President of Sea Education Association, Member of the Ocean Advisory Commission, Former Mayor of New Bedford , Former Director of the federal Office of Sustainable Development for President Bill Clinton
By: Matthew Boger
John Bullard is President of the Sea Education Association (SEA) in Woods Hole. SEA teaches college students and others about the oceans with a 12 week SEA Semester. Students spend 6 weeks on campus learning oceanography, nautical science, and maritime studies and then aboard one of two 135' tall ships for 6 weeks sailing and doing research in the Atlantic or Pacific. Prior to joining SEA, John Bullard served on Chancellor Jean MacCormack's senior staff at the University of Massachusetts Dartmouth.
From 1986 to 1992 John served as Mayor of the City of New Bedford. Following his tenure as Mayor he joined the Clinton administration in 1993. As head of the first federal Office of Sustainable Development, John developed programs to assist fishing families in New England, the Gulf of Mexico, the Pacific Northwest and Alaska. He also worked on the President's Council on Sustainable Development developing policies to unite the goals of economic opportunity, environmental health and social equity.
Currently, he chairs the Mayor's Sustainability Task Force and the SouthCoast Commuter Rail Task Force. He serves on the Boards of the Coalition for Buzzards Bay, the Massachusetts Ocean Partnership Fund (MOP), and the Massachusetts Maritime Academy. He earned his Bachelor of Arts magna cum laude at Harvard in 1969, and received both a Master of Architecture and a Master of City Planning from M.I.T. in 1974. He has lectured widely and received numerous awards including an Honorary Master of Public Service from UMass Dartmouth.
Q.) The Massachusetts Oceans Act calls for a plan to be developed by December 31, 2009. This gives the Ocean Advisory Commission and the Ocean Science Advisory Council a very short period of time to accomplish its goal of developing an all encompassing ocean plan. Please discuss your focus and role as one of seventeen members on the Commission?
A.) The legislation calls for various constituents to be represented on the Commission and I have been appointed to represent the Southeastern Regional Planning and Economic Development District (SRPEDD). My interest is to help create the strongest plan possible while addressing the importance of the economic, social and environmental benefits that the ocean provides SRPEDD and the entire state each and every day.
The legislation is very ambitious in terms of a timeline and I applaud that. We will develop a draft plan by June of next year and a final plan must be completed by the end of December 2009. To add to this short time frame, we will be basing our decisions based on scientific data which is being compiled by the Ocean Science Advisory Council. The time constraints means that we will collect and review the data we have, but also develop a method to add new data continuously, and that is a critical function. I see the short time period as an advantage for it will force us to be creative and make tough decisions to get a policy down on paper and motivate us to move forward.
When I worked in the Clinton Administration, half of my job was dealing with the fallout around the country of fisheries collapses. My experience in fisheries management is that when you are facing difficult decisions, it is easy to postpone those decisions by saying we need more data, and the result is nothing happens. This law is going to eliminate procrastination and inaction. I believe the timetable set by the legislature is a great way to motivate us and gives us directions by saying, "do the best you can in terms of collecting data, determine what information we still need, and create a policy".
I would point out that advisory is our middle name, Ocean Advisory Commission, and that is important to keep in mind. The responsibility of crafting this plan lies with the state, in the capable hands of Governor Deval Patrick, EEA Secretary Ian Bowles, and Deerin Babb-Brott. They have taken on this challenge enthusiastically in a very difficult financial climate, dedicated new resources by hiring staff to focus specifically on this plan, and I commend them for that.
When I look at an ocean management plan, from my background as a former local elected official, I think of zoning as the metaphor that works for me. This term may not work for everyone, but, in my eyes, that is what we are talking about. Zoning is a critical tool to help municipalities make decisions, determining what a parcel of land can and cannot be used for. The way that ocean zoning is different is that when you are dealing with land you are talking about a two dimensional zone - width and length. In the oceans, you need to not only add depth to make these decisions three dimensional, but also the seasonality and weather changes in New England really adds a fourth dimension. The challenge is how to put together a four dimensional zoning plan to determine the uses for our waters.
Q.) Along with serving as an Ocean Advisory Commissioner you also sit on the Governing Board of the Massachusetts Ocean Partnership (MOP). Please discuss MOP and the important role it plays in developing an ocean plan for Massachusetts.
A.) MOP is a unique and tremendously valuable partner with the state to assist in formulating this first in the nation ocean management plan. MOP provides tremendous scientific knowledge and financial support for this effort. I have heard of MOP described as a Non-Governmental Organization (NGO), but the more I think about it, the more I realize that it is really a NOO, a Non-Organizational Organization, for it is not your traditional non-profit organization. It is unique collaboration that brings together ocean stakeholders, many with competing interests, for the purpose of advancing integrated multi-use ocean management to support sustainable marine industries and resilient ocean ecosystems. I am convinced that it is this effort to use all our collective knowledge to assist the state, which will make the plan an overall success.
MOP is still seeking new Partners and welcomes everyone's involvement to ensure that we are creating the best ocean plan possible. This really is a revolutionary idea and one that I think will make our ocean plan the best it can be along with serving as an organizational template itself on how to create public policy.
Q.) Previously, you served in President Bill Clinton's Administration as Head of the federal Office of Sustainable Development. Please discuss how the ocean plan relates to issues dealing with sustainable development and the overall planning and use of our coastal waters?
A.) I think that sustainable development is a very appropriate philosophy for the ocean. Probably the most accepted definition of sustainable development came out of the United Nations' Brundtland Commission, named after its Chairman Gro Harlem Brundtland, former Prime Minister of Norway. That definition states that sustainable development is development that meets our needs today without compromising the ability of future generations to meet their own needs. That can be directly related to what we are doing here in Massachusetts with the oceans. It realizes that we need to identify our present priorities are but also realizes that the decisions we make will influence the activities and options of future generations.
The other lessons we can take from the philosophy of sustainable development are the three E's: Equity, Environment, and Economy. We have to promote social equity, protect and restore our environment, and increase economic opportunity. One is not more important than the other; they all need to be applied in unison. The process to accomplish that is to involve everyone, and MOP is helping to accomplish that. How do you make these decisions, balancing the ideals of the three E's, while at the same time increasing the opportunities for future generations? That is the very essence of what we are trying to achieve here in Massachusetts.
Q.) With the passage of the Massachusetts Oceans Act, Massachusetts becomes the first state in the nation to legislate an ocean plan. Please discuss the importance of this legislation and the influence it can have on policies developed by other states?
A.) This is a very exciting opportunity for several reasons. First we can lead by example. It is important to remember that because we are the first, many eyes will be upon us as we develop this ocean plan. Rob Moir, of the Ocean River Institute, gave a very interesting presentation at the Woods Hole public listening session that I attended. He discussed the development of the Stellwagen Bank Management Plan, an area located just off our coast. Even though this body of water is a one small area of the ocean, comments on that plan came from all over the country. In total, I think, 11, 000 comments were received. This tells me that even though we are talking about Massachusetts' state waters, there is a constituency that goes far beyond Massachusetts' borders. This is an important point to keep in mind, for the ocean really belongs to all of us, not just the people in one particular state.
I also believe that our efforts will indeed help to influence the decisions of other states as they develop their own ocean plans. We are in the process of looking at what other countries have done, and, in that respect, we are learning from their successes and failures, as others will learn from us. It is always hardest to be the first to do something, and I think our efforts will help pave an easier path for other states to follow.
Q.) Massachusetts has a rich history of commercial fishing. Please discuss the importance of developing an ocean plan and what are the main areas that the fishing industry is looking to be included in the plan.
A.) The primacy of fishing is reflected in the law, by stating that decisions relating to fisheries management will remain the sole responsibility of the Division of Marine Fisheries. My community of New Bedford is the nation's number one fishing port, with Dutch Harbor in Alaska coming in second. We are by far the most productive fishing port in the country. The importance of the ocean and fishing is not lost to us in New Bedford.
I think if you talk to fishermen in New Bedford, Gloucester, or anywhere, after they explain the importance of fishing to them and their livelihood, they would go on to say that there are a myriad of other valuable services provided by the ocean and they would want to see those interests protected as well. Fishermen care deeply about the ocean's natural environment and understand the need for continued protection of the natural wildlife swimming in the ocean. Other issues important to them include clean water, clean beaches, the enjoyment of the ocean's recreational uses, and transportation options for shipping and commuting. These are all important areas to consider while this plan is being developed and something that everyone can agree upon at a basic level.
Additionally, I think the impetus of this law is not driven by existing uses, but driven by the fact that there are going to be more and more demands placed by society on the ocean environment. Then you get down to it the ocean area we are discussing is not that large, and when you discuss the siting of facilities such as wind farms, aquaculture pens, dredge disposal sites, sanctuaries and the like, the fishing community is going to want to be informed to determine how it will influence the fishing in that area.
Q.) The legislation specifically states that the plan shall "address climate change and sea-level rise". How do you foresee the Commission addressing this provision of the Act?
A.) I am just one member of the Commission, but I think it would be wise to adopt the recommendations developed by the International Panel on Climate Change (IPCC) which are mitigation and adaptation. If we want to mitigate our impact on the environment by reducing our carbon footprint, then renewable energy is one of the ways to accomplish that. We are going to have to generate a lot more energy from solar, wind, tidal, and any other natural use we can get, and the ocean is going to play more of a role in helping to accomplish that. Right now, the ocean plays a role as a transport for oil and coal being shipped from one place to another. I am the past President for the Coalition for Buzzards Bay. Several years ago we dealt with the spill of 98 thousand gallons of oil into Buzzards Bay. That transportation is a service proved by the ocean and that spill was one of the casualties of our use. Another casualty is the nitrogen loading in our waters, and one of the contributors to that are air-born particles coming from power plants. Our current use of energy already impacts and harms the ocean's environment.
The questions are: are there other environmentally friendly energy sources, and how do we make the best use of them? If we are going to embrace other energy sources that are cleaner than oil and coal what are they? If you talk about wind power, the question becomes how big, how many, and where should they be sited that respects the environment and, at the same time, receives maximum energy from the wind?
The IPCC states that there is enough momentum right now because of climate change that we need adapt. We are already experiencing higher sea levels and measuring greater acidification in the water. Because of climate change, species are required to adapt to the changes in water's temperature, different currents, and other factors. All these species are interdependent upon each other and the question becomes, are they going to be adapting and moving in the same direction, and at the same speed, as the species they prey on? These are all important questions that need to be asked and addressed. We are talking about a changing environment and not a static one, and a management plan can give us some direction on how to make those adaptations.
Q.) The term "appropriate scale" has been used regarding the siting of renewable energy facilities such as wind farms. What is your definition of "appropriate scale" and how do you think the Commission will address this issue?
A.) Appropriate is a vague term, but a good one, for it really relates to the specific environment you are looking at. I am happy with that language and it will be something that we as a Commission will spend time thinking about and relate it to different areas in the ocean. We also need to consider the goals of the state. For example, should we be getting a certain percentage of our energy from wind power, and I think the answer to that question is yes. The question then is how do we accomplish that? Do we look at wind power on the land or ocean, or both, and are we thinking about a lot of small wind farms spread across the water or a few larger scale wind farms consolidated to a few areas? I don't think there is a right or wrong answer to this question, but what I do know is that the decision needs to be based upon science.
We cannot fall back upon a Not In My Back Yard (NIMBY) position. That is just not acceptable. If we as a state determine that renewable energy is important then we need to move forward and determine where facilities should be sited. My rudimentary knowledge of wind turbines is that one of the major criteria for success is having lots of wind. That means we need to identify the areas that have maximum wind capability and find a way that puts the least pressure on the natural habitat. These are the types of questions that will help guide our decisions. Other important issues that need to be addressed are how we deal with private profit from a public resource and how to we balance people's natural enjoyment of the ocean with the energy needs we are seeking. The ocean's natural beauty means different things to different people. I, for one, think industrial size windmills are beautiful, but others don't.
The development of this plan will really benefit everyone. Take the example of Cape Wind. After seven years of debate there has been no action. Because of the challenges of climate change, we really don't have another seven years to address our energy needs. The ocean management plan will help us make decisions so we can move forward. Instead of reacting to a developer, we as a society should direct developers on where appropriate areas would be, and that will be a great change from where we are now. If we as a state determine where the best locations will be, developers will follow, I guarantee it.
Q.) Please discuss the importance of addressing the ocean's natural resources and balancing all the uses of the ocean with marine wildlife and natural habitat protection.
A.) There are many stakeholders involved in this process, including those who speak for those who cannot speak for themselves, such as natural resources and the inhabitants of the oceans. I know those interests are well represented by the MA Ocean Coalition, Mass Audubon, Conservation Law Foundation, Ocean Conservancy, and numerous others. I will say that I truly believe that the protection of the oceans is at the forefront of all our concerns. No one wants to drain the ocean of its resources, no matter who you are or what you represent. We all have an interest in preserving and protecting this natural resource so that we can continue to use, enjoy, and live off of it.
I would add that the current status quo is not friendly to natural resources and the marine environment. Anyone who says, I am an advocate for fish, birds, beaches, eelgrass, bay scallops, etc. and states that they want to protect the way things are done now, are simply not looking at the scientific data. The environment is changing, and it is not changing for the better. It is imperative that we do something about it, and that is exactly what we are doing with the Massachusetts ocean plan. Time is not on our side and the status quo is not the way to get to our goal.
Q.) You are the President of the Sea Education Association, where college students learn about oceanography, nautical science, and maritime studies. As an educator, please discuss the importance of this plan and how do you believe it will influence you as SEA brings its students out into the sea to learn?
A.) The reason that I have dedicated my time to this important effort is because I have been a student of the ocean my entire life. I am not a scientist, but over the years I have listened to a countless number of scientists and experts who have stressed that even though the ocean is incredibly important is it undervalued and poorly understood. We need to change that. While the ocean is a massive body of water, it is very fragile, and it is important to educate people on the need to protect, preserve, and wisely use this natural resource. On a federal level, it amazes me that the money we spend on ocean research pales in comparison to what we spend on space research. In many ways, we know more about water on Mars that we do about the water on our own planet.
It is ironic that although everyone is historically drawn to the edge of the water, very few people get out on the water in boats to enjoy, study, and understand it. That is what we do at SEA. Exciting young people about the ocean and encouraging greater understanding of this valuable resource is really what the ocean plan is about and what we at SEA are about at well. We focus on the need to understand the oceans from scientific, economic, cultural, and political standpoints. It does not surprise me at all that some of the leaders of this ocean plan and active MOP members, are SEA graduates, including Priscilla Brooks of CLF and Andy Rosenberg, a professor at UNH, and I am proud of that fact. SEA's work and the state's efforts for the ocean plan are both aimed at the same larger goals, understanding the oceans, being better stewards of the oceans, and strengthening our connections to the oceans.
© 2008 Massachusetts Ocean Action Coalition
Conservation Law Foundation | Mass Audubon