, reserves could focus at a landscape scale (i.e. Green Infrastructure)
or use a threat-based approach, using reserve stressors like land conversion or development as
a key attribute.

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B. Tract Ecological or Programmatic Values
The reserve should describe the ecological or programmatic values for the tracts within each
prioritized area, or per area as applicable. Identifying these values for individual tracts will help
the reserve rank tracts for future acquisition opportunities.

C. Preferred Methods for Establishing State Control
According to Reserve System regulations, a reserve must establish adequate state control over
new areas acquired for inclusion into the reserve boundary. Specifically, per 15 CFR 921.13:
In selecting a preferred method(s) for establishing adequate state control over areas within
the proposed boundaries of the reserve, the state shall perform specific steps for each parcel
determined to be part of the key land and water areas (control over which is necessary to
protect the integrity of the Reserve for research purposes), and for those parcels required for
research and interpretive support facilities or buffer purposes.

(A) Determine, with appropriate justification, the minimum level of control(s) required
[e.g., management agreement, regulation, less-than-fee simple property interest (e.g.,
conservation easement), fee simple property acquisition, or a combination of these
approaches]. This does not preclude the future necessity of increasing the level of state
control;
(B) Identify the level of existing state control(s);
(C) Identify the level of additional state control(s), if any, necessary to meet the minimum
requirements identified in paragraph (a)(7)(i)(A) of this section;
(D) Examine all reasonable alternatives for attaining the level of control identified in
paragraph (a)(7)(i)(C) of this section, and perform a cost analysis of each; and,
(E) Rank, in order of cost, the methods (including acquisition) identified in paragraph
(a)(7)(i)(D) of this section.(ii) An assessment of the relative cost-effectiveness of
control alternatives shall include a reasonable estimate of both short-term costs (e.g.,
acquisition of property interests, regulatory program development including associated
enforcement costs, negotiation, adjudication, etc.) and long-term costs (e.g., monitoring,
enforcement, adjudication, management and coordination). In selecting a preferred
method(s) for establishing adequate state control over each parcel examined under the
process described above, the state shall give priority consideration to the least costly
method(s) of attaining the minimum level of long-term control required.
As a result, the reserve will need to identify the method(s) or mechanism(s) of acquisition which
the state proposes to use to establish adequate long-term state control over areas targeted for
acquisition. Some of the acquisition mechanisms potentially available to reserves include:

Reserve System Management Plan Guidelines and Resources

□□ Fee Simple - absolute title to land, free of any conditions, limitations, restrictions, or
other claims against the title, which one can sell or pass to another by will or inheritance.
A fee simple title has a virtually indefinite duration.
□□ Conservation Easement – a legal agreement between a landowner and a land trust
or government agency that permanently limits uses of the land in order to protect
its conservation values. It allows landowners to continue to own and use their land,
and they can also sell it or pass it on to heirs. Examples of acquired easement rights
include riparian, subsurface mineral, agricultural, residential development, viewshed, and
groundwater.
□□ Donation - An outright donation of land to a trust or federal, state, or local governments
that may provide the donor with a charitable income tax deduction and a reduction in
the value of one’s taxable estate.

Mission Aransas Reserve: Stewardship Considerations at
Fennessey Ranch
As part of the designation of the Mission-Aransas Reserve in 2006, a
conservation easement was acquired on a private working ranch that allows
multiple uses including hunting, fishing, nature tours, and cattle ranching, among
others. Supporting these diverse business ventures, the ranch includes diverse
habitats from freshwater wetlands, riparian corridors and coastal prairie. All these
habitats support a wide range of fauna and flora, including over 400 species of
birds.
The conservation easement provides the legal foundation for the collaborative
management of the property between the Reserve and the property owners. A
joint management plan was developed that allows for the generation of revenue
from compatible uses and ensures that the conservation values of the ranch
will continue to support wildlife, biodiversity, as well as, reserve research and
education opportunities well into the future. For more information: http://www.
missionaransas.org

D. Fair Market Value Estimates
Reserves should look at the fair market value of any property interest within the prioritized
acquisition areas. Ownership and fair market values of tracts can be stated in general terms
within the plan. It is recommended that individual tract ownership not be identified.

E. Potential Acquisition Partners
The reserve should identify potential acquisition partners. These could include a variety of interested
local, regional, or national land trusts (e.g., The Conservation Fund, The Nature Conservancy, Weeks
Bay Foundation, The Elkhorn Slough Foundation), state land management agencies, municipalities,
local governments, and reserve Friends groups. Partners can be valuable assets to a reserve by

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providing real estate expertise, conducting property appraisals, contacting willing sellers, offering
financial and legal assistance, and monitoring easement properties among others.

Weeks Bay Reserve: Leveraging Partners to Acquire Land
In 2010, a diverse partnership secured the acquisition of 820 contiguous acres of
forested wetland habitats adjacent to the Weeks Bay Reserve. A diverse coalition
comprised of the Conservation Fund, Weeks Bay Foundation, Baldwin County
Commission, Alabama Forever Wild through the Alabama Department of
Conservation and Natural Resources (ADCNR), and the National Oceanic &
Atmospheric Administration (NOAA) contributed to the success of the project.
To acquire the property for conservation purposes, ADCNR brought together
funding from different sources including NOAA, Forever Wild, and Coastal Impact
Assistance Program. Working with ADCNR, the local and national land trusts became
the contracting entity with the willing seller. In that role, they researched the title and
completed an appraisal of the property. Without the contributions of the various
partners, the Reserve would have not been able to acquire property. The resulting
federal, state, local and land trust partnership has made a significant contribution to
the conservation of coastal habitats and contributes to improved public access, water
quality, and opportunities for research and education. These partnerships were the
key factor to implementing the largest addition to the Reserve since its designation in
1986.

F. Funding Sources
The reserve should identify potential sources of acquisition funds. These could include
potential sources of matching funds. Funding sources could be federal, state, foundation, or
private. Common examples of funding sources are provided in the tools and resources section.

G. Estimated Acquisition Timeline
The plan should include a schedule estimating the time required to complete the process of
establishing adequate state control over parcels within priority acquisition areas.
Optional Elements Supporting Priority Area Acquisition Strategy
The Reserve could enhance their priority area descriptions by including optional maps detailing
the range of land uses on public and private parcels within the reserve watershed and priority
acquisition areas. Looking towards the future, the reserve should detail some of the potential
management and stewardship considerations for areas or tracts post-acquisition. These
management considerations should link to the reserve’s management plan and restoration plan
(if applicable). In addition to looking at potential partners, the reserve could also detail the
collaborative process it plans to implement with those partners for joint acquisition projects.

Reserve System Management Plan Guidelines and Resources

References
National Oceanic and Atmospheric Administration (May 2010). Programmatic Framework for
Considering Climate Change Impacts in Coastal Habitat Restoration, Land Acquisition, and
Facility Development Investments.
U.S. Commission on Ocean Policy (2004) An Ocean Blueprint for the 21st Century - Final Report.
Washington, DC, 2004. ISBN#0–9759462–0–X

Tools and Resources
NOAA’s Habitat Priority Planner: A GIS tool to help identify and prioritize areas for
conservation, restoration, and planning.
NOAA’s Sea Level Rise and Coastal Flooding Impacts Viewer shows how various levels of
sea level rise will impact coastal communities. The current project areas include Mississippi,
Alabama, and parts of Texas and Florida, with additional coastal counties to be added in the
near future. Visuals and the accompanying data and information cover sea level rise inundation,
uncertainty, flood frequency, marsh impacts, and socioeconomics.
Funding Opportunities
U.S. Department of Agriculture - Forest Legacy Program: Grants available to help landowners,
state and local governments, and private land trusts identify and protect environmentally
important forest lands that are threatened by present and future conversion to non-forest uses.
The Forest Legacy Program is designed to assure that both traditional uses of private lands and
the public values of America’s forest resources are protected.
U.S. Fish and Wildlife Service’s North American Wetland Conservation Act Program: Grants
are available to fund conservation of wetlands and wetland-dependent fish and wildlife
(waterfowl) through acquisition, restoration and/or enhancement. Grants may be provided
directly to state, local governments, and non-profit organizations. This program strongly prefers
to fund diverse conservation partnerships.
U.S. Fish and Wildlife Service’s Coastal Wetland Grant Program: Grants are awarded to Great
Lakes and coastal states and trust territories for projects that restore, acquire, manage, or
enhance coastal lands and waters. Projects must provide for the long-term conservation of such
lands and waters and the fish and wildlife dependent on them. The Coastal Grants Program
gives priority to the restoration of barrier islands associated maritime forest, coastal wetlands
ecosystems, endangered species, anadromous fish species and to the building of financial and
cooperative, private and governmental partnerships.
U.S. Fish and Wildlife Service’s Endangered Species Recovery Lands Program: Grants are
provided to states and territories for acquisitions of habitat that support approved recovery
plans.

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Natural Resources Conservation Service’s Grant Programs: The NRCS has a number of
cost-share/grant programs that involved acquisition of conservation easements including
the Conservation Reserve Program, Wetland Reserve Program, and Conservation Reserve
Enhancement Program. The Wetland Reserve Program provides technical and financial
assistance to eligible landowners to address wetland, wildlife habitat, soil, water, and related
natural resources concerns on private lands in an environmentally beneficial and cost-effective
manner. The program provides an opportunity for landowners to receive financial incentives to
enhance wetlands in exchange for retiring marginal land from agriculture. This program involves
the establishment of permanent or 30-year conservation easements or restoration cost-share
funds.
NOAA’s Coastal and Estuarine Land Conservation Program: Grants to state and local
governments to purchase significant coastal and estuarine lands, or conservation easements on
such lands, from willing sellers.
NOAA’s National Estuarine Research Reserve System PAC: Grants to state host agencies of
reserves to support land acquisition for projects identified in approved reserve management
plans.

Reserve System Management Plan Guidelines and Resources

Resource Manipulation Plan
About this Section
The resource manipulation plan is an optional
element of a management plan, per the Federal
Code of Regulations 15 CFR 921.13, and should
be included when resource manipulation activities
are occurring within the buffer areas of the
reserve. Resource manipulation can occur only in
the reserve buffer and refers to long-term preexisting (prior to designation) manipulation for
reasons not related to research or restoration.
Most often resource manipulation is occurring for
the benefit of human communities. Examples of
resource manipulation activities include regulation
of water flow, sediment management, timbering,
or aquaculture. These activities should be reviewed
to ensure they are not preventing the reserve from
serving its designated purpose.

Resource Manipulation Plan
(Optional)

_Current and proposed resource
manipulation activities
_Map of manipulation activities
_Permitting/approval requirements
_Climate and non-climate stressors
_Current and potential partners
_Impacts of activities

This plan should identify and describe priorities for resource manipulation, influence of
stressors on these activities, requirements for conducting them, justification for continuing them,
and resources and partners devoted to them.

Plan Contents
I. Current and Proposed Resource Manipulation
This section should describe the reserve’s current or planned resource manipulation activities.
Each activity, current or planned, should generally support the reserve’s management plan goals
and objectives and not create any negative impact to resources. In addition, expected outcomes
of the resource manipulation activities should be described generally. Outcomes could be
ecological, social, or economic in nature and should not be detrimental to the ecology of the
reserve. Given that reserves have limited resources, the reserve should prioritize what activities
they will implement or continue over the 5-year management planning period.
The reserve should justify why the current and planned resource manipulation activities are
useful and/or at minimum, not detrimental to reserve resources. It will be helpful to reference
local, state, or federal priorities or plans that support these activities and are important to the
reserve. A reserve boundary map should be provided that spatially references the current and
planned resource manipulation activities and key resources or habitats important to these
manipulations.
Question to inform this section include: What are the reserve’s current or proposed resource
manipulation activities? How are the activities identified connected the reserve’s management

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plan goals and objectives? What are the priorities for the reserve and why? What are the potential
benefits of conducting resource manipulation activities? At what scale are these manipulations
occurring? What local, state, and/or federal authorities or priorities support current and
proposed resource manipulation activities?

A. Factoring Non-Climate and Climate Stressors into Resource Manipulation
Planning
The reserve should consider stressors that may impact resource manipulation activities, including
climate considerations that factor into prioritizing these activities. When available, incorporate
downscaled climate model information and other climate trend information to support the
prioritization process. Incorporating these considerations into the prioritization process will help
the reserve create a matrix of place-based climate related impacts to reserve resources or habitats
associated to resource manipulation activities.
Questions to inform this section include: What climate stressors could impact resource
manipulation activities? Are these impacts beneficial or harmful to key reserve resources or
habitats? Will resource manipulation activities enhance resilience to climate stressors?

B. Current and potential partners
Briefly identify reserve partners that support current or planned resource manipulation activities.
Partners may be key players in achieving successful activity outcomes.

C. Permitting or Approval Requirements
The reserve should briefly describe any permits or other regulatory or administrative
requirements for resource manipulation activities within reserve boundaries. Permits or
regulatory requirements will vary based on each activity. An example of a permit could include
an incidental take permit issued by USFWS for certain species.
Questions to inform this section include: Have you contacted regulatory officials within your
state or county to inquire about permitting requirements for resource manipulation activities.
If the reserve is not the primary party responsible for land stewardship or management, have
those entities been included in the development of the proposed activity? What state and federal
permitting or regulatory requirements apply to current and proposed manipulation activities?

D. Impacts of Resource Manipulation Activities
Any time resources are manipulated by humans, opportunities exist for ecological disturbance
beyond intention. These activities should be closely monitored for intended and unintended
consequence to ensure that key reserve resources are protected.
Questions to inform this section include: Do the manipulation activities have the potential to
negatively impact key land and water areas or habitats? Are resource manipulation activities
occurring in areas considered for core area expansion? How will the reserve monitor these
activities and their impacts?

Reserve System Management Plan Guidelines and Resources

Restoration Plan
About this Section
The restoration plan is an optional element of
“Here is the means to
a management plan, per the Federal Code of
end the great extinction
Regulations 15 CFR 921.13. Most reserves have
spasm. The next century
habitats that are in less than pristine condition due to
will, I believe, be the era
land use and/or climate-related impacts. Restoration
of restoration in ecology.”
offers the opportunity for reserves to return habitat
E.O.Wilson
to its natural functioning, and in doing so, inform
the practice of restoration through a hypothesisdriven restoration design. Restoration planning should take advantage of the full suite of
reserve programmatic capability to the extent possible and address climate and anthropogenic
stressors in considering the resilience, and hence prioritization, of restoration activities. Within
the Reserve System, reserves span the spectrum of restoration needs from relative intact
systems with no readily apparent need for restoration, to those altered where restoration may be
the only way to achieve original function. The level of detail and priorities identified in this plan
will depend on where a reserve is along this continuum.
This plan should describe restoration priorities, process for determining those priorities,
influence of stressors on the priorities, project details (if available), and a monitoring strategy.
Background on restoration ecology and the Reserve System Restoration Science Strategy is
provided as context for the plan contents section.
What is Restoration Ecology?
Restoration ecology is the scientific study and practice of renewing and restoring degraded,
damaged, or destroyed ecosystems and habitats in the environment by active human
intervention and action, within a short time frame site using targeted actions to achieve relatively
self-sustaining ecological conditions. The Society for Ecological Restoration defines ecological
restoration as an “intentional activity that initiates or accelerates the recovery of an ecosystem
with respect to its health, integrity and sustainability.” (Society for Ecological Restoration, 2004)
The practice of ecological restoration encompasses a wide scope of projects such as restoration
of hydrology, regarding, shoreline erosion control, reforestation, local seed sourcing, removal of
non-native species, re-vegetation of disturbed areas, stream bank modifications, reintroduction
of native species, as well as habitat and range improvements for targeted areas within reserves.
What is restoration science in the Reserve System?
In 2002, a multi-disciplinary group of Reserve System staff and outside restoration experts
developed a Restoration Science Strategy that takes advantage of the unique capabilities of
the Reserve System within individual reserves and the System. The goal of the Strategy is to
“provide the scientific bases and technical expertise to restore, enhance, and maintain estuarine
ecosystems by developing and transferring effective approaches to identify, prioritize, restore,
and monitor degraded or lost coastal habitat.”

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The Strategy identifies a number of over-arching restoration-related questions that the Reserve
System is poised to address through an inquiry-based approach to restoration. Questions posed
by the plan include:
Once habitats and functions of value in estuaries are degraded, is this reversible and how? Can
these functions be reversed to a pre-existing condition; are all functions restorable? When is
rehabilitation to another type of habitat more appropriate than restoration?
What is the importance of topographical complexity to restoration? What is the relationship
between topographical complexity and biodiversity? What is the relationship between habitat
structure and function?
What do you monitor at an individual reserve that would help measure the cumulative benefit
of many restoration projects? How long should projects be monitored to ensure long-term
success? What steps should be involved in restoration projects? What level of effort is
appropriate? What are the tradeoffs between tremendous effort up front and small efforts over
a longer period of time?
Additional considerations include ecosystem services. Considering the value of coastal resources
and potential climate impacts and other stressors effects on these values, how can ecosystem
services be maintained or enhanced to increase resilience of habitats and communities? What
services are most beneficial to the reserve and surrounding natural and human communities?
How will climate impacts generally be factored into restoration decisions?
The Strategy promotes collaboration among reserves to address many of these questions
and hence, contribute to scientific literature and policy development. The Reserve System
can play a national role by developing innovative technology and methods of evaluating
restoration performance, serving as local reference sites, translating and transferring restoration
information, providing scientific and technical advice to support policy and regulatory decisions,
and building support for regional science coordination. A reserve’s restoration plan should not
only focus on restoring habitat in the reserve, but explore what role(s) the reserve’s restoration
or other on-site capacity can play in promoting the priorities of the Reserve System Restoration
Strategy.
Reserves should follow the guiding principles for restoration set forth within the Strategy:
○○ Preservation and conservation of existing habitat must occur along with restoration
○○ Reserve participation is voluntary and additional funding is required for
implementation
○○ Reserves will not support habitat manipulation that causes adverse impacts
○○ A partnered approach with science and management organizations or professional
○○ Integrated application of research, education, and stewardship capacities
○○ Science activities will be subject to a peer review process.

Reserve System Management Plan Guidelines and Resources

Plan Contents
I. Priority Restoration Areas
A. Description of restoration areas
A description of each priority habitat
identified for restoration should be included
which indicates why the restoration is needed
to protect and maintain the ecological unit
of the reserve. Additionally, the ultimate
ecological condition, or general outcome,
of each area should be described. A map
should be included of all areas targeted for
restoration. Refer to the Reserve System
habitat classification system as appropriate
to describe current and project future habitat
states.

Restoration Plan
(optional)

_Priority restoration areas
_Description of restoration areas/habitats
_Map of restoration areas
_Climate and non-climate stressors
_Prioritization process and criteria
_Priority restoration projects
_Acres and outcomes
_Partners
_ Monitoring and evaluation strategies ♦

Questions to inform this section include: What habitats are most important to restore to ensure
the integrity of the reserve’s ecological unit? What are regional or national restoration-related
science questions that can be informed by an inquiry-approach to restoration projects at the
reserve? What restoration projects could inform broader stakeholder and/or partner needs? Is
restoration to a pre-existing state obtainable and sustainable, or should manipulation to a new
condition more sustainable?

B. Factoring climate and non-climate stressors into restoration planning
When prioritizing restoration areas it will be important to develop criteria that help the reserve
identify those areas most important to ensuring the integrity of the reserve’s ecological unit.
As part of this prioritization process, it will be important to factor climate and non-climate
stressors into the process to determine timing and challenges for restoration efforts. Reserve
understanding of anthropogenic drivers on their reserve habitats and ecosystems varies
considerably. In some cases, a reserve may have the ability to control those impacts or stressors.
In those instances, the reserve should incorporate controls in project designs. Some potential
stressors to consider include land use impacts such as sediment and nutrient loading, as well as
physical barriers to habitat migration such as dams, roads, and levees.
Questions to inform this section include: What stressors will impact the success and resilience
of reserve habitats identified to be restored? Has the reserve considered climate impacts such
as change in local sea level, inundation patterns, temperature changes, soil moisture changes,
precipitation patterns, and storm intensity/pattern changes?

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C. Prioritizing Restoration Projects
Given limited resources, it will be important to determine what criteria and process are in place
to prioritize restoration activities. It is advised that the plan outline the process the reserve will
take to develop and apply identified criteria for determining restoration priorities. Criteria can be
ecological and logistical in nature.
For example, the reserve may want to consider ecological criteria that address the following
questions: Are there threatened and endangered species that need to be protected? Are there
needs to buffer resources from storm surge? Are there rare fauna or flora communities that
need to be protected? What areas are important for ensuring habitat resiliency in the face of
key climate and anthropogenic stressors? Is there any information lacking that would impede
restoration success?
The reserve may also want to factor in logistical criteria that address the following questions:
Is there available funding to conduct the project and ensure maintenance and monitoring? Can
permits be obtained? Are partnerships required to ensure project success? Are those partners
committed to the project? Are volunteers integral to the success of the project?

II. Priority Restoration Projects
Where enough detail is available, it is advised that project level information be included to
leverage funding opportunities and share ideas with partners. Basic details for each project
should include a description of the project, the intended outcome, the affected acreage, partners
involved, monitoring strategy, and a site map noting the area to be restored in the context
of the reserve boundary. Additionally, please note how local and/or regional policy makers,
scientists, and/or restoration practitioners have been or will be involved in the design, and/
or implementation of the project. To the extent possible, restoration projects should include
a restoration science element that links to the Reserve System Restoration Science Plan. A
restoration science element may include reference site data and/or restoration-specific questions
that can be examined within the context of the restoration project.
Please describe how reserve programs and assets will support the project; note how System-wide
Monitoring Program data will be used, and how CTP and education program staff will be involved
in project development, communication of results, and/or resulting best management practices.
Reserves may also be engaged in projects by serving as a reference site and not an active area for restoration.
Please note where this is occurring and if restoration practitioners in the area are using SWMP data.

V. Monitoring and Evaluation
In order to effectively monitor and evaluate the success of restoration habitats, consider the
following questions: Has habitat function and structure been established to meet targets? Has
biodiversity been established to meet targets? What are the long-term monitoring plans? Were
methods used appropriate for meeting targets? Were new protocols used and if so were they
effective in meeting targets?

Reserve System Management Plan Guidelines and Resources

South Slough Reserve: Winchester Tidelands Restoration Project
(WTRP)
The Winchester Tidelands is an area within the South Slough Reserve representative
of converted and degraded tidal wetlands throughout coastal Oregon and northern
California. In 1993, South Slough staff assembled an advisory group of specialists from
universities, local and federal agencies, NGO’, and consulting firms with expertise in
restoration and estuarine ecology, tidal hydrology, fish biology, program development,
project engineering, and permitting to help design a multi-phase project to test the
effectiveness of a variety of restoration methods. They have published their results,
including research on concepts, methods and lessons learned to increase restoration
practitioner’s knowledge throughout the Pacific Northwest. (http://www.oregon.gov/
DSL/SSNERR/CRMSmain.shtml)

References
Clewell, Andre; Rieger, John; and Munro, John. (2005) Society for Ecological Restoration
International: Guidelines for Developing and Managing Ecological Restoration Projects
Reserve System Restoration Science Plan and Implementation Strategy (2002) available via
Reserve System Intranet under Restoration.
National Marine Fisheries Service (2010) Guidelines for Incorporating Sea Level Rise into
Restoration of Tidal Wetlands in the Northeast Accessed via Reserve System Intranet under
Restoration.

Tools and Resources
Planning for Sea Level Rise in the Northeast: Considerations for the Implementation of
Tidal Wetland Habitat Restoration Projects Workshop Report (2011) NOAA’s Restoration
Center, Northeast Region.
NOAA Habitat Blueprint: A framework to improve habitat for fisheries, marine life, and
coastal communities (2012) NOAA Office of Habitat Conservation, National Marine Fisheries
Service.
NOAA’s Habitat Priority Planner: A GIS tool to help identify and prioritize areas for
conservation, restoration, and planning.

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