GAO Report Finds Oversight Gaps in Offshore Wind Development, Calls for Stronger Tribal and Fisheries Engagement
In its April 2025 report titled Offshore Wind Energy: Actions Needed to Address Gaps in Interior’s Oversight of Development (GAO-25-106998), the U.S. Government Accountability Office (GAO) examines the expanding footprint of offshore wind energy in federal waters and the Department of the Interior’s readiness to manage its impacts. Authored by Frank Rusco and developed with input from 23 experts convened by the National Academies, the report reveals significant gaps in oversight, particularly regarding tribal engagement, stakeholder inclusion, and regional resource planning.
GAO’s findings underscore the dual nature of offshore wind energy's promise and peril. On one hand, the deployment of offshore wind infrastructure is poised to reduce greenhouse gas emissions and provide cleaner air, improved public health outcomes, and economic investment in coastal communities. On the other, the long-term effects on marine life, fishing industries, tribal cultural resources, radar systems, and maritime safety remain uncertain, especially as scientific data lags behind development timelines.
The Bureau of Ocean Energy Management (BOEM) and the Bureau of Safety and Environmental Enforcement (BSEE) lead federal oversight of offshore wind through a complex permitting process that involves coordination with state and federal agencies, tribal governments, and industry stakeholders. Despite this, the GAO found persistent issues in BOEM’s consultation practices with Tribes. While BOEM has initiated efforts to improve tribal engagement, including a December 2024 tribal engagement strategy, it has not established a clear implementation plan or reporting mechanism. Nearly all tribal representatives interviewed expressed concerns about limited capacity to review technical documentation or engage meaningfully in consultations. BOEM’s current statutory authority limits its ability to support tribal capacity building, leading GAO to recommend a congressional amendment to enable more effective tribal involvement.
Concerns also persist among commercial fisheries stakeholders. Though BOEM has engaged with fishing representatives during early stages of project planning, GAO found that responses to stakeholder input were often unclear or inadequate. The lack of a transparent process for integrating fisheries’ feedback into lease area decisions risks alienating critical constituencies and jeopardizing sustainable resource management. Similarly, GAO noted a lack of guidance and monitoring protocols for developer-mandated community engagement plans, leaving oversight duties unfulfilled.
Another critical finding is the absence of a BOEM or BSEE physical presence in the North Atlantic region, where much of the U.S. offshore wind construction is underway. While the agencies have committed to building capacity, they have yet to establish regional offices as they have in the Pacific and Gulf regions. GAO warns that without these resources, federal oversight will remain fragmented and reactive.
To address these issues, GAO recommends five executive actions: improved tribal consultation, incorporation of Indigenous knowledge, clear inclusion of fisheries input, formalized guidance and enforcement of developer community engagement plans, and the establishment of a physical oversight presence in the North Atlantic. The Department of the Interior has agreed with all five recommendations.
This report comes at a critical juncture, as the President has paused new leasing and permitting for offshore wind pending a full review of federal practices. As offshore wind energy continues to gain traction as a key pillar of the nation’s renewable energy strategy, the findings from GAO-25-106998 highlight the need for stronger, more inclusive, and regionally anchored oversight to ensure that development is both environmentally responsible and socially equitable.
This blog post summarizes publicly available information from the GAO and is not guaranteed to be accurate or up to date. It does not constitute legal advice.
