[From the U.S. Government Printing Office, www.gpo.gov]



       Strategy for Stewardship
       Florida Keys
       National
       Marine
      'Sanctuary




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                                             ... .......






                                                             40



       U.S. Department of Commerce                Final Management
       National Oceanic and                       Plan/Environmental
       Atmospheric Administration                  Impact Statement
       National Ocean Service


       Office of Ocean and Coastal
       Resource Management                                         Volume I of Ill

                                           'WAT W!,
                                                           Management Plan
       Sanctuaries and
       Reserves Division


                                           $kArEs of












                   This final management plan and environmental impact statement is dedicated to the memories of Secretary
                   Ron Brown and George Barley. Their dedicated work furthered the goals of the National Marine Sanctuary
                   Program and specifically the Florida Keys National Marine Sanctuary.



                   "We must continue to work together - inspired by the delight in a child's eye when a harbor seal or
                   a gray whale is sighted, or the wrinkled grin of a fisherman when the catch is good. We must honor
                   the tradition of this land's earliest caretakers who approached nature's gifts with appreciation and
                   deep respect. And we must keep our promise to protect nature's legacy for future generations.

                             - Secretary Ron Brown
                               Olympic Coast dedication ceremony, July 16, 1994


                   "The Everglades and Florida Bay will be our legacy to our children and to our Nation.

                               George Barley
                               Sanctuary Advisory Council Chairperson




































                   Cover Photos:    Marine Educator--Heather Dine, Upper Keys Regional Office, Lobster Boats--Billy Causey, Sanctuary Supefintendent;
                                    Divers--Harold Hudson, Upper Keys Regional Office; Dive Charter--Paige Gill, Upper Keys Regional Office,
                                    Coral Resloration--MIW White, NOAA Corps.






         Florida Keys                             Final Management
         National                                 Plan/Environmental
         Marine                                    Impact Statement
         Sanctuary                                                  (FMP/EIS)


                                         Volume I
                                  The Management Plan






                                            1996










                        National Oceanic and Atmospheric Administration














                                  US Department of Commerce
                                  NOAA Coastal Services Center Library
                                  2234 South Hobson Avenue
                                  Charleston, SC 29405-2413






                Acknowledgments                                     in 1955, renowned naturalist and marine biologist Rachel Carson described
                                                                    the Florida Keys this way in her book The Edge of the Sea:
                                                                              I doubt that anyone can travel the length of the Florida Keys
                                                                              without having communicated to his mind a sense of the
                                                                              uniqueness of this land of sky and water and scattered man-
                                                                              grove-covered islands. The atmosphere of the Keys is
                                                                              strongly and peculiarly their own. This world of the Keys
                                                                              has no counterpart elsewhere in the United States, and in-
                                                                              deed few coasts of the Earth are like it."

                                                                    This unique environment is the reason for the existence of the Florida Keys
                                                                    National Marine Sanctuary, and the reason why so many people have
                                                                    contributed so much of their time and energy to making the Management
                                                                    Plan as comprehensive and fair as possible.

                                                                    Since 1989, numerous environmental organizations and individuals have
                                                                    worked long and hard to provide input into the legislation designating the
                                                                    Sanctuary and into developing the Final Management Plan/Environmental
                                                                    Impact Statement (FMP/E[S). They provided useful and objective comments
                                                                    at numerous workshops, Advisory Council meetings, and other public
                                                                    forums held during the planning process. The contributions of each of these
                                                                    individuals, and the organizations they represent, is appreciated.

                                                                    The National Marine Sanctuary Program staff wish to thank everyone who
                                                                    has participated in the development of this plan, especially members of the
                                                                    public who gave of their time to offer objective and useful input during the
                                                                    many public comment periods offered during the planning process.
                                                                    Special thanks go to the members of the Sanctuary Advisory Council for
                                                                    their major contribution to the planning process. Their diligent work and
                                                                    sacrifice of time and expenses will be remembered as the key to the
                                                                    success of developing a comprehensive management plan. With the
                                                                    leadership of their chairman and vice-chairman, they navigated waters never
                                                                    before charted for a National Marine Sanctuary or, for that matter, any
                                                                    marine protected area in the United States. Their role was crucial in this
                                                                    planning process, especially the leadership they exhibited in developing the
                                                                    Sanctuary's final plan. Never before has such a comprehensive plan been
                                                                    assembled by such a diverse interest group to solve complex problems in
                                                                    one of the Nation's most ecologically diverse regions.

                                                                    In addition, Program staff would like to thank our local, State, and Federal
                                                                    agency planning partners for their assistance during the development of this
                                                                    plan. Those individuals who worked diligently for over four years on the plan
                                                                    sacrificed an.enormous amount of time and effort to assist in this project.
                                                                    Dozens of agency scientists, managers, and planners have devoted time to
                                                                    this planning process, especially during the various workshops and strategy
                                                                    assessment planning sessions, extended review sessions, and deliberations
                                                                    on the compact agreement. The National Marine Sanctuary Program staff is
                                                                    grateful to all of you.

                                                                    Also, special thanks to all of those individuals who reviewed various portions
                                                                    of the document, especially sections of the Description of the Affected
                                                                    Environment. Your thorough review has served to make this section an
                                                                    important reference for future use.

                                                                    We also extend our appreciation to the Sanctuary Volunteers and staff and
                                                                    students of Indiana University who have helped assess some shipwrecks
                                                                    identified in the management plan.

                                                                    Particularly, the Program owes special recognition and thanks to the staff of
                                                                    NOANs Strategic Environmental Assessments Division for their enormous
                                                                    amount of time and sacrifice in assisting in the planning and development of
                                                                    this plan.









                                                                                                                 7,4
                 14Z                                                 Ah'      av


                 This abstract describes the Final Management Plan and Environmental Impact Statement (FMP/EIS) for the
                 Florida Keys National Marine Sanctuary. Congress, recognizing the degradation of this unique ecosystem due
                 to direct physical impacts and indirect impacts, passed the Florida Keys National Marine Sanctuary and
                 Protection Act of 1990 (Public Law 101 -605) designating the Florida Keys National Marine Sanctuary. The Act
                 requires the National Oceanic and Atmospheric Administration (NOAA) to develop a comprehensive manage-
                 ment plan with implementing regulations to govern the overall management of the Sanctuary and to protect
                 Sanctuary resources and qualities for the enjoyment of present and future generations. The Act also estab-
                 lishes the boundary of the Sanctuary, prohibits any oil drilling and exploration within the Sanctuary, prohibits
                 the operation of tank ships orships greater than 50 meters in the Area to Be Avoided, and requires the
                 development and implementation of a water quality protection program by the U.S. Environmental Protection
                 Agency and the State of Florida, in conjunction with NOAA.

                 The Sanctuary consists of approximately 2,800 nM2      (9,500 kM2)  of coastal and oceanic waters, and the
                 submerged lands thereunder, surrounding the Florida Keys, and extending westward to encompass the Dry
                 Tortugas, but excluding the Dry Tortugas National Park. The shoreward boundary of the Sanctuary is the
                 mean high-water mark. Within these waters are spectacular, unique, and nationally significant marine environ-
                 ments, including seagrass meadows, mangrove islands, and extensive living coral reefs. These marine
                 environments support rich biological communities possessing extensive conservation, recreational, commer-
                 cial, ecological, historical, research, educational, and aesthetic values that give this area special national
                 significance. These environments are the marine equivalent of tropical rain forests in that they support high
                 levels of biological diversity, are fragile and easily susceptible to damage from human activities, and possess
                 high value to human beings if properly conserved.

                 The economy of the Keys is dependent upon a healthy ecosystem. Approximately four million tourists visit the
                 Keys annually, participating primarily in water-related sports such as fishing, diving, boating, and other
                 ecotourism activities. In 1991, the gross earnings of the Florida Keys and Monroe County totaled $853 million,
                 36 percent of which came from services provided as part of the tourism industry. Another 18.7 percent of the
                 gross earnings came from the retail trade, which is largely supported by tourists. In 1990, half of the Keys'
                 population held jobs that directly or indirectly supported outdoor recreation. In addition, the commercial fishing
                 industry accounted for $17 million of the Keys'economy, more than 20 percent of Florida's total gross earn-
                 ings from commercial fishing. All of these activities depend on a healthy marine environment with good water
                 quality.

                 The purpose of the proposed Management Plan is to ensure the sustainable use of the Keys' marine environ-
                 ment by achieving a balance between comprehensive resource protection and multiple, compatible uses of
                 those resources. Sanctuary resources are threatened by a variety of direct and indirect impacts. Direct
                 impacts include boat groundings, propeller dredging of seagrasses, and diver impacts on coral. For example,
                 over 30,000 acres of seagrasses have been impacted by boat propellers. Indirect impacts include marine
                 discharge of wastes, land-based pollution, and external sources of water quality degradation. These and other
                 management issues are addressed by the comprehensive Management Plan.

                 Volume I contains the final comprehensive Management Plan and includes the discussion of the Preferred
                 Alternative and socioeconomic analysis as well as 10 action plans composed of management strategies
                 developed with substantial input from the public, local experts, and the Sanctuary Advisory Council to address
                 management issues. The action plans provide an organized process for implementing management strate-
                 gies, including a description of the activities required, institutions involved, staffing requirements, and an
                 estimate of the implementation cost. A list of the action plans in alphabetical order is as follows: 1) Channel/
                 Reef Marking-, 2) Education and Outreach; 3) Enforcement; 4) Mooring Buoy; 5) Regulatory; 6) Research and
                 Monitoring; 7) Submerged Cultural Resources; 8) Volunteer; 9) Water Quality; and 10) Zoning. These action
                 plans include several critical activities designed to manage and protect the natural and historic resources of
                 the Sanctuary, including:








                   o Establishing water-use zones providing focused protection for 60 to 70 percent of the well-
                     developed reef formations, prohibiting consumptive activities in a small portion of the Sanctu-
                     ary, buffering important wildlife habitat from human disturbance, and protecting several large
                     reserves for species diversity replenishment, breeding areas, and genetic protection.

                   o Establishing Sanctuary regulations to designate nonconsumptive zones, prohibit damage to
                     natural resources, establish special-use permits, and restrict other activities that may nega-
                     tively impact Sanctuary resources.

                   ï¿½ Expanding and coordinating the Enforcement Program to enforce the regulations, particularly
                     in the zoned areas.


                   ï¿½ Implementing an Ecological Monitoring Plan to evaluate the effectiveness of the zoned areas
                     and the health of the Sanctuary.

                   ï¿½ Expanding the Mooring Buoy Program to include the new zones and protect important coral
                     reef and seagrass habitat.

                   ï¿½ Implementing a Channel and Reef Marking Program to protect seagrasses, coral reefs, and
                     mangroves in shallow-water areas.

                   ï¿½ Implementing a Submerged Cultural    Resources Plan to protect the numerous historically
                     important shipwrecks and other submerged cultural resources.

                   ï¿½ Expanding the Education and Volunteer programs to reach more users and the millions of
                     visitors coming to the Keys each year.

            Volume 11 describes the process used to develop the draft management alternatives and includes environ-
            mental and socioeconomic impact analyses of the alternatives used in the draft management plan and
            environmental impact statement.

            Volume III consists of the appendices, including the two acts that designate and implement the Sanctuary.

            Lead
            Agency:          U.S. Department of Commerce

                             National Oceanic and Atmospheric Administration
                             National Ocean Service
                             Office of Ocean and Coastal Resource Management
                             Sanctuaries and Reserves Division


            Contact:         Mr. Billy Causey, Superintendent
                             NOAA/Florida Keys National Marine Sanctuary
                             P.O. Box 500368
                             Marathon, Florida 33050
                             (305) 743-2437


                             -or-


                             Mr. Edward Lindelof, Chief, Gulf and Caribbean Branch
                             Sanctuaries and Reserves Division
                             Office of Ocean and Coastal Resource Management
                             National Ocean Service/NOAA
                             1305 East-West Highway - SSMC4
                             Silver Sprihg, MD 20910
                             (301) 713-3137







                                                                                             Ublaof Contents.                                                                                        `4

                                                                                                                                                                                     PAge
                       List of Figures         .........................................................................................................................................     i

                       List of Tables        ........................................   .................................................................................................    i


                       General Introduction              ...............................................................................................................................     1


                       The Preferred Alternative/Management Plan                                .........................................................................................    9
                                    Introduction        ................................................................................................................................     9
                                    Development of the Management Alternatives                                 ..........................................................................    9
                                    Sanctuary Management: How the Process Works                                      ....................................................................    34

                       Action Plans          ...........................................................................................................................................     43
                                    Introduction         ................................................................................................................................    43
                                    Channel/Reef Marking                  ...............................................................................................................    45
                                    Education and Outreach                   ............................................................................................................    57
                                    Enforcement            ..............................................................................................................................    85
                                    Mooring Buoy             ............................................................................................................................    97
                                    Regulatory          ................................................................................................................................. 107
                                    Research and Monitoring                    .......................................................................................................... 145
                                    Submerged Cultural Resources                         ................................................................................................ 171
                                    Volunteer         ................................................................................................................................... 193
                                    Water Quality           ............................................................................................................................. 207
                                    Zoning        ....................................................................................................................................... 255

                       Backmatter
                                    References           ................................................................................................................................ 309
                                    Acronyms           .................................................................................................................................. 311
                                    Glossary of Technical Terms                     ..................................................................................................... 315
                                    Metric Conversion Table                  ............................................................................................................ 319



                       F7
                                                                                                'Ust ofFigures

                       The Preferred Alternative/Management Plan
                       Figure 1. Existing Management Areas                            ...................................................................................................    28
                       Figure 2. Ecological Reserves, Sanctuary Preservation Areas, Special-use Areas,
                                      and Wildlife Management Areas                         ..............................................................................................   29
                       Figure 3. Continuous Management: How the Process Works                                              ...............................................................   36


                                                                                                   Ustof_TWOS
                                                                                                                - - --------
                       The Preferred Alternative/Management Plan
                       Table 1. Management Strategies by Action Plan                                  ....................................................................................   11
                       Table 2. Sizes of FKNMS Sanctuary Preservation Areas, Ecological Reserves,
                                      and Special-use Areas                  .............................................................................................................   27
                       Table 3. Estimated Annual Operation and Maintenance Costs for Implementing the
                                      Management Plan                 ....................................................................................................................   40








                                                                                                                                                       PAge

                  Channel/Reef Marking Action Plan
                  Table 4. Summary of Channel Marking Strategies                      ................................................................................. 45
                  Table 5. Channel/Reef Marking Prioritization Criteria                   ............................................................................. 52
                  Table 6. Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................... 53
                  Table 7. Requirements for Implementation                    ............................................................................................ 54

                  Education and Outreach Action Plan
                  Table 8. Summary of Education Strategies                    ............................................................................................. 57
                  Table 9. Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................... 79
                  Table 10. Requirements for Implementation                   .......................................................................................... 82

                  Enforcement Action Plan
                  Table 11. Summary of Enforcement Strategies                     ...................................................................................... 85
                  Table 12. Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................. 94
                  Table 13. Requirements for Implementation                   .......................................................................................... 95

                  Mooring Buoy Action Plan
                  Table 14. Summary of Mooring Buoy Strategies                     .................................................................................... 97
                  Table 15. Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................. 103
                  Table 16. Requirements for Implementation                   ........................................................................................... 104

                  Research and Monitoring Action Plan
                  Table 17. Summary of Research and Monitoring Strategies                          .................................................................. 146
                  Table 18. Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................. 166
                  Table 19. Requirements for Implementation                   .......................................................................................... 168

                  Submerged Cultural Resources Action Plan
                  Table 20. Summary of Submerged Cultural Resources Strategies                             ....................................................... 171
                  Table 21. Agencies Identified for Implementing Strategies/Activities                        .................................................... 179
                  Table 22. Requirements for Implementation                   .......................................................................................... 180

                  Volunteer Action Plan
                  Table 23. Summary of Strategies and General Sanctuary Support Items Requiring
                              Volunteer Assistance           .............................................................................................................. 194


                  Water Quality Action Plan
                  Table 24. Summary of Water Quality Strategies                    ..................................................................................... 208
                  Table 25. Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................. 245
                  Table 26. Requirements for Implementation                   .......................................................................................... 249
                  Table 27. Rationale for the High Priority Level of Water Quality Strategies                         .......................................... 253

                  Zoning Action Plan
                  Table 28. Summary of Zoning Strategies                  ............................................................................................... 255
                  Table 29, Agencies/Organizations Identified for Implementing Strategies/Activities                            ............................. 265
                  Table 30. Requirements for Implementation                   .......................................................................................... 266







                                                      General Introduction


                This is the first of three volumes describing the Final
                                                                                                               WE
                                                                                                         ef"00,
                Management Plan/Environmental Impact Statement               I                                 O,Wbtfoori 1@
                (FMP/EIS) for the Florida Keys National Marine               I "M   111       otuft)?
                Sanctuary. Volume I contains the selection of the
                Final Preferred Alternative, which is the Final Man-         The purpose of a sanctuary is to protect resources
                agement Plan, including 10 detailed action plans.            and their conservation, recreational, ecological,
                The Final Preferred Alternative explains the modifica-       historical, research, educational, or aesthetic values
                tions to the Draft Preferred Alternative (111) based on      through comprehensive long-term management.
                public comments, the FKNMSPA, the NMSA and                   National Marine Sanctuaries may be designated in
                other considerations. Volume 11 describes the                coastal and ocean waters, the Great Lakes and their
                Management Plan/Environmental Impact Statement               connecting waters, and submerged lands over which
                (MP/EIS) development process, including the                  the United States exercises jurisdiction consistent
                process for selecting the Draft Preferred Alternative        with international law. They are built around distinc-
                that underwent a nine month public review. Volume            tive natural and historical resources whose protection
                III contains the appendices referenced in Volumes I          and beneficial use require comprehensive planning
                and 11. The Final Plan is based on the EIS analysis          and management.
                in Volumes I and 111.
                                                                             The National Oceanic and Atmospheric Administra-
                                                                             tion (NOAA) administers the National Marine Sanctu-
                                                                             ary Program through the Sanctuaries and Reserves
                          rity" o             attan
                                            q
                                                                             Division (SRD) of the Off ice of Ocean and Coastal
                National marine sanctuaries are routinely designated         Resource Management (OCRM).
                by the Secretary of Commerce through an adminis-
                trative process established by the National Marine           in accordance with the NMSA, the mission of the
                Sanctuaries Act (NMSA) of 1972,16 U.S.C. 1431 et             National Marine Sanctuary Program is to identify,
                seq., as amended, including activation of candidate          designate, and comprehensively manage marine
                sites selected from the National Marine Sanctuary            areas of national significance. National Marine
                Program Site Evaluation List. Sanctuaries also have          Sanctuaries are established for the public's long-term
                been designated by an Act of Congress. The Florida           benefit, use, and enjoyment. To meet these objec-
                Keys National Marine Sanctuary was designated                tives, the following National Marine Sanctuary
                when-the President signed the Florida Keys National          Program goals have been established (15 CFR, Part
                Marine Sanctuary and Protection Act. Appendix A in           922.1 (b)):
                Volume Ill contains a copy of this Act.                             Enhance resource protection through compre-
                                                                                    hensive and coordinated conservation and
                                                                                    ecosystem management that complements
                                         0 W
                                                                                    existing regulatory authorities.
                Section 304(a)(4) of the NMSA requires that the                     Support, promote, and coordinate sc    .ientific
                terms of designation set forth the geographic area                  research on, and monitoring of, the site-
                included within the Sanctuary; the characteristics of               specific marine resources to improve man-
                the area that give it conservation, recreational,                   agement decisionmaking in national marine
                ecological, historical, research, educational, or                   sanctuaries.
                aesthetic value; and the types of activities that will be
                subject to regulation by the Secretary of Commerce                  Enhance public awareness, understanding,
                to protect those characteristics. This section also                 and the wise use of the marine environment
                specifies that the terms of designation may be                      through public interpretive, educational, and
                modified only through the same procedures by which                  recreational programs.
                the original designation was made. Thus, the terms
                of designation serve as a charter for the Sanctuary.                Facilitate, to the extent compatible with the
                                                                                    primary objective of resource protection,
                                                                                    multiple uses of National Marine Sanctuaries.








              General Introduction

              The Florida Keys National Marine Sanctuary is one             spread of coral diseases. With the reauthorization of
              of a system of national marine sanctuaries that has           the National Marine Sanctuary Program in 1988,
              been established since the Program's inception in             Congress directed the Sanctuary Program to conduct
              1972. Sanctuaries are not new to the Florida Keys;            a feasibility study of possible expansion of Sanctuary
              there is a twenty year history of National Marine             sites in the Keys. Those study sites were in the
              Sanctuaries in the Keys.                                      vicinity of Alligator Reef, Sombrero Key, and west-
                                                                            ward from American Shoals. This endorsement for
                                                                            expansion of the Sanctuary program in the Keys was
                                                                            a Congressional signal that the health of the re-
                                                                            sources of the Florida Keys was of National concern.
              Historical Perspective. The lure of the Florida Keys.         The feasibility study was overtaken by several
              has attracted explorers and visitors for centuries.           natural events and ship groundings that precipitated
              The clear tropical waters, bountiful resources, and           the designation of the Florida Keys National Marine
              appealing natur  'al environment were among the               Sanctuary.
              many fine qualities that attracted visitors to the Keys.
              However, warning signs that the Keys' environment             Three large ships ran aground on the coral reef tract
              and natural resources were fragile, and not infinite,         within a brief 18 day period in the fall of 1989.
              came early. In 1957, a group of conservationists and          Coincidental as it may seem, it was this final physi-
              scientists held a conference at the Everglades                cal insult to the reef that prompted Congress to take
              National Park and discussed the demise of the coral           action to protect the coral reef ecosystem of the
              reef resources in the Keys at the hands of those              Florida Keys. Although most remember the ship
              attracted there because of their beauty and unique-           groundings as having triggered Congressional
              ness. This conference resulted in action that created         action, it was in fact the cumulative events of envi-
              the world's first underwater park, the John                   ronmental degradation, in conjunction with the
              Pennekamp Coral Reef State Park in 1960. How-                 physical impacts that prompted Congressman Dante
              ever, in just a little over a decade following the            Fascell to introduce a bill into the House of Repre-
              establishment of the park, a public outcry was                sentatives in November of 1989. Congressman
              sounded that cited pollution, overharvest, physical           Fascell had long been an environmental supporter of
              impacts, overuse, and use conflicts as continuing to          South Florida and his action was very timely. The bill
              occur in the Keys. These concerns continued to be             was sponsored in the Senate by Senator Bob
              voiced by environmentalists and scientists alike              Graham, also known for his support of environmental
              throughout the decade of the 1970's and indeed, into          issues both in Washington, and as a Florida Gover-
              the 1990's.                                                   nor. It was passed by Congress through bi-partisan
                                                                            support and was signed. On November 16, 1990,
              Other management efforts were instituted to protect           President George Bush signed into law the Florida
              the coral reefs of the Florida Keys. The Key Largo            Keys National Marine Sanctuary and Protection Act
              National Marine Sanctuary was established in 1975             (FKNMSPA) (Appendix A in Volume 111).
              to protect 103 square nautical miles of coral reef
              habitat stretching along the reef tract from north of         Florida Keys Environmental Setting. The Florida
              Carysfort Lighthouse to south of Molasses Reef,               Keys National Marine Sanctuary extends approxi-
              offshore of the Upper Keys. In 1981, the 5.32 square          mately 220 miles southwest from the southern tip of
              nautical mile Looe Key National Marine Sanctuary              the Florida peninsula. Located adjacent to the Keys'
              was established to protect the very popular Looe Key          land mass are spectacular, unique, and nationally
              Reef located off Big Pine Key in the Lower Keys.              significant marine environments, including seagrass
              Throughout the 80's mounting threats to the health            meadows, mangrove islands, and extensive living
              and ecological future of the coral reef ecosystem in          coral reefs. These support rich biological communi-
              the Florida Keys prompted Congress to take action             ties possessing extensive conservation, recreational,
              to protect this fragile natural resource. The threat of       commercial, ecological, historical, research, educa-
              oil drilling in the mid to late 1980's off the Florida        tional, and aesthetic values that give this area
              Keys, combined with reports of deteriorating water            special national significance. They are the marine
              quality throughout the region, occurred at the same           equivalent of tropical rain forests, in that they support
              time scientists were assessing the adverse affects of         high levels of biological diversity, are fragile and
              coral bleaching, the die-off of the long-spined urchin,       easily susceptible to damage from human activities,
              loss of living coral cover on reefs, a major seagrass         and possess high value to humans if properly
              die-off, declines in reef fish populations, and the           conserved.

              2








                                                                                                                           General Introduction

                   The marine environment of the Florida Keys supports              occasion, the recklessness of ship captains, boaters,
                   over 6,000 species of plants, fishes, and inverte-               divers, fishermen, snorkelers and beachgoers. Over
                   brates, including the Nation's only coral reef that lies         30,000 acres of seagrasses have been damaged by
                   adjacent to the continent, and one of the largest                boat propellers. Direct impacts to resources also
                   seagrass communities in this hemisphere. Attracted               result from careless divers and snorkelers standing
                   by this natural diversity and tropical climate, approxi-         on coral, improperly placed anchors, and destructive
                   mately four million tourists visit the Keys annually,            fishing methods. In the period between 1993 and
                   where they participate primarily in water-related                1994, approximately 500 vessels were reported
                   sports such as fishing, diving, boating, and other               aground in the Sanctuary. These groundings have a
                   activities.                                                      cumulative effect on the resources. Over 19 acres of
                                                                                    coral reef habitat has been damaged or destroyed by
                   Sanctuary Boundary. The Act designated 2,800                     large ship groundings.
                   square nautical miles of coastal waters off the Florida
                   Keys as the Florida Keys National Marine Sanctuary.              Indirect human impacts. The overnutrification of
                   The Sanctuary boundary extends southward on the                  nearshore waters is a documented problem in the
                   Atlantic Ocean side of the Keys from the north                   Sanctuary. A major source of excess nutrients is
                   easternmost point of the Biscayne National Park                  sewage-25,000 septic tanks, 7,000 cesspools, 700
                   along the approximate 300-foot isobath for over 200              shallow injection wells, and 139 marinas harboring
                   nautical miles to the Dry Tortugas. From there it                over 15,000 boats. These nutrients are carried
                   turns north and east, encompassing a large portion of            through the region by more than 700 canals and
                   the Gulf of Mexico and Florida Bay, where it adjoins             channels. Removing nitrogen and phosphorous from
                   the Everglades National Park. The landward bound-                wastewater requires a technology that, at present, is
                   ary is the mean high water mark. The Key Largo and               lacking from sewage treatment facilities in the Keys.
                   Looe Key National Marine Sanctuaries, the State
                   Parks and Aquatic Preserves, and the Florida Keys
                                                                                            00
                   Refuges of the U.S. Fish and Wildlife Service are
                                                                                                          Ip Aequftm
                                                                                                em
                   overlapped by the Sanctuary; whereas the Ever-
                   glades National Park, Biscayne National Park, and                   The FKNMSPA directs the Secretary of Commerce
                   Dry Tortugas National Park are excluded from the                 to develop a comprehensive management plan and
                   boundary of the Sanctuary.                                       implement regulations to protect Sanctuary re-
                   Threats to the Environment The deterioration of                  sources. The Act requires that the plan:
                   the marine environment in the Keys is no longer a                      o facilitate all public and private uses of the
                   matter of debate. There is a decline of healthy                          Sanctuary consistent with the primary objective
                   corals, an invasion by algae into seagrass beds and                      of resource protection;
                   reefs, a decline in certain fisheries, an increase of
                   coral diseases and coral bleaching. In Florida Bay,                    9 consider temporal and geographic zoning to
                   reduced freshwater flow has resulted in an increase                      ensure protection of Sanctuary resources;
                   in plankton blooms, sponge and seagrass die-offs,
                   and fish kills.                                                        * incorporate the regulations necessary to
                                                                                            enforce the comprehensive water quality
                   Over four million people visit the Keys annually, 70%                    protection program developed under Section 8
                   of whom visit the Sanctuary. Over 80,000 people                          of the FKNMSPA;
                   reside in the Keys full time. Since 1965, the number
                   of registered private recreational vessels has in-                     o identify needs for research, and establish a
                   creased over six times. There are significant direct                     long-term ecological monitoring program;
                   and indirect effects from the high levels of use of
                   Sanctuary resources resulting from residents and                       * identify alternative sources of funding needed
                   tourists. The damage done by people hinders the                          to fully implement the Plan's provisions and
                   ability of marine life to recover from naturally occur-                  supplement appropriations authorized under
                   ring stresses. Human impacts can be separated into                       Section 10 (16 U.S.C., ï¿½1444) of the
                   direct and indirect impacts.                                             FKNMSPA and Section 313 of the NMSA;

                   Direct human Impacts. The most visible and familiar                    o ensure coordination and cooperation between
                   physical damage results from the carelessness or, on                     Sanctuary managers and other Federal, State,

                                                                                                                                                   3








            General Introduction

                  and local authorities with jurisdiction within or      ment Plan, and some progress has already been
                  adjacent to the Sanctuary;                             made toward accomplishing these objectives. For
                                                                         example, steps have been taken to meet the first
                ï¿½ promote education among users of the Sanctu-           objective of ecosystem management. Sanctuary
                  ary about coral reef conservation and naviga-          Staff have been involved in the efforts of the South
                  tional safety; and                                     Florida Ecosystem Restoration Task Force and the
                                                                         Governor's Commission for a Sustainable South
                ï¿½ incorporate the existing Looe Key and Key              Florida. These two efforts have focused on the
                  Largo national marine sanctuaries into the             restoration of the South Florida ecosystem, of which
                  Florida Keys National Marine Sanctuary.                the Sanctuary is the downstream component. These
                                                                         combined efforts recognize the importance of protect-
           All of these requirements have been addressed in the          ing and preserving the natural environment for the
           Management Plan.                                              sustainable use of future generations. The natural
                                                                         and built environments have to be managed in
           In addition to the above statutory objectives, the            harmony to sustain the healthy environment upon
           Sanctuary Advisory Council, early on in the planning          which South Florida economy is dependent upon.
           process in 1992, developed a set of goals and
           objectives for the Sanctuary that NOAA later
           adopted. The goal is:                                         r'Oit6rv1i6w,,6f the Plahniing Probe"'

           "To preserve and protect the physical and biological          The size of the Sanctuary and the diversity of its
           components of the South Florida estuarine and                 users required that NOAA adopt a holistic, ecosys-
           marine ecosystem to ensure its viability for the use          tem-based management approach to address the
           and enjoyment of present and future generations."             problems facing the Sanctuary. This meant using a
                                                                         problem-driven focus, relying on partnerships, and
           The objectives include:                                       building consensus around the identification of issues
               ï¿½  Encouraging all agencies and institutions to           and their short- and long-term solutions.
                  adopt an ecosystem and cooperative approach            A Comprehensive Approach. The FKNMSPA
                  to accomplish the following objectives, includ-        requires NOAA to develop a comprehensive man-
                  ing the provision of mechanisms to address             agement plan. To meet this mandate, NOAA has
                  impacts affecting Sanctuary resources but              addressed many problems and issues, such as water
                  originating outside the boundaries of the              quality and land use, that are outside the "traditional"
                  Sanctuary;                                             scope of Sanctuary management. The process,"'
               ï¿½  Providing a management system which is in              involved unprecedented participation by the general
                  harmony with an environment whose long-term            public, user groups, and Federal, State, and local
                  ecological, economic, and sociological prin-           governments.
                  ciples are understood, and which will allow            Because of the size of the Sanctuary and the variety
                  appropriate sustainable uses;                          of resources it contains, many problems never before
               ï¿½  Managing the Florida Keys National Marine              encountered by Sanctuary management had to be
                                                                         addressed. For example, significant declines in water
                  Sanctuary for the natural diversity of healthy         quality and habitat conditions in Florida Bay are
                  species, populations, and communities;                 threatening the health of Sanctuary resources. These
               ï¿½  Reaching every single user and visitor to the          conditions are thought to be the result of water
                  FKNMS with information appropriate to their            quality and quantity management in the South Florida
                  activities; and                                        region. Such problems must be addressed by
                                                                         management to ensure adequate protection of
               ï¿½  Recognizing the importance of cultural and             Sanctuary resources. There is a need, therefore, to
                  historical resources, and managing these               explicitly include the agencies with responsibilities in
                  resources for reasonable, appropriate use and          these areas in an ecosystem management approach.
                  enjoyment.                                             Knowledge-based Consensus Building. A series
                                                                         of workshops followed a set of public scoping meet-
           NOAA incorporated the Sanctuary Advisory Council's            ings, and laid the foundation for building this Plan. At
           objectives into the Final Comprehensive Manage-

           4








                                                                                                                   General Introduction

               these work sessions, NOAA used a systematic                          A NOAA team composed of the Sanctuaries
               process for obtaining relevant information from                      and Reserves Division, the Strategic Environ-
               experts with knowledge of Sanctuary problems.                        mental Assessments Division, and the Off ice of
                                                                                    the Assistant General Counsel for Ocean
               NOAA recognized that a useful management plan                        Services was responsible for developing and
               could not be developed and implemented without                       implementing the process to produce the Draft
               forging working teams to help provide the vision and                 Plan. The Sanctuaries and Reserves Division
               knowledge necessary to accomplish the goals set                      is responsible for coordinating the review and
               forth in the FKNMSPA. Four teams were formed to                      producing the Final Management Plan and
               ensure that input was provided by major Federal,                     Environmental Impact Statement.
               State, and local interests in the Sanctuary, and to see
               that a plan was produced that met the goals and                Focus on Management and Action. From the
               objectives set forth by the FKNMSPA and NOAA.                  beginning of the Plan development process, it has
               There was considerable interaction, and some                   been recognized that management is a continuous
               overlap in membership and function, among these                activity that must involve those responsible for
               teams.                                                         implementing actions. The process has made
                                                                              maximum use of existing knowledge and experience
                   ï¿½  In July 1991, the Interagency Core Group,               to identify, characterize, and assess alternative
                      composed of Federal, State, and local agen-             management actions. Much of the planning process
                      cies with direct jurisdictional responsibility in       was devoted to identifying short- and long-term
                      the Sanctuary, was formed to develop policies,          management actions or strategies, including their
                      and direct and oversee the management plan              operational requirements. These management
                      development process (Appendix B in Volume               actions can be found in the detailed action plans
                      III lists the members of this Core Group).              contained in this volume. These plans address
                                                                              management issues ranging from channel marking,
                   ï¿½  Sanctuary Planners held a series of work-               to volunteer programs, to regulations. They provide
                      shops, from July 1991 through January 1992,             details on institutional needs, personnel, time require-
                      which focused on a range of topics. The                 ments, and implementation costs. These details are
                      workshop topics included mooring buoys,                 necessary for the decisions that will have to be made
                      education, photobathymetry, research, sub-              upon Plan implementation by the managers in the
                      merged cultural resources, and zoning.                  region.

                   ï¿½  A Strategy Identification Work Group, com-              Toward Integrated, Continuous Management A
                      posed of 49 local scientists and management             central purpose of the Management Plan is to take
                      experts, generated the initial set of strategies        the disparate threads of protection and regulation
                      and details on implementation requirements.             that currently apply to the Florida Keys' ecosystem
                                                                              and weave them into a fabric of integrated coastal
                   ï¿½  The Sanctuary Advisory Council (SAC) was                management (ICM). ICM is not a new idea or con-
                      established by the FKNMSPA to ensure public             cept; what is new is the notion of applying it in a
                      input into the Plan, and to advise and assist           comprehensive and continuous manner. ICM is a
                      NOAA in its development and implementation.             process that begins with direct participation of
                      The SAC first met in February 1992 and                  managers, planners, analysts, scientists, and a
                      conducted over 30 meetings that were open to            concerned public. Developing an integrated manage-
                      the public (Appendix B in Volume III contains a         ment approach does not take place quickly; it evolves
                      list of SAC members). The SAC became an                 over time, based on incremental gains that build
                      integral part of the Sanctuary planning process         upon one another.
                      by serving as a direct link to the Keys' user
                      communities, such as the dive industry,                 A major component of the Management Plan is the
                      environmental groups, and commercial and                consideration of water quality issues and problems.
                      recreational fishermen. In addition, the SAC            The FKNMSPA called upon the U.S. Environmental
                      has been instrumental in helping NOAA                   Protection Agency and the State of Florida to develop
                      formulate policy, particularly with regard to:          a comprehensive water quality protection program for
                      1) the marine zoning plan, 2) activities needing        the Sanctuary. NOAA has incorporated this protec-
                      regulation, and 3) recommending a preferred             tion program into the Management Plan as the Water
                      alternative for the Management Plan.                    Quality Action Plan found in this volume.


                                                                                                                                        5







                General Introduction


                                                                        W
                                                                                      In August 1995, the Sanctuary Staff gave the
                  3W
                X               I   I    , -, , "                          A
                DIV -0                     iblklfi" A"    W Pr6lbo"SS
                         `-A
                                          U     011 evile
                                                                                      Working Groups a briefing outlining the pur-
                      @140,                           - - --7   ,
                         I @Ar`                                   ,77"     -4
                                                                        .17           pose, objectives, and ground rules for the
                The Draft Management Plan and Environmental                           Working Group's public review of the draft
                impact Statement (DMP/EIS) for the Florida Keys                       plan. The purpose of the Working Groups was
                National Marine Sanctuary was released to the public                  to broaden the public's review of the draft plan
                at a Sanctuary Advisory Council meeting on April 4,                   in order to get the best and most comprehen-
                1995. This initiated a nine-month public review of the                sive review possible. An objective of the
                draft plan that ended December 31, 1995. During                       process was to help the SAC formulate their
                this review period, Sanctuary staff facilitated the                   comments on the draft plan. The ground rules
                public's review of the plan in a variety of ways that                 were: that membership on the Working Groups
                were designed to maximize the public's full under-                    was open and the public was encouraged to
                standing of the components and contents of the draft                  sign up and participate; no voting (strive for
                plan.                                                                 consensus, but record both sides when split);
                                                                                      all suggestions were to be recorded; the
                The nine month public review process included the                     Working Group meetings were to be held in
                following opportunities:                                              different parts of the Keys; and Sanctuary staff
                                                                                      were to serve in a support role.
                      ï¿½Sanctuary Advisory Council Preview. On April
                      4, the draft plan was released in a public                      Each of the Working Groups held multiple
                      meeting. At this meeting, each of the authors of                meetings in various parts of the Keys. The
                      the Action Plans contained in the Preferred                     public was given enormous opportunity to
                      Alternative (Volume 1) gave a verbal summary                    provide their input on the draft plan.
                      of the contents of the Action Plans. This day-
                      long, detailed preview, initiated the public's                  Public Hearings. There were six public hear-
                      review of the draft plan and served to introduce                ings held on the draft plan. The hearings were
                      and familiarize the public with the plan.                       held in Miami, Key Largo, Marathon, Key West,
                                                                                      St. Petersburg, and Silver Spring, Maryland.
                      ï¿½Info-Expos. The Sanctuary staff held two                       The Sanctuary Advisory Council was encour-
                      series of three-day-long Info-Expos in April and                aged to attend as many of the meetings as
                      May of 1995 and October 1995. The Info-                         possible in order to help the SAC further
                      Expos were held in the Upper, Middle, and                       develop their comments on the draft plan. This
                      Lower Keys. They were set up like a trade                       made it possible for the SAC to take full
                      show and individual tables served as informa-                   advantage of the public's comments in their
                      tion booths manned by Sanctuary staff, Sanc-                    deliberations on the draft plan in November
                      tuary Advisory Council members, Core Group                      and December.
                      members, and a Spanish interpreter. The Info-
                      Expo staff passed out materials and answered            As a result of the public review process, NOAA
                      the public's questions about the draft plan.            received over 6,400 statements of public comment
                      Each of the booths represented a specific               on the draft management plan and environmental
                      theme such as water quality, fishing, boating,          impact statement. Clearly, the use of the Sanctuary
                      zoning, etc. Additionally, staff distributed            Advisory Council Working Groups assisted the
                      copies of the draft plan to the public if they had      advisory council in the development of their com-
                      not received one by mail.                               ments on the draft plan. As a result of their review
                                                                              process, the input at public hearings, and written
                      ï¿½Working Groups. In June 1995, the Sanctuary            public comments, NOAA has been able to develop a
                      Advisory Council established 10 Working                 Final Management Plan that reflects a broad range of
                      Groups, one for each action plan, to assist in          public comments.
                      the public review of the draft plan. The SAC
                      appointed a Chairperson for each of the
                      Working Groups and other SAC members were
                      encouraged to sigh up to participate in the
                      Working Groups that they were interested in
                      monitoring.



                6








                                                                                                                General Introduction


                                                                                                                         P-
                                                               W=                                                      iff
                                                                               ;0J, I
                                                                                    7,7
                 -procest                                     "'0
                                                                             This volume includes a summary of the Preferred
               The National Environmental Policy Act of 1969                 Alternative, and a discussion of the final manage-
               (NEPA) requires any Federal agency proposing a                ment plan. It consists of the following chapters: 1) the
               major action that significantly affects the quality of the    Preferred Alternative/Management Plan; and 2)
               human environment to develop an environmental                 Action Plans. Brief descriptions of these chapters
               impact statement that describes both the positive and         follow.
               negative impacts that may result from implementa-
               tion. Accordingly, an EIS has been drafted to accom-          The Preferred Alternative/Management Plan. This
               pany the Management Plan, and both have gone                  chapter includes a summary of the Preferred Alterna-
               through a public review and comment process prior             tive, and a discussion of the Final Management Plan.
               to adoption in this Final Plan. The Draft EIS evalu-          This is followed by a discussion of Plan implementa-
               ated a range of reasonable alternative approaches to          tion under the "continuous management process."
               Sanctuary management. These alternatives are                  The administrative framework for management, and
               presented in Volume 11 to facilitate analysis of their        a review of potential alternative funding sources, are
               effects. The Preferred Alternative for Sanctuary              also part of this chapter.
               management is presented based on NOAA's analysis
               of its impacts and the public comments.                       Action Plans. This chapter includes complete discus-
                                                                             sion of 10 action plans that provide the operational
                                                                             details for implementing the Management Plan. Each
                                                                             action plan is composed of a bundle of strategies
                                                                             sharing common management objectives, and
                                                                             presents the initial outline of the steps required for
                                                                             plan implementation. More specifically, the action
                                                                             plans provide an organized structure and process for
                                                                             implementing management strategies, including a
                                                                             description of the activities required, institutions
                                                                             involved, and requirements necessary for either
                                                                             complete or partial implementation.

                                                                             The Research and Monitoring and Water Quality
                                                                             action plans each address requirements mandated in
                                                                             the FKNMSPA. Education and volunteer programs
                                                                             have been established to make the public a partici-
                                                                             pant in protecting Sanctuary resources. The Enforce-
                                                                             ment, Channel/Reef Marking, Mooring Buoy, Sub-
                                                                             merged Cultural Resources, and Zoning action plans
                                                                             outline specific actions that will be taken to protect
                                                                             Sanctuary resources. The Regulatory Action Plan
                                                                             includes the regulations for the Sanctuary, and
                                                                             explains how management strategies have been
                                                                             incorporated into these regulations.














                                                                                                                                    7







                             The Preferred Alternative/Management Plan

                                                                            more than four million visitors annually come here to
                 Introduction                                               just look, others come because it is the sport fishing
                                                                            capital of the world, or its the place you can drive to
               The National Marine Sanctuaries Act (NMSA) and               and dive a tropical coral reef and still be in the
               the Florida Keys National Marine Sanctuary and               continental U.S. One commentor at the public
               Protection Act of 1990 (FKNMSPA) mandate the                 hearings said he "has the same right to look at a
               development of a comprehensive management plan               grouper as the next guy has to spear it." That point
               that protects Sanctuary resources and facilitates            was even more clear when another commentor
               Sanctuary uses that are compatible with the primary          pointed out that "many people can photograph a fish,
               objective of resource protection. The management             while only one can spear it."
               plan was developed consistent with the planning
               guidelines in the National Environmental Policy Act          The trends of increasing population and visitors
               (NEPA). The environmental and socioeconomic                  adding pressures on the resources of the Florida
               consequences of various alternatives have been               Keys continue to grow. Nobody can deny or dispute
               taken into consideration in developing the final             that fact. The Final Management Plan and Environ-
               comprehensive management plan for the Sanctuary.             mental Impact Statement (FMP/EIS) provides a
               The Draft Preferred Alternative was described in             balanced approach to managing the resources of the
               Volume 11 of the DMP/EIS and was the focus of a              Florida Keys by identifying ways of keeping the pulse
               nine month public review from April 4, 1995 through          of the health of the environment and communicating
               December 31, 1995. This section sets forth the Final         those conditions to the public, while creating ways
               Preferred Alternative, and the way in which it was           the public can continue to use and enjoy the Keys
               developed, through consideration of the public               environment with the least amount of impact. Condi-
               comments, of the FKNMSPA, and of NEPA.                       tions are changing rapidly in South Florida and the
                                                                            Florida Keys, and we must be prepared.
               The environment and the economy of South Florida
               and the Florida Keys are directly linked. The nearly         During the lengthy public review process for the
               $2 billion dollar economy of the region is dependent         DMP/EIS, NOAA received over 6,414 written and
               on a healthy environment and without a healthy               verbal comments on the draft plan and has given
               environment the economy would surely decline. For            those comments full consideration in developing the
               example, in the Florida Keys the non-market user             FMP/EIS. In addition, the Sanctuary Advisory
               value of water-based recreational activity was               Council commented on the draft plan. Those com-
               estimated in 1990 to be worth about $660 million per         ments have been given considerable weight in the
               year to both the residents and tourists (Leeworthy et        development of the Final Plan.
               al. 1993). That value has continued to increase.
               Clearly, if the health of the environment in the Florida
               Keys continues to decline as has been identified in           Development of the Management
               Florida Bay and along the coral reef tract, the               Alternatives
               economy of South Florida and specifically the Florida
               Keys will be adversely affected.                             The environmental impacts of the alternatives,
               In the development of the DMP/EIS, NOAA took into            including the Preferred Alternative for the MP/EIS,
               consideration the consequences of not taking any             are described in Volume 11 (pages 136-156). Through
               management actions to protect the fragile natural            scoping meetings, workshops, and other public
               environment of the Florida Keys versus establishing          processes, NOAA narrowed the scope in the Draft
               extremely conservative and protective measures that          EIS to five management alternatives ranging from I-
               would protect the natural resources of the Florida           V, and eliminated I and V early in the evaluation
               Keys regardless of the economic impacts on the               process because they would not adequately achieve
               area. Clearly recognizing the direct ties between the        the environmental and economic requirements of the
               environment and the economy of the Keys, NOAA                NMSA and FKNMSPA, and other applicable Federal,
               has balanced these interests in the development of           State, and local laws.
               the management plan for the Sanctuary. This task             Alternative 1, the most restrictive, focused solely on
               has not been easy because of the wide range of               resource protection, and would not allow for compat-
               competing and conflicting interests. Many of the             ible uses of the Sanctuary. While it would have

                                                                                                                                    9







             The Preferred AlternativelManagement Plan
             positive environmental impacts, Alternative I would         prevent new problems from arising. While NOAA is
             have significant negative and unacceptable socio-           charged with producing a "comprehensive" plan to
             economic impacts, such as virtually closing down            manage the Sanctuary, the plan sets forth high,
             commercial and recreational fishing and prohibiting         medium, and low priority levels for strategies, and
             many other recreational uses.                               only a subset of the proposed actions can be imple-
                                                                         mented in the near future. The mechanisms which
             Alternative V (no action), the least restrictive, would     will be used to apply these strategies, and the
             have negative environmental and socioeconomic               process used to identify strategies to be applied in
             impacts over the long term, and would not accom-            the future, are described in the Action Plans con-
             plish the resource protection goals of the NMSA and         tained in this volume.
             the FKNMSPA. Without the implementation of a
             management plan, continued environmental degra-             Descriptions of the strategies used to develop the
             dation would occur, which ultimately would lead to          Action Plans and Alternatives are located in Appen-
             significant losses of revenue, jobs, and investments        dix H of Volume 111. These strategies were evaluated
             in the marine-based tourism, recreation, and com-           and scrutinized throughout the development of the
             mercial fishing industries of the Florida Keys. These       Management Plan. Many were modified to reflect
             impacts are not consistent with the FKNMSPA goal            concerns and issues that were not evident when the
             of resource protection and facilitation of compatible,      process began (e.g., Florida Bay water quality
             multiple Sanctuary uses.                                    problems). Some strategies were changed to ad-
                                                                         dress specific problems that were raised by the
             After considering the environmental and socioeco-           public at Advisory Council meetings, while others
             nomic impacts of the three mid-range (Alternatives 11-      have remained essentially the same as drafted at the
             IV) management alternatives in the draft plan, NOAA         Strategy Assessment Workshop held in February
             proposed for public comment Alternative III as the          1992. Upon consideration of the public comments on
             Preferred Management Alternative to achieve the             the DMP/EIS, further changes were made, resulting
             proper balance of resource protection and facilitation      in the Final Management Plan.
             of compatible uses. The process used to select the
             Preferred Alternative included considering recom-           The actions in this Final Plan represent the efforts of
             mendations of the Sanctuary Advisory Council, the           many groups and individuals. While NOAA is respon-
             Interagency Core Group, and the public. It involved         sible for developing the Management Plan, it has
             careful examination of the relative impacts of each         treated the process for its development as a partner-
             alternative on the region's natural resources and           ship with the State of Florida, and has also sought
             human activities.                                           the participation of other Federal agencies, local
                                                                         government agencies, non-govern mental organiza-
             NOAA has revised the Preferred Alternative based            tions, resource users, and the public. All of these
             on the public and agency comments received during           parties have contributed to the content of this Plan.
             the nine month review process. Therefore,
             this section of the management plan describes the           Appendix L contains the record of significant public
             Final Preferred Alternative for managing the Sanctu-        comment on the DMP/EIS. Although public comment
             ary and the environmental and socioeconomic                 on the draft plan was abundant and came from
             consequences taken into consideration in the                diverse sources, the issues and specific areas of
             selection process.                                          concern were fairly narrow and focused in scope.
                                                                         The summary of comments and responses in
                                                                         Appendix L sets forth the significant concerns and
             Final Plan-for Sanctuary Management                         explains how they are addressed in the Final Plan.
                                                                         The action plans that received the most abundant
             The Final Management Plan contained in this volume          comment, resulting in the most revisions were: the
             includeslO Action Plans addressing management               education and outreach, regulatory, research and
             strategies developed from the planning process and          monitoring, submerged cultural resources, water
             the public's review of the DMP/EIS. These strategies        quality, and zoning plans.
             are listed by Action Plan in Table 1. These strategies      The issues that received the majority of public
             are the most balanced approach to meeting the               comment were: the operation of personal watercraft;
             goals of the laws establishing the Florida Keys             marine zoning; certain proposed regulations; water
             National Marine Sanctuary (FKNMS). They provide             quality; Sanctuary authority; and the draft Designa-
             potential solutions to known problems, and should           tion Document (Appendix K), containing a draft

             10







                                                                                                                                                           The Preferred AltemativelManagement Plan
                              Table 1. Management Strategies by Action Plan

                               111119MR, '"0091T, M.
                                  B.1   Boat Access
                                  BA    Channel/Reef marking
                               wr @,- . @
                                  EA    Printed Materials                          EA Training[Workshops/Schods                        E.7 PromotionallEducational Materials E.12 Professional Development
                                  E.2   Audio-Visual Materials                     E.5 PSAs                                            E.10 Public Forum
                                  E.3   Signs(Displays/Exhibits                    E.6    Advisory Board                               E.11 Special Events


                                  8.6   Additional Enforcement
                                  B.12 Cross-deputization


                                  B.1   Boat Access                                B.15   Mooring Buoy Management


                                  BA    Channel/Reef Marking                       FA     Consistent Fishing Regulations               L.14    Dredging Prohibition                        ZA      Wildlife Management Zones
                                  B.7   Pollution Discharges                       FA     Aquaculture Alternatives                     L.15    Dredging Regulation                         Z.2     Ecological Reserves
                                  B.1 I Special-use Permits                        F.7    Artificial Reefs                             RA      SCR Management                              Z.3     Sanctuary Preservation Areas
                                  B.13 Salvaging/Towing                            F.8    Exotic Species                               R.7     Coral Touching                              ZA      Existing Management Areas
                                  B.17 Vessel Operations/                          FA I   Gear/Method Impacts                                                                              Z.5     Special-use Areas
                                        PWC Manaoement                             F.14   Spearlishing
                                                    Eyjrmnmzrm@
                                  B.2   Habd at Restoration                        F.10   Bycatch                                      W.18 Pesticide Research                             W.32    Technical Advisory Committee
                                  BA 1  National Marine                            FA I   Gear/Method Impacts                          W.20 Monitodng                                      W.33    Ecological Monitoring
                                        Sanctuary Permits
                                  F.3   Stocking                                   F. 14  Spearfishing                                 W.21 Predictive Models                              Z.2     Ecological Reserves
                                  FA    Aquaculture Alternatives                   F.15   Sponge Harvest                               W.24    Flodda Bay Influence                        Z.3     Sanctuary Preservation Areas
                                  F.6   Fisheries Sampling                         R.5    Carrying Capacity                            W.28    Regional Database                           Z.5     Special-use Areas
                                  F.7   Artificial Reefs                           W 5    Water Quality Standards                      W.29    Dissemination of Findings
                                  Submerged Cultural Resources

                                  RA    SCR Management


                                  B..   Boat Access                                EA     Pdnted Materials                             E.10    Public Forum                                8.2     Recreation Survey
                                  B.2   Habitat Restoration                        E.2    Audio-Visual Materials                       EA I    Special Events                              W.20    WO Monitoring
                                  B.3   Derelict Vessels                           E.3    Signs/DisplaystExhibils                      F.7     Artificial Reefs                            W.33    Ecological Monitoring
                                  8.4   Channel/Reef Marking                       EA     TrainingAAlofthops/Schools                   F.9     Gear Removal
                                  B.9   Visitor Registration                       E.5    PSAs                                         F.1 1   Gear/Method Impacts
                                  B.10 Damage Assessment                           E.7    Promotional/Educational Materials            R.1     SCR Management


                                  B.7   Pollutil n Discharges                      WA     Wastewater Disposal, Key West                W.15    HAZMAT Response                             W.28 Regional Database
                                  EA    TrainingNVorkshops/Schools                 W.5    Water Quality Standards                      W.16    Spill Reporting                             W.29 Dissemination of Findings
                                  LA    Marine Pumpout                             W.6    NPDES Program Delegation                     WA 7 Mosquito Spraying                              W.32 Technical Advisory Committee
                                  L.2   Marine Siting & Design                     W.7    Res. Monitoring of Sfc. Discharge            W.18    Pesticide Research                          W.33 Ecological Monitoring
                                  L.3   Marine Operations                          W.8    OSDS Permitting                              W. 19 Florida Bay Freshwater Flow                   Z.5     Sppcial-use Areas
                                  L.6   Mobile Pumpout                             W.9    Laboratory Facilities                        W.20 Monitoring
                                  L-7   SWD Problem Sites                          WA 0 Canal WQ                                       W.21 Predictive Models
                                  LA 0 HAZMAT Handling                             W.11 StormwaterRetroMing                            W.22 Wastewater Pollutants
                                  W.1   OSDS Demonstration Project                 W.1 2 Stormwater Permitting                         W.23 Special Studies
                                  W.2   AWT Demonstration Project                  WA 3 Stormwater Management                          W.24 Florida Bay Influence
                                  W.3   Wastewater Mangmt. Systems                 W.14 Best Management Practices


                                  ZA    Wildlife Management Areas                  Z.3    Sanctuary Preservation Areas                 Z-5     Special-use Areas
                                  Z.2   Ecological Reserves                        ZA     Existing Management Areas


                                  B.8   User Fees                                  L.8    Containment Options                          L.18    Wetland Dredge and Fill                     W.31 Global Change
                                  B.10 Dock Permitting                             L.9    SWD Policy Compliance                        L.19    Growth Impacts
                                  F.5 Limited Entry                                L.11   HAZMAT License                               L.20    Public Access
                                  F. 12 Finfish Traps                              L.12   HAZMAT Collection                            W.25 WO Impact Research
                                  LA    RV Pumpout                                 L.16   Water-use Reduction                          W.26 Indicators
                                  L.5   RV Waste Reduction                         L.17   Dredge and F911 Authodly                     W.27 Other Monitoring Tools

                                  Abbreviations: Mangmt., Management; Res., Resource; Sfc. Surface.
                                  Note: Strategies may appear In more than one action plan.







           The Preferred AlternativelManagement Plan
           scope of potential regulations. For example, of the           Working Group (CMWG), comprised of representa-
           6,400 written comments received on the draft plan,            tives from each of the major governmental entities
           over 50% addressed the operation of personal                  involved with channel/reef marking as well as
           watercraft within the Sanctuary. Another 10% of the           representatives of affected citizen and user groups.
           comments addressed the proposed Key Largo
           Replenishment Reserve in the draft marine zoning              The goal of additional channel/reef marking in well-
           plan contained in the DMP/EIS.                                defined and prioritized locations is to reduce the
                                                                         damage to shallow-water resources. However,
           The final preferred alternative reflects changes              careful monitoring must be carried out to evaluate
           based on public comment and the recommendations               the effectiveness of the Channel/Reef marking
           from the Sanctuary Advisory Council and therefore             program to insure that the markers are having the
           differs from the draft preferred alternative. The             desired result. Markers that are found to increase
           significant differences in each of the 10 action plans        shallow-water resource damage by attracting addi-
           are described below as well as their environmental            tional boating activity will be removed.
           and socioeconomic impacts. The most significant
           changes occur in the regulatory, zoning, and sub-             The installation of a channel/reef marking system will
           merged cultural resources action plans with addi-             have very positive environmental benefits by protect-
           tional changes occurring in the rest of the action            ing the seagrass communities which serve as
           plans.                                                        important nursery areas for significant recreational
                                                                         and commercial species of fish and shellfish. This
                                                                         action plan will also have a very positive socioeco-
                                  I.JbhT apf",
           1SUM''Mar'-b V AOt             I                              nomic benefit in that it will provide protection to some
                       Y"
                                                                         of the most significant resources of the Sanctuary
           ChanneVReef Marking Action Plan                               that are necessary to support the recreational and
                                                                         commercial interests of the Keys. A Channel/Reef
           The Channel/Reef Marking Action Plan establishes              Marking Program will reduce the incidence of vessel
           an important management tool to identify areas that           groundings which should have a positive economic
           need channel markers and reef warning markers,                impact on boaters since significant costs associated
           and a process to select, install and maintain an              with damage to private vessels will be avoided. The
           effective channel/reef marking system for boaters             plan may have a slight negative economic impact on
           Sanctuary-wide. It is well known that wide scale              the towing/salvage industry due to the anticipated
           damage to shallow water marine resources, particu-            reduction in the number of vessel groundings, but an
           larly seagrass beds and coral reefs, has occurred             overall positive socioeconomic benefit to the area by
           throughout the Florida Keys due to careless opera-            protecting the marine resources from the type of
           tion of vessels. Thousands of acres of seagrass have          impact.
           been impacted by propeller scars and significant
           coral reef formations have been destroyed from                Education and Outreach Action Plan
           direct contact by vessels. Analysis of the patterns of
           shallow water marine resource damage indicates                One of the primary mandates of the Florida Keys
           that in many cases, these injuries could have been            National Marine Sanctuary and Protection Act is to
           avoided through the appropriate placement of                  educate the public about the marine environment
           channel or reef warning markers to indicate the best          surrounding the Keys. The diverse habitats, re-
           route through shallow, sensitive areas.                       sources, and unique setting of the Keys offers
                                                                         opportunities for the interpretation of marine subtropi-
           This action plan identifies background data and               cal and temperate environments. Education and
           analysis necessary to identify areas that would               outreach efforts are extremely important resource
           benefit from channel/reef marking, establishes the            protection tools. By fostering a sense of stewardship,
           criteria that will be used in determining priorities of       resource managers can involve the public in reach-
           new channel/reef markers, creates a mechanism to              ing the goal of a sustained and healthy environment.
           recommend and install new channel/reef markers
           and evaluates the effectiveness or potential impact of        The goal of the Education and Outreach Action Plan
           channel marking projects. Much of the data and                is to protect. marine resources by promoting a holistic
           analysis component of the action plan has already             view of the Keys' ecosystem as an interrelated and
           been completed. The primary mechanism for the                 interdependent system of habitats, and by encourag-
           implementation of the activities identified in this           ing and promoting a sense of stewardship regarding
           action plan is the creation of a Channel/Reef Marking

           12








                                                                                        The Preferred AlternativelManagement Plan
               the marine environment. By implementing these                  with sanctuary regulations by educating users about
               strategies adverse impacts on Sanctuary resources              regulations, why they should comply, and how they
               will be reduced.                                               can comply. Reaching out to the sanctuary commu-
                                                                              nity through educational messages and literature
               Changes to this action plan included a name change:            reduces the number of violations, and fosters a
               outreach was added. Commentors recognized the                  sense of stewardship among Sanctuary users.
               importance of public- outreach in an area where there
               is such heavy use of the resources by local residents          Changes to the Enforcement Action Plan were made
               and by vast numbers of tourists. Clearly, the educa-           in response to comments received. General com-
               tion of the general public and user groups that must           ments were also received which stated that NOAA
               be reached in a very short time frame calls for the            would never be able to fund the number of enforce-
               use of outreach strategies. In addition, a number of           ment officers necessary and thus funding should be
               suggestions coming from the local education com-               geared more toward education. NOAA agrees that
               munity have been integrated to better address                  enforcement of existing and new regulations will be
               learner outcome goals. Some comments suggested                 both a physical and fiscal challenge. In order to
               that products developed through this plan be multi-            protect the natural resources and look after the
               lingual when necessary and appropriate.                        safety of the visitors and themselves, it is expensive
                                                                              to put uniformed officers on the water with all the
               Other comments included increasing the priority of             equipment they are required to have to accomplish
               establishing a Sanctuary Advisory Board and the                their jobs. These limitations serve as good reminders
               need for utilizing the existing network of educators           as to why it is important to maximize on coordinating
               and environmental education organizations and                  all the marine protection efforts of enforcement
               institutions already in place. NOAA has revised the            agencies in the Keys. This coordination and sharing
               document to reflect these comments.                            of human and material resources will have a positive
                                                                              environmental benefit in that there will be better
               The benefits of the Education and Outreach Action              coordinated efforts directed at resource protection.
               Plan are enormous. Fostering a sense of steward-               An example is the status of the current enforcement
               ship in a global community benefits all aspects of             program for the Sanctuary where the Sanctuary
               resource management, because an informed public                Officers are FIDEP Florida Marine Patrol Officers that
               is less likely to inflict negative impacts on the marine       are cross-deputized to enforce both State and
               resources. Costs incurred for educational and                  Federal regulations. This arrangement has saved on
               outreach needs are nominal in the light of the                 creating duplicate communications systems, training,
               exponential benefits of a skilled and knowledgeable            administrative costs, etc. and has resulted in a cost
               public.                                                        savings to the public. There will also be other very
                                                                              positive socioeconomic benefits that will come from
               Enforcement Action Plan                                        sharing of costly material resources between agen-
                                                                              cies rather than the continued purchase or replace-
               Since 1980, the Sanctuary Enforcement Program in               ment of these resources.
               Florida has operated under a cooperative agreement
               with the State. In addition to enforcing local and state       NOAA also agrees that it is important to invest
               laws, Sanctuary enforcement officers possess the               financial resources into education as a critical
               authority to enforce the National Marine Sanctuaries           component of the enforcement program. That is
               Act and other NOAA statutes that apply within the              specifically why National Marine Sanctuaries rely
               sanctuary. The State/Federal agreement on enforce-             heavily on all the various management programs
               ment can be found in Appendix J of Volume Ill.                 such as those outlined in this management plan to
                                                                              achieve its goals. NOAA will continue to use an
               The goals of the Enforcement Action Plan are: (1) to           educational and interpretive approach to enforce-
               protect sanctuary resources by increasing the                  ment to protect the resources of the Sanctuary, as it
               public's understanding of the importance of sanctu-            has at Key Largo NMS for 20 years and Looe Key
               ary regulations, achieving voluntary compliance; and           NMS for 15 years.
               (2) promote public stewardship of the marine re-
               sources through interpretive enforcement.                      No less than eight different enforcement agencies
                                                                              have jurisdiction within the Sanctuary. The Enforce-
               Enforcement officers apply an "interpretive enforce-           ment Action Plan calls for expanded coordination
               ment" strategy when patrolling waters or speaking to           among all these agencies through an enforcement
               citizens. This approach seeks voluntary compliance             task force and more comprehensive protection

                                                                                                                                        13







              The Preferred AlternativelManagement Plan
              through cross-deputization of the various agencies to        cost. Additionally, as in the past the Sanctuary will
              support one another in resource protection. The              encourage private and nonprofit mooring buoy
              direct benefits include improved resource protection,        maintenance programs. Sanctuary staff have trained
              greater public support, and savings to the taxpayers.        various nonprofit groups such as Reef Relief in the
                                                                           techniques of mooring buoy installation and have
              Mooring Buoy Action Plan                                     assisted these groups in the installation of mooring
                                                                           buoys in their areas. This relationship has been very
              Mooring buoys have been shown to be an effective             positive in protecting coral reefs, developing partner-
              management tool to minimize the damage to coral              ships within the community, and serving as a way to
              reefs and other sensitive marine resources resulting         get outside funding for this important means of
              from careless and/or inappropriate anchoring prac-           resource protection.
              tices. However, concerns have been raised recently
              that the improper use of mooring buoys may have              Regulatory Action Plan
              the potential to negatively impact marine resources
              by attracting more boaters, divers, and fishermen            The Regulatory Action Plan is divided into two
              than would have previously used the areas where              sections. One section discusses the strategies
              they are placed. This plan will establish a methodol-        developed in the MP/EIS planning process that
              ogy for identifying areas appropriate for locating           contain a regulatory component and the second
              mooring buoys and managing boating activities near           contains the regulations. Public comments focused
              coral reefs so that the negative impacts will be             on the draft regulations contained in the second
              minimized.                                                   section. Therefore, this Final Management Plan and
                                                                           analysis is specific to the public comments made on
              In response to numerous public comments the third            the draft regulations.
              of three mooring buoy strategies (R.5: Carrying
              Capacity) has been deleted from the Mooring Buoy             Drawing upon 20 years of management experience
              Action Plan. Although many commentors wrote about            in the Key Largo and Looe Key Sanctuaries, NOAA
              their concerns that the Keys had exceeded their              developed regulations that protect natural and
              carrying capacity for a healthy environment, others          historic resources. Along with education and re-
              felt that mooring buoys were not necessarily the             search, regulations are an integral tool for managing
              mechanism for limiting impacts until further research        human activities in National Marine Sanctuaries. This
              is complete. NOAA has agreed, and consistent with            regulatory section is based on the revisions made to
              the SAC recommendations has moved the Carrying               the draft plan resulting from the public review pro-
              Capacity strategy into the Research and Monitoring           cess. The regulations have been developed to
              Action Plan. There the impacts from use of the               comply with the goals and objectives set forth in the
              resources versus the changes due to water quality            Florida Keys National Marine Sanctuary and Protec-
              and environmental changes can be identified and              tion Act and the National Marine Sanctuaries Act.
              addressed.                                                   The FMP/EIS is also the result of a careful balancing
                                                                           of resource protection and compatible multiple uses.
              Mooring buoys are one of the most basic and cost
              effective mechanisms for reducing physical impacts           In addition to establishing new regulations, NOAA
              in sensitive areas. Beginning in the early 1980's            intends to utilize, to the extent possible, existing
              NOAA began installing mooring buoys on coral reefs           regulations under Federal, State, and local laws that
              to prevent anchor damage. This has had a very                already regulate some portion of the actions called
              positive environmental benefit in that mooring buoys         for in specific management strategies. Because
              provide direct protection to living corals from the          coordination with existing authorities is an important
              impact of anchors. The designation of the FKNMS is           component of comprehensive ecosystem manage-
              partially the result of Congress' recognition of the         ment, the Sanctuary regulations will supplement, not
              vulnerability of the coral reefs to direct impacts from      replace, existing authorities.
              human use such as anchor damage. The environ-
              mental benefits will be high, and the socioeconomic          The Final regulations address 19 of the 53 manage-
              benefits will be positive, in that mooring buoys will        ment strategies that have a regulatory component in
              prevent the continued degradation reefs are receiv-          the FMP/EIS. The other 34 strategies are either
              ing from more and more boat anchors.                         regulations that have already been established by
                                                                           another agency, or strategies that need scientific
              The amount of protection that corals receive from the        analysis before they can be implemented.
              use of mooring buoys far outweighs their financial

              14








                                                                                           The Preferred AlternativelManagement Plan
                 The regulatory action plan is intended to establish a           ment Plan. A longer discussion of the environmental
                 comprehensive and coordinated regulatory program                consequences is contained in Volume 11 and an
                 for the FKNMS to ensure the protection and use of               expanded discussion of the socioeconomic conse-
                 Sanctuary resources in a manner that:                           quences for the regulations is contained in Appendix
                                                                                 M, Volume 111.
                     ï¿½ complements existing regulatory authorities;
                                                                                 The Sanctuary regulations are found in the Regula-
                     -  facilitates all public and private uses of the           tory Action Plan (Volume 1) Part 922, Subpart P -
                        Sanctuary that are consistent with the primary           Florida Keys National Marine Sanctuary. It is impor-
                        objective of resource protection;                        tant to note that the regulations are divided into
                                                                                 sections based on their specific intent. The Prohib-
                     ï¿½  utilizes a system of temporal and geographic             ited Activities section is divided into two sections: (1)
                        zoning to ensure effective site-specific re-             Prohibited activities - Sanctuary-wide; and (2)
                        source protection and use management;                    Additional activity regulations by Sanctuary area
                                                                                 (zone). The Sanctuary-wide prohibitions include
                     ï¿½  ensures coordination and cooperation between             regulations that prohibit, restrict, or manage: oil
                        Sanctuary management and other Federal,                  drilling; injury or removal of coral or live rock; alter-
                        State, and local authorities with jurisdiction           ation or construction on the seabed; discharging
                        within or adjacent to the Sanctuary;                     materials such as pollutants; operation of vessels;
                                                                                 diving without a flag; release of exotic species;
                     ï¿½  achieves simplicity in the regulatory process            tampering with markers; removing or injuring Sanctu-
                        and promotes ease of compliance with Sanctu-             ary historical resources; taking or possessing pro-
                        ary regulations;                                         tected wildlife; possession or use of explosives or
                                                                                 electrical charges; interfering with law enforcement
                     ï¿½  promotes mechanisms for making informed                  officers; and adoption of the state regulations on
                        regulatory decisions based on the best avail-            tropical fish and marinelife collecting throughout the
                        able research and analysis, taking into account          Sanctuary. The second Prohibited Activities section
                        information about the environmental, eco-                are regulations that specifically address manage-
                        nomic, and social impacts of Sanctuary                   ment needs for each area type. These regulations
                        regulations; and                                         are especially useful in focusing management
                                                                                 actions in geographically concentrated areas which
                     ï¿½ complements coordination among appropriate                will be environmentally beneficial in these areas. By
                        Federal, State, and local authorities to enforce         concentrating the regulations in zoned areas the
                        existing laws that fulfill Sanctuary goals.              broader socioeconomic consequences on any user
                                                                                 group will be lessened or eliminated. For example,
                 There are a number of existing Federal and State                during the 1991 scoping hearings for the Sanctuary,
                 conservation laws that either partially or entirely             members of the public expressed a broad range of
                 address some regulatory components of the various               concerns about spearfishing. Some wanted
                 management strategies. NOAA's Final regulations                 spearfishing prohibited throughout the Sanctuary,
                 supplement existing laws and regulations and avoid              while others wanted no restrictions on spearfishing.
                 unnecessary duplication except in instances where               The no-take Sanctuary zones help balance these
                 agencies involved in the planning process specifi-              concerns. By prohibiting spearfishing in the heavily
                 cally requested an overlap of Sanctuary regulations.            used areas of the coral reef, NOAA will provide
                 Clearly, effective enforcement of relevant existing             environmental protection from this activity and there
                 Federal, State, and local regulations will be important         will be positive environmental benefits. However, by
                 for maintaining the health of the Sanctuary.                    allowing spearfishing in the other parts of the coral
                                                                                 reef that experience fewer users, the socioeconomic
                 Generally speaking, the suggested changes to the                consequences will be lessened by using the zoning
                 draft regulations are not substantial in scope and              concept.
                 NOAA has made every attempt to address the
                 significant concerns raised regarding the draft                 The following are specific changes to the draft
                 regulations. This section includes a description of the         regulations that appeared in the DMP/EIS. As part of
                 revisions to the draft regulations. Also included is a          the Administration's regulatory streamlining, techni-
                 discussion of the expected environmental and                    cal changes to the format of the Sanctuary regula-
                 socioeconomic consequences of the regulations                   tions have been made to incorporate the draft
                 established for the Sanctuary in this Final Manage-             FKNMS regulations into 15 CFR Part 922 (National

                                                                                                                                            15








             The Preferred AlternativelManagement Plan
             Marine Sanctuary Program Regulations), as opposed            Buoy Action Plan, Volume 1). Commentors indicated
             to the FKNMS regulations standing alone in Part              that this was not a practical solution for all the areas
             929. Sections 922.3, 922.42, 922.45, 922.46 and              where fishermen conduct their activities, especially
             922.50 are found in Subparts A and E of 15 CFR               over some of the deeper reef habitats. However,
             Part 922 and apply to all sanctuaries and are very           anchoring on corals can be addressed in some
             similar to provision of the draft FKNMS regulations.         areas where the boat operators should be able to
             Sections 922.160, 922.161, 922.162, 922.163,                 see the bottom. Visibility of the bottom is now an
             922.164, 922.165, 922.166, 922.167, and 922.168              element of the prohibition.
             are sections applicable only to the FKNMS and will
             appear in a new Subpart P to 15 CFR 922.                     Since prohibiting anchoring on corals throughout the
                                                                          Sanctuary would be overly-restrictive and would
             ï¿½ 929.1 Purpose (Now ï¿½ 922.160). (No other                   have serious socioeconomic impacts on users,
             Change)                                                      NOAA proposed draft regulations that prohibited
                                                                          anchoring a vessel on coral, in depths less than 50
             ï¿½ 929.2 Boundary (Now ï¿½ 922.161). (No other                  feet. Reviewers of the draft plan, including the SAC,
             Change)                                                      said this was too restrictive, especially in the Lower
                                                                          Keys where visibility often prevents a boat operator
             ï¿½ 929.3 Definitions (Now ï¿½ 922.3 - Definitions               from being able to see the bottom at such depths.
             applicable to all National Marine Sanctuaries; and           This is not the case in much of the Upper Keys, but
             ï¿½ 922.162 - Definitions applicable to the Florida Keys       still applies on some days when low visibility occurs.
             National Marine Sanctuary only). (Revised)                   There would be greater environmental benefits from
                                                                          having this protection in all waters shallower than 50
             The definitions in this section have. been separated         feet. However, this regulation would have serious
             into those definitions applicable to all National Marine     socioeconomic consequences in areas that are used
             Sanctuaries (ï¿½ 922.3), including the Florida Keys            regularly by fishermen when they can't see the
             National Marine Sanctuary, and those definitions             bottom.
             applicable only to the Florida Keys National Marine
             Sanctuary (ï¿½ 922.162).                                       In the Final Plan, NOAA has restricted anchoring a
                                                                          vessel on coral in depths less than 40 feet of water
             New definitions including those for corals, coral            when visibility is such that corals on the seabed can
             areas, coral reefs, hardbottoms, and residential             be seen. This prohibition does not apply to anchor-
             shorelines were added to the Final Management                ing on hardbottom. The SAC recommended this
             Plan. These revisions were made based on public              regulation in their comments to NOAA, while some
             comments and to clarify the applicability of the             groups requested the prohibition apply throughout
             regulations. The revisions should have no additional         the Sanctuary, and others wanted no prohibition at
             adverse impacts on the environment or Sanctuary              all. This alternative will have positive environmental
             users.                                                       benefits by preventing anchor damage to coralreefs,
                                                                          thus protecting these resources from a source of
             ï¿½ 929.4 (Now ï¿½ 922.42) Allowed activities. (This             direct impact that can be prevented. The socioeco-
             section was revised based on recommendations                 nomic consequences of this restriction will not have
             from the SAC and has been incorporated into the              any direct economic impact on the visitor, but the
             sanctuary program regulations of general applicabil-         overall, long-term economic benefit to society from
             ity in 15 CFR Part 922, Subpart E)                           protecting these important resources from anchor
                                                                          damage will far outweigh any inconveniences of
             ï¿½ 929.5 (Now ï¿½ 922.163) Prohibited activities -              having people be careful when they are dropping
             Sanctuary Wide (Revisions Made)                              their anchors.

             There were some revisions to the Sanctuary-wide              Fifty one percent (51 %) of the public comments on
             draft regulations based on the public review of the          the DMP/EIS addressed the issue of personal
             DMP/EIS. These changes were made in the opera-               watercraft (PWCs or jet skis). The majority of them
             tion of vessels section of the Sanctuary-wide prohib-        requested that NOAA not single personal watercraft
             ited activities. Anchoring on corals is a threat to the      out in its final regulations. Many of the public com-
             health of coral reefs in the Florida Keys. This is           ments reminded NOAA that personal watercraft
             especially true in areas of concentrated vessel use.         owners and users should act responsibly. Others
             Mooring buoys have been installed on some heavily            asked that NOAA severely restrict, or even prohibit
             used reefs to prevent anchor damage (see Mooring             the operation of personal watercraft within the

             16






                                                                                            The Preferred AlternativelManagement Plan
                  Sanctuary. NOAA also received comments noting                   ary. Instead, NOAA proposed prohibiting the opera-
                  frequent environmental nuisance and safety issues               tion of all vessels at a speed greater than idle speed
                  associated with the operation of personal water craft.          only/ no-wake within a residential canal, within 100
                  These included: reckless operating behavior, harass-            yards of the red and white "divers down" flag (or the
                  ment of endangered and other species, harassment                blue and white "alpha" flag in Federal waters), or
                  of other boaters (including disruption of fishing on            within 200 yards of:
                  flats), and noisy operation in canals and adjacent to
                  residential shorelines. These commentors requested                   9 residential shorelines,
                  limiting and restricting or banning the use of personal
                  water craft within the Sanctuary.                                    9 mangrove fringed islands,

                  NOAA has developed a multi-prong approach to                         9 stationary vessels, or
                  address the public's concern about the use of
                  personal water craft. NOAA has accepted the SAC's                    9 signs indicating emergent or shallow reefs.
                  recommendation to add a new section to the final
                  regulations which prohibits reckless operation of               NOAA received considerable public comment on this
                  watercraft. Additionally, Section 929. 5 (a)(5) (now            draft regulation designed largely to address user
                  ï¿½ 922.163 (a)(5)) has been modified to prohibit                 conflicts and impacts to Sanctuary resources. A large
                  operating a vessel at greater than idle speed only/no           number of commentors felt the 200 yard distance
                  wake within 100 yards from residential shorelines,              was impractical, especially in the Lower Keys where
                  stationary vessels (except in marked channels) and              there are many islands with less than 400 yards
                  navigational aids marking emerging or shallow reefs.            between them and this restriction would create a
                  NOAA has also incorporated into its regulations the             burden. Boat operators would in some instances be
                  ability to address negligent behavior and the author-           forced to motor long distances at idle speed. This
                  ity to enforce all idle-speed only/no wake zones                could potentially have adverse environmental
                  established throughout the Sanctuary. NOAA will use             impacts, especially in areas where it would be too
                  the existing county and State process for designating           shallow for conventional propeller driven boats to
                  these zones and it is likely that these areas will be           motor without remaining on a plane. There are many
                  used to restrict personal watercraft in certain residen-        areas in the Lower Keys that will not be marked with
                  tial and other areas where they continue to be a                channel markers, yet boaters need to transit through
                  nuisance or safety problem. The industry has indi-              them. This restriction would have socioeconomic
                  cated it is seriously committed to "self regulation" and        impacts on users and little environmental benefit.
                  is willing to work with NOAA to develop successful              NOAA agrees and has made the following revisions
                  educational efforts geared toward changing user                 in the Final Plan. The final regulation will prohibit
                  behavior. In particular, the PWC industry agreed to             operating a vessel at a speed greater than idle speed
                  work with Sanctuary staff to establish criteria for the         only/no-wake, except in marked channels and other
                  management of commercial PWC rental operations.                 less restrictive marked areas:
                  The final component of NOAA's approach to PWC's
                  is a modification of the SAC's recommendations . If                  e in areas designated idle speed only/no wake
                  initial efforts are not successful at significantly                    zones;
                  reducing or eliminating the nuisance and safety
                  problems, NOAA will consider implementing broad                      * within 100 yards of navigational aides indicat-
                  zoning restrictions consistent with SAC recommen-                      ing emergent or shallow reefs (international
                  dations. Such zoning has been successfully imple-                      diamond warning symbol);
                  mented in the Monterey Bay National Marine Sanctu-
                  ary.                                                                 9 within 100 feet of the red and white "divers
                                                                                         down" flag (or the blue and white "alpha" flag in
                  Based on its review of the public comments and                         Federal waters);
                  consideration of the SAC recommendations, NOAA
                  has established a series of regulations that address                 * within 100 yards of residential shorelines; or
                  the operation of all vessels, including personal
                  watercraft.                                                          9 within 100 yards of stationary vessels.
                  In the DMP/EIS, NOAA did not single out PWCs                    In developing this final regulation, NOAA considered
                  because other vessels used inappropriately also                 the existing regulations in the USFWS Refuges in the
                  could impact the resources and users of the Sanctu-             Lower Keys regarding the operation of vessels near

                                                                                                                                            17






             The Preferred AlternativelManagement Plan
             sensitive mangrove islands and their regulation that         The regulations in the Final Management Plan for the
             prohibits PWCs in some areas. The zoning (WMAs)              zones primarily changed in geographical extent and
             regulations address the operation of vessels and             number of specific zones, as opposed to the specific
             PWCs in the Lower Keys Refuges. Therefore, the               regulations within the different zones. Those
             regulations on operation of vessels within 100 yards         changes are described in detail in the discussion of
             of residential shorelines and stationary vessels is          the Final Zoning Action Plan later in this volume. The
             considered to address resource impacts and user              environmental consequences and the socioeconomic
             conflicts. Since mangrove fringed islands are no             benefits of each of the zones are discussed in the
             longer included in the final regulations, the geo-           Zoning Action Plan description of this chapter, These
             graphical orientation of the Lower Keys with narrow          topics are also discussed more extensively in
             passes between islands will not create a burden on           Volume III, Appendix M.
             users who need to transit long distances to the Gulf.
             Considering that 19 of the Wildlife Management               In the Final Management Plan the following regu-
             Areas fall within this Lower Keys Region, where              lated activities are those that were revised for the
             vessel access and operation are already managed,             Ecological Reserves and the Sanctuary Preservation
             NOAA feels that complementing the USFWS regula-              Areas as a result of public comment, including
             tions in the WMAs will have positive environmental           comments from the SAC:
             benefit and low socioeconomic losses.
                                                                              9 Possessing, moving, harvesting, removing,
             Additional regulations on the operation of vessels will            taking, damaging, disturbing, breaking, cutting,
             include: (1) a prohibition on operating a vessel in                spearing, or otherwise injuring any coral,
             such a manner as to injure, take or cause distur-                  marine invertebrate, fish, bottom formation,
             bance to wading, roosting, or nesting birds, or marine             algae, seagrass or other living or dead organ-
             mammals; and (2) operating a vessel in a manner                    ism, including shells, or attempting any of
             which unreasonably or unnecessarily endangers life,                these activities. However, fish, invertebrates,
             limb, marine resources, or property, including but not             and marine plants may be possessed aboard a
             limited to, weaving through congested vessel traffic,              vessel in an Ecological Reserve or Sanctuary
             jumping the wake of another vessel unreasonably or                 Preservation Area, provided such resources
             unnecessarily close to such other vessel or when                   can be shown not to have been harvested
             visibility around such other vessel is obstructed, or              within, removed from, or taken within, the
             waiting until the last possible moment to avoid a                  Ecological Reserve or Sanctuary Preservation
             collision. These regulations will have positive envi-              Area, as applicable, by being stowed in a
             ronmental benefits and the socioeconomic impacts                   cabin, locker, or similar storage area prior to
             will be high if some action is not taken to manage                 entering and during transit through such
             operation of vessels.                                              reserves or areas.
             The final regulations on the operation of vessels will           * Except for catch and release fishing by trolling
             have strong environmental benefits by preventing the               in the Conch Reef, Alligator Reef, Sombrero
             harassment and disturbance of wildlife in the Sanctu-              Reef, and Sand Key SPAs, fishing by any
             ary. This is particularly true along mangrove fringed              means. However, gear capable of harvesting
             shorelines and in shallow nearshore habitats. Here                 fish may be aboard a vessel in an Ecological
             vessels operated too close to the mangroves cause                  Reserve or Sanctuary Preservation Area,
             the flushing of nesting birds, leaving their eggs                  provided such gear is not available for immedi-
             exposed to extreme temperatures with resultant loss                ate use when entering and during transit
             of the clutch of eggs. This unnecessary impact will                through such Ecological Reserve or Sanctuary
             be lessened by the regulations. NOAA feels this                    Preservation Area, and no presumption of
             approach to regulating the operation of all vessels                fishing activity shall be drawn therefrom.
             will have the least amount of socioeconomic conse-
             quences on any one user group with the greatest              These revisions to the draft regulations are based on
             environmental benefits directed at protecting the            considerable public comment and are intended to
             wildlife resources of the Florida Keys.                      lessen the socioeconomic impact on fishermen who
                                                                          need to transit these zones with their catch and
             ï¿½ 929.6 (now ï¿½ 922.164) Additional Activity Regula-          fishing gear. Allowing this exception will not result in
             tions by Sanctuary area. (Revisions Made)                    any additional environmental consequences.


             18







                                                                                       The Preferred AlternativelManagement Plan
               In regards to allowing catch and release fishing by           ballyhoo by nets in the SPAs. During the review
               trolling in some Sanctuary Preservation Areas (SPA)           process NOAA staff accompanied fishermen on the
               and allowing baitfishing by net for ballyhoo in all           water for a firsthand look at ballyhoo fishing activity.
               SPAs, NOAA has attempted to lessen the socioeco-              Consequently, NOAA will allow ballyhoo fishing by
               nomic impact of the proposed regulations with limited         net in the SPAs. The activity will be permitted with a
               environmental consequences. These actions were                no-cost, locally issued permit that fishermen can
               supported by the SAC's comments on the DMP/EIS                obtain at one of the Sanctuary offices. Due to the
               and address comments from the public, particularly            high migratory nature of baitf ish across the SPAs,
               fishermen and related bait businesses.                        NOAA feels this harvesting activity will have low
                                                                             environmental impact on the resources and it will
               The Preferred Alternative in the DMP/EIS did not              have high socioeconomic benefits associated with it.
               allow any catch and release fishing in the SPAs.
               During the public review of the draft plan NOAA               There was some public concern about the ability of
               received considerable public comment about this               the Director or his designee to close SPAs to public
               issue. Many commented that NOAA should allow                  access for a period of time. This issue was raised by
               catch and release fishing while other commentors              the SAC and the general public as one that could
               raised concern about the environmental impact from            have serious socioeconomic impacts on their activi-
               the activity of catching and then releasing fish.             ties. In public comments, there was a general
               Although estimates vary about the percentage of               request to establish some kind of time limit or
               mortality of fish caught and released, NOAA has               process to close areas to public access for emer-
               considered the SAC's recommendation to allow                  gency reasons. NOAA has agreed and has revised
               catch and release fishing in "specified SPAs." NOAA           the regulation to read as follows:
               further looked at aerial census data (1994, FDEP
               and TNC work in progress) and considered the                  The Director will provide public notice of the restric-
               public comment on the draft plan and selected four            tion by publishing a notice in the Federal Register,
               SPAs to leave open to catch and release fishing by            and by such other means as the Director may deem
               trolling. This will give NOAA areas to compare and            appropriate. The Director may only restrict access to
               contrast this activity between areas where catch and          an area for a period of 60 days, with one additional
               release fishing is allowed and not allowed in order to        60 day renewal. The Director may restrict access to
               determine its short and long-range impact. Conch              an area for a longer period pursuant to a notice and
               Reef, Alligator Reef, Sombrero Key, and Sand Key              opportunity for public comment rulemaking under the
               were selected partially on aerial census data and             Administrative Procedure Act. Such restriction will
               information gathered from the public comments.                be kept to the minimum amount of area necessary to
               NOAA feels this allowed activity will have some               achieve the purposes thereof. In addition, the draft
               adverse environmental impacts, but determined the             Co-Trustee Agreement with Florida has been modi-
               socioeconomic benefits gained by the charterboat              fied so that the State is consulted prior to such
               operators will outweigh the environmental loss while          designations, and the Governor has the authority to
               this activity is being assessed. Presently, the               re-open temporary closures in State waters.
               charterboat operators rely on the shallow reefs to
               provide fishing action when conditions are such that          ï¿½ 929.7 (Now ï¿½ 922.165) Emergency Regulations.
               the boats can't operate offshore, or when other               (Revisions Made)
               pelagic species of fish are not running. By allowing
               this activity, this socioeconomic impact will be              There was some public concern about the ability of
               lessened.                                                     the Director or his designee to establish emergency
                                                                             regulations which could affect access or activities.
               In the DMP/EIS NOAA prohibited baitfishing in SPAs,           This issue was raised by the SAC and the general
               through the overall prohibition against taking any-           public as one that could have serious socioeconomic
               thing in these areas. However, during the public              impacts on their activities. In public comments, there
               comment process NOAA gained considerable                      was a general request to establish some kind of time
               knowledge about this activity and the importance of           limit or process to close areas to public access for
               the SPAs for providing live bait for offshore, pelagic        emergency reasons. NOAA has agreed and has
               fishing. The recreational charter fishing industry            revised the regulation to read as follows:
               relies heavily on its access to live bait along the coral
               reef tract when pelagic species of fish are migrating         Any such temporary [emergency] regulation may be
               through the Keys. There was considerable public               in effect for up to 60 days, with one 60-day exten-
               comment requesting NOAA allow the harvest of                  sion. Additional or extended action will require notice

                                                                                                                                      19







               The Preferred AlternativelManagement Plan
               and comment rulemaking under the Administrative              is all that is needed to gain compliance of the vast
               Procedure Act, notice in local newspapers, Notice to         majority of Sanctuary users.
               Mariners, and press releases.
                                                                            ï¿½ 929.10 (Now ï¿½ 922.166) National Marine Sanctu-
               ï¿½ 929.8 (Now ï¿½ 922.45) Penalties. (This section is           ary Permits - Application Procedures And Issuance
               substantively the same as that in the draft, but has         Criteria. (Revisions Made)
               been incorporated into the sanctuary progeam
               regulations of general applicability at 15 CFR Part          Permits are required in National Marine Sanctuaries
               922, Subpart E)                                              for conducting activities that are prohibited by
                                                                            sanctuary regulations. NOAA has worked with the
               There was some public comment, including comment             State of Florida to identify specific areas for permits
               from the SAC, requesting that NOAA publish a                 that would be certified and authorized for the conduct
               penalty schedule for the Sanctuary in the Final Plan.        of activities that would normally be prohibited within
               The issue that prompted this request by the public           the Sanctuary. In an effort to reduce the burden of
               and the SAC was NOAA's authority to collect                  permitting, NOAA has also identified other agencies
               $100,000 per day per infraction. There was a misun-          with whom to coordinate permitting activities. For
               derstanding in some public comments that this would          example, regarding placement of artificial reefs,
               be the amount NOAA would seek for each infraction.           NOAA reviews and consults with the USACE on
               NOAA has encouraged the public and SAC to review             permitting of this activity within the Sanctuary. The
               the penalty schedule established for the Key Largo           Sanctuary is particularly concerned with site selec-
               and Looe Key NMS as a general reference for the              tion. Its other concerns are largely addressed by
               approximate level of penalties applied historically in       strict compliance with the NMFS/USACE Artificial
               those Sanctuaries. NOAA's Office of General Coun-            Reef Plan. Similarly, in regards to "live rock" aquacul-
               sel will develop a penalty schedule for the Sanctuary        ture sites, the Sanctuary reviews and consults with
               and it will be available to the public.                      the NMFS permitting process for these activities.
                                                                            NOAA is establishing a permitting system that
               Penalties for regulations established under the              maximizes use of existing systems and therefore is
               NMSA are created under civil law and therefore differ        not expected to have a significant incremental
               from some those established under other Federal/             socioeconomic impact on the public.
               State jurisdictions within the Sanctuary. This will
               have both positive environmental benefits and overall        In addition to permits for research, education,
               positive socioeconomic benefits for the Sanctuary.           salvage and recovery operations, and management,
               The resources of the Sanctuary will receive a greater        a Sanctuary general permit may now also be issued
               level of protection by providing civil authority to other    for an activity that otherwise furthers Sanctuary
               agencies through cross-deputization. Enforcement of          purposes, including facilitating multiples use of the
               regulations is best facilitated by agencies cross            Sanctuary, to the extent.compatible with the primary
               deputizing to enforce civil penalties.                       objective of resource protection. To increase re-
                                                                            source protection, factors in the draft permit regula-
               Civil authority and coordinated enforcement under            tions that the Director considers in determining
               the NMSA have positive socioeconomic impacts on              whether to issue a permit are. now findings the
               society in general in that there are cost savings to         Director must make in order to issue a Sanctuary
               the public when agencies can share authorities and           permit. Further, the required findings will ensure
               combine human and material resources. The Sanctu-            applications for Sanctuary permits to conduct other-
               ary regulations provide supplemental civil penalty           wise prohibited activities will be evaluated equitably
               options. In some cases, civil may be more appropri-          because the Director must address all the factors
               ate than criminal. In some cases, use of both civil          listed in the regulations in making the required
               and criminal may be appropriate. The resources can           findings.
               be better protected when there are more options for
               individuals enforcing the regulations. This, in turn,        Sections 929.11 and 929.12, pertaining to Sanctuary
               should lead to greater environmental and socioeco-           Historical Resources permits and Special-use
               nomic benefits.                                              Permits, respectively, have been incorporated into
                                                                            ï¿½ 922.166 so there is only one permit section ad-
               Civil authority lends itself more freely to an educa-        dressing all types of Sanctuary permits. The
               tional and interpretive approach to enforcement of           deaccession/transfer of public historical resources to
               regulations in National Marine Sanctuaries. Simply           private permittees will be done through a Special-use
               the message that something is a Sanctuary violation          Permit.

               20







                                                                                         The Preferred AlternativelManagement Plan
                  ï¿½ 929.11 National Marine Sanctuary Historical                ï¿½ 929.15 (Now ï¿½ 922.168) Notification And Review
                  Resources Permits - Survey/Inventory, Research/              Of Applications For Leases, Licenses, Permits,
                  Recovery, Deaccession/Transfer - Application                 Approvals, Or Other Authorizations To Conduct A
                  Procedures And Issuance Criteria. (Revisions Made)           Prohibited Activity. (No Change)

                  The SCR permit system manages all activities which           ï¿½ 929.16 (Now ï¿½ 922.50) Appeals Of Administrative
                  may impact SCRs. The regulations prohibit the                Action. (This section has been incorporated into the
                  removal or injury of Sanctuary historical resources.         sanctuary program regulations of general applicabil-
                  There are three types of permits which may be                ity at 15 CFR Part 922, Subpart E)
                  issued under this section, Survey/Inventory, Re-
                  search/Recovery, and a Special-use Permit for                Research and Monitoring Action Plan
                  Deaccession/Transfer.
                                                                               The main goal of the Research and Monitoring
                  In response to comments, this section was revised to         Action Plan is to provide the knowledge necessary
                  make the permit management system more prag-                 for making informed decisions about protecting the
                  matic from the perspective of the commercial salvors         Sanctuary resources. Research and monitoring is the
                  without compromising the primary objectives of               essential first step in taking stock of the wealth
                  protecting the submerged cultural resources.                 represented in Sanctuary resources and planning for
                                                                               their conservation and use. It will do this by estab-
                  After consultation with the State of Florida, NOAA           lishing an ecological monitoring program focusing on
                  deleted the regulatory provisions requiring a perfor-        the no-take zones, disseminating scientific findings
                  mance bond for all applicants. NOAA has also                 through a periodic report, permitting and coordinating
                  modified the regulations to clarify that other security      research activities, investigating fisheries impacts,
                  instruments may be utilized in lieu of insurance             and establishing a research program on carrying
                  policies. Additionally, NOAA modified regulatory             capacity.
                  language to clarify that the scope of coverage
                  required is for "potential claims for damages to             In response to public comments, minor changes
                  Sanctuary resources arising out of permitted activi-         were made to the Research and Monitoring Action
                  ties" and to clarify that the amount of insurance or         Plan. Most public comments on the plan called for
                  security should be reasonably equivalent with an             monitoring the no-take zones to determine their
                  estimated value of the Sanctuary resources in the            effectiveness. Research and monitoring of the zones
                  vicinity of the permitted area and activities. These         was emphasized in the plan to accommodate this
                  changes should make the requirement more flexible            comment. The Sanctuary Advisory Council re-
                  and thereby minimize some of the adverse socioeco-           quested that the carrying capacity strategy be added
                  nomic consequences as compared to the draft plan.            to the plan which has been done. One State agency
                                                                               commented on the Strategy F.3 (moratorium on
                  This section has been incorporated into the Sanctu-          stocking) stating that it would curtail the State's
                  ary permit section; ï¿½ 922.166.                               ongoing queen conch stocking program. In response,
                                                                               the strategy was changed to call for permitting of all
                  ï¿½ 929.12 Special-use permits. (This section has been         stocking programs.
                  incorporated into the Sanctuary permit section;
                  ï¿½ 922.166)                                                   The Research and Monitoring Action Plan in the
                                                                               Final Preferred Alternative will provide better scien-
                  ï¿½ 929.13 Sanctuary Registry - Research Notice.               tific information in a more timely manner than was
                  (Deleted)                                                    called for in the Draft Preferred Alternative; therefore,
                                                                               resource protection will be enhanced through more
                  This section 929.13 was removed from the final               well-informed resource managers. Resource protec-
                  regulations because the Sanctuary registry is volun-         tion should be further enhanced by the permitting of
                  tary and no regulation is necessary for its establish-       research activities and the research on carrying
                  ment.                                                        capacity. A great many people utilize the Sanctuary
                                                                               resources for recreation as well as research; conse-
                  ï¿½ 929.14 (Now ï¿½ 922.167) Certification Of Preexist-          quently, permitting prohibited activities will both
                  ing Leases, Licenses, Permits, Approvals, Other              accommodate multiple uses and minimize impacts to
                  Authorizations, Or Rights To Conduct A Prohibited            resources. Permitting procedures will create a minor
                  Activity. (No Change)                                        burden in the way of paperwork for researchers and
                                                                               educators. Research on carrying capacity will help

                                                                                                                                        21






             The Preferred A ItemativelManagement Plan
             reduce impacts to resources. In summary, the                    generations. Because cultural resources are nonre-
             Research and Monitoring Action Plan will facilitate             newable, decisions affecting these resources must
             resource protection with minimal socioeconomic                  be made with a precautionary approach, and only
             impacts on users.                                               after careful and deliberate analyses of the potential
                                                                             consequences on long-term preservation.
             Submerged Cultural Resources Action Plan
                                                                             The goals of the Florida Keys National Marine
             NOAA is committed to protecting and preserving the              Sanctuary's Submerged Cultural Resources Program
             natural resources within its national marine sanctuar-          are to:
             ies, and is equally committed to its stewardship and
             trustee responsibilities for the historical resources in               gather sufficient information about the nature
             these areas. Such resources are defined as those                       and extent of the area's cultural resources to
             "possessing historical, cultural, archaeological, or                   allow managers to make informed decisions
             paleontological significance, including sites, struc-                  about resource protection and management;
             tures, districts, and objects significantly associated
             with or representative of earlier people, cultures, and              9 interpret the history and culture of the Keys for
             human activities and events" (15 CFR 922.2 (c)). In                    the public;
             this action plan, the terms historical resources,
             cultural resources, and submerged cultural resources                 * allow/permit private-sector participation
             (SCRs) are used interchangeably. Within the nation's                   research, documentation, recovery, and
             national marine sanctuaries, these resources include                   curation of cultural resources; and
             shipwrecks that are part of both U.S. and world
             history, as well as the remains of submerged prehis-                 * to develop a community-based stewardship for
             toric cultures.                                                        cultural resources in the Sanctuary.

             The Sanctuary's submerged cultural resources                    NOAA and the State of Florida carefully balanced the
             encompass a broad historical range. Because of the              environmental and socioeconomic consequences of
             Keys'strategic location on early European shipping              the management alternatives , including a no action
             routes, the area's shipwrecks reflect the history of            alternative in developing a final SCR plan which is
             the entire period of discovery and colonization. This           the final preferred alternative. This plan is also
             richness of historical resources brings a correspond-           consistent with the resource protection and multiple
             ing responsibility for protecting resources of national         use mandates in the National Marine Sanctuaries Act
             and international interest. Accordingly, the resources          and the Abandoned Shipwreck Act (ASA). To protect
             should be managed for public benefit and enjoyment,             SCRs, the regulations prohibit the removal or injury
             while the historical-cultural heritage is preserved for         of Sanctuary historical resources. The environmental
             the future. Long-term protection requires a pre-                consequences should be positive for both SCRs and
             cautionary approach to historical resource manage-              natural resources. There will be adverse socioeco-
             ment, particularly when cultural information and/or             nomic impacts to commercial treasure salvage
             the artifacts may be destroyed or lost intentionally or         operators from this regulation. However, a SCR
             unintentionally through various direct and indirect             permit system has been established to minimize
             activities. The Federal Archaeological Program or               these impacts in a manner.which is compatible with
             equivalent standards of conservation, cataloguing,              the primary objective of resource protection.
             display, curation, and publication must be assured
             before the excavation of historically significant               The SCR permit system manages all activities which
             resources is permitted. Such projectsare expensive              may impact SCRs. The Programmatic SCR Agree-
             and labor-intensive, requiring specialists in the fields        ment further details the management of SCRs to
             of archaeology, conservation, and museum work and               address the concerns of the National Historic Preser-
             historic shipwreck research and recovery. NOAA                  vation Act, section 106. While "treasure hunting" in
             and the State will explore all public and private               its traditional sense is not permitted in the Sanctuary,
             partnerships in fulfilling SCR management and will              the SCR plan does provide for limited public and
             consider private sector implementation, if it is deter-         private sector recovery of certain objects consistent
             mined to be in the public's interest.                           with the protection of natural and historical resource
                                                                             values and particularly the environmental integrity of
             Sanctuary Goals. The Sanctuary has a trustee                    the shipwrecks and sites. The plan's policy prefer-
             responsibility for protecting the cultural resources            ence is it to preserve highly significant SCRs on site
             within its boundaries for current users and future


             22






                                                                                         The Preferred AlternativelManagement Plan
                 within the Sanctuary and strictly regulate the recov-         Navy vessels without the express written permission
                 ery of SCRs to ensure that recovery is only permitted         of the Navy. In considering permits for the private
                 when determined to be in the public's interest and is         recovery of other vessels entitled to sovereign
                 done in an environmentally and archaeologically               immunity, NOAA may require the express permission
                 sound manner. To ensure positive environmental                of the appropriate sovereign representatives, or
                 consequences, there will be no recovery permits               otherwise consider their interests in the vessel and
                 issued in areas where there is coral, seagrass or             its recovery.
                 other significant natural resources. However, to
                 minimize the adverse socioeconomic impacts on                 In order to avoid adverse environmental conse-
                 commercial treasure salvors, private recovery of              quences, commercial treasure salvage is strictly
                 SCRs of low to moderate significance may be                   regulated to prevent harm to natural resources from
                 permitted in other areas of the Sanctuary which are           various commercial treasure salvage methodologies,
                 relatively devoid of natural resources. Any SCR may           including "mail-boxing" (propeller dredging device).
                 be recovered if they are threatened or may otherwise
                 be lost should they remain in the Sanctuary. In order         Pursuant to consultation with the State of Florida,
                 to ensure positive environmental consequences,                NOAA agreed to delete the regulatory provisions
                 such recovery efforts will be strictly regulated and will     requiring a performance bond for all applicants.
                 require that any highly significant resources be              While the removal of this regulatory requirement
                 preserved in a museum with public access consistent           should reduce the costs for meeting the permit
                 with the standards of the Federal Archaeological              criteria for most applicants, such performance bond
                 Program. In order to minimize the socioeconomic               may still be reasonable and appropriate in certain
                 impacts to commercial treasure salvors, objects of            cases where applicants have not finished projects or
                 low to moderate historic or archaeological signifi-           have difficulty demonstrating their financial ability to
                 cance may be deaccessioned or transferred for sale            complete the proposed project. In such cases, there
                 or other disposition.                                         will be socioeconomic costs involved in getting the
                                                                               bond.
                 The final plan ensures that there will be SCRs in the
                 Sanctuary for research, education and recreational            The general liability insurance is a statutory require-
                 use. This should have positive environmental and              ment under Section 310 of the NMSA. However,
                 socioeconomic consequences. See the environmen-               commentors indicated that insurance companies
                 tal and socioeconomic impact analyses in Volume 11            were not providing policies for such coverage. NOAA
                 and the OIRA analysis in Appendix M of Volume Ill.            has modified the regulatory provision in the final
                                                                               regulations to clarify that other security instruments
                 To ensure positive environmental consequences,                may be utilized in lieu of an insurance policy so the
                 there is no commercial salvage permitted in the               requirement is more flexible. In addition, NOAA
                 zoned areas and other areas of significant natural            modified regulatory language to clarify that the scope
                 resources. To minimize adverse socioeconomic                  of coverage required is for "potential claims for
                 consequences, commercial salvage is permitted but             destruction, loss, or injury to Sanctuary resources
                 to ensure positive environmental consequences, it is          arising out of permitted activities" and to clarify that
                 only permitted in areas relatively devoid of significant      the amount of insurance or security should be
                 natural resources.                                            reasonably equivalent with an estimated value of the
                                                                               Sanctuary resources in the vicinity of the permitted
                 The permits for private recovery and deaccession/             area and activities. These changes should make the
                 transfer only apply to abandoned vessels. As a                requirement more flexible and thereby minimize
                 trustee for such resources, NOAA will continue to             some of the adverse socioeconomic consequences
                 respect the interests of the owners of the vessels            as compared to the draft plan.
                 and the sovereigns that represent those interests
                 consistent with domestic and international law.               With regard to the requirement that SCRs be publicly
                 Sunken warships and other public vessels entitled to          displayed, NOAA did not intend to require that all
                 sovereign immunity, regardless of location, remain            SCRs be publicly displayed for all time. Instead, it
                 the property of the nation to which they belonged at          was expected that this would be addressed in the
                 the time of sinking, unless that nation has taken             curation agreements and that standard museum
                 formal action to-abandon them or to transfer title to         practices would be followed, consistent with the
                 another party. It is a long-standing Navy policy that it      Federal Archaeological Program (FAP). The regula-
                 does not abandon its public vessels. Therefore, no            tions have therefore been modified to indicate that
                 permits will be issued for the private recovery of            permittees must provide public access and "periodic"

                                                                                                                                         23






              The Preferred AlternativelManagement Plan
              public display. The regulations also provide for a          NOAA has the discretionary authority to consider
              permit to deaccession certain SCRs. These changes           waiver of costs and/or fees on a case by case basis
              make the plan more flexible, pragmatic, and thereby         when permitted activities result in a public benefit,
              reduce some of the socioeconomic impacts as                 whose value can be determined. For example, in the
              compared to the draft plan.                                 SCR context, the preferred policy is that the SCR be
                                                                          preserved on site. Waiver of fees for the removal of
              With regard to the requirement that a professional          SCRs which are not under threat is unlikely. How-
              archaeologist be in charge of the archaeological            ever, if it is determined that the SCR is being threat-
              research and recovery, that. requirement has not            ened by remaining in the Sanctuary, the research
              been changed or modified. Recovery of historical            and, recovery would appear to be in the public
              and cultural resources inherently involves the              interest and reduction and/or waiver may therefore
              destruction of contextual and other important ar-           be considered in the cost and/or fee determination.
              chaeological information. The only way that such            The extent that private use is furthering resource
              information is preserved through scientific recording       protection, research, education and similar FKNMS
              of the recovery efforts consistent with standard            management strategies is given due consideration in
              archaeological principles. It is therefore imperative       determining the amount of costs and fees. Thus, the
              for environmental and socioeconomic reasons that a          plan contemplates the further consideration of
              professional archaeologist supervise the recovery           environmental and socioeconomic considerations in
              operations to ensure preservation standards are met.        the permit process.
              That is not to say that, as supervisor, the archaeolo-
              gist needs to be on site at all times in every permit.      Under the no action alternative, the recovery of
              However, the archaeologist needs to oversee the             SCRs would require an Antiquities Act permit from
              operations. The public's interest in the preservation       either DOI or NOAA, in addition to requirements
              of this archaeological information justifies the addi-      under the State contract system in State waters and
              tional socioeconomic costs to the permittee. In             Admiralty Law in Federal waters. Extending the
              addition, the administrative record indicates that          Florida contract system and the division ratio (80%
              many commercial salvors already employ an archae-           salvor- 20% State) uniformly throughout the sanctu-
              ologist, so the impact may be minimal.                      ary was considered as an alternative, but was not
                                                                          preferred because it is inconsistent with the Federal
              With regard to the requirement of a professional            Archaeological Program and with the Abandoned
              nautical conservator, the plan has been modified to         Shipwreck Act Guidelines. Prohibiting commercial
              delete "professional" and insert "authorized" as            salvage throughout the Sanctuary was also consid-
              suggested in comments in order to provide more              ered and rejected for environmental and socioeco-
              flexibility in the permit system and allow for the          nomic reasons indicated above, The SCR Plan is the
              consideration of field experience. As the professional      result of a careful balancing of resource protection
              archaeologist is responsible for supervising the            and reasonable accommodation for commercial
              operations, there appears to be no adverse environ-         salvage in certain areas for certain SCRs. In devel-
              mental impacts to make this change which will make          oping the draft plan, NOAA considered the threats to
              it more flexible and thereby minimize the socioeco-         natural and historical-cultural resources and sought
              nomic consequences as compared to the draft plan.           to develop strict regulations to ensure recovery was
                                                                          environmentally and archaeologically sound, while at
              With regard to the impacts from a special use permit,       the same time, propose a permit system that was
              Section 310 of the National Marine Sanctuaries Act          sensitive to the socioeconomic considerations of the
              provides the authority for issuing Special Use              commercial salvors and others. Similarly, in re-
              Permits. The two criteria for Special Use Permits are       sponse to comments, additional changes were made
              set forth in Section 310 of the NMSA. Section 310           in the final regulations and plan in an effort to make
              also provides for the assessment of associated fees         the permit management system more pragmatic from
              which are to cover the administrative costs as well as      the perspective of the commercial salvors without
              a fair market value return to the public for use of         compromising the primary objectives of protecting
              public resources. Thus, while there will be adverse         significant natural and historic Sanctuary resources.
              socioeconomic impacts to permittees, it is strictly         The permit conditions may be more rigorous than the
              minimized to conform to those described in the              requirements of the Admiralty court or the State
              statutory provisions in NMSA Section 310.                   contract system, and thus may involve additional
                                                                          costs, those permittees continue to work their sites.
              With regard to the assessment of costs and waiver of
              fees, in implementing Special Use Permit authority,

              24






                                                                                             The Preferred AlternativelManagement Plan
                 One of the alternatives suggested in comments was                 revised to indicate that NOAA will also consider all
                 that all SCRs be removed from the Sanctuary. The                  public and private opportunities for accomplishing the
                 final policy preference under the FKNMS Plan,                     inventory in a reasonable and cost-effective manner,
                 consistent with the preservation policy in the Federal            including private sector funding through permits and
                 Archaeological Program, and the resource protection               otherwise.
                 mandate in the NMSA is that SCRs be preserved on
                 site in the Sanctuary, unless the SCRs are under                  Commentors suggested that the regulations ex-
                 threat and removal is required to preserve them. As               pressly state that no Sanctuary permit is required for
                 indicated above, there has been some accommoda-                   non-intrusive non-exclusive remote sensing activi-
                 tion for commercial salvage in certain areas of the               ties, but also suggested that the survey/inventory
                 Sanctuary and for certain SCRs to facilitate multiple             permits expressly grant exclusive rights to explore
                 use of SCRs in this Sanctuary. Besides being                      the permitted areas. It was also suggested that these
                 inconsistent with resource protection, the suggestion             permits provide for limited manual alteration of the
                 that all or most of the SCRs be removed from the                  seabed, including hand fanning, provided there is no
                 Sanctuary is not consistent with the multiple use                 negative impact to coral, seagrass, sponges and
                 mandates of the National Marine Sanctuaries Act                   other natural resources. The final plan clarifies that
                 and the Abandoned Shipwreck Act and has therefore                 non-intrusive remote sensing is not prohibited.
                 not been incorporated. The Abandoned Shipwreck                    Therefore, the regulations expressly state that such
                 Act and the NMSA are both concerned about public                  activity does not require a permit. The regulations will
                 access to SCR for boaters, divers and others within               indicate that permits may provide for limited manual
                 the Sanctuary. The suggested change in policy                     alteration of the seabed, including handfanning,
                 appears to primarily benefit one special interest                 provided there is no adverse effect on Sanctuary
                 group, the commercial salvors. Access to Sanctuary                resources. Such activity will continue to be consid-
                 resources for members of the public unable to enter               ered on a case-by-case basis as part of the public
                 the Sanctuary itself is accomplished through a                    interest balancing on whether to issue a permit and
                 variety of education and research products and                    for determining the appropriate conditions to protect
                 mediums, including print, film, and computer informa-             resources and manage multiple uses.
                 tional products. The public access goal does not
                 require physical access to the SCRs, nor does it                  Commentors suggested exclusive rights for a survey-
                 require their removal for land based exhibits. How-               inventory permit but also suggested that remote
                 ever, as previously indicated, in this Sanctuary, the             sensing not require a permit. NOAA cannot prevent
                 SCR plan provides for commercial salvage which will               non-intrusive remote sensing in an area unless its
                 in turn result in the public display of certain recov-            prohibited in the regulations and the regulations do
                 ered SCRs in museums and similar institutions of                  not prohibit remote sensing. However, NOAA and the
                 public access.                                                    State are cognizant of the underlying economic
                                                                                   concerns of applicants and permittees in investing
                 Another management alternative suggested in the                   and expending financial resources exploring. There-
                 comments was that the Florida Department of State/                fore, in an effort to reconcile these comments, the
                 Bureau of Archaeological Resources have the lead                  regulations have been modified to indicate that
                 responsibility in the management of SCRs and that                 NOAA will not grant survey and inventory permits or
                 NOAA's role be limited to a financial assistance role.            research and recovery permits for areas covered by
                 It was also suggested that the SCR inventory be                   existing permits, unless authorized by such permit-
                 accomplished through the use of the private sector,               tee. There is no entitlement to these and other
                 when funding is available, in order to lessen the                 permits, rather it involves the discretionary authority
                 burden on taxpayers.                                              of NOAA and the State in granting a privilege which
                                                                                   is determined to be in the public's interest.
                 No change was made to the plan regarding NOAA's
                 lead responsibility for the management of SCRs                    Volunteer Action Plan
                 including inventory The National Historic Preserva-               The Volunteer Program is designed to support the
                 tion Act Section 110 requires Federal agencies to                 Sanctuary Program's efforts to improve public
                 inventory historic resources such as SCRs under the               education and awareness regarding the proper
                 Federal agencies management responsibility.                       treatment of the area's natural and cultural re-
                 However, as indicated in the plan, NOAA will work                 sources. Volunteers will provide a mechanism for
                 with the State and any other public and private                   increasing the community's involvement in Sanctuary
                 entities interested in activities which fulfill this re-          activities, and represent a valuable resource that can
                 sponsibility. Accordingly, the SCR plan has been

                                                                                                                                                25






              The Preferred AlternativelManagement Plan
              be used to accomplish a variety of Sanctuary-related          The WQPP consists of four interrelated components:
              tasks. Also, because of limits on financial resources,        corrective actions, monitoring, research/special
              volunteer assistance will be critical to the ultimate         studies, and public education and outreach. Correc-
              success of the Keys' management program, and a                tive actions would reduce water pollution directly by
              main goal will be to use the available volunteer              using engineering methods or by prohibiting or
              resources as completely as possible. The overall              restricting certain activities, tightening existing
              goal of the Volunteer Program is to provide a "hands-         regulations, and/or increasing enforcement. Other
              on" opportunity for public involvement in supporting          corrective actions would make the regulatory system
              the protection and preservation of Sanctuary re-              work more efficiently. The water quality monitoring
              sources.                                                      program would provide information about the status
                                                                            and trends of water quality and biological resources
              While all comments on the Volunteer Action Plan               in the Sanctuary and the effectiveness of corrective
              were positive some specific comments were made                actions. Research and special studies would identify
              requesting modifications to the plan. The goals of the        and document cause/effect linkages between
              Volunteer Plan were updated to include the future             pollutants, water quality problems, and ecological
              development of a strategy to target volunteer recruit-        impacts. Research would also increase understand-
              ment and strategy B.8: User Fees was deleted in               ing of Sanctuary ecosystems and improve predictive
              response to these comments.                                   capabilities. Public education and outreach strategies
                                                                            would increase public awareness of the Sanctuary,
              Clearly, the Volunteer Plan has enormous positive             the WQPP, and pollution sources and impacts on
              social impact. Volunteerism benefits the environment          Sanctuary resources.
              as well as the people who give of their time and
              effort. The general public, too, benefits from a              Public comment precipitated changes to both the
              cleaner, healthier environment fostered through the           WQPP document and the Water Quality Action Plan.
              educational efforts of volunteers. The cost of this           For the most part, commentors agreed that degrada-
              volunteer program is nominal in light of the benefit it       tion of water quality is the greatest threat to both the
              provides to all.                                              natural resources and the economy of the Keys.
              Water Quality Action Plan                                     They also agreed that funding for this program is
                                                                            vital. Some were more concerned about the influ-
              This action plan provides the strategies critical for         ences of water quality from sources beyond Sanctu-
              improving water quality throughout the Florida Keys.          ary boundaries. However, the plan addresses
              It addresses critical issues including pollution from         outside influences to water quality, and the Water
              stormwater runoff, improper wastewater treatment,             Quality Protection Program Steering Committee
              marinas and live-aboards, landfill sites, hazardous           explores this issue regularly. A few commentors
              material spills, pesticides and herbicides, and               stated that there was no water quality problem in the
              external influences. Corrective actions, monitoring,          Keys. However, many scientists and users disagree
              research, and public education and outreach strate-           with this statement based on observations as well as
              gies will reduce the threat of pollutants and improve         documented scientific evidence.
              water quality.                                                Improved water quality in the Keys will have environ-
              The degradation of water quality over the past two            mental and socioeconomic benefits. Sanctuary
              decades has been a major concern for the residents            resources such as coral reefs and seagrass beds
              of the Keys and was the primary issue raised at the           sustain enormously valuable commercial and recre-
              scoping meetings for the Sanctuary. In passing the            ational fisheries and attract anglers, divers, and
              Act designating the Sanctuary, Congress recognized            tourists from all over the world. The economy of the
              the critical role of water quality in maintaining Sanc-       Florida Keys is tied directly to these resources which
              tuary resources. Congress directed the Environmen-            depend on the maintenance of outstanding water
              tal Protection Agency (EPA), in conjunction with the          quality, including high water clarity, low nutrient
              Governor of the State of Florida and in consultation          levels, and low concentrations of contaminants. If
              with the Secretary of Commerce, to develop a                  water quality is allowed to deteriorate further, thriving
              comprehensive Water Quality Protection Program                industries such as fishing and tourism, as well as
              (WQPP) for the Sanctuary. This action plan is an              support businesses, will suffer the consequences.
              abridged version of the information in the WQPP               The WQPP would improve and maintain water
              document. It is also the first water quality plan ever        quality, helping to ensure that Sanctuary resources
              developed for a national marine sanctuary.                    and the economy dependent on them continue to
                                                                            thrive.


              26






                                                                                            The Preferred AlternativelManagement Plan
                 Zoning Action Plan                                              The consideration of marine zoning as an integral
                                                                                 Sanctuary management tool is mandated under
                 Zoning is the setting aside of areas for specific               section 7(a)(2) of the FKNMSPA. The process used
                 activities to balance commercial and recreational               to develop the draft zoning plan is described in
                 interests with the need for a sustainable ecosystem.            Volume 11. There were five zone types proposed in
                 Marine zoning has been successfully implemented at              the draft plan that was reviewed by the public. Those
                 Australia's Great Barrier Reef, New Zealand, Kenya,             zone types were: Wildlife Management Areas;
                 the Philippines, the Cayman Islands, Bermuda,                   Replenishment Reserves (renamed to Ecological
                 Exuma National Park in the Bahamas, and other                   Reserves); Sanctuary Preservation Areas; Existing
                 countries. The concept has had limited application in           Management Areas; and Special-use Areas. All of
                 the U.S. where it has been used at Looe Key Na-                 these zone types remain in the Final Management
                 tional Marine Sanctuary (1981) to protect the shallow           Plan to be implemented in the Sanctuary.
                 coral reef habitat from certain activities such as
                 anchoring and setting of lobster traps and in the               Figure 1 shows the existing management zones in
                 Monterey Bay National Marine Sanctuary (1992) to                the Sanctuary region. Figure 2 shows the zones
                 manage PWC activities. It has also been used in the             proposed in the plan. Table 2 shows the sizes of
                 Channel Islands National Marine Sanctuary/National              some of these proposed zones.
                 Park where Harvest Refugia have been established
                 to protect marine inhabitants from harvest. Only in             The goals of the zoning action plan are:
                 the past few years have the Fisheries Management
                 Councils used zoning to protect and manage fisher-                     Protect and preserve sensitive areas of the
                 ies, such as the closed Oculina Banks off the east                     ecosystem by regulating certain activities that
                 coast of Florida.                                                      occur within the zoned areas, and by facilitat-
                                                                                        ing activities that are compatible with resource
                                                                                        protection;


                 Table 2. Sizes of FKNMS Sanctuary Preservation Areas, Ecological Reserves, and Special-use Areas

                  Zone                                                       km2                      nm2                     he
                  Florida Keys NMS                                        9,515.5                 2,774.3                  9,51547.1
                  Sanctuary Preservation Areas                                                        4.7                    11650.6
                  Carysfort/South Carysfort Reef                             5.1                      1.5                      514.5
                  The Elbow                                                  0.9                      0.3                       90.2
                  Dry Rocks                                                  0.2                      0.0                       15.5
                  Grecian Rocks                                              1.1                      0.3                      107.4
                  French Reef                                                0.4                      0.1                       36.8
                  Molasses Reef                                              0.9                      0.3                       88.6
                  Conch Reef                                                 0.2                      0.1                       23.3
                  Davis Reef                                                 0.6                      0.2                       57.7
                  Hen and Chickens                                           0.6                      0.2                       60.2
                  Cheeca Rocks                                               0.2                      0.0                       15.5
                  Alligator Reef                                             0.6                      0.2                       59.8
                  Coffins Patch                                              1.5                      0.4                      147.0
                  Sombrero Key                                               0.7                      0.2                       73.4
                  Looe Key                                                   1.1                      0.3                      114.6
                  Newfound Harbor Key                                        0.4                      0.1                       42.6
                  Eastern Dry Rocks                                          0.3                      0.1                       27.4
                  Rock Key                                                   0.3                      0.1                       25.1
                  Sand Key                                                                            0.4                      151.0
                  Ecological Reserves                                        30.8                     9.0
                  Western Sambos                                             30.8                     9.0                     3084.1
                  Special-use Areas
                  Conch Reef (Research Only)                                 0.7                      0.2                       71.7
                  Tennessee Reef (Research Only)                             0.5                      0.2                       53.1
                  Looe Key (Research Only)                                   0.3                      0.1                       33.5
                  Eastern Sambos (Research Only)                             0.3                      0.1                       27.7


                                                                                                                                           27






                     The Preferred AlternativeManagement Plan






                                                                                                          pro

















                                           "@'4,'








                                                                                                               cc



                                                                                                                                                ME




















                                     cm
                                      E
                                      OR
                                      :G cc
                                      U)c




                    33)                                                                               @j

                    28








                       Figure 2. Ecological Reserves, Sanctuaty Preservation Areas, Special-use Areas, and Wildlife Management Areas



                                   Zone Type
                                   Ecological Reserves (a)
                                   Sanctuary Pre      Ion Areas (b)                                                                                 60
                                   Special-use Ames (c)
                                   Wildiffe Management Areas
                                   1. Sawyer Keys             14. Tidal flat south of Marvin Key
                                   2. East Harbor Key         15. West Content Keys
                                   3. Little Mullet Key       16. East Content Keys
                                   4. Upper Harbor Key        17. Bay Keys
                                   5. Little Crane Key        18. Lower Harbor Keys
                                   6*Boca Grande Key          19. Cayo Ague Keys
                                   7. Woman Key               20. Pelican Shoal
                                   8. Horseshoe Key           21. Crocodile Lake
                                   9. Cottrell Key            22. Rodriguez Key                                                                                                                                         7
                                   10. Marquesas Keys         23. Tavernier Key
                                                              24. Snake Creek
                                   11. Snipe Keys
                                   12. Mud Keys               25. Cotton Key
                                   13. Big Mullet Key         26. Dove Key
                                                              27. Eastem Lake Surprise                                                                                                                           a 22
                                                                                                                                                                                                                 L 26
                                                                                                                                                                                                   25          3 C        7C,
                                                                                                                                                                                  Cheeca Rocks (b
                                                                                                                                                                                                           4
                                                                                                                                                                                                 Q                     Davis
                                                                                                                                                                                                                   Hen and C
                                                                                                                                                                                                               AIII alor Reef
                                                                                                                                        is
                                                                                                                                                                                                        Tennessee Reef (c)
                                                                                                                              14
                                                                                                                           12                                                                  Coffins Patch (b)
                                                                                                                        2 L4@g
                                                                                                                                                                                        Sombrero Key (b)
                                     OD                                                                     9           -)iii
                                                                                                         3  LE
                                                                                               TIO 6
                                                      T rtlaft
                                                                                          10-At                13
                                                                                          10                    @vetern       Eastern San                            e..und Harbor (b)
                                                                                                      -071                              ibas (c)            @o Key (c)
                                                                                                   Sand Key (b  Sambos (a)    I  IF20           ffLey (b)
                                                                                                    -Rock Key (b    Easte@Drv Rocks (b)


                             @N          ST 00                                                                 82* 00                                                               81 00






              The Preferred AlternativelManagernent Plan
                  ï¿½ Ensure that areas of high ecological impor-             Discussion of Zones
                    tance evolve naturally, with minimal human
                    influence; and                                          The following is a discussion of the expected envi-
                                                                            ronmental and socioeconomic consequences of the
                  ï¿½ Protect areas representing a wide variety of            zone types established for the Sanctuary in this Final
                    habitats, and areas that are important for              Management Plan. A longer discussion of the
                    maintaining natural resources and ecosystem             environmental consequences is contained in Volume
                    functions.                                              11, which remains relevant to the final preferred
                                                                            alternative, and an expanded discussion of the
              Each zone or area is designed to reduce damage to             socioeconomic consequences is contained in
              the environment, while allowing recreational activities       Appendix M, Volume Ill. The zone types are:
              to occur, as long as they are compatible with re-
              source protection.                                            Wildlife Management Areas. These zones include
                                                                            areas that are of critical importance to wildlife,
              The Objectives necessary to achieve these goals               especially birds and threatened or endangered
              are:                                                          species. There are 27 such zones established in the
                                                                            Final Plan. Most of these areas include the waters
                    reduce stresses from human activities by                adjacent to small islands located along the chain of
                    establishing areas that restrict access to              approximately 1500 islands in the Florida Keys. The
                    especially sensitive wildlife populations and           majority of these areas (20) fall under the jurisdiction
                    habitats;                                               of the U.S. Fish and Wildlife Service (USFWS) and
                                                                            Sanctuary regulations have been established to
                  eprotect biological diversity and the quality of          complement the USFWS criminal sanctions with
                    resources by protecting large, contiguous               Sanctuary civil penalties. Public access restrictions in
                    diverse habitats that are intended to provide           these areas include idle speed only/no wake, no
                    natural spawning, nursery, and permanent                access buffer, no motor, and closed.
                    residence areas for the replenishment and               NOAA has mostly retained the Preferred Alternative
                    genetic protection of marine life and to protect
                                                                            in the Draft Plan for the Wildlife Management Areas,
                    and preserve all habitats and species;                  with only a few minor changes. As a result, consis-
                  ï¿½ minimize conflicting uses;                              tent with existing USFWS regulations, access to
                                                                            Jewfish Creek and Steamboat Creek in the Crocodile
                  ï¿½ protect Sanctuary resources and separate                Lake Wildlife Management Area is not restricted. See
                    conflicting uses by establishing a number of            Volume 11 Preferred Alternative and Impact analysis.
                    non-consumptive zones in areas that are                 Public comments indicated fishermen and others
                    experiencing conflict between consumptive               regularly transit this area. This revision should result
                    and non-consumptive uses and in areas that              in minimal loss of environmental benefits, while not
                    are experiencing significant population or              restricting boat traffic through the area, thus avoiding
                    habitat declines;                                       socioeconomic impact on the public's use of these
                                                                            creeks.
                  ï¿½ eliminate injury to critical/sensitive habitats;        Additionally, the Final Plan includes one additional
                                                                            area over what was proposed in the Preferred
                  ï¿½ prevent heavy concentrations of uses that               Alternative of the Draft Management Plan (DMP/EIS,
                    degrade Sanctuary resources;                            Vol. 1). An idle speed only/no wake zone has been
                                                                            established in the area of Lake Surprise east of the
                  ï¿½ provide undisturbed monitoring sites for                US 1 highway that crosses Lake Surprise. This zone
                    research activities by setting areas aside for          was established to protect the endangered American
                    scientific research, monitoring, and restoration;       Crocodiles and West Indian Manatees that inhabit
                                                                            the area. This restriction will result in a greater level
                  ï¿½ provide control sites to help determine the             of environmental protection for these endangered
                    effects of human activities on resources; and           species at a low socioeconomic cost. The eastern
                                                                            portion of Lake Surprise currently has low levels of
                  ï¿½ disperse concentrated harvests of marine                use. A restriction on boat speeds will not halt the
                    organisms.                                              public's current fishing use of the area, but may
                                                                            extend time of transit.


              30







                                                                                          The Preferred AlternativelManagement Plan
                 In comparison to the other Draft Alternatives for this         Ecological Reserves constitute a small percentage of
                 zone type, the Final Alternative has considerably              the overall marine community of the Sanctuary
                 higher environmental benefits over Alternative IV in           (under 3%) and NOAA has redrawn the zoning
                 the DMP/EIS (Volume 11, page 136), which only                  boundaries to minimize such costs (i.e. deleted Key
                 included the 19 areas that are currently managed by            Largo ER and delayed Dry Tortugas ER). As one
                 the USFWS, and fewer environmental benefits than               benefit of maintaining the biodiversity of these areas,
                 the 37 areas proposed in Alternative 11 of the DMP/            it is expected that the long-term benefits to fishermen
                 EIS (Volume 11, page 138). Since the Sanctuary                 from the increased productivity in the reserves will be
                 Advisory Council recommendations were largely                  positive. There will be spillover of larvae and adult
                 adopted in the Draft Preferred Alternative, it is              fish to surrounding areas and an "edge effect" which
                 understandable that the proposed WMAs in the draft             has occurred in other marine reserves will provide
                 plan did not receive much public comment during the            excellent fishing along the boundaries of the reserve.
                 public review process.                                         The benefits to non-consumptive users of the
                                                                                Ecological Reserves also will be strongly positive as
                 NOAA has taken action to establish these areas                 they will have areas in which they can view, photo-
                 because of its mandates under the NMSA and the                 graph, and enjoy restored coral reef communities
                 FKNMSPA and the level of public concern raised on              and habitats, swarming with large fish and minimal
                 issues involving threats to wildlife in the Florida Keys       human damage to the coral and other coral reef
                 during its scoping process in 1991. NOAA and the               resources. See Appendix M, Volume III for an
                 USFWS worked very closely during the development               expanded discussion of the socioeconomic benefits
                 of the management plan to complement each other's              and costs of these areas.
                 interest in protecting the wildlife resources of the
                 Florida Keys, both inside the National Wildlife                All activities that do not result in removal of marine
                 Refuges, as well as outside.                                   life or damage to the resources will be allowed in
                                                                                these areas. Spearfishing, shell collecting, tropical
                 Ecological Reserves (formerly Replenishment                    fish collecting, and other activities that result in the
                 Reserves). In the Draft Preferred Alternative this             harvest of marine life by divers and snorkelers, and
                 zone type was called Replenishment Reserves, and               fishing activities will be prohibited in this zone type.
                 NOAA has changed the name to reflect public                    In addition, direct physical impact to corals in these
                 concerns over the purpose of these areas. The main             areas will be restricted.
                 purpose of Ecological Reserves is to maintain a
                 natural assemblage of living resources in the Sanctu-          This zone type has received the most revisions from
                 ary by setting aside areas to assure minimal human             the Draft Preferred Alternative to the Final Manage-
                 disturbance. Nowhere in the Florida Keys has a                 ment Plan as compared to other zone types. Three
                 complete component of the coral reef ecosystem                 Ecological Reserves were proposed in the draft plan.
                 been set aside from human disturbance. Ecological              NOAA has eliminated one of these proposed re-
                 Reserves will give resource managers and the public            serves, maintained the proposed boundaries of
                 an opportunity to have a cross-section of the coral            another, and delayed action on the third for two
                 reef community, including the nearshore mangrove               years after the final plan is implemented in order to
                 fringe, hardbottoms, patch reefs, seagrass beds,               minimize the socioeconomic impact on fishermen. In
                 mid-channel reef, and the offshore coral reef tract            the Final Management Plan NOAA has developed a
                 where they can experience the marine inhabitants in            final preferred alternative for Ecological Reserves
                 an almost natural state. These zones will serve to             that ranges between the No Action Alternative V and
                 protect and enhance the spawning, nursery or                   the Least Restrictive Alternative IV contained in the
                 permanent resident areas of fish and other marine              DMP/EIS (Volume 11, page 136) by reducing the
                 life. Hundreds of marine species are not protected by          number of Ecological Reserves in the Final Manage-
                 any form of management and the Ecological Re-                  ment Plan. The proposed Ecological Reserves
                 serves will provide protection and allow areas to              contained in Alternative IV of the DMP/EIS were the
                 return to their natural state. These areas will addi-          same number, but geographically smaller than those
                 tionally protect the food and home of commercially             contained in the Draft Preferred Alternative 111. The
                 and recreationally important species of marine life.           more restrictive Alternative 11 in the DMP/EIS con-
                 This zone type, when properly implemented, will                tained eight Ecological Reserves that provided
                 result in long term environmental benefit to Sanctu-           greater biogeographic coverage than the other draft
                 ary resources. There will be some short-term eco-              alternatives.
                 nomic costs to fishermen and divers that harvest
                 marine life and who are displaced. However, the

                                                                                                                                           31






             The Preferred AlternativelManagement Plan
             In weighing the additional environmental benefits             compared to the significant adverse socioeconomic
             against the economic and social impacts on commer-            impacts which would result from implementation of
             cial and recreational users of the Key Largo Ecologi-         the no-take regulations within the proposed boundary
             cal Reserve, NOAA has eliminated that Reserve                 of the reserve. Shrimpers, lobster fishermen,
             from the final plan and regulations. The resource             spearfishermen, and hook and line fishermen
             protection provided by the existing protected areas,          testified that a substantial part of their fishing takes
             John Pennekamp Coral Reef State Park and the Key              place within the proposed reserve. Recommenda-
             Largo National Marine Sanctuary contributed to this           tions ranged from eliminating the reserve entirely to
             decision. Many prohibitions already exist in these            reconfiguring the boundary of the reserve to mini-
             areas, on activities such as spearfishing, tropical fish      mize such impacts. A large number of citizens,
             collecting, shell collecting, wire fish trapping, trawl-      scientists, and environmental groups commented
             ing, and the removal of any marine life by divers             that the Dry Tortugas would be a good location for an
             except for spiny lobster. Establishing an Ecological          Ecological Reserve and wanted an area at least the
             Reserve in these areas would have resulted in few             size of that proposed in the draft Preferred Alterna-
             additional environmental benefits. The full environ-          tive designated. Some were as specific as to recom-
             mental benefit of the protection provided by Ecologi-         mend a boundary to the west of the Dry Tortugas
             cal Reserves will best be monitored and observed in           National Park, incorporating at least some of the
             areas where these harvesting activities are currently         National Park. The best coral reef habitats and
             conducted. NOAA has taken this into consideration             communities lie to the western half of the Dry
             when considering the revisions from the Draft                 Tortugas Bank. By establishing an Ecological
             Preferred Alternative to the Final Plan.                      Reserve to the west, NOAA would be able to maxi-
                                                                           mize the protection of important coral reef habitat.
             NOAA has maintained the boundary that was                     The National Park boundary does not include some
             proposed in the Draft Preferred Alternative for the           of the ecologically important intermediate to deep
             Western Sambos Ecological Reserve. High environ-              reef habitats in the vicinity. An Ecological Reserve in
             mental benefits will be gained by protecting this             this area is anticipated to have very positive environ-
             important portion of the coral reef environment.              mental consequences. Water circulation in the Dry
             Although there will be positive environmental and             Tortugas, due to extensive counterclockwise gyres
             socioeconomic benefits to groups such as divers,              (Volume 11, Affected Environment), will help entrain
             snorkelers, and glass-bottom boat operators, there            planktonic larvae for long periods of time, providing
             will be some socioeconomic costs to fishermen due             new marine life stock along the reef tract as the
             to displacement from the area. This Ecological                larvae settle to the bottom.
             Reserve is located adjacent to public property (Boca
             Chica Naval Airstation) and contains all the habitats         NOAA did not finalize the implementation of the Dry
             that are typically found in an onshore/offshore cross-        Tortugas ER in the regulations. Instead, NOAA will
             section of the Keys coral reef environment.                   postpone final implementation of the boundary and
             Nearshore hardbottom habitats, beautiful inshore              regulations of the Dry Tortugas ER until it undertakes
             patch reefs, seagrass beds, some of the most                  a process, in coordination with the National Park
             diverse mid-channel reef, offshore patch reefs, and           Service, to identify an appropriate final boundary for
             one of the Keys' best remaining spur and groove               the Reserve, which will include portions of the Dry
             bank reefs help comprise this special area. Some of           Tortugas National Park. To identify the final bound-
             the best remaining coral formations and some of the           ary, NOAA and the National Park Service will use the
             best remaining water quality occur there. These               information gathered as part of the public review of
             qualities will help contribute to the success of this         the draft management plan, and hold workshops with
             area as an Ecological Reserve and will aid NOAA in            users, agency representatives, environmental
             its mandate to "protect and preserve living and other         organizations and the public. Prior to making a final
             resources of the Florida Keys marine environment              decision, the proposed final boundary of the Dry
             (FKNMSPA, 1990)."                                             Tortugas Ecological Reserve will be published for
                                                                           public comment. In summary, while a number of
             In the DMP/EIS, NOAA proposed boundaries for the              comments supported Alternative III in the draft, the
             Dry Tortugas Ecological Reserve. The north-south              final is between V and IV in order to avoid or mini-
             configuration of the proposed reserve, which was              mize socioeconomic impacts on fishermen.
             oriented primarily east of the Dry Tortugas National
             Park, received considerable public comment, particu-          Sanctualry Preservation Areas. These areas will
             larly from fishermen. Many commentors suggested               protect shallow, heavily used coral reef communities
             there would be little environmental benefits as               where conflicts often occur between user groups.

             32







                                                                                            The Preferred AlternativelManagement Plan
                 The majority of these shallow reef habitats are                  use the 18 SPAs during the year. Although the SPAs
                 scattered along the outer reef tract and are the coral           are small in size, they capture most of the snorkeling
                 reefs most frequently visited by snorkelers and                  and diving use except during the opening of lobster
                 divers. These areas, critical for sustaining important           season. Protecting these areas will have high long-
                 marine species and habitats, are the component of                term environmental benefits on the coral reef habitat
                 the coral reef ecosystem most vulnerable to direct               and positive socioeconomic benefits to the local
                 human impact (e.g. anchor damage, boating impact,                economy.
                 diver and snorkeler impacts, concentrated harvest by
                 divers, and damage done by inexperienced fisher-                 There will be a low socioeconomic impact on fisher-
                 men) and indirect from water pollution impacts. All              men from prohibiting fishing in these areas. In the
                 activities that do not result in removal of marine life          same aerial census cited above, it was determined
                 or damage to the resources will be allowed in these              that over 94% of the boats less than 30' in length
                 areas. Activities that will be prohibited in the Sanctu-         fished outside the SPAs. Over 92% of the boats
                 ary Preservation Areas (SPA's) include spearfishing,             greater than 30' in length fished outside these areas.
                 shell collecting, tropical fish collecting, fishing and          However, NOAA received considerable public
                 other activities that result in the harvest of marine life       comment on the draft plan (see comments and
                 by divers, snorkelers, and fishermen. In addition,               responses Appendix L, Volume 111) regarding
                 direct physical impact to corals in these areas will be          baitfishing activities in the shallow reef habitat.
                 restricted.                                                      NOAA has revised the management plan and
                                                                                  regulations to allow limited baitfishing in the SPAs
                 In this Final Management Plan NOAA is implement-                 rather than reduce the number of SPAs. NOAA will
                 ing all of the SPAs that were proposed in the Draft              give permits for the netting of ballyhoo for bait in
                 Preferred Alternative (19) with the exception of the             these areas and does not feel this activity will
                 one for Western Sambos Reef. Since that reef is                  compromise the overall objective of the SPAs.
                 designated an Ecological Reserve, which has the
                 same restrictions as the SPAs, NOAA eliminated this              In another effort to reduce socioeconomic impacts
                 duplicate protection. A total of 18 SPA@; are con-               from the SPAs, NOAA has modified the management
                 tained in the Final Plan. This will provide the same             plan and regulations to allow catch and release
                 level of protection that was proposed for the Pre-               fishing by trolling in four of the Sanctuary Preserva-
                 ferred Alternative in the DMP/EIS, except in the                 tion Areas: Conch Reef, Alligator Reef, Sombrero
                 Carysfort SPA. Since NOAA has removed the Key                    Key, and Sand Key. This should avoid or minimize
                 Largo Ecological Reserve from the final plan, the                the socioeconomic impacts on these fishermen. This
                 SPA around Carysfort has been enlarged to encom-                 will also give NOAA areas with which to compare
                 pass more of the coral reef community, including                 and contrast catch and release SPAs with those
                 patch reefs, coral rubble areas, and intermediate reef           where no fishing takes place. These areas were
                 habitat, the site of a known grouper spawning                    selected on the basis of public comment and data
                 aggregation. The size of the SPA will only be ex-                from the aerial surveys. This will help NOAA assess
                 panded by one-half (1/2) of a square nautical mile               the environmental costs of allowing this activity and
                 over the proposed SPA. The more- restrictive alterna-            the socioeconomic impacts of prohibiting it in the
                 tive (11) in the DMP/EIS also proposed 18 SPAs, but              other SPAs.
                 some of them were considerably larger in size, and
                 were not recommended by the Sanctuary Advisory                   During the preparation of the Draft MP/EIS commer-
                 Council (SAC) for the draft preferred alternative                cial fishermen working with Sanctuary planners
                 because of their greater socioeconomic conse-                    produced maps that demonstrated the shallow coral
                 quences on the community. The 13 SPAs contained                  reef habitat was not critical to their activity, and since
                 in the less-restrictive (IV) alternative of the DMP/EIS          they are not heavily used by commercial fishermen
                 were determined not to be adequate to protect                    and are relatively small, the socioeconomic impact
                 critical coral reefs.                                            on commercial fishermen -is expected to be low to
                                                                                  negligible. There were no negative comments from
                 The environmental benefits of this zoning type will be           commercial fishermen, except baiff ishermen, regard-
                 high because direct harvest and physical impacts to              ing the number or location of the SPAs.
                 the heaviest used component of the coral reef
                 ecosystem, the shallow coral reefs, will be lessened.            Approximately 29 shallow reefs along the reef tract
                 According to data from an aerial survey (1994, FDEP              are named on NOAA navigational charts. NOAA has
                 and TINIC work in progress), approximately 80% to                established 16 of these shallow coral reef communi-
                 85% of the snorkelers and divers in the Florida Keys             ties as SPAs, protecting over 55% of this particular

                                                                                                                                            33







              The Preferred AlternativelManagement Plan
              type of shallow coral reef habitat in the Keys. Each of     that were contained in the Draft Preferred Alterna-
              the SPAs encompass a variety of marine habitats             tive, with one change. Due to the consideration of
              including: coral reefs; rubble ridges; backreefs;           socioeconomic impact described by the public during
              seagrass; hardbottoms; and coral rubble. All of these       the review process, NOAA has eliminated the
              habitats are important components of the coral reef         Pelican Shoal research-only Special-use Area and
              community. The ecological benefits of protecting            replaced it with the Eastern Sambos research-only,
              these types of habitats from harvesting activities has      Special-use Area suggested by the state in its
              been documented in the Looe Key National Marine             comments on the DMP/ElS. This change will provide
              Sanctuary (Clark, et al, 1989). The SPAs designated         a better research and monitoring site, while simulta-
              in this Final Plan are predicted to have the same kind      neously lessening the socioeconomic impact to the
              of successful results as those at Looe Key NMS.             public that would have occurred by limiting access to
                                                                          the reef around Pelican Shoal. However, in order to
              Existing Management Areas. This is a simple                 complement the State's seasonal closure of the land
              acknowledgment of existing protected areas in the           area, NOAA has designated a no-access 50 yard
              Sanctuary. These are zones that are currently               buffer around the island between April 1 and August
              managed by other agencies, and where regulations            31. These dates coincide with those established by
              already exist. Out of the total 21 existing manage-         the Florida Game and Freshwater Fish Commission
              ment zones, 15 are administered by the State of             for this area.
              Florida Department of Environmental Protection, 4 by
              the Fish and Wildlife Service, and 2 by NOAA.               The long-term environmental benefits of these areas
              Managing these areas within the Sanctuary may               will be strongly positive because they will allow
              require additional regulations or restrictions to           managers to compare and contrast shallow coral
              provide complete resource protection. These addi-           reefs that are used by divers and snorkelers with
              tional management needs will be developed in                those that are not used by these groups. An excel-
              cooperation with the relevant agency and will be            lent example is an intended comparison study of the
              implemented with those agencies.                            health of the coral reef at Eastern Sambos (research
                                                                          only site) with the coral reef at Western Sambos
              There are little or no anticipated socioeconomic            where diving and snorkeling is conducted. Both of
              impacts by establishing these zones since they are          these reefs are located in similar water quality
              currently managed by other agencies. The availabil-         conditions and they are in approximately the same
              ity of civil penalties may have some impact to              physical and biological condition. These sites can
              violators. NOAA has included all of the same areas          then be compared to Tennessee Reef and Alligator
              that were included in the Draft Preferred Alternative       Reef, which are located in an area that is exposed to
              contained in the DMP/EIS. However, by coordinating          poorer water quality. The results of such studies will
              management activities and programs with other               benefit Sanctuary management. Diving, snorkeling,
              agencies, such as in the case of the Wildlife Man-          fishing, and other such recreational and commercial
              agement Areas, where NOAA is coordinating with              activities will not be allowed in these research-only
              the USFWS, there will be increased environmental            areas except by scientific or educational permit.
              benefits by providing coordinated management.
              There will also be socioeconomic benefits by saving         There is also a possibility of establishing Special-use
              taxpayers money through sharing of human and                areas in the future for restoration, following some
              material resources and coordinating various man-            event which damages the resources. The environ-
              agement programs such as education, research and            mental benefits of having these areas are high,
              monitoring, and resource protection.                        whereas the socioeconomic impacts will be low due
                                                                          to their small size. Altogether, these four areas
              Special Use Areas. These zones address special              comprise less than one square nautical mile in size.
              use activities and concerns within the Sanctuary, and
              may be established for education, science, restora-'
              tion, monitoring, or research. Activities in these areas
              will be conducted by permit only.

              There are only four special use areas in the Final
              Management Plan: Conch Reef, Tennessee Reef,
              Looe Key (patch reef), and Eastern Sambos Reef.
              These are all designated as research-only and
              NOAA has included all the same research-only areas

              34






                                                                                       The Preferred AlternativelManagement Plan
                                                                             The FKNMSPA mandates the development of a
                 Sanctuary Management:                                       comprehensive management plan that represents a
                 How the Process Works                                       major departure from the nation's traditional ap-
                                                                             proach to marine resource management. NOAA is
                In practical terms, the implementation of Sanctuary          committed to coordinating with other Federal, State,
                management is already underway. On September                 and local agencies in a continuous management
                15, 1992, the Florida Trustees (the Governor and             process. This process is designed to balance the
                Cabinet) entered into an agreement with the adminis-         demands of the many activities in the region, and to
                trator of NOAA to establish a mechanism for the              ensure the long-term protection of the resources that
                cooperative development of the management plan as            make the area unique. This requires the cooperation
                well as the cooperative interim management of the            of many institutions that historically have not been
                Sanctuary while the comprehensive plan was being             focused on the same goals. Because of the complex-
                developed. This interim management agreement                 ity of managing the activities and resources in the
                provided for the development of several protocols on         Keys, no single agency or institution can effectively
                various cooperative management issues and ulti-              meet the goals of the Act designating the Sanctuary.
                mately provided the direction for the development of         Overlapping jurisdictions, different agency objectives,
                the memorandums of agreement and protocols                   limited fiscal resources, and other problems point to
                included in Appendix J in Volume III: Draft Inter-           the necessity of developing a management program
                agency Compact Agreement for the Integrated                  that brings together multiple institutions for the
                Management of the Florida Keys National Marine               common purpose of protecting this important area.
                Sanctuary, Co-trustees Agreement, Submerged                  The framework outlined in this chapter allows and
                Cultural Resources Agreement, Law Enforcement                encourages these institutions and the public to
                Agreement, Natural Resources Damages/Civil                   participate in the decision-making process.
                Claims Agreement, Protocol for Cooperative Fisher-
                ies Management, Protocol for Emergency Response              The basic elements of the continuous management
                Notification, Permitting/Certifications Agreement,           process are shown in Figure 3. The foundation for
                Water Quality Protection Plan Agreement, and                 this process is the signing of an Interagency Com-
                Navigational Aids Agreement.                                 pact Agreement (Volume 111, Appendix J) formalizing
                                                                             Federal, State, and local government agency support
                In the interim management agreement there were               for the Sanctuary. The elements necessary for
                several provisions concerning jurisdiction and               successful implementation of the Management Plan
                authority of the State as a result of Sanctuary              focus on the Interagency Group, the Resource
                designation.                                                 Management Team, the Sanctuary Advisory Council,
                                                                             and various Standing Committees. This management
                Education programs have been implemented Sanc-               arrangement makes it possible for Ad Hoc Partner-
                tuary wide, research and monitoring programs have            ship Groups to be formed as committees that will
                expanded Sanctuary wide, and various elements of             provide input to the Management Team.
                the water quality protection program have been
                implemented throughout the Sanctuary. In addition,           The details of the management process described in
                boat groundings are being responded to, the NMSA             this document are the starting point for discussions
                and the FKNMSPA are being enforced, and some                 between the parties that must cooperate to manage
                cross-deputization of enforcement personnel has              the Sanctuary. Subsequent negotiations between the
                occurred. Many of the strategies included in the Final       responsible agencies may alter the framework, but
                Alternative represent actions that will be carried out       its primary feature, the extensive amount of coopera-
                by either State or local agencies, with or without the       tion and integration of effort between and among
                cooperation of the Federal government. However,              these governmental and non-govern mental bodies,
                the important difference between these independent           must and will remain.
                actions and the process of management outlined in
                this document is the degree of integration, coordina-
                tion, and cooperation that must be applied. Achieving
                the long- and short-term goals for this unique region
                requires the development of a close and continuing
                partnership among all the agencies serving the
                residents of, and visitors to, the Keys. To this end,
                the existing management structure must be modified.


                                                                                                                                      35






              The Preferred AltemativelManagement Plan

                                                    ----- 77-            The Compact establishes a formal commitment to
                                    w,
                    ',M9haJeM-dnt PlWit-,                                the management of the Sanctuary. This commitment
                                          . ........ ...... .....        is critical to ensuring full participation and coopera-
              The FKNMS Management Plan is the result of a               tion from the many institutions that play a role in the
              cooperative effort among Federal, State, and local         successful management of the Sanctuary. Since
              agencies and institutions. A significant amount of         State lands and waters make up the majority of the
              public, non-govern mental organization (NGO), and          Sanctuary, the participation of State and local
              user community input has been included in the              agencies is considered critical to providing a holistic
              development of this Plan. A set of actions is identi-      ecosystem approach to management.
              fied that will be implemented based on the continu-
              ous management process. Approval of the Plan by            The Compact forms the foundation for subsequent
              the participating agencies of the Interagency Com-         interagency and intergovernmental cooperative
              pact Agreement is a prerequisite for successful            agreements, protocols, and other less formal inter-
              management of the Sanctuary.                               agency work efforts. The signing of this Compact
                                                                         signals that the cooperative and integrated manage-
                                                                         ment approach established for this Sanctuary has
               ThO CoMpi'ad"t, Agredment                                 been adopted.
              The FKNMSPA requires that NOAA coordinate with             The Compact reflects the Federal/State co-trustee
              the appropriate Federal, State, and local agencies to      management of the region's resources, reiterating
              support implementation of the Management Plan.             the goals of the Act designating the Sanctuary. This
              The Interagency Compact Agreement officially joins         will ensure that the work conducted by EPA as part
              the parties under the umbrella of this Plan. The           of the Water Quality Protection Program is clearly
              provisions of the Draft Compact are included in this       connected to the overall management of the Sanctu-
              Final Management Plan (Volume 111, Appendix J).            ary.


              Figure 3. Continuous Management. How the Process Works


                                                          7

                                                     Sanctuary Management

                                       Interagency Group                          Sanctuary Advisory Council
                                                                                    it
                                       NOAA                                        C izens
                                       State: EOG, DEP, DCA, SFWMD, FMFC           Recreational Fishemen
                                       USEPA                                       Corntnercial Fishannan
                                       N
                                        P;WS                                       Divan;
                                       US                                          Enviromental Groups
                                       USCG                                        Scientists
                                       USAnny Corps of Engineers                   Educat rs
                                         on                                        Marine Us Collectom
                                       IMnc. ;;2O.Ud                               Treasure Hunters
                                   4                                               County/Federal Agencies





                                                                    Ad Hoc
                        4"                                         Partnership
                                                                    Groups
                               4"

                                                                                          Sitin
                                                                                      ?Wtand
                                                                                            q Committees
                                    Resource Management Team                               eering Comm.
                                                                                      . Tech. Advisory Comm.
                            0-      - Sanctuary Staff
                                                                                      . South Florida Ecosystem
                                    - State Management Staff                    0      Restoration Task Force
                                                                                      - Enforcement Task Force
                                    - Monroe County Management Staff                  - Education Work Group
                                    - Federal Management Staff                        - Subcommittees
                                                                                      - Others











              36







                                                                                     The Preferred AlternativelManagement Plan

                                                                            Protocol for Cooperative Fisheries Management -
                                 A*Oemen%
                                                                            Establish protocol for the unified and cooperative
                                                                            State/Federal management of fishery resources
               In order to formally implement cooperative manage-           within the Sanctuary, including a process for promul-
               ment of the Florida Keys National Marine Sanctuary,          gation of consistent fishing regulations.
               a number of separate cooperative agreements must             Signatories: Florida Marine Fisheries Commission,
               be entered into among the various governmental               South Atlantic and Gulf of Mexico Fishery Manage-
               agencies and entities with cross jurisdictional and          ment Councils, National Marine Fisheries Service,
               trustee interest in resource protection (Volume 111,         National Ocean Service.
               Appendix J). The following identifies the nature and
               purpose of prospective agreements:                           Protocol for Emergency Response Notification -
                                                                            Establish operational protocol to ensure coordination
               Co-trustees Agreement - Establish, by way of a               and cooperation between sanctuary management
               Memorandum of Agreement, the relative jurisdic-              and other Federal, State and local authorities with
               tional interests, management authorities, and condi-         jurisdiction within or adjacent to the Sanctuary
               tions in State- and Federally-owned lands and                regarding notification, response and action taken in
               resources as they pertain to the Sanctuary, agreeing         response to boat groundings and other physical
               to the cooperative management and enforcement of             damage to sanctuary resources. Cross reference to
               certain laws and regulations as they pertain to              other emergency protocols, i.e. Oil Spills, will be
               management of the Sanctuary, and generally adopt-            included.
               ing and agreeing to the integrated management                Signatories: NOAA; Department of Environmental
               approach for implementation of the sanctuary                 Protection; Monroe County; U.S. Coast Guard; Nat.
               management plan.                                             Park Service; U.S. Fish & Wildlife Service.
               Signatories: NOAA Administrator and Governor and
               Cabinet, as Florida Trustees.                                Sanctuary Certification and Permitting Agree-
                                                                            ment - Establish a procedure and protocol for
               Submerged Cultural Resources Agreement-                      interagency coordination and review of activities
               Establish protocols, procedures and regulations for          (leases, licenses, permits, approvals or other authori-
               the comprehensive management of historical re-               zations) which are specifically prohibited and/or may
               sources throughout the Sanctuary consistent with the         affect resources within the Sanctuary. Existing
               National Marine Sanctuary Act, the Abandoned                 procedures and protocols will be considered in this
               Shipwreck Act, AS Guidelines, and State laws and             agreement process. No new rules or governmental
               procedures.                                                  structures will be required. Signatories: NOAA,
               Signatories: NOAA Administrator and the State of             Director, Office of Ocean and Coastal Resource
               Florida, Secretary of State.                                 Management; Florida Department of Environmental
                                                                            Regulation, Secretary; South Florida Water Manage-
               Cooperative Enforcement Agreement - Establish                ment District, Governing Board.
               protocols, procedures and identify training needs to
               coordinate operational enforcement in the Sanctuary          Water Quality Protection Program Steering
               and cross-deputization of Federal/State/local law            Committee By4aws - Establish an agreement of
               enforcement officers to expand enforcement capabili-         understanding among the agencies and governmen-
               ties under Sanctuary Act and other NOAA statutes.            tal entities associated with the Florida Keys Water
               Signatories: NOAA, Florida Marine Patrol, Florida            Quality Protection Plan regarding implementation
               Park Service, NMFS, U.S. Coast Guard, National               strategies and funding of programs. The By-Laws
               Park Service, and U.S. Fish & Wildlife.                      and Charter of the Water Quality Protection Plan
                                                                            Steering Committee will be used for this agreement.
               Agreement for the Coordination of Civil Claims-              Signatories: U. S. Environmental Protection Agency,
               Establish protocols and procedures for notification          Region IV Administrator; U.S. Coast Guard, Com-
               and response to incidents involving injury, damage or        mandant; Florida Department of Environmental
               loss of Sanctuary resources and the coordination of          Protection, Secretary; South Florida Water Manage-
               joint initiation and conduct of civil action and claims      ment District, Governing Board; Florida Department
               to remedy injury and recovery.                               of Health and Rehabilitative Services, Secretary;
               Signatories: NOAA and Governor and Cabinet, or               Monroe County, Board of County Commissioners.
               designated cotrustees.



                                                                                                                                 37






               The Preferred AlternativelManagement PI     an
               Navigational Aids Agreement - Establish a working           Resource Management Team
               group and a formal protocol and process for develop-
               ing and implementing consistent marking and                 The Resource Management Team consists of
               signage of channels and special use areas within            representatives of Federal, State, regional, and local
               and adjacent to the Sanctuary.                              government agencies, and Sanctuary staff at the
               Signatories: NOAA; U.S. Fish and Wildlife Service;          field level. These members are the field resource
               National Park Service; U.S. Coast Guard; U.S. Army          managers for the various agencies that are currently
               Corps of Engineers; Florida Department of Environ-          involved in resource management programs such as
               mental Protection; Florida Department of Community          resource protection, science, and education. Ex-
               Affairs; Monroe County, Department of Marine                amples of membership would include refuge manag-
               Resources. This agreement has not been initiated.           ers, park managers, preserve managers, state lands
                                                                           managers, heads of agency science programs, and
                                                                           other local agency resource managers. This group
                                                                           will be established by a charter agreement or MOA.
                                                                           Team members will play an important role in contin-
               The "overall" Management Team is comprised of an            ued cooperation between agencies by communicat-
               Interagency Group and a larger field staff level            ing relevant information on Sanctuary activities within
               Resource Management Team, including Sanctuary               their agency's internal management structures. This
               staff. The Management Team represents agencies              Team will be responsible for carrying out the various
               actively involved in some aspect of resource man-           integrated management programs within the Sanctu-
               agement in the Florida Keys. This Team will identify        ary. They will be responsible for identifying new
               and recommend action items for the Federal, State,          goals and objectives and raising any new issues or
               and local managing agencies to be implemented in            problems as they develop.
               the Sanctuary. One or more advisory councils will
               provide input to this process from the user perspec-        The Resource Management Team will communicate
               tive.                                                       closely with the Interagency Group, the Sanctuary
                                                                           Advisory Council, and various Standing Committees
               Interagency Group                                           to assure successful implementation of the Sanctu-
                                                                           ary Management Plan and the Water Quality Protec-
               The Interagency Group is comprised of agency staff          tion Program.
               representatives with statutory or direct responsibili-
               ties for Management Plan development and imple-             Sanctuary Advisory Council
               mentation.. The agencies represented on this Inter-
               agency Group are those that have agreed to enter            The FKNMSPA and NMSA authorized the establish-
               into the continuing integrated resource management          ment of a Sanctuary Advisory Council (SAC) to
               process by signing the Interagency Compact Agree-           assist NOAA in developing and implementing this
               ment. Their representatives have been involved in           Sanctuary Management Plan. Council participants
               the development of the Draft Management Plan and            represent conservation groups, public interest
               continuous management process. The Interagency              groups, local industry representatives, academia,
               Group will meet at least two times per year. In             commercial and recreational user groups, and the
               addition, at least one public meeting of the entire         general public. The role of the Sanctuary Advisory
               Management Team, together with the Sanctuary                Council is to provide recommendations to the
               Advisory Council, will be conducted to communicate          Resource Management Team on Sanctuary man-
               the current status of management activities in the          agement needs. The SAC will serve to identify gaps
               Sanctuary. The Interagency Group will assist in             in Sanctuary management as well as serve in the
               implementation of the management plan in a variety          capacity of liaisons to the community regarding
               of ways: (1) by reviewing and commenting on the             Sanctuary issues. The SAC will also serve as the
               progress of management programs; (2) by identifying         community's liaison to the Resource Management
               potential funding and personnel resources needed to         Team regarding the impact of implementation on the
               implement programs; and (3) coordinating the                public and the public's interest in management
               development of policies at the national, state, and         needs. The SAC will serve to assist in resolving
               local levels with those identified in the management        difficult and controversial issues in the Sanctuary by
               plan.                                                       providing their expertise and advice in recommenda-
                                                                           tions to the Resource Management Team and
                                                                           Sanctuary staff. The SAC will also serve as the local
                                                                           communities' liaison to the Resource Management

               38






                                                                                       The Preferred AlternativelManagement Plan
               Team regarding the impact on the public of manage-             ment Team must be integrated to the greatest extent
               ment implementation and their concerns about                   possible.
               management. Members of the SAC will be asked to
               sit on Ad Hoc Partnership Groups and serve on                  The memberships of the Interagency Task Force,
               various Standing Committees to assist in the imple-            Working Group, and Subgroups includes federal,
               mentation of the management plan and identification            state agencies, the Seminole Tribe of Florida, and
               of Sanctuary management needs.                                 the Miccosukee Tribe. Memberships of these groups
                                                                              overlap with the various groups identified for the
               Ad Hoc Partnership Groups                                      Continuous Management Process of the Sanctuary.
                                                                              This overlap, especially in the subgroups, should
               The Ad Hoc Partnership Groups will be committees               facilitate the integration and implementation of the
               formed on a temporary basis to handle immediate                priorities established by the SFERTF with those of
               Sanctuary management needs. These groups will be               the Sanctuary.
               formed on an as needed basis to assist the Inter-
               agency Group, the Resource Management Team,                    Water Quality Protection Program Steering
               the SAC, or any of the Standing Committees on                  Committee
               specific tasks or projects. The membership of these
               groups may include members from any of the other               The FKNMSPA directed the U.S. Environmental
               groups, or outside experts asked to address a                  Protection Agency (EPA) and the State of Florida, in
               specific topic. For example, under the Permit MOA,             consultation with NOAA, to develop a Water Quality
               an Ad Hoc group may be formed to coordinate                    Protection Program for the Florida Keys National
               multiple Federal, State, and local permits for large           Marine Sanctuary. The purpose of the Water Quality
               projects which are likely to affect Sanctuary re-              Protection Program is to "recommend priority correc-
               sources. Another example is, under the Protocol for            tive actions and compliance schedules addressing
               Fisheries Management, an Ad Hoc group may be                   point and non-point sources of pollution to restore
               formed to coordinate the management of fisheries in            and maintain the chemical, physical, and biological
               the Sanctuary by the South Atlantic Fishery Manage-            integrity of the Sanctuary including restoration and
               ment Cou   incil, Gulf of Mexico Fishery Management            maintenance of a balanced, indigenous population of
               Council, the Florida Marine Patrol, and the US Coast           corals, shellfish, fish, and wildlife, and recreational
               Guard. Chairs of these groups will be appointed at             activities in and on the water." In addition to correc-
               the time of their formation.                                   tive actions, the Act also requires development'of a
                                                                              water quality monitoring program and provision of
               The South Florida Ecosystem Restoration Task                   opportunities for public participation in all aspects of
               Force                                                          developing and implementing the program.
               The South Florida Ecosystem Restoration Task                   Membership of the committee shall include represen-
               Force (SFERTF) (Volume III, Appendix B) was                    tatives of the Environmental Protection Agency,
               established through an Interagency Agreement                   National Park Service, U.S. Fish and Wildlife Ser-
               signed on September 23, 1993. The Task Force was               vice, Army Corps of Engineers, NOAA, Florida
               established to "coordinate the development of                  Department of Community Affairs, Florida Depart-
               consistent policies, strategies, plans, programs, and          ment of Environmental Protection, South Florida
               priorities for addressing the environmental concerns           Water Management District, Florida Keys Aqueduct
               of the South Florida ecosystem." The Task Force                Authority, three individuals in local government in the
               created a Management and Coordination Working                  Florida Keys, and three citizens knowledgeable
               Group (The Working Group) to annually formulate                about the Program. The Regional Director of EPA
               and recommend to the Task Force management                     and the Florida Department of Environmental Protec-
               policies, strategies, plans, programs, and priorities          tion serve as Co-chairs of the Steering Committee.
               for ecosystem restoration and maintenance. The                 The Director of NOAA's Office of Ocean and Coastal
               efforts of the Working Group are facilitated and better        Resource Management is a committee member and
               integrated through the work of four Subgroups                  ensures integration of the water quality program with
               including: science; management; infrastructure; and            the other Sanctuary management programs.
               public information and education. The Florida Keys
               National Marine Sanctuary has been identified as the
               downstream component of the South Florida ecosys-
               tem and for that reason management activities
               between the SFERTF and the Resource Manage-

                                                                                                                                        39






                 The Preferred AltemativelManagement Plan

                                                                              State of Florida. The State has ongoing resource
                                                                              protection, management, and permit programs that
                                                                              carry out Sanctuary objectives. State funding di-
                 An integrated management approach involves many              rected toward Sanctuary management could be
                 Federal, State, and local agencies that have a stake         increased and/or focused on activities identified in
                 in the long-term health of the Sanctuary. Conse-             the Action Plans. For example, the State has pro-
                 quently, the total costs for managing the Sanctuary          vided funding to the Sanctuary Education Program
                 are to be shared by the participating Federal, State,        on various projects, such as "Coral Reef Classroom"
                 and local agencies and may be further supported by           and "Team OCEAN".
                 private efforts, including NGOs. Table 3 presents the
                 estimated annual operation and maintenance costs             Nonprofit Organizations. The Sanctuary has
                 for implementing the Management Plan. The costs              participated in cooperative projects with nonprofit
                 presented are for management of the Sanctuary and            organizations in which each party contributed partial
                 do not reflect costs to improve water quality in the         funding. For example, the Sanctuary and The Nature
                 Florida Keys. These costs are significant and are            Conservancy cooperatively support a program to
                 summarized in the Water Quality Action Plan and are          recruit and organize volunteers to perform tasks that
                 explained in more detail in the Phase 11 document of         benefit the goals of the Sanctuary.
                 the Water Quality Protection Program.
                                                                              Foundations. NOAA's Sanctuaries and Reserves
                 Current and Potential Funding Sources                        Division has been working with the National Fish and
                                                                              Wildlife Foundation (NFWF) to develop collaborative
                 Limited resources are currently available for full           efforts to increase the visibility and accessibility of
                 implementation of all the management actions                 the National Marine Sanctuary Program. The NFWF
                 outlined in the Preferred Alternative. Existing sources      operates by awarding challenge grants to match
                 of financing will have to be supplemented if signifi-        private-sector funds, often generating double- or
                 cantly more management activities are to be under-           triple-match cooperative projects. Sanctuary support-
                 taken. Potential sources of additional funding are           ers in the Keys have established a Florida Keys
                 described in the following paragraphs.                       Sanctuary Friends group to support Sanctuary
                                                                              programs and products. Similar foundations have
                 Table 3. Estimated Annual Operation and Mainte-              been established in conjunction with national estua-
                 nance Costs for Implementing the Management Plan             rine research reserves around the country.

                                                               Cost           Damage Assessment and Restoration Revolving
                 Program Area                             (million dollars)   Fund. Section 312 of the National Marine Sanctuar-
                 Administration                                0.90           ies Act (NMSA) authorizes NOAA to pursue civil
                 Channel Marking                               0.60           actions to recover response costs and damages for
                 Education                                     0.50           incidents that injure, destroy, or cause the loss of
                 Enforcement                                   1.40           Sanctuary resources. Since fiscal year 1991, funds
                                                                              collected by NOAA under Section 312 have been
                 Mooring Buoy                                  1.00           deposited in the Damage Assessment and Restora-
                 Research and Monitoring                       1.06           tion Revolving Fund (DARRF). Section 312(c)
                 Submerged Cultural Resources                  0.08.          requires that 20 percent of recovered damages, up to
                 Volunteer                                     0.06           a maximum balance of $750,000, be used to finance
                                                                              response actions and damage assessments. The
                 Zoning                                        1.00
                                                                              remaining damages are to be spent, in priority order,
                                                               6.60           to: 1) restore, replace, or acquire the equivalent of
                                                                              the injured Sanctuary resources; 2) manage and
                 Sanctuary Operation Funds. The Sanctuary is                  improve the affected national marine sanctuary; and
                 managed jointly by NOAA's National Marine Sanctu-            3) manage and improve any other national marine
                 ary Program and Florida's Bureau of Coastal and              sanctuary. The Florida/NOAA MOA for Coordination
                 Aquatic Managed Areas. Operating funds for Sanctu-           of Civil Claims Based on Injuries to Sanctuary
                 ary management come from Federal appropriations              Resources addresses the use of recovered sums to
                 to the National Marine Sanctuary Program. Operat-            restore damaged resources consistent with Section
                 ing funds cover expenses such as personnel sala-             312. The strict criteria on the use of these Section
                 ries, boat maintenance, property rental, equipment           312 funds precludes expenditures for management
                 and supplies, etc.                                           purposes until other obligations for these funds are

                 40






                                                                                      The Preferred AlternativelManagement Plan
               met. These monies collected for Section 312 actions          for addressing the environmental concerns of the
               are not considered revenue generating funds be-              South Florida ecosystem." Part of the Task Force's
               cause of the emphasis on directing the monies back           responsibilities are to obtain funding for the restora-
               to restoring the damaged resources.                          tion of the South Florida ecosystem including the
                                                                            Florida Keys National Marine Sanctuary. Potential
               Civil Penalty. Under Section 307(c) of the NMSA,             funding sources that may be used for Sanctuary
               NOAA can assess a maximum civil penalty of up to             management and water quality improvements
               $100,000 per day per violation of the NMSA or any            include the 1996 Farm Bill, highway toll collections,
               regulation or permit issued under the statute. While         and monies earmarked for particular agencies
               this maximum authority is ample for aggregious               through the Federal appropriations process for the
               destruction of coral and other significant Sanctuary         restoration efforts in the South Florida ecosystem.
               resources, most civil penalties for routine resource
               violations in the existing Key Largo and Looe Key
               NMS have been comparable to those collected by
               other agencies for similar infractions. The statute
               provides that funds are to be used, in priority order,
               to: 1) manage and improve the sanctuary within
               which the violation occurred; 2) pay a reward for
               information leading to a civil penalty or forfeiture
               action; and 3) manage and improve any other
               sanctuary. Under the Interim Management MOA and
               the Co-trustee Agreement, NOAA has agreed that
               any monetary recovery of civil penalties be used to
               remedy injury to Sanctuary resources for the exclu-
               sive benefit of the Florida Keys National Marine
               Sanctuary.

               FKNMS License Plate Funds. An initiative is
               underway to introduce legislation setting up a
               specialty automobile license plate with a "Save the
               Coral Reef Tract" theme. Fees from Florida residents
               who purchase the license plate would go toward a
               fund dedicated to supporting reef protection activi-
               ties. "Manatee" and "Florida Panther" license plates,
               made available in 1990, have generated $1 million to
               $2 million per year.

               Boating Improvement Fund. The fund is adminis-
               tered by Monroe County and is derived from a
               portion of state vessel registration fees which are
               returned to the county where they are generated.
               The fund must be used for projects designed to
               enhance boating, and is specifically targeted at
               channel marking, launching facilities, and similar
               projects. Currently, Monroe County receives approxi-
               mately $125,000 annually from this source; conse-
               quently, this is money that exists and is already
               being applied to channel marking needs in the
               Sanctuary.

               South Florida Ecosystem Restoration. The South
               Florida Ecosystem Restoration Task Force
               (SFERTF) (Volume 111, Appendix B) was established
               through an Interagency Agreement signed on
               September 23, 1993. The Task Force was estab-
               lished to "coordinate the development of consistent
               policies, strategies, plans, programs, and priorities

                                                                                                                                   41







                                                            Action Plans

                Introduction                                                of the Sanctuary Program. Because the information
                                                                            in the action plans represents only the initial steps of
               The following chapters include the 10 Sanctuary              implementation, the development of more-detailed
               action plans that outline the process for implementing       information is still necessary.
               Management Plan strategies. Action plans are.                Another limitation relates to the timing, cost, funding,
               composed of bundles of management strategies                 and personnel requirements for each plan. This
               sharing common management objectives, and                    information is estimated and expressed in ranges, as
               present the initial outline of the steps required for        more detailed information cannot be provided, given
               implementation. They provide an organized structure          the uncertainties in the planning stage at this time.
               and process for implementing management strate-              These estimates must be refined closer to the time of
               gies, including a description of the activities required,    strategy implementation. This implementation is
               institutions involved, and requirements necessary for        usually dependent on a coordinated mix of Federal,
               either complete or partial implementation. Although          State, and local institutions, and many of these joint
               the plans are comprehensive, more detailed informa-          efforts will require memoranda of agreement and/or
               tion about the tasks required must be developed for          understanding among the cooperating agencies.
               each strategy prior to implementation.
               Action Plan Organization. All action plans are               Although the thrust of what must occur to implement
               organized in three sections: 1) an introduction; 2) a        most strategies should already be identified in the
                                                                            action plans, they do not include all of the information
               description of strategies in the plan; and 3) a strategy     required for complete implementation. Detailed
               implementation schedule. The introduction summa-             information about the tasks, resource requirements,
               rizes the goals and objectives of the plan and pre-          and agreements necessary to implement each
               sents an overview of all strategies to be imple-             strategy must still be developed. The Sanctuary staff
               mented. The description section lists the strategies         and institutions providing assistance must develop
               and their component activities. Each activity is a sub-      the more detailed information required for such
               component of the overall strategy, and represents a          implementation to be successful.
               specific management action(s). The implementation
               section summarizes the requirements (e.g., funding,          Action Plan Development. Action plans were
               costs, personnel, etc.) needed to implement the              developed as a means of implementing management
               strategies in each action plan.                              strategies recommended by the Core Group, Strat-
               Action Plan Specifics. The Research and Monitor-*            egy Working Group, and Advisory Council. Topics
               ing and Water Quality action plans address require-          were initially identified by NOAA and the Sanctuary
               ments mandated in the Florida Keys National Marine           Core Group, and were then assigned to professionals
               Sanctuary and Protection Act (FKNMSPA). In                   with expert knowledge about their specific theme
               addition, the National Marine Sanctuary Program              (e.g., education, zoning, etc.). These professionals
               traditionally has Education and Outreach, Enforce-           developed the draft text for the plans, and this text
               ment, and Volunteer programs at each sanctuary.              was reviewed by NOAA. The revised drafts were
               The ChannellReef Markin Mooring Buoy, Sub-                   submitted to the Core Group members and peer
                                           91                               reviewers for additional comments, and this informa-
               merged Cultural Resources and Zoning plans outline           tion was incorporated into the plans found in this
               specific actions that will be taken to protect Sanctu-       document. The paragraphs below describe the action
               ary resources. The Regulatory plan includes the              plan development process in more detail.
               Sanctuary regulations and explains how manage-
               ment strategies have been incorporated into the              Strategy Identification. The first step in developing
               regulations.                                                 action plans was to identify the strategies that would
               Limitations. Action plans provide only preliminary           make up each plan. The 98 strategies in Alternative
               implementation and funding guidelines, and their             III were analyzed by the action plan authors and the
               parameters may change in the future. They present            Core Group to determine the appropriate mix of
               only the planned actions considered necessary to             strategies in each plan. The objective was to place
                                                                            strategies in plans according to their management
               address the range of issues and problems confront-           thrust. For example, all strategies that included
               ing the Sanctuary. Their primary limitation is that          specific educational activities were included in the
               strategies are expected to change with the evolution         Education and Outreach Action Plan. Strategies

                                                                                                                                      43







               Action Plans: Introduction

               requiring research and monitoring were included in              indefinitely, the number of months required to com-
               that plan. Table 1 lists the strategies in each action          plete its main thrust is identified and it is listed as a
               plan.                                                           continuous strategy. Although it would be useful to
                                                                               list a detailed milestone-type schedule for each
               Strategies in Multiple Plans. Due to the complexity of          strategy (i.e., defining when a strategy will begin and
               many strategies, some were included in more than                end), the uncertainties involved in implementing such
               one action plan. For example, a strategy may appear             a large number of strategies limit realistic scheduling
               in both the Education and Outreach Plan and the                 to listing the number of months required for comple-
               Volunteer Plan, with each plan detailing the imple-             tion.
               mentation procedure for the appropriate component
               of the strategy. The Printed Materials strategy, for            Funding. This is the level of funding currently avail-
               example, includes both educational and volunteer                able from all sources (Federal, State, local, and
               components.                                                     private) to complete each strategy. Because costs
                                                                               are not clearly defined, and the number of institutions
               Other strategies, however, were exactly the same in             that will be involved in funding activities may change,
               multiple plans (e.g., many strategies in the Research           this is a subjective estimate based on expert knowl-
               and Monitoring Plan are the same as those in the                edge (i.e., action plan authors and the Core Group).
               Water Quality Action Plan). Where this is the case, a           Funding-level estimates are provided for four avail-
               complete strategy description is included in only one           ability categories: less than 50 percent; 50 to 74
               plan, and that description is referred to when the              percent; 75 to 99 percent; and 100 percent.
               strategy is mentioned in other plans.
                                                                               Costs. Estimates have been developed for each
               Developing Background Information for Strategy                  strategy and component activity for total capital costs
               Implementation. For each strategy within each                   and annual operations and maintenance costs. Costs
               action plan, information was developed regarding a              are given in ranges and, when possible, are listed at
               number of parameters affecting strategy implementa-             the activity (strategy component) level within each
               tion. For example, information on the timing of                 action plan.
               implementation, costs, and currently available
               funding was compiled. This information was devel-                    *Capital costs include the purchase of equip-
               oped at planning workshops, and by the action plan                    ment (boats, vehicles, etc.), construction of
               authors, the Core Group, and peer reviewers. For                      buildings and plants, land acquisition, and
               each plan, information was developed for the param-                   other start-up expenses.
               eters listed below.   .                                              -Operations and maintenance costs include
               Strategy Prioritization. Management strategies were                   salaries, travel expenses, rent, utilities, up-
               organized into three groups (referred to as priority                  keep, supplies (fuel, paper, etc.), and other
               levels high, medium, and low in the action plans and                  administrative expenses. All cost estimates are
               action plan summaries) based on their relative                        listed in ranges.
               importance or implementation feasibility. Because of            Geographic Focus. The geographic focus of a
               the large number of strategies and the limited re-
               sources available, prioritization was necessary to              strategy or activity. Management actions may be
               determine the timing of strategy implementation.                Sanctuary-wide, or limited to a specific area such as
               Initially, action plan authors identified "high-priority"       the Upper, Middle, or Lower Keys.
               strategies for their respective plans, and the list of          Personnel. The number of personnel required to
               these strategies was revised by the Core Group.                 implement the strategy or component activity.
               Planned Level of Activity in Year 1. Each strategy and          Estimates of staff requirements are listed in ranges.
               activity has been assigned an estimated "activity               Strategies Not Included in Action Plans. Nineteen
               level" (high, medium, low, or none) for year 1, and             strategies were not placed in action plans (excluding
               this information is included in each action plan.               the Volunteer Action Plan), as they were not consid-
               Activity levels represent the anticipated level of action       ered to fit within any plan. However, one stategy
               in the first year following the adoption of the Sanctu-         (B. 10: Damage Assessment) was considered impor-
               ary Management Plan.                                            tant enough to be a high-priority strategy (to be
               Months to Complete Strategy.This is the estimated               implemented in year 1). Based on its importance, the
               number of months required to complete each strat-               Sanctuary Superintendent will be responsible for
               egy or activity. If a strategy is expected to continue          ensuring that this strategy is fully implemented.

               44






                                       Channel/Reef Marking Action Plan

                This action plan describes the strategies used to           recommendation about additional marking is made.
                develop and implement a comprehensive chan-                 Several inventories will be conducted to assess
                neWeef marking plan for the Sanctuary. The two              current shallow-water resource damage, the location
                strategies in the plan are derived from Alternative         of all existing markers (permitted and unpermitted),
                111, the most balanced of the management altema-            the location and function of all marine facilities, and
                tives. The strategies are described in terms of             depth of the entrance and exit channels from Keys
                their component activities. For each strategyl              subdivisions. In addition, tests of the premise that
                component activity, the time required for imple-            marking may increase boat traffic will need to be
                mentation, funding availability, costs, and re-             completed. Changes in boating activity will have to
                sponsible agencieslorganizations are outlined               be monitored as new marking systems are placed in
                Table 4 summarizes key information about the                sensitive areas.
                strategies included in this plan.
                                                                            Although much of the work described in this action
                                                                            plan was completed by early 1994, these activities
                 Introduction                                               have been included in the plan to provide a complete
                                                                            description of the channel/reef marking requirements.
                The strategies in this action plan are designed to          In addition, those activities that have already been
                establish an effective channel/reef marking system          completed are identified. Overall, the Channel/Reef
                for boaters within the Sanctuary. Although Channel          Marking Program should ultimately become a mainte-
                Marking is already in place in selected areas, consid-      nance program, and will be a continuous component
                erable resource damage is occurring in areas lacking        of the Sanctuary management process.
                these navigational aids. The plan will establish a
                standardized system of signage that will be utilized        How the Plan is Organized. This plan outlines the
                throughout the Sanctuary, and will establish the            approach for developing and implementing a Sanctu-
                priorities for channel/reef marker placement (empha-        ary-wide channel/reef marking scheme. The plan is
                sizing long-term protection and the enhancement of          based on the management strategies in Alternative
                impacted shallow-water resources).                          III, and outlines the steps necessary to create an
                                                                            effective Channel/Reef Marking Program within the
                Marking the reefs as well as the entrance and exit          Sanctuary. The plan is composed of two strategies
                areas and the major accessways to and from Florida          and their component activities, and is organized in
                Bay, the Gulf of Mexico, and the Atlantic Ocean will        three parts: an introduction, description of strategies,
                minimize the damage done to shallow-water re-               and a discussion of implementation considerations.
                sources throughout the Sanctuary. In addition, action
                plan implementation will facilitate enforcement action
                against damaging effects that are the result of
                                                                                                                            aw,
                inappropriate boater activities.
                It is assumed that additional channel/reef marking in       Management Strategies. Each strategy in the Action
                well-defined and prioritized locations will reduce the      Plan has been assigned an estimated activity level
                damage to shallow-water resources. A number of              for year 1 (high, medium, low, or none) which repre-
                preliminary assessments must be completed before a          sents an estimate of the planned level of action that

                                                                                                        7
                                                                                                                                   UZI,
                           "Sftmoty of 'Chanhe@              ,Strategies
                                                                                         "A;'
                                                                                    F



                                         Woo_-





                                               ... ......


                                                           Vow,
                                             ["rrlta yo"& I., ho


                                                                                                                                   45






              Action Plans: ChannellReef Marking

              will occur in the year after the Sanctuary manage-             reasonable and appropfiate public access to the
              ment plan is adopted. In addition, the time required           resource. The channel/reef marking Action Plan has
              for implementation, costs of implementation, and               been developed with these goals in mind.
              available funding (Federal, State, local, and private)
              have been estimated for each strategy. The compo-              Sanctuary Goals. The Sanctuary is affected greatly
              nent activities in each strategy, and the institutions         by broad spatial resource impacts, with a substantial
              responsible for implementing these activities, have            proportion comprised of shallow benthic resources in
              been identified as well.                                       waters affected by constant use. A main Sanctuary
                                                                             goal is the protection of these shallow areas by
              The strategies for the Management Plan, which                  various means, including an extensive and well-
              includes the channel/reef marking Action Plan and all          managed Channel/Reef Marking Program. Sanctuary
              other action plans combined, have been grouped into            goals with respect to channel/reef marking include:
              three priority levels, based on their relative impor-
              tance or feasibility. A strategy's priority level is based          - protecting and improving degraded shallow-
              on factors such as available funding, costs, person-                 water resources;
              nel requirements, timing, levels of existing implemen-
              tation, and existing leg islative/reg ulatory authority.            - providing reasonable and appropriate public
              The high priority level includes the 16 most important               access while minimizing resource damage; and
              strategies. The medium priority level contains 36
              strategies that represent the next level of importance              - educating the public about what has been done
              to the Sanctuary and will have some level of activity                to protect the resource and what they can do
              in year one. Low priority items contain the remaining                by becoming better boaters.
              strategies in the Management Plan. Those strategies
              planned for completion in or before year one do not            Program Objectives. To achieve these goals, the
              have a priority level.                                         following objectives must be accomplished:

              Channellreef marking Strategies. The Boat Access                    e assess the characteristics of boat use
              (B.1) strategy is completed, as outlined below, except               within the Sanctuary;
              for the continued update and maintenance of the
              database and GIS layer developed as the result of                   e assess the extent and intensity of damage that
              completing activities in this strategy. The channel/                 has occurred due to prop dredging;
              reef marking strategy (B.4) is included in priority level
              1. Portions of this strategy have been completed,                   - develop a standardized channel/reef marking
              while some activities are ongoing.                                   system for the Sanctuary;

              Relationship to Other Action Plans. The regula-                     * develop channel/reef marking criteria that
              tions associated with the channel/reef marking                       provide maximum protection to Sanctuary
              strategy are included in the Regulatory Action Plan.                 resources, ensure reasonable boating access,
              Anticipated volunteer assistance is described in the                 and allow for easy transit within the Sanctuary;
              Volunteer Action Plan. Also, while the Boat Access
              strategy is included as a component of the Mooring                  - gain agency and user consensus on the
              Buoy Action Plan, the implementation scheme                          channel/reef marking criteria;
              (description of activities and associated information)
              for the strategy is only included in this action plan.              * implement a plan for installing new markers;
                                                                                   and

              Goals!"a" ndJQbj6Ct1V,e8,,                                           educate the public about the Channel/Reef
                                                                                   Marking Program.
              National Goals. The need for channel/reef marking
              in the Sanctuary is unique within the National Marine
              Sanctuary Program. The Sanctuary contains broad
              shallow-water areas and significant reef tract that
              require channel/reef marking for adequate resource
              protection. Still, the implementation of a channel/reef
              marking Plan is based on the more general national
              goal of resource protection and the provision of

              46








                                                                                                     Action Plans: Channel\Reef Marking
                 Description of Strategies                                         Activity 1-Acquire Existing Information. Obtain
                                                                                   information about the location of existing marine
                                                                                   facilities in the Keys. Sources should be broad, and
                                                                                   may include local comprehensive plans, permit data
                 Channel Marking                                                   from Federal, State, and local agencies, and previ-
                                                                                   ously conducted surveys.
                 The Channel/Reef Marking Program is comprised of
                 two strategies. The Boat Access strategy (B.1) has                mExisting Program Implementation. The Monroe
                 been completed and has generated information                      County Department of Marine Resources (DMR) and
                 about the location of existing marine facilities in the           the Florida Marine Research Institute (FMRI) of the
                 Keys and this data has been incorporated into a                   Florida Department of Environmental Protection
                 geographic information system (GIS) that will be                  (FDEP) have already completed this activity.
                 maintained by the State. The GIS will be updated
                 based on changes in facilities and newly issued                   Implementation. This activity was implemented by
                 permits. The channel/reef marking strategy (B.4)                  the FMRI and the Monroe County DMR.
                 contains 10 activities. The first seven activities are
                 largely complete and have provided the information                Schedule. This activity was completed prior to year
                 necessary to assess need, prioritize and implement                1 .
                 channel/reef marking. The other three will establish              Activity 2-Develop and Carry Out Boat Access
                 the process for developing a comprehensive Chan-                  Survey. Develop a data sheet to characterize each
                 nel/Reef Marking Program. Activities 8 and 9 are                  marine facility, and carry out a ground survey of each
                 underway.                                                         boat access site in the Keys. The sheet should
                                                                                   include the precise location (local address and global
                   Channel Marking Strategies                                      positioning system (GPS) coordinates), type of
                                                                                   facility, services provided, and intensity and type of
                   B.1  Boat Access                                            use (recreational, commercial, live-aboard).
                    Acquire existin'g information
                   Develop and, carry out boat access survey                  Existing Program Implementation. The FMRI and
                     Input survey data to, a G IS                                  Monroe County DMR have completed this activity.
                    Make survey results availableto resource man-
                    agers                                                               Implementation. This activity was implemented by
                                                                                         the FMRI and Monroe County DMR.
                     Update survey results

                     B4: Channel Marking
                                                                                   Schedule. This activity was completed prior to year
                        Survey current boat travel patterns,
                         Survey Boater use
                        
                        Survey Damage from prop dredging                            Activity 3-input Survey Data into a GIS. Input all
                       inventory and georeference channel markers                   data developed through the on-site survey into a GIS
                     Survey subdivisions for shallow-water access                           database.
                     Assess channel marking effectiveness
                    
                                                                                   Existing Program Implementation. Monroe County
                     Integrate data                                                 DMR and the FMRI have completed this activity.
                                                             
                     Organize channel marking program                              implementation. The Monroe County DMR was
                      Implement channel marking program                            responsible for completing this activity under contract
                      Develop channel marker maintenance program                   with the FMRI. All data has been turned over to the
                                                                                   FMRI and will be updated by the Monroe County
                                      Strategy B.1:                                DMR as marine facilities change or new ones come
                                       Boat Access                                 into existence.
                 Conduct a survey to assess pub        lic and private boat        schedule. This activity was completed prior to year
                 access throughout the Sanctuary.
                 (Completed prior to Year 1)                                       Activity 4-Make Survey Results Available to
                                                                                   Resource Managers. Initiate a process to make the


                                                                                                                                                 47
 





               Action Plans: ChannellReef Marking
               information developed in the marine facilities survey       marking could be improved to facilitate their ability to
               available to resource managers in map, graphic, and         travel, while minimizing potential damage to Sanctu-
               written form.                                               ary resources. All information collected will be
                                                                           entered into both a State and county GIS.
               mExisfing Program Implementation. This activity is
               ongoing. Data is currently available through the
               FMRI. As part of FMRI's obligation to maintain data         wExisting Program Implementation. Public meetings
               created as a result of activities carried out in the        were held in 1992 to gather information about current
               Sanctuary, this information will become more readily        travel routes. The survey was completed and the
               available over time. See Strategy W.28 in the Water         results confirmed in September 1993.
               Quality Action Plan.
                                                                           wImplementation. The Monroe County DMR had the
               mImplementation. The FMRI will be the lead agency           lead responsibility for implementing this activity. The
               responsible for implementing this activity. NOAA will       FMRI will provide a primary role in implementation by
               assist in implementation.                                   providing GIS assistance.
                                                                           oSchedule. This activity was completed prior to year
               Z
               Schedule. This activity is ongoing as part of Strategy      1 and required two months to complete.
                 28 in the Water Quality Action Plan.
                                                                           Activity 2-Survey Boater Use. This survey was
               Activity 5-Update Survey Results. Update the                designed to define the spatial and temporal patterns
               marine facilities GIS database as facilities change         of boat use within the Sanctuary. It involved weekly
               and new ones are permitted.                                 overflights in a prescribed pattern along
                                                                           the Sanctuary's north/south boundaries from Soldier
               sImplementation. The FMRI will be the lead agency           Key to the Marquesas. Boat counts were made
               responsible for implementing this activity. This            during these flights, and each identified boat was
               activity should become a continuous process, with           assigned spatially to a one-minute grid. The over-
               the Monroe County DMR providing primary support.            flights were coupled with simultaneous on-water
                                                                           surveys to enable clearer definition of specific boater
               oSchedule. This activity will continue indefinitely.        activities at the time of each overflight. All data
                                                                           derived from this survey has been entered into a GIS.
               This strategy is also included in the Volunteer
               Action Plan.                                                wExisting Program Implementation. The overflights
                                                                           were initiated in late summer 1992 and continued
                                 Strategy 13A:                             through late summer 1993.
                            Channel/reef marking                           mimplementation. The FMRI had the lead responsibil-
                                                                           ity for implementing this activity, and NOAA provided
                                                                           primary support. The Nature Conservancy assisted
               Establish a channel/waterway marking system                 with implementation.
               throughout the Sanctuary. (High Priority Level, High
               Level of Action in Year 1, Five years to Complete, 75-      mSchedule. This activity was completed prior to year
               99% Funding Available for Full Implementation)              1. The overflights required 12 months to complete.
                                                                           Work on the data at the FMRI lasted through 1995.
               This strategy is comprised. of a number of ongoing
               projects whose purposes may be broader than the             Activity 3-Survey Damage from Prop Dredging.
               scope of the channel/reef marking strategy. However,        The prop dredge survey was designed to determine
               the information made available through these                the distribution and extent of damages to shallow-
               projects will assist in the development of this strat-      water resources in the Sanctuary that have resulted
               egy. These projects are listed as individual activities     from boating activities.
               within this plan.
                                                                           mExisting Program Implementation. The survey has
               Activity 1-Survey Current Boat Travel Patterns.             already been conducted using existing aerial photog-
               This survey was designed to determine the typical           raphy and overflights of selected areas. Field work
               routes of travel used by all segments of the public         began in summer 1992 and was completed by
               within the Sanctuary. The survey included informa-          January 1993. Information from the survey has been
               tion about how participants believe channel/reef            incorporated into the FMRl GIS. A summary report

               48







                                                                                                  Action Plans: ChannellReef Marking

               was provided to FMRI in early 1993 to describe                  components of the Action Plan: 1) baseline photo-
               survey results. This information is now available on            grammetric (aerial photography) information for
               the FMRI, GIS and in FMRI Technical Report TR-1.                assessing changes in benthic communities in dis-
                Implementation. The FMRI had the lead responsibil-             crete areas following the establishment of the Chan-
                                                                               nel/Reef Marking Program; and 2) baseline data for
               ity for implementing this activity.                             evaluating possible changes in boater use of an area
                                                                               which result from the installation of channel markers.
               mSchedule. This activity was completed prior to year            The project will assess the effectiveness of various
               1. It required nine months to complete the field                channel/reef marking methods to reduce shallow-
               survey work. The Technical Report was made                      water resource damage over time. It is anticipated
               available in 1995.                                              that additional overflights will be completed each year
                                                                               for at least five years after new markers are installed
               Activity 4-Inventory and Georeference Channel                   so that resource managers can assess changes in
               Markers. The channel marker inventory was de-                   prop scarred areas over time. Before and after
               signed to identify all known markers, and character-            surveys of boater use on various channels will also
               ize and georeference them. Information gathered has             help to assess whether channel/reef marking in-
               been incorporated into a GIS. The survey will allow             creases the number and size of vessels using an
               for an assessment of where new markers may be                   area. Additional methods (e.g., on-site monitoring) for
               advantageous, will help determine where markers                 evaluating the effectiveness of the channel/reef
               may be repositioned. The survey allowed the Monroe              marking effort will be used as the program is imple-
               County DMR to identify the location of unpermitted              mented.
               markers and will help them determine if they should
               be removed. A relatively good database on permitted             nExisting Program Implementation. Five areas have
               markers currently exists. However, prior to the                 already had aerial overflights completed. These are
               completion of this survey, only anecdotal information           the north end of Big Coppitt Key, Lower Sugarloaf
               was available for unpermitted markers.                          Sound, Kemp Channel south of U.S. Highway 1, the
                                                                               north end of Ramrod Key and the Lignum Vitae
               mImplementation. Monroe County had the lead                     Aquatic Preserve area. Two of these areas, Lower
               responsibility for implementing this activity. NOAA,            Sugarloaf Sound and the Lignumvitae area, received
               the FMRI, and the U.S. Coast Guard (USCG) as-                   channel/reef marking.
               sisted with implementation.
                                                                               sImplementation. The Monroe County DMR will have
               wSchedule. This activity was completed prior to year            the lead responsibility for implementing this activity,
               1. It required twelve months to complete.                       and the FMRI will provide technical and financial
                                                                               support.
               Activity 5-Survey Subdivisions for Shallow-water
               Access. This survey was designed to complete an                 mSchedule. This activity will be an ongoing part of the
               assessment of water depths at subdivision entrance              Channel/Reef Marking Program and will be com-
               points, and of shallow-water impediments between                pleted in an effort to assess the effectiveness of
               the Atlantic Ocean, Florida Say, and the Gulf of                channel/reef marking in each individual area marked.
               Mexico and subdivision entrances. The information
               collected will be used to prioritize the placement of           Activity 7-Integrate Data. Virtually all of the informa-
               corrective or additional marking.                               tion collected through the first five activities will be
                                                                               included in a GIS.
               sImplementation. Monroe County had the lead
               responsibility for implementing this activity. The FMRI         nImplementation. The FMRI and the Monroe County
               and the Florida Department of Community Affairs                 DMR had the lead responsibility for implementing this
               (FDCA) provided primary support.                                activity.
               oSchedule. This activity was completed prior to year            oSchedule. This activity was completed prior to year
               1. It was carried out at the same time as the channel           1. It required 30 months to complete.
               marker survey and required twelve months to com-
               plete.                                                          Activity 8-Organize Channel/Reef Marking Program.
                                                                               This activity will be implemented to develop the
               Activity 6-Assess channeVreef marking Effective-                process for marking channels. A channel/reef mark-
               ness. This activity will establish two very important           ing Working Group (CMWG) composed of represen-

                                                                                                                                           49






              Action Plans: ChannellReef Marking

              tatives from NOAA, Fish and Wildlife Service (FWS),          ing an implementation time frame based on current
              National Park Service (NPS), U.S. Army Corps of              and projected funding allocations; 2) establishing
              Engineers (USACE), USCG, FDEP and FDCA, and                  implementation responsibilities; 3) submitting and
              the Monroe County DIVIR was established in 1993 to           reviewing permit applications based on the review of
              coordinate this activity. As a result, preliminary           the CMWG recommendations; 4) installing the
              channel/reef marking criteria were developed in              channel markers; and 5) removing channel/reef
              1994. Citizen and user groups will also be asked to          markers when necessary.
              participate to assist the CMWG in refining the chan-
              nel/reef marking criteria. The CMWG will be respon-          mExisting Program Implementation. Monroe County
              sible for: 1) developing a joint statement of jurisdic-      receives funding from the State of Florida through the
              tion; 2) defining the typical conditions under which         Boating Improvement Fund (BIF). This fund is
              channel markers will be used; 3) recommending new            derived from State vessel registration fees, a portion
              types of signage for use in the shallow waters of the        of which is returned to the county where the fees
              Keys, subject to approval by the U.S. Coast Guard;           were generated. In 1995, Monroe County received
              4) continuing to develop the criteria for assessing the      approximately $125,000 from the BIF. This money
              need for marking; 5) developing the list of potential        must be used for boating improvement activities,
              locations for channel markers; 6) developing the             including channel markers. Monroe County has been
              criteria for prioritizing the order of importance for new    active in sponsoring channel/reef marking projects
              channel marker installation; and 7) evaluating the           utilizing this funding source. Projects originate with
              need to remove channel/reef markers which are                the Monroe County DMR and require review and
              found to have a detrimental effect on shallow water          approval by the Marine and Port Advisory Committee
              communities. The 1994 Draft channel/reef marking             (MPAC) and the Board of County Commissioners. It
              Prioritization Criteria are provided in Table 5. The         is also possible for Monroe County to draft an
              criteria are designed to emphasize the use of mark-          ordinance which would allow the County to levy an
              ers to eliminate documented damage where boat use            additional 50 percent of the State's portion of vessel
              is already established, rather than improving access         registration fees. For example, for a vessel 26 feet in
              to less frequented areas.                                    length or less, the State's portion of the registration
                                                                           fee is $18.50. Thus, an additional $9.25 could be
              wImplementation. Through the CMWG, NOAA and                  levied directly by the county. Such an ordinance
              Monroe County will take the lead responsibility for          would provide, at a minimum, an additional $200,000
              convening the agencies responsible for permitting            per year to the County for boating improvement
              and placing channel markers in the Sanctuary. In             needs such as channel/reef marking. At current
              order to facilitate an accelerated and comprehensive         (1995) rates, if the County allocated 75% of the BIF
              program that meets the resource management goals             to channel/reef marking, approximately 100 channel
              of the Sanctuary, both agencies will work to coordi-         markers could be installed annually. Up to 250 to 300
              nate and streamline the permitting process. This will        markers could be installed annually if the ordinance
              include a consensus building effort designed to              were passed. A conservative estimate of the number
              evaluate and come to terms with differences in               of new markers required is in the range of 500 to
              resource management priorities in the wildlife refuges       1,000.
              of the Lower Florida Keys. The FMRI will provide
              primary technical support. All aids to navigation must       mImplementation. The Monroe County DMR will have
              be approved by the USCG.                                     the lead responsibility for implementing this activity.
                                                                           The Florida DEP, the U.S. ACOE and the USCG will
              wSchedule. This activity will be completed by early          serve a primary role by reviewing permit applications
              1997. It will require twelve months to complete. It is       for ail aids to navigation. Monroe County will install
              anticipated that the Monroe County DMR will receive          the majority of the channel markers. All aids to
              grant funding to continue the development of the             navigation must be approved by the USCG.
              channel/reef marking Plan. This funding should allow
              for the completion of this activity and part of Activity     oSchedule. Implementation will begin prior to year 1.
              10.                                                          The permitting and marking components of this
                                                                           activity will be continuous. At a minimum, the project
              Activity 9-implement ChanneVReef Marking                     would last four years based on full monetary commit-
              Program. Based on the information developed in the           ment. It could last as long as 10 years. In the first two
              previous activities, channel/reef marking will be            years more time would be spent in developing permit
              implemented. This activity consists of four compo-           applications and in attaining permits. In subsequent
              nents: 1) establishing funding sources and develop-          years, a greater proportion of time allocation would

              50






                                                                                       Action Plans: ChannellReef Marking

              go to channel marker installation. A goal of the
              program is to mark 15 high priority channels over four
              years.

              Activity 10-Develop Channel Marker Maintenance
              Program. A marker maintenance program will be
              developed and implemented to ensure the upkeep of
              channel markers. A major component of this process
              will include the development of a GIS database for
              the permitted markers.

              sImplementation. The Monroe County DMR will have
              the lead responsibility for implementing this activity.

              nSchedule. Development of the activity will require
              six+ months to complete. Actual on the water mainte-
              nance will be a,continuous obligation.

              This strategy is also included in the Regulatory
              and Volunteer action plans.








































                                                                                                                         51






                     Action Plans ChannellReef Marking


                        Table 5. ChanneYReef Marking Prioritization Criteria

                                            Prioritization Criteria                                                                                      Points
                                            Severity of impact at damaged area Is Identified as exhibiting a.
                                                High levet of Impact                                                                                           60
                                                Medium level of Impact                                                                                         25
                                                Low level of Impact                                                                                            0
                                                   (based on FMRI Technical Report TR-1 (1995))
                                            Damaged area Is
                                                Large in area (>25 acres)                                                                                      60
                                                Mecfium in area (>1 0 acres. but, < 25 acres)                                                                  25
                                                Small in area (<I 0 acres)                                                                                     0
                                                   (based on GIS area calculation)
                                            Note. Consideration will be given to provide for adding areas that this process of prioritization May
                                            have missed (e g, small areas that have high levels of damage severity) Such areas might only
                                            need a single marker to solve a problem

                                            Damage does not appear to be primarily the result of a random act having nothing to do with
                                            purposeful travel from place to place                                                                              10
                                            Damage does not appear to be primarily the result of developing new routes (As short cuts, for
                                            intrurAon Into new areas, or, as the result ot new shoreline commercial or residential development)                10
                                            Damage does not appear to be the result of the use of Inappropriate draft vessels                                  10
                                            Route which contains damaged area or route leading to a damaged area does not transit near
                                            sandy beach areas which are known sites of turtle nesting (Based on documentation from Save A
                                            Turtle, FWS, FGFWFC, or EvergladeatDry Tortugas NPS)                                                               10
                                            Damaged area or route leading through a damaged area is not within an area noted for special                       10
                                            management in the FWS Back Country Management Plan
                                            The damaged area or the travel route of which it is part do not transit other managed areas which
                                            provide any limitations on vessel type, travel characteristics or impacts on wilcilde which result                 10
                                            from the act of transit
                                            The damaged area Is not in or Immedhately adjacent to an area critical for bird, nesting roosting, or              10
                                            foraging (As defined by the FWS, FGFWFC, or Everglades NPS)
                                            The damaged area or the travel route of which It is a part will not significantly impact the Manatee
                                            (based on documented boat stakes)
                                            Damaged area Is on a common travel route (based on historic use and volume of traffic). If 'Yes,'                  10
                                            then

                                            Common route has no reasonable alternatives.                                                                       10

                                            Level of traffic is estimated to be
                                              High                                                                                                             10
                                              Medium                                                                                                           5
                                              LOW                                                                                                              1
                                            Note This cnterlon Is subjective, Intended to provide marking for heavily utilized areas
                                            Assessment should be made based on qualitative comparisons of the numbers of boats using
                                            other areas

                                            Damage wasts because the route Is narrow, circuitous, or otherwise difficult to *read                              10

                                            Route Is entirely In deep water (greater than 4 feet MLW)                                                          10

                                            Route does contain areas that are shallow (loss than 4 feet MLW).                                                  5

                                            Route Is entirely In waters of less than 4 feet MLW,                                                               -5
                                            The Channel/Reef Marking can be Knifted to the Identified damaged area (a g creates a better route                 10
                                            at specific area of damage or hinders short cutting at that location)
                                            The mute already has legally permitted markers along the majority of its length If "Yes,* then,
                                            Some existing markers are poorly placed, OR                                                                        10

                                            Additional markers are needed to clarify the best mute                                                             10

                                            There are other damaged areas priontized for marking along the same route                                          10

                                            sum

                                            The sum serves to rank each damaged area for completion of marking Darnaged areas receiving
                                            the highest values would be marked first



                   52







                                                                                                                       Action Plans: ChannellReef Marking
                       Implementation                                                            Responsible Institutions. The Monroe County DMR
                                                                                                 will have the primary responsibility for implementing
                                                                                                 the activities within this action plan. However, the
                     This section explains how the strategies in the                             success of the Channel/Reef Marking Program will
                     channel/reef marking Action Plan will be imple-                             depend on the cooperation of other Federal, State,
                     mented. The institutions responsible for each activity,                     and local agencies, primarily the FMRI and FDEP,
                     and those agencies that will provide some level of                          USCG, and NOAA. The channel/reef marking
                     assistance, are identified. The strategies are also                         Working Group will also play an important role in
                     ranked to indicate their overall priority level. In                         strategy implementation. Table 6 lists the institutions
                     addition, the planned level of activity in year 1,                          responsible for implementing each activity.
                     months required to complete, funding availability,
                     cost estimates, staff requirements, and the geo-                            Prioritization of Implementation. The channel/reef
                     graphic focus of each strategy/activity are provided.                       marking strategy is a high priority level, and is ,
                     Finally, the process used to evaluate the effective-                        considered one of the sixteen most important strate-
                     ness of the Channel/Reef Marking Program as it                              gies in the Management Plan. Since the Boat Access
                     evolves over time is provided.                                              strategy is essentially complete, it has not been
                                                                                                 assigned a priority level.


                     Table 6. AgencieslOrganizations Identified for Implementing StrategieslActivities

                                                                                                         jAgencies/organizational


                                                                                                            8@ COD       - -C
                                                                                                            -1 r         Ir 0        _Cj
                                                      Strategy/Activity                                            60,      42      i@

                                                      CHANNEL MARKING PROGRAM
                                                      B.1 B6ii'A66646 Survey
                                                      Acquire Existing Information                                     0
                                                      Develop and Carry Out Boat Access Survey
                                                      Input Survey Data into a GIS                                     0
                                                      Make Survey Results Available to Resource                        0
                                                      Managers
                                                      Update Survey Results
                                                      8.4 Channel Marking
                                                      Survey Current Boat Travel Patterns                              (D      0
                                                      Survey Boater Use                                                0            0
                                                      Survey Damage from Prop Dredging                                 0
                                                      Inventory and Georeference Channel
                                                      Markers                                           0      0       (D      0

                                                      Survey Subdivisions for Shallow-Water
                                                      Access                                                           0    a  0

                                                      Assess Channel Marking Effectiveness                         0   G       0
                                                      Integrate Data                                    G              0       0
                                                      Organize Channel Marking Program@                 0              G       0
                                                      Implement Channel Marking Program

                                                      Develop Channel Marker Maintenance
                                                      Program                                                                  1*   0 1
                                                         Lead            Primary Role       0 Assist
                                                      Abbreviations: NOAA, National Oceanic and Atmospheric Administration; USACE,
                                                      US  A-Y Corps   of Engineers; USCG, U.S. Coast Guard; FDEP, Florida Department
                                                      @iEnvironm.ntai Protection; ERP, Environmental Resource Permitting; FMRI, Florida
                                                      Marine Research Institute; FDCA, Florida Department of Community Affairs; DMR,
                                                      Monroe Countv DeDarlment of Marine Resources; TNC. The Nature Conservancv.



                                                                                                                                                                    53






               Action Plans: ChannellReef Marking

               Table 7. Requirements for Implementation

                                                                                                 Implementation             /Costtocomplete
                                                                                                                                              &
                                                                                                                                             4C
                                                                                                    -0
                                                                                         p
                                                                                                              jZ .0
                          Strategy/Activity

                          CHANNEL MARKING PROGRAM

                                                                                                 AC         75-99%
                                                                        AO          -A=,                               <10       1@6           2,
                          ART",           S-11
                          Acquire Exisfing Informabon                               AC           AC         75-99%     <10       NC     SW
                          Develop and Carry Out Boat Access                         AC           AC         75-99%     <10       NC     SW
                          Survey
                          Input Survey Data into a GIS                              AC           AC         75-99%     <10       NC     SW
                          Make Survey Results Available to                          AC           AC         75-99%     <10       NC     SW
                          Resource Managers
                          Update Survey Results                                     High         C          75-99%     <10       NC     SW
                          Si 14 C6hj #AiWfViiirk1n0+                  High          High        @60+        iï¿½-        >5'06@ï¿½60-666        '@"'jo
                                                                      . . . . .. . . .... ....... . .... .... .. .. .... ...
                          Survey Current Boat Travel Patterns                       AC           AC         75-99%     <10       NC     SW
                          Survey Boater Use                                         AC           AC         75-99%     10-99     NC     SW
                          Survey Damage from Prop Dredging                          AC           AC         75-99%     10-99     NC     SW
                          Inventory and Georeference Channel
                          Markers                                                   AC           AC         75-99%     10-99     NC     SW

                          Survey Subdivisions for Shallow- Water
                          Access                                                    AC           AC         75-99%     <10       NC     SW
                          Assess Channel Marking Effectiveness                      High         C          75-99%     10-99   10-99    SW
                          Integrate Data                                            AC           AC         75-99%     <10       NC     SW
                          Organize Channel Marking Program                          High         12         75-99%     <10       NC     SW
                          Implement Channel Marking Program                         High         C          <50%       1,000- 250-500   SW
                                                                                                                       5,000
                          Develop Channel Marker Maintenance
                          Program                                                   High         C          75-99%     <10       NC     Sw

                        Abbreviations: Maint., Maintenance; AC, Already Completed; C, Continuous; SW, Sanctuary Wide.
                        +All of the activities, except for Implementinq channel markinq, are currentIV underwav. Some maV be completed prior to Vear 1.


              Schedule. Table 7 lists the estimated time required                         Geographic Focus. Both strategies will be imple-
              to implement each strategy and activity in'the Chan-                        mented Sanctuary-wide.
              nel/Reef Marking Program. Most activities in the
              channel/reef marking strategy are expected to be                            Personnel. About 10 staff members from the Monroe
              completed in year 1. However, the implementation of                         County DMR and the institutions identified in Table 6
              this strategy (i.e., installing and maintaining channel                     will be required to implement the channel/reef
              markers), will be a continuous process. All activities                      marking strategy. Two staff members from the
              (excluding updating survey results) in the Boat                             Monroe County DMR have been involved in imple-
              Access strategy will be completed before year 1.                            menting the Boat Access strategy and will continue to
              Updating boat survey results will be a continuous                           be involved in developing the plan, submitting permit
              component of the Boat Access strategy.                                      applications, and developing installation and mainte-
                                                                                          nance contracts.
              Cost. The costs associated with implementing the
              Channel/Reef Marking Program are expected to be                             Contingency Planning for a Changing Budget.
              significant (up to $1 million in total capital costs and                    About $125,000 per year is available from Monroe
              an additional $250,000 for annual operations and                            County Boating Improvement Funds, some aids to
              maintenance costs). The bulk of these costs are                             navigation will be owned and maintained by the
              associated with placing and maintaining channel                             USCG. Although the current level of funding will allow
                                                                                            17




































              markers throughout the Sanctuary. The estimated                             the Program to function, fully implementing the
              cost of each activity is provided in Table 7.

              54







                                                                                      Action Plans: ChannellReef Marking

               Channel/Reef Marking Program will require additional
               funds. As noted previously, sufficient funds would
               become available immediately if the County were
               willing to adopt an ordinance to levy additional funds
               through the state vessel registration fee require-
               ments; The program will be completed; additional
               funding simply shortens the time frame.

               Evaluating Program Effectiveness and Efficiency.
               The effectiveness of the Channel/Reef Marking
               Program will be evaluated based on how many
               proposed markers are installed each year. The
               program's effectiveness will also be determined
               based on the success of the process to update the
               survey information developed through the Program.












































                                                                                                                      55








                                      Education and Outreach Action Plan

                This action plan identifies and describes educa-              programs, public-involvement forums, and special
                tion and outreach strategies that will be imple-              events). Strategies that result in the development of
                mented in the Florida Keys National Marine                    specific products (i.e., printed materials, audio-visual
                Sanctuary. The strategies in the plan are derived             materials, signs and displays in high-use areas of the
                from the Preferred Alternative, the most balanced             Keys, public service announcements, visitor booths/
                of the management alternatives. For each strat-               displays, etc.) providing a mechanism for public
                egy, the time required for implementation, fund-              education and outreach are included in the second
                ing availability, costs, and responsible parties are          group. The education and outreach strategies
                outlined. All of the 10 strategies will be imple-             included in this plan were developed based on input
                mented in the first year of Sanctuary operation.              from environmental educators, the Sanctuary educa-
                These strategies are expected to have a signifi-              tion staff, user groups, environmental activists, and
                cant effect on managing, protecting, and preserv-             concerned citizens through two workshops (May
                ing both natural and cultural Sanctuary re-                   1988 and September 1991) held in the Keys and
                sources. Table 8 summarizes key information                   through public comment received on the draft man-
                about the strategies included in this plan.                   agement plan. Guidance on levels of activities and
                                                                              priorities was provided by the Sanctuary Advisory
                                                                              Council and the FKNMS Core Working Group.
                  Introduction                                                Education and outreach have been used as a tool in
                One of the primary mandates of the Florida Keys               resource protection from the beginning of the Sanctu-
                National Marine Sanctuary and Protection Act                  ary Program in the Keys. The Looe Key and Key
                (FKNMSPA) is to educate the public about the                  Largo national marine sanctuaries have used educa-
                marine environment surrounding the Keys. The                  tion as an effective management tool since their
                diverse habitats, resources, and unique setting of the        designation. A number of educational programs are
                Keys offer opportunities for the interpretation of            currently underway at the two sanctuaries, and will
                marine subtropical and temperate environments.                continue to be implemented in the FKNMS (see inset
                Educational and outreach strategies in the action             box Existing Programs). Examples of these programs
                plan fall into two general categories: community              include instruction to teachers and students about the
                involvement/community program strategies and                  Sanctuary environment (Coral Reef Classroom), on-
                product development strategies. The first group               site interpretive tours, subject-specific slide pro-
                includes education and outreach strategies designed           grams, interpretive law enforcement, interpretive
                as interactive programs for user groups (e.g., exhibit        exhibits at trade shows and festivals, weekly camp-
                production, training programs, workshops, school              fire programs, training seminars, and volunteer
                                                                              programs.


                    Table 8. Summary of Education and Outreach strategies

                                                               Overall    Planned                     Funding for           Number off
                                                              Sanctuary    Level          Months       Full                Activities to     number        
                                                               Priority   Action In       to         implement-                   be            of
                                                                Level      Vail          Complete,     tation                 Undertaken     Institutions
               Page       Strategies
                     62 Community Involvement/Community Program
                        E:4   Training, Workshops, and School     High   Mmedium         12+           50%                        7                19
                              Programs
                                                                  High       High         6+        100%                        1                  12
                     64   E:6    Advisory Board
                    65    E.10 Public Forum                       Medium      Low          12+       50%                       14
                    66   E.11                                                 Low          9+        50%                        20
                              Special Events                     Medium
                              Professional Development.-_              . ....
                    68  Product Development
                                                                       
                    68  E.1 Printed Materials                    high            low        c          50%             13                 18
                    71 E.2  Audio-Visual Materials              Medium,     Low             3+        50%               2                  11
                    74 E.3   SIgngs /Displays/Exhibits             Medium      "LOW-        36+       50%              6                   17
                     74 E.5 PAs                               Medium             low         50+       50%             5                   13                                         
                              
                     75 E.7 Promotional/Educatinal Materials     Medium        low          48          50%             2                   8
                                                                                          48
                         Abbreviations:c Continues.



                                                                                                                                     57
 






             Action Plans: Education and Outreach

             How the Plan is Organized. This action plan i's              strategies are included in medium priority level, and
             organized in three sections: an introduction, descrip-       each will have some level of implementation in the
             tion of strategies, and discussion of implementation         first year of Sanctuary operation. Table 8 summa-
             procedures. The introduction summarizes the goals            rizes the education and outreach strategies and
             and objectives of the Education and Outreach                 activities within this plan, including Sanctuary priority
             Program and provides background information on               level, planned level of action in year 1, months to
             planning efforts. The strategy description section           complete, and funding available for full implementa-
             groups strategies according to whether they contain          tion.
             community-involvement or product-development
             activities. The implementation section details how           Relationship to Other Action Plans. In general, all
             strategies in the plan will be placed into action. For       management activities are dependent on successful
             each strategy and component activity, the priority           interpretation and education and outreach. In fact,
             level, funding availability, costs, and timing of imple-     one can envision an educational and outreach
             mentation are summarized.                                    component to all management strategies. The
                                                                          management plan conceptualizes the educational
                                                                          and outreach approach as a primary tool of resource
                                                                          management to help preserve natural marine habi-
             -0-Ackgro6nd'
                                                                          tats and submerged cultural resources, with enforce-
             Management Strategies. Each strategy has been                ment activities as an additional tool for these pur-
             assigned an estimated activity level for year 1 (high,       poses. All of the strategies listed in this plan, exclud-
             medium, low, or none). This activity level is an             ing the establishment of an education advisory board,
             estimate of the planned level of action that will occur      are also included in the Volunteer Action Plan. The
             in the first year after the Sanctuary Management Plan        success of Sanctuary educational and outreach
             is adopted. In addition, the time required, costs of         strategies is dependent upon the volunteer assis-
             implementation, and funding availability (Federal,           tance. The Training, Workshops, and School Pro-
             State, local, and private) have been estimated for all       grams strategy is also included in the Water Quality
             strategies. The component activities within each             Action Plan.
             strategy, and the institutions responsible for imple-
             mentation, have also been identified.
                                                                          i@@Ooats and Obloc
                                                                                                  ffive's
             The strategies for the Management Plan, which
             includes the Education and Outreach Action Plan and          National Program Goals. Marine Sanctuaries are
             all other action plans combined, have been grouped           established throughout the country in recognition of a
             into three priority levels, based on their relative          site's unique environmental and/or historical and
             importance or feasibility. A strategy's priority level is    cultural characteristics. This plan's reference to the
             based on factors such as available funding, costs,           environment is intended to include natural as well as
             personnel requirements, timing, levels of existing           historical-cultural resources. Each Sanctuary stands
             implementation, and existing legislative/regulatory          apart as a national treasure, and education, out-
             authority. The high priority level includes the 16 most      reach, and interpretation activities regarding the
             important strategies. The medium priority level              natural resources of these areas is often site-specific.
             contains 36 strategies that represent the next level of      However, there are National Marine Sanctuary
             importance to the sanctuary and will have some level         Program goals that apply to each Sanctuary that help.
             of activity in year one. Low priority items contain the      define the framework for developing site-specific
             remaining strategies in the Management Plan.                 education and outreach activities. The education
             Those strategies planned for completion in or before         goals of the National Program include:
             year one do not have a priority level.                             providing educational leadership in mari    .ne
             Education and Outreach Strategies. This action                     conservation and protection efforts throughout
             plan includes the 10 strategies in the Preferred                   the nation's national marine sanctuaries and
             Alternative that have an education or outreach                     national estuarine research reserves;
             component. Although the plan includes many strate-
             gies important to Sanctuary protection, the strategies             adopting a Sanctuary Program/system-wide
             concerning printed materials, training programs, and               unity and identity to promote greater national
             an advisory board are a high priority with regards to              awareness, while encouraging site-specific
             implementation. However, seven of the remaining                    individuality;


             58








                                                                                                        ActionPlans Education and Outreach


                   Existing Programs
                   Education and outreach has been a primary source of               ing Sanctuary brochures and providing information This
                   resource protection in the Flonda Keys since the first            approach enhances on-site identity, lends a friendly
                   sanctuary was established in 1975 There are a number              cooperative spirit, increases compliance with Sanctuary
                   of educational and outreach efforts underway at the Key           regulations, and prevents violations or negative impacts
                   Largo and Looe Key national manne sanctuaries that will
                   continue within the framework of the FKNMS. Some of               Intetpretive Exhibits Sanctuary exhibits are often
                   the more effective educational and outreach programs in           provided at national trade shows/ conferences and local
                   the Keys are-                                                     community events (i.e., seafood festivals, regional boat
                                                                                     shows, and dive shows). These exhibits are usually
                   Coral Reef Classroom. This training program uses both             staffed by Sanctuary personnel.
                   the Key Largo and Looe Key national marine sanctuaries
                   as in situ classrooms where students and teachers are             Frequent Users Meetings These periodic meetings
                   taught about coral reef ecology, Sanctuary management,            update commercial and recreational users of the Key
                   and coral reef monitoring. Monroe County science/                 Largo and Looe Key national marine sanctuaries about
                   biology students have been provided on-site tours to              current management issues, educational products and
                   observe the complexities of the coral reef ecosystem that         programs, research results, and law enforcement
                   cannot be gained In the traditional classroom                     concerns
                   On-Site Interpretive Tours Tours within the waters of the         Weekty Campfire Programs Sanctuary officers provide
                   existing sanctuaries have provided unique and meaning-            weekly slide programs at the Bahia Honda State Park
                   ful educational experiences for participants These                during the winter tourist season (November through
                   snorkeling trips are usually preceded by a slide program          April)
                   or lecture. Topics of discussion include Sanctuary
                   management, coral reef ecology, research, and natural             Training Seminars. Sanctuary staff provide seminars on
                   and human-induced impacts                                         damage assessment techniques, mooring buoy installa-
                                                                                     tion, and reef cleanup on a request basis
                   Subject-Specific Slide Programs Slide and/or video
                   programs are provided upon request to schools, col-               International Training Program. This program is adminis-
                   leges, special-interest groups, government officials,             tered by the National Marine Sanctuary Program and is
                   clubs, etc.                                                       established for managers and staff of marine protected
                                                                                     areas around the world The training includes instruction
                   Interpretive Law Enforcement In addition to enforcing             and discussion of management strategies, law enforce-
                   Sanctuary regulations, Sanctuary law enforcement                  ment, education, research, and facilities maintenance.
                   officers contact visitors on the water every day, distribut-



                     ï¿½   linking the sanctuaries and reserves programs               The first set of these are those with desired out-
                        to each other through national environmental                 comes for Sanctuary staff and education provider
                        education programs, and                                      groups These address staff training and staff devel-
                      ï¿½ establishing a standard of excellence that is                opment
                        attained through the education programs of all               The second broad category of goals and objectives
                        sites.                                                       adresses learner outcomes, and includes awareness,
                 Sanctuary Education and Outreach Program                            cognitive knowledge, skill development and participa-
                 Goals Recognizing the importance of program                         tion in stewardship These outcomes are very much
                 consistency and the need to attain the standards that               linked to the first set of outcomes
                 will link the programs of the sanctuaries and re-                   A final set of outcomes, categorized as Sanctuary
                 serves, goals and objectives have been developed                    outcomes, refers to issues of Sanctuary awareness,
                 specifically for the FKNMS These goals are de-                      management and enforcement According to these
                 signed to respond to the specific environmental                     broad characterizations, the Sanctuary Education
                 education needs of the Keys' community and Sanctu-                  and Outreach Program goals are as follows
                 ary visitors/users
                 There are three broad (and sometimes overlapping)                   Staff and Education Provider Goals
                 characterizations of Sanctuary education and out-                         facilitating environmental education opportuni-
                 reach program goals and objectives to be consid-                          ties for all segments of society, and
                 ered


                                                                                                                                                   59







             Action Plans: Education and Outreach

                    promoting and supporting education and                    9support, develop, and establish cooperative
                    training opportunities for Sanctuary staff and             agreements to promote innovative educational
                    entities providing education programs within               projects regarding the Sanctuary and/or the
                    the Sanctuary.                                             Keys' marine ecosystem;

             Learner Outcome Goals:                                           eprovide and support multi-disciplinary environ-
                                                                               mental education experiences;
                  ï¿½ promoting a holistic view of the Keys'ecosys-
                    tem as an interrelated and interdependent                 *provide and support training opportunities for
                    system of habitats;                                        resource users;

                  * encouraging and promoting a sense of user                 *utilize the existing network of educators and
                    stewardship regarding the marine environment               environmental education organizations and
                    by imparting strategies and skills which will              institutions already in place;
                    help reduce the occurrence and effects of
                    future resource impacts;                                  9provide orientation and continuing education
                                                                               for FKNMS education staff, officers and others
                  ï¿½ promoting and fostering a clear awareness of               on ways to teach target groups about the
                    the economic, biological, recreational, educa-             resources in the Sanctuary, both at a cognitive
                    tional, and cultural values of the Keys'ecosys-            and a skill-based level;
                    tem, as well as the interdependence of these
                    factors upon one another;                                 -cross reference regulatory and interpretive
                                                                               enforcement in the Education/Outreach Action
                  ï¿½ fostering increased recognition and under-                 Plan;
                    standing of:
                                                                              9provide educational opportunities for the
                     1. social and political issues associated                 educational community, including organizations
                        with these resource impacts and;                       and agencies delivering environmental, natural
                     2. associated management strategies                       historical, cultural, and socio-economic educa-
                        intended to reduce or eliminate such                   tion information, so that they may have access
                        impacts.                                               to consistent, accurate scientific information;

                  ï¿½ fostering knowledge and understanding of the               provide mechanisms so that new ideas and
                    historical relationships between humans and                policies can be introduced and incorporated
                    these ecological systems, with attention to                into the ongoing Education and Outreach
                    resource impacts, and the limitations of current           Action Plan; and
                    scientific knowledge.
                                                                               provide permitting mechanisms so that pre-
             Sanctuary Outcome Goals:                                          existing education organizations and new
                                                                               entries may carry out their activities within the
                    promoting the awareness of, and support for,               Sanctuary with minimal processing.
                    the Florida Keys National Marine Sanctuary
                    Program through community partners in               Learner Outcome Objectives
                    education, outreach, awareness, enforcement,
                    and management.                                           e provide the public with information gained
                                                                               through research in a timely fashion;
             Sanctuary Education and Outreach Program
             Objectives                                                       *provide educational information at technical
                                                                               and scientific meetings;
             Because of the Sanctuary's large size and range of
             management issues, there are many Sanctuary                      *provide education for visitors to the Sanctuary;
             Program objectives that encompass a wide variety of
             themes. To achieve the goals defined above, the                  *provide a cognitive understanding of broad
             following objectives should be met:                               ecosystem interactions as well as a skill-based
                                                                               understanding;


             60







                                                                                              Action Plans: Education andOutreach

                       facilitate specific education for Monroe County
                       youth that emphasizes the interconnectedness
                       of the Keys ecosystem through traveling
                       sequential field trip programs;

                       provide education for audiences outside of the
                       Florida Keys (state, national, and international);
                       and

                       provide on-site opportunities for resource
                       education.


                Sanctuary Outcome Objectives

                     ï¿½ increase NOAA and other organizations'
                       awareness of educational programming
                       activities in the Keys by non-agency organiza-
                       tions;

                     ï¿½ increase public awareness of current Sanctu-
                       ary activities;

                     ï¿½ encourage community cooperation and partici-
                       pation in Sanctuary management;

                     ï¿½ increase the understanding of, and voluntary
                       compliance with, sanctuary resource manage-
                       ment efforts (channel marking, mooring buoys)
                       and regulatory requirements (e.g., zoning
                       regulations);

                     ï¿½ provide the public with information gained
                       through research;

                     ï¿½ increase public awareness of cumulative
                       environmental impacts in the Keys;

                     ï¿½ provide opportunities for individuals to become
                       "caretakers" of the environment;

                     ï¿½ provide information at "high-profile" locations;

                     ï¿½ provide informative environmental education
                       and outreach programs to school systems;

                     ï¿½ provide exposure to environmental education,
                       introducing an ecosystem approach over time;

                     ï¿½ provide multilingual environmental education
                       materials and programs; and

                     ï¿½ provide environmental education opportunities
                       for adults.






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Action Plans: Educatin and outreach

Description of strategies
Community-Involvement/Community-
Program Strategies

Education and outreach strategies designed to
include opportunities for interaction can be defined as
community-involvement/community-program strate-
gies. Examples of activities within these strategies
include educational exhibit production, training
programs, workshops, school programs, public-
involvement forums, and special events. New strate-
gies and/or activities may be added as the program
evolves. When possible, all strategies within this
category will have a multillingual component, as a
concerted effort will be made to communicate
environmental education to the non-English-speaking
population of South Florida.

		Strategy E.4:
	Training/workshops/School
		Programs

This strategy will help develop instruction and training
opportunities, including programs conducted by
teachers, Sanctuary staff, other non-formal educa-
tors, and volunteers. Training programs (e.g., Coral
Reef classroom, submerged cultural resources, etc.)
will also be provided for teachers, environmental
professionals, business owners and operators, and 
law enforcement officials. These programs will be
designed to keep these audiences up-to-date with
consistent and accurate scientific information. Key
elements of these training opportunities will include:
1) emphasis on an ecosystem approach; and 2)
fostering a cognitive knowledge, as well as a skill-
based knowledge, of the key's ecosystem.
(Priority level High, Medium level of Activity in Year
1, 12+ Months to complete, <50% Funding Available
for Full implementation)

Community -Involvement/Community -program
strategies
E.4: Training/workshops school programs
Promote/support environmental education 
in Monroe County and state schools
 Produce the Florida Keys Environmental
Education Resource Directory
 Provide/support environmental education
workshops for educators
 Provide environmental education for law
enforcement personnel
 Sponsor and support adult environmental 
education
 Establish a certification program
 Deliver education at the resource (Team
O.C.E.A.N.)

E.6: Advisory Board
 Establish an education advisory baord

E.10: Public Forum
 Establish public meeting program
 Develop a speekers bureau and lecture series
 Conduct a poster contest
 conduct a photo contest

E.11: Special Events
 Develop and maintain trade show information
booths
 Hold an environmental exposition
 Hold a Sanctuary grand opening
 Design and implement a Kids week
 Design and implement a Sanctuary Awareness 
week
E.12: Proffeson developmetn of Education 
and outreach staff

Activity 1- Promote and support Environmental
Education in Monroe County and State Schools.
The Educatin program supported the additional
development of a Monroe County Environmental
Education Plan. The plan provides sequential expo-
surer to environmental issues over the course of a
student's development (from grades k-12). Sanctu-
ary education staff and -or other professional environ-
mental educators will develop grade-appropriate
environmental education materials, privde and
support natural and cultural resources field trips, and
provide educators (private and public) with informa-
tion regarding Sanctuary resources. Educatin Staff
will train volunteers and professional educators to
provide presentations and support and conduct field
trips. A strong component of this activity will be to
include field trips to sites throughout the Keys to
emphasize the connectedness of the local ecosys-
tems. While engaging in the activity, Sanctuary staff
will take advantage of the network of educators and
institutions already in place, including the Monroe
County School District. Expand the Coral Reef
classroom to eduacate about more habitats such as
nearshore and bay areas. Education programs
should focus on the cognitive development of the
students as well as skill-based knowledge. The
FKNMS will have the authority and option to issue
RFP's for educational services to be awarded on a 
competitive basis.







                                                                                                Action Plans: Education and Outreach

                 mExisting Program Implementation. The Sanctuary              mExisting Program Implementation. The directory is
                 Program currently provides an intensive marine               currently available within the Sanctuary.
                 education program for students in grades 7-9 at the
                 Key Largo and Looe Key national marine sanctuar-             mImplementation. Sanctuary education staff will be
                 ies. This two-day Coral Reef Classroom involves              responsible for producing the directory, and providing
                 both lectures and on-water scientific instruction. It        copies on request.
                 currently takes place over a five-week period during
                 the Spring. Sanctuary education staff conduct all            oSchedule. This activity will have a low level of action
                 aspects of the course, and are working closely with          in year 1. It will require 8 months to complete.
                 the Monroe County school system to develop a
                 comprehensive environmental education program for            Activity 3-Provide and(or Support Environmental
                 grades K-1 2. The Sanctuary Program also currently           Education Workshops for Educators. This activity
                 provides field trip opportunities for school groups and      will enhance the knowledge base of local educators
                 other independent environmental education organiza-          through environmental education workshops regard-
                 tions on request.                                            ing the Keys' natural and cultural resources, and will
                                                                              insure that the education community within the Keys
                 mImplementation. The Coral Reef Classroom program            is communicating consistent, accurate scientific
                 will be expanded to the Key West area, and classes           information. Co-sponsorship of educational work-
                 will be offered over the course of the year. A part-         shops (with financial assistance) will be investigated.
                 time staff person will be responsible for organizing
                 the course, and grant funds will be sought to support        nExisting Program Implementation. Sanctuary
                 this effort. This program will be expanded to include        education staff currently provide logistical support
                 more habitat such as the nearshore and bay areas.            and instruction for teacher in-service and environ-
                 After a county school system education program is            mental education workshops sponsored by the
                 developed, the education staff will work with the            Monroe County school system and other local
                 county science coordinator to schedule field trips, or       environmental education programs.
                 will provide information on other environmental
                 programs that may provide educational support.               mImplementation. Using the FKEERD, Sanctuary
                 Environmental educators within the school system             education staff will identify programs that provide
                 and in private organizations will receive Sanctuary          training for environmental educators. Staff members
                 information on a regular basis. This information may         will contact these programs to discuss how the
                 be related to current resource issues and Sanctuary          Sanctuary Program can help. The staff will also
                 programs. Workshops will be investigated as a                determine whether training opportunities are lacking,
                 possible avenue for information dissemination, and           and will coordinate with other groups to organize
                 educators will receive in-service credit for attending.      future workshops if necessary. Staff will incorporate
                 There is a need to work more closely with elementary         the assistance of the local community of environmen-
                 teachers on the development of thematic units for            tal educators already in place.
                 each grade (i.e. develop an articulated scope and
                 sequence). It is recommended that the education              oSchedule. This activity will have a high level of
                 staff seek to actively involve teachers, or teams of         action in year 1. It will be continuous.
                 teachers, in such developmental efforts.
                                                                              Activity 4-Provide Environmental Education for
                 mSchedule. This activity will have a high level of           Law Enforcement Personnel. Provide basic envi-
                 action in year 1. It will be continuous.                     ronmental education to law enforcement personnel
                                                                              regarding resource identification, and ecosystem
                 Activity 2-Produce the Florida Keys Environmen-              significance. Because many law enforcement person-
                 tal Education Resource Directory (FKEERD). A                 nel operating in the Sanctuary will be cross-depu-
                 directory of environmental (natural and historical-          tized, training on the Sanctuary's natural and cultural
                 cultural resource) education activities in the Keys,         resources will be essential. Officers must understand
                 including a description and listing of the groups            environmental consequences that can occur as a
                 involved, will be produced and distributed to inter-         result of violations. This approach should emphasize
                 ested parties. Information will be derived from the          both cognitive and skill-based educational program-
                 results of a 1991 survey of environmental educators          ming for these officers. It should also provide these
                 and two workshops held with environmental educa-             officers with educational skills so that they act in the
                 tors. The directory will be updated every three years,       role of educators as well as enforcement agents.
                 ensuring that existing activities are not duplicated.


                                                                                                                                        63







              Action Plans: Education and Outreach

              mExisting Program Implementation. Federal/State and            will be established that, when fulfilled, will qualify
              Sanctuary education and management staff currently             businesses to be "certified" as environmentally
              assist the Florida Marine Patrol (FMP) and National            conscious operators. The businesses and their
              Marine Fisheries Service (NMFS) law enforcement                patrons will be provided with educational information
              personnel when necessary. The Federal Law                      regarding Sanctuary resources and regulations. A
              Enforcement Training Center provides training as               training program may be a component of this activity.
              does the State.                                                Participation in any certification programs will be
                                                                             voluntary.
              mimplementation. Sanctuary education staff will work
              with the FMP, NMFS and other Federal and State                 simplementation. Sanctuary education staff will
              entities to develop training courses for law enforce-          contact the Florida Association of Dive Operators, the
              ment personnel.                                                Keys Association of Dive Operators, Professional
                                                                             Association of Dive Instructors, National Association
              mSchedule. This activity will have a medium level of           of Underwater Instructors, the Young Men's Christian
              action in year 1. It will require 12+ months to com-           Association, chambers of commerce, and Tourist
              plete.                                                         Development Council to determine the level of
                                                                             interest in this program and potential funding
              Activity 5-Sponsor and Support Adult Environ-                  sources. The education staff, in coordination with
              mental Education. This activity will sponsor and               staff from interested organizations, will develop the
              support environmental education opportunities for              certification requirements and training materials.
              local adults interested in learning more about the
              Keys' natural and cultural resources. Organizations            mSchedule. This activity will have no action in year 1.
              offering adult education (e.g., Florida Keys Commu-            It will require 12 months to complete.
              nity College, the Power Squadron, and the U.S.
              Coast Guard Auxiliary) will be identified. Education           Activity 7- Provide mechanisms outside of the
              staff will assist programs offering environmental              law enforcement sector that can help deliver
              (natural and cultural) education courses by conduct-           resource education at the site of the resource.
              ing guest lectures, organizing field trips, and distribut-     An example may include volunteer and/or paid
              ing educational brochures. When environmental                  personnel located at popular Sanctuary sites where
              education is not part of an organization's program,            the public is likely to access the resource (i.e. Team
              staff will confer with instructors to determine if such        O.C.E.A.N.).
              information may be included and what form it may
              take.                                                          mimplementation. Sanctuary education staff is
                                                                             working with volunteers to accomplish this, and using
              mExisting Program Implementation. Sanctuary staff              Federal and State funds to support this work.
              often conduct guest lectures and offer field trip
              opportunities for the Florida Keys Community Col-              mSchedule. This activity will have a high level of
              lege, Florida Institute of Oceanography (FIO), and             action in year 1. It will be continuous.
              other organizations on request. There are also
              historical and cultural resource education programs            This strategy is also included in the Volunteer and
              in south Florida which provide opportunities for               Water Quality action plans.
              cooperation.

              mimplementation. Sanctuary education staff will                                     Strategy E.6:
              identify and contact adult education organizations to                     Education Advisory Board
              determine how-the Sanctuary may support their
              efforts and/or establish an environmental education
              focus.                                                         Establish an Education Advisory Board to advise
                                                                             educators on education goals, priorities, and funding
              oSchedule. This activity will have a medium.level of           sources for the Sanctuary. A full-time staff person will
              action in year 1. It will be continuous.                       eventually be provided to devote 100 percent of his/
                                                                             her time to Advisory Board matters. The Advisory
              Activity 6-Establish a Certification Program.                  Board will provide a mechanism to introduce new
              Environmentally responsible business practices will            ideas into the overall sanctuary Education and
              be encouraged through this voluntary activity. Criteria        Outreach Action Plan.


              64







                                                                                                 Action Plans: Education andOutreach

                 The Advisory Board will examine and provide recom-                  sport fishermen programs on catch-and-
                 mendations on matters important to implementing                     release);
                 goals, objectives and strategies. The Education                     Commercial interests whose livelihoods are
                 Advisory Board should also work to coordinate grant                 tied to non-consumptive and consumptive uses
                 funding approaches made by the constituents in                      of resources within the Sanctuary; and federal
                 order to avoid duplication of effort, secure mutual                 and state agencies which currently operate
                 support for projects and avoid competing for scarce                 some form of information and education
                 financial resources. (Priority Level High, Year 1                   program within the FKNMS boundaries.
                 Activity, 6+ Months to Complete, 100% Funding
                 Available for Full Implementation)                           In addition, there are other groups with interests
                                                                              which are not located in the Keys per se, yet who are
                 Activity 1- Create an Education Advisory Board.              willing and able to provide support to the Education
                 The Board will be composed of members that                   Plan and programs of the FKNMS. These include:
                 represent diverse sectors and interests. This Board
                 will be a working group of the Florida Keys National                  Agencies with jurisdictional interests in or
                 Marine Sanctuary Advisory Council. A majority of                      directly related to the FKNMS;
                 these members will be from the Florida Keys. Group                    Conservation and environmental organiza-
                 activities will include but not be limited to 1) provid-              tions with interests in informational, interpre-
                 ing information on current activities in the education                tive or educational programs;
                 community; 2) encouraging cooperative efforts; 3)                     State education and teacher organizations
                 providing direction for the Sanctuary Education                       (e.g.,FAST, FMSEA, LEEF); and
                 Program; 4) preventing the duplication of efforts; 5)                 Educational organizations who hold meetings
                 promoting stewardship; and 6) guiding development                     and conferences in the Keys on a periodic or
                 of natural and cultural resource education products.                  regular basis.
                 mImplementation. Sanctuary education staff will use          oSchedule. This activity will have high priority in year
                 the FKEERD and other relevant sources to identify            1. It will require 6+ months to complete.
                 environmental education organizations, and will
                 select organizations based on regional or geographi-
                 cal representation (Upper, Middle and Lower Keys)                                Strategy E.10:
                 and/or sector-based representation on the advisory                               Public Forum
                 board. Periodic meetings will be organized by the
                 education staff. There will be an annual meeting of          Establish a program to ensure public involvement
                 educational facility representatives.                        throughout South Florida in Sanctuary activities by
                 The majority of members will be from the Florida             holding public meetings and promoting Sanctuary
                 Keys, and will represent diverse sectors and inter-          awareness to extracurricular groups. A program will
                 ests. These might include:                                   be established to provide Sanctuary sponsorship of
                                                                              contests/awards. (Priority Level Medium, Low Level
                      ï¿½The Monroe County Environmental Education              of Action in Year 1, 12+ Months to Complete, <50%
                       Advisory Council;                                      Funding Available for Full Implementation)
                      ï¿½K-12 schools;                                          Activity 1-Establish a Public Meeting Program. A
                      ï¿½the Monroe County School District, and the             series of public meetings will be held throughout
                       District EE Advisory Council;                          Monroe County to provide information to encourage
                      ï¿½Florida Keys Community College and local               user participation in Sanctuary management. Sanctu-
                       colleges;                                              ary staff and/or guest speakers will make presenta-
                      ï¿½Non-formal institutions which make extensive           tions, and dialogue between staff members and the
                       use of FKNMS resources and sites (e.g.,                public will be encouraged. The activity will: 1) en-
                       Newfound Harbor Marine Institute, Pigeon Key,          hance communication between Sanctuary staff and
                       Sea Base, Marine Resources Development                 the public; 2) provide an opportunity for periodic
                       Foundation);                                           public input; and 3) provide an opportunity to educate
                       Public information and education programs              the public about current management issues.
                       (e.g., public TV and radio stations);
                       Entities which provide information and educa-          wExisting Program Implementation. The Looe Key
                       tion programs (i.e. Reef Relief) for user groups       and Key Largo National Marine Sanctuaries have
                       (e.g., skin and scuba courses on reef ecology;

                                                                                                                                         65







             Action Plans: Education and Outreach

             traditionally held "frequent-user meetings" in the           County to establish the poster contest (e.g., deter-
             Upper and Lower Keys. These meetings are forums              mining the contest theme and educational message).
             that provide information on topics including Sanctu-
             ary regulations, research activities, and education          mSchedule. This activity will have no action in year 1.
             programs.                                                    It will require 3 months to complete.

             wImplementation. Sanctuary education and manage-             Activity 4-Conduct a Photo Contest. Underwater
             ment staff will have the primary responsibility for          and top-side photo and/or video contests will be
             implementing this activity. Meetings will be held twice      conducted to draw attention to the natural resources
             a year in the Upper, Middle, and Lower Keys, respec-         of the Keys' marine ecosystem. The objective is to
             tively. Both the public and commercial/recreational          focus public attention on the beauty and importance
             users will be invited to attend. Sanctuary staff will        of Sanctuary habitats.
             present information about management, education,
             research, and law enforcement practices. Guest               nExisting Program Implementation. The Looe Key
             speakers may also present information on timely              and Key Largo National Marine Sanctuaries have co-
             topics. Dialogue and feedback from the participants          sponsored photo contests in the past.
             will be encouraged.
                                                                          mimplementation. Sanctuary education staff will
             oSchedule. This activity will have a low level of action     identify a co-sponsor for this event. Photos and
             in year 1. It will require 2+ months to complete.            videos will be solicited in a variety of categories and
                                                                          prizes will be requested from local vendors. Winning
             Activity 2-Develop a Speakers'Bureau and                     entries will be circulated throughout Monroe County
             Lecture Series. A speakers' bureau and public                and may tour outside South Florida.
             lecture series will be established that will cover
             environmental themes such as species (e.g., native,          mSchedule. No action will occur in year 1. It will be
             rare, endangered, understanding life histories), Keys'       continuous.
             history, research results, environmental action,
             weather, South Florida, artificial reefs, and diving.
             The bureau will include local citizens who will give                            Strategy E.11:
             presentations by request. Both the bureau and                                  Special Events
             lecture series will enhance public understanding
             (especially for local and visiting adults) of Sanctuary-
             related topics. This activity will have an "outreach"        Organize, support, and/or participate in special
             component to provide services to audiences at the            events (e.g., trade shows, expositions, grand open-
             state, national and international location.                  ings, etc.) that allow for the exchange of Sanctuary
             nExisting Program Implementation. Sanctuary staff            information. The Sanctuary will co-sponsor a number
             currently give presentations by request.                     of conferences and workshops, with selected sole
                                                                          sponsorship of some. events. This would include a
                                                                          "Sanctuary Awareness Week"and a Sanctuary
             nImplementation. Sanctuary education staff members           "Grand Opening". The Sanctuary Program would
             will work with the volunteer coordinator and educa-          cosponsor other "awareness" events/weeks (e.g.,
             tion advisory board to compile a list of potential           National Fishing Week, etc.).
             lecture topics and speakers. Each series will run from       (Priority Level Medium, Low Level of Action in Year
             November to May.                                             1, 9+ Months to Complete, <50% Funding Available
             nschedule. This activity will have a low level of action     for Full Implementation)
             in year 1. It will require 7+ months to complete.            Activity 1-Develop and Maintain Trade Show
                                                                          Information Booths. Sanctuary staff will attend
             Activity 3-Conduct a Poster Contest. A theme-                trade shows, local festivals, and other events, and
             oriented poster contest will be conducted through            set up displays to provide the public with information
             Monroe County school system art classes. The                 about Sanctuary resources.
             contest will provide a creative method for educating
             local students about the Sanctuary.                          mExisting Program Implementation. Sanctuary staff,
                                                                          using portable displays (e.g., posters) from the Key
             nImplementation. Sanctuary education staff will              Largo and Looe Key National Marine Sanctuaries,
             coordinate with science and art teachers in Monroe


             66








                                                                                                Action Plans: Education and Outreach

                 currently distribute Sanctuary information at local          mimplementation. Sanctuary education staff, in
                 festivals and trade shows.                                   cooperation with the Volunteer Program staff and
                                                                              other cosponsors, will organize Kids' Week events.
                 nImplementation. Education staff will identify the           Activities may consist of lectures, classroom visits,
                 festivals and trade shows that provide the most-             field experiences, audio-visual presentations, and
                 effective and efficient use of Sanctuary resources.          television shows.
                 The events selected will be those that attract a large
                 audience. Materials developed in the signs/displays/         oSchedule. This activity will have no action in year 1.
                 exhibits strategy will be used. For future budgeting         It will require 6+ months to complete.
                 purposes, a list of staff assignments and shows will
                 be compiled.                                                 Activity 5-Design and Implement a Sanctuary
                                                                              Awareness Week. A week of activities designed to
                 mSchedule. This activity will have a high level of           draw attention to the existence of the Sanctuary and
                 action in year 1. It will be continuous.                     the achievements of the Sanctuary Program will be
                                                                              conducted. The events are designed to raise aware-
                 Activity 2-Organize an Environmental Exposition.             ness of the Sanctuary and generate a sense of
                 This forum will display environmentally sensitive            stewardship for the resources of the Florida Keys.
                 products and technologies (e.g., sewage treatments
                 options and alternative fishing gear) to educate the         mimplementation. Sanctuary management, education,
                 public regarding environmentally safe products and           outreach, enforcement, research and volunteer staff
                 services.                                                    will together generate the activities for this event.
                                                                              Other commercial and nonprofit organizations will
                 nImplementation. The Sanctuary Program, working              then be approached about participating and/or
                 closely with the education staff, will contract with a       sponsoring some activities to take place. The event
                 private vendor to organize the environmental exposi-         will be held during the busiest season, November
                 tion. Co-sponsors will be solicited, and the event will      through April, in order to reach the most people.
                 take place at a central location in the Keys, either
                 once or twice a year.                                        wSchedule. This activity will have no action in year 1.
                                                                              It will require 9 months to complete.
                 wSchedule. This activity will have a low level of action
                 in year 1. It will require 9 months to complete.             This strategy is also included in the Volunteer Action
                                                                              Plan.


                 Activity 3-Hold a Sanctuary Grand Opening. A
                 large-scale social event will be held to announce the
                 "grand opening" of the Sanctuary. This event may                                Strategy E. 12
                 coincide with the first annual Environmental Exposi-                    Professional Development
                 tion.                                                               of Education and Outreach Staff
                 wimplementation. Sanctuary managers and education                      and Cooperating Educators
                 and outreach staff will work with the volunteer
                 coordinator to plan a gala event to celebrate the            Develop a set of activities that provide for education
                 Sanctuary's opening. The event will be held in a             for new members of the FKNMS education and
                 central location in the Keys.                                outreach staff. Also provide continuing education for
                 uSchedule. This activity will have no action in year 1.      current staff.
                 It will require 3 months to complete.                        mImplementation. Sanctuary education staff will
                 Activity 4-Design and Implement a Kids' Week. A              attend professional conferences and programs. New
                 Kids' Week filled with special events for school             staff will be provided with appropriate orientation
                 students designed to enhance their awareness of the          programs.
                 environment will be conducted. The events are                zSchedule. Continuous.
                 intended to inspire a sense of stewardship for the
                 environment, and illustrate that kids are direct
                 participants in protecting the Sanctuary's resources.


                                                                                                                                       67






              Action Plans: Education and Outreach

                                                                              Management Plan development process. The new
                                                                              brochure will summarize important components of
                                                                              the Management Plan and new Sanctuary programs.
              This group of strategies includes those centered on
              the development of some type of product. Print,                 mimplementation. The brochure will be designed by
              audio, and video communication products are an                  the Sanctuary education staff and will be printed
              integral component of the Sanctuary's public educa-             using State or Federal funds. Design and production
              tion and outreach program. Products produced                    will begin as soon as the management plan is
              through these strategies will be used as tools for              approved. The brochure will be updated in year 5,
              implementing many other strategies in the manage-               following the adoption of the management plan.
              ment plan. Activities include the development of
              printed materials to promote public awareness of the            oSchedule. This activity will have a high level of
              Sanctuary; the production of a limited number of                action in year 1. It will require six months to com-
              audio-visual materials; the establishment of signs              plete.
              and displays in high-use areas; the development of a
              program of public service announcements; and the                Activity 2-Produce a Monthly FKNMS Newsletter.
              establishment of visitor booths and displays for the            Sanctuary staff will produce a monthly color periodi-
              distribution of educational materials. Materials shall          cal. This newsletter will include information about
              be multilingual when appropriate and necessary. A               current developments in FKNMS management,
              focus of these materials shall be to disseminate                featuring projects and programs in the Sanctuary.
              current research and results to the public in a timely
              fashion. Strategies in this group may be revised or             mExisting, Program Implementation. Sanctuary staff
              deleted and new strategies may be added, based on               produce a monthly newsletter titled "Sounding Line."
              the progress and success of the strategies proposed.            The newsletter features projects and programs
                                                                              underway. It is mailed to a list of individuals and
                                                                              organizations nationwide who have expressed an
                                   Strategy E.1:                              interest in staying informed with regard to the Sanctu-
                                Printed Materials                             ary.
                                                                              mImplementation. Sanctuary staff will continue to
              Develop printed materials to promote the public's               develop the content of the monthly newsletter.
              awareness of the impact of their activities, both land          Education and outreach staff will have primary
              and water-related, on the Sanctuary's resources and             responsibility for creative design to support the theme
              environmental quality. Promote the proper use of                and content of each issue. All program disciplines will
              equipment used for these activities in order to                 be asked to contribute articles and/or provide input
                                                                              on content and theme.
              minimize adverse impacts to natural resources.
              Materials will include brochures, posters, newsletters,         =Schedule. This activity will have a medium level of
              contributions to periodicals, environmental nautical            action in year 1. It will be continuous.
              charts, color environmental atlases, and a color
              periodical. Distribute materials in bulk to high inter-         Activity 3-Provide Information to Shipping Busi-
              ception locations (e.g., marinas, boat ramps, dive              nesses. Shipping business will be alerted about
              shops, etc.) and include bulk mailings as a means of            Sanctuary regulations (e.g., vessel waste discharge
              distribution.                                                   and Areas to be Avoided). Target audiences include
              (Priority Level High, Low Level of Action in Year 1, It         large importers/exporters, port authorities, commer-
              will be Continuous, <50% Funding A vallable for Full            cial fishing companies, and ship insurers.
              Implementation)
              Activity 1-Design and Print a Sanctuary Brochure.               mExisting Program Implementation. Information about
              A brochure will be produced that contains compre-               the Areas to be Avoided and Sanctuary boundaries
              hensive information about the Sanctuary.                        have already been included on NOAA nautical
                                                                              charts, but no educational or descriptive information
              mExisting Program Implementation. Under contract by             has been distributed to the users directly.
              NOAA, the Center for Marine Conservation devel-                 wimplementation. The education staff will provide
              oped a brochure in 1991. It educated the public about           educational products (e.g., videos, brochures) to
              Sanctuary boundaries and designation and the                    NOAA's Sanctuaries and Reserves Division (SRD).

              68








                                                                                               Action Plans Education and Outreach

               SRD headquarters and the National Ocean Service                Their constituents will be educated as an indirect
               (NOS) general counsel will contact the appropriate             result of this activity
               U S and international shipping interests Field
               education staff will contact local port authorities and        Existing Program Implementation Sanctuary
               large vessel operators NOAA headquarters, field                employees currently give information to user groups
               and general counsel staff, and Florida's Bureau of             and businesses, and brief decision makers on
               Sanctuaries and Research Reserves will work                    request However, no standardized program for
               cooperatively in implementing this activity                    providing information has been developed

               Schedule This activity will have a low level of action         implementation Expanding this activity requires the
               in year 1 It will be continuous                                development of topic-specific audio-visual products
                                                                              for group mailings (when staff are not available) This
               Activity 4-Provide Information to Community                    program is currently being implemented by the
               Leaders, Decision makers, and Organized User                   Sanctuary education staff The scope of this effort will
               Groups. Community leaders, decision makers, and                expand as staff size increases and audio-visual
               organized user groups will be informed about Sanctu-           materials are produced.
               ary programs, zoning, research results, and the
               environmental consequences of their activities                 Schedule This activity will have a low level of action
               through mailings, speakers, and personal contact               in year 1 It will be continuous


			Product-Development Strategies
		E.1: Printed Materieals								E.3: Signs/Displays/Exhibits
			Design and print a sanctuary brochure				      Establish wayside exhibits in the Florida Keys
			Produce a monthly FKNMS newsletter						Establish static displays at appropriate loca-
			provide information to shipping businesses				tions
			Provide information to community						Develop mobile displays with information on all
			Leaders, Decisionmakers, and organized user				aspects of the sanctuary program.
			groups										Develop interactive educational computer
			Provide interpretive information to periodicals				stations
			and publications									Establish information booths at South Florida
			Provide information to businesses about					airports, car rental agencies, and vistor
			sanctuary resources and activities						centers along US 1.
			Provide multillingual information to marine				Design and install road-side signs
			rental businesses
			Distribute educational materials at public boat				E.5: PSAs
			ramps												Develop a program of PSAs
			Produce and distribute a fact sheet on sanctu-					Develop a media packet
			ary boating rules, regulations, and etiquette to				Develop and produce a series of video news
			be distributed with annual registrations						realeases
			Produce a fact sheet for the Tourist Develop-					Print marine etiquette on marine-related
			ment council										materials packaging
			Distribute information regarding the Sanctuary					Establish VHF and dedicated Am radio stations
			in utility bills, newsletters, and vehicle licenses/				
			registrations										E.7: Promotional
			Provide information to service industries about						Establish visitor booths/displays to distributet
			environmentally safe practices								educational materials
			Produce a color environmental atlas for the						Establish interagency visitor center for
			sanctuary												orientation purposes

			E.2: Audio-Visual Materials
				Establish an audio and video library
				Produce audio and video tapes and theme-
				oriented slide presentations


								69






                 Action Plans: Education and Outreach

                 Activity 5-Provide Interpretive Information to                     videos, brochures, posters, and placards to marinas,
                 Periodicals and Publications. Specific user groups                 dive shops, and boat rental businesses every two
                 or communities (e.g., the diving and fishing indus-                months or on request.
                 tries, research community, local naval facilities, and
                 Spanish community) will be targeted with information               sImplementation. The education and outreach staff
                 about Sanctuary programs, research findings, and                   will continue to distribute multilingual educational
                 regulations.                                                       information. Once the Management Plan has been
                                                                                    adopted, staff will design and produce targeted
                 mExisting Program Implementation. Administrative,                  educational materials.
                 research, and education staff currently provide
                 artic'les to periodicals and newspapers. A limited                 oSchedule. This activity will have a low level of action
                 number of articles have been produced by the                       in year 1. It will be continuous.
                 Sanctuary Advisory Council for submission to local
                 newspapers. This effort was supported by the                       Activity 8-Distribute Educational Materials at
                 Sanctuary's Volunteer Program.                                     Public Boat Ramps. Boaters will be provided with
                                                                                    information about Sanctuary objectives, regulations,
                 mImplementation. In cooperation with the Volunteer                 and safe boating practices at public boat ramps.
                 Coordinator, the education staff will identify topics,
                 authors, and media recipients for a continuing series              sImplementation. The education and outreach staff
                 of written pieces to be submitted for publication.                 will work with the Sanctuary Volunteer Program and
                 Articles of various lengths should begin to be submit-             other local volunteer organizations to distribute
                 ted by the end of year 1.                                          educational materials. A cooperative agreement may
                                                                                    be sought to achieve this activity.
                 oSchedule. This activity will have a low level of action
                 in year 1. It will be continuous.                                  oSchedule. This activity will have a low level of action
                                                                                    in year 1. It will be continuous.
                 Activity 6-Provide Information to Businesses
                 about Sanctuary Resources and Activities.                          Activity 9-Produce and Distribute a Fact Sheet on
                 Information regard    *ing Sanctuary regulations and               Sanctuary Boating Rules, Regulations, and
                 resources will be provided to local on-water busi-                 Etiquette to be Distributed with Annual Registra-
                 nesses.                                                            tions. The fact sheet will be an effective means of
                                                                                    disseminating information about Sanctuary resources
                 mExisting Program Implementation. In the past, dive                and regulations to boat owners and operators.
                 shops and selected marinas have received Sanctu-
                 ary brochures and educational videos.                              mImplementation. The sheet will be developed by the
                                                                                    education and outreach staff. Distribution will be
                 wimplementation. The education and outreach staff                  coordinated by the education staff and the Florida
                 will develop a mailing list of water-related businesses            Department of Environmental Protection (FDEP), and
                 in the Keys, and educational information will be                   will occur when registrations are issued or renewed.
                 distributed based on this list. The Volunteer Program
                 will assist in distributing these materials.                       oSchedule. This activity will have a low level of action
                                                                                    in year 1. It will be continuous.
                 mSchedule. This activity will have a low level of action
                 in year 1. It will be continuous.                                  Activity 10-Produce a Fact Sheet for the Tourist
                                                                                    Development Council. The fact sheet will provide
                 Activity 7-Provide Multilingual Information to                     potential Sanctuary visitors with information about
                 Marine Rental Businesses. Multilingual information                 environmentally responsible behavior. It will also
                 regarding Sanctuary activities including programs,                 inform tourists of the environmental damage that may
                 regulations, and research activities will be provided to           result from inappropriate actions.--.--
                 marine rental businesses (e.g., boat and personal
                 watercraft rental operations, marina gas facilities,               mImplementation. The fact sheet will be prepared by
                 etc.) to educate rental operators and patrons about                the education and outreach staff, and will be repro-
                 environmental issues.                                              duced and distributed by the Tourist Development
                                                                                    Council (TDC). An agreement will be established with
                 mExisting Program Implementation. The education                    the TDC for implementing this activity.
                 and outreach staff currently distributes multilingual

                 70







                                                                                                 Action Plans: Education and Outreach

               wSchedule. This activity will have no action in year 1.         of the atlas to be distributed and organize distribution
               It will require 6+ months to complete.                          with assistance from the Volunteer Program.

               Activity 1 1-Distribute Information Regarding the               oSchedule. This activity will have no action in year 1.
               Sanctuary in Utility Bills, Newsletters, and Ve-                It will require 12 months to complete.
               hicielLicenseafflegistrations. Through this activity,
               all residents of the Keys will receive information              This strategy is also included in the Volunteer
               about the Sanctuary and the impacts of their water              Action Plan.
               and land-based activities on Sanctuary resources. An
               informative brochure, including associated regula-
               tions and environmentally responsible methods of                                     Strategy E.2:
               sewage and solid waste disposal and other house-                             Audio-Visual Materials
               hold activities, will be included with utility bills and
               vehicle/boat registrations. Articles about the Sanctu-
               ary will also be included in utility newsletters.               Inventory and use existing videos, films, and audio-

               0
                Implementation. The education and outreach staff               visual environmental education materials portraying
                1                                                              activities in the Florida Keys, and their impacts on
               will develop and submit brochures and articles to the           Sanctuary resources. Produce a limited number of
               appropriate utility companies and State and local               audios/videos to address gaps in available materials,
               agencies. Volunteers may help prepare and deliver               and to address major activities including boating,
               newsletter articles.                                            fishing, diving, etc. Materials will be available at
                Schedule. This activity will have no action in year 1.         Sanctuary offices and will be distributed to key
               E                                                               locations (dive shops, etc.) throughout South Florida.
               it will be continuous.                                          Materials will be multi-lingual as necessary and
               Activity 12-Provide Information to Service Indus-               appropriate. (Priority Level Medium, Low Level of
               tries About Environmentally Safe Practices.                     Action in Year 1, 3+ Months to Complete, <50%
               Service industry personnel will be educated about               Funding Available for Full Implementation)
               environmentally safe practices.                                 Activity 1-Establish Audio and Video Library.
                Implementation. The education and outreach staff               Audio-visual materials will be collected and orga-
               01                                                              nized, and a Sanctuary library created for use by
               will provide the educational materials, which will be           Sanctuary staff and the public.
               distributed by volunteers as part of the Volunteer
               Program.                                                        mExisting Program Implementation. Sanctuary off ices
                Schedule. This activity will have no action in year 1.         currently have slide collections. Duplicates may be
               E                                                               provided upon request.
               it will be continuous.
                                                                               mImplementation. The education and outreach staff
               Activity 13-Produce a Color Environmental Atlas                 will coordinate with the Volunteer Program to imple-
               for the Sanctuary. Sanctuary education and out-                 ment this activity. Slides, videos, and audio tapes will
               reach staff will work with NOAA, FDEP, and the                  be cataloged by type of media, subject, and length.
               Florida Marine Research Institute (FMRI) to produce             New contributions to Sanctuary slide and video
               a color atlas of Sanctuary resources including habitat          libraries will be solicited from amateur and profes-
               types, population, hurricane paths, and other environ-          sional photographers. Additional video and audio
               mental or social themes to be determined.                       tapes will be acquired based on budget allowances.
                                                                               Duplicates may be provided upon request. A system
               mExisting Implementation. The FDEP has developed                will be developed and implemented to provide for the
               and produced benthic habitat maps for the FKNMS.                loan of audio-visual products.

               sImplementation. As information is gathered, NOAA               oSchedule. This activity will have a low level of action
               will update the benthic habitat maps that have been             in year 1. It will require 3 months to complete.
               produced. ConcLirrently, education and outreach staff           Donations will be accepted on a continuing basis.
               will consult with NOAA and the FDEP and identify
               other themes for the atlas. As useful data become               Activity 2-Produce Audio and Video Tapes and
               available, they will be included in the environmental           Theme-Oriented Slide Presentations. Topic-
               atlas. Education staff will identify locations for copies       oriented audio and video tapes and slide presenta-_

                                                                                                                                          71







                Action Plans: Education and Outreach

                tions will be developed for specific age groups, and         also be produced with information on Sanctuary
                their complexity will vary according to the intended         resources, regulations, environmental quality, etc.
                audience. Products may range from short instruc-             The signs will be multilingual where necessary and
                tional pieces to longer presentations that summarize         appropriate. Targeted multimedia displays will be
                the Sanctuary development process. In addition, a            developed with information and impacts on the
                weekly video television program, Waterways, will be          Sanctuary relevant to the activity targeted. A number
                produced to feature various scientific, educational,         of wayside exhibits will be installed.
                and management programs that occur in Sanctuary
                waters.                                                      Develop a user-friendly computer system containing
                                                                             information on regulations, access, recreational sites,
                mExisting Program Implementation. Several videos             environmental etiquette, etc. for visitor use at se-
                have been produced which focus on the general                lected sites throughout the Sanctuary within five
                setting of the Sanctuary, and some on-water activi-          years. (Priority Level Medium, Low Level of Action in
                ties and their impacts on Sanctuary resources. Two           Year 1, 36+ Months to Complete, <50% Funding
                were produced by Looe Key and Key Largo national             Available for Full Implementation)
                marine sanctuaries, one was produced by the FDEP
                and one was produced by the FIO. Each is available           Activity 1-Establish Wayside Exhibits in the
                to the Sanctuary to reproduce and distribute. Water-         Florida Keys. Wayside exhibits are an effective
                ways is being produced and aired on a weekly basis.          means of educating the public about the Sanctuary.
                in partnership with ENP and EPA.                             More than one exhibit may be established for location
                                                                             at popular fishing and disembarkation points in the
                wImplementation. The education and outreach staff,           Keys. The exhibits will provide information about
                Volunteer Program, and government or private                 Sanctuary boundaries, resources, and regulations.
                interests (via cooperative agreements) will produce
                the educational presentations. Videos will range in          mExisfing Program Implementation. The education
                length, with most lasting between 10 and 20 minutes.         and outreach staff has designed a wayside exhibit for
                If possible, videos will be bilingual (i.e., English and     the Florida Keys National Marine Sanctuary, and
                Spanish). Topics will include FKNMS existence,               approximately 40 to 50 exhibits have been placed at
                programs and regulations, scientific research,               boat launching sites throughout the Keys. In addition,
                educational projects, water quality, and habitat             the FDEP's Division of State Lands has designed a
                degradation issues (e.g., boating, fishing, and diving       wayside exhibit. Some exhibits have been placed at
                impacts). Outreach staff will continue to produce 30         popular fishing and boat-launching sites. In addition,
                minute episodes of Waterways exploring the topics            the U.S. Fish and Wildlife Service (FWS) is develop-
                mentioned above.                                             ing a wayside exhibit to be placed at disembarkation
                                                                             points near the boundaries of wildlife refuge@ located
                oSchedule. This activity will have a medium level of         in the Keys.
                action in year 1. It will be continuous.
                                                                             mImplementation. Additional sites in the Keys have
                This strategy is also included in the Volunteer              been identified for the placement of wayside exhibits,
                Action Plan.                                                 and an exhibit has been designed that gives informa-
                                                                             tion about Sanctuary boundaries, resources, and
                                                                             restrictions. Once the Management Plan is adopted,
                                   Strategy E.3:                             existing exhibits may need to. be updated to reflect
                           Sig ns/Displays/Exhibits                          new regulations. A new exhibit may be designed or a
                                                                             second side, containing new information, may be
                                                                             attached to existing exhibits. A cooperative agree-
                Develop signs and displays at high-use areas, all            ment will be sought to produce and install the exhib-
                public and some private boat ramps, and some public          its. The education staff will be responsible for imple-
                beach access areas to inform participants in water-          menting this activity. Volunteers may be used to
                based activities of regulations and environmentally          place the exhibits.
                sound practices, provide navigation information, and         oSchedule. This activity will have a high level of
                promote awareness of nearby sensitive areas.                 action in year 1. It will require 6 months to complete.
                Establish visitor centers/booths at locations through-
                out the Keys at Sanctuary offices, Chamber of                Activity 2-Establish Static Displays at Appropri-
                Commerce visitor centers, etc. Portable displays will        ate Locations. Space will be secured and informa-

                72







                                                                                              Action Plans: Education andOutreach

              tional displays about the Sanctuary set up at visitor         stand-alone exhibit conveying information about all
              centers, sanctuary offices, museums, libraries,               aspects of Sanctuary operations will be purchased.
              chambers of commerce and State Parks. These                   Additional tabletop displays will be developed in year
              static displays will provide general information about        3. Grant funding and donations will be actively sought
              the Sanctuary, and will educate visitors and residents        to support display development and construction
              about requirements and measures they can take to              activities. Volunteers with appropriate expertise will
              protect the area's natural resources. This product            assist in design and construction activities if neces-
              differs from wayside exhibits due to display design           sary.
              and information. These displays will be located
              indoors, and will focus on a broader range of topics          mSchedule. This activity will have a medium level of
              than the wayside exhibit. In addition, an element of          action in year 1. It will require 36 months to complete.
              flexibility is contained within the static indoor displays
              that is not achieved with wayside exhibits.
                                                                            Activity 4-Develop Interactive Educational Com-
              nExisting Program Implementation. A display is                puter Stations. Interactive educational displays that
              currently located at John Pennekamp Coral Reef                convey information about Sanctuary boundaries,
              State Park that describes the Sanctuary and its               regulations, resources, education programs, research
              associated programs. Local chambers of commerce               programs, and volunteer opportunities will be devel-
              also display Sanctuary brochures.                             oped at locations throughout the Keys. Each station
                                                                            will include current Sanctuary data that may be
              simplementation. Education and outreach staff, along          accessed by any visitor. These stations will have an
              with the Volunteer Program, will identify potential           audio and visual component, and will include a
              exhibit sites. Cooperative agreements will be sought          combination of stationary graphics, an interactive
              with entities outside the Sanctuary Program to assist         computer terminal, and audio recordings.
              in the design and funding of displays. Static displays
              will be bilingual (English/Spanish) or multilingual,          mImplementation. The education and outreach staff
              depending on space availability. Sites under consid-          will define the content and logic for the interactive
              eration already include the Key West Aquarium and             computer program, and volunteers will provide
              the Florida Keys Natural History Museum.                      assistance. However, a private vendor will be con-
                                                                            tracted to develop and design the program. A pilot
              oSchedule. This activity will have a low level of action      system will be established in year 1. Alterations will
              in year 1. It will require 12 months to complete.             be made based on information obtained in the pilot,
                                                                            and additional sites will be identified for the place-
              Activity 3-Develop Mobile Displays with Informa-              ment of systems. Funding will be sought for place-
              tion on all Aspects of the Sanctuary Program.                 ment locations from private and not-for-profit organi-
              Each display will have a different focus and, because         zations.
              they are mobile, could be used at conventions, trade
              shows, educational meetings, or scientific gatherings,        mSchedule. This activity will have a low level of action
              General information regarding Sanctuary location              in year 1. It will require 12 months to complete.
              and programs may be communicated, along with
              current educational activities or research findings.          mCost To be determined.

              sExisting Program Implementation. One stand-alone             Activity 5-Establish Information Booths at South
              display has been developed that conveys general               Florida Airports, Car Rental Agencies, and Visitor
              information about the Looe Key and Key Largo                  Centers Along US 1. These booths will establish
              national marine sanctuaries. It has been used at              special areas promoting the Sanctuary at high-use
              conventions, festivals, and trade shows.                      tourist locations, and will provide public exposure
                                                                            regarding the Sanctuary and the South Florida
              simplementation. The education and outreach staff             ecosystem.
              will be responsible for implementing this activity. If
              sufficient funding is available, a contractor will be         wimplementation. The education and outreach staff
              hired to construct the displays. In year 1 it is antici-      will identify booth sites and investigate potential
              pated that three tabletop displays will be purchased.         funding sources. Booths will be designed on a site-
              One will focus on general Sanctuary information, the          by-site basis. Construction (when necessary) will
              second on Sanctuary education programs, and the               either be conducted by volunteers or private contrac-
              third on current research topics. During year 2, a            tors. The Sanctuary Program and other groups will

                                                                                                                                      73







                Action Plans: Education and Outreach

                provide written materials for the booths. Input will be      developed to educate the public about how their
                sought from the TDC and local chambers of com-               activities impact Sanctuary resources. These PSAs
                merce. When appropriate, bilingual materials will be         will be broadcast on radio and television, and will
                provided.                                                    focus on boating, diving, household activities, other
                                                                             activities impacting Sanctuary resources, and upcom-
                oSchedule. This activity will have no action in year 1.      ing events sponsored by the Sanctuary. The PSA
                It will require 24 months to complete.                       program will focus primarily on the South Florida
                                                                             community, with limited State, national and interna-
                mCost To be determined.                                      tional exposure. PSAs will be translated and broad-
                                                                             cast on stations that target communities in which
                Activity 6-Design and Install Roadside Signs.                English is not the primary language.
                Signs will be installed along the roadside in the
                Homestead/Key Largo area to alert travelers that             mExisting Program Implementation. A number of short
                they are entering/leaving the Sanctuary.                     radio PSAs and one TV PSA have been developed.
                                                                             The radio PSAs are frequently Used in conjunction
                mImplementation. Education and outreach staff will           with a special event such as the annual Underwater
                design a sign to be placed on the roadside which will        Music Festival. The television PSA is used as a
                alert motorists that they are entering the Florida Keys      promotion for the "Waterways" program sponsored
                National Marine Sanctuary. Sanctuary management              by NOAA, ENP, and EPA.
                staff will coordinate with the Florida Department of
                Transportation for location approval and installation.       mImplementation. The education and outreach staff
                                                                             will be responsible for implementing this activity.
                oSchedule. This activity will have a medium level of         Topics will focus on resource values, upcoming
                action in year 1. It will require 9 months to complete.      programs, and Sanctuary development. The educa-
                                                                             tion staff will identify topics and, with the assistance
                                                                             of volunteers, prepare narrative and film or audio
                This strategy is also included in the Volunteer              announcements. Television and radio broadcast time
                Action Plan.                                                 will be secured as funds allow, with first priority being
                                                                             Monroe County stations.

                                    Strategy E.5:                            oSchedule. This activity will have a medium level of
                                         PSAs                                action in year 1. It will be continuous.

                                                                             Activity 2-Develop a Media Packet. Factual infor-
                Establish a program to promote Sanctuary goals and           mation regarding the natural, cultural, and historic
                activities through public service announcements              resources of the Sanctuary will be compiled for
                (PSAs) in South Florida, with some national and              distribution. Information will be included on dimen-
                international public exposure, that present an over-         sions, acreage, and habitat disruption. Halftones or
                view of the Sanctuary, its resources, and their              color transparencies and a video may be included.
                ecological significance forroutine distribution to           Information will also address the benefits of Sanctu-
                radio, cable television stations and newspapers.             ary management, the ecological importance of the
                                                                             area's resources, and concerns and threats to the
                Develop editorial/contributions for other printed.           environment.
                media. Funds will be spent on routine media expo-
                sure. PSAs will focus on participants in water-related       mimplementation. The education and outreach staff
                and other activities that affect the Sanctuary (boaters,     will work with Sanctuary managers to develop a list of
                divers, household etc.). These materials will also be        materials to be included in the press packet. Staff
                organized into a press packet. Appropriate materials         will then coordinate with the Volunteer Program to
                shall be multilingual when necessary. One focus of           develop materials identified as needed, but not
                these materials will be to disseminate current re-           currently available. Volunteers will package the
                search results to the public in a timely fashion.            materials, and an initial mailing will be done to all
                (Priority Level Medium, Low Level of Action in Year          local press representatives. In the future, this pack-
                1, 60+ Months to Complete, <50% Funding Available            age will be provided at all public Sanctuary meetings
                for Full Implementation)                                     and on request.
                Activity I-Develop a Program of PSAs. A program
                of public service announcements (PSAs) will be

                74








                                                                                                Action Plans: Education and Outreach

               mSchedule. This activity will have a low level of action       secured and dedicated to provide information about
               in year 1. It will require 6+ months to complete.              boating and related activities. The broadcasts will
                                                                              include information about Sanctuary regulations,
               Activity 3-Develop and Produce a Series of Video               navigation, resources, and weather/reef conditions.
               News Releases. The media will be provided with                 Messages will also be developed to help boaters,
               information on current Sanctuary issues and activities         divers, and fishermen avoid impacting the environ-
               through the development and production of a series             ment. Information will be broadcast in several lan-
               of video news releases. Topics will address a broad            guages. A dedicated AM station will also be secured
               range of subjects including, but not limited to, Sanc-         to deliver messages similar to those broadcast over
               tuary boundary awareness, regulations, zones,                  the VHF station. The AM station may include more
               education programs/products, and research projects.            land-related information.

               sImplementation. The education and outreach staff              nImplementation. The education and outreach staff
               will develop a list of topics for which video news             will contact the appropriate officials to obtain informa-
               releases would be appropriate. This list will be               tion on establishing the radio stations. Cost and
               provided with the press packet. Education and                  target area assessments will be conducted. The
               outreach staff will then produce the video news                Upper Keys will have the greatest need for the AM
               releases with the help of the volunteer staff. General         station. The Middle and Lower Keys will follow in
               news releases on Sanctuary programs will be                    years 2-3 and 4-5, respectively. The education staff
               provided with press packets. News releases devel-              will program the stations, and hire a program man-
               oped on special topics will be provided individually to        ager when funding is available. The education staff
               media contacts (initially television stations in South         will work closely with the Volunteer Program to utilize
               Florida). As a system is developed, contacts will be           volunteer expertise in this area. Grant funding will be
               expanded throughout Florida and other areas from               sought to support implementation costs.
               which visitors originate. Grant funds may be sought
               to support this effort.                                        mSchedule. This activity will have no action in year 1.
                                                                              It will require 60+ months to complete.
               oSchedule. This activity will have a low level of action
               in year 1. It will require 18+ months to complete.             This strategy is also included in the Volunteer Action
                                                                              Plan.
               Activity 4-Print Marine Etiquette on Marine-
               Related Materials Packaging. Printing messages
               about proper on-water etiquette on marine-related                                  Strategy E.7:
               materials packaging is expected to improve these                   Promotional Educational Materials
               types of behaviors. The messages will appear on
               materials used for water-related activities, such as
               ice bags and bait boxes.                                       Promote educational materials, including bilingual

               0
                Implementation. The education and outreach staff              materials and other information about the Sanctuary
                1                                                             and its resources, at existing Sanctuary offices and
               will identify appropriate products for marine-related          chambers of commerce. Establish interagency visitor
               message placement, and will contact the manufactur-            centers with the U.S. Department of Interior (USDOI)
               ers and propose the idea of printing conservation              and the FDEP. (Priority Level Medium, Low Level of
               messages on their packaging. The staff will also               Action in Year 1, 48 Months to Complete, <50%
               design the print message, for approval by the manu-            Funding Available for Full Implementation)
               facturer. Volunteers will assist in this activity. The
               manufacturer will cover the cost of printing and               Activity 1-Establish Visitor BoothslDisplays to
               producing the packaging material.                              Distribute Educational Materials. Visitor booths/
                Schedule. This activity will have no action in year 1.        displays will be developed to provide multilingual
               0                                                              educational materials about Sanctuary resources,
               it will require 12 months to complete.                         etiquette, and environmental quality. Existing Sanctu-
                Cost To be determined.                                        ary off ices will provide limited space for distribution
               :ctivity S-Establish VHF and Dedicated AM Radio                on a walk-in basis.
               Stations. A VHF radio information frequency will be            mExisting Program Implementation. Each Sanctuary
                                                                              off ice has a very small area dedicated to the display


                                                                                                                                          75







                Action Plans: Education and Outreach

                and dissemination of educational products (primarily         This strategy is also included in the Volunteer
                brochures and newsletters).                                  Action Plan.

                mImplementation. The education and outreach staff
                will establish areas in existing Sanctuary offices for
                the display of materials. The education and outreach
                staff or volunteers may be used to help construct the
                displays. Alternately, an outside contractor will be
                hired. The education staff will consult with local
                chambers of commerce to determine if space is
                available for displaying Sanctuary information.
                Financial support will be sought from chambers of
                commerce and the TDC.


                oSchedule. This activity will have a low level of action
                in year 1. It requires 12 months to complete.


                Activity 2-Establish Inte  ragency Visitor Center for
                Orientation Purposes. An interagency visitor center
                will be established in cooperation with the USIDOI
                and the FIDEP to provide visitors and residents with
                orientation information on various protected and
                managed areas. Cooperative efforts will allow
                agencies to pool 'resources and provide lowest-cost
                options for a special center. One goal of this Inter-
                agency Orientation program will be to inform sanctu-
                ary program/agency visitors about the extent of
                education programs (agency and non-agency)
                offered in the FKNMS.


                mImplementation. Sanctuary Program managers will
                secure an interagency agreement with agencies
                interested in establishing a visitor center. The educa-
                tion staff will consult with Sanctuary managers,
                agency -managers, and other agency personnel to
                determine the types of exhibits to be included in a
                visitor center. Activities will be divided among the
                agencies involved. The education and outreach staff
                will be responsible for designing and constructing
                educational exhibits focusing on the Sanctuary
                Program, and will either develop the exhibits or
                contract them out. A staff person will also be as-
                signed to manage the visitor center, with salary
                funding coming from all agencies involved. The
                Volunteer Program will fulfill the center's additional
                staffing requirements. The Volunteer Program will
                fulfill the center's additional staffing requirements.
                Public information will be provided that describes
                ongoing programs, activities and organizations
                involved with educational activities in the Sanctuary.

                mSchedule. This activity will have no action in year 1.
                It will require 48 months to complete.



                76







                                                                                              Action Plans: Education and Outreach
               Implementation                                                Strategy prioritization may change as certain activi-
                                                                             ties are found to be more effective than others. In
                                                                             addition, new strategies and component activities will
               This section explains how the strategies in the               be established as the program evolves. In all cases,
               education and outreach plan will be implemented.              making the maximum use of available resources will
               The institutions responsible for each activity, and           be a priority.
               those agencies that will provide some level of assis-
               tance, are identified. Education and outreach strate-         Schedule. The number of months required to
               gies are also ranked to indicate their overall Sanctu-        completely implement each strategy and activity in
               ary priority level. In addition, the planned level of         the Education Program is given in Table 10.
               activity in year 1, months required to complete,
               funding availability, cost estimates, staff require-          Cost. The estimated cost of implementing each
               ments, and the geographic focus of each strategy/             activity is shown in Table 10. This figure represents
               activity are provided. The process used to evaluate           the sum of Sanctuary staff salaries, equipment and
               the effectiveness of the Education Program as it              supplies, general services, and other implementation
               evolves over time is also presented.                          requirements. The cost of implementing the existing
                                                                             Education Program in Fiscal Year 1992 was
               Responsible Institutions. As the FKNMSPA man-                 $140,000, including staff salaries and overhead. Over
               dates NOAA, EPA, and the State of Florida to                  the past five years, the cumulative cost of implement-
               provide education and interpretation regarding                ing the Education and Outreach Program was
               Sanctuary resources, these agencies will share the            approximately $450,000. The total estimated cost of
               lead in implementing specific education and outreach          implementing all activities in the Sanctuary Education
               activities, and will be responsible for coordinating the      Program is projected to be $5.2 million over the first
               involvement of external organizations. A framework            five years.
               of Federal, State, and local agencies and commercial
               and nonprofit organizations will be responsible for           Geographic Focus. Most of the activities in the
               implementing the overall Program. Efforts will be             Education and Outreach Program will be imple-
               made to avoid duplicating the efforts of other pro-           mented Sanctuary-wide, with some limited to the
               grams and to utilize and support education efforts            Upper, Middle or Lower Keys. Others would be
               being conducted by other organizations. Table 9 lists         implemented worldwide, such as providing informa-
               the participating institutions and their level of respon-     tion to shipping businesses. The specific area
               sibility for implementing each activity.                      targeted by an activity is included in Table 10 when
                                                                             applicable.
               Prioritization of Implementation. Each strategy in
               the Management Plan has been placed in one of                 Personnel. The staff needed to implement the
               three groups based on its level of importance relative        Education and Outreach Program       represents a mix of
               to all other management strategies. The printed               full-time, volunteer, and other agency workers,
               materials, training programs and advisory board               including interns. Four full-time and one part-time
               strategies are the highest-priority strategies in the         education and outreach staff members are currently
               Education and Outreach Program. The remaining                 working in the Keys. It is estimated that the Keys'
               seven strategies are medium priority level, and will          Education Program will require 22 full-time employ-
               have some level of activity in year 1. Specific activi-       ees from NOAA, other agencies, and NGO partner-
               ties within each strategy have also been organized            ships. Staff will be distributed among the Upper Keys,
               according to implementation priority (Table 10), and          Lower Keys, and Marathon sanctuary offices. In
               are grouped in three categories (high, medium, and            addition, one full-time volunteer coordinator (see the
               low priority). The rankings provide guidance on the           Volunteer Action Plan) and approximately 80 volun-
               types of activities that should be implemented if             teers will be needed to adequately implement the
               insufficient funding is available for full implementa-        strategies in the program. The following steps will be
               tion. They also provide information about how to              considered so that education and outreach staff as a
               schedule the implementation of activities. The priority       whole can better meet current educational needs and
               levels for activities should not be compared across           responsibilities within the FKNMS:
               strategies, however, as they only represent the
               relative importance of the activities within a particular           Positions allocated for education should be
               strategy.                                                           maintained as education and outreach posi-
                                                                                   tions, and not re-allocated to other areas;



                                                                                                                                       77






              Action Plans: Education and Outreach

                   * Vacant positions in education should be filled        be sought. If private support is not available, projects
                     in as timely a manner as possible, so as not to       will be implemented in priority order and/or with
                     unduly burden remaining staff; and                    recommendations of the Advisory Board.

                  *  Positions, roles and responsibilities should be       Evaluating Program Effectiveness and Efficiency.
                     clearly defined, based on established                 The Education and Outreach Program will be evalu-
                     workplans and documented needs.                       ated on an ongoing basis to determine the effective-
                                                                           ness and efficiency of the component activities and to
              In order to address the multilingual nature of many of       determine the Program's overall performance.
              the activities, the hiring of a Spanish-speaking
              education staff member or intern should be given             In some cases, background information (e.g., data-
              priority consideration.                                      bases) needed to make such evaluations already
                                                                           exists. However, in other cases it may be necessary
              Sanctuary Employees. The Education and Outreach              to conduct statistically sound information-collection
              Program will require one program manager ($42,000            efforts to enable useful evaluations.
              per year), two educational coordinators ($30,000 per
              year), five educational assistants ($16,000 to               This evaluation will determine the Program's level of
              $25,000 per year), and 14 interpreters ($13,000 to           effectiveness by assessing:
              $18,000 per year). Funding for these salaries will
              come from a combination of NOAA and FDEP                         * the demand for information, products and
              resources.                                                         programs;

              Interagency Employees. Eighteen staff members will               * the level of media exposure;
              either be hired through cooperative agreements with
              other agencies, or employed by other agencies                    * the level of awareness of target audiences
              working on education and outreach programs in the                  (relative to the level of need);
              Sanctuary. RFP's will be issued to all NGOs when
              projects can be contracted at the same or lower cost             * whether the level of compliance with zoning
              for providing an additional employee.                              and regulatory provisions increases or de-
                                                                                 creases;
              Cooperative Agreements. The education and
              outreach staff needs may also be met or supple-                  * public attitudes toward the Sanctuary; and
              mented through cooperative agreements with others
              (public, private, individuals). A volunteer coordinator          * the value placed on the natural resources of
              is currently employed jointly by NOAA and TNC.                     the local ecosystem.

              Volunteers. Volunteers will be actively recruited to         This evaluation will determine the Program's level of
              assist in implementing a variety of Education and            efficiency by assessing:
              Outreach Program activities.
                                                                               * the extent the education product is used;
              Equipment. A variety of equipment will be required
              to implement many of the activities in the Program.              * the extent of participation in education and
              Some are already located at the Key Largo, Looe                    outreach programs;
              Key, and Florida Keys national marine sanctuary
              offices, but numerous items still must be acquired to            * staff compliance with project deadlines; and
              ensure the success of the program, including a
              Macintosh computer and a printer able to produce                 * budget costs relative to the products and
              photocopy-ready documents. Mobile presentation                     programs produced.
              materials, such as portable exhibition stands for use
              at trade shows and conferences, are also needed, as
              is video production equipment.

              Contingency Planning for Changing Budget.
              If education and outreach allocations fall below the
              projected requirements, increased private support will


              78







                                                                                                                   Action Plans: Education and Outreach

                 Table 9. AgencieslOrganizations Identified for Implementing StrategieslActivifies

                                                                                                     Agencies/Organizations
                                                                                                                                'o
                                                                                                                                C                  - 0


                                                                                   C')
                                                                                                     (9                    .8                         09
                                                                                   &U                 C) 0        0 0            islo     ,C
                                                                           CO
                        Strategy/Activity                                  I    N  UC,                                 a                 ir     C?  Z@  6
                        COMMUNITY INVOLVEMENT/COMMUNITY PROGRAM

                        E.4 Training, Workshops, and
                        School Programs
                        Promote/Support Environmental
                        Education in Monroe County and             0               0 0        0                                              0
                        State Schools
                        Produce the Florida Keys
                        Environmental Education Directory          0               0
                        Provide/Support Environmental
                        Education Workshops for Educators          0   000         0000           0                                          0
                        Provide Environmental Education for        *
                        Law Enforcement Personnel                                  0      0       0                                          0
                        Sponsor/Support Adult Environmental        0   0           0  0       0   0              0       0           0       0
                        Education
                        Certification Program                      9   0   00      0          00          0000               0       0       0      00

                        Provide mechanisms Outside Law
                        Enforcement to Help Deliver On-            0
                        site Resource Education

                        E.6 Education Advisory Board
                        Este blish Education Advisory Board        000        0 Q 0           0   0       0              0                   0

                        E.10 Public Forum
                        Establish a Public Meetings Program        0               E)
                        Develop a Speakers Bureau and
                        Lecture Series                             0   000         0              0       000            0           0       0
                        Conduct a Poster Contest                   0               (D 0       0   0       0      0
                        Conduct a Photo Contest                    0               (D                     0
                        E.11 Special Events                                                                                                        . ....
                        Develop Trade Show Information Booths      0               Q                             0                           0
                        Organize Environmental Exposition          0   0   00      0       000            0   000               0    0   0      0   00
                        Hold a Grand Opening                       0   0           0                      0      0                                  00
                        Implement Kid's Week                       *   0   00      0  0       00          0  00                  00                 00
                        Design and Implement a Sanctuary
                        Awareness Week                             0   0 -         I (D  1        10     10  01          1      10      1       1       1     1
                        A.12, Pi0ofeAsaldrIf 111616ilopme"t
                                                                                                  I"
                        PRODUCT DEVELOPMENT

                                                                                                                            7',

                        Design and Print FKNMS Brochure                            E)
                        Produce a Monthly FKNMS Newsletter 0                       0              0
                        Provide Information to Shipping
                        Businesses
                        Provide Information to Community
                        Leaders/Decision Makers/Organized              0           0      000000                                             0              0
                        User Groups
                        Provide Interpretive Information to
                        Periodicals/Publications                   0   0           0      0           0   0      0                           0
                                                                       ii, 7@"4













                        Provide Information to Businesses
                        about FKNMS Resources and                                  (D             0       000                                0
                        Activities

                            Lead        0 Primary Role         0 Assist


                                                                                                                                                                  79







                  Action Plans: Education and Outreach

                  Table 9. Agencies/Organizations Identified for Implementing StrategieslActivities (cont.)

                                                                                              Agencies/Organizations
                                                                                                                                  ii!.   -   _- 0
                                                                                                                       10        0                     J
                                                                       co       WQ_0
                    Strategy/Activity                                                                                M  Sc
                                                                                e e
                                 M@WA Iso'dn't)
                                           Twv
                    Provide Multilingual Information to
                    Marine Rental Businesses                  0              (D             0       0    00                    0         0

                    Distribute Educational Materials at
                    Public Boat Ramps                         0              0              0       0      0                             0
                    Produce and Distribute Fact Sheet on
                    FKNMS Boating Rules, Regulations                                                                                     0
                    and Etiquette with Annual Boat            40             @           0  0
                    Registration

                    Produce FKNMS Fact Sheet for
                    Tourist Development Council               0              0                                 0
                    Distribute Information regarding
                    FKNMS in Utility Bills, Newsletters,      40             (D      0                                            000
                    and Licenses/Registration

                    Provide Information to Service
                    Industries about Environmentally Safe     0              0              0       0000                                 0
                    Practices

                    Produce a Color Environmental Atlas
                    for the Sanctuary                         0  0   00      0              0
                    ttAUdW-.vl46aFMater16J'$'

                    Establish Audio and Video Library         0              0                             0
                    Produce Video and Audio Tapes and         0  0   00                     0       0      0   0  0                      01
                    Theme-Oriented Slide Presentations



                    Establish Wayside Exhibits in the
                    Florida Keys                              0              0           0                             0                 0
                    Establish Static Displays at              0  000         0       000            00     0   0               0         0
                    Appropriate Locations
                    Develop Mobile Displays with
                    Information on All Aspects of the         0  0           G                             0   0               0
                    FKNMS Program
                    Develop Interactive Computer Stations     0  0   0    0  0              0           0              0                     0   0
                    Establish Information "Stations' at
                    South Florida Airports/ Car Rental and    0  0   0    0  C)             0       0   0  0
                    Visitor Centers along US 1
                    Design and Install Roadside Signs         0     1        0     1     01                1                             0      1


                                                                                                                                              --- -- -----
                    Develop a Program of PSAs                 00     000                    000                           0              0
                    Develop a Media Packet                    0  0           E)                            0              00             0
                    Develop and Produce a Series of           0  0           Q              0       0      0      0       0    0
                    Video News Releases
                    Print Marine Etiquette on Marine          0  0           G              0       0                  0       0         0
                    Related Materials Packaging
                    Develop VHF and Dedicated AM Radio 0         0   00      0              0
                    Station                                   I     I       I      I
                  0 Lead          G Primary Role        0 Assist








                 80







                                                                                                                        Action Plans: Education and Outreach

                  Table 9. AgencieslOrganizations Identified for Implementing StrategieslActivities (Cont.)

                                                                                                       Agencies/Organizations
                                                                                                     Z.                               F

                                                                                     coo
                                                                                                                                             co
                                                                                                                                         10
                        Strategy/Activity                                                                                                   J
                                                                      @?
                                                                                                                       A?

                        E.7 Promotional Educational
                        Materials
                        Establish Visitor Booths/Displays to         0                0       0                                                    0
                        Distribute Educational Materials
                        Establish Interagency Visitor Center for
                        Orientation Purposes                        1    0  1 0   0   10     1        0
                      0 Lead           0 Primary Role         0 Assist
                        Abbreviations: NOAA, National Oceanic and Atmospheric Administration; USEPA, U.S. Environmental Protection Agency; NIPS, National Park Service;
                        USFWS, U.S. Fish and Wildlife Service; FDEP, Florida Department of Environmental Protection; FDOEd, Florida Department of Education; FDOS/BAR,
                        Florida Department of State/Bureau of Archaeological Resources; SAC, Sanctuary Advisory Council; NPO, Nonprofit Organizations; CH. of Com.,
                        Chambers of Commerce; TNC, The Nature Conservancy; TDC, Tourist Development Council; Btng. Imp. Fnd, Boating Improvement Fund; Citizens
                        of S. FIL., Citizens of South Florida; FK Aqua. Auth., Florida Keys Aqueduct Authority; FAD0/KADO, Florida Association of Dive Operators/Keys
                        Association of Dive Operators; OFF, Organization of Florida Fisherman; Planning Cncl., Planning Council.
                                                                                               C
                                                                                               60                         /'00
                                                                      I @? na@








                                                                                                                                                                         81







                       Action Plans: Education and Outreach

                       Table 10. Requirements for Implementation

                                                                                                                                       Implementation             /Cost to Complete
                                                                                                                                                                                          4C
                                                                                                            3@                                            0
                                                                                                                                       co           I
                                                                                                          J                                                                        G,
                                                                                                                        S 0
                                                                                                                                       Q
                                           Strategy/Activity                                         0                                 410
                                                                                                                                                          C'.

                                           COMMUNITY INVOLVEMENT/COMMUNITY PROGRAMS
                                           1E.4 Tia@fnlng,*orkshops, and                                                                                                  100-
                                           :SC060 Pi6graMS                                           'High       Medium                12+      <50%           NO         999                7
                                           Promote/Support Environmental
                                           Education in Monroe County and                            High        High                  C        100%                      10-99 sw
                                           State Schools
                                           Produce the Florida Keys                                  High        Low                   8        <50%                      <10      sw
                                           Environmental Education Directory
                                           Provide/Support Environmental                             High        Medium                C        <50%                      10-99    sw
                                           Education Workshops for Educators
                                           Provide Environmental Education for
                                           Law Enforcement Personnel                                 High        Medium                12+      <50%                      10-99    sw
                                           Sponsor/Support Adult. Environmental                      High        Medium                C        <50%                      10-99    sw
                                           Education

                                           Certification Program                                 Medium          None                  12+      <50%                      10-99    sw

                                           Provide mechanisms Outside Law
                                           Enforcement to Help Deliver On-
                                           site Resource Education

                                                                             Board,                  High        High                  6+       100%           NO         NO                 1
                                           Establish Education Advisory Board                        High        High                  6+       100%                      10-99    sw
                                           EA@ftbllt,Fonjrn                                      Medium          Low                   12+      <50%           <10        100-               2
                                           Establish a Public Meetings Program                       High        Low                   2+       <50%                      <10      sw
                                           Develop a Speakers Bureau and                             High        Low                   7+       <50%                      <10      sw
                                           Lecture Series
                                           Conduct a Poster Contest                                  Low         None                  3        <50%                      10-99    SW
                                           Conduct a Photo Contest                                   Low         None                  C        <50%                      10-99    sw
                                           -,g.11,Sp,9cIA1-Evohta                                Medium          Low                   9+       <500%          .00        10-99              5
                                                                                                 . ....... .. .
                                           Develop Trade Show Information Booths                     High        High                  C        <50%           <10        <10      sw
                                           Organize Environmental Exposition                     Medium          Low                   9        <50%                      <10      MK
                                           Conduct a Grand Opening                               Medium          None                  3        <50%                      <10      MK
                                           Implement Kid's Week                                      a urr       None                  6+       <50%                      10-99    sw
                                           Design and Implement Sanctuary
                                           Awareness Week                                        Medium          None                  9        <50%                      0-99     sw
                                                           "ilonal,111
                                           CEA N046                     e@ilopmebt,
                                           otF.du6Won,StAf1f

                                           PRODUCT DEVELOPMENT
                                           ,if.,            Materials                                High,       Low                   c        40%            <10        10-199,         '4
                                                                                                                                       . ...... ........ . ...
                                           Design and Print FKNMS Brochure                           High        High                  6        <50%           <10        10-99    sw
                                           Produce a Monthly FKNMS Newsletter                        High        Medium                C        <50%                      10-99    WW
                                           Provide Information to Shipping                           High        Low                   C        <50%                      <10      WW
                                           Businesses

                                           Provide Information to Community
                                           Leaders/Decision Makers/Organized                         High        Low                   C        <50%                      <10      sw
                                           User Groups
                                           Provide Interpretive Information to                       High        Low                   C        <50%                      <10      WW
                                           Periodicals/Publications
                                           Provide Information to Businesses                         High        Low                   C        <50%                      <10      sw
                                           I about FKNMS Resources and Act*vmtoesi                        I               I               I               I
                                           Abbreviations: Maint., Maintenance; C, Continuous; NC, No cost; WW, World Wide; SW, Sanctuary Wide; UK, Upper Keys;
                                           MK, Middle Keys; LK, Lower Keys
                                           Note: The priority levels for activities should not be compared across strategies-they only represent the relative
                                           importance of activities contained within a strategy.


                     82







                                                                                                                       Action Plans: Education and Outreach

                  Table 10. Requirements for Implementation (cont.)

                                                                                                        implementation           ost to Complete
                                                                                                                              A
                                                                                                                       -0                        4C
                                                                                       b                -0
                                                                                                                                                     to
                                                                                       40   -9
                               Strategy/Activity                                       L                               0      -91
                               PRODUCT DEVELOPMENT

                               EA Printed Materials (cont.)
                               Provide Multilingual Information to
                               Marine Rental Businesses                     High       Low              C        <50%                <10     SW

                               Distribute Educational Materials at
                               Public Boat Ramps                            High       Low              C        <50%       <10      <10     sw
                               Produce and Distribute Fact Sheet on
                               FKNMS Boating Rules, Regulations
                               and Etiquette with Annual Boat             Medium       Low              C        <50%                <10     sw
                               Registration

                               Produce FKNMS Fact Sheet for
                               Tourist Development Council                Medium       None             6+       <50%                <10     sw
                               Distribute Information regarding
                               FKNMS in Utility Bills, Newsletters,       Medium       None             C        <50%                <10     Sw
                               and Licenses/Registration

                               Provide Information to Service
                               Industries about Environmentally Safe        Low        None             C        <50%                <10     sw
                               Practices

                               Produce a Color Environmental Atlas
                               for the Sanctuary                            Low        None             12       <50%                <10     sw

                               E.2 Audio-visual Materials                 Medium       Low              3+       <,qm.      -10-99   10-99         2
                               Establish Audio and Video Library            High       Low              3        <50%                <10     sw
                               Produce Video and Audio Tapes and          Medium       Medium           C        <50%       10-99    10-99   sw
                               Theme-Oriented Slide Presentations
                               E.3 Signs/Displays/Exhibits                Medium       Low              36+      <SDQ/o,    401.9.9_ "10-99         2
                               Establish Wayside Exhibits in the
                               Florida Keys                                 High       High             6        50-74%     10-99    <10     SW
                               Establish Static Displays at                 High       Low              12       <50%                10-99   sw
                               Appropriate Locations
                               Develop Mobile Displays with
                               Information on All Aspects of the            High       Medium           36       <50%                10-99   sw
                               FKNMS Program
                               Develop Interactive Computer Stations        High       Low              12       <50%       10-99    10-99   sw
                               Establish Information 'Stations" at
                               South Florida Airports/ Car Rental and       Low        None             24       <50%                10-99   sw
                               Visitor Centers along US 1
                               Design and Install Roadside Signs            Low        Medium           9        <50%       10-99    10-99   sw
                               EX PSAs                                    Medium       Low              60+      <50%       10-9 19  1007,
                                                                                                                                     990
                               Develop a Program of PSAs                    High       Medium           C        <50%                10-99   sw
                               Develop a Media Packet                       High       Low              6+       <50%                10-99   sw
                               Develop and Produce a Series of
                               Video News Releases                          High       Low              18+      <50%       <10      10-99   sw
                               Print Marine Etiquette on Marine
                               Related Materials Packaging                  Low        None             12       <50%                <10     sw
                               Develop VHF and Dedicated AM
                               Radio Station                                High       None             60+      <50%       10-99    10-99   sw

                               Abbreviations: Maint., Maintenance; C, Continuous; NC, No cost; WW, World Wide; SW, Sanctuary Wide; UK, Upper Keys;
                               MK, Middle Keys; LK, Lower Keys
                               Note: The priority levels for activities should not be compared across strategies-they only represent the relative
                               importance of activities contained within a strategy.






                                                                                                                                                                    83






                   Action Plans: Education and Outreach

                   Table 10. Requirements for Implementation (cont.)


                                                                                                       Implementation             Cost to Complete


                                                                                                                       -0
                                                                                                       -0

                             Strategy/Activity                                                                                09
                                      *Iotl5nfial E44uwoitlahil
                                                                                                                            I i0oo-
                                                                         'M di
                                                                           6 JUM                 @V'10 '-g
                             Establish Visitor Booths/Displays to
                             Distribute Educational Materials             Medium       Low            12         <50%       <10      10-99 sw
                             Establish Interagency Visitor Center                                                           1,000-    100-
                             for Orientation Purposes                      High       None            48         <50%       5,000     999     UK
                                                                       j          I
                             Abbrevii.ations: Maint., Maintenance; C, Continuous; NC, No cost; WW, World Wide; SW, Sanctuary Wide; UK, Upper Keys;
                             MK, Middle Keys; LK, Lower Keys
                             Note: The priority levels for activities should not be compared across strategies-they only represent the relative
                             importance of activities contained within a strategy.






























































                 84







                                                  Enforcement Action Plan

                This action plan identifies and describes the                 (ASA), the Archaeological Resources Protection Act
                requirements to develop and implement an                      (ARPA), and the Migratory Bird Treaty Act (MBTA).
                enforcement plan for the Sanctuary. The plan is
                composed of two strategies: Additional Enforce-               An Enforcement Program is one of the tools available
                ment (B.6) and Cross-deputization (B. 12). For                to managers of marine protected areas. This program
                each strategy, the time required for implementa-              can complement other management programs (e.g.,
                tion, funding availability, costs, and responsible            research and education), and lead to an increased
                parties are outlined (Table 11).                              level of success. Successful enforcement in the
                                                                              Sanctuary will require a coordinated inter/intra-
                                                                              agency effort. Furthermore, it will require resource
                  Introduction                                                managers to commit to Enforcement Programs that
                                                                              are properly supervised and funded. Combined with
                NOAA's primary law enforcement objective in the               proper recruitment, training, equipment, policy, and
                Sanctuary is to achieve resource protection by                guidelines, these criteria form the basis of a profes-
                gaining compliance with the Sanctuary regulations             sional law enforcement operation.
                and other Federal and State statutes that apply within
                the FKNMS. NOAA is also concerned with effective              How the Plan is Organized. This action plan is
                enforcement of all Federal, State, and local statutes         organized into three sections: an introduction,
                that protect the natural, cultural, and historical            description of strategies, and implementation. The
                resources within the FKNMS.                                   introduction summarizes the goals and objectives of
                                                                              the interpretive Enforcement Program and provides
                Besides the NMSA, NOAA has sole or shared                     background information on planning efforts. The
                primary jurisdiction for the Magnuson Fishery Con-            strategy description section groups activities by
                servation and Management Act (MFCMA), the                     strategies. For each strategy and component activity,
                Atlantic Tunas Convention Act (ATCA), the Marine              funding availability, costs, and timing of implementa-
                Mammal Protection Act (MMPA), the Endangered                  tion are presented. It also describes how strategies in
                Species Act (ESA), and the Lacey Act (LA), all of             the plan will be placed into action. The implementa-
                which apply to resources residing within or transiting        tion section summarizes the requirements for Sanctu-
                through the FKNMS. In addition, numerous State and            ary enforcement.
                local laws will be enforced as part of the Sanctuary's
                integrated enforcement effort. How effectively these
                laws are enforced within and around the FKNMS will
                affect the success of Sanctuary management in
                conserving and protecting the resources.                      Since 1980, the Enforcement Programs and all other
                                                                              management programs at the two Florida Sanctuar-
                Among Federal conservation laws enforced primarily            ies have been fully funded through a cooperative
                by other agencies, but of concern to NOAA, are the            agreement with the State of Florida. The seven
                Oil Pollution Act (OPA), the Clean Water Act (CWA),           Sanctuary officers currently working in the Key Largo
                the Marine Plastic Pollution Research and Control             and Looe Key National Marine Sanctuaries are State
                Act (MPPRCA), the Abandoned Shipwreck Act                     employees. Sanctuary officers are assigned to the





                                                                                                                                        "AW












                                                                                                                                        85







              Action Plans Enforcement

              FDEP's Division of Law Enforcement, Florida Marine                water patrols and routine vessel boardings and
              Patrol (FMP) with their supervision coordinated                   inspections Water patrols will ensure that users of
              among NOAA, Florida Division of Marine Resources                  Sanctuary resources are familiar with the regulations,
              (FDMR), and the FMP In addition to State laws and                 deter willful or inadvertent violations of the law, and
              local ordinances, Sanctuary officers have statutory or            provide quick response to violations and/or emergen-
              delegated authority to enforce the NMSA and other                 cies Sanctuary officers have the capability to investi-
              statutes administered by NOAA                                     gate, document, and assess Sanctuary violations

              Enforcement Philosophy The Law Enforcement                        Sanctuary officers practice a form of law enforcement
              Program of the FKNMS is an essential component of                 known as "interpretive enforcement " This style of
              resource protection within the Sanctuary A goal of                enforcement seeks voluntary compliance primarily
              Sanctuary enforcement is to prevent resource                      through education of users Interpretive law enforce-
              impacts This preventive enforcement is best                       ment emphasizes informing the public through
              achieved by maintaining sufficient patrol presence                educational messages and literature about respon-
              within the Sanctuary to deter violations and by                   sible behavior, before they adversely impact Sanctu-
              preventing, through education, inadvertent violations             ary resources On-site techniques are currently used
              of the law Successful enforcement relies on frequent              to reach the public with educational messages at the


                 Enforcement Assets

                 Current enforcement within the FKNMS relies on a               Officers are equipped with high performance vessels
                 State-Federal partnership, utilizing all available             obtained from U.S. Customs seizures and provided by
                 enforcement assets of several agencies. The State of           NOAA Each vessel is equipped with electronic equip-
                 Florida, Florida Marine Patrol (FMP), Florida Park             merit (e.g. LoraR VHF radio, low band State and
                 Service (FPS), NOAA, U.S. Coast Guard (USCG), and              Federal radio) and emergency response equipment.
                 the; U.S. Fish and Wildlife Service (FWS) have person-
                 nel operating in the FKNMS with statutory or delegated         IVOAA (Office of Enforcement). NOAA currently has one
                 auih,@rity to enforce State laws, the National Marine          Special Agent assigned to the Florida Keys and another
                 Sanctuaries Act (NMSA), other NOAA statutes, and               assigned to Miami. Both Agents are assigned to the ,
                 other acts. The National Park Service (NPS) has                National Marine Fisheries Service (NMFS), but provide
                 enforcement personnel in'areas bordering the FKNMS,            assistance to the Sanctuary enforcement effort on an
                 Land-based enforcement officials work for the Monroe           as-needed basis. Special Agents provide training to
                 County Sheriff's Office, the U.S. Army Corps of                Coast Guard personnel and FMP officers in the enforce-
                 Engineers (ACOE), U.S. Customs, and Florida Game               ment of some NOAA statutes, primarily the MFCMA, the
                 and,Fresh Water Fish Commission (FGFWFC). Other                MMPA, and the ESA. NOAA has assigned a Sanctuary
                 'Federal and State law enforcement agencies have               Special Agent with specific responsibilities for Sanctuary
                 officers based in the Keys, but do not regularly interact      enforcement to the FKNMS The Sanctuary Agent will
                 with Sanctuary officers. Some of these include: the            be responsible for ensuring that NOAA!s enforcement,
                 State of Florida Department of Transportation; Drug            needs are met by the agencies funded throughdoopera-
                 Enforcement Agency; and Bureau of Alcohol, Tobacco,            tive agreements for enforcement activity within the
                 and Firearms.                                                  Sanctuary. The Office of Enforcement has Agents
                                                                                assigned throughout Florida,'and in southern Georgka,
                 A summary of the general enforcement assets for                who are available for special operations within the
                 agencies conducting enforcement activity within the            FKNMS on an as-needed, as-avaitable basis.
                 FKNMS is as follows-
                                                                                Florida Madhe Patrol. The FMP has an authorized force
                 Sanctuary Enforcement Officers. Currently seven,               of 45 sworn enforcement officers and support personn6t
                 Sanctuary Officers, funded Py NOAA through an                  assigned to the district that includes the FKNMS. The
                 wasting cooperative agreement, enforce regulations in          FMP has available for Sanctuary enforcement small
                 the FKNMS. These are sworn, arms-bearing State of              vessels for inshore patrols, a 50-foot patrol boat for
                 Florida Law Enforcement Officers who are deputized to          offshore patrols, and a single engine sea plane. The
                 enforce the NMSA, the Magnuson Fishery Conserva-               FMP also maintains a response team that includes
                 Von and Management Act (MFCMA), the Marine                     divers who can assist in damage assessment efforts.
                 Mammal and Protection Act (MMPA), and the Endan-               FMP uses an 800 MHz communications system to
                 gered Species Act (ESA), as well as all State taws.            enhance enforcement effectiveness,

                 Sanctuary Officers report directly to an FMP Sanctuary         Under an interagency agreement with NOAA, all sworn
                 Lieutenant, who in turn coordinates enforcement                FMP officers will be deputized to enforce the NMSA
                 activities with the Sanctuary Agent and FMP Sanctuary          inside the FKNMS, as well as other NOAA statutes

                   . . ...........


              86









                                                                                                                               Action Plans Enforcement

                   existing sanctuaries For example, Sanctuary officers                      coastal resources In so doing, these laws strengthen
                   talk with users and distribute brochures in the field                     law enforcement capabilities by allowing agencies to
                   These encounters allow officers to make direct,                           build on each other's expertise and share physical
                   informative contact with visitors, while conducting                       resources Federal, State, and local agencies in the
                   routine enforcement activity In addition, Sanctuary                       Keys are implementing this process of integrating
                   officers are called upon to deliver interpretive pro-                     efforts In addition, local residents and frequent
                   grams both on-site and throughout the community                           Sanctuary users are helping by detecting and report-
                   Sanctuary officers will continue to perform interpre-                     ing various violations and groundings, monitoring
                   tive law enforcement within the FKNMS                                     water quality, and submitting witness statement
                   Integrating Enforcement Efforts Across the nation,                        forms that document Sanctuary violations
                   Federal, State, and local agencies are increasingly                       The success of Sanctuary enforcement depends
                   joining forces and targeting whole coastal ecosys-                        largely on how well the enforcement entities in the
                   tems including rivers, bays, estuaries, and coastlines                    Keys are coordinated Because of limited resources
                   for comprehensive management and enforcement                              at the Federal, State, and local levels, current
                   actions Federal, State, and local laws provide                            enforcement assets must be targeted and used in an
                   government agencies with a variety of tools to protect                    efficient and directed effort to achieve compliance




                        within and outside the Sanctuary boundaries. FMP                     natural resources under the Oil Pollution Act of 1990,
                        officers also enforce a variety of State statutes related            the Rivets and Harbors Act of 1899, the Deepwater
                        to resource protection and public safety.                            Port Act, the Clean Water Act of 1977, and the Marine
                                                                                             Plastic Pollution Research and Control Act.
                        National Park Service The NPS; has enforcement
                        personnel stationed at Key Biscayne National Park,                   Department of Environmental Protection, Florida Park
                        Everglades National Park and Dry Tortugas National                   Service. State parks in the Keys are unique in that
                        Park. All three areas share boundaries with the                      their boundaries, including any waters they protect
                        FKNMS NPS; enforcement personnel will be deputized                   are incorporated into the FKNMS boundaries. Florida
                        to enforce NOAA statutes.                                            Park Service officers are under the DEP Division of
                                                                                             Law Enforcement and have the same jurisdiction as
                        U.S. Fish and Wildlife Service. Along with NOAA                      the Florida Marine Patrol. The officers conduct regular
                        Special Agents, FINS Special Agents and officers have                water patrols within park or aquatic preserve bound-
                        statutory authority to enforce the MMPA, ESA, the                    aries and may be available for assistance when
                        Bald and Golden Eagle Protection Act, and the Lacey                  necessary,
                        Act. FWS also enforces the MBTA and other resource
                        conservation laws within the boundaries of the                       John Pennekamp Coral Reef State Park (JPCRSP)
                        FKNMS. FWS has five officers stationed in the area of                has a small land base with water boundaries extend-
                        the FKNMS who will be deputized to enforce the                       ing from mean high tide out to the three-mile limit. The
                        NMSA                                                                 park borders Biscayne National, Park to the north and
                                                                                             extends approximately 22 miles south. JPCRSP's
                        United States Coast Guard. The USCG Seventh                         three-mile limit boundary is imediateiy adjacent to
                        District has responsibility for the area which includes              the boundaries of, the Key  Largo national Marine
                        the FKNMS. The Coast Guard has general law                          Sanctuary. The boat fleet for JPCRSP consists of
                        enforcement. authority within the maritime jurisdiction             research vessels and patrol boats. The officers patrol
                        of the United States ,-Coast Guard law enforcement                   the park waters on a regualar basis
                        patrols are usually,multi-mission in nature, although
                        patrols often emphasize enforcement of particular                  Monroe County Sheriffs office (SO) although the SO
				statues. Typically, the Coast Guard deperids on those 		 is primarly land based they reguraly use three boats
				agencies with specialized expertise to provide their			 for water patrol in excess of 16 patrol hours per month.
				patrol units with training and support in the conduct of		 The SO willingly assists the FMP in special events
				lAw enforecemnt activities.							 (e.g. Boat races or movies) and the opening day of
															  lobster season, and has jurisdictin within state
				Within the FKNMS, the Coast Guard conducts				  waters, The officers have crossover training with U.S
				between 2,400 to 2,500 hours of surface patrols and			  customs, There are currently three environmental
				200 to 300 hours of aerial patrols per year dedicated to		   officers, three to five person dive teams available for
				enforcement.									   emergency response and tow planes for aenal patrol.

                        The..Coast Guard also has a primary role In protecting

                                                                                                                                                             87
 







              Action Plans: Enforcement

              with existing (Federal, State, and local) and proposed         success of the Sanctuary enforcement effort depends
              regulations. Consequently, the coordination of                 on the level of cooperation among Sanctuary man-
              enforcement assets will be an integral component of            agement and the enforcement staff. This kind of
              the continuous management process described in                 cooperative enforcement is not a new concept in the
              this Plan. Interagency agreements among NOAA and               FKNMS. From the outset, all enforcement in the Looe
              the other enforcement entities in the Keys (National           Key and Key Largo National Marine Sanctuaries has
              Park Service (NPS), U.S. Coast Guard (USCG), U.S.              been conducted by State law enforcement officers,
              Fish and Wildlife Service (FWS), Florida Department            under the direction of NOAA and State managers.
              of Environmental Protection (FDEP), including
              Florida Park Service (FPS) and Florida Game and                Operational Considerations. The Sanctuary Agent
              Fresh Water Fish Commission (FGFWFC)), are                     is stationed at the Marathon office. The seven current
              being established to ensure a cooperative and                  Sanctuary officers will be assigned to patrol the
              integrated enforcement operation.                              Upper, Middle, and Lower Keys, with emphasis
                                                                             placed on patrols in the Sanctuary Preservation
              A clear vision of the interagency mission and an               Areas and Ecological Reserves. Patrol priorities will
              understanding of the assets and resources currently            be based primarily on the protection of resources as
              available for an interagency effort to manage Sanctu-          opposed to user conflicts.
              ary resources is essential to successfully managing            The Sanctuary officers will be stationed in the Upper,
              the FKNMS. An assessment of existing Federal,                  Middle and Lower Keys. Each officer (current and
              State, and local enforcement assets in the Keys will           future) will be ouff itted with a vehicle, a patrol boat,
              be conducted. This assessment will develop detailed            and all required law enforcement equipment (weap-
              information about the number of officers, vessels,             ons, etc.).
              and equipment available by agency to protect
              resources within the Keys. This is essential informa-          Currently, the annual cost to NOAA for the Enforce-
              tion to determine the capabilities of enforcement              ment Programs at the Key Largo and Looe Key
              operations within the Keys.                                    National Marine Sanctuaries is $610,000. This figure
              Conduct of the Enforcement Program. Sanctuary                  does not include the purchase cost of patrol vessels,
              enforcement operations are a major component of                but does include operations and maint      enance costs.
              Sanctuary management. A NOAA/National Marine                   Enforcement Program Review As part of the
              Fisheries Service (NMFS) Special Agent (Sanctuary              continuous management process, an enforcement
              Agent) will serve as coordinator of the operational            review program will be established for the Sanctuary.
              Enforcement Program on behalf of, and working in               This program will ensure that management issues
              close consultation with, the Sanctuary Superihten-             are being addressed by all agencies involved in
              dent. The Sanctuary Agent is provided through an               Sanctuary enforcement, and that the proper training
              existing memorandum of understanding between the               and marine resource identification and protection
              Assistant Administrator for Fisheries and the Assis-           information is reaching the enforcement staff.
              tant Administrator for Ocean Services and Coastal
              Zone Management. The Sanctuary Agent will coordi-              Background
              nate operational enforcement with all participating
              agencies through their respective chains of com-               Management Strategies. The strategies for the
              mand. Enforcement will be conducted in accordance              Management Plan, which includes the Enforcement
              with enforcement operations plans, to be developed             Action Plan and all other action plans combined,
              by NOAA's Off ice of Enforcement and approved by               have been grouped into three priority levels, based
              Sanctuary management. Enforcement operations                   on their relative importance or feasibility. A strategy's
              plans, subject to revision as necessary, will include          priority level is based on factors such as available
              enforcement priorities, patrol schedules, procedures           funding, costs, personnel requirements, timing, levels
              for documenting violations, boarding procedures,               of existing implementation, and existing legislative/
              information needs, and other instructions specific to          regulatory authority. The high priority level includes
              the conduct of day-to-day enforcement.                         the 16 most important strategies., The medium
                                                                             priority level contains 36 strategies that represent the
              The Sanctuary Agent will coordinate patrol sched-              next level of importance to the sanctuary and will
              ules, enforcement priorities, and other related                have some level of activity in year one. Low priority
              enforcement matters with the Sanctuary Lieutenant.             items contain the remaining strategies in the Man-
              The Agent will in turn coordinate with the Sanctuary           agement Plan. Those strategies planned for comple-
              officers through their FMP chain of command. The               tion in or before year one do not have a priority level.

              88








                                                                                                               Action Plans: Enforcement

                 Enforcement Action Plan Strategies. This action                        ments, and joint operations plans with other
                 plan contains only two strategies. The Additional                      enforcement agencies as appropriate;
                 Enforcement (B.6) and Cross-deputization (B.12)
                 strategies are included in high priority level (Table                 *facilitate communication among enforcement
                 13). Overall, the Enforcement and the Cross-                           assets to avoid duplication of effort;
                 deputization strategies will have a low level of
                 implementation within the first year of Sanctuary                     epromote cooperation, standardization of gear,
                 operation.                                                             and coordination of limited resources such as
                                                                                        vessels, radios, radio frequencies, and train-
                 Program Objectives                                                     ing;

                 The objective of enforcement in the National Marine                   *promote training and cross-deputization
                 Sanctuary Program is to protect Sanctuary resources                    among enforcement agencies;
                 by achieving compliance with the applicable laws.               Community Involvement
                 Effective enforcement of all Federal, State, and local
                 statutes that protect the natural, cultural, and histori-              encourage public involvement by encouraging
                 cal resources within the Sanctuary is required. The                    site-specific interpretive patrols by volunteer
                 principal goals associated with Sanctuary enforce-                     groups;
                 ment include:
                      ï¿½ increasing the public's understanding of why it                 involve USCG, Civil Aeronautical Patrol,
                        is important to comply with Sanctuary regula-                   power squadrons, charter boat and fishing
                        tions;                                                          organizations in promoting compliance with
                                                                                        Sanctuary regulations;
                      ï¿½ achieving voluntary compliance with applicable                 *maintain an active relationship with citizen
                        laws; and                                                       groups interested in compliance with Sanctu-
                      ï¿½ promoting public stewardship of the marine                      ary regulations;
                        resources through interpretive enforcement                     *conduct a community outreach program to
                        efforts.                                                        encourage compliance with Sanctuary regula-
                                                                                        tions and citizen involvement in reporting
                 The mechanisms for accomplishing these goals are                       violations;
                 as follows:
                 Agreements/Copperative Efforts                                         establish a Sanctuary Auxiliary Officer Pro-
                                                                                        gram similar to other enforcement auxiliaries;
                      ï¿½ strengthen the existing enforcement partner-             Education
                        ship with the State of Florida;
                                                                                       *emphasize education as a tool to achieve
                      ï¿½ develop partnerships with other Federal and                     compliance with regulations;
                        local enforcement agencies in order to provide
                        a strong enforcement presence throughout the                   epromote voluntary compliance and steward-
                        Sanctuary;                                                      ship of the general public through specific
                                                                                        outreach programs regarding enforcement of
                      ï¿½ maintain an active relationship with interna-                   Sanctuary regulations;
                        tional, Federal, State, and local enforcement
                        agencies to identify areas of mutual concern,                  otrain user groups about regulations and
                        and to develop cooperative responses to                         procedures for reporting violations (witness
                        enforcement issues;                                             statement forms);

                      ï¿½ explore cooperative relationships with foreign                 eidentify major user groups and develop and
                        governments;                                                    disseminate specific materials to these groups
                                                                                        through semiannual meetings and workshops;
                      ï¿½ enter, if necessary, into memoranda of under-
                        standing, cooperative enforcement agree-



                                                                                                                                          89








           Action Plans: Enforcement

            Operations

                ï¿½ maintain an investigative capability to ensure
                 quick response to purposeful unlawful acts;

                ï¿½develop and maintain the capability to effec-
                 tively respond to violations of Sanctuary
                 regulations and to emergencies;

                ï¿½establish an Enforcement Advisory Committee
                 consisting of relevant regional law enforcement
                 organizations (possibly a reorganization of the
                 Environmental Enforcement Task Force-and
                 the Upper Keys Emergency Response Task
                 Force);

                ï¿½develop enforcement operation plans that
                 identify specific enforcement strategies and
                 priorities and outline the best means of achiev-
                 ing them; and

                ï¿½develop regulations for the FKNMS that are
                 comprehensible to the general public and are
                 easily enforced.



































           90








                                                                                                                 Action Plans: Enforcement

                                                                                  Activity 1-Hire the Sanctuary Agent The National
                  Description of Strategies                                       Marine Fisheries Service's (NMFS) Office of Enforce-
                                                                                  ment has assigned to the FKNMS headquarters a
                                                                                  NOAA/NMFS Special Agent (Sanctuary Agent) to
                 ,,,E f r:       e
                       ohicim" nt'Progrii":
                                                                                  coordinate operational enforcement within the
                                                                                  FKNMS. Working in close cooperation with the
                 The Enforcement Action Plan contains two manage-                 Sanctuary Superintendent, regional managers and
                 ment strategies. The first strategy (B.6) calls for              representatives from the FMP, the USCG, and, when
                 increasing the enforcement assets by 30 officers,                appropriate, the NPS and FWS, the Agent will
                 identifying high-use and sensitive areas, and devel-             develop annual enforcement operations plans,
                 oping remote observation techniques to aid enforce-              including necessary revisions and updates of the
                 ment efforts. The second strategy (B.12) will enhance            plan throughout the year. These plans will include a
                 existing enforcement efforts by cross-deputizing                 summary of relevant regulations; a planned patrol
                 officers from different agencies, developing standard            schedule to include the number, type, frequency, and
                 operating procedures, and establishing a training                geographic area of the patrols; the priority for each
                 program. These strategies will essentially provide the           patrol; and a response protocol for each type of
                 resources necessary to achieve compliance with                   violation. The Agent will also-
                 applicable regulations.
                                                                                       * ensure that case reports of violations of the
                                                                                         NMSA or other NOAA statutes are complete
                    'E f
                         broomont-Strategies                                             and meet prosecutorial requirements before
                                                                                         forwarding them to the NOAA general counsel;
                          AdId'jitil'onal Enforcement
                                              t
                         is'Sanctuary agen
                                                                                       * ensure that all officers enforcing NOAA stat-
                                i.gh-use,and sensitive areas
                                                                                         utes within the FKNMS are properly deputized
                                    al enforcement officer&
                            lb, -'remb                                                   and have up-to-date training; and
                                         observatioh"techniques to
                                      te
                           nf6icement efforts
                                                                                         serve as NOAA's point of contact within the
                    ISA'2:  Crost-de0itization                                           FKNMS for operational enforcement with other
                 W
                   'U
                 ,_= -   11                                            1   _- I          federal and state enforcement agencies. In this
                  .@
                   'A
                            op-linter-agency acireements
                                                                                         role, the Sanctuary Agent will facilitate commu-
                       OV616p sf@ndardb         ratin     ced'      ,
                                            'Pe      0 Pro     wes
                                                                                         nication among all enforcement participants.
                    *,@,DeVelop a standardized training Program
                                                                                  wimplementation. The Sanctuary Agent has been
                                                                                  assigned to the Sanctuary by the Office of Enforce-
                                                                                  ment (NMFS).
                                       Strategy 13.6:                             mSchedule. This activity has been completed.
                              Additional Enforcement
                                                                                  Activity 2-1dentify High-use and Sensitive Areas.
                 Need 30 Sanctuary enforcement officers to deploy in              Because of the size of the Sanctuary, enforcement
                 high-use and sensitive areas.                                    officers (including new hires) will be assigned
                 (Priority Level High, Low Level of Action in Year 1,             primarily to high-use and sensitive areas, with
                 36+ Months to Complete, <50% Funding for Full                    priorities based on the protection of resources over
                 Implementation)                                                  the resolution of user conflicts. These areas may
                                                                                  include all or some of the Sanctuary zones (Sanctu-
                 This strategy will increase the presence of law                  ary Preservation Areas, Ecological Reserves, Wildlife
                 enforcement officers (LEO) on the water to protect               Management Areas, Special-use Areas, and Existing
                 resources and reduce user conflicts. This will be                Management Areas), as well as other areas of
                 accomplished by hiring 30 more LEOs and deploying                particular natural/cultural resource significance.
                 them in high-use and sensitive areas. Remote                     Determination of sensitive cultural significance is part
                 observation techniques may be used to aid enforce-               of the SCR inventory objective. High-use and
                 ment efforts. High-use and sensitive areas will be               sensitive areas must be identified prior to assigning
                 identified.                                                      additional enforcement officers to cover these areas.
                                                                                  T.his is critical, because new officers will be phased
                                                                                  in over a multi-year period.

                                                                                                                                                91







              Action Plans: Enforcement

              Sanctuary managers must assess the law enforce-                oSchedule. This activity will have no action in year 1.
              ment needs of the areas they manage. The costs of              It will require 36 months to complete.
              training, retraining, firearms qualifications, equip-
              ment, maintenance, and the staff necessary to
              manage a program must be considered when                                           Strategy B.12:
              assessing the law enforcement needs of the Sanctu-                             Cross-deputization
              ary.
              Resources should be inventoried, and priorities                Expand Federal, State, and local enforcement and
              assigned to their protection, based on an assessment           cross-deputization programs and prioritize enforce-
              of their significance and vulnerability. The numbers of        ment areas.
              visitors, visitor demographics, average length of stay,        (Priority Level High, Low Level of Action in Year 1,
              length of commercial and recreational seasons,                 36+ Months to Complete, 75-99% Funding for Full
              seasonal variations, and visitation trends all greatly         Implementation)
              affect the amount and type of law enforcement
              services required. The variety and impacts of public           Activity 1-Develop Interagency Agreements
              use and special events or seasons are major influ-             Establishing Cross-agency Enforcement Author-
              ences on the scope of the Sanctuary's Enforcement              ity. A prerequisite to effective Sanctuary enforcement
              Program. Access, circulation patterns, and high-use            is the establishment of interagency agreements with
              areas all have significant impacts on the Sanctuary's          various enforcement entities in the Keys. These
              Enforcement Program. Recent overflight surveys will            agreements will set forth Federal, State, and local
              provide data to assist in identifying high-use and             enforcement authority among all officers. It is antici-
              sensitive areas needing specific enforcement efforts.          pated that officers with the following organizations
                                                                             will be cross-deputized
              mImplementation. NOAA will be the lead agency
              responsible for implementing this activity. The FMP            National Marine Fisheries Service. As a result of a
              will assist in identifying high-use and sensitive areas        March 1993 agreement between the National Ocean
              and enforcement levels.                                        Service (NOS) and NMFS, the Sanctuary Agent
                                                                             (Office of Enforcement, NMFS), in close consultation
              mSchedule. This activity will have a low level of              with the Sanctuary Superintendent and the Sanctuary
              activity in year 1. It will require 6+ months to com-          Lieutenant, will coordinate all enforcement operations
              plete.                                                         within the FKNMS.

              Activity 3-Hire Additional Enforcement Officers.               Florida Marine Patrol. The Sanctuary enforcement
              Once high-use and sensitive areas are identified, an           staff at the Key Largo and Looe Key national marine
              adequate level of enforcement must be determined               sanctuaries are supervised by the FMP under an
              and the corresponding officers hired. Given current            agreement that allows these officers to enforce
              funding limitations, additional -officers will be phased       NMSA and other NOAA statutes. A new interagency
              in over a multi-year period.                                   agreement will allow all other FMP officers to enforce
                                                                             statutes that apply within the entire Sanctuary,
              mImplementation. NOAA will be the lead agency                  including the NMSA and other relevant Federal
              responsible for implementing this activity.                    statutes. As such, FMP officers (Sanctuary and non-
                                                                             Sanctuary officers) will be the primary enforcement
              mSchedule. This activity will have a low level of              asset in the Sanctuary.
              activity in year 1. It will be continuous.
                                                                             Note: The enforcement abilities of the Department of
              Activity 4-Develop Remote Observation Tech-                    Environmental Protection's Division of Law Enforce-
              niques to Aid Enforcement Efforts. Floatplanes,                ment are subject to the operational parameters of
              tethered aerostats, etc. may be used to aid enforce-           that law enforcement entity, and may be limited by
              ment efforts.                                                  the levels of staffing and funding proposed by this
                                                                             plan. Accordingly, the designation of the FMP as the
              SIMplementation. NOAA will be the lead agency                  primary enforcement asset in the Sanctuaty may be
              responsible for implementing this activity, with the           subject to change.
              assistance of other enforcement agencies.



              92








                                                                                                     Action Plans: Enforcement

               Interagency agreements are being established              Program. A training program will be developed to
               between NOAA and the following entities to allow          enable various enforcement agencies to educate
               their officers to enforce NMSA and other statutes         each other about their respective statutes and codes.
               administered by NOAA:
                                                                         mimplementation. NOAA's Sanctuary Agent and the
                   ï¿½ U.S. Coast Guard;                                   Sanctuary Superintendent and/or education staff will
                                                                         be responsible for implementing this activity by
                   ï¿½ U.S. Fish and Wildlife Service;                     developing a standard training course on the enforce-
                                                                         ment of the NMSA, MFCMA, MMPA, and ESA. The
                   ï¿½  National Park Service;                             Sanctuary should also coordinate with the National
                                                                         Park Service and other federal/state training pro-
                   ï¿½  Florida Department of Environmental Protec-        grams on enforcement of archaelogical and historic
                      tion (Florida Park Service); and                   preservation laws. The FMP will be responsible for
                                                                         developing a course on the Florida statutes and
                   ï¿½  Florida Game and Fresh Water Fish                  Monroe County codes.
                      Commission.
                                                                         oSchedule. This activity has no action planned for
               nimplementation. NOAA is the lead agency respon-          year 1. It will require 36+ months to complete.
               sible for establishing interagency agreements with
               the agencies listed above.

               oSchedule. This activity has a high level of action
               planned for year 1. It will require 12+ months to
               complete.

               Activity 2-Develop Standard Operating Proce-
               dures. This will increase the efficiency and effective-
               ness of enforcement efforts. It will establish coordina-
               tion and cooperation among agencies and increase
               interagency communication by:

                   ï¿½ scheduling staff and equipment efficiently
                      among all agencies;

                   ï¿½  developing a process for handling violations;

                   ï¿½  standardizing radio communications (i.e., use
                      of a standard radio frequency);

                   ï¿½  promoting cooperation with the military in
                      detecting violations; and

                   ï¿½  determining priority enforcement areas (estab-
                      lishing interagency agreements and identifying
                      priority areas are prerequisites).

               mimplementation. NOAA's Sanctuary Agent will be
               responsible for implementing this activity by coordi-
               nating with affected agencies.

               mSchedule. This activity has no action planned for
               year 1. It will require 24 months to complete.

               Activity 3-Develop a Standardized Training



                                                                                                                            93








                  Action Plans: Enforcement

                                                                                                  Table 12. AgencieslOrganizations Identified for
                   Implementation                                                                            Implementing StrategieslActivities
                  This section summarizes key information about                                                                               Agencies/Organizatio.nsi
                  the implementation of the strategies included in
                  this plan. The institutions responsible for each
                  activity, and those agencies providing some level                                                                                                  10
                  of assistance, are identified (Table 12). The
                                                                                                  Strategy/Activity                                            LE
                  strategies are also ranked to indicate their overall                            .ENFORCEMENT PROGRAM
                  priority level. In addition, the planned level of
                  activity in year 1, months required to complete,                                B.6 Additional Itntorcernint,
                  funding availability, cost estimates, staff require-                            Hire the Sanctuary Agent
                  ments, and the geographic focus of each strat-                                  Identify High-use and Sensjtve
                  egy1activity are provided (Table 13). Finally, the                              Areas                                   00      0000             0
                  process used to evaluate the effectiveness of the                               Hire Additional Enforcement             00                   0
                  program as it evolves over time is presented.                                   Officers
                                                                                                  Develop Remote Observation
                  The strategies in this plan will have a low level of                            Techniques to Aid Enforcement               0   000          0   0
                  action during the first year. Funding will be a major                           Efforts
                  consideration, given that many different agencies will                                 Cross-deputizzition
                  be involved to different degrees.                                               Develop Interagency Agreements 0 Q              000          0   0
                                                                                                  Develop Standard Operating
                  Responsible Institutions. NOAA will be the lead                                 Procedures                              0   0   000          0   0
                  agency responsible for implementing the activities                              Develop Standardized Training           0   0   00.0         OP
                  within this action plan. However, the success of the                            0 Lead         0 Primary Role          0 Assist
                  Enforcement Program depends on the cooperation of                               Abbreviations: NOAA, National Oceanic and Atmospheric Administration;
                  other State and Federal agencies, primarily the                                 NMFS, National Marine Fisheries Service; FWS, U.S. Fish and Wildlife
                  FDEP, FMP, FPS, FGFWFC, USFWS, USCG, NPS,                                       Service; USCG, U.S. Coast Guard; NPS, National Park Service; FDEP,
                  and Monroe County.                                                              Florida Department of Environmental Protection; FMP, Florida Marine Patrol.

                  Prioritization of Implementation. Because of their                                     oversee the enforcement officers. This plan
                  importance, the Cross-deputization strategy and the                                    calls for the hiring of up to 30 additional
                  Additional Enforcement strategy are included in high                                   enforcement officers.
                  priority level. Consequently, they are included
                  among the highest-ranking strategies in the Manage-                             Equipment. If 30 additional officers are hired, each
                  ment Plan.                                                                      will require a high performance vessel. Each officer
                                                                                                  will have to be equipped with enforcement gear at
                  Cost The costs associated with implementing this                                approximately $1,500 per officer. Each officer must
                  action plan are estimated to be significant (up to $1                           initially attend the FMP Law Enforcement Academy
                  million in capital costs and an additional $1 million for                       and then participate in the Academy's annual training
                  operation and maintenance costs). These costs are                               program.
                  primarily associated with hiring additional officers
                  (i.e., salaries and equipment), and will be distributed                         Evaluating Program Effectiveness and Efficiency.
                  among the participating institutions. The funding will                          A system will be designed for evaluating the effec-
                  come primarily from the various Federal agencies'                               tiveness of enforcement efforts. Evaluating efficiency
                  enforcement budgets and State funds.                                            will be done on a monthly and annual basis on both a
                                                                                                  regional and Sanctuary-wide scale. The regional
                  Geographic Focus. Each strategy in this plan will be                            managers will assess enforcement efforts in known
                  implemented throughout the Sanctuary.                                           hot spots and coordinate enforcement coverage
                                                                                                  accordingly. On a yearly basis, the heads of the
                  Staff. A staff of two full-time Sanctuary personnel                             various enforcement agencies will meet to discuss
                  (including the Sanctuary Agent) will be needed to:                              enforcement issues, including whether heavily used
                                                                                                  and sensitive areas are being adequately patrolled.
                         coordinate the interaction of the various
                         enforcement assets in the Sanctuary; and


                  94







                                                                                                                                                                    Action Plans: Enforcement

                         Table 13. Requirements for Implementation

                                                                                                                            Implementation                   /Cost to Complete
                                                                                                    K.
                                                                                                                                                 -0                               40
                                                                                                                                -0
                                                                                                              a                             pD
                                                                                                           g
                                                                                                           j.;py
                                      Strategy/Activity

                                      ENFORCEMENT PROGRAM

                                                                                                                                                        I oor@@     4M
                                      8.6 Additional                                          High         LOW              3$+           <50%                                      30
                                                                                                                                          -      1      909"'.-1    - 909-   , . .11    11
                                      Hire the Sanctuary Agent                                                                             100%          0          10-99    sw
                                      Identity High-use and Sensitive Areas                   High         Low              6+           75-99%          0          <10      sw
                                      Hire Additional Enforcement Officers                  Mediurr        Low              C             <50%          100-        100-
                                                                                                                                                        999         999      sw
                                      Develop Remote Observation
                                      Techniques to Aid Enforcement Efforts                   Low          None             36+           <50%         10-99        10-99    SW
                                      BJZ'Crose-deptA               on                        -@Hlgh       LOW              36+          76-99%         '410        10-09           -51,
                                      Develop Interagency Agreements                          High         High             12+          75-99%          0          <to      sw
                                      Develop Standard Operating
                                      Procedures                                            Medi           None             24+           <50%           0          <10      sw
                                      Develop Standardized Training Program M dlu@                         N a              36+           <50%           0          <10      sw
                                      L_                                                                             L
                                      Abbreviations: C, Continuous; SW, Sanctuary Wide; Maint., Maintenance.
                                      + Activities with an     for Overall Sanctuary Priority Level will be completed prior to Year 1.
                                                                                                 7

























                                                                                                                                                                                                         95






                                                Mooring Buoy Action Plan


                This action plan identifies and describes the                strategy and component activity, the priority level,
                strategies needed to develop and implement a                 funding availability, costs, and timing of implementa-
                comprehensive mooring buoy siting plan for the               tion are summarized. The implementation section
                Sanctuary. The strategies within the plan are                details how strategies in the plan will be placed into
                derived from Alternative Ill, the most balanced of           action.
                the mid-range management alternatives. For each
                                                                                                                                . ......... ..
                funding availability, costs, and responsible
                strategy, the time required for implementation,
                                                                                                       NO
                parties are outlined. Table 14 summarizes key
                information about the implementation of the                  Management Strategies. Each strategy in the action
                strategies included in this plan.                            plan has been assigned an estimated activity level for
                                                                             year 1 (high, medium, low, or none) which represents
                                                                             an estimate of the planned level of action that will
                 Introduction                                                occur in the year after the Sanctuary Management
                                                                             Plan is adopted. In addition, the time required for
                Mooring buoys have been shown to be an effective             implementation, costs of implementation, and avail-
                management tool when used to minimize the dam-               able funding (Federal, State, local, and private) have
                age to coral reefs and other sensitive marine re-            been estimated for each strategy. The component
                sources resulting from careless and/or inappropriate         activities in each strategy, and the institutions re-
                anchoring practices. A system of mooring buoys is            sponsible for implementing these activities, have
                already in use in the Keys through the efforts of Key        been identified as well.
                Largo and Looe Key national marine sanctuaries and           The strategies for the Management Plan, which
                several volunteer groups, most prominently Reef              includes the Mooring Buoy Action Plan and all other
                Relief in Key West. However, concerns that the               action plans combined, have been grouped into three
                inappropriate use of mooring buoys may have the              priority levels, based on their relative importance or
                potential to negatively impact marine resources by           feasibility. A strategy's priority level is based on
                attracting more boaters, divers, and fishermen than          factors such as available funding, costs, personnel
                would have previously used the areas where they are          requirements, timing, levels of existing implementa-
                placed have been raised recently. This plan will             tion, and existing leg islative/regu latory authority. The
                establish a methodology for identifying areas appro-         high priority level includes the 16 most important
                priate for locating mooring buoys and managing               strategies. The medium priority level contains 36
                boating activities near coral reefs so that the negative     strategies that represent the next level of importance
                impacts will be minimized.                                   to the sanctuary and will have some level of activity
                How the Plan is Organized. This action plan is               in year one. Low priority items contain the remaining
                organized into three sections: an introduction,              strategies in the Management Plan. Those strategies
                description of strategies, and implementation. The           planned for completion in or before year one do not
                introduction summarizes the goals and objectives of          have a priority level.
                the Mooring Buoy Program and provides background
                information on planning efforts. The strategy descrip-       Mooring Buoy Action Plan Strategies. The Boat
                tion section groups activities by strategy. For each         Access (B.1) strategy is completed, as indicated in


                  Table 14. Summary of Mooring Buoy Strategies
                                                                                                     :,I 01N
                                                                          -wrnW
                                                             Priori       Al              f     I


                __100 8.1    86M Aocos@
                             M@4dng 866 Management            ,mgn
                  7,771@,,@_                                                       M,      -M     shoo           M I


                                                                                                                                       97






               Action Plans Moonng Buoy

               the Channel/Reef Marking Action Plan The Mooring
               Buoy Management (B 15) strategy is included in                     Existing Programs
               priority level 2 (Table 14) This strategy will have
               some level of implementation within year I                         Mooring buoys have been used as a management too]
                                                                                  In the Keys for many years, primarily within the Key
               Implementing all mooring buoy strategies is expected               Largo and Looe Key national marine sanctuaries The
               to cost $1 2 million over five years Funding will come             mooring buoys located in the sanctuaries are main-
                                                                                  tained through NOAA funds contracted to private
               from a mix of public (Federal, State, and local) and               individuals or organizations Mooring buoys have also
               private agencies and institutions Only about 20                    been used in John Pennekamp, Coral Reef State Park,
               percent of the funding needed for full implementation              but have been removed due to increased damage that
               is currently available Twenty-four institutions are                occurred to the patch reefs In addition, several non-
               identified as potential participants in this program               profit and volunteer-based groups have installed and
                                                                                  maintained mooring buoys in the Keys The primary
               Relationship to Other Action Plans The Boat Access                 volunteer organizations involved in mooring buoy
               strategy is described in detail in the Channel/Reef                placement are- Reef Relief, which has installed more
               Marking Action Plan Both the Boat Access and                       than 125 buoys around Key West; and the Coral Reef
                                                                                  Foundation, which has installed 24 buoys in the
               Mooring Buoy Management strategies are also                        Islamorada/Tavemier area Volunteer donations of time
               included in the Regulatory and Volunteer action                    and money are the primary methods of buoy mainte-
               plans                                                              nance.

                                                                                  In addition to these groups, several private organiza-
                                                                                  tions have installed mooring buoys at specific locations
               Goals and Objectives                                               associated with their interests or businem For ex-
                                                                                  ample, the buoys at Cheeca Rocks off Islamorada were
               National Goals The goals of the Mooring Buoy                       installed by the Cheeca Lodge Resort
               Program represent, and are consistent with, the                    A cooperative boat-use survey has been conducted by
               goals of the National Marine Sanctuary Program                     The Nature Conservancy and the Florida Department of
               regarding the protection of Sanctuary resources,                   Environmental Protection It provides aerial and on-
               specifically coral reef formations and other sensitive             water assessments of spatial and temporal boater use
               marine habitats By allowing and/or directing access                within the Sanctuary. A series of overflights from Fowey
               at selected locations, a Mooring Buoy Program can                  Rocks (Biscayne National Park) to the Marquesas was
               also limit resource-use conflicts and damage to the                conducted to provide instantaneous boat counts
               Sanctuary environment                                              throughout Sanctuary waters A stratified random
                                                                                  sampling procedure was used to collect representative
               Sanctuary Goals The Mooring Buoy Action Plan will                  data for weekends, weekdays, seasons, and special
               further the Sanctuary's goal of protecting and manag-              events (holidays, lobster season, etc.) The aerial
               ing the Keys' natural and cultural resources by                    surveys classify boat use into several size and activity
                                                                                  categories, and have a resolution of approximately one
                                                                                  square mile. The on-water surveys were conducted to
                   ï¿½ minimizing impacts to sensitive marine habi-                 provide hourly boat counts at selected locations to
                     tats, specifically coral reef formations, caused             calibrate the aerial counts, and determine peak usage
                     by the inappropriate use of anchors,                         and turnover patterns These surface surveys also
                                                                                  tallied boating activities and the number of divers and/or
                   ï¿½ providing reasonable access to Sanctuary                     snorkelers, information that can then be used to
                     resources, consistent with the primary goal of               determine use levels at various locations.
                     resource protection, and                                                     ......... ..... ..-

                   ï¿½ managing and/or restricting human activities                      a database of boater and diver use and
                     where such activities are found to have a                         existing mooring buoy locations will be pre-
                     detrimental impact on Sanctuary resources                         pared,

               Mooring Buoy Program Objectives To accomplish                           the criteria necessary for determining the
               these goals, the following objectives have been set                     location of additional mooring buoys to meet
                                                                                       the existing demand will be developed,
                     the characteristics of boater and diver use in
                     coral reef areas throughout the Sanctuary will                    the impact of boater and diver use in coral reef
                     be assessed,                                                      areas will be assessed,


               98







                                                                                              Action Plans: Mooring Buoy

                 ï¿½ a standardized marking system for mooring
                   buoys within the Sanctuary will be developed;

                 ï¿½ the impact of large vessels on mooring buoy
                   systems and the optimum vessel size for a
                   variety of buoys will be determined; and

                 ï¿½ vessel size restrictions associated with moor-
                   ing buoy use will be considered.
















































                                                                                                                       99




Action Plans: Mooring Buoy
Description of Strategies
Mooring Buoy Program

The mooring Buoy Action Plan contains two strate-
gies developed during the Management Plan Process
and included in Alternative III. the first will assess
boat access throughout the Sanctuary; and the
second will use this information(through a coopera-
tive forum of involved agencies and interest groups0
to develop a comprehensive mooring buoy siting and 
management plan.

Mooring Buoy Strategies
 B.1: Boat Access (This strategy is described in detail
in the channel Marking Action Plan)

B.15: Mooring Bouy Management
Maintain existing mooring bouys
Assess current mooring bouy technology
Review visitor use and boating data
Develop siting criteria
Recommend new sites for mooring buoy 
installation
Conduct site assessments of proposed locations
Determine costs of implementation and 
maintenance
install additional mooring buoys
Implement vessel size limits in high-use areas
Evaluate effectiveness and influences of mooring
buoy placement

Strategy B.1:
Boat Access

Conduct a survey to assess public and private boat
access throughout the Sanctuary to develop a low-
impact access plan; direct new public access to low-
impact areas; and modify as appropriate any access
affectin sensitive areas throughout the Sanctuary.

This strategy is descirbed in detail in the channel
marking action plan. It is also included in the 
VOlunteer action Plan.

Strategy B.15:
Mooring Buoy Management

Develop a comprehensive mooring buoy plan provid-
ing for the maintenance of buoys, the placement of
buoys as needed, and the omplemenatation of vessel
size limits at mooring buoys throughout the Sanctu-
ary. Conduct an assessment of current mooring
buoys and mooring buoy technology to determine the
influence that the presence of mooring buoys has on
Sanctuary resources; and to evaluate which are the
most environmentally sound, Cost-effective, and 
functional for use in Sanctuary waters.
(Priority Level High, Medium Level of Action in Year
1,36 + Months of complete, <50% Funding for Full 
implementation)

Activity 1-Maintain Existing Mooring Buoys. While
the comprehensive Mooring Buoy Plan is being 
developed. the existing system of mooring buoys
must be maintained. In some cases, volunteers may
help to maintain the mooring buoys.

Existing Program Implementation. There are cur-
rently over 340 mooring buoys within the Sanctuary
that are maintained through a combination of govern-
ment agencies and private organizations.

Implementation. NOAA, in cooperation with existing
agencies and NGOs that maintain mooring buoys,
will be the lead agency responsible for implementing
this activity. At a minimum, this will include maintain-
ing the mooring buoys within the Key Largo and Looe
Key national marine sanctuaries, and adjacent areas
where the sanctuary is currently maintaining buoys.
NOAA will aslo assist, both financially and through 
logistical support, other organizations that install and
maintain mooring buoys. Volunteers will be utilized to
assist in some aspects of the maintenance of moor-
ing buoys to the maximum extent feasible.

Scheduel. This activity will have a high level of
actin in year 1. it will be an ongoing activity and
obligation.

Activity 2-Assess Current Mooring Buoy Technol-
ogy. The various types of mooring buoy designs
available for use in the Sanctuary will be reviewed,
and the substrate type most appropriate for each will
be determined. Methods of limiting resource damage
through mooring buoy installation will be assessed,
as will vessel impacts on mooring buoys.


				100






                                                                                                         Action Plans: Mooring Buoy

              mExisting Program Implementation. Many compo-                  oSchedule. This activity will have a high level of
              nents of this activity have already been completed             action in year 1. It will require 6 months to complete.
              through an ongoing analysis of mooring buoy sys-
              tems in use at the Key Largo and Looe Key national             Activity 4-Develop Siting Criteria. Based on all
              marine sanctuaries and research on visitor use                 available information, criteria will be developed for
              impacts to patch reefs at JPCRSP. The publication              future mooring buoy siting within the Sanctuary. A
              "The Use of Mooring Buoys as a Management Tool"                workshop will be conducted with representatives of
              (van Breda a   nd Gjerde, 1992) also contains an               the Sanctuary Advisory Council, affected agencies,
              excellent review of mooring buoy types and uses.               NGOs and other interested parties to identify criteria
              Vessel impacts on mooring buoys remain to be                   for allocating existing buoys and siting new buoys. A
              addressed.                                                     working group will be established to advise and
                                                                             facilitate the development of the mooring buoy
              mimplementation. NOAA will be the lead agency                  management plan.
              responsible for implementing the assessment of
              vessel impacts. NOAA will work with the Sanctuary              mimplementation. NOAA will be the lead agency
              Advisory Council, other sanctuaries, such as Flower            responsible for implementing this activity by organiz-
              Garden Banks, and applicable nongovernmental                   ing the working group and facilitating the workshop.
              organizations (NGOs), such as Reef Relief, that have
              experience with mooring buoy systems used by                   oSchedule. This activity will have a medium level of
              larger vessels.                                                action in year 1. It will require 12 months to complete.
              mSchedule. This activity will have high level of action        Activity 5-Recommend New Sites for Mooring
              in year 1. It will require 6 months to complete.               Buoy Installation. After mooring buoy siting criteria
              Activity 3-Review Visitor-Use and Boating Data.                have been established, areas where new mooring
              All boating activity and visitor-use data collected by         buoys should be installed will be identified based on
              various surveys will be compiled in a format that              the visitor-use data, resource management concerns,
              relates to mooring buoy planning. This will include            level of demand and other relevant information.
              targeting data on diving activity around major coral           Priority areas for installation will be developed based
              reef systems, and considering the impact of special            on established criteria.
              events, such as holidays and lobster season, on
              boating patterns. On-water surveys will be correlated          mImplementation. NOAA will be the lead agency
              with aerial data to determine peak usage and turn-             responsible for implementing this activity. Recom-
              over rates in high-use areas. To enable recommen-              mendations will be made by the working group
              dations for mooring buoy additions or deletions,               established in Activity 4.
              visitation data will be compared with existing mooring
              buoy locations.                                                oSchedule. This activity will have a medium level of
                                                                             action in year 1. It will require 12 months to complete.
              mExisting Program Implementation. The FDEP,
              through Looe Key National Marine Sanctuary,                    Activity 6-Conduct Site Assessments of Pro-
              contracted TNC to compile visitor-use and boating              posed Locations. Areas identified for the installation
              data related to mooring buoy planning. A report                of new mooring buoys will be surveyed to determine:
              entitled "An Evaluation of Mooring Buoys in the                1) the health of the habitat in relation to visitor use;
              Florida Keys National Marine Sanctuary Based on                2) types of use and use patterns (e.g., size of ves-
              Boating Patterns" has been completed addressing                sels, glass-bottom boat use, unusual features, etc.);
              some of the items identified in this activity.                 and 3) the number, location, and concentration of
                                                                             specific mooring buoys on the reef. The areas will be
              mimplementation. NOAA will be the lead agency                  mapped using aerial photographs, and proposed
              responsible for implementing this activity. The                mooring buoy locations will be identified.
              recommendations of the visitor use and boating
              survey will be considered, along with additional data,         mimplementation. NOAA will be the lead agency
              analyses and input from all available sources. NOAA            responsible for implementing this activity. Biologists
              will work with the Sanctuary Advisory Council and the          from the FIDEP and members of the Sanctuary
              working group established in Activity 4 to review the          Advisory Council will be consulted for the resource
              information gathered in this activity.                         survey.


                                                                                                                                        101







                 Action Plans: Mooring Buoy

                 oSchedule. This activity will have a low level of action         sImplementation. NOAA will be the lead agency
                 in year 1. It will require 18 months to complete.                responsible for implementing this activity. Other
                                                                                  agencies, the Sanctuary Advisory Council, and
                 Activity 7-Determine Costs of Implementation and                 NGOs with mooring buoy experience (e.g., Reef
                 Maintenance. After establishing the number of                    Relief, etc.) will be consulted.
                 mooring buoys suitable for each primary area,
                 installation and maintenance costs will be deter-                oSchedule. This activity will have a low level of action
                 mined. Maintenance costs will be based on past                   in year 1. It will require 24+ months to complete.
                 costs at the Key Largo and Looe Key National Marine
                 Sanctuaries and relevant NGOs (e.g., Reef Relief,                Activity 10-Evaluate effectiveness and influences
                 etc.). The ability to fund adequate maintenance                  of mooring buoy placement and make changes
                 activities will be a primary factor in determining the           as necessary. This activity will establish a monitor-
                 priority areas where new mooring buoys will be                   ing program to assess the effectiveness and influ-
                 installed.                                                       ences of mooring buoys on coral reefs and other
                                                                                  sensitive habitats. Baseline surveys and monitoring
                 mImplementation. NOAA will be the lead agency                    programs will be conducted in areas with existing
                 responsible for implementing this activity. Other                mooring buoys, prior to and after the installation of
                 agencies and NGOs with mooring buoy experience                   new mooring buoys, and in areas without mooring
                 (e.g., the FIDEP, Reef Relief, etc.) will be consulted to        buoys that have little or no diving or boating activity.
                 determine installation and maintenance costs.                    This activity will be coordinated with the monitoring
                                                                                  programs established for the Sanctuary Preservation
                 nSchedule. This activity will have a low level of action         Areas and Research-Only Special-Use Areas in the
                 in year 1. It will require 18 months to complete.                Research and Monitoring Action Plan. In areas that
                                                                                  are found to be detrimentally impacted by the pres-
                 Activity 8-Install Additional Mooring Buoys.                     ence of mooring buoys, those buoys will be removed.
                 Based on the recommendations developed in Activity
                 5, 6 and 7, new mooring buoys will be installed at the           mImplementation. NOAA will be the lead agency
                 locations identified. In some cases, volunteers may              responsible for implementing this activity. FIDEP will
                 help to install the mooring buoys.                               provide support in implementing this activity.

                 wImplementation. NOAA will be the lead agency                    oSchedule. This activity will have a medium level of
                 responsible for implementing this activity. Assistance           action in year 1. It will require 36+ months to com-
                 will be solicited from other agencies, volunteers and            plete.
                 NGOs.


                 oSchedule. This activity will have a low level of action
                 in year 1. It will require 24 months to complete.

                 Activity 9-Implement Vessel Size Limits in High-
                 Use and Sensitive Areas. Based on vessel-impact
                 information, size limits will be established for the
                 various classifications of mooring buoys. Size limits
                 will be based on considerations concerning the force
                 necessary to make the anchoring system fail under
                 established design parameters. To allow larger
                 vessel buoy use in selected areas, several categories
                 of mooring buoy sizes (such as the "big boat" buoys
                 that have been installed by Reef Relief near Key
                 West) will be considered. Aesthetic and recreational
                 crowding factors will be considered as well. The size
                 limits shall be incorporated into the Federal Regula-
                 tions established for the Sanctuary after the support-
                 ing data has been gathered.




                 102







                                                                                                                           Action Plans: Mooring Buoy

                                                                                         The primary strategy associated with this plan (B. 15,
                  Implementation                                                         development of a comprehensive mooring buoy plan)
                                                                                         is considered a high-priority strategy, due to the
                This section explains how the strategies in the                          success of mooring buoy programs in the Key Largo
                Mooring Buoy Action Plan will be implemented.                            and Looe Key National Marine Sanctuaries, and
                The institutions responsible for each activity, and                      other locations in the Florida Keys. Funding will be a
                those agencies that will provide some level of                           major consideration, because developing a mooring
                assistance, are identified. In addition, the planned                     buoy system similar to that currently in place in
                level of activity in year 1, months required to                          existing sanctuaries would be considerably expen-
                complete, funding availability, cost estimates,                          sive. Creative ways of funding the mooring buoy
                staff requirements, and geographic focus for                             system must be explored to maintain it in the long
                each strategylactivity are provided. Finally, the                        term.
                process used to evaluate the effectiveness of the
                Mooring Buoy Program as it evolves over time is                          Responsible Institutions. NOAA will be the lead
                described.                                                               agency responsible for implementing the activities


                Table 15. AgencieslOrganizations Identified for Implementing StrategieslActivities


                                                                                               Agencies/Organizations



                                                                                                        co
                                              Strategy/Activity
                                                                                                           LL

                                              MOORING BUOY PROGRAM

                                              8.1 Boat Acces$                           Refer to Channel.,......,  Action Plan
                                              B.15 Mooring Buoy Management

                                              Maintain the Existing Mooring Buoy
                                              System
                                              Assess Current Mooring Buoy
                                              Technology                                                   0      0   ED 0    0
                                              Review Visitor-Use and Boating Data       *  0000            0  0   0   00      0
                                              Develop Siting Criteria                   0   00000             0   0   00      0
                                              Recommend New Sites for Mooring
                                              Buoy Installation                         0  000000                 0   00      0

                                              Conduct Site Assessments of
                                              Proposed Locations                        0          0       0              0

                                              Determine Costs of implementation
                                              and Maintenance                           0                  0

                                              Install Additional Mooring Buoys          0                                 0
                                              Implement Vessel Size Limits in
                                              High-use Areas                            0      0           0      0

                                              Evaluate Effectiveness and
                                              Influences of Mooring Buoy
                                              Placement and Make Changes as             0                  0
                                              Necessary
                                              0 Lead 0 Primary Role 0 Assist
                                              Abbreviations: NOAA, National Oceanic and Atmospheric Administration; USFWS, U.S. Fish
                                              and Wildlife Service; USCG, U.S. Coast Guard; ACOE, U.S. Army Corps of Engineers; NPS,
                                              National Park Service; FDEP, Florida Department of Environmental Protection; FDCA, Florida
                                              Department of Community Affairs; TNC, The Nature Conservancy; FIR, Reef Relief; CIVIC,
                                              Center for Marine Conservation.










                                                                                                                                                           103






                          Action Plans: Mooring Buoy

                          Table 16. Requirements for Implementation


                                                                                                                                  Implementation                    cost to Complete


                                                                                                                                     0              Cb 0 0
                                                                                                      hk
                                                                                                                                                                                      so
                                                                                                      141 "R                                           -0
                                        Strategy/Activity                                             o

                                        MOORING BUOY PROGRAM
                                                                                                                     Re fer -t@ -&h@ n-n-e-1-   -'arkin     ction
                                        6'A' 16@ai4AC4@@ss

                                                                                                                                                                           1,000-
                                        B.115,-.Moorling Buoy Impacts,                          Medium          Low               36+           <50% 100-699               5,000           20
                                        Maintain the Existing Mooring Buoy                       High           High              36+           <50%       100-999         1.ODO-   SW
                                        System                                                                                                                             5,000
                                        Assess Current Mooring Buoy                              High           High              6           75-99%           NC          <10      sw
                                        Technology
                                        Review Visitor-Use and Boating Data                      High           High              6           75-99%           NC          <10      sw

                                        Develop Siting Criteria                                  High           Medium            12          75-99%           NC          <10      sw
                                        Recommend New Sites for Mooring                          High           Medium            12          75-99%           NC          <10      sw
                                        Buoy Installation
                                        Conduct Site Assessments of                              High           Low               18            <50%           NC          10-99    sw
                                        Proposed Locations
                                        Determine Costs of Implementation                        High           Low               18          75-99%           NC.         <10      sw
                                        and Maintenance
                                        Install Additional Mooring Buoys                         High           Low               24            <50%          10-99        10-99    sw
                                        Implement Vessel Size Limits in
                                        High-use Areas                                          Medium          Low               24+           100%           NC          NC       SW

                                        Evaluate Effectiveness and
                                        Influences of Mooring Buoy
                                        Placement                                               Medium          Low               36+     1     <50% 1 10-99 1 10-99                SW I
                                        Abbreviations: Maint., Maintenance; SW, Sanctuary Wide.
                                        Note: The priority levels for activities should not be compared across strategies-they only represent the relative
                                        importance of activities contained within a strategy.

                          within this action plan. However, the success of the                                            ment tool for protected marine areas worldwide,
                          Mooring Buoy Program will depend on the coopera-                                                especially in coral reef ecosystems. It is a simple,
                          tion of other Federal, State, and local government                                              relatively noncontroversial, and extremely visible
                          agencies, primarily the FDEP (Division of Marine                                                action that will protect delicate reef structures.
                          Resources, Florida Marine Research Institute, and                                               Accordingly, the Mooring Buoy strategy is ranked
                          Florida Marine Patrol), U.S. Army Corps of Engi-                                                among the three highest groups for management
                          neers, U.S. Coast Guard, and Monroe County. NGOs                                                action.
                          including TNC, Reef Relief, the Coral Reef Founda-
                          tion, and the Center for Marine Conservation will also                                          Schedule. Table 16 lists the estimated time required
                          play an important role implementing activities in the                                           for implementing each strategy and activity in the
                          plan. Reef Relief will play a primary role due to its                                           program. The number of months required to com-
                          history of mooring buoy installation and maintenance                                            plete each strategy and activity is also provided.
                          in the Key West area. Table 15 lists the responsible                                            Cost. The costs associated with implementing the
                          institutions and their level of responsibility in each                                          Mooring Buoy Program are expected to be significant
                          activity.                                                                                       (up to $250,000 in initial capital costs and an addi-
                                                                                                                          tional $200,000 for annual operation and mainte-
                          Prioritization of Implementation. The Boat Access                                               nance costs). Annual maintenance of the mooring
                          strategy (B.1) is essentially complete and, therefore,                                          buoy system will be a significant ongoing obligation.
                          has not been assigned a priority level. Strategy B. 15                                          Funding will depend on allocation from NOAA's
                          is included in medium priority level (Table 16).                                                operations budget. In addition, funding mechanisms
                          Consequently, it is expected to be implemented                                        in        already established by NGOs must be maintained
                                                                                                e. Fly,













                          year 1. The implementation of a mooring buoy                                                    and new funding sources (e.g., "Adopt-a-Buoy," etc.)
                          system has been shown to be an effective manage-                                                explored.

                          104







                                                                                                  Action Plans: Mooring Buoy

             Geographic Focus. Each strategy will be imple-            program or through an external contract. A research
             mented Sanctuary-wide.                                    program should be carried out to determine whether
                                                                       the system is reducing damage to coral reefs and
             Staff. A staff of four full-time personnel will be        other marine habitats by limiting anchor damage. The
             needed to maintain the mooring buoy system ad-            research must address concerns that the buoys
             equately Sanctuary-wide. All staff must be experi-        attract more boaters and divers to an area, thereby
             enced boat captains with local knowledge of Sanctu-       contributing to long-term cumulative damage result-
             ary waters. Alternatively, contracts could be devel-      ing from overuse.
             oped with private contractors on a regional basis to
             ensure buoy maintenance. If the latter approach is
             taken, the Sanctuary staff will only need to include
             one contract/grant specialist, and the mooring buoy-
             related activities will require approximately 25
             percent of his/her time.

             Equipment. If the mooring buoys are maintained by
             Sanctuary staff, two vessels will be required. Each
             vessel should be at least 25 to 30 feet in length and
             should be fully equipped with standard navigational
             equipment. At least one of the vessels should have a
             built-in hydraulic winch system for servicing larger
             boundary buoys. The Sanctuary currently owns two
             complete sets of hydraulic installation equipment.
             One additional backup system may be required in the
             future.


             Contingency Planning for a Changing Budget To
             the extent possible, the Sanctuary will encourage the
             mooring buoy maintenance programs of existing and
             future private and nonprofit organizations. The
             Sanctuary will also consider alternative funding
             sources for the mooring buoy system, including an
             "Adopt-a-Buoy" program, utilizing volunteers, or other
             innovative funding mechanisms. If an adequate
             budget is not available and alternative funding
             sources are not feasible, mooring buoy maintenance
             costs can be reduced by cutting the number of
             mooring buoys in the system. However, the use of
             mooring buoys is one of the most basic and cost
             effective mechanisms for reducing physical impacts
             in sensitive areas, and reducing the number of buoys
             will only be considered after all other cost saving
             actions have been explored. Reductions in buoy
             placement levels will be based on existing and
             ongoing boater and visitor-use data, ensuring that the
             most heavily used areas continue to be maintained.

             Evaluating Program Effectiveness and Efficiency.
             Information on boater and visitor-use patterns is
             extremely important in determining whether the
             mooring buoy system is being utilized efficiently.
             Areas where mooring buoys are not being used
             should be removed from the system. A study should
             be conducted to determine whether buoy mainte-
             nance is most cost-efficient through an in-house


                                                                                                                            105






                                                 Regulatory Action Plan

              This action plan sets forth the regulations for the              - complements existing regulatory authorities;
              Florida Keys National Marine Sanctuary (FKNMS
              or Sanctuary), and explains how management                       * facilitates all public and private uses of the
              strategies have been incorporated into them.                       Sanctuary that are consistent with the primary
              Regulations are an integral component of the                       objective of resource protection;
              FKNMS management process. They make up an
              important part of the management plan by regu-                   - utilizes a system of temporal and geographic
              lating certain activities on a Sanctuary-wide basis                zoning to ensure effective site-specific re-
              and by regulating other activities depending on                    source protection and use management;
              how that area of the Sanctuary has been catego-
              rized or zoned. Permitting, certification, and                   * ensures coordination and cooperation between
              notification and review processes are established                  Sanctuary management and other Federal,
              to allow certain activities otherwise prohibited to                State, and local authorities with jurisdiction
              take place under carefully controlled circum-                      within or adjacent to the Sanctuary;
              stances. The regulations comply with the goals
              and objectives of the Florida Keys National                      - achieves simplicity in the regulatory process
              Marine Sanctuary and Protection Act (FKNMSPA)                      and promotes ease of compliance with Sanctu-
              and the National Marine Sanctuaries Act (NMSA).                    ary regulations;

              In addition to the issuance of these regulations,                - promotes mechanisms for making informed
              NOAA intends to coordinate with other Federal/State                regulatory decisions based on the best avail-
              and local agencies in their enforcement of existing                able research and analysis, taking into account
              regulations under Federal, State, and local laws that              information about the environmental, eco-
              already regulate some portion of the actions called                nomic, and social impacts of Sanctuary regula-
              for in specific management strategies. Because                     tions; and
              coordination with existing authorities is an important
              component of comprehensive ecosystem manage-                       complements coordination among appropriate
              ment, the Sanctuary regulations supplement, not                    Federal, State, and local authorities to enforce
              replace, existing authorities.                                     existing laws that fulfill Sanctuary goals.

              The final regulations address 19 of the management
              strategies that have a regulatory component. The              Existing Legislative Authorities
              other strategies that have a regulatory component
              are either management actions that are already              There are a number of existing Federal and State
              covered by existing Federal, State, or local regula-        conservation laws that either partially or entirely
              tions or strategies that need further analysis before       address some regulatory components of the various
              they can be implemented.                                    management strategies. NOAA's final regulations
              About this Plan. The format of this action plan is          supplement existing laws and regulations and avoid
              unlike the others in this document. The action plan         unnecessary duplication. In a few instances agencies
              outlines how management strategies have been                involved in the planning process specifically re-
              incorporated into the regulations, and summarizes           quested that the Sanctuary regulations incorporate
              the process for developing future regulations. The          existing laws and regulations to improve and en-
              action plan's main component is the attached                hance enforcement, through such things as the use
              FKNMS regulations.                                          of civil penalties under the Sanctuary acts. Clearly,
                                                                          effective enforcement of relevant existing Federal,
                                                                          State, and local regulations will be important for
                                                                          maintaining the health of the Sanctuary (see Enforce-
               _P1      And-Objectives                                    ment Action Plan).

              This action plan establishes a comprehensive and            Relevant Federal laws include the Coastal Zone
              coordinated regulatory program for the FKNMS to             Management Act; Magnuson Fishery Conservation
              ensure the protection and use of Sanctuary re-              and Management Act; Clean Water Act, Rivers and
              sources in a manner that:


                                                                                                                                107







                Action Plans: Regulatoiy

                Harbors Act; and Coastal Barrier Resources Act. At          B.7. Pollution Discharges. This strategy will help
                the State level, laws that address the regulatory           avoid further water quality degradation in the Sanctu-
                requirements specified in the strategies include the        ary caused by boaters and live-aboards by: 1)
                Beach and Shore Preservation Act; Florida Environ-          requiring them to use holding tanks; and 2) prohibit-
                mental Land and Water Management Act; Florida Air           ing the discharge of substances (other than finfish
                and Water Pollution Control Act, and the Florida            waste and exhaust) into nearshore waters.
                Clean Vessel Act. These laws and others are sum-
                marized in Appendix C of Volume 111.                        Sanctuary Regulations. These requirements are
                                                                            partially addressed by section 922.163(a)(4) which
                At the local level, the regulatory requirements             prohibits discharging or depositing materials or other
                complement the goals, objectives, and policies              matter in the Sanctuary. Exceptions to this prohibition
                established by Monroe County in its Year 2010               are discharging or depositing fish, fish parts, and bait
                Comprehensive Plan.                                         during traditional fishing operations; from vessel
                                                                            operations (cooling waters, engine exhaust, and deck
                                                                            wash) and marine sanitation devices. However, in
                 NOAA Regulatory Actions                                    protective zones (i.e., Wildlife Management Areas,
                                                                            Ecological Reserves, Sanctuary Preservation Areas,
                The primary purpose of regulating activities affecting      and Special-use Areas), the only discharges allowed
                Sanctuary resources or qualities is to protect, pre-        are from engine exhaust and cooling water.
                serve, and manage the area's conservation, ecologi-
                cal, recreational, research, educational, historical,       B. 11: Special-use Permits. This strategy allows the
                and aesthetic resources and qualities. Another              issuance of Special-use permits to conduct conces-
                purpose is to minimize conflicts among users of             sion-type or commercial activities within the Sanctu-
                these resources. The regulations are based primarily        ary under certain conditions. Activities conducted
                on the requirements of the FKNMSPA and NMSA, as             under Special-use Permits will be monitored and
                specified in 20 management strategies developed in          permit conditions enforced.
                accordance with the comprehensive planning pro-
                cess for the Sanctuary.                                     Sanctuary Regulations. Section 922.166(d) provides
                                                                            for the issuance of national marine sanctuary Spe-
                                         JU
                                                                            cial-use Permits.
                    b
                        t
                      a Ing,
                                                                            B. 13. SalvaginglTowing. This strategy will reduce
                B.4: Marking ChannelslReets. This strategy requires:        damage to natural resources resulting from improper
                1) the placement of buoys; 2) marking frequently            vessel salvage methods by developing standard
                used and preferred channels; and 3) reducing boat           vessel salvage procedures, including: 1) obtaining a
                wakes in sensitive habitats, areas vulnerable to            permit; 2) notifying authorities; 3) where appropriate,
                erosion, and high-density areas such as marinas.            having an authorized observer at the site or receiving
                                                                            permission to proceed; 4) providing operator training;
                Sanctuary Regulations. These requirements are               and 5) promoting the use of environmentally sound
                partially addressed by section 922.163(a)(5) which          salvaging and towing practices and techniques.
                prohibits operating a vessel at a speed greater than        Permitting for salvaging and towing operations will be
                idle speed only/no-wake within certain areas includ-        implemented throughout the Sanctuary.
                ing: areas designated idle speed only/no wake; and
                100 yards of navigational aids indicating emergent or       Sanctuary Regulations. NOAA is not at this time
              -shallow reefs.                                               issuing regulations to implement this strategy;
                                                                            however, it is working with the salvage and tow
                B.5.- Boat Groundings. Developing a response plan           industry to achieve this goal. However, to the extent
                for boat groundings throughout the Sanctuary. Under         that a salvage operation involves conducting prohib-
                this strategy, a standard response plan will be             ited activities, section 929.166 provides for the
                developed to address boat groundings throughout             issuance of national marine sanctuary general
                the Sanctuary.                                              permits or Special-use permits to allow the activity.

                Sanctuary Regulations. These requirements are               B. 17.- Vessel OperationsIPINC Management This
                partially addressed by section 922.163(a)(5) which          strategy addresses impacts to Sanctuary resources
                prohibits prop scarring or other injury to seagrasses       and conflicts among users of the Sanctuary resulting
                or the seabed.                                              from vessel operation, including personal watercraft.

                108







                                                                                                              Action Plans: Regulatory

               Vessel Operation. This strategy imposes a number of             Lower Keys. During the year following issuance of
               different restrictions, at section 922.163(a)(5), on all        the regulations, NOAA will work with the Sanctuary
               vessels, including personal watercraft. Restrictions            Advisory Council and the personal watercraft industry
               include the following:                                          to resolve some of the issues that remain, such as
                                                                               limiting commercial rental operations to within line of
                      1    a prohibition on operating vessels                  sight, requidng a rescue/chase vessel be available,
                           in a manner which injures coral,                    making training available for employees of rental
                           seagrasses, and hardbottom                          operations, etc.
                           habitats throughout the Sanctuary;
                                                                                                                                "7 'M,
                                                                                                              Et
                      2)   a prohibition on anchoring vessels
                                                                                   10,7
                           on coral in depths less than 40 feet                  I'll"! WMK@,F- ,_5
                           of water when the operator can                      F 1: Consistent Fishing Regulations. This strategy
                           see the seabed;                                     should ensure administrative and regulatory coordi-
                      3)   a prohibition on operating vessels                  nation between fisheries regulatory agencies operat-
                           carelessly or recklessly;                           ing within Sanctuary waters through a protocol for
                                                                               drafting and revising fisheries regulations in order to
                      4)   a prohibition on all vessels from                   implement a consistent set of fishing regulations
                           operating at speeds greater than                    throughout the Sanctuary. This strategy is encom-
                           idle speed only/no wake (except in                  passed in the Protocol for Cooperative Fisheries
                           marked channels) in areas desig-                    Management, Volume 111, Appendix J.
                           nated as idle speed only/no wake,
                           within 100 yards of residential                     F.4: Aquaculture Alternatives. This strategy should
                           shorelines and stationary vessels,                  reduce fishing pressures on wild marine life species
                           within 100 feet of the red and white                and help satisfy the commercial demand for these
                           "divers down" flag or the blue and                  species. This is a long-term effort designed to identify
                           white "alpha" flag (in Federal                      and develop mariculture techniques and promote the
                           waters), and within 100 yards of                    development of mariculture operations.
                           navigational aids indicating shallow
                           or emergent reefs; and                              Sanctuary Regulation(s). These requirements are
                                                                               addressed by section 922.166(d) which provides for
                      5)   a prohibition on all vessels from                   the issuance of Special-use permits and section
                           operating in such a manner as to                    922.168 which governs notification and review of
                           injure, harass, or cause distur-                    applications for leases, licenses, permits approvals,
                           bance to wading, roosting, or                       or other authorizations to conduct a prohibited
                           nesting birds or marine mammals.                    activity.
               PWC Management. The issue of operation of per-                  F.7. Artificial Reefs. Regulations will be developed for
               sonal watercraft within the Sanctuary received the              the construction of artificial reefs in the Sanctuary.
               largest volume of public comment during the 9 month
               review of the draft management plan. It continued               Sanctuary Regulations. These requirements are
               throughout the comment period to be the most                    partially addressed by sections 922.163(a)(3) and (4)
               heavily debated issue by the Sanctuary Advisory                 which prohibit alteration of the seabed and discharge/
               Council aside from the draft zoning plan. For these             deposit of materials without a permit, respectively,
               reasons, NOAA has paid particular attention to this             section 922.166 which provides for the issuance of
               issue and is making a commitment to resolving the               national marine sanctuary general permits, section
               issue, beginning with the final regulations. Although           922.167 which governs certification of preexisting
               the interest of all concerned parties may not be met            leases, licenses, permits, approvals, other authoriza-
               to their full satisfaction, the final plan takes a              tions, or rights to conduct a prohibited activity, and
               proactive approach to dealing with this issue based             section 922.168 which governs notification and
               on recommendations from the Sanctuary Advisory                  review of applications for leases, licenses, permits
               Council.                                                        approvals, or other authorizations to conduct a
               In addition to the above regulations on vessel opera-           prohibited activity.
               tion, the final regulations prohibit the operation of           F.8. Exotic Species. Implement regulations to prevent
               PWCs in portions of the Wildlife Refuges in the                 the release of exotic species into the Sanctuary.

                                                                                                                                           109






               Action Plans: Regulatoty
               Sanctuary Regulations. These requirements are                 section 922.167 which sets forth a requirement and
               addressed by section 922.163(a)(7) which prohibits            procedures for the certification of preexisting leases,
               the release or introduction of exotic species of plants,      licenses, permits, approvals, other authorizations, or
               invertebrates, fish, amphibians, or reptiles into waters      rights to conduct a prohibited activity; and section
               of the Sanctuary.                                             922.168 which requires the notification of and review
                                                                             of applications for leases, licenses, permits, approv-
               F. 11: GearlMethod Impacts. Regulations will be               als, or other authorizations to conduct a prohibited
               developed requiring the use of low-impact gear and            activity.
               methods in priority areas. Regulatory implementation
               will be in accordance with strategy F.1.                      L. 15. Dredging Regulation. This strategy calls for the
                                                                             development of new policies and regulations requir-
               Sanctuary Regulations. These requirements are                 ing the use of low-impact technologies for mainte-
               partially addressed by section 922.163(a)(1 1) which'         nance dredging and prohibiting such dredging in
               prohibits the use of explosives, poisons, oil, and            areas where significant reestablishment of sensitive
               bleach as fishing methods and the Protocol for                benthic communities has occurred (i.e., seagrass and
               Cooperative Fisheries Management.                             coral habitats).

               F. 14: Spearfishing. Regulations. restricting                 Sanctuary Regulations. These requirements are
               spearfishing will be developed for high-priority areas        partially addressed by section 922.163(a)(3) which
               (i.e., those areas exhibiting a low stock abundance, a        prohibits, with certain exceptions, alteration of the
               high degree of habitat damage, or a high degree of            seabed, section 922.163(a)(4) which prohibits, with
               user conflicts). Restriction may include gear prohibi-        certain exceptions, discharging or depositing materi-
               tions, or the closure of selected areas (e.g., around         als or other matter, section 922.166 which sets forth
               residential areas). This strategy will also support any       a permitting mechanism for allowing otherwise
               existing spearfishing closures in Sanctuary waters.           prohibited activities in the Sanctuary; section 922.167
                                                                             which sets forth a requirement and procedures for
               Sanctuary Regulations. These requirements are                 the certification of preexisting leases, licenses,
               partially addressed by section 922.164 which prohib-          permits, approvals, other authorizations, or rights to
               its spearfishing in Ecological Reserves, Sanctuary            conduct a prohibited activity; and section 922.168
               Preservation Areas, the Key Largo and Looe Key                which requires the notification of and review of
               existing management areas, and the four research-             applications for leases, licenses, permits, approvals,
               only Special-use Areas and by the Protocol for                or other authorizations to conduct a prohibited
               Cooperative Fisheries Management.                             activity.

                                         F
                                             W

               L. 14: Dredging Prohibition. This strategy will elimi-        R. 1 SCR Management. This strategy calls for the
               nate the possibility of new dredge and fill activities        development of a set of management practices,
               within the Sanctuary. However, dredge and fill                guidelines, and regulations addressing the explora-
               activities may be allowed if they are in the public's         tion, removal, research, and dispensation of artifacts
               interest (as determined by the USACE) and if little or        consistent with Federal and State archaeological
               no environmental degradation is likely to occur. No           policies, programs, and regulations. It also requires
               dumping of dredge material will be permitted in the           the development and implementation of a permitting
               Sanctuary except as a restoration or renourishment            system for these artifacts, to be applied throughout
               project strictly conditioned to allow little or no environ-   the Sanctuary, with a provision for exemptions for
               mental degradation.                                           nondestructive exploration.

               Sanctuary Regulations. These requirements are                 Sanctuary Regulations. These requirements are
               partially addressed by section 922.163(a)(3) which,           partially addressed by section 922.163(a)(3) which
               with certain exceptions, prohibits alteration of the          prohibits the alteration of, or construction on, the
               seabed (with exceptions), section 922.163(a)(4)               seabed; section 922.163(a)(9) which prohibits
               which prohibits discharging or depositing materials or        moving, removing, injuring, or possessing a Sanctu-
               other matter (with exceptions), section 922.166 which         ary historic resource (or attempting to do any of these
               sets forth a permitting mechanism for allowing                activities), except pursuant to a valid Sanctuary
               otherwise prohibited activities in the Sanctuary;             permit; and section 922.166 which provides, in

               110







                                                                                                    Action Plans: Regulatoty

           pertinent part, for the issuance of national marine         Z3 Sanctuaty Preservation Areas. These zones
           sanctuary permits for the survey/inventory and              focus on the protection of shallow, heavily used reefs
           research/recovery of historical resources and na-           where conflicts occur between user groups and
           tional marine sanctuary Special-use Permits for the         where concentrated visitor activity leads to resource
           deaccession/transfer of such resources.                     degradation. They are designed to enhance the
                                                                       reproductive capabilities of renewable resources,
                                                              V        protecting important marine species, and reduce user
                          OR, Al                                       protect areas that are critical for sustaining and
                         vj"
                U
                                                                       conflicts in high-use areas. This is accomplished
           R. 7 Coral Touching. This strategy will protect coral       through a prohibition of consumptive activities within
           communities from damage by prohibiting coral                these areas.
           touching in high-use, sensitive, and vulnerable areas.
                                                                       Sanctuary Regulations. These requirements are
           Sanctuary Regulations. These requirements are               partially addressed by section 922.164 which con-
           partially addressed by section 922.163(a)(2) which          tains, in pertinent part, certain provisions applicable
           prohibits the removal, damage, distribution, or injury      to Sanctuary Preservation Areas and section 922.162
           of any living or dead coral or coral formation and          which defines this zone type.
           section 922.164 which prohibits the touching of coral
           in Sanctuary Preservation Areas and Ecological              Z4 Existing Management Areas. This strategy
           Reserves.                                                   identifies existing resource management areas
                                                                       established by NOAA or by another Federal, State, or
                                                                       local authority within the Sanctuary. This strategy
           44                                                          may necessitate additional regulations in areas
                                                                       currently managed by agencies other than the
           Z I Wildlife Management Areas. Under this strategy,         Sanctuary. Additional regulations would recognize
           regulations have been developed to protect wildlife         established management areas and complement
           populations and habitat, while providing opportunities      existing management programs.
           for public use. Regulations include various access
           restrictions including no-access buffer zones, no-          Sanctuary Regulations. These requirements are
           motor zones, and idle speed only/no-wake zones.             partially addressed by section 922.164 which con-
           Some of the regulations have seasonal components            tains, in pertinent part, certain provisions applicable
           (e.g., nesting season closures). Sanctuary permits          to Existing Management Areas and section 922.162
           allow for access and activities otherwise prohibited.       which defines this zone type.
           This zoning type includes measures contained in
           management plans for the Great White Heron, Key             Z5 Special-use Areas. This strategy is designed to
           West, and National Key Deer Wildlife Refuges                delineate areas of special concern where specific
           developed by the USFWS and the FDEP.                        issues can be addressed through the use of zoning.
                                                                       Through the zone type, areas can be set aside for
           Sanctuary Regulations. These requirements are               specific uses to reduce conflicts and minimize
           partially addressed by section 922.164 which con-           adverse environmental effects from high-impact
           tains, in pertinent part, certain provisions applicable     activities. This will be accomplished by designating
           to Wildlife Management Areas and section 922.162            selected areas where activities can be conducted
           which defines this zone type.                               with minimal disturbance to other users and the
                                                                       environment. Special-use Areas may include areas
           Z2 Ecological Reserves. Ecological Reserves are             set aside for research and monitoring, restoration
           designed to protect and preserve natural assem-             sites, archaeological sites, etc. They will also delin-
           blages of habitats and species consistent with the          eate areas where activities, such as personal water-
           resource protection and multiple-use objectives of the      craft use and live-aboard mooring fields are estab-
           Sanctuary.                                                  lished in specific areas to reduce adverse environ-
                                                                       mental impacts. This is the broadest zoning classifi-
           Sanctuary Regulations. These requirements are               cation, and encompasses the greatest range of
           partially addressed by section 922.164 which con-           management issues. The boundaries of these areas
           tains, in pertinent part, certain provisions applicable     will be established to address management issues
           to Ecological Reserves and section 922.162 which            and needs, and may include seasonal or emergency
           defines this zone type.                                     closures.






             Action Plans: Regulatoiy

             Sanctuary Regulations. These requirements are
             partially addressed by section 922.164 which con-
             tains, in pertinent part, certain provisions applicable
             to Special-use Areas, section 922.166, which in
             pertinent part, provides for the issuance of Special-
             use Permits, and section 922.162 which defines this
             zone type.


              Next Steps

             There are management strategies with a regulatory
             component that may be addressed in the future.
             They were not addressed in the final regulations
             because they either require additional information
             gathering, are addressed through existing regulatory
             authorities, or were not identified as strategies
             requiring the immediate commitment of available
             management and enforcement resources. In addi-
             tion, there are components of strategies that were
             addressed, while other components will or may be
             addressed in the continuing management process.

             Existing authorities will be utilized to the maximum
             extent possible to establish comprehensive manage-
             ment. Existing legislation, either in its current form or
             slightly modified, may be adequate to accomplish the
             regulatory objectives of selected strategies.





























             112







                                                                                                       Action Plans: Regulatory

                                                                          ï¿½ 922.167                Certification of preexisting
               Florida Keys National Marine                                                        leases, licenses, permits,
               Sanctuary Regulations                                                               approvals, other authoriza-
                                                                                                   tions, or rights to conduct
                                                                                                   a prohibited activity.
              15 CFR PART 922-Provisions applicable to the
              Florida Keys National Marine Sanctuary (FKNMS)              ï¿½ 922.168                Notification and review of
                                                                                                   applications for leases,
              [Sections 922.3, 922.42, 922.45, 922.46 and 922.50                                   licenses, permits, approv-
              are found in Subparts A and E of 15 CFR Part 922                                     als, or other authorizations
              and except for minor technical revisions are as                                      to conduct a prohibited
              they presently exist (provisions of these sections                                   activity.
              not applicable to the FKNMS have been omitted);             ï¿½ 922.50                 Appeals of administrative
              sections 922.160, 922.161, 922.162, 922.163,                                         action.
              922.164, 922.165, 922.166, 922.167, and 922.168
              are new sections applicable only to the FKNMS               Appendix I to Part 922, Subpart    IP-Florlda Keys
              and will appear in a new Subpart P to 15 CFR 922.           National Marine Sanctuary boundary coordinates
              When this notice is published in the Federal
              Register it will be revised to include amendatory           Appendix 11 to Part 922, Subpart P-Existing
              language to the Code of Federal Regulations and             Management Areas boundary coordinates
              to eliminate sections reprinted here that pres-
              ently appear in the Code of Federal Regulations.]           Appendix III to Part 922, Subpart P-Wildlife
              Sec.                                                        Management Areas access restrictions
              ï¿½ 922.160                 Purpose.                          Appendix IV to Part 922, Subpart P-Ecological
              ï¿½ 922.161                 Boundary.                         Reserves boundary coordinates

              ï¿½ 922.3                   Definitions applicable            Appendix V to Part 922, Subpart P-Sanctuary
                                        to all National Marine            Preservation Areas boundary coordinates
                                        Sanctuaries.
                                                                          Appendix VI to Part 922, Subpart P-Special-use
              ï¿½ 922.162                 Definitions applicable            Areas boundary coordinates and use designa-
                                        to the Florida Keys               tions
                                        National Marine Sanctuary
                                        only.                             Appendix V11 to Part 922, Subpart P-Areas To Be
              ï¿½ 922.42                  Allowed activities.               Avoided boundary coordinates
              ï¿½ 922.163                 Prohibited activities -           Appendix Vill to Part 922, Subpart P-Marine Life
                                        Sanctuary-wide.                   Rule

              ï¿½ 922.164                 Additional activity               Authority: Sections 302, 303, 304, 305, 307, 310
                                        regulations by Sanctuary          and 312 of National Marine Sanctuaries Act (NMSA)
                                        area.                             (16 U.S.C. 1431 et seq.) and Sections 5, 6 and 7 of
                                                                          the Florida Keys National Marine Sanctuary and
              ï¿½ 922.165                 Emergency regula                  Protection Act, Pub. L. 101 -605, 104 Stat. 3090-
                                        tions.                            3093.
              ï¿½ 922.45                  Penalties.                        ï¿½ 922.160 Purpose.
              ï¿½ 922.46                  Response costs and
                                        damages.                              The purpose of the regulations in this part is to
                                                                          implement the comprehensive management plan for
              ï¿½ 922.166                 Sanctuary permits -               the Florida Keys National Marine Sanctuary by
                                        application procedures            regulating activities affecting the resources of the
                                        and issuance criteria.            Sanctuary or any of the qualities, values, or purposes
                                                                          for which the Sanctuary is designated, in order to


                                                                                                                                113






               Action Plans: Regulatory
               protect, preserve and manage the conservation,                       Directo means, except where otherwise speci-
               ecological, recreational, research, educational,                fied, the Director of the Off ice of Ocean and Coastal
               historical, and aesthetic resources and qualities of            Resource Management, NOAA, or designee.
               the area. In particular, the regulations in this part are
               intended to protect, restore, and enhance the living                 Exclusive economic zone means the exclusive
               resources of the Sanctuary, to contribute to the                economic zone as defined in the Magnuson Fishery
               maintenance of natural assemblages of living re-                Conservation and Management Act, 16 U.S. 1801 et
               sources for future generations, to provide places for           seq.
               species dependent on such living resources to
               survive and propagate, to facilitate to the extent                   Fish wastes means waste materials resulting
               compatible with the primary objective of resource               from commercial fish processing operations.
               protection all public and private uses of the resources
               of the Sanctuary not prohibited pursuant to other                    Historical resource means any resource pos-
               authorities, to reduce conflicts between such compat-           sessing historical, cultural, archaeological or paleon-
               ible uses, and to achieve the other policies and                tological significance, including sites, contextual
               purposes of the Florida Keys National Marine Sanc-              information, structures, districts, and objects signifi-
               tuary and Protection Act and the National Marine                cantly associated with or representative of earlier
               Sanctuaries Act.                                                people, cultures, maritime heritage, and human
                                                                               activities and events. Historical resources include
               ï¿½ 922.161 Boundary.                                             "submerged cultural resources", and also include
                                                                               "historical properties," as defined in the National
                   The Sanctuary consists of all submerged lands               Historic Preservation Act, as amended, and its
               and waters from the mean high water mark to the                 implementing regulations, as amended.
               boundary described in- Appendix I to this part, with
               the exception of areas within the Dry Tortugas                       Indian tribe means any American Indian tribe,
               National Park. Appendix I to this part sets forth the           band, group, or community recognized as such by
               precise Sanctuary boundary established by the                   the Secretary of the Interior.
               Florida Keys National Marine Sanctuary and Protec-
               tion Act. (See FKNMSPA ï¿½ 5(b)(2)).                                   laige means to change adversely, either in the
                                                                               short or long term, a chemical, biological or physical
               ï¿½ 922.3 Definitions applicable to all National                  attribute of, or the viability of. This includes, but is not
               Marine Sanctuaries.                                             limited to, to cause the loss of or destroy.



                   Assistant Administrato means the Assistant                       Marine means those areas of coastal and ocean
               Administrator for Ocean Services and Coastal Zone               waters, the Great Lakes and their connecting waters,
               Management, National Oceanic and Atmospheric                    and submerged lands over which the United States
               Administration (NOAA), or designee.                             exercises jurisdiction, including the exclusive eco-
                                                                               nomic zone, consistent with international law.
                   Benthic community means the assemblage of
               organisms, substrate, and structural formations found                Mineral means clay, stone, sand, gravel, metallif-
               at or near the bottom that is periodically or perma-            erous ore, nonmetalliferous ore, or any other solid
               nently covered by water.                                        material or other matter of commercial value.

                   Commercial fis-hing means any activity that                      National historic landma means a district, site,
               results in the sale or trade for intended profit of fish,       building, structure or object designated as such by
               shellfish, algae, or corals.                                    the Secretary of the Interior under the National
                                                                               Historic Landmarks Program (36 CFR part 65).

                                                                                    National Marine Sanctuacy means an area of the
                   CultUral resource means any historical or cultural          marine environment of special national significance
               feature, including archaeological site, historic struc-         due to its resource or human-use values, which is
               ture, shipwreck, and artifact.                                  designated as such to ensure its conservation and
                                                                               management


               114






                                                                                                             Action Plans: Regulatoiy

                    Person means any private individual, partner-              endangered or threatened pursuant to the Endan-
                ship, corporation or other entity; or any officer,             gered Species Act, to harass, harm, pursue, hunt,
                employee, agent, department, agency or instrumen-              shoot, would, kill, trap, capture, collect or injure, or to
                tality of the Federal government, of any State or              attempt to engage in any such conduct; (2) For any
                local unit of government, or of any foreign govern-            other marine mammal, sea turtle, or seabird, to
                ment.                                                          harass, hunt, capture, kill, collect or injure, or to
                                                                               attempt to engage in any such conduct. For the
                    Regional Fishe1y Management Council means                  purposes of both (1) and (2) of this definition, this
                any fishery council established under section 302 of           includes, but is not limited to, to collect any dead or
                the Magnuson Fishery Conservation and Manage-                  injured marine mammal, sea turtle or seabird, or any
                ment Act, 16 U.S.C. 1801 et seq.                               part thereof; to restrain or detain any marine mam-
                                                                               mal, sea turtle or seabird, or any part thereof, no
                    SanctuaN qualily means any of those ambient                matter how temporarily; to tag any sea turtle, marine
                conditions, physical-chemical characteristics and              mammal or seabird; to operate a vessel or aircraft or
                natural processes, the maintenance of which is                 to do any other act that results in the disturbance or
                essential to the ecological health of the Sanctuary,           molestation of any marine mammal, sea turtle or
                including, but not limited to, water quality, sediment         seabird.
                quality and air quality.

                    Sanctua[y resource means any living or non-
                living resource of a National Marine Sanctuary that            ï¿½ 922.162 Definitions applica6le to the Florida
                contributes to the conservation, recreational, ecologi-        Keys National Marine Sanctuary only.
                cal, historical, research, educational, or aesthetic
                value of the Sanctuary, including, but not limited to,             (a) The following definitions apply to the Florida
                the substratum of the area of the Sanctuary, other             Keys National Marine Sanctuary regulations. To the
                submerged features and the surrounding seabed,                 extent that a definition appears in ï¿½ 922.3 and this
                carbonate rock, corals and other bottom formations,            section, the definition in this section governs.
                coralline algae and other marine plants and algae,
                marine invertebrates, brine-seep biota, phytoplank-                Acts means the Florida Keys National Marine
                ton, zooplankton, fish, seabirds, sea turtles and other        Sanctuary and Protection Act, as amended,
                marine reptiles, marine mammals and historical                 (FKNMSPA) (Pub. L. 101-605), and the National
                resources.                                                     Marine Sanctuaries Act (NMSA), also known as Title
                                                                               III of the Marine Protection, Research, and Sanctuar-
                    Secreta!y means the Secretary of the United                ies Act, as amended, (MPRSA) (16 U.S.C. ï¿½ 1431 et
                States Department of Commerce, or designee.                    seq.).

                                                                                   Adverse effect means any factor, force, or action
                                                                               that independently or cumulatively damages, dimin-
                    State means each of the several States, the                ishes, degrades, impairs, destroys, or otherwise
                District of Columbia, the Commonwealth of Puerto               harms any Sanctuary resource, as defined in section
                Rico, the Commonwealth of the Northern Mariana                 302(8) of the NMSA
                Islands, American Samoa, the United States Virgin              (16 U.S.C. ï¿½ 1432(8)) and in this section, or any of
                Islands, Guam, and any other commonwealth,                     the qualities, values, or purposes for which the
                territory, or possession of the United States.                 Sanctuary is designated.
                    Subsistence use means the customary and                        Airboat means a vessel operated by means of a
                traditional use by rural residents of areas near or in         motor driven propeller that pushes air for momentum.
                the marine environment for direct personal or family
                consumption as food, shelter, fuel, clothing, tools, or            Areas To Be Avoided means the areas described
                transportation; for the making and selling of handi-           in the Federal Register notice of May 9, 1990 (55
                craft articles; and for barter, if for food or non-edible      Fed. Reg. 19418-19419) in which vessel operations
                items other than money, if the exchange is of a                are prohibited pursuant to section 6(a)(1) of the
                limited and non-commercial nature.                             FKNMSPA (see ï¿½ 922.164(a)). Appendix VII to this
                                                                               part sets forth the geographic coordinates of these
                    Take or ta"n means: (1) For any marine                     areas, including any modifications thereto made in
                mammal, sea turtle, or seabird listed as either                accordance with section 6(a)(3) of the FKNMSPA.

                                                                                                                                          115






                  Action Plans: Regulatoiy
                      Closed means all entry or use is prohibited.             term does not include any scientific research activity
                                                                               which is conducted by a scientific research vessel.
                      Coral means the corals of the Class Hydrozoa
                  (stinging and hydrocorals); the Class Anthozoa,                  Hardbottom means a submerged marine commu-
                  Subclass Hexacorallia, Order Scleractinia (stony             nity comprised of organisms attached to exposed
                  corals) and Antipatharia (black corals).                     solid rock substrate. Hardbottorn is the substrate to
                                                                               which corals may attach but does not include the
                      Coral area means marine habitat where coral              corals themselves.
                  growth abounds including patch reefs, outer bank
                  reefs, deepwater banks, and hardbottoms.                         Idle speed onlyLno-wake means a speed at which
                                                                               a boat is operated that is no greater than 4 knots or
                      Coral reefs means the hard bottoms, deep-water           does not produce a wake.
                  banks, patch reefs, and outer bank reefs.
                                                                                   Idle speed onlyLno-wake zone means a portion of
                      Ecological Reserve means an area of the Sanc-            the Sanctuary where the speed at which a boat is
                  tuary consisting of contiguous, diverse habitats,            operated may be no greater than 4 knots or may not
                  within which uses are subject to conditions, restric-        produce a wake.
                  tions and prohibitions, including access restrictions,
                  intended to minimize human influences, to provide                Live roc means any living marine organism or
                  natural spawning, nursery, and permanent residence           an assemblage thereof attached to a hard substrate
                  areas for the replenishment and genetic protection of        (including dead coral or rock but not individual
                  marine life, and also to protect and preserve natural        mollusk shells(e.g., scallops, clams, oysters). Living
                  assemblages of habitats and species within areas             marine organisms associated with hard bottoms,
                  representing a broad diversity of resources and              banks, reefs, and live rock may include, but are not
                  habitats found within the Sanctuary. Appendix IV to          limited to: sea anemones (Phylum Cnidaria: Class
                  this part sets forth the geographic coordinates of           Anthozoa: Order Actinaria); sponges (Phylurn
                  these areas.                                                 Porifera); tube worms (Phylum Annelida), including
                                                                               fan worms, feather duster worms, and Christmas tree
                      Existina Manaaement Area means an area of the            worms; bryozoans (Phylum Bryzoa); sea squirts
                  Sanctuary that is within or is a resource management         (Phylum Chordata); and marine algae, including
                  area established by NOAA or by another Federal               Mermaid's fan and cups (Udotea spp.), corraline
                  authority of competent jurisdiction as of (insert            algae, green feather, green grape algae (Caulelpa
                  effective date of these regulations] where protections       spp.) and watercress (Halimeda spp.).
                  above and beyond those provided by Sanctuary-wide
                  prohibitions and restrictions are needed to ad-                  Marine life species means any species of fish,
                  equately protect resources. Appendix 11 to this part         invertebrate, or plant included in sections (2), (3), or
                  sets forth the geographic coordinates of these areas.        (4) of Rule 46-42.001, Florida Administrative Code,
                                                                               reprinted in Appendix Vill to this part.
                      Exotic species means a species of plant, inverte-
                  brate, fish, amphibian, reptile or mammal whose                  Milita!)t actift means an activity conducted by
                  natural zoogeographic range would not have in-               the Department of Defense with or without participa-
                  cluded the waters of the Atlantic Ocean, Caribbean,          tion by foreign forces, other than civil engineering
                  or Gulf of Mexico without passive or active introduc-        and other civil works projects conducted by the U.S.
                  tion to such area through anthropogenic means.               Army Corps of Engineers.

                      Fish means finfish, mollusks, crustaceans, and               No-access bu er zone means a portion of the
                  all forms of marine animal and plant life other than         Sanctuary where vessels are prohibited from entering
                  marine mammals and birds.                                    regardless of the method of propulsion.

                      Fishing means: (1) the catching, taking, or                  No motor zone means an area of the Sanctuary
                  harvesting of fish; (2) the attempted catching, taking,      where the use of internal combustion motors is
                  or harvesting of fish; (3) any other activity which can      prohibited. A vessel with an internal combustion
                  reasonably be expected to result in the catching,            motor may access a no motor zone only through the
                  taking, or harvesting of fish; or (4) any operation at       use of a push pole, paddle, sail, electric motor or
                  sea in support of, or in preparation for, any activity       similar means of operation but is prohibited from
                  described in subparagraphs (1) through (3). Such             using it's internal combustion motor.

                  116







                                                                                                                 Action Plans: Regulatory
                      Not available for immediate use means that is              that could result in significant declines in species
                 not readily accessible for immediate use, e.g., by              populations or habitat, to reduce conflicts between
                 being stowed in a cabin, locker, or similar storage             uses, to protect areas that are critical for sustaining
                 area, or by being securely covered and lashed to a              important marine species or habitats, or to provide
                 deck or bulkhead.                                               opportunities for scientific research. Appendix V to
                                                                                 this part sets forth the geographic coordinates of
                      Officially marked channel means a channel                  these areas.
                 marked by Federal, State of Florida, or Monroe
                 County officials of competent jurisdiction with naviga-              Sanctuary wildlife means any species of fauna,
                 tional aids except for channels marked idle speed               including avifauna, that occupy or utilize the sub-
                 only/no wake.                                                   merged resources of the Sanctuary as nursery areas,
                                                                                 feeding grounds, nesting sites, shelter, or other
                      Personal watercraft means any jet or air-powered           habitat during any portion of their life cycles.
                 watercraft, including class A-1 or A-2 vessels, de-
                 signed to be operated by standing, sitting, or kneeling              Seagrass means any species of marine an-
                 on or behind the vessel and that uses an engine to              giosperms (flowering plants) that inhabit portions of
                 power a water jet pump for propulsion, in contrast to           the seabed in the Sanctuary. Those species include,
                 a conventional boat, which uses a propeller and                 but are not limited to: Thalassla testudinum (turtle
                 where the operator stands or sits inside the vessel.            grass); Syringodium filiforme (manatee grass);
                                                                                 Halodule wrightii (shoal grass); Halophila decipiens,
                      Prop dredging means the use of a vessel's                  H. engelmannfi, H. johnsonif, and Ruppia mariffma.
                 propulsion wash to dredge or otherwise alter the
                 seabed of the Sanctuary. Prop dredging includes,                     Special-use Area means an area of the Sanctu-
                 but is not limited to, the use of propulsion wash               ary set aside for scientific research and educational
                 deflectors or similar means of dredging or otherwise            purposes, recovery or restoration of Sanctuary
                 altering the seabed of the Sanctuary. Prop dredging             resources, monitoring, to prevent use or user con-
                 does not include the disturbance to bottom sediments            flicts, to facilitate access and use, or to promote
                 resulting from normal vessel propulsion.                        public use and understanding of Sanctuary re-
                                                                                 sources. Appendix VI to this part sets forth the
                      Prop sca "i means the injury to seagrasses or              geographic coordinates of these areas.
                 other immobile organisms attached to the seabed of
                 the Sanctuary caused by operation of a vessel in a                   Tank vessel means any vessel that is con-
                 manner that allows its propeller or other running               structed or adapted to carry, or that carries, oil or
                 gear, or any part thereof, to cause such injury (e.g.,          hazardous material in bulk as cargo or cargo residue,
                 cutting seagrass rhizomes). Prop scarring does not              and that- (A) is a United States flag vessel; (B)
                 include minor disturbances to bottom sediments or               operates on the navigable waters of the United
                 seagrass blades resulting from normal vessel propul-            States; or (C) transfers oil or hazardous material in a
                 sion.                                                           port or place subject to the jurisdiction of the United
                                                                                 States [46 U.S.C. 2101
                      Residential shoreline means any man-made or
                 natural a) shoreline, b) canal mouth, c) basin, or d)                Traditional fia"n means those commercial or
                 cove adjacent to any residential land use district,             recreational fishing activities that were customarily
                 including improved subdivision, suburban residential            conducted within the Sanctuary prior to its designa-
                 or suburban residential limited, sparsely settled,              tion as identified in the Environmental Impact State-
                 urban residential, and urban residential mobile home            ment and Management Plan for this Sanctuary.
                 under the Monroe County land development regula-
                 tions.                                                               Tropical fish means any species included in
                                                                                 section (2) of Rule 46-42.001, Florida Administrative
                      Sanctua_N means the Florida Keys National                  Code, reproduced in Appendix Vill to this part, or any
                 Marine Sanctuary.                                               part thereof.

                      Sanctuary Preservation Area means an area of                    Vessel means a watercraft of any description,
                 the Sanctuary that encompasses a discrete, biologi-             including, but not limited to, motorized and non-
                 cally important area, within which uses are subject to          motorized watercraft, personal watercraft, airboats,
                 conditions, restrictions and prohibitions, including            and float planes while maneuvering on the water,
                 access restrictions, to avoid concentrations of uses            capable of being used as a means of transportation

                                                                                                                                          117






              Action Plans: Regulatoty

              in/on the waters of the Sanctuary. For purposes of              attempting any of these activities, except as permit-
              this part, the terms "vessel," "watercraft," and "boat"         ted under 50 CFR part 638.
              have the same meaning.                                              (ii) Harvesting, or attempting to harvest, any live
                  Wildlife Management Area means an area of the               rock from the Sanctuary, or possessing (regardless
              Sanctuary established for the management, protec-               of where taken from) any live rock within the Sanctu-
              tion, and preservation of Sanctuary wildlife re-                ary, except as authorized by a permit for the posses-
              sources, including such an area established for the             sion or harvest from aquaculture operations in the
              protection and preservation of endangered or threat-            Exclusive Economic Zone, issued by the National
              ened species or their habitats, within which access is          Marine Fisheries Service pursuant to applicable
              restricted to minimize disturbances to Sanctuary                regulations under the appropriate Fishery     'Manage-
              wildlife; to ensure protection and preservation                 ment Plan, or as authorized by the applicable State
              consistent with the Sanctuary designation and other             authority of competent jurisdiction within the Sanctu-
              applicable law governing the protection and preser-             ary for live rock cultured on State submerged lands
              vation of wildlife resources in the Sanctuary. Appen-           leased from the State of Florida, pursuant to appli-
              dix III lists these areas and their access restrictions.        cable State law. aee ï¿½ 370.027, Florida Statutes and
                                                                              implementing regulations.
                  (b) Other terms appearing in the regulations in
              this part are defined at 15 CFR 922.3, and/or in the                (3) Alteration of, or construction on. the seabed.
              Marine Protection, Research, and Sanctuaries Act                Drilling into, dredging, or otherwise altering the
              (MPRSA), as amended, 33 U.S.C. 1401 et seq. and                 seabed of the Sanctuary, or engaging in prop-
              16 U.S.C. 1431 et seq.                                          dredging; or constructing, placing or abandoning any
                                                                              structure, material, or other matter on the seabed of
              ï¿½ 922.42 Allowed activities.                                    the Sanctuary, except as an incidental result of:
                  All activities (e.g., fishing, boating, diving, re-             (i) Anchoring vessels in A manner not otherwise
              search, education) may be conducted unless prohib-              prohibited by this part (see ï¿½ï¿½ 922.163(a)(5)(ii) and
              ited or otherwise regulated in subparts F through P,            922.164(d)(1)(v));
              subject to any emergency regulations promulgated
              pursuant to ï¿½ï¿½ 922.44, 922.111 (c), or 922.165,                     (ii) Traditional fishing activities not otherwise
              subject to all prohibitions, regulations, restrictions,         prohibited by this part;
              and conditions validly imposed by any Federal, State,
              or local authority of competent jurisdiction, including             (iii) Installation and maintenance of navigational
              Federal and State fishery management authorities,               aids by, or pursuant to valid authorization by, any
              and subject to the provisions of                                Federal, State, or local authority of competent
              ï¿½ 312 of the Act. The Assistant Administrator may               jurisdiction;
              only directly regulate fishing activities pursuant to the
              procedure set forth in ï¿½ 304(a)(5) of the NMSA.                     (iv) Harbor maintenance in areas necessarily
                                                                              associated with Federal water resource development
              ï¿½ 922.163 Prohibited activities - Sanctuary-wide.               projects in existence on [insert effect date of these
                                                                              regulations], including maintenance dredging of
                  (a) Except as specified in paragraph (b) through            entrance channels and repair, replacement, or
              (e) of this section, the following activities are prohib-       rehabilitation of breakwaters or jetties;
              ited and thus are unlawful for any person to conduct
              or to cause to be conducted:                                        (v) Construction, repair, replacement, or rehabili-
                                                                              tation of docks, seawalls, breakwaters, piers, or
                  (1) Mineral and hydrocarbon exploration, devel-             marinas with less than ten slips authorized by any
              opment and production. Exploring for, developing, or            valid lease, permit, license, approval, or other
              producing minerals or hydrocarbons within the                   authorization issued by any Federal, State, or local
              Sanctuary.                                                      authority of competent jurisdiction.

                  (2) Removal of. inou!y to, or possession of coral               (4) Discharge or deposit of materials or other
              or live rock. (i) Moving, removing, taking, harvesting,         matte . (i) Discharging or depositing, from within the
              damaging, disturbing, breaking, cutting, or otherwise           boundary of the Sanctuary, any material or other
              injuring, or possessing (regardless of where taken              matter, except:
              from) any living or dead coral, or coral formation, or              (A) Fish, fish parts, chumming materials, or bait

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                                                                                                            Action Plans: Regulatoty
                 used or produced incidental to and while conducting          the wake of another vessel unreasonably or unnec-
                 a traditional fishing activity in the Sanctuary;             essarily close to such other vessel or when visibility
                     (B) Biodegradable effluent incidental to vessel          around such other vessel is obstructed, or waiting
                 use and generated by a marine sanitation device              until the last possible moment to avoid a collision.
                 approved in accordance with Section 312 of the
                 Federal Water Pollution Control Act, as amended,                  (6) Conduct of diving/snorkeling without flag.
                 (FWPCA), 33 U.S.C. 1322 et seq.;                             Diving or snorkeling without flying in a conspicuous
                     (C) Water generated by routine vessel operations         manner the red and white "divers down" flag (or the
                 (e.g., deck wash down and graywater as defined in            blue and white "alpha" flag in Federal waters).
                 section 312 of the FWPCA), excluding oily wastes
                 from bilge pumping; or                                            (7) Release of exotic species. Introducing or
                     (D) Cooling water from vessels or engine ex-             releasing an exotic species of plant, invertebrate,
                 haust;                                                       fish, amphibian, or mammals into the Sanctuary.

                     (ii) Discharging or depositing, from beyond the               (8) Damage or removal of markers. Marking,
                 boundary of the Sanctuary, any material or other             defacing, or damaging in any way or displacing,
                 matter that subsequently enters the Sanctuary and            removing, or tampering with any official signs,
                 injures a Sanctuary resource or quality, except those        notices, or placards, whether temporary or perma-
                 listed in paragraph (a)(4)(i)(A) through (D) above and       nent, or with any navigational aids, monuments,
                 those authorized under Monroe County land use                stakes, posts, mooring buoys, boundary buoys, trap
                 permits.                                                     buoys, or scientific equipment.

                     (5) Operation of vessels.                                     (9) Movement of. removal of, in*u!y to, or l2osses-
                                                                              sion of Sanctua[y historical resources. Moving,
                     (i) Operating a vessel in such a manner as to            removing, injuring, or possessing, or attempting to
                 strike or otherwise injure coral, seagrass, or any           move, remove, injure, or possess, a Sanctuary
                 other immobile organism attached to the seabed,              historical resource.
                 including, but not limited to, operating a vessel in
                 such a manner as to cause prop-scarring.                          (10) Take or possession of protected wildlife.
                                                                              Taking any marine mammal, sea turtle, or seabird in
                     (ii) Anchoring a vessel on coral other than              or above the Sanctuary, excel2t as authorized by the
                 hardbottom in water depths less than 40 feet when.           Marine Mammal Protection Act, as amended,
                 visibility is such that the seabed can be seen.              (MMPA), 16 U.S.C. 1361 et seq., the Endangered
                                                                              Species Act, as amended, (ESA), 16 U.S.C. 1531 et
                     (iii) Except in officially marked channels, operat-      seq., and the Migratory Bird Treaty Act, as amended,
                 ing a vessel at a speed greater than 4 knots or in           (MBTA) 16 U.S.C. 703 et seq.
                 manner which creates a wake:
                     (A) within an area designated idle speed only/no              (11) Possession or use of explosives or electrical
                 wake;                                                        charges. Possessing, or using explosives, except
                     (B) within 100 yards of navigational aids indicat-       powerheads, or releasing electrical charges within
                 ing emergent or shallow reefs (international diamond         the Sanctuary.
                 warning symbol);
                     (C) within 100 feet of the red and white "divers              (12) Harvest or possession of marine life spe-
                 down" flag (or the blue and white "alpha" flag in            cies. Harvesting, possessing, or landing any marine
                 Federal waters);                                             life species, or part thereof, within the Sanctuary,
                     (D) within 100 yards of residential shorelines; or       except in accordance with rules 46-42.001 through
                     (E) within 100 yards of stationary vessels.              46-42.003, 46-42.0035, and 46-42.004 through 46-
                                                                              42.007, and 46.42.009 of the Florida Administrative
                     (iv) Operating a vessel in such a manner as to           Code, reproduced in Appendix Vill to this part, and
                 injure, take or cause disturbance to wading, roosting,       such rules shall apply mutatis mulandis (with neces-
                 or nesting birds or marine mammals.                          sary editorial changes) to all Federal and State
                                                                              waters within the Sanctuary.
                     (v) Operating a vessel in a manner which unrea-
                 sonably or unnecessarily endangers life, limb, marine             (13) Interference with law enforcement. Interfer-
                 resources, or property, including but not limited to,        ing with, obstructing, delaying or preventing an
                 weaving through congested vessel traffic, jumping            investigation, search, seizure, or disposition of seized

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             Action Plans: Regulatory

             property in connection with enforcement of the Acts            exempted from the prohibitions in paragraph (a) of
             or any regulation or permit issued under the Acts.             this section and in ï¿½ 922.164 by the Director after
                                                                            consultation between the Director and the Depart-
                 (b) Notwithstanding the prohibitions in this               ment of Defense pursuant to section 304(d) of the
             section and in ï¿½ 922.164, and any access and use               NMSA. When a military activity is modified such that
             restrictions imposed pursuant thereto, a person may            it is likely to destroy, cause the loss of, or injure a
             conduct an activity specifically authorized by, and            Sanctuary resource or quality in a manner signifi-
             conducted in accordance with the scope, purpose,               cantly greater than was considered in a previous
             terms, and conditions of, a National Marine Sanctu-            consultation under section 304(d) of the NMSA, or it
             ary permit issued pursuant to ï¿½ 922.166.                       is likely to destroy, cause the loss of, or injure a
                                                                            Sanctuary resource or quality not previously consid-
                 (c) Notwithstanding the prohibitions in this               ered in a previous consultation under section 304(d)
             section and in ï¿½ 922.164, and any access and use               of the NMSA, the activity is considered a new activity
             restrictions imposed pursuant thereto, a person may            for purposes of this paragraph. If it is determined
             conduct an activity specifically authorized by a valid         that an activity may be carried out, such activity shall
             Federal, State, or local lease, permit, license, ap-           be carried out in a manner that avoids to the maxi-
             proval, or other authorization in existence on [insert         mum extent practical any adverse impact on Sanctu-
             the effective date of these regulations], or by any            ary resources and qualities.
             valid right of subsistence use or access in existence
             [insert the effective date of these regulations],                   (2) In the event of threatened or actual destruc-
             provided that the holder of such authorization or right        tion of, loss of, or injury to a Sanctuary resource or
             complies with ï¿½ 922.167 and with any terms and                 quality resulting from an untoward incident, including
             conditions on the exercise of such authorization or            but not limited to spills and groundings caused by the
             right imposed by the Director as a condition of                Department of Defense, the cognizant component
             certification as he or she deems reasonably neces-             shall promptly coordinate with the Director for the
             sary to achieve the purposes for which the Sanctuary           purpose of taking appropriate actions to prevent,
             was designated.                                                respond to or mitigate the harm and, if possible,
                                                                            restore or replace the Sanctuary resource or quality.
                 (d) Notwithstanding the prohibitions in this
             section and in,ï¿½ 922.164, and any access and use                    (f) The prohibitions contained in paragraph (a)(5)
             restrictions imposed pursuant thereto, a person may            of this section do not apply to Federal, State and
             conduct an activity specifically authorized by any             local officers while performing enforcement duties
             valid Federal, State, or local lease, permit, license,         and/or responding to emergencies that threaten life,
             approval, or other authorization issued after [insert          property, or the environment in their official capacity.
             the effective date of these regulations], provided that
             the applicant complies with ï¿½ 922.168, the Director                (g) Notwithstanding paragraph (b) of this section
             notifies the'applicant and authorizing agency that he          and paragraph (a) of ï¿½ 922.168, in no event may the
             or she does not object to issuance of the authoriza-           Director issue a permit under ï¿½ 922.166 authorizing,
             tion, and the applicant complies with any terms and            or otherwise approve, the exploration for, leasing,
             conditions the Director deems reasonably necessary             development, or production of minerals or hydrocar-
             to protect Sanctuary resources and qualities. Amend-           bons within the Sanctuary, the disposal of dredged
             ments, renewals and extensions of authorizations in            material within the Sanctuary other than in connec-
             existence on [insert the effective date of these               tion with beach renourishment or Sanctuary restora-
             regulations] constitute authorizations issued after            tion projects, or the discharge of untreated or primary
             [insert the effective date of these regulations].              treated sewage (except by a certification, pursuant to
                                                                            ï¿½ 922.167, of a valid authorization in existence on
                 (e)(1) All military activities shall be carried out in     [insert effective date of these regulations]), and any
             a manner that avoids to the maximum extent practi-             purported authorizations issued by other authorities
             cal any adverse impacts on Sanctuary resources and             after [insert the effective date of these regulations] for
             qualities. The prohibitions in paragraph (a) of this           any of these activities within the Sanctuary shall be
             section and ï¿½ 922.164 do not apply to existing                 invalid.
             classes of military activities which were conducted
             prior to the effective date of these regulations, as
             identified in the Environmental Impact Statement and
             Management Plan for the Sanctuary. New military
             activities in the Sanctuary are allowed and may be

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                                                                                                               Action Plans: Regulatofy

                ï¿½ 922.164 Additional activity regulations by                   the Great White Heron and Key West National
                Sanctuary area.                                                Wildlife Refuge Management Areas described in
                                                                               Appendix 11 to this part:
                     In addition to the prohibitions set forth in ï¿½
                922.163, which apply throughout the Sanctuary, the                  (i) Operating a personal watercraft, operating an
                following regulations apply with respect to activities         airboat, or water skiing except within Township 66
                conducted within the Sanctuary areas described in              South, Range 29 East, Sections 5, 11, 12 and 14;
                this section and in Appendix (11) through (VII) to this        Township 66 South, Range 28 East, Section 2;
                part. Activities located within two or more overlapping        Township 67 South, Range 26 East, Sections 16 and
                Sanctuary areas are concurrently subject to the                20, all Tallahassee Meridian.
                regulations applicable to each overlapping area.
                                                                                    (ii) Discharging or depositing any material or
                     (a) Areas To Be Avoided. Operating a tank                 other matter except cooling water or engine exhaust.
                vessel or a vessel greater than 50 meters in regis-
                tered length is prohibited in all areas to be avoided,              (c) Wildlife Management Areas. (1) Marine
                except if such vessel is a public vessel and its               portions of the Wildlife Management Areas listed in
                operation is essential for national defense, law               Appendix III to this part or portions thereof may be
                enforcement, or responses to emergencies that                  designated "idle speed only/no-wake," "no-motor"or
                threaten life, property, or the environment. Appendix          "no-access buffer"zones or "closed". The Director, in
                VII to this part sets forth the geographic coordinates         cooperation with other Federal, State, or local
                of these areas.                                                resource management authorities, as appropriate,
                                                                               shall post signs conspicuously, using mounting posts,
                     (b) Existing Management Areas.                            buoys, or other means according to location and
                                                                               purpose, at appropriate intervals and locations,
                     (1) Key Largo and Looe Key Management Areas.              clearly delineating an area as an "idle speed only/no
                The following activities are prohibited within the Key         wake", a "no-motor", or a "no-access buffer" zone or
                Largo and Looe Key Management Areas (also known                as "closed", and allowing instant, long-range recogni-
                as the Key Largo and Looe Key National Marine                  tion by boaters. Such signs shall display the official
                Sanctuaries) described in Appendix 11 to this part:            logo of the Sanctuary.
                     (i) Removing, taking, damaging, harmfully                      (2) The following activities are prohibited within
                disturbing, breaking, cutting, spearing or similarly           the marine portions of the Wildlife Management
                injuring any coral or other marine invertebrate, or any        Areas listed in Appendix III to this part:
                plant, soil, rock, or other material, except commercial
                taking of spiny lobster and stone crab by trap and                  (i) In those marine portions of any Wildlife
                recreational taking of spiny lobster by hand or by             Management Area designated an "idle speed only/no
                hand gear which is consistent with these regulations           wake" zone in Appendix III to this part, operating a
                and the applicable regulations implementing the                vessel at a speed greater that idle speed only/no
                applicable Fishery Management Plan.                            wake.

                     (ii) Taking any tropical fish.                                 (ii) In those marine portions of any Wildlife
                                                                               Management Area designated a "no-motor"zone in
                     (iii) Fishing with wire fish traps, bottom trawls,        Appendix III to this part, using internal combustion
                dredges, fish sleds, or similar vessel-towed or                motors or engines for any purposes. A vessel with
                anchored bottom fishing gear or nets.                          an internal combustion motor or engine may access
                                                                               a "no-motor"zone only through the use of a push
                     (iv) Fishing with, carrying or possessing, except         pole, paddle, sail, electric motor or similar means of
                while passing through without interruption or for law          propulsion.
                enforcement purposes: pole spears, air rifles, bows
                and arrows, slings, Hawaiian slings, rubber powered                 (iii) In those marine portions of any Wildlife
                arbaletes, pneumatic and spring-loaded guns or                 Management Area designated a "no-access buffer"
                similar devices known as spearguns.                            zone in Appendix III of this part, entering the area by
                                                                               vessel.
                     (2) Great White Heron and Key West National
                Wildlife Refuae Manaaement Areas. The following
                activities are prohibited within the marine portions of

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             Action Plans: Regulatory

                  (iv) In those marine portions of any Wildlife             or Sanctuary Preservation Area, as applicable, by
             Management Area designated as closed in Appendix               being stowed in a cabin, locker, or similar storage
             III of this part, entering or using the area.                  area prior to entering and during transit through such
                                                                            reserves or areas.
                  (v) Discharging or depositing any material or
             other matter except cooling water or engine exhaust.                (iii) Except for catch and release fishing by
                                                                            trolling in the Conch Reef, Alligator Reef, Sombrero
                  (3) The Director shall coordinate with other              Reef, and Sand Key SPAs, fishing by any means.
             Federal, State, or local resource management                   However, gear capable of harvesting fish may be
             authorities, as appropriate, in the establishment and          aboard a vessel in an Ecological Reserve or Sanctu-
             enforcement of access restrictions described in                ary Preservation Area, provided such gear is not
             (c)(2)(i)-(iv) of this section in the marine portions of       available for immediate use when entering and
             Wildlife Management Areas.                                     during transit through such Ecological Reserve or
                                                                            Sanctuary Preservation Area, and no presumption of
                  (4) The Director may modify the number and                fishing activity shall be drawn therefrom.
             location of access restrictions described in (c)(2)(i)-
             (iv) of this section within the marine portions of a                (iv) Touching living or dead coral, including but
             Wildlife Management Area if the Director finds that            not limited to, standing on a living or dead coral
             such action is reasonably necessary to minimize                formation.
             disturbances to Sanctuary wildlife, or to ensure
             protection and preservation of Sanctuary wildlife                   (v) Placing any anchor in a way that allows the
             consistent with the purposes of the Sanctuary                  anchor or any portion of the anchor apparatus
             designation and other applicable law governing the             (including the anchor, chain or rope) to touch living or
             protection and preservation of wildlife resources in           dead coral, or anyattached organism. When anchor-
             the Sanctuary. The Director will effect such modifica-         ing dive boats, the first diver down must inspect the
             tion by:                                                       anchor to ensure that it is not touching living or dead
             (i) publishing in the Federal Registe , after notice and       coral, and will not shift in such a way as to touch
             an opportunity for public comments in accordance,              such coral or other attached organisms. No further
             an amendment to the list of such areas set forth in            diving shall take place until the anchor is placed in
             Appendix III to this part, and a notice regarding the          accordance with these requirements.
             time and place where maps depicting the precise
             locations of such restrictions will be made available               (vi) Anchoring instead of mooring when a moor-
             for public inspection, and (0) posting official signs          ing buoy is available or anchoring in other than a
             delineating such restrictions in accordance with               designated anchoring area when such areas have
             subparagraph (c)(1).                                           been designated and are available.
                  (d) Ecological Reserves and Sanctua[y Preserva-                (vii) Except for passage without interruption
             tion Areas. (1) The following activities are, prohibited       through the area, for law enforcement purposes, or
             within the Ecological Reserves described in Appendix           for purposes of monitoring pursuant to paragraph
             IV to this part, and within the Sanctuary Preservation         (d)(2), violating a temporary access restriction
             Areas, described in Appendix V to this part:                   imposed by the Director pursuant to paragraph (d)(2).
                  (i) Discharging or depositing any material or                  (2) The Director may temporarily restrict access
             other matter except cooling water or engine exhaust.           to any portion of any Sanctuary Preservation Area or
                                                                            Ecological Reserve if the Director, on the basis of the
                  (ii) Possessing, moving, harvesting, removing,            best available data, information and studies, deter-
             taking, damaging, disturbing, breaking, cutting,               mines that a concentration of use appears to be
             spearing, or otherwise injuring any coral, marine              causing or contributing to significant degradation of
             invertebrate, fish, bottom formation, algae, seagrass          the living resources of the area and that such action
             or other living or dead organism, including shells, or         is reasonably necessary to allow for recovery of the
             attempting any of these activities. However, fish,             living resources of such area. The Director will
             invertebrates, and marine plants may be possessed              provide for continuous monitoring of the area during
             aboard a vessel in an Ecological Reserve or Sanctu-            the pendency of the restriction. The Director will
             ary Preservation Area, provided such resources can             provide public notice of the restriction by publishing a
             be shown not to have been harvested within, re-                notice in the Federal Registe , and by such other
             moved from, or taken within, the Ecological Reserve            means as the Director may deem appropriate. The

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                                                                                                            Action Plans: Regulatoiy

                Director may only restrict access to an area for a           monitor recovery of degraded or otherwise injured
                period of 60 days, with one additional 60 day re-            Sanctuary resources;
                newal. The Director may restrict access to an area
                for a longer period pursuant to a notice and opportu-             (ii) in such area designated as a "research only
                nity for public comment rulemaking under the Admin-          area", scientific research or educational use specifi-
                istrative Procedure Act. Such restriction will be kept       cally authorized by and conducted in accordance with
                to the minimum amount of area necessary to achieve           the scope, purpose, terms and conditions of a valid
                the purposes thereof.                                        National Marine Sanctuary General or Historical
                    (e) Special-use Areas. (1) The Director may set          Resources permit, or
                aside discrete areas of the Sanctuary as Special-use              (iii) in such area designated as a"facilitated-use
                Areas, and, by designation pursuant to this para-            area", activities specified by the Director or specifi-
                graph, impose the access and use restrictions                cally authorized by and conducted in accordance with
                specified in subparagraph (e)(3). Special-use Areas          the scope, purpose, terms, and conditions of a valid
                are described in Appendix VI to this part, in accor-         Special-use permit.
                dance with the following designations and corre-
                sponding objectives:                                              (4)(i) The Director may modify the number of,
                                                                             location of, or designations applicable to, Special-use
                    (i) "Recovery area" to provide for the recovery of       Areas by publishing in the Federal Register, after
                Sanctuary resources from degradation or other injury         notice and an opportunity for public comment in
                attributable to human uses;                                  accordance with the Administrative Procedure Act,
                                                                             an amendment to Appendix VI to this part, except
                    (ii) "Restoration area" to provide for restoration of    that, with respect to such areas designated as a
                degraded or otherwise injured Sanctuary resources;           94recovery area," "restoration area," or "research only
                                                                             area," the Director may modify the number of,
                    (iii) "Research-only area" to provide for scientific     location of, or designation applicable to, such areas
                research or education relating to protection and             by publishing a notice of such action in the Federal
                management, through the issuance of a Sanctuary              Register if the Director determines that immediate
                General permit for research pursuant to                      action is reasonably necessary to:
                 922.166 of these regulations; and
                                                                                  (A) prevent significant injury to Sanctuary re-
                    (iv) "Facilitated-use area" to provide for the           sources where circumstances create an imminent
                prevention of use or user conflicts or the facilitation of   risk to such resources;
                access and use, or to promote public use and                      (B) initiate restoration activity where a delay in
                understanding, of Sanctuary resources through the            time would significantly impair the ability of such
                issuance of special-use permits.                             restoration activity to succeed;
                                                                                  (C) initiate research activity where an unforeseen
                    (2) A Special-use Area shall be no larger than           natural event produces an opportunity for scientific
                the size the Director deems reasonably necessary to          research that may be lost if research is not initiated
                accomplish the applicable objective.                         immediately.
                    (3) Persons conducting activities within any                  (ii) If the Director determines that a notice of
                Special-use Area shall comply with the access and            modification must be promulgated immediately in
                use restrictions specified in this paragraph and made        accordance with subparagraph (4)(i), the Director
                applicable to such area by means of its designation          will, as part of the same notice, invite public comment
                as a "recovery area," "restoration area," "research-         and specify that comments will be received for 15
                only area," or "facilitated-use area." Except for            days after the effective date of the notice. As soon as
                passage without interruption through the area or for         practicable after the end of the comment period, the
                law enforcement purposes, no person may enter a              Director will either rescind, modify or allow the
                Special-use Area except to conduct or cause to be            modification to remain unchanged through notice in
                conducted the following activities:                          the Federal Reoiste

                    (i) in such area designated as a "recovery area"         ï¿½ 922.165 Emergency regulations.
                or a "restoration area", habitat manipulation related to
                restoration of degraded or otherwise injured Sanctu-              Where necessary to prevent or minimize the
                ary resources, or activities reasonably necessary to         destruction of, loss of, or injury to a Sanctuary

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              Action Plans: Regulatory

              resource or quality, or minimize the imminent risk of         activity will: (i) further research or monitoring related
              such destruction, loss, or injury, any and all activities     to Sanctuary resources and qualities; (!I) further the
              are subject to immediate temporary regulation,                educational value of the Sanctuary; (iii) further the
              including prohibition, Any such temporary regulation          natural or historical resource value of the Sanctuary;
              may be in effect for up to 60 days, with one 60-day           (iv) further salvage or recovery operations in or near
              extension. Additional or extended action will require         the Sanctuary in connection with a recent air or
              notice and comment rulemaking under the Adminis-              marine casualty; (v) assist in managing the Sanctu-
              trative Procedure Act, notice in local newspapers,            ary; or (vi) otherwise further Sanctuary purposes,
              notice to Mariners, and press releases.                       including facilitating multiple use of the Sanctuary, to
                                                                            the extent compatible with the primary objective of
              ï¿½ 922.45 Penalties.                                           resource protection.
                  (a) Each violation of the NMSA or FKNMSPA,                (3) The Director shall not issue a General permit
              any regulation in this part, or any permit issued             under this paragraph (a), unless the Director also
              pursuant thereto, is subject to a civil penalty of not        finds that: (i) the applicant is professionally qualified
              more than $100,000. Each day of a continuing                  to conduct and complete the proposed activity; (ii) the
              violation constitutes a separate violation.                   applicant has adequate financial resources available
                                                                            to conduct and complete the proposed activity; (iii)
                  (b) Regulations setting forth the procedures              the duration of the proposed activity is no longer than
              governing administrative proceedings for assessment           necessary to achieve its stated purpose; (iv) the
              of civil penalties, permit sanctions, and denials for         methods and procedures proposed by the applicant
              enforcement reasons, issuance and use of written              are appropriate to achieve the proposed activity's
              warnings, and release or forfeiture of seized property        goals in relation to the activity's impacts on Sanctu-
              appear at 15 CFR part 904.                                    ary resources and qualities; (v) the proposed activity
              ï¿½ 922.46 Response cos      .ts and damages.                   will be conducted in a manner compatible with the
                                                                            primary objective of protection of Sanctuary re-
                                                                            sources and qualities, considering the extent to which
              Under section 312 of the Act, any person who                  the conduct of the activity may diminish or enhance
              destroys, causes the loss of, or injures any Sanctuary        Sanctuary resources and qualities, any indirect,
              resource is liable to the United States for response          secondary or cumulative effects of the activity, and
              costs and damages resulting from such destruction,            the duration of such effects; (vi) it is necessary to
              loss or injury, and any vessel used to destroy, cause         conduct the proposed activity within the Sanctuary to
              the loss of, or injure any Sanctuary resource is liable       achieve its purposes; and (vii) the reasonably ex-
              in rem to the United States for response costs and            pected end value of the activity to the furtherance of
              damages resulting from such destruction, loss or              Sanctuary goals and purposes outweighs any
              injury.                                                       potential adverse impacts on Sanctuary resources
                                                                            and qualities from the conduct of the activity. For,
              ï¿½ 922.166 Permits - application procedures and                activities proposed to be conducted within any of the
              issuance criteria.                                            areas described in
                                                                            ï¿½ 922.164(b)-(e), the Director shall not issue a permit
                  (a) National Marine Sanctuary General Permit.             unless he or she further finds that such activities will
                                                                            further and are consistent with the purposes for
                  (1) A person may conduct an activity prohibited           which such area was established, as described in
              by ï¿½ï¿½ 922.163 or 922.164, other than an activity              922.162 and 922.164 and in the management plan
              involving the survey/inventory, research/recovery, or         for the Sanctuary.
              deaccession/transfer of Sanctuary historical re-
              sources, if such activity is specifically authorized by,          (b) National Marine Sanctuary Survey/Inventory
              and provided such activity is conducted in accor-             of Historical Resources Permit.
              dance with the scope, purpose, terms and conditions
              of, a National Marine Sanctuary General permit                (1) A person may conduct an activity prohibited by ï¿½ï¿½
              issued under this paragraph (a).                              922.163 or 922.164 involving the survey/inventory of
                                                                            Sanctuary historical resources if such activity is
                  (2) The Director, at his or her discretion, may           specifically authorized by, and is conducted in
              issue a General permit under this paragraph (a),              accordance with the scope, purpose, terms and
              subject to such terms and conditions as he or she             conditions of, a Survey/inventory of Historical Re-
              deems appropriate, if the Director finds that the             sources permit issued under this paragraph (b).


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                                                                                                                 Action Plans: Regulatoiy
                 Such permit is not required if such survey/inventory            Resource Management, National Ocean Service,
                 activity does not involve any activity prohibited by ï¿½ï¿½         National Oceanic and Atmospheric Administration,
                 922.163 or 922.164. Thus, survey/inventory activities           1305 East-West Highway, 12th floor, Silver Spring,
                 that are non-intrusive, do not include any excavation,          MD 20910; or from the Florida Keys National Marine
                 removal, or recovery of historical resources, and do            Sanctuary Off ice, P.O. Box 500368, Marathon, FL
                 not result in destruction of, loss of, or injury to             33050.
                 Sanctuary resources or qualities do not require a
                 permit. However, if a survey/inventory activity will                 (c) National Marine Sanctuary Research/
                 involve test excavations or removal of artifacts or             Recovery of Sanctuary Historical Resources Permit.
                 materials for evaluative purposes, a Survey/Inventory
                 of Historical Resources permit is required. Regard-                  (1) A person may conduct any activity prohibited
                 less of whether a Survey/inventory permit is required,          by ï¿½ï¿½ 922.163 or 922.164 involving the research/
                 a person may request such permit. Persons who                   recovery of Sanctuary historical resources if such
                 have demonstrated their professional abilities under            activity is specifically authorized by, and is conducted
                 a Survey/Inventory permit will be given preference              in accordance with the scope, purpose, terms and
                 over other persons in consideration of the issuance             conditions of, a Research/Recovery of Historical
                 of a Research/Recovery permit. While a Survey/                  Resources permit issued under this paragraph (c).
                 Inventory permit does not grant any rights with
                 regards to areas subject to pre-existing rights of                   (2) The Director, at his or her discretion, may
                 access which are still valid, once a permit is issued           issue a Research/Recovery of Historical Resources
                 for an area, other survey/inventory permits will not be         permit, under this paragraph (c), and subject to such
                 issued for the same area during the period for which            terms and conditions as he or she deems appropri-
                 the permit is valid.                                            ate, if the Director finds that: (i) such activity satisfies
                                                                                 the requirements for a permit issued under paragraph
                      (2) The Director, at his or her discretion, may            (a)(3) of this section; (ii) the recovery of the resource
                 issue a Survey/Inventory permit under this paragraph            is in the public interest as described in the SCR
                 (b), subject to such terms and conditions as he or              Agreement; (iii) recovery of the resource is part of
                 she deems appropriate, if the Director finds that such          research to preserve historic information for public
                 activity: (i) satisfies the requirements for a permit           use; and (iv) recovery of the resource is necessary or
                 issued under paragraph (a)(3) of this section;                  appropriate to protect the resource, preserve histori-
                 (ii) either will be non-intrusive, not include any              cal information, and/or further the policies and
                 excavation, removal, or recovery of historical re-              purposes of the NMSA and the FKNMSPA, and,that
                 sources, and not result in destruction of, loss of, or          such permit issuance is in accordance with, and that
                 injury to Sanctuary resources or qualities, or if               the activity will be conducted in accordance with, all
                 intrusive, will involve no more than the minimum                requirements.of the SCR Agreement.
                 manual alteration of the seabed and/or the removal
                 of artifacts or other material necessary for evaluative              (d) National Marine Sanctuary Special-use
                 purposes and will cause no significant adverse                  Permit.
                 impacts on Sanctuary resources or qualities; and (iii)
                 that such activity will be conducted in accordance                   (1) A person may conduct any commercial or
                 with all requirements of the Programmatic Agreement             concession-type activity prohibited by ï¿½ï¿½ 922.163 or
                 for the Management of Submerged Cultural Re-                    922.164, if such activity is specifically authorized by,
                 sources in the Florida Keys National Marine Sanctu-             and is conducted in accordance with the scope,
                 ary among NOAA, The Advisory Council on Historic                purpose, terms and conditions of, a Special-use
                 Preservation, and the State of Florida (hereinafter             permit issued under this paragraph (d). A Special-
                 SCR Agreement), and that such permit issuance is in             use permit is required for the deaccession/transfer of
                 accordance with such SCR Agreement. This incorpo-               Sanctuary historical resources.
                 ration by reference was approved by the Director of
                 the Federal Reoiste in accordance with 5 U.S.C.                      (2) The Director, at his or her discretion, may
                 552(a) and 1 CFR part 51. The SCR Agreement is                  issue a Special-use permit in accordance with this
                 reproduced in the "Submerged Cultural Resources                 paragraph (d), and subject to such terms and condi-
                 Action Plan" set forth in Volume I of the Florida Keys          tions as he or she deems appropriate and the
                 National Marine Sanctuary Management Plan, dated                mandatory terms and conditions of section 310 of the
                 1996. Copies of the SCR Agreement may also be                   NMSA, if the Director finds that issuance of such
                 examined at, and obtained from, the Sanctuaries and             permit is reasonably necessary to: (i) establish
                 Reserves Division, Office of Ocean and Coastal                  conditions of access to and use of any Sanctuary

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              Action Plans: Regulatoty

              resource; or (ii) promote public use and understand-            cations and experience of all personnel; (iii) the
              ing of any Sanctuary resources. No permit may be                financial resources available to the applicant to
              issued unless the activity is compatible with the               conduct and complete the proposed activity; (iv) a
              purposes for which the Sanctuary was designated                 statement as to why it is necessary to conduct the
              and can be conducted in a manner that does not                  activity within the Sanctuary; (v) the potential impacts
              destroy, cause the loss of, or injure any Sanctuary             of the activity, if any, on Sanctuary resources and
              resource, and if for the deaccession/transfer of                qualities; (vi) the benefit to be derived from the
              Sanctuary Historical Resources, unless such permit              activity; and (vii) such other information as the
              issuance is in accordance with, and that the activity           Director may request depending on the type of
              will be conducted in accordance with, all require-              activity. Copies of all other required licenses, per-
              ments of the SCR Agreement.                                     mits, approvals, or other authorizations must be
                                                                              attached to the application.
                   (3) The Director may assess and collect fees for
              the conduct of any activity authorized by a Special-                (2) Upon receipt of an application, the Director
              use permit issued pursuant to this paragraph (d). No            may request such additional information from the
              Special-use permit shall be effective until all as-             applicant as he or she deems reasonably necessary
              sessed fees are paid, unless otherwise provided by              to act on the application and may seek the views of
              the Director by a fee schedule set forth as a permit            any persons. The Director may require a site visit as
              condition. In assessing a fee, the Director shall               part of the permit evaluation. Unless otherwise
              include:                                                        specified, the information requested must be re-
                   (i) all costs incurred, or expected to be incurred,        ceived by the Director within 30 days of the postmark
              in reviewing and processing the permit application,             date of the request. Failure to provide such addi-
              including, but not limited to, costs for: (A) number of         tional information on a timely basis may be deemed
              personnel; (B) personnel hours;                                 by the Director to constitute abandonment or with-
              (C) equipment; (D) biological assessments; (E)                  drawal of the permit application.
              copying; and (F)- overhead directly related to review-
              ing and processing the permit application;                          (f) A permit may be issued for a period.not
                   (ii) all costs incurred, or expected to be incurred,       exceeding five years. All permits will be reviewed
              as a direct result of the conduct of the activity for           annually to determine the permittee's compliance
              which the Special-use permit is being issued, includ-           with permit scope, purpose, terms and conditions and
              ing, but not limited to: (A) the cost of monitoring the         progress toward reaching the stated goals and
              conduct both during the activity and after the activity         appropriate action taken under paragraph (g) if
              is completed in order to assess the impacts to                  warranted. A permittee may request permit renewal
              Sanctuary resources and qualities; (B) the use of an            pursuant to the same procedures for applying for a
              official NOAA observer, including travel and ex-                new permit. Upon the permittee's request for re-
              penses and personnel hours; and                                 newal, the Director shall review all reports submitted
              (C) overhead costs directly related to the permitted            by the permittee as required by the permit conditions.
              activity; and                                                   In order to renew the permit, the Director must find
                   (iii) an amount which represents the fair market           that the: (i) activity will continue to further the pur-
              value of the use of the Sanctuary resource and a                poses for which the Sanctuary was designated in
              reasonable return to the United States Government.              accordance with the criteria applicable to the initial
                                                                              issuance of the permit; (ii) permittee has at no time
                   (4) Nothing in this paragraph (d) shall be consid-         violated the permit, or these regulations; and (iii) the
              ered to require a person to obtain a permit under this          activity has not resulted in any unforeseen adverse
              paragraph for the conduct of any fishing activities             impacts to Sanctuary resources or qualities.
              within the Sanctuary.
                                                                                  (g) The Director may amend, suspend, or revoke
                   (e) Applications. (1) Applications for permits             a permit for good cause. The Director may deny a
              should be addressed to the Director, Office of Ocean            permit application, in whole or in part, if it is deter-
              and Coastal Resource Management; ATTN: Sanctu-                  mined that the permittee or applicant has acted in
              ary Superintendent, Florida Keys National Marine                violation of a previous permit, of these regulations, of
              Sanctuary, P.O. Box 500368, Marathon, FL 33050.                 the NMSA or FKNMSPA, or for other good cause.
              All applications must include: (i) a detailed descrip-          Any such action shall be communicated in writing to
              tion of the proposed activity including a timetable for         the permittee or applicant by certified mail and shall
              completion of the activity and the equipment, person-           set forth the reason(s) for the action taken. Proce-
              nel and methodology to be employed; (ii) the qualifi-           dures governing permit sanctions and denials for

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                                                                                                            Action Plans: Regulatory
                enforcement reasons are set forth in Subpart D of 15          begun, and an approved nautical conservator shall
                CFR part 904.                                                 be in charge of planning, conducting, and supervising
                                                                              the conservation of any artifacts and other materials
                    (h) The applicant for or holder of a National             recovered.
                Marine Sanctuary permit may appeal the denial,
                conditioning, amendment, suspension or revocation                 (3) a curation agreement with a museum or
                of the permit in accordance with the procedures set           facility for curation, public access and periodic public
                forth in ï¿½ 922.50.                                            display, and maintenance of the recovered historical
                                                                              resources shall be in place before commencing field
                    (i) A permit issued pursuant to this section other        operations (such agreement for the curation and
                than a Special-use permit is nontransferable. Spe-            display of recovered historical resources may provide
                cial-use permits may be transferred, sold, or as-             for the release of public artifacts for deaccession/
                signed with the written approval of the Director. The         transfer if such deaccession/transfer is consistent
                permittee shall provide the Director with written             with preservation, research, education, or other
                notice of any proposed transfer, sale, or assignment          purposes of the designation and management of the
                no less than 30 days prior to its proposed consum-            Sanctuary. Deaccession/transfer of historical re-
                mation. Transfers, sales, or assignments consum-              sources requires a Special-use permit issued pursu-
                mated in violation of this requirement shall be consid-       ant to paragraph (d) and such deaccession/transfer
                ered a material breach of the Special-use permit, and         shall be executed in accordance with the require-
                the permit shall be considered void as of the consum-         ments of the SCR Agreement).
                mation of any such transfer, sale, or assignment.
                                                                                  (4) the site's archaeological information is fully
                    0) The permit or a copy thereof shall be main-            documented, including measured drawings, site
                tained in legible condition on board all vessels or           maps drawn to professional standards, and photo-
                aircraft used in the conduct of the permitted activity        graphic records.
                and be displayed for inspection upon the request of
                any authorized officer.                                           (m) In addition to the terms and conditions listed
                                                                              in paragraph (k) and (1), any permit issued pursuant
                    (k) Any permit issued pursuant to this section            to this section is subject to such other terms and
                .shall be subject to the following terms and conditions.      conditions, including conditions governing access to,
                                                                              or use of, Sanctuary resources, as the Director
                    (1) All permitted activities shall be conducted in a      deems reasonably necessary or appropriate and in
                manner that does not destroy, cause the loss of, or           furtherance of the purposes for which the Sanctuary
                injure Sanctuary resources or qualities, except to the        is designated. Such terms and conditions may
                extent that such may be specifically authorized.              include, but are not limited to:

                    (2) The permittee agrees to hold the United                   (1) Any data or information obtained under the
                States harmless against any claims arising out of the         permit shall be made available to the public.
                conduct of the permitted activities.
                                                                                  (2) A NOAA official shall be allowed to observe
                    (3) All necessary Federal, State, and local               any activity conducted under the permit.
                permits from all agencies with jurisdiction over the
                proposed activities shall be secured before com-                  (3) The permittee shall submit one or more
                mencing field operations.                                     reports on the status, progress, or results of any
                                                                              activity authorized by the permit.
                    (1) In addition to the terms and conditions listed in
                paragraph (k), any permit authorizing the research/               (4) The permittee shall submit an annual report
                recovery of historical resources shall be subject to          to the Director not later than December 31 of each
                the following terms and conditions:                           year on activities conducted pursuant to the permit.
                                                                              The report shall describe all activities conducted
                    (1) a professional archaeologist shall be in              under the permit and all revenues derived from such
                charge of planning, field recovery operations, and            activities during the year and/or term of the permit.
                research analysis.
                                                                                  (5) The permittee shall purchase and maintain
                    (2) an agreement with a conservation laboratory           general liability insurance or other acceptable secu-
                shall be in place before field recovery operations are        rity against potential claims for destruction, loss of, or

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              Action Plans: Regulatory

              injury to Sanctuary resources arising out of the                  (e) The Director may request additional informa-
              permitted activities. The amount of insurance or             tion from the certification requester as he or she
              security should be commensurate with an estimated            deems reasonably necessary to condition appropri-
              value of the Sanctuary resources in the permitted            ately the exercise of the certified authorization or
              area. A copy of the insurance policy or security             right to achieve the purposes for which the Sanctuary
              instrument shall be submitted to the Director.               was designated. The information requested must be
                                                                           received by the Director within 45 days of the post-
              ï¿½ 922.167 Certification of preexisting leases,               mark date of the request. The Director may seek the
              licenses, permits, approvals, other authoriza-               views of any persons on the certification request.
              tions, or rights to conduct a prohibited activity.
                                                                                (f) The Director may amend any certification
                  (a) A person may conduct an activity prohibited          made under this
              by                                                           ï¿½ 922.167 whenever additional information becomes
              ï¿½ï¿½ 922.163 or 922.164 if such activity is specifically       available justifying such an amendment.
              authorized by a valid Federal, State, or local lease,
              permit, license, approval, or other authorization in              (g) Upon completion of review of the authoriza-
              existence on [insert the effective date of these             tion or right and information received with respect
              regulations], or by any valid right of subsistence use       thereto, the Director shall communicate, in writing,
              or access in existence on [insert the effective date of      any decision on a certification request or any action
              these regulations], provided that:                           taken with respect to any certification made under
                                                                           this ï¿½ 922.167, in writing, to both the holder of the
              1) The holder of such authorization or right notifies        certified lease, permit, license, approval, other
              the Director, in writing, within 90 days of [insert the      authorization, or right, and the issuing agency, and
              effective date of these regulations], of the existence       shall set forth the reason(s) for the decision or action
              of such authorization or right and requests certifica-       taken.
              tion of such authorization or right; 2) the holder
              complies with the other provisions of this ï¿½ 922.167;             (h) Any time limit prescribed in or established
              and 3) the holder complies with any terms and                under this
              conditions on the exercise of such authorization or          ï¿½ 922.167 may be extended by the Director for good
              right imposed as a condition of certification, by the        cause.
              Director, to achieve the purposes for which the
              Sanctuary was designated.                                         (i) The holder may appeal any action condition-
                                                                           ing, amending, suspending, or revoking any certifica-
                  (b) The holder of an authorization or right de-          tion in accordance with the procedures set forth in ï¿½
              scribed in paragraph (a) above authorizing an activity       922.50.
              prohibited by
              ï¿½ï¿½ 922.163 or 922.164 may conduct the activity                    6) Any amendment, renewal, or extension made
              without being in violation of applicable provisions of       after [insert the effective date of these regulations], to
              ï¿½ï¿½ 922.163 or 922.164, pending final agency action           a lease, permit, license, approval, other authorization
              on his or her certification request, provided the holder     or right is subject to the provisions of ï¿½ 922.168.
              is in compliance with this ï¿½ 922.167.
                                                                           ï¿½ 922.168 Notification and review of applications
                  (c) Any holder of an authorization or right de-          for leases, licenses, permits, approvals, or other
              scribed in paragraph (a) above may request the               authorizations to conduct a prohibited activity.
              Director to issue a finding as to whether the activity
              for which the authorization has been issued, or the               (a) A person may conduct an activity prohibited
              right given, is prohibited by ï¿½ï¿½ 922.163 or 922.164,         by
              thus requiring certification under this section.             ï¿½ï¿½ 922.163 or 922.164 if such activity is specifically
                                                                           authorized by any valid Federal, State, or local lease,
                  (d) Requests for findings or certifications should       permit, license, approval, or other authorization
              be addressed to the Director, Office of Ocean and            issued after [insert effective date of these regula-
              Coastal Resource Management; ATTN: Sanctuary                 tions], provided that: 1) the applicant notifies the
              Superintendent, Florida Keys National Marine                 Director, in writing, of the application for such authori-
              Sanctuary, P.O. Box 500368, Marathon, FL 33050.              zation (and of any application for an amendment,
              A copy of the lease, permit, license, approval, or           renewal, or extension of such authorization) within
              other authorization must accompany the request.              fifteen (15) days of the date of filing of the application

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                                                                                                                  Action Plans: Regulatoiy
                 or [insert the effective date of these regulations],                  (h) The applicant may appeal any objection by,
                 whichever is later; 2) the applicant complies with the           or terms or conditions imposed by, the Director to the
                 other provisions of this ï¿½ 922.168; 3) the Director              Assistant Administrator or designee in accordance
                 notifies the applicant and authorizing agency that he            with the provisions of
                 or she does not object to issuance of the authoriza-             ï¿½ 922.50.
                 tion (or amendment, renewal, or extension); and 4)
                 the applicant complies with any terms and conditions             ï¿½ 922.50 Appeals of administrative action.
                 the Director deems reasonably necessary to protect
                 Sanctuary resources and qualities.                                    (a)(1) Except for permit actions taken for enforce-
                                                                                  ment reasons (see subpart D of 15 CFR part 904 for
                     (b) Any potential applicant for an authorization             applicable procedures), an applicant for, or a holder
                 described in paragraph (a) above may request the                 of, a National Marine Sanctuary permit, or Special
                 Director to issue a finding as to whether the activity           Use permit pursuant to section 310 of the Act; a
                 for which an application is intended to be made is               person requesting certification of an existing lease,
                 prohibited by ï¿½ï¿½ 922.163 or 922.164.                             permit, license or right of subsistence use or access
                                                                                  under ï¿½ 922.47; or, for those Sanctuaries described
                     (c) Notification of filings of applications should be        in subparts L through P, an applicant for a lease,
                 addressed to the Director, Office of Ocean and                   permit, license or other authorization issued by any
                 Coastal Resource Management; ATTN: Sanctuary                     Federal, State, or local authority of competent
                 Superintendent, Florida Keys National Marine                     jurisdiction (hereinafter appellant) may appeal to the
                 Sanctuary, P.O. Box 500368, Marathon, FL 33050.                  Assistant Administrator:
                 A copy of the application must accompany the
                 notification.                                                         (i) The granting, denial, conditioning, amend-
                                                                                  ment, suspension, or revocation by the Director of a
                     (d) The Director may request additional informa-             National Marine Sanctuary or Special Use permit;
                 tion from the applicant as he or she deems reason-                    (ii) The conditioning, amendment, suspension, or
                 ably necessary to determine whether to object to                 revocation of a certification under ï¿½ 922.47; or
                 issuance of an authorization described in paragraph                   (iii) For those Sanctuaries described in subparts
                 (a) above, or what terms and conditions are reason-              L through P, the objection to issuance of or the
                 ably necessary to protect Sanctuary resources and                imposition of terms and conditions on a lease, permit,
                 qualities. The information requested must be re-                 license, or other authorization issued by any Federal,
                 ceived by the Director within 45 days of the postmark            State, or local authority of competent jurisdiction.
                 date of the request. The Director may seek the views
                 of any persons on the application.                                    (2) For those National Marine Sanctuaries
                                                                                  described in subparts F through K, any interested
                     (e) The Director shall notify, in writing, the               person may also appeal the same actions described
                 agency to which application has been made of his or              in paragraphs (a)(1)(i) and (ii) of this section. For
                 her pending review of the application and possible               appeals arising from actions taken with respect to
                 objection to issuance. Upon completion of review of              these National Marine Sanctuaries, the term "appel-
                 the application and information received with respect            lant" includes any such interested persons.
                 thereto, the Director shall notify both the agency and
                 applicant, in writing, whether he or she*has an                       (b) An appeal under paragraph (a) of this section
                 objection to issuance and what terms and conditions              must be in writing, state the action(s) by the Director
                 he or she deems reasonably necessary to protect                  appealed and the reason(s) for the appeal, and be
                 Sanctuary resources and qualities, and reasons                   received within 30 days of receipt of notice of the
                 therefor.                                                        action by the Director. Appeals should be addressed
                                                                                  to the Assistant Administrator, Office of Ocean and
                     (f) The Director may amend the terms and                     Coastal Resource Management, ATTN: Sanctuaries
                 conditions deemed reasonably necessary to protect                and Reserves Division, Office of Ocean and Coastal
                 Sanctuary resources and qualities whenever addi-                 Resource Management, National Ocean Service,
                 tional information becomes available justifying such             National Oceanic and Atmospheric Administration,
                 an amendment.                                                    1305 East-West Highway, Silver Spring, MD 20910.

                     (g) Any time limit prescribed in or established                   (c) While the appeal is pending, appellants may
                 under this ï¿½ 922.168 may be extended by the Direc-               not conduct their activities without being subject to
                 tor for good cause.                                              the prohibitions in ï¿½ï¿½ 922.163 and 922.164.

                                                                                                                                                129






              Action Plans: Regulatory
                   (d)(1) The Assistant Administrator may request           degrees 39 minutes north latitude, 80 degrees 5
              the appellant to submit such information as the               minutes west longitude, then runs eastward to the
              Assistant Administrator deems reasonably necessary            300-foot isobath located at approximately 25 degrees
              in order for him or her to decide the appeal. The             39 minutes north latitude, 80 degrees 4 minutes west
              information requested must be received by the                 longitude;
              Assistant Administrator within 45 days of the post-
              mark date of the request. The Assistant Administrator              (b) then runs southward and connects in succes-
              may seek the views of any other persons. For the              sion the points at the following coordinates:
              Monitor National Marine Sanctuary, if the appellant
              has requested a hearing, the Assistant Administrator               (i) 25 degrees 34 minutes north latitude, 80
              shall grant an informal hearing. For all other National       degrees 4 minutes west longitude,
              Marine Sanctuaries, the Assistant Administrator may
              determine whether to hold an informal hearing on the               (ii) 25 degrees 28 minutes north latitude, 80
              appeal. If the Assistant Administrator determines that        degrees 5 minutes west longitude, and
              an informal hearing should be held, the Assistant                  (iii) 25 degrees 21 minutes north latitude, 80
              Administrator may designate an officer before whom            degrees 7 minutes west longitude;
              the hearing shall be held.
                   (2) The hearing officer shall give notice in the              (iv) 25 degrees 16 minutes north latitude, 80
              Federal Reaister of the time, place, and subject              degrees 8 minutes west longitude;
              matter of the hearing. The appellant and the Director              (c) then runs southwesterly approximating the
              may appear personally or by counsel at the hearing            300-foot isobath and connects in succession the
              and submit such material and present such argu-               points at the following coordinates:
              ments as deemed appropriate by the hearing officer.
              Within 60 days after the record before the hearing                 (i) 25 degrees 7 minutes north latitude, 80
              officer closes, the hearing officer shall recommend a         degrees 13 minutes west longitude,
              decision in writing to the Assistant Administrator.
                                                                                 (ii) 24 degrees 57 minutes north latitude, 80
                   (e) The Assistant Administrator shall decide the         degrees 21 minutes west longitude,
              appeal using the same regulatory criteria as for the
              initial decision and shall base the appeal decision on             (iii) 24 degrees 39 minutes north latitude, 80
              the record before the Director and any information            degrees 52 minutes west longitude,
              submitted regarding the appeal, and if a hearing has
              been held, on the record before the hearing officer                (iv) 24 degrees 30 minutes north latitude, 81
              and the hearing officer's recommended decision. The           degrees 23 minutes west longitude,
              Assistant Administrator shall notify the appellant of
              the final decision and the reason(s) therefore in                  (v) 24 degrees 25 minutes north latitude, 81
              writing. The Assistant Administrator's decision shall         degrees 50 minutes west longitude,
              constitute final agency action for purposes of the
              Administrative Procedure Act.                                      (vi) 24 degrees 22 minutes north latitude, 82
                                                                            degrees 48 minutes west longitude,
                   (f) Any time limit prescribed in or established
              under this section other than the 30-day limit for filing          (vii) 24 degrees 37 minutes north latitude, 83
              an appeal may be extended by the Assistant Admin-             degrees 6 minutes west longitude,
              istrator or he.aring officer for good cause.                       (viii) 24 degrees 40 minutes north latitude, 83
              Appendix I to Part 922, Subpart P-Florlda Keys                degrees 6 minutes west longitude,
              National Marine Sanctuary boundary coordinates                     (ix) 24 degrees 46 minutes north latitude, 82
              (Appendix based on North American Datum of 1983)              degrees 54 minutes west longitude,
              The boundary of the Florida Keys National Marine                   (x) 24 degrees 44 minutes north latitude, 81
              Sanctuary-                                                    degrees 55 minutes west longitude,
                   (a) begins at the northeasternmost point of                   (xi) 24 degrees 51 minutes north latitude, 81
              Biscayne National Park located at approximately 25            degrees 26 minutes west longitude, and

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                                                                                                                                    Action Plans: Regulatory

                        (xii) 24 degrees 55 minutes north latitude, 80                          Point                     Latitude             Longitude
                    degrees 56 minutes west longitude;
                                                                                                1......................... 24043.8'N           81048.6'W
                        (d) then follows the boundary of Everglades                             2......................... 24043.8'N           81037.2'W
                    National Park in a southerly then northeasterly                             3......................... 24049.2'N           81037.2'W
                    direction through Florida Bay, Buttonwood Sound,                            4......................... 24049.2'N           81019.8'W
                    Tarpon Basin, and Blackwater Sound;                                         5......................... 24048.0'N           81019.8'W
                                                                                                6......................... 24048.0'N           81014.4'W
                        (e) after Division Point, then departs from the                         7......................... 24049.2'N           81014.4'W
                    boundary of Everglades National Park and follows                            8......................... 24049.2'N           81008.4'W
                    the western shoreline of Manatee Bay, Barnes                                9......................... 24043.8'N           81008.4'W
                    Sound, and Card Sound;                                                      10 ........................ 24043.8'N          81014.4'W
                                                                                                11 ........................ 24043.2N           81014.4'W
                        (f) then follows the southern boundary of                               12 ........................ 24043.2'N          81016.2'W
                    Biscayne National Park to the southeasternmost                              13 ........................ 24042.6N           81016.2'W
                    point of Biscayne National Park; and                                        14 ........................ 24042.6'N          81021.0'W
                                                                                                15 ........................ 24041.4'N          81021.0'W
                        (g) then follows the eastern boundary of                                16 ........................ 24041.4'N          81022.2'W
                    Biscayne National Park to the beginning point                               17 ........................ 24043.2'N          81022.2'W
                    specified in paragraph (a).                                                 18 ........................ 24043.2'N          81022.8'W
                                                                                                19 ........................ 24043.8'N          81022.8'W
                    Appendix 11 to Part 922, Subpart P-Existing                                 20 ........................ 24043.8'N          81024.0'W
                    Management Areas boundary coordinates                                       21 ........................ 24043.2'N          81024.0'W
                                                                                                22 ........................ 24043.2'N          81026.4'W
                    The Existing Management Areas are located within                            23 ........................ 24043.8'N          81026.4'W
                    the following geographic boundary coordinates:                              24 ........................ 24043.8'N          81027.0'W
                                                                                                25 ........................ 24043.2'N          81027.0'W
                    National Oceanic and Atmospheric Administration,                            26 ........................ 24043.2'N          81029.4'W
                    Preexisting National Marine Sanctuaries:                                    27 ........................ 24042.6'N          81029.4'W
                                                                                                28 ........................ 24042.6'N          81030.6'W
                    Key Largo Management Area (Key Largo National                               29 ........................ 24041.4'N          81030.6'W
                    Marine Sanctuary):                                                          30 ........................ 24041.4'N          81031.2'W
                                                                                                31 ........................ 24040.8'N          81031.2'W
                    Point                     Latitude              Longitude                   32 ........................ 24040.8'N          81032.4'W
                                                                                                33 ........................ 24041.4'N          81032.4'W
                    1......................... 25019.45'N           80012.00'W                  34 ........................ 24041.4'N          81034.2'W
                    2......................... 25016.02'N           80008.07'W                  35 ........................ 24040.8'N          81034.2'W
                    3......................... 25007.05'N           80012.05'W                  36 ........................ 24048.0'N          81035.4'W
                    4......................... 24058.03'N           80019.08'W                  37 ........................ 24039.6'N          81035.4'W
                    5......................... 25002.02'N           80025.25'W                  38 ........................ 24039.6'N          81036.0'W
                                                                                                39 ........................ 24039.0'N          81036.0'W
                    Looe Key Management Area (Looe Key National                                 40 ........................ 24039.0'N          81037.2'W
                    Marine Sanctuary):                                                          41 ........................ 24037.8'N          81037.2'W
                                                                                                42 ........................ 24037.8'N          81037.8'W
                    Point                     Latitude              Longitude                   43 ........................ 24037.2'N          81037.8'W
                                                                                                44 ........................ 24037.2'N          81040.2'W
                    1......................... 24031.37'N           81026.00'W                  45 ........................ 24036.0'N          81040.2'W
                    2......................... 24033.34'N           81026.00'W                  46 ........................ 24036.0'N          81040.8'W
                    3......................... 24034.09'N           81023.00'W                  47 ........................ 24035.4'N          81040.8'W
                    4......................... 24032.12'N           81023.00'W                  48 ........................ 24035.4'N          81042.0'W
                                                                                                49 ........................ 24036.0'N          81042.0'W
                    United States Fish and Wildlife Service:                                    50 ........................ 24036.0'N          81048.6'W


                        Great White Heron National Wildlife Refuge
                        (based on the North American Datum of 1983)


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                    Action Plans: Regulatoiy

                        Key West National Wildlife Refuge                                     East Harbor Key               No-access buffer zone (300
                                                                                                                            feet) around northernmost
                    Point                     Latitude              Longitude                                               island

                    1......................... 24040'N              81049'W                   Lower Harbor Keys             Idle speed only/no-wake zones
                    2......................... 24040'N              8201 O'W                                                in selected tidal creeks
                    3......................... 24027'N              8201 O'W
                    4......................... 24027'N              81 049'W                  Eastern Lake                  Idle speed only/no-wake zone
                                                                                              Surprise                      east of highway U.S. 1
                    When differential Global Positioning Systems data
                    becomes available, these coordinates may be                               Horseshoe Key                 No-access buffer zone (300
                    revised by Federal Register notice to reflect the                                                       feet) around main island (main
                    increased accuracy of such data.                                                                        island closed by Department of
                                                                                                                            Interior)
                    Appendix III to Part 922, Subpart P-Wildlife
                    Management Areas access restrictions                                      Marquesas Keys                (i) No-motor zones (300 feet)
                                                                                                                            around three smallest keys on
                    Area                        Access Restrictions                                                         western side of chain; (ii) no-
                                                                                                                            access buffer zone (300 feet)
                    Bay Keys                    No-motor zone (300 feet)                                                    around one island at western
                                                around one key; idle speed                                                  side of chain; (iii) idle speed
                                                only/no-wake zones in tidal                                                 only/no-wake zone in south
                                                creeks                                                                      west tidal creek

                    Boca Grande Key             South one-half of beach                       Tidal flat                    No-access buffer zone on tidal
                                                closed (beach above mean                      south of Marvin Key           flat
                                                high water closed by Depart
                                                ment of Interior)                             Mud Keys                      (i) Idle speed only/no-wake
                                                                                                                            zones in the two main tidal
                    Woman Key                   One-half of beach and sand                                                  creeks; (ii) two smaller creeks
                                                spit on southeast side closed                                               on west side closed
                                                (beach and sand spit above
                                                mean high water closed by                     Pelican Shoal                 No-access buffer zone out to
                                                Department of Interior)                                                     50 meters from shore between
                                                                                                                            April 1 and August 31 (shoal
                    Cayo Agua Keys              Idle speed only/no-wake                                                     closed by the Florida Game
                                                zones in all navigable tidal                                                and Freshwater Fish Commis
                                                creeks                                                                      sion)

                    Cotton Key                  No-motor zone on tidal flat                   Rodriguez Key                 No-motor zone on tidal flats

                    Snake Creek                 No-motor zone on tidal flat                   Dove Key                      No-motor zone on tidal flats;
                                                                                                                            area around the two small
                    Cottrell Key                No-motor zone (300 feet)                                                    islands closed
                                                around entire key
                                                                                            Tavernier Key                   No-motor zone on tidal flats
                    Little Mullet Key           No-access buffer zone (300
                                                feet) around entire key                       Sawyer Keys                   Tidal creeks on south side
                                                                                                                            closed
                    Big Mullet Key              No-motor zone (300 feet)
                                                around entire key                             Snipe Keys                    (i) Idle speed only/no-wake
                                                                                                                            zone in main tidal creek; (ii)
                    Crocodile Lake              No-access buffer zone (1100                                                 no-motor zone in all other tidal
                                                feet) along shoreline be-                                                   creeks
                                                tween March 1 and October 1



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                                                                                                                                 Action Plans: Regulatoty
                  Upper Harbor Key            No-access buffer zone (300                     Appendix V to Part 922, Subpart P-Sanctuary
                                              feet) around entire key                        Preservation Areas boundary coordinates

                  East Content Keys           Idle speed only/no-wake zones                  The Sanctuary Preservation Areas (SPAs) (based on
                                              in tidal creeks between                        North American Datum of 1983, aerial photos, charts,
                                              southwestern most keys                         and Geographic Information Systems data) are ,
                                                                                             located within the following geographic boundary
                  West Content Keys           Idle speed only/no-wake zones                  coordinates:
                                              in selected tidal creeks; no-
                                              access buffer zone in one cove                                       ALLIGATOR REEF

                  Little Crane Key            No-access buffer zone (300                     Point                     Latitude              Longitude
                                              feet) around entire key
                                                                                             1......................... 24050.8'N            80036.8'W
                  Appendix IV to Part 922, Subpart P-Ecological                              2......................... 24050.4'N            80037.3'W
                  Reserves boundary coordinates                                              3......................... 24050.7'N            80037.6'W
                                                                                             4......................... 24051.1'N            800375W
                  One Ecological Reserve-the Western Sambos
                  Ecological Reserve-is designated in the area of                            Catch and release fishing by trolling only is allowed in
                  Western Sambos reef. NOAA has committed to                                 this SPA.
                  designating a second Ecological Reserve within two
                  years from issuance of this plan in the area of the Dry                         CARYSFORT/SOUTH CARYSFORT REEF
                  Tortugas. The establishment of a Dry Tortugas
                  Ecological Reserve will be proposed by a notice of                         Point                     Latitude              Longitude
                  proposed rulemaking with a proposed boundary
                  determined through a joint effort among the Sanctu-                        1....................  .... 25013.6'N           80012.2'W
                  ary, and the National Park Service, pursuant to a                          2......................... 25011.9'N            80012.8'W
                  public process involving a team consisting of manag-                       3......................... 25012.2'N            80013.8'W
                  ers, scientists, conservationists, and affected user                       4......................... 25014.0'N            80012.7'W
                  groups.
                                                                                                                   CHEECA ROCKS
                  The Western Sambos Ecological Reserve (based on
                  North American Datum of 1983, aerial photos, charts,                       Point                     Latitude              Longitude
                  and Geographic Information Systems data) is located
                  within the following geographic boundary coordi-                           1......................... 24054.6'N            80037.6'W
                  nates:                                                                     2......................... 24054.3'N            80037.5'W
                                                                                             3......................... 24054.2'N            80037.7'W
                                     WESTERN SAMBOS                                          4......................... 24054.5'N            80037.8'W


                  Point                     Latitude              Longitude                                        COFFINS PATCH

                  1......................... 24033.70'N           81040.80'W                 Point                     Latitude              Longitude
                  2......................... 24028.70'N           81041.90'W
                  3......................... 24028.50'N           81 043.70'W                1......................... 24041.5'N            80057.7'W
                  4......................... 24033.50'N           81043.1 O'W                2......................... 24041.1'N            80057.5'W
                                                                                             3......................... 24040.6'N            80058.4'W
                                                                                             4......................... 24041.1'N            80058.6'W
                  When differential Global Positioning Systems data
                  becomes available, these coordinates may be                                                        CONCH REEF
                  revised by Federal Registe notice to reflect the
                  increased accuracy of such data.                                           Point                     Latitude              Longitude

                                                                                             1......................... 24057.5'N            80*27.4'W
                                                                                             2......................... 24057.4'N            8Oq27.3'W
                                                                                             3......................... 24057.0'N            80*27.7'W
                                                                                             4......................... 24056.9'N            80*27.6'W


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                         Action Plans: Regulatoiy

                         Catch and release fishing by trolling only is allowed in                                                 HEN AND CHICKENS
                         this SPA.
                                                                                                            Point                        Latitude                Longitude
                                                     DAVIS REEF
                                                                                                            1.........................   24056.4'N               80032.9'W
                         Point                       Latitude                 Longitude                     2.........................   24056.2'N               80032.7'W
                                                                                                            3.........................   24055.7'N               80033.1'W
                         1.........................  24055.6'N                80030.3'W                     4.........................   24055.9'N               80033.3'W
                         2.........................  24055.3'N                80030.0'W
                         3.........................  24055.1'N                80030.4'W                                                  LOOE KEY
                         4.........................  24055.4'N                80030.7'W
                                                                                                            Point                        Latitude                Longitude
                                                     DRY ROCKS
                                                                                                            1.........................   24033.2'N               81024.2'W
                         Point                       Latitude                 Longitude                     2.........................   24032.6'N               81024.8'W
                                                                                                            3.........................   24032.5'N               81024.7'W
                         1.........................  2507.6'N                 80017.9'W                     4.........................   24033.1'N               81024.8'W
                         2.........................  2507.4'N                 80017.7'W
                         3.........................  2507.3'N                 80017.8'W                                             MOLASSES REEF
                         4.........................  2507.4'N                 80018.1'W
                                                                                                            Point                        Latitude                Longitude
                                                GRECIAN ROCKS
                                                                                                            1.........................   2500.9'N                80022.4'W
                         Point                       Latitude                 Longitude                     2.........................   2500.7'N                80022.0'W
                                                                                                            3.........................   2500.2'N                80022.8'W
                         1.........................  2506.9'N                 80018.2'W                     4.........................   2500.7'N                80022.8'W
                         2.........................  2506.6'N                 80017.9'W
                         3.........................  2506.1'N                 800185W                                       NEWFOUND HARBOR KEY
                         4.........................  2506.2'N                 80018.6'W
                         5.........................  2506.8'N                 80018.6'W                     Point                        Latitude                Longitude

                                            EASTERN DRY ROCKS                                               1.........................   24037. VN               81023.3'W
                                                                                                            2.........................   24036.7'N               81023.8'W
                         Point                       Latitude                 Longitude                     3.........................   24036.8'N               81023.3'W
                                                                                                            4.........................   24036.9'N               81023.9'W
                         1.........................  24027.9'N                810505W
                         2.........................  24027.7'N                81050.4'W                                                  ROCK KEY
                         3.........................  24027.5'N                81050.6'W
                         4.........................  24027.7'N                81050.8'W                     Point                        Latitude                Longitude

                                                     THE ELBOW                                              1.........................   240275N                 81051.3'W
                                                                                                            2.........................   24027.3'N               81051.2'W
                         Point                       Latitude                 Longitude                     3.........................   24027.2'N               81051.5'W
                                                                                                            4.........................   24027.5'N               81051.6'W
                         1.........................  2509.1'N                 80015.4'W
                         2.........................  2508.9'N                 80015.1'W                                                  SAND KEY
                         3.........................  2508.1'N                 80015.7'W
                         4.........................  2508.8'N                 80015.7'W                     Point                        Latitude                Longitude

                                                   FRENCH REEF                                              1.........................   24027.6'N               81053.1'W
                                                                                                            2.........................   24027.0'N               81053.1'W
                         Point                       Latitude                 Longitude                     3.........................   24027.0'N               81052.3'W
                                                                                                            4.........................   24027.6'N               81052.3'W
                         1.........................  2502.2'N                 80020.6'W
                         2.........................  2501.8'N                 80021.0'W                     Catch and release fishing by trolling only is allowed in
                         3.........................  2502.3'N                 80021.2'W                     this SPA.


                         134







                                                                                                                                 Action Plans: Regulatoiy

                                        SOMBRERO KEY                                         2......................... 24045.7'N            80045.4'W
                                                                                             3......................... 24046.0'N            80044.9'W
                  Point                     Latitude              Longitude                  4......................... 24046.2'N            80045.1'W

                  1......................... 24037.91N            8106.8'W                   Appendix Vil to Part 922, Subpart P-Areas To Be
                  2......................... 24037.4'N            8106.1'W                   Avoided boundary coordinates
                  3......................... 24037.2'N            8107.0'W
                                                                                                  IN THE VICINITY OF THE FLORIDA KEYS
                  Catch and release fishing by trolling only is allowed in
                  this SPA.                                                                  (Reference Charts: United States 11466, 27th Edition

                  When differential Global Positioning Systems data                          September 1, 1990 and United States 11450, 4th
                  becomes available, the coordinates for all these                           Edition -August 11, 1990.)
                  areas may be revised by Federal Register notice to
                  reflect the increased accuracy of such data.                               Point                     Latitude              Longitude

                  Appendix VI to Part 922, Subpart P-Special-use                             1......................... 25045.00'N           80006.1 O'W
                  Areas boundary coordinates and use designa-                                2......................... 25038.70'N           80002.70'W
                  tions                                                                      3......................... 25022.00'N           80003.00'W
                                                                                             4......................... 25000.20'N           80013.40'W
                  The Special-use Areas (based on North American                             5......................... 24037.90'N           80047.30'W
                  Datum of 1983) are located within the following                            6......................... 24029.20'N           81017.30'W
                  geographic boundary coordinates:                                           7......................... 24022.30'N           81043.17'W
                                                                                             8......................... 24028.00'N           81 043.17'W
                            CONCH REEF (RESEARCH ONLY)                                       9......................... 24028.70'N           81043.50'W
                                                                                             10 ........................ 24029.80'N          81043.17'W
                  Point                     Latitude              Longitude                  11 ........................ 24033.1 ON          81 035.15'W
                                                                                             12 ........................ 24033.60'N          81026.00'W
                  I......................... 24056.8'N            80027.2'W                  13 ........................ 24038.20'N          81007.00'W
                  2......................... 24057.0'N            80027.0'W                  14 ........................ 24043.20'N          80053.20'W
                  3......................... 24057.2'N            80027.5'W                  15 ........................ 24046.1 O'N         80046.15'W
                  4......................... 24057.5'N            80027.4'W                  16 ........................ 24051.1 O'N         80037.1 O'W
                                                                                             17 ........................ 24057.50'N          80027.50'W
                        EASTERN SAMBOS (RESEARCH ONLY)                                       18 ........................ 25009.90'N          80016.20'W
                                                                                             19 ........................ 25024.00'N          80009.1 O'W
                  Point                     Latitude              Longitude                  20 ........................ 25031.50'N          80007.00'W
                                                                                             21 ........................ 25039.70'N          80006.85'W
                  1......................... 24029.4'N            81039.3'W                  22 ........................ 25045.00'N          80006.1 O'W
                  2......................... 24029.7'N            81040.2'W
                  3......................... 241129.5'N           81039.6'W                       IN THE VICINITY OF KEY WEST HARBOR
                  4......................... 24029.8'N            81039.7'W
                                                                                             (Reference Chart: United States 11434, 21st Edition -
                              LOOE KEY (RESEARCH ONLY)                                       August 11, 1990.)

                  Point                     Latitude              Longitude                  Point                     Latitude              Longitude

                  1......................... 24034. VN            81023.3'W                  23 ........................ 24027.95'N          81048.65'W
                  2......................... 24034.0'N            81023.2'W                  24 ........................ 24023.00'N          81053.50'W
                  3......................... 24033.8'N            81023.8'W                  25 ........................ 24026.60'N          81058.50'W
                  4......................... 24034.0'N            81023.9'W                  26 ........................ 24027.75'N          81055.70'W
                                                                                             27 ........................ 24029.35'N          81053.40'W
                        TENNESSEE REEF (RESEARCH ONLY)                                       28 ........................ 24029.35'N          81050.00'W
                                                                                             29 ........................ 24027.95'N          81048.65'W
                  Point                     Latitude              Longitude

                  1......................... 24045.9'N            80045.6'W


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                     Action Plans: Regulatofy

                                      AREA SURROUNDING THE                                       46-42.0036 Harvest in Biscayne National Park.*
                                           MARQUESAS KEYS
                                                                                                 46-42.004 Size Limits.
                     (Reference Chart: United States 11434, 21st Edition -                       46-42.005 Bag Limits.
                     August 11, 1990.)
                                                                                                 46-42.006 Commercial Season, Harvest Limits.
                     Point                      Latitude               Longitude
                                                                                                 46-42.007 Gear Specifications and Prohibited Gear.
                     30 ........................ 24026.60'N            81059.55'W
                     31 ........................ 24023.00'N            82003.50'W                46-42.008 Live Rock.*
                     32 ........................ 24023.60'N            82027.80'W
                     33 ........................ 24034.50'N            82037.50'W                46-42.009 Prohibition on the Taking, Destruction, or
                     34 ........................ 24043.00'N            82026.50'W                Sale of Marine Corals and Sea Fans.
                     35 ........................ 24038.31'N            81054.06'W
                     36 ........................ 24037.91'N            81053.40'W                   Part 42.0036 was not reproduced because it does
                     37 ........................ 24036.15'N            81051.78'W                not apply to the Sanctuary.
                     38 ........................ 24034.40'N            81050.60'W
                     39 ........................ 24033.44'N            81049.73'W                   Part 42.008 was not reproduced because it is
                     40 ........................ 24031.20'N            81 052.1 O'W              regulated pursuant to this Part 922.163(2)(ii).
                     41 ........................ 24028.70'N            81056.80'W
                     42 ........................ 24026.60'N            81059.55'W                46-42.001 Purpose and Intent; Designation of
                                                                                                 Restricted Species; Definition of "Marine Life Spe-
                                      AREA SURROUNDING THE                                       cies".--
                                      DRY TORTUGAS ISLANDS
                                                                                                      (1)(a) The purpose and intent of this chapter are
                     (Reference Chart: United States 11434, 21st Edition -                       to protect and conserve Florida's tropical marine life
                     August 11, 1990.)                                                           resources and assure the cont-inuing health and
                                                                                                 abundance of these species. The further intent of
                     Point                      Latitude               Longitude                 this chapter is to assure that harvesters in this fishery
                                                                                                 use nonlethal methods of harvest and that the fish,
                     43 ........................ 24032.00'N            82053.50'W                invertebrates, and plants so harvested be maintained
                     44 ........................ 24032.00'N            83000.05'W                alive for the maximum possible conservation and
                     45 ........................ 24039.70'N            83000.05'W                economic benefits.
                     46 ........................ 24045.60'N            82054.40'W
                     47 ........................ 24045.60'N            82047.20'W                     (b) It is the express intent of the Marine Fisher-
                     48 ........................ 24042.80'N            82043.90'W                ies Commission that landing of live rock propagated
                     49 ......................... 24039.50'N           82043.90'W                through aquaculture will be allowed pursuant to the
                     50 ........................ 24035.60'N            82046.40'W                provisions of this chapter.
                     51 ........................ 24032.00'N            82053.50'W
                                                                                                      (2) The following fish species, as they occur in
                     Appendix Vill to Part 929-Marine Life Rule [as                              waters of the state and in federal Exclusive Economic
                     excerpted from Chapter 46-42 of the Florida Adminis-                        Zone (EEZ) waters adjacent to state waters, are
                     trative Code]                                                               hereby designated as restricted species pursuant to
                                                                                                 Section 370.01 (20), Florida Statutes:
                     46-42.001 Purpose and Intent; Designation of
                     Restricted Species; Definition of "Marine Life Spe-                              (a) Moray eels - Any species of the Family
                     cies."                                                                      Muraenidae.

                     46-42.002 Definitions.                                                           (b) Snake eels - Any species of the Genera
                                                                                                 Myrichthys and Myrophis of the Family Ophichthidae.
                     46-42.003 Prohibition of Harvest: Longspine Urchin,
                     Bahama Starfish.                                                                 (c) Toadfish - Any species of the Family
                                                                                                 Batrachoididae.
                     46-42.0035 Live Landing and Live Well Require-
                     ments.                                                                           (d) Frogfish - Any species of the Family
                                                                                                 Antennariidae.


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                                                                                                            Action Plans: Regulatory
                   (e) Batfish - Any species of the Family                        (w) Blennies - Any species of the Families
              Ogcocephalidae.                                                Clinidae or Blenniidae.
                   (f) Clingfish - Any species of the Family                      (x) Sleepers - Any species of the Family
              Gobiesocidae.                                                  Eleotrididae.
                   (g) Trumpeff ish - Any species of the Family                   (y) Gobies - Any species of the Family Gobiidae.
              Aulostomidae.
                   (h) Cometfish - Any species of the Family                      (z) Tangs and surgeonfish - Any species of the
              Fistulariidae.                                                 Family Acanthuridae.
                   (i) Pipefish/seahorses - Any species of the                    (aa) Filefish/triggerfish - Any species of the
              Family Syngnathidae.                                           Family Balistes, except gray triggerfish, Balistidae
                                                                             capriscus.
                   0) Hamlet/seabass - Any species of the Family                  (bb) Trunkfish/cowfish - Any species of the
              Serranidae, except groupers of the genera                      Family Ostraciidae.
              Epinephalus and Mycteroperca, and seabass of the
              genus Centropristis.                                                (cc) Pufferfish/burrfish/balloonfish - Any of the
                   (k) Basslets - Any species of the Family                  following species:
              Grammistidae.
                                                                                  1. Balloonfish - Diodon holocanthus.
                   (1) Cardinalfish - Any species of the Family
              Apogonidae.                                                         2. Sharpnose puffer - Canthigaster rostrata.
                   (m) High-hat, Jackknife-fish, Spotted drum,                    3. Striped burrfish - Chilomycterus schoepfl.
              Cubbyu - Any species of the genus Equetus of the
              Family Sciaenidae.                                                  (3) The following invertebrate species, as they
                                                                             occur in waters of the state and in federal Exclusive
                   (n) Reef Croakers - Any of the species                    Economic Zone (EEZ) waters adjacent to state
              Odontocion dentex.                                             waters, are hereby designated as restricted species
                                                                             pursuant to Section 370.01(20), Florida Statutes:
                   (o) Sweepers - Any species of the Family
              Pempherididae.                                                      (a) Sponges - Any species of the Class
                                                                             Demospongia, except sheepswool, yellow, grass,
                   (p) Butterflyfish - Any species of the Family             glove, finger, wire, reef, and velvet sponges, Order
              Chaetodontidae.                                                Dictyoceratida.

                   (q) Angelfish - Any species of the Family                      (b) Upside-down jellyfish - Any species of the
              Pomacanthidae.                                                 Genus Cassiopeia.

                   (r) Damselfish - Any species of the Family                     (c) Siphonophores/hydroids - Any species of the
              Pomacentridae.                                                 Class Hydrozoa, except fire corals, Order Milleporina.

                   (s) Hawkfish - Any species of the Family                       (d) Soft corals - Any species of the Subclass
              Cirrhitidae.                                                   Octocorallia, except sea fans Gorgonia flabellum and
                                                                             Gorgonia ventalina.
                   (t) Wrasse/hogfish/razorfish - Any species of the
              Family Labridae, except hogfish, Lachnolaimus                       (e) Sea anemones - Any species of the Orders
              maximus.                                                       Actinaria, Zoanthidea, Corallimorpharia, and
                                                                             Ceriantharia.
                   (u) Parroffish - Any species of the Family
              Scaridae.                                                           (f) Featherduster worms/calcareous tubeworms -
                                                                             Any species of the Families Sabellidae and
                   (v) Jawfish - Any species of the Family                   Serpulidae.
              Opistognathidae.

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                 Action Plans: Regulatory

                     (g) Star-shells - Any of the species Astraea                   (q) Sea fillies - Any species of the Class
                 americana or Astraea phoebia.                                 Crinoidea.
                     (h) Nudibranchs/sea slugs - Any species of the                 (4) The following species of plants, as they
                 Subclass Opisthobranchia.                                     occur in waters of the state and in federal Exclusive
                     (i) Fileclams - Any species of the Genus Lima.            Economic Zone (EEZ) waters adjacent to state
                                                                               waters, are hereby designated as restricted species
                                                                               pursuant to Section 370.01(20), Florida Statutes:
                     0) Octopods - Any species of the Order
                 Octopoda, except the common octopus, Octopodus                     (a) Caulerpa - Any species of the Family
                 vulgaris.                                                     Caulerpaceae.
                     (k) Shrimp - Any of the following species:                     (b) Halimeda/mermaid's fan/mermaid's shaving
                     1 - Cleaner shrimp and peppermint shrimp - Any            brush - Any species of the Family Halimedaceae.
                 species of the Genera Periclimenes or Lysmata.                     (c) Coralline red algae - Any species of the
                     2. Coral shrimp - Any species of the Genus                Family Corallinaceae.
                 Stenopus.                                                          (5) For the purposes of Section 370.06(2)(d),
                     3. Snapping shrimp - Any species of the Genus             Florida Statutes, the term "marine life species" is
                 Alpheus.                                                      defined to mean those species designated as re-
                                                                               stricted species in subsections (2), (3), and (4) of this
                     (1) Crabs - Any of the following species:                 rule.
                     1. Yellowline arrow crab - Stenorhynchus                  Specific Authority 370.01(20), 370.027(2),
                 seticomis.                                                    370.06(2)(d), F.S. Law Implemented 370.01(20),
                                                                               370.025, 370.027, 370.06(2)(d), F.S. History -- New
                     2. Furcate spider or decorator crab -                     1 - 1 -9 1, Amended 7-1 -92, 1 -1 -95.
                 Stenocionops furcata.                                         46-42.002 Definitions.--- As used in this rule chapter:
                     3. Thinstripe hermit crab - Clibanarius vittatus.              (1) "Barrier net," also known as a"fence net,"
                     4. Polkadotted hermit crab - Phimochirus                  means a seine used beneath the surface of the water
                 operculatus.                                                  by a diver to enclose and concentrate tropical fish
                                                                               and which may be made of either nylon or
                     5. Spotted porcelain crab - Porcellana sayana.            monofilament.
                     6. Nimble spray or urchin crab - Percnon                       (2) "Drop net" means a small, usually circular,
                 gibbesi.                                                      net with weights attached along the outer edge and a
                                                                               single float in the center, used by a diver to enclose
                     7. False arrow crab - Metoporhaphis calcarata.            and concentrate tropical fish.

                     (m) Starfish - Any species of the Class                        (3) "Hand held net" means a landing or dip net
                 Asteroidea, except the Bahama starfish, Oreaster              as defined in Rule 46-4.002(4), except that a portion
                 reticulatus.                                                  of the bag may be constructed of clear plastic
                                                                               material, rather than mesh.
                     (n) Brittlestars - Any species of the Class
                 Ophiuroidea.                                                       (4) "Harvest" means the catching or taking of a
                                                                               marine organism by any means whatsoever, followed
                     (o) Sea urchins - Any species of the Class                by a reduction of such organism to possession.
                 Echinoidea, except longspine urchin, Diadema                  Marine organisms that are caught but immediately
                 antillarum, and sand dollars and sea biscuits, Order          returned to the water free, alive, and unharmed are
                 Clypeasterolda.                                               not harvested. In addition, temporary possession of
                                                                               a marine animal for the purpose of measuring it to
                     (p) Sea cucumbers - Any species of the Class              determine compliance with the minimum or maximum
                 Holothuroidea.                                                size requirements of this chapter shall not constitute

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                                                                                                       Action Plans: Regulatory

              harvesting such animal, provided that it is measured            (e) The trawl has no doors attached to keep the
              immediately after taking, and immediately returned to       mouth of the trawl open.
              the water free, alive, and unharmed if undersize or
              oversize.                                                       (12) "Tropical fish" means any species included
                                                                          in subsection (2) of Rule 46-42.001, or any part
                   (5) "Harvest for commercial purposes" means            thereof.
              the taking or harvesting of any tropical ornamental
              marine life species or tropical ornamental marine               (13) "Tropical ornamental marine life species"
              plant for purposes of sale or with intent to sell. The      means any species included in subsections (2) or (3)
              harvest of tropical ornamental marine life species or       of Rule 46-42.001, or any part thereof.
              tropical ornamental marine plants in excess of the
              bag limit shall constitute prima facie evidence of              (14) 'Tropical ornamental marine plant" means
              intent to sell.                                             any species included in subsection (4) of Rule
                   (6) "Land," when used in connection with the           46-42.001.
              harvest of marine organisms, means the physical act         Specific Authority 370.027(2), F.S. Law Implemented
              of bringing the harvested organism ashore.                  370.025, 370.027, F.S. History -- New 1-1-91,
                   (7) "Live rock" means rock with living marine          Amended 7-1-92,1-1-95.
              organisms attached to it.
                                                                          46-42.003 Prohibition of Harvest: Longspine Urchin,
                   (8) "Octocoral" means any erect, nonencrusting         Bahama Starfish.-- No person shall harvest, possess
              species of the Subclass Octocorallia, except the            while in or on the waters of the state, or land any of
              species Gorgonia flabellum and Gorgonia ventalina.          the following species:
                                                                              (1) Longspine urchin, Diadema antillarum.
                   (9) "Slurp gun" means a self-contained,
              handheld device that captures tropical fish by rapidly          (2) Bahama starfish, Oreaster reticulatus.
              drawing seawater containing such fish into a closed
              chamber.                                                    Specific Authority 370.027(2), F.S. Law Implemented
                                                                          370.025, 370.027, F.S. History -- New 1-1-91,
                   (10) 'Total length" means the length of a fish as      Amended 7-1-92.
              measured from the tip of the snout to the tip of the
              tail.                                                       46-42.0035 Live Landing and Live Well Require-
                                                                          ments.--
                   (11) "Trawl" means a net in the form of an
              elongated bag with the mouth kept open by various               (1) Each person harvesting any tropical orna-
              means and fished by being towed or dragged on the           mental marine life species or any tropical ornamental
              bottom.                                                     marine plant shall land such marine organism alive.

              "Roller frame trawl" means a trawl with all of the              (2) Each person harvesting any tropical orna-
              following features and specifications:                      mental marine life species or any tropical ornamental
                                                                          marine plant shall have aboard the vessel being used
                   (a) A rectangular rigid frame to keep the mouth        for such harvest a continuously circulating live well or
              of the trawl open while being towed.                        aeration or oxygenation system of adequate size and
                                                                          capacity to maintain such harvested marine organ-
                   (b) The lower horizontal beam of the frame has         isms in a healthy condition.
              rollers to allow the trawl to roll over the bottom and
              any obstructions while being towed.                         Specific Authority 370.027(2), F.S. Law Imple-
                                                                          mented 370.025, 370.027, F.S. History -- New
                   (c) The trawl opening is shielded by a grid of         7-1-92.
              vertical bars spaced no more than 3 inches apart.
                                                                          46-42.004 Size Limits.--
                   (d) The trawl is towed by attaching a line or
              towing cable to a tongue located above or at the                (1) Angelfishes.-
              center of the upper horizontal beam of the frame.
                                                                              (a) No person harvesting for commercial pur-
                                                                          poses shall harvest, possess while in or on the

                                                                                                                                139







                 Action Plans: Regulatory
                 waters of the state, or land any of the following                      (a) No person harvesting for commercial pur-
                 species of angelfish, of total length less than that set          poses shall harvest, possess while in or on the
                 forth below:                                                      waters of the state, or land any butterflyfish (Family
                                                                                   Chaetodontidae) of total length less than one (1)
                      1. One-and-one-half (1 1/2) inches for:                      inch.

                      a. Gray angelfish (Pomacanthus arcuatus).                         (b) No person shall harvest, possess while in or
                                                                                   on the waters of the state, or land any butterflyfish of
                      b. French angelfish (Pomacanthus paru).                      total length greater than 4 inches.

                      2.   One-and-three-quarters (1 3/4) inches for:                   (3) Gobies -- No person shall harvest, possess
                                                                                   while in or on the waters of the state, or land any
                      a.  Blue angelfish (Holacanthus bermudensis).                gobie (Family Gobiidae) of total length greater than 2
                                                                                   inches.
                      b.  Queen angelfish (Holacanthus ciliaris).
                                                                                        (4) Jawfishes -- No person shall harvest, pos-
                      3.  Two (2) inches for rock beauty (Holacanthus              sess while in or on the waters of the state, or land
                 tricolor).                                                        any jawfish (Family Opistognathidae) of total length
                                                                                   greater than 4 inches.
                      (b) No person shall harvest, possess while in or
                 on the waters of the state, or land any angelfish                      (5) Spoff in and Spanish hogfish --
                 (Family Pomacanthidae), of total length greater than
                 that specified below:                                                  (a) No person shall harvest, possess while in or
                                                                                   on the waters of this state, or land any Spanish
                      1. Eight (8) inches for angelfish, except rock               hogfish (Bodianus rufus) of total length less than 2
                 beauty (Holacanthus tricolor).                                    inches.

                      2. Five (5) inches for rock beauty.'                              (b) No person shall harvest, possess while in or
                                                                                   on the waters of this state, or land any Spanish
                      (c) Except as provided herein, no person shall               hogfish (Bodianus rufus) or spotfin hogfish (Bodianus
                 purchase, sell, or exchange any angelfish smaller                 pulchellus) of total length greater than 8 inches.
                 than the limits specified in paragraph (a) or larger
                 than the limits specified in paragraph (b). This                  Specific Authority 370.027(2), F.S. Law Implemented
                 prohibition shall not apply to angelfish legally har-             370.025, 370.027, F.S. History -- New 1-1-91,
                 vested outside of state waters or federal Exclusive               Amended 7-1-92,1-1-95.
                 Economic Zone (EEZ) waters adjacent to state
                 waters, which angelfish are entering Florida in                   46-42.005 Bag limit.--
                 interstate or international commerce. The burden
                 shall be upon any person possessing such angelfish                     (1) Except as provided in Rule 46-42.006 or
                 for sale or exchange to establish the chain of posses-            subsections (3) or (4) of this rule, no person shall
                 sion from the initial transaction after harvest, by               harvest, possess while in or on the waters of the
                 appropriate receipt(s), bill(s) of sale, or bill(s) of            state, or land more than 20 individuals per day of
                 lading, and any customs receipts, and to show that                tropical ornamental marine life species, in any
                 such angelfish originated from a point outside the                combination.
                 waters of the State of Florida or federal Exclusive
                 Economic Zone (EEZ) waters adjacent to Florida                         (2) Except as provided in Rule 46-42.006, no
                 waters and entered the state in interstate or interna-            person shall harvest, possess while in or on the
                 tional commerce. Failure to maintain such documen-                waters of the state, or land more than one (1) gallon
                 tation or to promptly produce same at the request of              per day of tropical ornamental marine plants, in any
                 any duly authorized law enforcement officer shall                 combination of species.
                 constitute prima facie evidence that such angelfish
                 were harvested from Florida waters or adjacent EEZ                     (3) Except as provided in Rule 46-42.006, no
                 waters for purposes of this paragraph.                            person shall harvest, possess while in or on the
                                                                                   waters of the state, or land more than 5 angelfishes
                      (2) Butte rflyf ishes.--                                     (Family Pomacanthidae) per day. Each angelfish


                 140






                                                                                                            Action Plans: Regulatoly

                shall be counted for purposes of the 20 individual bag             (b) A limit of 75 butterflyfishes (Family
                limit specified in subsection (1) of this rule.               Chaetodontidae) per vessel per day.

                    (4)(a) Unless the season is closed pursuant to                 (c) There shall be no limits on the harvest for
                paragraph (b), no person shall harvest, possess               commercial purposes of octocorals unless and until
                while in or on the waters of the state, or land more          the season for all harvest of octocorals in federal
                than 6 colonies per day of octocorals. Each colony of         Exclusive Economic Zone (EEZ) waters adjacent to
                octocoral or part thereof shall be considered an              state waters is closed. At such time, the season for
                individual of the species for purposes of subsection          harvest of octocorals in state waters shall also close
                (1) of this rule and shall be counted for purposes of         until the following October 1, upon notice given by
                the 20 individual bag limit specified therein. Each           the Secretary of the Department of Environmental
                person harvesting any octocoral as authorized by this         Protection, in the manner provided in Section
                rule may also harvest substrate within 1 inch of the          120.52(16)(d), Florida Statutes. Each person har-
                perimeter of the holdfast at the base of the octocoral,       vesting any octocoral as authorized by this rule may
                provided that such substrate remains attached to the          also harvest substrate within 1 inch of the perimeter
                octocoral.                                                    of the holdfast at the base of the octocoral, provided
                                                                              that such substrate remains attached to the
                    (b) If the harvest of octocorals in federal Exclu-        octocoral.
                sive Economic Zone (EEZ) waters adjacent to state
                waters is closed to all harvesters prior to September              (d) A limit of 400 giant Caribbean or
                30 of any year, the season for harvest of octocorals          "pink-tipped" anemones (Genus Condylactus) per
                in state waters shall also close until the following          vessel per day.
                October 1, upon notice given by the Secretary of the
                Department of Environmental Protection, in the                Specific Authority 370.027(2), F.S. Law Imple-
                manner provided in s.120.52(16)(d), Florida Statutes.         mented 370.025, 370.027, F.S. History - New
                                                                              1-1-91, Amended 7-1-92, 1-1-95.
                Specific Authority 370.027(2), F.S. Law Implemented
                370.025, 370.027, F.S. History -- New 1-1-91,                 46-42.007 Gear Specifications and Prohibited
                Amended 1-1-95.                                               Gear.--


                46-42.006 Commercial Season, Harvest Limits.---                    (1) The following types of gear shall be the only
                                                                              types allowed for the harvest of any tropical fish,
                    (1) Except as provided in Rule 46-42.008(7), no           whether from state waters or from federal Exclusive
                person shall harvest, possess while in or on the              Economic Zone (EEZ) waters adjacent to state
                waters of the state, or land quantities of tropical           waters:
                ornamental marine life species or tropical ornamental
                marine plants in excess of the bag limits established              (a) Hand held net.
                in Rule 46-42.005 unless such person possesses a
                valid saltwater products license with both a marine                (b) Barrier net, with a mesh size not exceeding
                life fishery endorsement and a restricted species             3/4.inch stretched mesh.
                endorsement issued by the Department of Environ-
                mental Protection.                                                 (c) Drop net, with a mesh size not exceeding 3/4
                                                                              inch stretched mesh.
                    (2) Persons harvesting tropical ornamental
                marine life species or tropical ornamental marine                  (d) Slurp gun.
                plants for commercial purposes shall have a season
                that begins on October 1 of each year and continues                (e) Quinaldine may be used for the harvest of
                through September 30 of the following year. These             tropical fish if the person using the chemical or
                persons shall not harvest, possess while in or on the         possessing the chemical in or on the waters of the
                waters of the state, or land tropical ornamental              state meets each of the following conditions:
                marine life species in excess of the following limits:
                                                                                   1. The person also possesses and maintains
                    (a) A limit of 75 angelfish (Family                       aboard any vessel used in the harvest of tropical fish
                Pomacanthidae) per person per day or 150 angelfish            with quinaldine a special activity license authorizing
                per vessel per day, whichever is less.                        the use of quinaldine, issued by the Division of
                                                                              Marine Resources of the Department of Environmen-

                                                                                                                                       141






               Action Plans: Regulatoty
               tal Protection pursuant to Section 370.08(8), Florida         46-42.009 Prohibition on the Taking, Destruction, or
               Statutes.                                                     Sale of Marine Corals and Sea Fans; Exception;
                                                                             Repeal of Section 370.114, Florida Statutes.--
                    2. The quinaldine possessed or applied while in
               or on the waters of the state is in a diluted form of no          (1) Except as provided in subsection (2), no
               more than 2% concentration in solution with seawa-            person shall take, attempt to take, or otherwise
               ter. Prior to dilution in seawater, quinaldine shall only     destroy, or sell, or attempt to sell, any sea fan of the
               be mixed with isopropyl alcohol or ethanol.                   species Gorgonia flabellurn or of the species
                                                                             Gorgonia ventalina, or any hard or stony coral (Order
                    (f) A roller frame trawl operated by a person            Scleractinia) or any fire coral (Genus Millepora). No
               possessing a valid live bait shrimping license issued         person shall possess any such fresh, uncleaned, or
               by the Department of Environmental Protection                 uncured sea fan, hard or stony coral, or fire coral.
               pursuant to Section 370.15, Florida Statutes, if such
               tropical fish are taken as an incidental bycatch of               (2) Subsection (1) shall not apply to:
               shrimp lawfully harvested with such trawl.
                                                                                 (a) Any sea fan, hard or stony coral, or fire coral
                    (g) A trawl meeting the following specifications         legally harvested outside of state waters or federal
               used to collect live specimens of the dwarf seahorse,         Exclusive Economic Zone (EEZ) waters adjacent to
               Hippocampus zosterae, if towed by a vessel no                 state waters and entering Florida in interstate or
               greater than 15 feet in length at no greater than idle        international commerce. The burden shall be upon
               speed:                                                        any person possessing such species to establish the
                                                                             chain of possession from the initial transaction after
                    1 .The trawl opening shall be no larger than 12          harvest, by appropriate receipt(s), bill(s) of sale, or
               inches by 48 inches.                                          bill(s) of lading, and any customs receipts, and to
                                                                             show that such species originated from a point
                    2. The trawl shall weigh no more than 5 pounds           outside the waters of the State of Florida or federal
               wet when weighed out of the water.                            Exclusive Economic Zone (EEZ) adjacent to state
                                                                             waters and entered the state in interstate or interna-
                    (2) This rule shall not be construed to prohibit         tional commerce. Failure to maintain such documen-
               the use of any bag or container used solely for               tation or to promptly produce same at the request of
               storing collected specimens or the use of a single            any duly authorized law enforcement officer shall
               blunt rod in conjunction with any allowable gear,             constitute prima facie evidence that such species
               which rod meets each of the following specifications:         were harvested from Florida waters in violation of this
                                                                             rule.
                    (a) The rod shall be made of nonferrous metal,
               fiberglass, or wood.                                              (b) Any sea fan, hard or stony coral, or fire coral
                                                                             harvested and possessed pursuant to permit issued
                    (b) The rod shall be no longer than 36 inches            by the Department of Environmental Protection for
               and have a diameter no greater than 3/4 inch at any           scientific or educational purposes as authorized in
               point.                                                        Section 370.10(2), Florida Statutes.

                    (3) No person shall harvest in or from state                 (c) Any sea fan, hard or stony coral, or fire coral
               waters@ any tropical fish by or with the use of any gear      harvested and possessed pursuant to the
               other than those types specified in subsection (1);           aquacultured live rock provisions of Rule
               provided, however, that tropical fish harvested as an         46-42.008(3)(a) or pursuant to a Live Rock Aquacul-
               incidental bycatch of other species lawfully harvested        ture Permit issued by the National Marine Fisheries
               for commercial purposes with other types of gear              Service under 50 C.F.R. Part 638 and meeting the
               shall not be deemed to be harvested in violation of           following requirements:
               this rule, if the quantity of tropical fish so harvested
               does not exceed the bag limits established in Rule                1. Persons possessing these species in or on
               46-42.005.                                                    the waters of the state shall also possess a state
                                                                             submerged lands lease for live rock aquaculture and
               Specific Authority 370.027(2), F.S. Law Implemented           a Department of Environmental Protection permit for
               370.025, 370.027, F.S. History -- New 1-1-91,                 live rock culture deposition and removal or a federal
               Amended 7-1-92,1-1-95.                                        Live Rock Aquaculture Permit. If the person pos-
                                                                             sessing these species is not the person named in the

               142







                                                                                                      Action Plans: Regulatory
              documents required herein, then the person in such
              possession shall also possess written permission
              from the person so named to transport aquacultured
              live rock pursuant to this exception.

                  2. The nearest office of the Florida Marine Patrol
              shall be notified at least 24 hours in advance of any
              transport in or on state waters of aquacultured live
              rock pursuant to this exception.

                  3. Persons possessing these species off the
              water shall maintain and produce upon the request of
              any duly authorized law enforcement officer sufficient
              documentation to establish the chain of possession
              from harvest on a state submerged land lease for live
              rock aquaculture or in adjacent Exclusive Economic
              Zone (EEZ) waters pursuant to a federal Live Rock
              Aquaculture Permit.

                  4. Any sea fan, hard or stony coral, or fire coral
              harvested pursuant to Rule 46-42.008(3)(a) shall
              remain attached to the cultured rock.

              Specific Authority 370.027(2), F.S.; Section 6,
              Chapter 83-134, Laws of Florida, as amended by
              Chapter 84-121, Laws of Florida. Law Implemented
              370.025, 370.027, F.S.; Section 6, Chapter 83-134,
              Laws of Florida, as amended by Chapter 84-121,
              Laws of Florida. History -New 1-1 -95.2222






























                                                                                                                              143






                                    Research and Monitoring Action Plan

               This action plan identifies and describes re-                  Two laws require that a research and monitoring
               search and monitoring strategies that will be                  program be implemented within the Sanctuary.
               implemented for the Florida Keys National Marine               Section 309 of the NMSA mandates that the "Secre-
               Sanctuary. The strategies within the plan are                  tary of Commerce shall take such action as is
               derived from Alternative 111, the most balanced Of             necessary and reasonable to promote and coordinate
               the management alternatives. For each strategy,                the use of national marine sanctuaries for research,
               the time required for implementation, funding                  monitoring, and education purposes." The 1992
               availability, costs, and responsible parties are               amendments to the FKNMSPA (Section 7(a)(4)) are
               outlined. Although this is the final set of research           much more specific, calling on the Secretary of
               and monitoring strategies, only a subset will be               Commerce to:
               implemented in the first year of Sanctuary opera-
               tion. These strategies are expected to have a                      * identify priority needs for research and
               significant impact on Sanctuary resources. Table                     amounts needed to improve management of
               17 summarizes key information about the imple-                       the Sanctuary, and in particular, the coral reef
               mentation of research and monitoring strategies.                     ecosystem within the Sanctuary;

                                                                                  - identity clearly the cause-and-effect relation-
                 Introduction                                                       ships between factors threatening the health of
                                                                                    the coral reef ecosystem in the Sanctuary; and
               Research and monitoring are critical to achieving the
               Sanctuary's primary goal of resource protection. The               - establish a long-term ecological monitoring
               Keys'ecosystern is diverse and complex, and many                     program and database, including methods to
               of its processes and their interrelationships are not                disseminate information on the management of
               well known. Also, while many resource impacts are                    the coral reef ecosystem.
               obvious and severe, they are often not documented
               or quantified, and their causes may be even less               How the Plan is Organized. This action plan is
               clear or completely unknown. The purpose of re-                organized into three sections: an introduction,
               search and monitoring is to establish a baseline of            description of strategies, and implementation. The
               information on the resource and the various compo-             introduction summarizes the goals and objectives of
               nents of the ecosystem, and how they interact. In this         the Research and Monitoring Program, and provides
               way, research and monitoring can ensure the effec-             background information on planning efforts. The
               tive implementation of management strategies using             strategy description section organizes strategies into
               the best available scientific information.                     several groups, including: 1) research management;
                                                                              2) monitoring; 3) fisheries impacts; 4) environmental
               Research and monitoring activities must focus on               assessment; and 5) predictive strategies. The
               fundamental processes and specific management-                 implementation section details how strategies in the
               driven topics. Information generated from such                 plan will be placed into action. For each strategy and
               activities will be used to:                                    component activity, the priority level, funding avail-
                    ï¿½ provide the public with a means to evaluate the         ability, costs, and timing of implementation are
                      effectiveness of the Sanctuary;                         summarized.

                    ï¿½ provide a means to distinguish between the
                      effects of human activities and natural variabil-
                      ity;
                                                                              It has long been recognized that research efforts in
                    ï¿½ develop hypotheses about causal relationships           the Keys must be focused on priority issues, and
                      which can then be investigated;                         various workshops have been held to define those
                    ï¿½ evaluate management actions; and                        issues. In October 1991, NOAA's Sanctuaries and
                                                                              Reserves Division sponsored a workshop where over
                    ï¿½ verify and validate quantitative predictive             90 environmental managers and scientists presented
                      models used to evaluate and select manage-              their views and developed a list of priorities and
                      ment actions.                                           objectives for managing a successful research
                                                                              program (Harwell, 1991). NOAA had previously

                                                                                                                                          145







                    Action Plans Research and Monitoring

                    (1988) funded the Marine Resources Development                                      Both research and monitoring activities are in this
                    Foundation to sponsor a workshop to discuss man-                                    plan because they employ similar methods, are often
                    agement, education, and research issues, and to                                     conducted by the same people and agencies, and
                    develop priority action plans (Miller, 1988) Other                                  must be linked to one another Research is goal-
                    pertinent planning efforts include the five-year                                    oriented with well-defined, testable hypotheses, and
                    research plan of the Florida Marine Research Insti-                                 is of finite duration Monitoring involves systematic
                    tute (FMRI) (FDNR, 1989); the Florida Keys Environ-                                 long-term data collection and analysis to measure the
                    mental Summit Report (Olson, 1991), an international                                state of the resource and detect changes over time
                    workshop on coral reefs and their response to global                                Detecting such changes can prompt management
                    climate change (D'Elia et al , 1991), EPA's Water                                   decisions, can be used to evaluate the success of
                    Quality Protection Program Plan for the Florida Keys                                management strategies, or to focus research on
                    National Marine Sanctuary, and the management                                       determining the reason for the change
                    plans for the Key Largo and Looe Key National
                    Marine Sanctuaries The Sanctuary will enable                                        Management Strategies Each strategy has been
                    improvements in the funding, focus, and quality of                                  assigned an estimated activity level for year 1 (high,
                    research, and the free exchange and discussion of                                   medium, low, or none) This activity level is an
                    research information It will influence research by                                  estimation of the planned level of action that will
                    establishing priorities, encouraging open communica-                                occur in the first year after the Sanctuary Manage-
                    tion among researchers and managers, and allowing                                   ment Plan is adopted In addition, the time required,
                    Sanctuary staff to work closely with researchers to                                 costs of implementation, and funding availability
                    accomplish mutual goals                                                             (Federal, State, local, and private) have been esti-


                       Table 17. Summary of Research and Monitoring Strategies


                                                                                   Overall                                           Funding for
                                                                                 sanctu         Planned Level       Months             Full          Number of          Number
                                                                                   priority      of Action In      to            Implement         Activities to          of
                       Page                    Strategies                          Level            Year 1        complete          tation       be Undertaken Institutions


                       149 B 11 National Marine Sanctuary Permits                                    High              <12           100%              1               5
                       150 W.28 Regional Database                                  High                     Refer to Water Quality Action Plan
                       150 W.29 Dissemination of Findings                        medium                     Refer to Water Quality Action Plan
                       150, W.32 Technical Advisory Committee                                               Refer to water Quality Action Plan


                       151   F6     Fisheries Sampling                             High              High              36+           <50%                2               7
                       152   W20    Monitoring                                     High                     Refer to Water QualityAction Plan
                       152 W33     Ecological Monitoring                          High              Medium            60+           <50%                7               8
                       155   7-2    Ecological Reserves                            High              Medium            36+           <50%                4               4
                       156   Z3     Sanctuary Preservation Areas                   High              Medium            36+           <50%                4               4
                       157   Z 5    Special-use Areas                              High              Medium            36+           <60%                4               5
                       158   Fisheries Impacts
                       158   F 3    Stocking                                       LOW               None              30            None                1               9
                       l58  F 4    Aquaculture Alfermatives                        LOW               None              36+           <W/o,               1               8
                       159   F7     Artificial Reefs                               LOW               None              48+           <50%                1               7
                       159   F.10   Bycatch                                        Low               None              48+           <25%                1               7
                       160   F.11   Gear/Mathod Impacts                            LOW               None              48+           <25%                1               7
                       160   F 14   Spearfishing                                   Low               None              36            0%                  2               5
                       161   F.15   Sponqe Harvest                               Medium              Medium            36            <75%                1               8
                       161   Special Studies
                       161   82     Habitat Restoration                          Medium              Medium            24+           50-74%              2               8
                       182   RS     Carrying Capacity                            Medium            LOW               48+           <50%                1               9
                       162   W.5    Water Quality Standards                      medium                     Refer to Water Quality Action'Plan
                       163   WAS    Pesticide Research                             High                     Refer to Water Qualify Action Plan
                       163   W.24   Florida Bay Influence                          High                     Refer to We ter Quality Action Plan

                       163 W21 Predictive Models                                   High                     Refer to Water Quality Action Plan
                    Strategies with an  for Overall Sanctuary Priority Level are already existing programs and/or will be completed In the, first year of sanctuary operation

                    146
 





                                                                                                             Action Plans Research and Monitoring


                   Existing Research and Monitoring Programs
                   Research Much research has been done in the Florida Keys,                WQPP monitoring program begart In 19.94 and consists of three
                   and a synopsis of this work can be found in the Description of           components:,kater quality, corarafteirdbottorns, and
                   the Affected Environment chapter of this Management Plan and             seagrasses.-The following are some of the monitoring efforts
                   in the Site Characterization for the Sanctuary, 1996. Research           that are occurring In this area:
                   is conducted by many groups, including local, State, and
                   Federal agencies, public and private universities; private               Corals, Coral population dynamics are being monitored at 42
                   research foundations, environmental organize#"; and                      fixed stations throughout ft Keys as part of the WOPP.
                   independent researchers While productive. research efforts are           Historical monitoring has been done throughout the Keys by
                   driven by diverse goals, vary in available resources and quality,        the NMFS, FDEP, SEAKEYS, and the College of Charleston
                   and do not effectively share results Leading research groups
                   include*                                                                 Fish The NMF8 and the FDEP monitor recreational and
                                                                                            commercial catch statistics conr6ming commercially Important
                         ï¿½ NOAXs on-site National Marine Sanctuary Program and              species NMFS' Reef Resources Team has been gathering
                           National Marine Fisheries Service (NMFS) statP,                  baseline data on reef fish populations In and around the no-
                                                                                            take zones since 1993.
                         ï¿½ NOAA's on-site National Undersea Research Center
                           (NURC) at the University of North Carolina-Wilmington.           Seagrass, Seagrass dynamics are being monitored at 51 sites
                           Since 1991, NURC's Florida program has been a major              throughout the Sanctuary as part of the WOPP The National
                           sponsor of undersea research In the Sanctuary Using              Park Service (NPS) and the University of Virginia monitor
                           the Aquarius undersea laboratory and surface boats,              seagrass productivity in Everglades National Park.
                           scientists conduct research In the following areas. reef
                           health, reef development, water quality, fisheries, and          Mangroves The NPS In Everglades National Park is evaluating
                           ecology                                                          the effects of sea level rise on mangroves.
                         ï¿½ The U S Geological Service's Center for Coastal                  Benthic Organisms NOAA Biscayne National Park, and the
                           Geology maps and conducts geological research on                                            ' I
                           coral reefs in the Florida Keys,                                 FDEP are monitoring organisms such as spiny lobster, sponge,
                                                                                            conch, stone crabs, and Diaden-a NOARs National Status and
                         ï¿½ The Florida Department of Environmental Protection               TrendiProgram monit6is one'm6llusc In the Upper Keys for
                           (FDEP), Florida Marine Research Institute (FMRI) (St.            toxic contamination.        I
                           Petersburg and Long Key laboratories),                           Hardbottorn Communities. The Nature Conservancy's (TNC)
                         ï¿½ The University of Miami's Rosenstlel School for Marine           Florida and Caribbean Majine Conservation Science Center
                           and Atmospheric Sciences;                                        has been monitoring hardbottom communities since 1981
                         ï¿½ The State university system coordinated through the              Algal Blooms TNC and the FDEP have been monitoring and
                           Florida Institute of Oceanography (FIO). The mosf                mapping algal blooms in Florida Bay and the Sanct@ary
                           active universities are the University of Florida, the
                           University of South Florida, and Florida International           Physical parameters. FIO`s SEAKEYS program has been
                           University FIO collaborates with the FDEP In running             operating six automated, instrumented monitoring stations
                           the Long Key Lab                                                 placed strategically along the Keys for the past 7 years. These
                                                                                            stations monitor wind speed, Wind direction, precipitation,
                   Monitoring A number of monitoring activities are occurring in or         barometric pressure, air tempierature, solar Irradlance near
                   near the Keys. The most comprehensive, long-term monitoring              surface and at 3m, seawater temperature near surface and 3m
                   program underway in ft Keys is conducted through ft Water                depth, and surface salinity.
                   Quality Protection Program (WOPP) funded by USEPA The



                 mated for all strategies The component activities                          in year one Low priority items contain the remain-
                 within each strategy, and the institutions responsible                     ing strategies in the Management Plan Those
                 for implementing them, have been identified                                strategies planned for completion in or before year
                 The strategies for the Management Plan, which                              one do not have a priority level
                 includes Research and Monitoring Action Plan and all                       Research and Monitonng Strategies The plan
                 other action plans combined, have been grouped into                        includes the 27 strategies within Alternative III that
                 three priority levels, based on their relative impor-                      have a research and/or monitoring component The
                 tance or feasibility A strategy's priority level is based                  highest-ranking strategies, in terms of overall
                 on factors such as available funding, costs, person-                       priority, are Water Quality Monitoring, Ecological
                 nel requirements, timing, levels of existing implemen-                     Reserves, and Sanctuary Preservation Areas.
                 tation, and existing legislative/regulatory authority                      These strategies include major research and
                 The high pnority level includes the 16 most important                      monitoring efforts, and are cntfcal to the ultimate
                 strategies The medium priority level contains 36                           success of the Sanctuary Thirteen other research
                 strategies that represent the next level of importance                     and monitoring strategies are included in both
                 to the Sanctuary and will have some level of activity                      medium and high priority levels As stated above

                                                                                                                                                              147






               Action Plans: Research and Monitoring
               the strategies in the first two priority levels are           F#7
               planned to have some level of activity in year 1.

               Research and monitoring strategies are organized              The primary goal of the Research and Monitoring
               into five theme groups: research management;                  Program is to provide the knowledge necessary to
               monitoring; fisheries impacts; environmental assess.          make informed decisions about protecting the
               ment; and predictive strategies. Research manage-             biological diversity and natural ecosystem processes
               ment strategies are those that facilitate or enhance          of the Sanctuary and its resources.
               the capabilities for conducting research and monitor-         Sanctuary Goals. Two acts, the NMSA and the
               ing within the Sanctuary. Monitoring strategies are           FKNMSPA, establish additional research and moni-
               composed of those that establish monitoring pro-              toring goals, including the:
               grams of Sanctuary resources. The fisheries impacts
               group includes seven strategies that will provide                    - identification of priority areas for research;
               basic research on fisheries management techniques,
               aquaculture, the impacts of artificial reefs, and                    9establishment of an ecological monitoring
               harvesting methods. Environmental assessment                         program;
               strategies will result in the assessment of environ-
               mental conditions within the Sanctuary. Predictive                   *development of standards based on biological
               strategies will provide research that will allow re-                 monitoring or assessment to ensure the
               source managers to assess the potential impact of                    protection and restoration of water quality,
               selected management strategies.                                      coral reefs, and other marine resources;
               Relationship to Other Action Plans. Because of                       *establishment of a comprehensive water
               the need to establish separate management compo-                     quality monitoring program to determine the
               nents (i.e., research, water quality, regulatory,                    sources of pollution and evaluate the results of
               volunteer) within the Sanctuary, research and                        pollution-reduction efforts;
               monitoring strategies in this plan also appear in other              eevaluation of progress in achieving water
               action plans. For example, in addition to having a                   quality standards and protecting and restoring
               research thrust, a strategy may also have a water                    the Sanctuary's coral reefs and living marine
               .quality, volunteer, or regulatory component. All of the             resources;
               water quality strategies, with the exception of Eco-
               logical Monitoring (W.33), are only given by title in                establishment of strong communication and
               this plan. The detailed implementation scheme for                    cooperation between the scientific community
               these strategies is provided in the Water Quality                    and resource managers;
               Action Plan. If a strategy appears in more than one
               action plan and/or components of the strategy appear                 coordination of research efforts to achieve the
               in other action plans, this is noted in the description.             most beneficial results; and

                                                                                    promotion of public awareness and resource
                                                                                    stewardship.

                                                                             Sanctuary Objectives. To achieve these goals, the
                                                                             following objectives should be met:

                                                                                    provide leadership and coordination in research
                                                                                    and monitoring activities by: a) recruiting other
                                                                                    institutions to carry out priority actions under
                                                                                    the Sanctuary program, including volunteer
                                                                                    groups that can foster an attitude of community
                                                                                    stewardship; and b) registering researchers
                                                                                    within the Sanctuary in order to share informa-
                                                                                    tion about research activities and encourage
                                                                                    coordination and cooperation among scientists
                                                                                    and resource managers;



               148







                                                                                           Action Plans: Research and Monitoring

                     *outline information needs and set priorities for
                       research and monitoring that address issues            Description of Strategies
                       related to management actions to be imple-
                       mented and evaluated over the next five years,
                                                                                   @U
                                                                                                                          '0     A
                       such as: a) baseline studies and long-term
                       monitoring programs addressing water quality
                       and the evaluation of water quality improve-         Research management strategies include those that
                       ment strategies; b) studies on the impacts to        facilitate or enhance the capabilities for conducting
                       habitats and their recovery from physical            research and monitoring within the Sanctuary. The
                       damage, as well as the effectiveness of              first strategy will result in the development of a
                       restoration actions; c) baseline surveys and         sanctuary-wide permitting program to allow research-
                       long-term monitoring that measure the ecologi-       ers, educators, and others to conduct prohibited
                       cal effects of establishing no-take zones and        activities under certain circumstances. The second
                       Wildlife Management Areas; and d) studies            strategy will result in the development of a regional
                       that distinguish human impacts from natural          database for storing research and monitoring results.
                       variability and contribute to biologically-based     The third strategy (W.29) creates a program to
                       standards for the sustainable use of the             disseminate information about research findings
                       Sanctuary;                                           among scientists and resource managers. The fourth
                     ï¿½ encourage and provide support for research           strategy (W.32) establishes an advisory committee
                       and monitoring that lead to a better under-          for coordinating and guiding research activities
                       standing of key ecological processes and             relating to water quality, and ecology.
                       criteria for recognizing ecological change;

                     ï¿½ take a lead role in making the results of re-
                       search and monitoring efforts available to all
                       audiences, either directly or through collaborat-
                       ing institutions;

                                                                                                           65
                     ï¿½ ensure research is funded on an open and
                       competitive basis;                                                                        tail,

                     *coordinate research permitting among agen-
                       cies; and                                                                               IN
                                                                                                                                   1A
                       use research and monitoring results to evaluate
                       management actions and improve them
                       accordingly.

                                                                            'J"
                                                                                                             L




                                                                                                     B.1 1:
                                                                                 National Marine Sanctuary Permits


                                                                            Establish permits (e.g., for researchers, educators,
                                                                            emergency response personnel, salvors, and salvage
                                                                            operators) to conduct activities otherwise prohibited
                                                                            within the Sanctuary; facilitate simplified permitting of
                                                                            research activities.
                                                                            (Completed in Year 1)



                                                                                                                                 149






             Action Plans: Research and Monitoring

             Activity 1- Establish Permitting Program. This                 This strategy is described in detail in the Water
             strategy will allow researchers, educators, and others         Quality Action Plan.
             to conduct prohibited activities if those activities will:
             1) further research and monitoring in the Sanctuary;
             2) further the educational, natural, or historical                                      W.29:
             resource value of the Sanctuary; or 3) assist in                          Dissemination of Findings
             managing the Sanctuary. Permits will be monitored
             and their provisions enforced. The permitting pro-
             gram will enable oversight of the research occurring           Develop a program to synthesize and disseminate
             within the Sanctuary. In addition, for those research          scientific research and monitoring results, including
             activities occuring in the Sanctuary that are not              an information exchange network, conferences, and
             prohibited, there is a voluntary research registry.            support for the publication of research findings in
             See ï¿½922.166 of the regulations in the Regulatory              peer-reviewed scientific journals.
             Action Plan for details on the permit requirements.            (Priority Level Medium, Low Level of Action in Year
                                                                            1, 60+ Months to Complete, <50% Funding Available
             mExisting Program Implementation. Research permits             for Full Implementation)
             for the Looe Key and Key Largo National Marine                 This strategy is described in detall in the Water
             Sanctuaries are currently issued by NOAA's Sanctu-             Quality Action Plan.
             aries and Reserves Division. The FDEP and Monroe
             .County also issue permits for certain activities within
             their jurisdiction.                                                        Strategy W.32: Establish
             NImplementation. Research permitting is essential,                    Technical Advisory Committee
             and will be conducted by Sanctuary staff and coordi-
             nated with the FDEP. All permitting will be conducted
             by the on-site Sanctuary manager, and permit                   Establish a Technical Advisory Committee for
             possession will be enforced by Sanctuary staff.                coordinating and guiding research activities for both
             Research must be allowed to continue with minimal,             NOAA and EPA.
             disruption following implementation of the Manage-             (This strategy has been completed)
             ment Plan. When determining research to be con-
             ducted, the potential for damage will be compared to           This strategy is described in detail in the Water
             the expected benefits of the results. Research that            Quality Action Plan.
             may result in resource alteration must be of the
             highest quality and considered highly beneficial to the
             Sanctuary. Permitting will not require substantial
                                                                                    t
                                                                               .o;nt orilng._"@,
             resources, and should be maintained regardless of
             funding changes. The results of permitted research
             will be evaluated through peer review.                         This group is composed of strategies that establish
                                                                            monitoring programs for Sanctuary resources. This
             wSchedule. This activity has been completed.                   group includes the three major monitoring strategies
                                                                            (Water Quality, Ecological Monitoring, and Fisheries
                                                                            Monitoring), and two strategies designed to enhance
                                                                            monitoring techniques. All of these strategies will be
                                      W.28:                                 implemented in year 1.
                            Regional Database                               Monitoring is essential to achieve the primary goal of
                                                                            resource protection. The purpose of monitoring is to
             Establish a regional database and data management              first, establish a baseline of resources, processes,
             system for recording research results and biological,          and functioning of the ecosystem against which
             physical, and chemical parameters associated with              standards for resource protection can be measured,
             Sanctuary monitoring programs. (Priority Level High,           and, second, to assess the status and trends of the
             High Level of Action in Year 1, 12 Months to Com-              ecological resources. Monitoring provides a means to
             plete, 75% Funding Available for Full Implementa-              anticipate future problems before they require
             tion)                                                          expensive solutions. The objectives of the monitoring
                                                                            program are to:

             150







                                                                                                       Action Plans Research and Monitoring

                                                                                          * assess the overall health of the ecosystem,
                     Monitoring Strategies                                                   and
                     F.6. Fisheries Sampling                                              a  provide information for the development of a
                     ï¿½ Evaluate and modify existing census programs                          predictive model of the Florida Keys ecosys-
                     ï¿½ Initiate a fishery pre-recruitment monitoring effort                  tem
                     W.20: Monitoring
                     (This strategy is described in detail in the Watit Quality        Monitoring efforts in the Sanctuary will focus on the
                     Action Plan)                                                      Sanctuary Preservation Areas and Ecological Re-
                     W.33: Ecological Monitoring                                       serves. These zones were established for the
                     ï¿½ Hire a research and monitoring coordinator                      purpose of protecting biological resources and
                     ï¿½ Establish an ecological information system                      ecosystem processes, as such, their effectiveness
                     ï¿½ Conduct status and trends assessment                            can only be determined by monitoring the status and
                     ï¿½ Establish a fisheries ecological monitoring                     trends of biological resources within and outside of
                       and research component                                          the zones
                     ï¿½ Establish a data management protocol
                     ï¿½ Develop a periodic report on Sanctuary health
                     ï¿½ Establish a volunteer monitoring program
                     Z.2: Ecological Reserves                                                               Strategy F.6:
                     ï¿½ Develop baseline data                                                           Fisheries Sampling
                     ï¿½ Monitor ecological reserves
                     ï¿½ Utilize ecological reserves as controls
                     ï¿½ Utilize as a research area                                      Enhance the resolution of existing commercial and
                     Z.3: Sanctuary Preservation Areas                                 recreational fishenes-dependent and independent
                     ï¿½ Develop baseline data                                           sampling programs to provide statistics on catch and
                     ï¿½ Monitor SPAs                                                    effort This will be accomplished by establishing
                     ï¿½ Utilize SPAs as controls                                        statistical areas based on "completeness cntena7
                     ï¿½ Utilize as a research area                                      including scientific need Initiate fisheries indepen-
                     Z.5* Special-Use Areas                                            dent sampling programs to measure the pre-recruit-
                     ï¿½ Develop baseline data                                           ment of economically important species within the
                     ï¿½ Monitor SUAs                                                    statistical areas Regulations will be developed and
                     ï¿½ Utilize SUAs as controls                                        implemented in accordance with the FMFC and the
                     ï¿½ Utilize as a research area                                      protocols for consistent regulations in strategy F 1
                                                                                       (Priority Level High, High Level of Action in Year 1,
                                                                                       36+ Months to Complete, <50% Funding Available
                         ï¿½ utilize the Sanctuary Preservation Areas and                for Full Implementation)
                           Ecological Reserves as primary monitoring
                           areas,                                                      Activity 1-Eveluate and Enhance Existing Census
                                                                                       Programs. Existing commercial landing and recre-
                         ï¿½ establish an ongoing and open dialogue                      ational cree(census programs will be evaluated and
                           between scientists, managers, and the public                enhanced to provide statistically based management
                           to facilitate an efficient and responsive monitor-          information for regulating take. This includes the
                           ing program,                                                assessment and modification of information types
                                                                                       and mandatory versus voluntary information To
                         ï¿½ coordinate with the Environmental Protection                increase the resolution of the programs, statistical
                           Agency (EPA)/Flonda Department of Environ-                  areas will be established to provide information on
                           mental Protection (FDEP) Water Quality                      catch and effort The number of areas will be based
                           Monitoring Program to maximize the use of                   on "completeness criteria," including scientific need
                           limited resources;
                         ï¿½ establish an effective feedback mechanism                   nimplementation The FDEP will have the primary
                           between research and monitoring in order to                 responsibility for implementing this activity The
                           maximize the use of limited resources,                      National Marine Fisheries Service (NMFS), National
                                                                                       Park Service (NPS), the South Atlantic and Gulf of
                         ï¿½ assess the status and trends of corals, fish,               Mexico Fishery Management Councils (SAFMC and
                           plankton, seagrasses, mangroves, and benthic                GMFMC), and the Florida Marine Fisheries Commis-
                           organisms,                                                  sion (FMFC) will provide primary support

                                                                                                                                                      151






             Action Plans: Research and Monitoring
             oSchedule. This activity will have a high level of                                Strategy W.33:
             action in year 1 for evaluation and recommendations.
             It will require 12 months to complete. Funding for                           Ecological Monitoring
             enhancement does not exist, and no schedule has
             been determined.
                                                                            Develop and implement a Sanctuary-wide, intensive
             Activity 2-Initiate a Fishery Pre-recruitment                  ecosystem monitoring program. The objective of the
             Monitoring Effort. A fisheries pre-recruitment                 program will be to monitor the status of various
             monitoring effort will be initiated for the long-term          biological and ecological indicators of system compo-
             prediction of fishery stocks for Sanctuary-level               nents throughout the Sanctuary and adjacent areas
             management. This effort will be independent of                 in order to discern the local and system-wide effects
             commercial monitoring activities; FDEP has begun               of human and natural disturbances and assess the
             implementation of fishery pre-recruitment monitoring           overall health of the Sanctuary.
             efforts for other areas in the state. Several statistical
             areas will be established, and this activity will evalu-       This strategy will establish a comprehensive, long-
             ate and implement the programs to that level.                  term monitoring program throughout the Sanctuary
                                                                            and adjacent areas that will have three purposes:
             mExisting Program Implementation. The FDEP has                 1) to supply resource managers with information on
             partially implemented a statewide fisheries                    the status of the health of living resources and the
             pre-recruitment monitoring program that will include           ecosystem; 2) to determine causal relationships
             the Sanctuary.                                                 related to management decisions; 3) and to evaluate
                                                                            the effectiveness of management actions such as
             mImplementation. The FIDEP will have the primary               zoning implementation.
             responsibility for implementing this activity, as part of
             their current fisheries monitoring program. Any                The Ecological Monitoring Program will be fully
             regulations derived from this information will be              integrated with the Water Quality Monitoring Program
             developed by the FMFC. No funding is available for             through the Technical Advisory Committee, and will
             Sanctuary-wide monitoring.                                     include: a temporal and spatial ecological information
                                                                            system based on current knowledge; status and
             mSchedule. This activity will have a medium level of           trends assessments of corals, fishes, seagrasses,
             action in year 1. It will require 36+ months to com-           benthic organisms, algae, and mangroves; a fisheries
             plete.                                                         ecology monitoring and research component to
                                                                            examine community composition and function within
                                                                            the Sanctuary's habitats; a data analysis, manage-
                                      W.20:                                 ment, and dissemination protocol; a periodic report
                                                                            on Sanctuary health; and a volunteer monitoring
                                  Monitoring                                program.
                                                                            (Priority Level High, Medium Level of Action in Year
                                                                            1, 60+ Months to Complete, <50% Funding Available
             Conduct a long-term, comprehensive monitoring                  for Full Implementation)
             program as described in the EPA Water Quality
             Protection Program.                                            wGeneral Implementation. NOAA will be responsible
             (Priority Level High, Low Level of Action in Year 1,           for the overall implementation of the Ecological
             60+ Months to Complete, <50% Funding Available                 Monitoring Program, working with the EPA, FDEP,
             for Full Implementation)                                       academic and nongovernmental organizations
                                                                            (NGOs), and the TAC. NOAA will have the lead
             This strategy is described in detall in the Water              responsibility for implementing most activities, but the
             Quality Action Plan.                                           FDEP will be responsible for establishing an ecologi-
                                                                            cal information system (Activity 2) and data analysis,
                                                                            management, and dissemination protocol (Activity 5).

                                                                            mGeneral Relationship to Other Strategies. Integra-
                                                                            tion of the Ecological Monitoring Program and the
                                                                            Water Quality Protection Program will be achieved
                                                                            through the management committee specified in the
                                                                            Water Quality Protection Program. The TAC will be

             152




Action Plans: Research and Monitoring

used by NOAA to assist in the design and 
priortization of the Research and Monitoring Pro-
gram. This Sanctuary Superintendent will serve on
the management committee that coordinates and 
facilities the effors of the TAC.

General Schedule. The Ecological Monitoring
Program will have a medium level of action in year 1
it will require 60+ months to complete.

Activity 1-Hire a research and monitoring coordi-
nator. A research and monitoring coordinator is
needed to develop and maintain the Monitoring
Program, coordinate research activities, oversee the
permitting of research, assist in maintaining and
updating the ecological information system, and act
as a liaison with the Water Quality Protection Pro-
gram, FDEP/FMRI, National undersea Research
Center, and other organizations.

Existing Program Implementation. Currently, a
Sanctuary program specialist serves as the Sanctu-
ary research coordinator.

Implementation. NOAA and the FDEP will collabo-
rate on hiring the coordinator.

Schedule. this activity will have no action in year 1.
it will require 6 months to complete.

Activity 2- Establish an ecological information
System. Spatial and temporal information about
ecological resources will be incorporated into an
existing Federal and State geographic information
systetm (GIS). Information that summarizes benthic
habitats, species distributions, species life histories,
etc. will be included in this system. This is essential
baseline data for an effective ecological monitoring
program. Information will be derived from existing
sources such as the Minerals Management Service/
Marszalek maps and the NOAA/FDEP benthic 
habitat maps.

Existing Program Implementation. The FDEP has
severl projects underway that should meet this
need. FOr example, it is currently establishing a
marine geographic information system that will
include information on the keys. Monroe county is
also developing a GIS for land-use analysis, with
some marine applications. In addition, NOAA is 
developing spatial and temporal information for the
Keys in its GeoCoast GIS Facility.

Implementation The FDEP will be responsible for
implementing the activity. it will be accessible by the
Sanctuary staff over the internet.

Internal Coral Monitoring Efforts

The United Nations Environment Program, in
cooperation with several international organizations,
has initiated a planning process for establishing a
global coral ecosystem( including associated
seagrass and mangrove ecosystems) monitoring
network. Researchers in Australia have designed
and tested a prototype sampling methodology for 
this effort.

In the Caribbean region, CARICOMP is a program
of the intergovernmental Oceanographic Commis-
sion and UNESCO involving 21 marine laboratories
in 16 countries, whose purpose is to standardize
methodologies for monitoring corals, seagrasses, 
and mangroves.

The Nature Conservancy is compiling a database
on habitat classifications ond threatened coral
species in the Caribbean region.

The Sanctuary's Ecological Monitoring Program will
adopt established international guidelines for
monitoring corals, seagrasses, and mangroves, and
the sanctuary may be a candidate for a sampling
site or training center for the global network.

Schedule. This activity will have a high level of
action in year 1. It will require 24 months to complete.

Activity 3-Conduct Status and Trends Assess-
ments of corals, Fishes, Seargrasses, Benthic
Organisms and ALgae, and Mangroves. Biological
indicators for each of these biotic components will be
selected by NOAA, with assistance from the TAC,
and will be monitored intensively. Some indicators
being considered are:

 Coral cover: overall increase in living coral of
5% or a total of 30% cover for specific areas;

Coral diversity: no significant decline in existing
levels of diversity with the increase in overall
percent over described above;

Coral indices: percent of coral as a function of
fleshy algae biomass will increase, and percent
of living coral tissue as a function of dead
tissue in massive corals will increase to greater
than 55 percen;

Coral recruitment: increase in successful
recruitment of coral as reflected in size distribu-
tion curves;


				153






              Action Plans: Research and Monitoring

                   ï¿½fish: increase in numbers of ecologically                and the relationship between fish species and the
                    important species, such as cleaning gobies,              areas they inhabit, particularly concerning recruit-
                    while a high diversity of feeding guilds is              ment. Results of the Monitoring Program may be
                    maintained.                                              used by fishery resource and Sanctuary managers to
                                                                             develop population, community, and ecosystem-level
                   ï¿½shellfish: spiny lobster population is maintained        models.
                    at optimum sustainable yield;
                                                                             mExisting Program Implementation. The NMFS has
                   ï¿½algae: decrease in percent of macro-algae                taken a yearly census of fish populations for 10 years
                    cover and canopy height and decrease in                  at the Key Largo and Looe Key National Marine
                    extent and frequency of algal blooms;                    Sanctuaries. Since 1986, the FDEP/FMRI has
                                                                             administered a fishery-dependent monitoring pro-
                   *sponges: increase in abundance and biomass               gram, including such things as the snapper-grouper
                    ofsponges;                                               complex, pompano, dolphin, mackerel, and spiny
                                                                             lobster. The FMRI has also conducted a recreational
                   *sedimentation: decline in rates of deposition of         site survey in Monroe County since 1986, revealing
                    sediments along the coral reef tract.                    information about fishing activity, geographic loca-
                                                                             tion, habitat use, and catch composition.
              A baseline survey of the indicators will be conducted
              over a two-year period beginning in 1997. A status             sImplementation. NOAA will select the indicator
              and trends report of indicator conditions will then be         species that will represent both commercially and
              compiled on a periodic basis.                                  functionally important species, as well as the major
                                                                             habitats of the Sanctuary (i.e., coral reefs,
              mExisting Program Implementation. A number of                  seagrasses, mangroves, hardbottom, etc). All life
              monitoring programs are already operating in the               history stages of the indicator species should be
              Sanctuary. For example, in 1994 the Water Quality              monitored. Once indicator species are chosen,
              Monitoring Program commenced, which includes                   NOAA will establish a sampling regime, based on the
              water quality, seagrass and coral/hardbottom compo-            FDEP's benthic habitat maps, that will coincide as
              nents. The University of Miami's Center for Marine             much as possible with the water quality sampling
     ------7and Environmental Analysis is undertaking a major,               regime. Management zones, specifically Sanctuary
              6-year, multimillion dollar effort to model various            Preservation Areas and Ecological Reserves, will be
              aspects of the South Florida environment, including            included in the sampling regime (see strategies Z.2
              the development of indicators.                                 and Z.3). Sampling strategies for adult reef fishes
                                                                             should use a nondestructive visual technique such as
              mImplementation. NOAA will be responsible for                  that developed by the NMFS for the Biscayne
              implementing this activity, but the FDEP will play a           National Park. Sampling began in 1994.
              primary role in implementation. Academic institutions
              will provide additional assistance. The TAC will help          oSchedule. This activity will have a medium level of
              NOAA choose the appropriate indicators.                        action in year 1. It will require 24+ months to estab-
                                                                             lish.
              mSchedule. This activity will have a high level of
              action in year 1. It will require 24+ months to com-           Activity 5-Establish a Data Analysis, Manage-
              plete.                                                         ment, and Dissemination Protocol. Establish a
                                                                             regional database and data management system for
              Activity 4-Establish a Fisheries Ecology Monitor-              recording research results and biological, physical,
              ing and Research Component to Examine Com-                     and chemical parameters associated with Sanctuary
              munity Composition and Function within the                     monitoring programs. Develop a program to dissemi-
              Sanctuary's Habitats. Fisheries are an important               nate scientific research results, including an informa-
              component of the Keys'ecosystem, both in terms of              tion exchange network, conferences, and support for
              use values and ecological function. For example,               the publication of research findings in peer-reviewed
              grazing by herbivorous reef fish provides an impor-            scientific journals.
              tant balancing force in controlling algal growth on
              corals. Overharvesting of herbivorous reef fish upsets         For information on the implementation schedule
              this balance. Monitoring fish population dynamics, as          of this activity, see strategies W.28 (Regional
              well as studying life histories, should focus on               Database) and W.29 (Dissemination of Findings).
              answering questions about the effects of exploitation

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                                                                                           Action Plans: Research and Monitoring

               Activity 6-Develop a Periodic Report on Sanctu-              areas to evolve in a natural state, with a minimum of
               ary Health. Develop a periodic report on Sanctuary           human influence. These zones will protect a limited
               Health. A report will be produced periodically to            number of areas that represent the diverse habitats
               communicate to the public and policyrnakers the              within the Sanctuary, and that provide important
               current status of Sanctuary resources. The report            habitat for sustaining natural resources such as fish
               should be as simple and straightforward as possible          and invertebrates. These areas have been selected
               and utilize a consistent format from issue to issue.         to protect and enhance biodiversity and provide
                                                                            natural spawning, nursery, or permanent residence
               mImplementation. NOAA will produce the report with           areas that will serve to replenish stocks of all spe-
               the assistance of other agencies, scientists, and the        cies, particularly those not protected by fishery
               public. The TAC will be used for scientific peer             management regulations.
               review.                                                      (Priority Level High, Medium Level of Action in Year
                                                                            1, 36+ Months to Complete, <50% Funding Available
               oSchedule. This activity will have no action in year 1       for Full Implementation)
               It will require 12 months to complete and will be done
               on a periodic basis.                                         Activity 1-Develop Baseline Data. Before monitor-
                                                                            ing begins, a baseline survey of existing resources in
               Activity 7 - Establish a Volunteer Monitoring                each Ecological Reserve must be conducted. The
               Program. Volunteer monitoring, if carried out by             surveys will characterize the status of important
               trained individuals, presents a viable and cost-             marine species and their habitat.
               effective means of collecting data on the status and
               trends of various ecological indicators.                     sImplementation. NOAA will be the lead agency
                                                                            responsible for implementing this activity. The NMFS
               mExisting Program Implementation. The Nature                 and FDEP will provide support in implementing this
               Conservancy (TNC), in cooperation with NOAA, has             activity.
               established a volunteer monitoring program for
               marine benthic communities in the Keys.                      oSchedule. This activity will have a high level of
               MImplementation. TNC, in cooperation with NOAA,              action in year 1. It will require 24 months to complete.
               should continue to take the responsibility for develoP_      Activity 2-Monitor Ecological Reserves. Research
               ing and implementing a volunteer monitoring pro-             and monitoring activities will be conducted in these
               gram.                                                        areas to provide important information for comparing
               oSchedule. This will be a continuous activity through-       the effects of natural processes and consumptive
               out the duration of the program.                             activities on species and habitats. These ecological
                                                                            monitoring studies will determine if the area's
               This strategy is also included in the Volunteer              biodiversity and productivity are being adequately
               and Water Ouality action plans.                              protected by the exclusion of consumptive activities.
                                                                            Based on the results of this activity, the five-year
                                                                            update of the Management Plan will consider ex-
                                   Strategy Z.2:                            panding, modifying, or eliminating these zones.
                             Ecological Reserves                            mImplementation. NOAA will be the lead agency
                                                                            responsible for implementing this activity. The FDEP
                                                                            and EPA will provide primary support.
               These areas are designed to encompass large,
               contiguous diverse habitats. They are intended to            mSchedule. This activity will have a medium level of
               provide natural spawning, nursery, and permanent             action in year 1. It will require 36+ months to com-
               residence areas for the replenishment and genetic            plete.
               protection of marine life, and to protect and preserve
               all habitats and species. These reserves are intended        Activity 3-Utilize Ecological Reserves as Con-
               to protect areas that represent the full range of            trols. Ecological Reserves will be utilized as controls
               diversity of resources and habitats found throughout         to determine the effects of consumptive and
               the Sanctuary. The intent is to meet these objectives        nonconsumptive activities in disturbed areas. Based
               by limiting consumptive activities, while continuing to      on the results of this activity, the five-year update of
               allow activities that are compatible with resource           the Management Plan will consider expanding,
               protection. This will provide the opportunity for these      modifying, or eliminating these zones.

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               Action Plans: Research and Monitoring
                Existing Program Implementation. Some consump-                                     Strategy Z.3:
               t!lve activities are currently limited in Key Largo and
               Looe Key National Marine Sanctuaries, and these                         Sanctuary Preservation Areas
               sites will be used to establish controls for ecological
               reserves.
                                                                               These zones will focus on the protection of shallow,
               sImplementation. NOAA will be the lead agency                   heavily used reefs where conflicts occur between
               responsible for implementing this activity. The FIDEP           user groups, and where concentrated visitor activity
               and EPA will provide primary support.                           leads to resource degradation. They are designed to
                                                                               enhance the reproductive capabilities of renewable
               wSchedule. This activity will have a medium level of            resources, protect areas that are critical for sustain-
               action in year 1. It will require 36+ months to com-            ing and protecting important marine species, and
               plete.                                                          reduce user conflicts in high-use areas. This will be
                                                                               accomplished through a prohibition of consumptive
               Activity 4-Utilize Ecological Reserves as Re-                   activities within these areas. They have been chosen
               search Areas. Ecological Reserves will provide                  based on the status of important habitat, the ability of
               scientists, resource managers and the public with an            a particular area to sustain and protect the habitat,
               opportunity to observe and study a naturally function-          the level of visitor use, and the degree of conflict
               ing ecosystem with minimal human disturbance.                   between consumptive and nonconsumptive users.
               Researchers may be permitted to conduct non-                    The actual size and location of these zones have
               invasive experiments within the reserves to address             been determined by examination of user patterns,
               management issues such as: a) the impacts to                    aerial photography, and ground-truthing of specific
               habitats and their recovery from physical damage, as            habitats.
               well as the effectiveness of restoration actions; b)            (Priority Level High, Medium Level of Action in Year
               distinguishing human impacts from natural variability;          1, 36+ Months to Complete, <50% Funding Available
               c) establishing biologically based standards for the            for Full Implementation)
               sustainable use of the Sanctuary; and d) understand-
               ing key ecological processes in order to develop                Activity 1-Develop Baseline Data. Before monitor-
               criteria for recognizing ecological change. Based on            ing begins, a baseline survey of existing resources in
               the results of this activity, the five-year update of the       each SPA must be conducted. The surveys will
               Management Plan will consider expanding, modify-                characterize the status of important marine species
               ing, or eliminating these zones.                                and their habitat.
               m Existing Program Implementation. Some consumP_                mImplementation. NOAA will be the lead agency
               tive activities are currently limited in Key Largo and          responsible for implementing this activity. The NMFS
               Looe Key National Marine Sanctuaries.                           and FIDEP will provide support in implementing this
               m Implementation. NOAA will be the lead agency                  activity.
               responsible for implementing this activity. The FIDEP
               and EPA will provide primary support.                           mSchedule. This activity will have a high level of
                                                                               action in year 1. It will require 24 months to complete.
               a Schedule. This activity will have a medium level of
               action in year 1. It will require 36+ months to com-            Activity 2-Monitor SPAs. Research and monitoring
               plete.                                                          activities will be conducted in these areas to provide
                                                                               important information for comparing the effects of
               The process to prioritize and implement zone                    natural processes and consumptive activities on
               marking is discussed in the Zoning Action Plan.                 species and habitats. These ecological monitoring
               The regulations for Sanctuary Preservation Areas                studies will determine if the area's diversity and
               are included in the Regulatory Action Plan.                     productivity are being adequately protected.

                                                                               mImplementation. NOAA will be the lead agency
                                                                               responsible for implementing this activity. The FIDEP
                                                                               and EPA will provide primary support.

                                                                               oSchedule. This activity will have a medium level of
                                                                               action in year 1. It will require 36+ months to com-
                                                                               plete.

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                                                                                                    Action Plans: Research and Monitoring

                 Activity 3-Utifize SPAs as Controls. SPAs will be                 fields. These areas will minimize impacts on sensi-
                 used as controls to determine the effects of con-                 tive habitats and reduce user conflicts. Special
                 sumptive and nonconsumptive activities in disturbed               management programs (e.g., monitoring, research,
                 areas.                                                            Special-use Permits and restoration) can be con-
                                                                                   ducted without impediment in these areas. They can
                 mExisting Program Implementation. Some consump-                   be used to set aside areas for specific uses, such as
                 tive activities are currently limited in the Key Largo            long-term research and monitoring, and/or minimizing
                 and Looe Key National Marine Sanctuaries.                         the adverse environmental effects of high-impact
                                                                                   activities. (Priority Level Medium, Low Level of Action
                 sImplementation. NOAA will be the lead agency                     in Year 1, 12+ Months to Complete, <50% Funding
                 responsible for implementing this activity. The FIDEP             Available for Full Implementation)
                 and EPA will provide primary support.
                                                                                   Activity 1-Develop Baseline Data. Before monitor-
                 mSchedule. This activity will have a medium level of              ing begins, a baseline survey of existing resources in
                 action in year 1. It will require 36+ months to com-              each Special-use Area (SUA) must be conducted.
                 plete.                                                            The surveys will characterize the status of important
                                                                                   marine species and their habitat.
                 Activity 4-Utilize SPA's as Research Areas.
                 Researchers may be permitted to conduct non-                      sImplementation, NOAA will be the lead agency
                 invasive experiments within the SPA's to address                  responsible for implementing this activity. The NMFS
                 management issues such as: a) the impacts to                      and FIDEP will provide support in implementing this
                 habitats and their recovery from physical damage, as              activity.
                 well as the effectiveness of restoration actions; b)
                 distinguishing human impacts from natural variability;            mSchedule. This activity will have a high level of
                 c) establishing biological ly-based standards for the             action in year 1. It will require 24 months to complete.
                 sustainable use of the Sanctuary, and d) understand-
                 ing key ecological processes in order to develop                  Activity 2-Monitor SUAs. Research and monitoring
                 criteria for recognizing ecological change. Based on              activities will be conducted in these areas to provide
                 the results of this activity, the five-year update of the         important information for comparing the effects of
                 Management Plan will consider expanding, modify-                  natural processes and consumptive activities on
                 ing, or eliminating these zones.                                  species and habitats. These ecological monitoring
                                                                                   studies will determine if the area's diversity and
                 mExisting Program Implementation. Research has                    productivity are being adequately protected.
                 been conducted in many of the SPAs, such as Looe
                 Key and Conch Reef.                                               wImplementation, NOAA will be the lead agency
                                                                                   responsible for implementing this activity. The FDEP
                 simplementation. NOAA will be the lead agency                     and EPA will provide primary support.
                 responsible for implementing this activity. The FDEP
                 and academic institutions will provide primary sup-               mSchedule. This activity will have a medium level of
                 port.                                                             action in year 1. It will require 36+ months to com-
                                                                                   plete.
                 oSchedule. This activity will have a medium level of
                 action in year 1. It will require 36+ months to com-              Activity 3-Utilize SUAs as Controls. Some SUAs
                 plete.                                                            will be used as controls to determine the effects of
                                                                                   consumptive and nonconsumptive activities in
                                                                                   disturbed areas.
                                       Strategy Z.5:                               wExisting Program Implementation. Some consump-
                                   Special-Use Areas                               tive activities are currently limited in the Key Largo
                                                                                   and Looe Key National Marine Sanctuaries.
                 This strategy establishes zones to set aside areas for            mImplementation, NOAA will be the lead agency
                 scientific research and educational purposes,                     responsible for implementing this activity. The FIDEP
                 restoration, monitoring, or to establish areas that               and EPA will provide primary support.
                 confine or restrict activities such as personal water-
                 craft operations and establish live-aboard mooring

                                                                                                                                             157








                    Action Plans: Research and Monitoring
                    Schedule. This activity will have a medium level of                                                  Strategy F.3:
                    action in year 1. It will require 36+ months to com-
                    plete.                                                                                                   Stocking

                    Activity 4-Utilize SUA's as Research Areas.
                    Researchers may be permitted to conduct non-                                Any ongoing or proposed stocking activities within
                    invasive experiments within the SUAs to address                             the Sanctuary must be permitted. Develop a permit-
                    management issues such as: a) the impacts to                                ting policy for stocking Sanctuary waters that ad-
                    habitats and their recovery from physical damage; as                        dresses genetic and other biological concerns for
                    well as the effectiveness of restoration actions; b)                        both fauna and flora, including seagrass. Assess
                    distinguishing human impacts from natural variability,                      existing research on the impacts of stocking on the
                    c) establishing biologically-based standards for the                        genetic integrity of native stocks. Conduct research
                    sustainable use of the Sanctuary; and d) understand-                       on natural stock recovery and its role in maintaining
                    ing key ecological processes in order to develop                            genetic integrity. Conduct a reevaluation of stocking
                    criteria for recognizing ecological change. Based on                        options.
                    the results of this activity, the five-year update of the                   (Priority Level Low, No Action in Year 1, 36 Months
                    Management Plan will consider expanding, modify-                            to Complete, No Funding Available for Full Imple-
                    ing, or eliminating these zones.                                            mentation)
                    The process to prioritize and implement zone                                Activity 1-Assess Impacts from Fish Stocking.
                    marking is discussed in the Zoning Action Plan.                             The research will build on native stock integrity
                    The regulations for Special-Use Areas are in-                               research conducted elsewhere to determine the
                    cluded in the Regulatory Action Plan.                                       effects of fish stocking on the genetic integrity of
                                                                                                native species within the Sanctuary. The extent to
                                                                                                which changes in the genetic integrity of native
                                 
                                                                                                stocks have occurred or are likely to occur, and the
                    Fisheries impacts                                                           effects of these changes on abundance, distribution,
                                 
                                                                                          and life histories, will be determined. Research
                    Fisheries impacts strategies include seven fisheries-                       results will be used to develop and implement
                    related strategies that will provide for basic research                     regulations governing stocking activities.
                    on fisheries management techniques, aquaculture,
                    the impacts of artificial reefs, and harvesting meth-                       Existing Program Implementation. This activity is an
                    ods.                                                                        existing research priority of the FDEP.

                                                                                                implementation. The FDEP and NMFS will be
                    'Fisheries Impacts Strategies                                               primarily responsible for implementing this activity.
                                                                
                                                                                            The Florida Marine Fisheries Commission (FMFC)
                    F.3: stocking"
                                                                                                will develop regulations regarding stocking. This
                    Assess impacts from fish stocking
                                                                                             activity is necessary before stocking activities can be
                                                                                            considered to restore depleted fisheries. Funding
                                                                                
                F.4: Aquactulutre Alternatives
                    -Assess, develop, and promote aquaculuture alternatives                  changes will not affect this activity.
                                                                                              Schedule. This activity will have no action in year 1.
                                                                                             It will require 36 months to complete.
               F.7  Artificial Reefs 
                    Assess Impacts from artificial reef development                                               Strategy F.4                                                                           Strategy F.4:
                      
 		   F.10 Bycatch
                     Assess impacts form harvesting methods                                                   Aquaculture Alternatives
                    F.11:   Gear/Method Impacts
                    conduct research on low-Impact fishing gear and
                      methods,
                                                                                                Assess, develop, and promote aquaculture alterna
                    FAA:    Spearfishing             ,
                                                                                                tives for all commercially harvested marine species.
                      Assess impacts on fish populations
                      Determine incidental habitat damage
                                                                                                      Support efforts to eliminate the harvest and landing
                                                                                                       of wild live rock.
                    F.15:     ponge,Harvest                                                  (Priority Level Low, No Action in Year 1, 36+ Months
                      Assess impacts of sponge harvest methods                               to Complete, <50% Funding Available for Full Imple-
                                                   
                                                                                             mentation)

                    158
 






                                                                                                  Action Plans: Research and Monitoring

                 Activity 1-Assess, Develop, and Promote Aquac-                  developed by the FMFC. Monroe County and the
                 ulture Alternatives. This activity will reduce the              Sea Grant Program are also cooperating in this
                 fishing pressures on commercially harvested marine              activity.
                 life and satisfy the commercial demand for these
                 species. This is a long-term effort designed to identify        Changes in Sanctuary funding will not affect this
                 and develop aquaculture techniques and promote the              activity. It will be performed by the cooperating
                 development of environmentally sound aquaculture                agencies, the FMFC, and the Sanctuary staff.
                 operations.
                                                                                 oSchedule. The activity will have no action in year 1.
                 mExisting Program Implementation. This is an existing           It will require 48+ months to complete.
                 priority of the Sea Grant Program, Florida Depart-
                 ment of Agriculture and Consumer Services                       This strategy is also included in the Volunteer
                 (FDACS), and FDEP.                                              and Regulatoty action plans.

                 mImplementation. The Sea Grant Program, the
                 Florida Department of Agriculture and Consumer                                      Strategy F. 10:
                 Services (FDACS), and FDEP will be primarily                                             Bycatch
                 responsible for implementing this activity as part of
                 their current research programs. FDEP will assist in
                 the implementation of this activity.                            Conduct an assessment of harvesting methods used
                 m Schedule. This activity will have no action in year 1.        that generate bycatch. Develop and implement
                 It will require 36+ months to complete.                         regulations to reduce the effects of current fishing
                                                                                 practices on nontargeted species.
                                                                                 (Priority Level Low, No Action in Year 1, 48+ Months
                                      Strategy F.7:                              to Complete, <25% Funding Available for Full Imple-
                                    Artificial Reefs                             mentation)

                                                                                 Activity 1-Assess Impacts from Harvesting
                 Conduct research on the impacts of artificial reefs on          Methods. The impacts of harvesting methods on
                 fish and invertebrate populations for long-term                 species composition and abundance will be deter-
                 management including location, size, materials, etc.            mined, as will the indirect impacts on other species
                 Monitor and evaluate habitat modification caused by             and the environment. The extent of the problem will
                 the installation of marine structures. Assess and               be assessed, and research will be conducted on the
                 develop regulations for artificial reef construction and        impacts of existing fishing methods and gear. Based
                 evaluate habitat suitability for artificial reefs.              on research results, regulations will be developed
                 (Priority Level Low, No Action in Year 1, 48+ Months            and implemented to reduce the bycatch of incidental
                 to Complete, <50% Funding Available for Full Imple-             species and undersized targeted species.
                 mentation)                                                      mExisting Program Implementation. The FMFC, the
                 Activity 1-Assess Impacts from Artificial Reef                  SAFMC, and the GMFMC are actively involved in this
                 Development. The effects of artificial reefs on fish            activity.
                 abundance, community composition, and Sanctuary                 nImplementation. The three fisheries organizations
                 resources will be assessed. Appropriate artificial reef         currently involved in this activity will share the
                 locations, based on habitat suitability will be deter-          primary responsibility for implementation. Sanctuary
                 mined. Volunteers will provide assistance.                      staff, the NMFS, FDEP, and Sea Grant Program will
                 mExisting Program Implementation. The FDEP is                   also cooperate in implementation efforts. Sanctuary
                 currently reviewing the impacts and benefits of                 staff will actively assist in research on fisheries
                 artificial reefs, and is developing design criteria.            practices affecting the area's resources. The level of
                                                                                 participation will depend on the availability of addi-
                 sImplementation. The FDEP will be primarily respon-             tional field staff.
                 sible for implementing this activity as part of their           mSchedule. The activity will have no action in year 1.
                 current artificial reef assessment program. Any                 It will require 48+ months to compete.
                 regulations derived from this information will be


                                                                                                                                             159







             Action Plans: Research and Monitoring

                                Strategy F. 11:,                                            Strategy F. 14:
                           Gear/Method Impacts                                               Spearfishing


             Conduct research on alternative fishing gear and            Conduct an assessment of spearfishing practices
             methods that minimize impacts on habitat. Implement         and impacts to develop and implement regulations in
             a voluntary program to encourage the use of low-            high-priority areas.
             impact gear and methods. Implement regulations to           (Priority Level Low, No Action in Year 1, 36 Months
             require the use of low-impact gear and methods in           to Complete, 0% Funding Available for Full Imple-
             priority areas. Characterize harvesting stresses            mentation)
             affecting outer and inshore reefs and hardbottom
             ecosystems.                                                 Activity 1-Assess Impacts on Fish Populations.
             (Priority Level Low, No Action in Year 1, 48+ Months        Conduct research to determine the effects of
             to Complete, <25% Funding Available for Full Imple-         spearfishing on species population and abundance.
             mentation)
                                                                         mImplementation. The FDEP will be the lead agency
             Activity 1-Conduct Research on Low-impact                   responsible for implementation, with primary support
             Fishing Gear and Methods. This activity will, facili-       from the NMFS, the SAFMC, GMFMC, and the
             tate research to develop gear designs and types that        FMFC.
             minimize impacts to corals, hardbottom, seagrasses,
             and other habitat and species. Biodegradable fishing        mSchedule. The strategy will have no action in year 1.
             line, traps, and buoy lines are examples of gear types      It will require 36 months to complete.
             that would be researched. Modified trap designs
             would also be considered. Fishing methods, including        Activity 2-Determine Incidental Habitat Damage.
             resource handling and gear placement, would be              Conduct research to determine the effects of
             researched to develop methods and gear that                 spearfishing on the habitat due to incidental contact.
             minimize impacts to resources while maintaining       .
             efficiency. Volunteers will provide assistance.             mimplementation. The FDEP will be the lead agency
                                                                         responsible for implementation, with primary support
             mExisting Program Implementation. The FMFC,                 from the NMFS, the SAFMC, GMFMC, and the
             SAFMC, and GMFMC are actively involved in this              FMFC.
             activity.
                                                                         oSchedule. The strategy will have no action in year 1.
             mImplementation. The three fisheries organizations          It will require 24 months to complete.
             will continue to have the primary responsibility for this
             high-priority activity. Sanctuary staff, the NMFS,          This strategy is also included in the Regulatory
             FDEP, and the Sea Grant Program are also cooper-            Action Plan. (Spearlishing will be prohibited in
             ating in this activity.                                     Ecological Reserves and Sanctuary Preservation
                                                                         Areas.)
             Changes in Sanctuary funding will not affect this
             activity. It will be performed by the cooperating                              Strategy F.15:
             agencies, and should be reflected in the examination
             of fisheries monitoring data.                                                Sponge Harvest
             Nschedule. The activity will have no action in year 1.      Develop and. conduct a research program to assess
             It will require 48+ months to complete.                     the impacts of current sponge harvest methods on
             This strategy is also included in the Volunteer             the resource and the habitats in which they occur.
             Action Plan.                                                Develop and implement regulations throughout the
                                                                         Sanctuary.
                                                                         (Priority Level Medium, Medium Level of Action in
                                                                         Year 1, 36 Months to Complete, <75% Funding
                                                                         Available for Full Implementation)




             160







                                                                                                     Action Plans: Research and Monitoring
                  Activity 1-Assess Impacts of Sponge Harvest                                             Strategy B.2:
                  Methods. This strategy includes research and
                  assessment activities to determine which methods                                   Habitat Restoration
                  have a low adverse impact on both species and
                  habitat, and to identify areas that exhibit low abun-
                  dance, low recovery rates, and habitat damage. The                Conduct a program of restoration research at repre-
                  activity supports the development and implementa-                 sentative habitat sites within the Sanctuary; develop
                  tion of regulations governing sponge harvest.                     a restoration plan and implement restoration in
                                                                                    severely impacted areas. Monitor recovery pro-
                  mImplementation. The FDEP will be primarily respon-               cesses. (Priority Level Medium, Medium Level of
                  sible for implementing this activity. The FMFC,                   Action in Year 1, 24+ Months to Complete, 50-74%
                  SAFMC, and GMFMC will also participate.                           Funding Available for Full Implementation)

                  Changes in Sanctuary funding will not affect the                  Activity 1-Develop and Implement a Stocking
                  activity. Funding will be performed by the cooperating            Policy Related to Restoration Research. Develop
                  agencies and fisheries councils.                                  and implement a policy on stocking related to habitat
                                                                                    restoration, Organisms need to be local genetic
                  oSchedule. The activity will have a medium level of               stock.
                  action in year 1. It will require 36 months to complete.
                                                                                    mExisting Program Implementation. FDEP has a draft
                                                                                    stocking policy for the Florida Keys that will be used
                   'Special Studies                                                 as a starting point.
                                                                                    mimplementation. Sanctuary staff and the FDEP will
                  Environmental assessment strategies will result in                be jointly responsible for implementing this activity.
                  the assessment of environmental conditions within
                  the Sanctuary. One of these strategies, Habitat                     Schedule. The activity will have a medium level of
                  Restoration (13.2), is high-priority and will be imple-           action in year 1. It will require 12 months to complete.
                  mented in the short-term to provide research into
                  restoration techniques.                                           Activity 2 - Conduct a Program of Restoration
                                                                                    Research. Enhancing mangrove and seagrass
                         clal Studies Strategies                                    habitats and coral transplanting are examples of
                                                                                    restoration activities, but other techniques will be
                     B.2: Habitat Restoration                                       developed. A restoration plan will be implemented in
                                                                                    severely impacted areas. Recovery processes (e.g.,
                     ï¿½ Develop stocking policy related to'
                       habitat restoration                                          recruitment and survivability) will be monitored
                                                                                    following stress events (e.g., vessel groundings), and
                     ï¿½ Conduct a program of restoration Ird,
                                                                                    an extensive demonstration project will be developed
                     RA: Carrying Capacity
                                                                                    for mitigation and restoration techniques following
                                                                                    physical disturbances or chronic nutrient inputs.
                       Assess impacts of recreati6h,Acti
                                                              vities
                       and estimate user carrying, cap4citles                       Emergency or long-term restoration zones may be
                                                                                    established to allow sufficient resource recovery.
                                                                                    Volunteers will provide assistance.
                           Wattir'Quality @Standairds,
                     (This strategyis descdbed in detail in the Wat      ality
                     Action Plan)                                                   nExisting Program Implementation. Limited coral
                                                                                    restoration efforts and subsequent monitoring
                     W.18: Pesticide Research                                       programs are underway as cooperative efforts
                     (This strategy is desciribed in detail] lhtheWlatlorq@ft       among the Sanctuary staff, the FDEP, and the NIPS.
                                                                                    These efforts are funded by research grants and
                     Action Plan)
                                                                                    damage settlements. A response team has been
                     W.24: Florida Bay Inf luence'                                  established to assess damage quickly.
                     (This strategy is described In detail i
                                                        rthe watat"ity"',
                     Action Plan)
                                                                                    mImplementation. Sanctuary staff and the FDEP will
                                                                                    be jointly responsible for implementing this high-
                                                                                    priority strategy. Additional assistance Will be sought


                                                                                                                                                   161







              Action Plans: Research and Monitoring

              from Monroe County, the NMFS, U.S. Army Corp of                 fishing, diving, etc. will be included. The research-
              Engineers (USACE), U.S. Fish and Wildlife Service               only areas at Eastern Sambos and Tennessee Reef
              (FWS), the Florida Game and Fresh Water Fish                    will serve as the primary sites for conducting carrying
              Commission (FGFWFC), and the research commu-                    capacity research, specifically on water quality
              nity.                                                           impacts versus user impacts. These research-only
                I                                                             areas can be compared to other heavily used reefs
              Court judgements and settlements from groundings                such as Western Sambos and Looe Key. It is
              will fund restoration efforts and subsequent monitor-           anticipated that once the research is completed,
              ing programs. A contingency fund would be available             carrying-capacity limits will be established by institut-
              to initiate restoration efforts, since settlement funds         ing regulations that require the use of buoys in high-
              are not likely to be made immediately available.                use areas and for highly sensitive habitats throughout
                                                                              the Sanctuary.
              Since restoration activities are largely funded by
              damage settlements, they would not be affected by               mimplementation. Sanctuary staff will have the
              changing budgets (court judgements or settlement                primary responsibility for implementing this activity in
              funds will not be diverted from their intended pur-             the Sanctuary, with the assistance of the FDEP,
              pose). Follow-up monitoring of restoration efforts will         FWS, and numerous other agencies. The USACE will
              evaluate the program's success.                                 be conducting a complementary carrying capacity
                                                                              study for Monroe County. Overuse of Sanctuary
              oSchedule. The activity will have a medium level of             resources is one of the major management concerns,
              action in year 1. It will require 24+ months to com-            and a policy on acceptable use levels must be
              plete.                                                          established based on the research conducted. This
                                                                              activity will require a major commitment of resources,
              This strategy is also included in the Volunteer                 and could be impacted by budget reductions.
              Action Plan.
                                                                              mSchedule. This activity will have no action in year 1.
                                                                              it will require 48+ months to complete.
                                   Strategy R.5:
                               Carrying Capacity                                                  Strategy W.5:
                                                                                          Water Quality Standards
              Conduct a program to study and implement
              carrying-capacity limits for recreational activities by:        Develop and implement water quality standards,
              1) assessing the effects of recreational and boating            including biocriteria, appropriate to Sanctuary re-
              activities on Sanctuary resources; 2) establishing              sources.
              recreational user carrying capacities that minimize             (Priority Level Low, No Action in Year 1, 60+ Months
              wildlife disturbances and other adverse impacts on              to Complete, <50% Funding Available for Full Imple-
              natural resources; and 3) enforcing carrying-capacity           mentation)
              limits in high-use areas and for highly sensitive
              habitats throughout the Sanctuary.                              This strategy is described in detail in the Water
              (Priority Level Medium. This strategy will have a low           Ouality Action Plan.
              level of action in year 1, 48+ Months to Complete,
              <50% Funding Available for Full Implementation)                                    Strategy W. 18:
              Activity 1-Assess Impacts of Recreational Activi-                               Pesticide Research
              ties and Estimate User Carfying Capacities. This
              activity will assess the impacts of recreation activities
              on Sanctuary resources to provide a basis for                   Develop and implement a research program to
              anticipating problems associated with specific                  assess and investigate the impacts of, and alterna-
              activities and the development of management                    tives to, current pesticide practices. Modify the
              actions to eliminate/reduce impacts. Impacts such as            Mosquito Control Program as necessary on the basis
              wildlife disturbance (especially of commercially                of research findings.
              important and threatened/endangered species),                   (Priority Level Low, No Action in Year 1, 36+ Months
              changes in ecosystem balance, habitat degradation,              to Complete, <50% Funding Available for Full Imple-
              and those associated with activities such as boating,           mentation)

              162







                                                                                          Action Plans: Research and Monitoring

                This strategy is described in detail in the Water
                Quality Action Plan.


                                  Strategy W.24:
                             Florida Bay Influence



                Conduct research to understand the effect of water
                transport from Florida Bay on water quality in the
                Sanctuary.
                (Priority Level High, High Level of Action in Year 1,
                48 Months to Complete, <50% Funding Available for
                Full Implementation)

                This strategy is described in detail in the Water
                Quality Action Plan.



                 Pr

                This strategy provides research allowing resource
                managers to assess the potential impact of various
                management strategies. The Predictive Models
                strategy, for example, establishes hydrodynamic
                water quality models and coupled, landscape-level
                ecological models that will be used to predict and
                evaluate the outcome of in-place and proposed water
                quality management strategies.




                           Pred!6644 Mo&'l
                      lt'4's ratoï¿½y !6,,,,desatlbdi@
                    u i   Ac@  n




                                  Strategy W.21:
                                Predictive Models



                Develop phased hydrodynamic/water quality models
                and coupled, landscape-level ecological models to
                predict and evaluate the outcome of in-place and
                proposed water quality management strategies.
                (Priority Level Medium, High Level of Action in Year
                1, 12+ Months to Complete, <50% Funding Available
                for Full Implementation)

                This strategy is described in detail in the Water
                Quality Action Plan.


                                                                                                                                163







              Action Plans: Research and Monitoring

                                                                             coordinating and guiding research activities (W.32)
                Implementation                                               was completed prior to year 1. All other strategies will
                                                                             be implemented after year 1 (Table 19). Several
              This section explains how the strategies in the                strategies, such as WQ Monitoring and Ecological
              Research and Monitoring Action Plan will be                    Monitoring, include continuous activities and are
              implemented. The institutions responsible for                  expected to continue indefinitely.
              each activity, and those agencies that will pro-
              vide some level of assistance, are identified In               Cost The estimated cost of implementing each
              addition, the planned level of activity in year 1,             strategy is given in Table 19. Two cost figures are
              months to complete, funding availability, cost                 shown for each strategy: capital; and operations and
              estimates, staff requirements, and the geographic              maintenance. The capital cost figure represents the
              focus for each strategy1activity are provided The              amount of funding required to enable the purchase of
              process used to evaluate the effectiveness of the              equipment (boats, computers, etc.), construction of
              monitoring program as it evolves over time is                  buildings and related facilities, computer equipment,
              described                                                      land acquisition and other start-up costs. Operations
                                                                             and maintenance includes salaries, travel, rent,
              Responsible Institutions. The Research and                     utilities, upkeep, supplies (e.g., fuel, paper, etc.), and
              Monitoring Plan will be implemented by a coordinated           other administrative costs.
              framework of Federal, State, and local agencies in
              cooperation with academic and research institutions.           Geographic Focus. All research and monitoring
              In most cases, academic institutions should take the           strategies apply to the entire Sanctuary. However,
              lead in implementing strategies and/or activities that         some of the strategies may include components that
              deal with predictive modeling or research. NOAA and            are appl@icable to specific areas in the Keys.
              the FIDEP, however, have the lead responsibility for
              overall program implementation. The EPA and FIDEP              Personnel. The staff required to implement the
              will provide leadership in implementing many re-               Research and Monitoring Program will be a mix of
              search and monitoring strategies. Table 18 lists the           personnel from various agencies and organizations
              responsible institutions and their level of responsibil-       identified in Table 18. In addition, scientists from
              ity in each strategy/activity.                                 various universities, research institutions, and
                                                                             environmental firms may be involved on a long- or
              Prioritization of Implementation. The Research                 short-term basis. For example, personnel from the
              and Monitoring Action Plan includes the 23 strategies          EPA or FIDEP will be responsible for implementing
              in Alternative III with a research and /or monitoring          many of the strategies. However, for those strategies,
              component. The highest-ranking strategies (based on            Sanctuary personnel will provide assistance in
              overall priority) are Monitoring, Replenishment                directing the component activities. The remaining
              Reserves, and Sanctuary Preservation Areas. Each               strategies will be directed by NOAA/FDEP personnel
              of these strategies includes major research and                dedicated solely to research and monitoring activi-
              monitoring efforts and is critical to the ultimate             ties.
              success of the Sanctuary. In addition, 12 strategies
              within the Research and Monitoring Program are                 Sanctuary Employees. Research and monitoring
              either high or medium priority level. Strategies in            activities will require three full-time NOAA employ-
              these priority levels are expected to be initiated             ees; a coordinator ($40,000 per year), and two
              within year 1 of the adoption of the final plan, and           assistants ($30,000 per year). The staff will be
              are generally designed to develop information to               distributed among the three offices in Key Largo,
              evaluate water quality and ecosystem health. How-              Marathon, and Key West. Table 19 lists the total
              ever, they will also result in information that can be         number of personnel likely to be involved in imple-
              used in zoning, boating, and fisheries assessments.            menting each strategy.

              Schedule. Twelve strategies in the plan will be                Volunteers. Volunteers will provide assistance in
              implemented in year 1, focusing on ecological and              implementing several research and monitoring
              water quality monitoring; developing a regional                strategies. Volunteer assistance has been targeted
              database and data management system; establishing              for the Habitat Restoration (B.2), Artificial Reefs
              a research and monitoring component of the                     (F.7), Gear/Method Impacts (F.1 1), WO Monitoring
              Sanctuary's management zones and assessing the                 (W.20), and Ecological Monitoring (W.33) strategies.
              influence of Florida Bay on Sanctuary resources. A             A complete description of volunteer assignments for
              strategy establishing an advisory committee for                each research and monitoring strategy is included in

              164







                                                                                      Action Plans: Research and Monitoring

               the Volunteer Action Plan. A Sanctuary volunteer
               coordinator will be responsible for directing all
               volunteer activities associated with research and
               monitoring.

               Contingency Planning for Changing Budget In
               the event of reduced or insufficient funding, the
               Program's focus will be modified to allow the imple-
               mentation of the most important research and
               monitoring strategies. Only priority strategies (or a
               subset of the priority strategies) will be implemented
               in this case. Although the overall intent of the Re-
               search and Monitoring Program will not be achieved,
               this approach will permit research and monitoring
               activities that focus on critical Sanctuary issues. In
               addition, the scale and scope of individual strategies
               could be reduced, thereby preserving additional
               management strategies, For example, the number of
               monitoring stations included in strategy W.33 (Eco-
               logical Monitoring) could be reduced.

               Evaluating Program Effectiveness. NOAA will
               conduct a periodic evaluation (approximately every
               three years) to determine the effectiveness of re-
               search and monitoring activities. The evaluation will
               identify the strategies/activities that are ineffective,
               and those that have not been,adequately addressed.
               New strategies and activities within existing strate-
               gies will be established as the Program evolves. The
               objective is to optimize staff and resources in con-
               ducting research and monitoring to protect the
               ecosystem of the Sanctuary.


























                                                                                                                          165






                 Action Plans: Research and Monitoring
                 Table 18. AgencieslOrganizations Identified for Implementing StrategieslActivities


                                                                                            Agencies/Organizations


                                                                C                                                             Z*     ZF
                                                                                                           co
                      Strategy/Activity                                              COC                                     g        J i!UF go
                      RESEARCH MANAGEMENT
                         1: Natibirtid h arine
                                                                   0" Ark
                      'SanctuarV-, Permiti
                      Establish PqrT@iiqqfrograrn           -0,        00                      0
                           N    4ri 40                                              A'           @'bZiity -Ack W)66 n- ...
                                                                                          0@
                                                                                      eero       r
                      waiviis, !Q@"VFARW                                            RAW@6'W@i6i& tykii@n
                      IL*&Ad                                                                                                     I     J_ -1
                      MONITORING
                                 eo
                                                   ":7-,
                      Evaluate and Modify Existing              0         E)            0   0 0              G                    0
                      Census Programs
                      Initiate a Fishery Pre-recruitment
                      Monitoring Effort                                                        0             0                    0
                                                                                         to Water QuafityAction Plan
                                                                                                                  4,
                                                                                                              ..... .. ....
                      'A0   C@ill
                      Hire a Research and. Monitoring
                      Coordinator
                      Establish an Ecological Information   0                                  0                              0
                      System

                      Conduct Status and Trends
                      Assessment                            0      0                           0                              0          0

                      Establish a Fisheries Ecology
                      Monitoring and Research Component            0                           0
                      Establish a Data
                      Management Protocol                                                      0                                         0
                      Develop an Index on Sanctuary
                      Health                                0 00                               0                               0      0   0
                      Establish a Volunteer Monitoring
                      Program                               0                                                                                0
                                                                                                  ":4 Tt,
                      L
                      Develop Baseline Data                     0                              0
                      Monitor Reserves                             0                           0
                      Utilize Reserves as Controls          9      0                           0
                      Utilize Reserves as Research Areas    0      0                           0
                      LZ.S, S ct
                        k_#n
                      Develop Baseline Data                 0 0                                0
                      Monitor SPAs                          0      0                           0

                      Utilize SPAs as Controls              0      0                           0
                      Utilize SPAs as Research Areas        0     10                           0                  1              1
                        's     Ial:user,
                      Develop Baseline Data                     0                              0                              0
                      Monitor SUAs                          0      0                           0                              0
                      Utilize SUAs as Controls              0      0                           0                              0

                      Utilize SUAs as Research Areas        0      0                           0                              0
                                                                                                        1-le'C", /aij















                      9 Lead 0 Primary Role      0 Assist






                 166







                                                                                                                                       Action Plans: Research and Monitoring

                      Table 18. AgencieslOrganizations Identified for Implementing StrategieslActivities (Cont.)


                                                                                                                        Agencies/Organizations




                                                                                              co
                                                                                                           0 @cr                                                                          0
                             Strategy/Activity                                                                                                                                     IS
                             FISHERIES IMPACTS
                             F.3 Stocking
                             Assess Impacts from Fish Stocking                      01            0      1        10    0 0          1        0                           0   0
                             FA Aquaculture Alternatives
                             Assess, Develop, and Promote
                             Aquaculture Techniques                                 0                              0    0   0              0  0 01                        0
                             F.7 Artificial Reefs
                             Assess Impacts from Artificial Reefs                   0                              0    0   0                 0             0             0
                             _F.10 Bycatch
                             Assess Impacts from Harvesting Methods            0    0                              0    0   0                                             0
                             F.11 Gear/Mothod Impacts
                             Conduct Research on Low-impact
                             Fishing Gear and Methods                               0                              0    0   0                 0                      0 0
                             F.14 Spearfishing
                             Assess Impacts on Fish Populations                     0                              0    0   0                 0
                             Determine Incidental Habitat Damage                    0                              0    0   0
                             F.15-Sponge Harvest
                             Assess Impacts of Sponge Harvest                                     0                0    0   0                 0                           0
                             Methods                                                         0     10
                             SPECIAL STUDIES
                             B.2 Habitat Restoration
                             Develop Stocking Policy                           0 0
                             Conduct a Program of Restoration
                             Research                                          0 0           0                  0                 0@                        0        0
                             RX Carrying Capacity
                             Assess Impacts to Recreation
                             Activities and Estimate User                      0 0           0 0                0           0        0                      0    0
                             Carrying Capacities
                             W.5 Water Quality Standards                                                           Refer to Water,quaqty Action P.1en
                             WAS Pesticide Research                                                                Referto Water Qua ACtionflan
                                                                                                                            I        , - Ytty 4.
                             W.24 Florida Say Influence                                                           [Reterto- Wa-te'r-Qua-lib -       Plan
                                                                                                                                          yAction
                                                                                                                            I                 'I , ", @f@                               d
                             PREDICITIVE STRATEGIES
                             W.21 Predistive Models                                                      I        kewt@ Waiel"*"                               I        I - -     I         J
                             0 Lead        0 Primary Role 0 Assist
                           Abbreviations: NOAA, National Oceanic and Atmospheric Administration; NMFS, National Marine Fisheries Service; EPA, U.S. Environmen-
                           tal Protection Agency; FWS, U.S. Fish and Wildlife Service; NPS, National Park Service; USCG, U.S. Coast Guard; USGS, U.S. Geological
                           Survey; USACE, U.S. Army Corp of Engineers; SAFMC, South Atlantic Fisheries Management Council; GMFMC, Gulf of Mexico Fisheries
                           Management Council; FDEP, Florida Department of Environmental Protection; FGFWFC, Florida Game and Fresh Water Fish Commission;
                           FDCA, Florida Department of Consumer Affairs; FDACS, Florida Department of Agriculture and Consumer Services; FMFC, Florida Marine
                           Fisheries Commission; FDOC, Florida Department of Commerce; SFWMD, South Florida Water Management District; NURC, National
                           Underwater Research Center; TAC, Technical Advisory Council; NGO., Nongovernment Organizations.















                                                                                                                                                                                                167






                      Action Plans: Research and Monitoring

                      Table 19. Requirements for Implementation


                                                                                                                     Implementation            Cost to Complete



                                                                                                                                                                       4Z
                                                                                            cd                       -0                        4
                                                                                                                     co                        iR
                                                                                                                             .!1Z
                                                                                          SO                         0
                                       Strategy/Activity
                                       RESEARCH MANAGEMENT

                                                                                                  High               <12                0799         10-99       sw,       2
                                                   .Permits
                                       W11 katl6ha    I Mirin                                                             100%"         1
                                       is"o
                                       !*?V@Rejlonaij@Dat          so                                                Refer to Water Quality Ar
                                                - 6min         1-1 1        ,,                                       7_' f_ @ t__@ AL-
                                       -4t)jesi          ate Research'                                                      terQuafily Action Plan
                                                                                                                     !a Wa
                                                     --coinmi,
                                       ,w                          ttew,                                             eter to,
                                       4iiAevis 'Orly                                                                          rqu
                                       MONITORING
                                       % is        kes Saffj@'jin                      Aeh        "7HI-h'-1 "!Q@          564Ui@!                                            4@
                                                                                                                     -_ " ", - - _      ,
                                       Evaluate and Enhance Existing                   High       High               12   50-74%        NC           10-99       SW
                                       Census Programs
                                       Initiate a Fishery Pre-recruitment
                                       Monitoring Effort                             Medium       Medium             36+  50-74%        000-         100-999     SW
                                                                                                                                        5000
                                       V                                                                             Refer to Water Qualipy Action
                                                                                                                                                     n
                                       .16 Monitoring
                                       W.33 Ecologllcal'an-@'Aesearch,                 High_                                                         1000.                 11-25,
                                       "M                                                         M"14M,    , ,      60+  <50T.         100-999      5M
                                       ANA'*     a -
                                       Hire a Research and Monitoring                Medium       None               5    <50%          NC           10-99       SW
                                       Coordinator
                                       Establish an Ecological Information             High       High               24   50-74%        NC           100-999     SW
                                       system
                                       Conduct Status and Trends                       High       High               24+  <50%          100-999      100-999     SW
                                       Assessment
                                       Establish a Fisheries Ecology                   High       Medium             24+  <50%          100-999      100-999     SW
                                       Monitoring & Research Component
                                       Establish a Data Management                     High       None               12   75-99%        NC           10-99       SW
                                       Protocol
                                       Develop a Periodic Report on                    Low        None               24+  <50%          10-99        10-99       SW
                                       Sanctuary Health
                                       Establish a Volunteer Monitoring                High       High               C    100%          10-99        10-99       SW
                                       Program                                                                                                               I,                  .
                                       Z.2 EcO116" WFR6ierves                          High       Medium.            36+  @606%         1Mï¿½99        sm
                                       Develop Baseline Data                           High       High               24   <50%          100-999      100-999     SW
                                       Monitor Reserves                              Medium Medium                   36+  <50%          10-99        100-999     SW
                                       Utilize Reserves as Controls                    Low        Medium             36+  <50%          10-99        10-99       SW
                                       Utilize Reserves as Research Areas
                                       Z3 Saitdtuarv Preservation Ah6as                 I         "Medium            ','3;'&+-
                                       Develop Baseline Data                           High       High               24   <50%          100-999      100-999     SW
                                       Monitor SPAs                                  Medium       Medium             36+  <50%          10-99        100-999     SW
                                       Utilize SPAs as Controls                        Low        Medium             36+  <50%          10-99        10-99       SW        3-5
                                       Utilize SPAs as Research Areas                             I                                                                              I
                                                                                       High       Medium
                                       Z &SpecllalrUse, Areas
                                       Develop Baseline Data                           High       High               24   <50%          100-999 100-999          SW
                                       Monitor SUAs                                  Medium       Medium             36+  <50%          10-99        100-999     SW
                                       Utilize SUAs as Controls                        Low        Medium             36+  <50%          10-99        10-99       SW

                                       Utilize SUAs as Research Areas


                                       Abbreviations: SW, Sanctuary Wide; UK, Upper Keys; C, Continuous.
                                       + The priority levels for activities should not be compared across strategies-they only represent the relative importance of
                                       activities contained within a strategy.
                                       ++ Strategies with an    for Overall Sanctuary Priority Level are already existing programs and will be completed In Year 1.




                     168







                                                                                                                                                            Action Plans: Research and Monitoring

                         Table 19. Requirements for Implementation (cont.)

                                                                                                                                   Implementation                     Cost to Complete


                                                                                                             X41                                       -0
                                                                                                                                                 aD-0) Q                                       _C
                                                                                                                                                                 Z             -
                                                                                                                                                                 Cal
                                                                                                                                                                             4F
                                           Strategy/Activity
                                           FISHERIES IMPACTS
                                           F.3 Stocking                                              LOW         None              36                       <10          100-999                      1-2
                                           Assess Impacts from Fish Stocking                                     None              36                       <10          100-999          SW
                                           F.4 Aquaculture Alternatives                              LOW         None              36+        <50*/*        <10          -100-999                     1-2@
                                           Assess, Develop, and Promote
                                           Aquaculture Techniques                                                None              36+        <50%          <10          100-999          SW
                                           F.7 Artificial Reefs                                      LOW         None              48+        <60%          10-99            10-99                    1@2
                                           Assess Impacts from Artificial Reefs                                  None              48+        <50%          10-99            10-99        SW
                                           FA 0 Byeatch                                              LOW         None              48+        <25%          <10              10-99                    1-2
                                           Assess Impacts from Harvesting Methods                                None              48+        <25%          <10              10-99        SW
                                           F.111, Gear/Method Impacts                                Low         None              48+        <250%         10-99        100-999
                                           Conduct Research on Low-Impact                                        None              48+        <25%          10-99        100-999          SW
                                           Fishing Gear and Methods
                                           F.14 Spearfishing                                         Low         None              36           0%          10-99            10-99                    1-2,
                                           Assess Impacts on Fish Populations                        High        None              36           0%          10-99            10-99        SW
                                           Determine Incidental Habitat Damage                    Medium         None              24           0%          10-99            10-99        SW
                                           F.15 Sponge Harvest                                    Medium       Medium              36         <75%          <                10-99                    V-2
                                           Assess Impacts of Sponge Harvest                                    Medium              36         <75%          <10              10-99        SW
                                           Methods                                                                                                             10
                                           SPECIAL STUDIES
                                           8.2 Habitat Restoration                                Medium       Medium              24+        50-74%        lOG-999          100-999                54-
                                           Develop Stocking Policy                                               High              12         100%          <10                0          SW
                                           Conduct a Program of Restoration                                    Medium              24+        50-74%        100-999          100-999      SW
                                           Research
                                           RX Carrying Capacity                                   Medium         Low               48+        < W/6         100-999          10001                   5-10
                                                                                                                                                                             sow
                                           Assess Impacts to Recreation
                                           Activities and Estimate User                                          Low               48+        <50%          100-999          1000-        SW
                                           Carrying Capacities                                                                                                               5000
                                           WX Water Ouality Standards                                                              Refer to Water 04uality Action Plan
                                           W.18 Pesticide Research                                                                 Refer t;   Water Q@ality Action @Plan
                                           W.24 Florida Sav Influence                                                              Refer to., Water Quality Action Plan
                                           PREDICITIVE STRATEGIES
                                                                                                                                   Refer Water O@afity Action r1an
                                           W.21 Predictive Models                                    High    I             I            t@
                                           Abbreviations: SW, Sanctuary Wide; UK, Upper Keys; C, Continuous.
                                           + The priority levels for activities should not be compared across strategies-they only represent the relative importance of
                                           activities contained within a strategy.
                                           ++Strategies with an           for Overall Sanctuary Priority Level are already existing programs and will be completed in Year 1.
                                                                                                                                                       Al























































                                                                                                                                                                                                                              169






                            Submerged Cultural Resources Action Plan

               This action plan identifies and describes the suite         The Sanctuary's submerged cultural resources
               of activities for the management and protection             encompass a broad historical range. Because of the
               of submerged cultural resources within the                  Keys' strategic location on early European shipping
               Florida Keys National Marine Sanctuary. The                 routes, the area's shipwrecks reflect the history of the
               activities described in this plan address resource          entire period of discovery and colonization. This
               protection, multiple uses, inventory, research and          richness of historical resources brings a correspond-
               education and are derived from the Submerged                ing responsibility for protecting resources of national
               Cultural Resources Management strategies,                   and international interest. Accordingly, the resources
               public comments, and other record sources. The              should be managed for public benefit and enjoyment,
               action plan is the result of a careful balancing of         while the historical-cultural heritage is preserved for
               resource protection and facilitating compatible             the future. Long-term protection requires a pre-
               multiple uses. The plan outlines the time re-               cautionary approach to historical resource manage-
               quired for implementation, level of program                 ment, particularly when cultural information and/or
               activity in year 1, the funding available for full          the artifacts may be destroyed or lost intentionally or
               implementation, institutions responsible for                unintentionally through various direct and indirect
               implementation, and range of costs for full                 activities. The Federal Archaeological Program or
               implementation (Table 20). The Action Plan also             equivalent standards of conservation, cataloguing,
               contains the SCR Agreement among NOAA, the                  display, curation, and publication must be assured
               State and the Advisory Council on Historic                  before the excavation of historically significant
               Preservation providing further detail on how                resources is permitted. Such projects are expensive
               historic resources within the Sanctuary will be             and labor-intensive, requiring specialists in the fields
               managed.                                                    of archaeology, conservation, and museum work and
                                                                           historic shipwreck research and recovery. NOAA
                                                                           and the State will explore all public and private
                Introduction                                               partnerships in fulfilling SCR management and will
                                                                           consider private sector implementation, if it is deter-
               NOAA is committed to protecting and preserving the          mined to be in the public's interest.
               natural resources within its national marine sanctuar-
               ies, and is equally committed to its stewardship and
               trustee responsibilities for the historical resources in          ------- 71111_1@
                                                                                             C
               these areas. Such resources are defined as those                en0*001"
                                                                                               Y
               possessing historical, cultural, archaeological, or                                                                  J
               paleontological significance, including sites, struc-       NOAA's primary policy is to protect sanctuary re-
               tures, districts, and objects significantly associated      sources, including SCRs. NOAA must also manage
               with or representative of earlier people, cultures, and     the Sanctuary and its resources, including SCRs, to
               human activities and events" (15 CFR 922.2 (c)). In         facilitate multiple uses of the Sanctuary which are
               this action plan, the terms historical resources,           determined to be compatible with resource protec-
               cultural resources, and submerged cultural resources        tion. Compatible uses include research, education,
               (SCRs) are used interchangeably. Within the nation's        recreation, fishing and other commercial uses. This
               national marine sanctuaries, these resources include        Action Plan addresses the controversial issue of
               shipwrecks that are part of both U.S. and world             commercial treasure salvage. The Plan is the result
               history, as well as the remains of submerged prehis-        of a long public process, including scoping meetings,
               toric cultures. See FEIS Affected Environment               workshops, and consideration of numerous and
               Cultural and Historic Resources.                            diverse public comments, including the Sanctuary

                                                                                             41"-A"
                                                            W, @qqpu
                           'ch,
                           - I                                                  togwo"I",
                              W,ni"
                                                                                                                                  wRR

                                                                                              Rftl@l "A'
                                                                                    -M
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                                                                                                                                  171






               Action Plans: Submerged Cultural Resources
               Advisory Council. In consultation with the State,              reporting. The Programmatic Agreement for SCR
               which owns abandoned shipwrecks in 65% of the                  Management provides further details on the criteria,
               Sanctuary, and consistent with the Abandoned                   and process for decisions on which SCRs should be
               Shipwreck Act, commercial treasure salvage of                  preserved in situ and which SCRs would be consid-
               abandoned shipwrecks has been determined not to                ered permissible for recovery.
               be a compatible use in areas where there is coral,
               seagrass and other significant natural resources.              How the Plan is Organized. This action plan
               However, in other areas relatively devoid of these             outlines the proposed approach for developing and
               significant natural resources, commercial treasure             implementing a program to manage submerged
               salvage will be permitted for objects of low to moder-         cultural resources in the Sanctuary. The plan is
               ate historical significance, provided that the recording       composed of the SCR Management strategy (R.1),
               and reporting of recovery operations, as well as the           and includes its component activities and
               curation of representative samples of artifacts are            subactivities. It is organized into three sections: an
               conducted consistent with the Programmatic Agree-              introduction, a description of strategies, and a
               ment for SCR Management, as well as Federal                    discussion of implementation procedures.
               Archaeological Program (FAP) or equivalent stan-
               dards. The FAP was developed by the National Park
               Service (NPS) by Presidential Order, and includes a
                                                                                         ... und,,
               collection of historical and archaeological resource
               protection laws to which Federal managers adhere.              Management Strategies. Each strategy has been
               The National Historic Preservation Act (NHPA)                  assigned an estimated "activity level" for year 1 (high,
               requires Federal agencies to develop programs to               medium, low, or none). This activity level is an
               inventory and evaluate cultural historic resources.            estimation of the planned level of action that will
               Section 106 of the NHPA requires that each recovery            occur in the first year after the Sanctuary Manage-
               permit be reviewed by the State Historic Preservation          ment Plan is adopted. In addition, the time required,
               Office and the Advisory Council on Historic Preserva-          posts of implementation, and funding availability
               tion. Permits within the scope, and which adhere to            (Federal, State, local, and private) have been esti-
               all of the provisions of the Programmatic Agreement            mated for all strategies. The component activities
               for SCR Management, need not go through addi-                  within each strategy, and the institutions responsible
               tional NHPA 106.process.                                       for implementing them, have been identified.
               The Abandoned Shipwreck Act (ASA) requires that a              The strategies for the Management Plan, which
               state's management practices protect shipwrecks,               includes the Submerged Cultural Resources Action
               natural resources, and habitat areas, and guarantee            Plan and all other action plans combined, have been
               recreational access to shipwreck sites. The ASA                grouped into three priority levels, based on their
               Guidelines prohibiting commercial salvage in marine            relative importance or feasibility. A strategy's priority
               sanctuaries are being followed in zoned areas, and in          level is based on factors such as available funding,
               areas where there is coral, seagrass and other                 costs, personnel requirements, timing, levels of
               significant natural resources. Commercial salvage              existing implementation, and existing legislative/
               will only be permitted for objects of low to moderate          regulatory authority. The high priority level includes
               historical significance in areas relatively devoid of          the 16 most important strategies. The medium
               significant natural resources. There will be no                priority level contains 36 strategies that represent the
               commercial salvage of SCRs of high historical                  next level of importance to the sanctuary and will
               significance. The ASA also provides for private-               have some level of activity in year one. Low priority
               sector recovery conducted in an archaeological ly-             items contain the remaining strategies in the Man-
               and environmentally- sound manner. Thus, SCR                   agement Plan. Those strategies planned for comple-
               management will also preserve selected shipwrecks              tion in or before year one do not have a priority level.
               in the Sanctuary for research and recreation pur-
               poses. Other shipwrecks may be more appropriate                SCR Strategies. The SCR Management strategy is
               for recovery and preservation in museums with public           in the medium priority level. It is an important
               access. Finally, the plan provides for the dispersal of        strategy, as it forms the basis of the Sanctuary's
               certain recovered resources to private parties.                Submerged Cultural Resources Program. It is
               Private profit is available through public display, as         composed of five activities: 1) SCR protection and
               well as from the sale of gold, silver, jewels, and other       management; 2) establish SCR inventory; 3) SCR
               objects of little or no historical significance after          research and education; 4) ensure permit compliance
               proper archaeological recording, analysis and

               172



									Action Plans SUbmerged Cultural Resources
			Existing Programs
		
			The Division of Historical Resources(FLorida Dept- 				     In addition, NOAA's National Marine Sanctuary Program
			ment of State) has conducted an archaelogical field				      has managed the submurged cultural resources at the
			school; participated in archaeological sportidiving 				      Key Largo Looe Key and Florida Kays national marine
			workshops; established the San Pedro Underwater					      sanctuaries in a manner consistant with the provisions of
			Archaeological Preserve; granted permits for archaeo-				      the Federal archaeological Program Projects conducted-
			logical inventories in the Upper and Middle Keys arid					to date include remote sensing students, literature
			cooperated with other agencies in permitting and law					searches, and limited held research and recovery by
			enforcement activities. Before the Sanctuary was				      private groups under permits. Within these sanctuaries,
			established, the Division granted contracts to search for				submerged cultural resource manangement has encour-
			and recover artifacts from historic shipwreck sites in				aged public access, research, education and recreation
			State waters Many of these activities will continue, and				consistant with the goals of site protection and conserva-
			some will be expanded within this program.						tion. These activities and others will be continued in the 			
																Florida Keys National Marine Sanctuary.


                    through enforcement, 5) ensure interagency coordi-                         within its boundaries for current users and future
                    nation (Programmatic Agreement for SCR Manage-                             generations Because cultural resources are nonre-
                    ment)                                                                      newable, decisions affecting these resources must
                                                                                               be made with a precautionary approach, and only
                    Relationship to Other Action Plans The SCR regula-                         after careful and deliberate analyses of the potential
                    tions are included in the Regulatory Action Plan In                        consequences on long-term preservation.
                    addition, this plan relies on the implementation of the
                    Enforcement Action Plan, the Education Action Plan,                        The goals of the Florida Keys National Marine
                    and other action plans                                                     Sanctuary's Submerged Cultural Resources Program
                                                                                               are to

                     Goals and Objectives                                                               gather sufficient information about the nature
                                                                                                        and extent of the area's cultural resources to
                    National Goals The national goals of the Sub-                                       allow managers to make informed decisions
                    merged Cultural Resources Management Program                                        about resource protection and management,
                    are to
                                                                                                        interpret the history and culture of the Keys for
                            ï¿½protect SCRs and facilitate multiple uses                                  the public,
                            compatible with resources protection, including
                            the provision of access for recreation, re-                                allow/permit private-sector participation re-
                            search, education and compatible commercial                                 search, documentation, recovery, and curation
                            uses,                                                                       of cultural resources, and

                            ï¿½provide information for the conservation and                              to develop a community-based stewardship for
                            management of submerged cultural resources                                  cultural resources in the Sanctuary
                            in national marine sanctuaries and national
                            estuarine research reserves,                                       Sanctuary Objectives. To achieve these goals, the
                                                                                               following objectives should be accomplished in a
                            ï¿½conduct, promote, and coordinate research                         reasonable and cost effective manner
                            and monitoring of submerged cultural re-
                            sources in the nation's sanctuaries and re-                                inventory the Sanctuary's submerged cultural
                            serves; and                                                                 resources in a manner consistent with Federal
                                                                                                        requirements and standards,
                            ï¿½enhance public awareness and education
                            programs through the study of cultural re-                                 provide a resource database to fully inform
                            sources in the nation's sanctuaries and re-                                 managers and the public about the area's
                            serves                                                                      submerged cultural resources to the extent
                                                                                                        consistent with public resource protection and
                    Sanctuary Goals. The Sanctuary has a trustee                                        business confidentiality,
                    responsibility for protecting the cultural resources


                                                                                                                                                                   173
 






            Action Plans: Submerged Cultural Resources

                ï¿½ interpret the Sanctuary's submerged cultural
                  resources for the public through on-site and
                  land-based exhibits and accompanying materi-
                  als such as brochures and videos;

                ï¿½ develop public partnerships for the research,
                  interpretation, and management of submerged
                  cultural resources; and

                ï¿½ foster and enhance a stewardship ethic for
                  cultural resources among Sanctuary users.

            The activities within the Submerged Cultural Re-
            sources Management strategy represent the initial
            stages of the Sanctuary's Cultural Resources Man-
            agement Program.













































           174







                                                                                      Action Plans: Submerged Cultural Resources

                                                                              environmental impact of the proposed activity, the
                 Description of Strategies                                    professional qualifications of the applicants, the
                                                                              proposed methods of research/recovery/conserva-
                                                                              tion, and the public benefits of the proposed activity
                                   Strategy RA:                               are some of the factors considered by NOAA, in
                                SCR Management                                consultation with the State.
                                                                              Applications that provide for conservation of SCRs in
                Develop and implement a program to protect and                museums or similar structures of public access for
                                                                              research, education, or public viewing enjoyment will
                manage submerged cultural resources consistent                be given priority over applications where some of the
                with the NMSA, the ASA and Federal Archaeological             objects are dispersed. When the applicant plans to
                Program standards through regulations, permits,               disperse objects in the private market, disposition of
                education, and research. Inventory submerged                  artifacts will be considered on a case-by-case basis
                cultural resources and assess survey and extraction           consistent with ASA guidelines, and with the SCR
                techniques within the Sanctuary. Require permitting           Agreement. Where the applicant has arranged for
                throughout the Sanctuary. However, no permits will            private conservation, long-term public display,
                be issued for salvage or recovery in sensitive areas;         guaranteed public access, and public interpretation of
                i.e., Sanctuary Preservation Areas, Ecological                artifacts and data, the disposition of objects may be
                Reserves, Wildlife Management Areas, Existing                 adjusted accordingly. Proposals where the entire
                Management Areas, and other areas where there is              collection will be conserved in private museums, but
                coral, seagrass or other significant natural resources.       the SCRs will be readily available for research and
                No commercial salvage will be permitted for sites of          public access, will be encouraged. No permits will be
                high historical significance.                                 issued for excavation in areas where coral, seagrass
                (Priority Level Medium, Low Level of Action in Year           meadows, or other significant natural habitats exist.
                1, ongoing)
                                                                              The Sanctuary Program requires permits for the
                Activity I SCR Protection and Management. The                 conduct of activities prohibited by sanctuary regula-
                Sanctuary regulations, ASA guidelines, and FAP                tions, or that otherwise may adversely affect Sanctu-
                standards/practices have been developed to address            ary resources. Such permits may only be granted in
                the survey, research, recovery, and dispensation of           accordance with existing law and Sanctuary policies.
                certain objects, and will be implemented consistent           NOAA encourages Sanctuary uses that do not
                with Federal and State archaeological policies.               adversely affect Sanctuary resources (including
                Additional Sanctuary guidelines, as well as site-             archaeological information) or interfere with other
                specific management plans, including zoning, may be           Sanctuary uses. A survey and inventory permit is not
                developed based on the significance of the SCR and            required for remote sensing activities, but one will
                the need for protection and managed access. The               generally be required before considering the issu-
                development of Sanctuary specific archaeological              ance of a research and recovery permit. One of the
                guidelines and model permits is also being consid-            factors considered in granting a research and recov-
                ered. The establishment of an Advisory Committee              ery permit is whether the applicant demonstrated his
                for SCR management consistent with the ASA                    or her professional and scientific abilities in the
                guidelines will also be considered.                           survey-inventory permit. An archaeological research/
                                                                              recovery permit is necessary for the removal of
                In order to protect SCRs, removal without a permit is         historical resources. The historic resources must be
                prohibited. Non-intrusive access is not prohibited and        maintained in a museum or similar institution where
                does not require a permit. To facilitate access and           public access for research, education and viewing
                multiple use, and ensure it's compatible with re-             enjoyment is provided. A deaccession /transfer
                source protection, there is a sanctuary permit sys-           permit is required to privatize the public resources
                tem. Private recovery may occur under a Sanctuary             recovered under a research/recovery permit. The
                permit. The decision of whether to grant such permits         deaccession/transfer permits shall also be subject to
                will be based upon a balancing of the public's interest       the requirements for special-use permits. Such
                using criteria in the regulations for all permits, as well    removal of the public's sanctuary resources requires
                as the factors and criteria set forth in the regulations      a substantial justification of public interest, consistent
                for SCR permits which are further detailed in the             with the purposes and policies of the Sanctuary as
                SCR Agreement. The site's historical/cultural value           set forth in the SCR Agreement and the ASA guide-
                and significance, its recreational value, the potential       lines. All permits are evaluated based on a variety of

                                                                                                                                        175






               Action Plans: Submerged Cultural Resources

               factors, including potential environmental and cultural        Cultural and Historic Resources section of the
               resource impacts.                                              Description of the Affected Environment chapter
                                                                              (Volume 11) should be consulted for additional infor-
                 Implementation. NOAA's Sanctuary Program,                    mation. The SCRs currently identified, as well as
               FDHR, and legal staff have worked together to                  those to be discovered, will be protected and man-
               develop a framework for SCR management of                      aged in accordance with the Plan and regulations.
               submerged lands within the Sanctuary consistent
               with the NMSA, the ASA guidelines, and State law.              m Implementation. NOAA will be the lead agency
                                                                              responsible for establishing a cultural resources
                Schedule. The regulations, SCR Agreement and                  inventory for the Sanctuary. This effort will build on
               some of the guidelines have been completed.                    existing work by the State and others. The NPS,
               Subseque   *nt guidelines, model permits, and other            Florida Department of Environmental Protection
               activities discussed below will be considered. This            (FDEP), and FDHR will provide assistance in imple-
               activity will have a high level of action in year 1. it will   menting the components of this activity.
               require 12+ months to complete.
                                                                              w Schedule. The inventory of all SCRs is a long-term
               Subactivity 1 -Create an SCR Field Unit. A field unit          management goal and the activity will be conducted
               will be established to conduct field research and              in a continuous manner until completed.
               coordinate permitted research activities.
                                                                              Subactivitles. Implementing this activity will depend
               a Implementation. NOAA will be the lead agency                 on several subactivities that will help generate the
               responsible for implementing this subactivity. The             information for inclusion in the inventory:
               FDHR will provide assistance.
                                                                              Subactivily 1 -Use SCR Information Developed in
                Schedule. This subactivity will have a high level of          Permits, Authorizations or Certifications. The regula-
               action in year 1. Depending on funding, it may                 tions prohibit the conduct of certain activities in the
               require 6 months to a year or more to complete.                Sanctuary. Part of the permit process generally
               Contracting archaeological services in the field is            includes assessment of the natural and cultural
               being considered as an interim measure.                        resources in the area under permit consideration. In
                                                                              addition, the Plan provides for public and private
               Subactivily 2-Monitoring For SCR Site Degradation.             surveys and inventories of SCRs.
               Will seek long-term monitoring of selected SCR sites
               to determine whethe   r environmental conditions and             Implementation. NOAA will be the lead agency
               human use affect site integrity.                               responsible for implementing this subactivity in
                                                                              consultation with the FDHR.
               n Implementation. NOAA will be the lead agency
               responsible for implementing this subactivity. The               Schedule. This subactivity will have a medium level
               FDHR will provide assistance.                                  of action in year 1. This subactivity will be continu-
                                                                              ous.
                Schedule - This subactivity will have a low level of
               action for year 1. It will be on-going.                        Subactivity 2-Survey and Collect Anecdotal lnforma@
                                                                              tion. The community knowledge base will be tapped
               Activity 2 - Establish SCR Inventory. Compile                  through surveys of fishermen, treasure hunters, and
               existing literature into a computerized bibliographic          others with local knowledge; a program of profes-
               database. Survey and identify site locations and               sional/amateur public participation will be developed.
               specific site characteristics including name, age,             This information will be incorporated into the cultural
               integrity, and historical and cultural significance.           resource inventory.
               Compile an electronic database of site information.            n Implementation. NOAA will be the lead agency
               m Existing Program Implementation. NOAA, the                   responsible for implementing this subactivity. The
               Florida Division of Historical Resources (FDHR), and           FDEP and FDHR will provide assistance.
               nonprofit organizations have completed some survey
               and inventory activities. Together they have compiled          m Schedule. This subactivity will have a high level of
               and organized data on the location, identity, and              action in. year 1. It will require 12 months to complete.
               significance of certain historical shipwrecks. The


               176







                                                                                        Action Plans: Submerged Cultural Resources

                Subactivity 3-Utilize Volunteer Assistance in Cultural          groups and institutions. This information will enhance
                Resources Inventory. The Sanctuary's volunteer                  the existing knowledge base on submerged cultural
                coordinator, using local volunteers, will assist Sanctu-        resources in the Keys.
                ary staff in collecting existing information; locating
                unrecorded sites; recording and documenting sites;               Implementation. NOAA will be the lead agency
                assessing site significance; and developing sites for           responsible for implementing this subactivity. The
                improved public access, interpretation, and protection          NPS will provide primary support. The FIDEP, FDHR,
                (see the Volunteer Action Plan).                                and the State Historic Preservation Officer (SHPO)
                                                                                will provide assistance.
                  Implernentation. The Sanctuary's volunteer coordi-
                nator will implement this subactivity. The NPS and               Schedule. This subactivity will have a medium level
                FDHR will provide assistance.                                   of action in year 1. This subactivity will be continu-
                                                                                ous.
                w Schedule. This subactivity will have a high level of
                action in year 1. It will require six months to com-            Subactivities. The activity is composed of several
                plete.                                                          subactivities. First, a series of public workshops will
                                                                                be held to identify topics and projects of community
                Subactivity 4-Public Participation Pro*ects Invento!y.          interest. Second, a volunteer training program will be
                Submerged cultural resources inventory projects will            established to provide a mechanism for general
                be conducted by research and educational institu-               public involvement in SCR research. Third, Sanctu-
                tions (using local volunteers). The objective is to             ary staff will coordinate with university field schools to
                involve the public in the inventory phase of Sanctuary          generate research projects and facilitate public
                archaeological investigations.                                  involvement. Fourth, Sanctuary staff will apply
                                                                                appropriate management tools, such as scientific
                  Implementation. NOAA will be the lead agency                  investigation, underwater "parks," or a field school, to
                responsible for implementing this subactivity. The              specific sites to provide basic knowledge of the
                FDHR will provide assistance.                                   resource. Finally, an interpretive exhibit of the
                                                                                archaeological sites and their historic context will be
                m Schedule. This subactivity will have a low level of           developed to provide information to the community at
                action in year 1. It will be continuous.                        large.

                Subactivily 5-Develop a Site Database. A central                Subactivity 1 -Public Participation Pro*ects Manage-
                database of all shipwreck information will be main-             ment. A series of projects will be developed that are
                tained by the Sanctuary, in cooperation with the                designed to involve the public in the long-term
                Florida Site File at the FDHR. Projects will be de-             management of SCRs and promote stewardship
                signed that are appropriate for grant funding by the            through public involvement.
                FDHR, the Coastal Zone Management Program, and
                other sources. The data collected for non-sensitive               Implementation. NOAA will be the lead agency
                sites may also be incorporated with other geological,           responsible for implementing this subactivity. The
                biological, and census data into a geographic infor-            FDHR will provide assistance.
                mation system (GIS) that will be used to analyze
                relationships between these resources, and to                   m Schedule. This subactivity will have a low level of
                facilitate their management.                                    action in year 1. It will be continuous.

                m Implementation. NOAA will be the lead agency                  Subactivity 2-Volunteer Training Program. A volun-
                responsible for implementing this subactivity. The              teer training program will be established to provide a
                NPS, FIDEP, and FDHR will provide assistance.                   mechanism for general public involvement in SCR
                                                                                research, documentation, and management.
                m Schedule. This subactivity will have a medium level
                of action in year 1. It will be continuous.                     m Implementation. The Sanctuary's volunteer coordi-
                                                                                nator will be responsible for implementing this
                Activity 3 - SCR Research and Education                         subactivity. The NPS and FDHR will provide assis-
                                                                                tance.
                Subactivity 1 -Develop a Scientific Resegrch Study
                Program. The Sanctuary Program will encourage and               m Schedule. This subactivity will have a low level of
                coordinate scientific studies by recognized research            action in year 1. It will require 12 months to complete.

                                                                                                                                            177






                Action Plans: Submerged Cultural Resources

                Subactivily 3-Coordinate with Universily Field                 Officers will receive training to facilitate this interpre-
                Schools. Archaeological research in the Sanctuary              tive role (see the Education Action Plan).
                will be facilitated by providing scientific, logistical, and
                other support.                                                 mSchedule. This activity will have a high level of
                                                                               action in year 1. It will require 24 months to complete.
                m Implementation. NOAA and the FDHR will be the
                lead agencies responsible for implementing this                Subactivities. There are two subactivities within
                subactivity. The FDEP will provide assistance.                 Activity 4: 1) cross-deputization; and 2) an SCR
                                                                               training program.
                0Schedule. This subactivity will have a medium level
                of action in year 1. It will be continuous.                    Subactivity 1-Cross-deputize Law Enforcement
                                                                               Officers. This is described in the Cross-deputization
                Subactivily 4-Develop a "ShiDwreck Trail." By select-          strategy (B.12) within the Enforcement Action Plan.
                ing and interpreting a selection of shipwrecks, a
                "shipwreck trail" will be developed to provide an on-          Subactivily 2-Develop an SCR Educational Program
                water and on-land interpretive exhibit for the public.         for Law Enforcement Personnel. This program will be
                                                                               part of a standardized training program for cross-
                Implementation. The FDHR will be the lead agency               deputized enforcement agencies. The training
                responsible for implementing this subactivity. NOAA            program is included in the Training/Workshops/
                and the INIPS will provide assistance.                         School Programs strategy (E.4) within the Education
                                                                               Action Plan.
                0Schedule. This subactivity will have a low level of
                action in year 1. It will require 12 months to complete.       Activity 5-Ensure Interagency Coordination.
                                                                               Ensure comprehensive coordination among all
                Subactivily 5-Develop an Interpretive Exhibit. An              appropriate Federal, State, and local agencies
                interpretive exhibit of the archaeological sites and           involved in, and responsible for, the management of
                their historic context will be developed to provide the        SCRs through the implementation of the SCR
                public with information about SCRs in the Sanctuary.           Agreement.

                m Implementation. The FDHR will be the lead agency             sExisting Program Implementation. Within the Key
                responsible for implementing this subactivity. NOAA'           Largo and Looe Key national marine sanctuaries, no
                and the INIPS will provide assistance.                         coordination between NOAA and the FDHR is
                                                                               required, as these are Federal waters and the State
                :
                Schedule. This subactivity will have a low level of            lacks jurisdiction. However, the two agencies cooper-
                ction in year 1. It will require 12 months to complete.        ate by sharing information, advice, equipment, and
                                                                               staff. In addition, the two agencies have developed a
                Activity 4-Ensure Permit Compliance through                    close working relationship in State-owned portions of
                Enforcement. Ensure compliance with statutes,                  the Sanctuary, where the Division holds title to
                rules, Sanctuary regulations, and permits through              abandoned SCRs and NOAA has a management
                intensive on-site patrols by authorized law enforce-           responsibility as a co-trustee.
                ment off icers.
                                                                               Implementation. NOAA and the FDHR will enter into
                wExisting Program Implementation. Within the Key               the proposed MOU (as recommended in the Aban-
                Largo and Looe Key national marine sanctuaries,                doned Shipwreck Act) covering the management of
                Federal laws and regulations are enforced by State             SCRs within the Sanctuary. The terms of the MOU,
                officers cross-deputized with Federal authority.               as well as components of the final Management Plan,
                Within the State territorial boundary, State laws and          specify the responsibilities and roles of various
                regulations are enforced by the Florida Marine Patrol.         parties to ensure the timely and effective coordination
                                                                               of activities involving SCRs.
                simplementation. NOAA, the State of Florida, and
                other agencies will be cross-deputized with Sanctu-            mSchedule. This activity will have a high level of
                ary law enforcement authority. Sanctuary and other             action in year 1. It will require 12 months to complete.
                pertinent regulations and laws will be enforced jointly,
                with an emphasis on public education as a tool for
                compliance (see the Enforcement Action Plan).


                178







                                                                                                                                     Action Plans: Submerged Cultural Resources

                                                                                                                        implementation. The priority levels should not be
                          Implementation                                                                                compared across activities. They only indicate the
                                                                                                                        relative importance of the subactivities contained
                          This section explains how the SCR Action Plan                                                 within an activity.
                          will be implemented. The institutions responsible
                          for each activity, including subactivides, as well                                            Schedule. Table 22 lists the estimated time required
                          as those agencies that will provide some level of                                             for the implementation of each activity and subactivity
                          implementation assistance, are identified. The                                                included in the SCR Action Plan. The number of
                          planned level of activity in year 1, months re-                                               months required to complete each activity and
                          quired to complete, funding availability, cost                                                subactivity is also provided.
                          estimate, staff and equipment requirements, and
                          geographic focus for each activity and                                                        Cost. The estimated cost of implementing each
                          subactivity are provided. Contingencies for a                                                 activity is shown in Table 22. The costs represent the
                          changing budget are also discussed. Finally, the                                              sum of Sanctuary staff salaries; equipment and
                          process used to evaluate the effectiveness of the                                             supplies; services; and other requirements necessary
                          SCR Management Program as it evolves over                                                     for implementation. Because each activity must be
                          time is provided.                                                                             addressed independently, costs were calculated in a
                                                                                                                        similar manner and cannot be totalled down the
                          Responsible Institutions. NOAA and the FDHR are                                               column. Costs are divided into total capital cost, and
                          the agencies primarily responsible for implementing                                           annual operations and maintenance cost.
                          the SCR Management Plan. NOAA and the State of
                          Florida will jointly manage Sanctuary resources,                                              Table 21. Agencies Identified for Implementing
                          while the Division will retain title to abandoned                                                              StrategieslActivities
                          shipwrecks on State-owned submerged lands. If
                          excavation is involved, permission may also be                                                                                                                      Agencies
                          required from the FDEP (e.g., dredge and fill permit
                          and consent to use State lands) and the U.S. Army
                          Corps of Engineers (e.g., dredge and fill permit),                                                     Strategy/Activity                                      q
                          depending on location of site. Table 21 lists the                                                                                                             9           -
                          responsible institutions and their level of responsibil-                                               R.1 SCR MANAGEMENT
                          ity in each activity.                                                                                                             qr@,
                                                                                                                                 Create an SCR Field Unit                                           0
                          The DHR, through its Bureau of Archaeological                                                          Monitoring for SCR Site Degradation                                0
                                                                                                                                                                                        @0@010      0
                          Research, has developed a range of SCR manage-                                                         'Actill!           Ish SCR'tmirsillrtcrll@
                          ment tools that can be usefully applied within the                                                     Use SCR Information Developed in Permits,
                          Sanctuary. The Division's role, although sometimes                                                     Authorizations or Certifications                       0           0
                                                                                                                                         and Collect Anecdotal
                          regulatory, typically involves management activities                                                   =tion                                                  0           00
                          such as inventory, assessment, research, education,                                                    Utilize Volunteer Assistance in Cultural
                          public interpretation, and grant assistance for historic                                               Resources Inventory                                    9  0        0
                                                                                                                                 Public Participation Projects Inventory                0           0
                          preservation projects.                                                                                 Develop a Site Database                                0  0,0      01
                                                                                                                                 Acwtv 3. SCR Rasearolif and Education, - 4@                             0
                          NOAA's primary role will be to protect SCRs through
                                                                                                                                 Develop Scientific Research Study Program              0  0        00
                          the permitting program and enforcement, as well as                                                     Public Participation Projects Management               9           0
                          to provide overall policy direction and coordinate                                                     Volunteer Training Program                             0  0        0
                          research by outside institutions and individuals. In                                                   Coordinate With University Field Schools               9           00
                          this capacity, NOAA will ensure that research is well-                                                 Develop a "Shipwreck Trair                             00          *1
                          designed and consistent with Sanctuary Program                                                         Develop an Interpretive Ex    Ihibit                   .0-0        9
                          policies. NOAA will also work with the State to                                                        AMIvity 4. Ensure Perm      ,it,CIol"Plishos,          -
                          inventory Sanctuary resources in a manner consis-                                                      Cross-deputization of Law                 RafeIr to Enforcemen Action In
                          tent with the Federal archaeological program and the                                                   Enforcement Officers
                                                                                                                                 Develop SCR Educational Program
                          ASA guidelines.                                                                                        for Law Enforcement Personnel             Refer to Edrtiorr Action PJn
                                                                                                                                                                                        7
                                                                                                                                                                                                    LU
                                                                                                                                                                                                    LQ'
                                                                                                                                                                                                    e! if














                                                                                                                                                                                        f 6
                          Prioritization. Each subactivity included in this plan                                                             coqr4instion                  -  ..   1          -1-0.-
                          is ranked as either high, medium, or low priority. The                                                 7i Lead         0 Primary Role            0 Assist
                          ranking signifies the level of importance of each                                                      Abbreviations: NOAA, National Oceanic and Atmospheric
                                                                                                                                 Administration; NPS, National Park Service; FDEP, Florida Department
                          subactivity, and provides guidance for the timing of                                                   of Environmental Protection; FDHR, Florida Division of Historical
                                                                                                                                 Resources; SHPO, State Historic Preservation Officer.


                                                                                                                                                                                                              179








                      Action Plans: Submerged Cultural Resources

                      As no active archaeology studies are currently being                                                more data is collected, and a comprehensive inven-
                      conducted at either the Key Largo or Looe Key                                                       tory of submerged cultural resources is completed.
                      national marine sanctuaries, no cost figures are
                      available to project base FKNMS cost figures.                                                       PersonneL Three staff members are necessary to
                      Therefore, all cost figures are estimates based on                                                  implement the activities outlined in this plan. Core
                      NPS projects, State projects, and contractor quotes                                                 personnel will include an archaeologist and two
                      for jobs of similar specification.                                                                  trained archaeological technicians. Two additional
                                                                                                                          personnel may be required for oversight of special-
                      Geographic Focus. Although SCRs may be discov-                                                      use permits that allow the sale or dispensation of
                      ered anywhere in the Sanctuary, there are areas of                                                  some gold, silver, and jewels. The archaeologist
                      known concentration and high probability. These are                                                 position will probably be at the GS-1 1/13 level
                      in shallow water, especially in proximity to shipping                                               (approximately $30,000 to $45,000 annually). The
                      routes, on and near reefs, in historically used chan-                                               secondary support staff will most likely be at the GS-
                      nels, and near historical sources of freshwater.                                                    7/9 level (approximately $20,000 to $25,000 annu-
                      Management will focus on selected shipwreck sites,                                                  ally).
                      with the particular characteristics ofa site determin-
                      ing the types of management tools needed. "High-                                                    Equipment. To ensure the success of the SCR
                      probability" areas must be delineated, but only after                                               Management Plan, sufficient equipment will be

                      Table 22. Requirements for Implementation








                                                                                      Action Plans: Submerged Cultural Resources

                required so sites can be reached and investigated in          Evaluating Program Effectiveness. The best
                a reasonable response time. Such equipment would              method of evaluating Program effectiveness is to
                include a boat and trailer for use throughout the             measure accomplishments against the stated goals
                Sanctuary. Standard safety and diving gear should             and objectives. This will be done in-house and with a
                be complemented by surveying, remote sensing,                 review interval that is proportional to the complexity
                position-finding, and shallow-excavation equipment,           of the tasks undertaken. Examples of items to be
                as well as the archaeological equipment necessary             evaluated include: the number of participants en-
                for underwater recording and recovery activities.             gaged in volunteer programs; the number of field
                Although the quantity and capability of equipment will        schools conducted; the number of school programs
                vary based on the tasks to be accomplished, a                 and public exhibits; and the number of presentations
                minimum inventory response capability should be               given to external groups.
                maintained. The cost of this equipment, based on the
                use of a government surplus or seized vessel and              Another means of assessing the SCR Management
                medium-quality diving and surveying equipment, will           Program is through a review committee of qualified
                be approximately $100,000. This includes vessel               archaeologists. The "peer review" principle is well-
                refurbishment and maintenance costs. Two additional           established in academia, and can be applied to the
                boats of approximately 20 feet in length may be               cultural resources program at little or no cost. The
                required for oversight of private recovery operations.        review committee would consist of archaeologists
                If government surplus vessels are used, an additional         with graduate training in archaeology, relevant
                $30,000 may be required to refurbish and ouff it these        experience, and/or a track record of scholarly publi-
                vessels, and an additional $10,000 will be required           cation. The quality of work produced during the
                for surveying, diving, and documentation equipment.           evaluation period would be emphasized, with particu-
                                                                              lar attention paid to the reports generated both within
                Computer equipment, video and photographic                    the program and by permit holders. The committee
                cameras, and drafting equipment will also be re-              would also evaluate site protection, paying particular
                quired. This equipment (plus the basic office equip-          attention to the Sanctuary's legislative mandate and
                ment for a staff of three) could cost as much as              how effectively it has been fulfilled during the review
                $100,000, depending on the level of technological             period.
                sophistication. However, the bulk of this expenditure
                is a one-time outlay, and would not be required in            In addition, the data collected during the previous
                subsequent years. The annual operating budget,                year would be inventoried, and data would be
                including salaries, is expected to be $140,000.               checked for consistency and veracity. Consistency
                                                                              would be measured across projects, and site plans,
                Contingency Planning for a Changing Budget. If                remote sensing data, and photo documentation
                funding is below projected levels, cuts could be made         would be compared to ensure uniformity. Data
                in staffing and equipment purchases. Part-time                veracity would be checked by selecting projects at
                positions within the private recovery supervision             random and attempting to duplicate the results.
                program could potentially be filled by other staff            Examples could include duplicating (on a limited
                members after the fulfillment of a rudimentary training       scale) remote sensing runs and verifying submitted
                program in archaeological methods. An observer                site maps. If serious discrepancies are found, the
                may be required on private recovery vessels at all            quality assurance aspects of the program would be
                times to ensure compliance with Sanctuary regula-             reevaluated.
                tions and permit conditions. One of the two core staff
                technicians could be shared with the biology/damage           The final tangible measure of the Program will be a
                assessment staff, as both positions require underwa-          review of the publications generated during the five-
                ter mappingand other documentation skills.                    year duration of the initial Sanctuary Management
                In addition, costs for remote sensing equipment could         Plan. This is critical to ensure that the program fulfills
                be reduced or eliminated by hiring contractors to             its role within the professional community.
                complete this work. However, an in-house capability
                is more desirable, as contracted work may be slowed
                by the competitive bidding process, and the fact that
                jobs may be grouped together to make the most
                efficient use of the contractor's time.





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              Action Plans: Submerged Cultural Resources

                                                                         The Abandoned Shipwreck Act, 43 U.S.C. 2101-
               Programmatic Agreement for SCR                            2106, transferred title to abandoned shipwrecks on
               Management Among NOAA, The                                states' submerged lands to the states. Under the
               Advisory Council on Historic                              ASA, states are to manage the abandoned ship-
               Preservation, and the State of Florida                    wrecks in a manner which protects shipwreck sites,
                                                                         guarantees public access to divers and others, and
              The Florida Keys National Marine Sanctuary (Sanctu-        allows for appropriate public- and private-sector
              ary) was established to provide comprehensive              recovery of shipwrecks consistent with the protection
              protection to the marine environment in the Florida        of historical values and environmental integrity of the
              Keys and comprehensive management of the use of            shipwrecks and sites. The State of Florida enters this
              the Sanctuary and its resources, including historical      Agreement pursuant to Chapter 267 of the Florida
              resources.                                                 Statutes, in which title to abandoned historic re-
                                                                         sources on state-owned or state-owned sovereignty
              The Secretary of Commerce, through the National            submerged lands is vested in the Division of Histori-
              Oceanic and Atmospheric Administration (NOAA)              cal Resources of the Florida Department of State for
              and in consultation with the State of Florida, de-         the purposes of administration and protection.
              veloped a comprehensive management plan which              The designation of the Sanctuary does not alter the
              facilitates multiple use of the Sanctuary resources        State of Florida's title to abandoned shipwrecks on
              consistent with the primary objective of resource          State submerged lands. However, upon designation
              protection.                                                NOAA and the State share co-trustee responsibilities
              The purpose of this Programmatic Agreement is to           for natural and historic resources within the State
              jointly develop a policy for the protection and man-       portions of the Florida Keys National Marine Sanctu-
              agement of historic resources in the Florida Keys          ary.
              National Marine Sanctuary by the Co-Trustees, the
              State of Florida, and NOAA that the Advisory Council       The Abandoned Shipwreck Act Guidelines, 55 Fed.
              on Historic Resources (Council) agrees is in compli-       Reg. 50116 (December 4,1990; ASA Guidelines),
              ance with sections 106 and 110 of the National             provide advice to the states and Federal agencies on
              Historic Preservation Act (NHPA).                          how to effectively manage abandoned shipwrecks on
                                                                         submerged lands under their ownership or control.
              Management and protection of the historic resources        The ASA Guidelines provide for private-,qector
              in the Florida Keys National Marine Sanctuary shall        participation in shipwreck research projects and
              be administered in accordance with the Florida Keys        recovery of shipwrecks when such activities are in
              National Marine Sanctuary Protection Act                   the public interest.
              (FKNMSPA), the National Marine Sanctuaries Act
              (NMSA), and the Abandoned Shipwreck Act (ASA).             11. Definitions
              Management actions consistent with this agreement          Archeological Recovery - A process of systematic
              would satisfy NOAA's Section 106 responsibility for        artifact recovery and mapping of shipwreck sites.
              all individual undertakings affecting the historic
              resources within the Florida Keys National Marine          Artifact - an object made or manipulated by man.
              Sanctuary. The SCR Agreement also addresses                Artifacts commonly found at archaeological sites may
              NOAA's Section 110 inventory responsibilities.             have one or more of the following qualities:
              1. References and Authorities                                  1. Historic - an object associated with historical
              The Sanctuary was established under the Florida                    events;
              Keys National Marine Sanctuary and Protection Act,
              Public Law No. 101 -605, 104 Stat. 3089 (Nov. 16,              2.  Aesthetic- a work of art or craft;
              1990). Section 5(a) of the FKNMSPA expressly
              provides that the Florida Keys National Marine                 3.  Religious - iconic, ceremonial;
              Sanctuary be managed under all applicable provi-
              sions of the NMSA, as amended, 16 U.S.C. 1431 et               4.  Functional - a tool, utensil, etc.;
              M. NOAA enters into this Agreement pursuant to
              the FKNMSPA and the NMSA.                                      5.  Modified Commodity;



              182







                                                                                          Action Plans: Submerged Cultural Resources

                    6. Food Product Used for Subsistence -                       mold, having the same marks, stamps, designs. They
                         butchered animal bones, seeds, corn cobs,               are often manufactured assembly style with machin-
                         etc.                                                    ery.

                Artifact Scatter Pattern - The stratigraphic and                 In Situ - A Latin term meaning "in the original posi-
                horizontal distribution of scattered artifacts, ballast          tion."
                deposits, and ship remains which archaeologically
                indicate the events (e.g., the wrecking of a vessel;             Material Remains - physical evidence of human
                natural occurrences such as currents or storms;                  habitation, occupation, use or activity, including the
                salvage activities; and/or other processes) surround-            site, location or context in which such evidence is
                ing the sinking and progressive disintegration of a              situated
                shipwreck site. .
                                                                                 Modified Raw Materials - commodities that have
                Commercial Salvage - the search for and recovery of              been reduced to a concentrated state. Such items
                shipwrecks and/or artifacts using archaeological                 indicate cultural activity in the shape, size, markings,
                recovery techniques and historical documentation to              and content of the artifact. This includes ingots, pigs,
                maximize the intrinsic value of the finds. It is to be           and bullion.
                distinguished from treasure hunting, which involves
                recovery without regard for archaeological context               Primary Archeological Deposit - a shipwreck artifact
                and historical significance.                                     assemblage stabilized by in-situ ballast, hull structure
                                                                                 and overlying bottom deposits, or a combination
                Crafted Items - materials made of metals, stones, or             thereof, which defines the original location and
                other materials that have functional, aesthetic,                 oriontation of the bulk of a historic shipwreck's
                cultural, historical, or religious significance or value.        material remains. These deposits represent non-
                                                                                 random distribution patterns that include personal
                Debris Field - an area of artifacts that were scattered          effects, cargo, and ship's supplies reflecting human
                and deposited through: 1) the wrecking or sinking of             behavior in different shipboard activity areas.
                a vessel; 2) natural occurrences such as currents or
                storms; 3) salvage activities; and 4) other processes.           Raw Materials - commodities that are in a natural
                                                                                 state save for marks from cutting, breaking, or
                Duplicative Artifacts - a group of artifacts that are            separating for transport. Such items are of historical
                similar or identical in nature.                                  interest due to tool marks, use and wear marks or
                                                                                 patterns, size breakdown for transport, metal, or
                Historical - possessing historical, cultural, archaeo-           mineral composition.
                logical, or paleontological significance, including
                sites, structures, districts, and objects significantly          Secondary Archeological Deposit - scattered artifacts
                associated with or representative of earlier people,             derived from the break-up of a vessel following its
                cultures, and human activities, and events.                      sinking and progressive break-up of the hull under
                Historical Association - the interrelationship of                prevailing local hydrological conditions. The contex-
                discovered objects to one another and to their                   tual associations within these derived artifacts are
                surrounding environment, and which provides the                  largely determined by oceanographic variables (wind,
                cultural context of the site.                                    waves and currents) within a short time following the
                                                                                 sinking of the vessel.
                Historical Interest - capable of providing scientific or
                humanistic understandings of past human behavior,                Similar Artifacts - artifacts made from the same
                cultural adaptation, and related topics through the              materials for the same functional purpose. These
                application of scientific and scholarly techniques such          artifacts may vary slightly in composition, weight,
                as controlled collection, analysis, interpretation, and          size, stamps and marks, wear patterns, color, design,
                explanation.                                                     etc. These may often be items made by handcraft.

                Historic Resource - any material remains of human                Tertiary Archeological Deposit - artifacts transported
                life or activities which are at least 50 years of age            from their original position on the sea floor through
                and which are of historical interest.                            continual re-deposition within the regular erosion
                                                                                 sedimentation cycle characteristic of shallow off-
                Identical Artifacts - artifacts made of identical mate-          shore coastal processes.
                rial, of same content and weight, made in the same

                                                                                                                                           183






               Action Plans: Submerged Cultural Resources

               Ill. Management of Historic Sanctuary                                 d.   Location, including whether it is in a zoned
               Resources                                                                  area or areas of coral, seagrass, or other
                                                                                          natural/historical significance;
               NOAA and the State of Florida agree that the com-                     e.   The integrity and degree of dispersal of the
               prehensive management plan for the Florida Keys                            shipwreck;
               National Marine Sanctuary should have uniform
               policies and regulations for the management of                        f.   Whether it is buried or encrusted in coralline
               resources throughout the Sanctuary which are                               formations;
               consistent with the provisions of the NMSA, the ASA,
               and the ASA Guidelines. The Sanctuary will be                         g.   Whether it is listed in, or eligible for listing
               managed to protect natural and historical resources,                       in, the National Register of Historic Places,
               including abandoned shipwrecks, for present and                            or is eligible for listing as, or is, a National
               future generations. The management will also                               Historic Landmark;
               facilitate access for research, education, and recre-
               ational enjoyment in a manner which is consistent                     h.   The site form recorded in the Florida Site
               with the primary objective of resource protection.                         File; and
               The management plan for the Florida Keys National                     i.   Whether the site is State-owned or subject to
               Marine Sanctuary does not terminate valid Federal                          preexisting rights of access under admiralty
               admiralty rights to certain shipwrecks that were in                        law.
               existence prior to the designation of the Sanctuary by
               Congress on November 16, 1990, pursuant to valid                 3. Any newly discovered shipwrecks or any new
               orders of Federal Admiralty Courts.                              information pertaining to listed shipwrecks brought to
               A.       Inventory and Documentation of Histori-                 the attention of NOAA or the State of Florida shall
               cal Shipwrecks                                                   immediately be included in the shipwreck inventory
                                                                                and, where appropriate, the Florida Site File. NOAA
               1 .      The survey and inventory of SCRs, including             and the State of Florida shall annually review the
               historical shipwrecks, is necessary for proper SCR               progress of the shipwreck inventory and shall make
               management and is required under Section 110 of                  recommendations for the following year's work.
               the NHPA. NOAA and the State of Florida will seek
               all appropriate public and private means of continuing           4. All information relating to each vessel including
               to survey the FKNMS and prepare a shipwreck                      field notes, historical information, photographs,
               inventory of all known shipwrecks and other SCR                  videotapes, site maps, drawings, inventory forms,
               sites within the Sanctuary.                                      and reports shall be maintained together and be
                                                                                deposited, when possible, in both the NOAA central
               2.       Information obtained from literary research,            repository and the Florida Site File. All such docu-
               survey and research permit reports, site maps and                mentation shall be available to the public for interpre-
               photographs shall be used to supplement the ship-                tive and educational purposes.
               wreck inventory. The shipwreck inventory will                    B. Resource Protection
               provide a database to aid resource managers in
               proper management of historical resources within the             NOAA and the State of Florida agree that in order to
               FKNMS. All shipwrecks shall also be reported to the              protect natural and historic sanctuary resources, the
               Florida Site File at the Florida Division of Historical          Sanctuary regulations will prohibit the unauthorized
               Resources. The shipwreck inventory shall, at a                   removal or injury of historical resources and the
               minimum, contain the following information:                      unauthorized alteration of the seabed. Applications
                   a.   Popular name and, when known, the vessel                for permits involving activities which may injure
                        name, if different;                                     historical resources will be reviewed by the State
                                                                                Historic Preservation Office, and NOAA. Permits
                   b.   Vessel size, type, and age;                             which strictly adhere to the Sanctuary regulations,
                                                                                and this SCR Agreement, are also deemed to be in
                   c.   When known, the wreck date and function at              compliance with Section 106 of the National Historic
                        the time of the wreck incident;                         Preservation Act, and do not require approval of the
                                                                                Advisory Council on Historic Preservation. Permits


               184







                                                                                      Action Plans: Submerged Cultural Resources

               which are outside of the scope of this SCR Agree-                      tions on regulating public access to the
               ment, in whole or in part, are subject to Section 106                  shipwreck. In the absence of specific instruc-
               review.                                                                tions from the applicable sovereign, under
                                                                                      customary international law, access by any
               C. Public Access                                                       U.S. national to shipwrecks entitled to
                                                                                      sovereign immunity is prohibited. When a
               1. NOAA and the State of Florida agree to allow                        sovereign grants permission, it generally
               public access to historic resources which does not                     limits access to named individuals for
               harm the natural or historic qualities of these re-                    specified purposes. As a matter of policy,
               sources. Sport divers shall have access to publicly                    the U.S. Navy does not abandon its vessels,
               owned shipwrecks having recreational value. Such                       and permission is generally not given to
               access may be further facilitated through the place-                   access, or salvage, sunken Navy vessels.
               ment of marker buoys and anchor moorings and
               through the distribution of information at dive shops         4. NOAA and the State of Florida agree that public
               and marinas.                                                  access to historical resources removed from the
                                                                             Sanctuary shall be maintained through curation and
               2. NOAA and the State of Florida agree that gener-            display agreements consistent to the maximum
               ally, any person should be able to freely and without         extent practicable with 36 CFR Part 79.
               a permit dive on, photograph, or otherwise use and
               enjoy publicly owned shipwrecks, including historical         D. Education
               shipwrecks and shipwrecks whose historical signifi-
               cance has not yet been evaluated, provided that the           1. NOAA and the State of Florida agree that in order
               use or activity does not involve disturbing or remov-         to responsibly manage historical resources in the
               ing parts or portions of the shipwreck, its immediate         FKNMS, a public education program shall be devel-
               environment, coral, seagrass, and other natural               oped to facilitate the understanding of these re-
               resources.                                                    sources, their significance in maritime history, and
                                                                             the importance of their preservation.
               3. NOAA and the State of Florida agree that there
               may be instances in which access to certain ship-             2. Public education will be facilitated through public
               wrecks should be limited. Decisions to limit, monitor,        workshops, field trips, volunteer projects.
               or prohibit public access to shipwrecks shall be made
               on a case-by-case basis, be practical, and fairly             3. NOAA and the State of Florida shall work toward
               administered. NOAA and the State of Florida may               establishing a system of underwater parks and
               seek comments from various interested groups prior            underwater shipwreck trails where public access
               to imposing restrictions on public access to ship-            shall be encouraged. Recovery shall be prohibited in
               wrecks. Generally, public access to shipwrecks shall          these areas.
               be regulated, including zoning, when:
                                                                             4. The volunteer coordinator will develop an educa-
                    a.  A shipwreck is extremely fragile and in              tional program for public volunteers to participate in
                        danger of collapsing;                                gathering historical information for the shipwreck
                                                                             inventory.
                    b.  A shipwreck is suffering extensive deteriora-
                        tion or attrition due to prior access;               5. To the extent practicable, recovered artifacts shall
                                                                             be placed in museums for public display and interpre-
                    c.  A permittee who is recovering a shipwreck            tation. Museums shall also develop interpretive
                        under a valid permit requests that access be         programs that help illustrate the background and
                        regulated during the term of the permit;             history of the recovered artifacts.

                    d.  A shipwreck site presents an unacceptable            E. Permits
                        risk to human safety and the visitor does not
                        assume full responsibility for his or her            1. NOAA and the State of Florida agree that non-
                        safety; or                                           intrusive surveys of historical resources are encour-
                                                                             aged and will not require a survey/inventory permit.
                    e.  A shipwreck is subject to sovereign immu-            However, no archaeological research/recovery permit
                        nity and the applicable Federal government           will be granted unless and until the applicant has
                        agency or foreign nation provides instruc-           gone through the survey/inventory process success-

                                                                                                                                    185







               Action Plans: Submerged Cultural Resources

               fully or can otherwise demonstrate his or her profes-                   c) Is the SCR listed in, or eligible for, inclu-
               sional abilities and that research/recovery is worthy          sion in the National Register of Historic Places? Is it
               of consideration by NOAA and the State.                        a National Historic Landmark?

               2. Consistent with the policies of the National Marine                  d) Will the proposed recovery result in a
               Sanctuary Program and the Federal Archaeological               nomination to the Secretary of Interior to list the SCR
               Program, NOAA and the State of Florida prefer that             in the National Register of Historic Places or result in
               SCRs are preserved in situ. Because historic                   a recommendation for designation as a National
               resources are an irreplaceable non-renewable                   Historic Landmark?
               resource, they should remain in the sanctuary for
               research, education and the viewing enjoyment of the                    e) Will the proposed recovery result in the
               public for present and future generations, unless and          acquisition of new historical information or verify
               until there is a substantial public interest justification     historical documentation?
               for their removal.
                                                                                       f) Is the SCR threatened? Is it being dam-
               3. Requests for the archaeological recovery of                 aged or destroyed by natural processes (such as
               historic shipwrecks and their associated artifacts             erosion), or by human activity (intentional or uninten-
               shall be jointly reviewed and approved by NOAA and             tional)? Is the threat imminent and unavoidable?
               the State of Florida in accordance with this agree-
               ment and the permitting procedures found in the                         g) Will the area be restored to its original
               FKNMSPA implementing regulations. Deaccession/                 condition?
               transfer permits are for commercial salvage and have
               been determined to be Special-use permits, and are                      h) Will recovery impede navigation?
               therefore also subject to the requirements and
               conditions for Special-use permits.                            5. The permit applicant, named principal investigator
                                                                              or supervisor of operations, must meet, at a mini-
               4. The proposed recovery activity must be in the               mum, the following qualifications to carry out the
               public interest and should, at a minimum, further              activity:
               archaeological knowledge. For example, to facilitate
               research, education, public access and other man-                  a.   Hold a graduate degree in anthropology or
               agement objectives for the FKNMS, the ASA, and the                      archaeology, or equivalent training and
               ASA Guidelines, decisions will be made on a case-                       experience;
               by-case basis by weighing and balancing the values
               and uses a particular shipwreck may have, the                      b.   Completed at least 12 months of experience
               potential benefits to be derived from the proposed                      in research concerning archaeological
               recovery activity, and the potential adverse effects of                 resources of the pertinent period, meaning
               the proposed recovery activity. Only those public                       that applicants proposing to study historic
               and private sector recovery activities that are in the                  shipwrecks should have one year of experi-
               best interests of the public should be authorized. To                   ence in historic shipwreck research, etc.;
               help determine whether a proposed public or private
               sector activity is in the best interest of the public, in          c.   Demonstrate the ability to plan, equip, staff,
               addition to the factors/criteria in the sanctuary                       organize, and supervise the type and scope
               regulations and elsewhere in this agreement, consis-                    of the proposed activity;
               tent with the ASA guidelines, NOAA and the State
               will also consider the following:                                  d.   Demonstrate the ability to carry out research
                                                                                       to completion, as evidenced by timely
                       a) Is the SCR owned by the State; or is it                      completion of theses, research reports, or
               subject to sovereign immunity or other sovereign                        similar documents; and
               interest, i.e., Florida, U.S., or Foreign government?
                                                                                  e.   Completed at least 16 months of professional
                       b) What are the SCR's current and potential                     experience and/or specialized training in
               value and uses? Is recovery consistent with those                       archaeological field, laboratory, or library
               values and uses? Will it enhance those values and                       research, administration, or management,
               uses? Will it irrevocably damage or destroy any of                      including at least four months experience
               those values and uses?                                                  and/or specialized training in the kind of
                                                                                       activity being proposed.

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                                                                                        Action Plans: Submerged Cultural Resources

               6. The permit applicant, named principal investigator,                   3. A statement of the responsibility of the
               or supervisor of operations must directly supervise all                      permittee.
               permitted activities and participate in all recovery
               operations.                                                         i. A plan for the storage and public availability of
                                                                                     records related to the research project and the
               7. Permit applications to recover historical resources                artifacts;
               shall, at a minimum, include the following information:
                                                                                   j. A separate statement of the professional
                    a.   A research plan describing in detail specific               qualifications for each personnel member who
                         research objectives;                                        will conduct the activities involved in the.
                                                                                     project, signed and certified by that personnel
                    b.   A statement of the project's research signifi-              member; and
                         cance;
                                                                                   k. Any other information that may be determined
                    c.   A detailed operational plan including                       necessary on a case-by-case basis.
                         description of the proposed methods to be
                         used for excavation, recovery, and storage of        8. The permittee shall submit a final report detailing
                         artifacts and related materials on site;             the research plan, methodologies, field operations,
                                                                              and research findings.
                    d.   An analysis of the extent and nature of
                         potential environmental impacts to Sanctu-           9. A permittee authorized to excavate and recover an
                         ary resources;                                       historical shipwreck may:

                    e.   A plan for site restoration and remediation;              a.   Make presentations on the results of the
                                                                                        recovery activity and the archaeological
                    f.   A statement of compliance with the Federal                     findings in public forums;
                         archaeological program Executive Order
                         11593 and federal statutes cited therein, and             b.   Prepare scientific and nontechnical, popular
                         implementing regulations and guidelines);                      publications; and

                    g.   A signed agreement with an appropriate                    c.   Make artifacts and other materials recovered
                         conservation facility detailing a plan for the                 from the shipwreck available for future
                         conservation, curation and public display of                   study, public interpretation, and public
                         artifacts consistent with Federal law (36 CFR                  exhibition.
                         Part 79);
                                                                              10. NOAA or the State of Florida may periodically
                    h.   A signed agreement with a repository, i.e.,          monitor permitted recovery activities to ensure that
                         museum, archaeological center, laboratory or         they are in compliance with all terms and conditions
                         storage facility managed by a university,            of the permit.
                         college, museum, other educational or
                         scientific institution, Federal, State or local      11. NOAA or State of Florida officials who monitor
                         government agency, to provide professional,          permitted activities shall have the authority to imme-
                         systematic and accountable curatorial                diately suspend the permit if it appears the activity is
                         services on a long-term basis. Agreements            not in compliance with the conditions and terms of
                         shall, at a minimum, include:                        permit. Once work is suspended, work may not
                                                                              resume until NOAA and the State have conducted a
                         1 . A statement that identifies who owns and         thorough review and notified the permittee of their
                             has jurisdiction over the collection;            findings.

                         2.  A statement of work to be performed by           12. Any person applying for a permit must demon-
                             the repository, including how the artifacts      strate their financial ability for the proposed activity.
                             will be stored, assessed, preserved,             In cases where NOAA and the State are concerned
                             maintained, exhibited, and conserved;            about the financial ability to complete the project, a
                             and                                              performance bond or other security to cover costs
                                                                              associated with the recovery, conservation and final
                                                                              report may be required in order to approve the

                                                                                                                                         187







               Action Plans: Submerged Cultural Resources

               permit. The terms of the performance bonds shall be                   experienced in the conduct of marine sur-
               deemed fulfilled when the recovery activity is com-                   veys, the use of remote sensing equipment,
               pleted in compliance with the permit, the recovered                   and the examination and analysis of remote
               items are properly conserved and analyzed, and the                    sensing readings for the purpose of identify-
               final report submitted pursuant to subparagraph                       ing shipwrecks.
               (E)(8) is jointly reviewed and approved by NOAA and
               the State of Florida.                                            c.   The location of a shipwreck should be
                                                                                     recorded on a map using a standard coordi-
               13. The permittee, at his or her expense, shall                       nate system.
               provide secure storage of artifacts. NOAA and State
               approval of the storage facility may include the             5. All SCRs located during a remote-sensing survey
               waiver of the insurance requirements.                        should be groundtruthed through seabed inspection,
                                                                            either by remotely operated vehicle or divers. Ship-
               F. Survey/Inventory Permits                                  wrecks should be examined to determine the nature,
                                                                            extent and integrity of the wrecked vessel, surviving
               1. NOAA and the State of Florida agree that to               cargo, and associated scattered wreckage, and to
               adequately protect historical resources within the           locate any visible human remains.
               FKNMS it will be necessary to develop a detailed
               understanding of the number, nature, location, and           6. SCRs shall be examined in a nondestructive and
               historical significance of shipwrecks in the FKNMS.          nondisturbing manner. Determinations of a
                                                                            shipwreck's type, age, condition, and, when possible,
               2. To assess the number, nature, location, and               specific identity shall be made without test excava-
               historical significance of shipwrecks in the FKNMS,          tions or removal of artifacts or other materials.
               nonintrusive surveys of historical resources are
               encouraged. Survey/inventory activities that are non-        7. When test excavations are necessary or artifacts
               intrusive, do not include any excavation, removal, or        or other materials must be removed, i.e., if the
               recovery of historical resources, and do not result in       shipwreck is embedded or encrusted, the amount to
               destruction of, loss of, or injury to Sanctuary re-          be excavated or removed shall be as limited as
               sources or qualities, do not require a permit. How-          possible to make evaluations, and be done using
               ever, if a survey/inventory activity will involve test       archaeological methods. Any artifacts or other
               excavations or removal of artifacts or materials for         materials recovered from historic shipwrecks shall be
               evaluative purposes, a Survey/Inventory of Historical        conserved by a nautical conservator.
               Resources permit is required.
                                                                            8. AlItapes, equipment readings, field notebooks,
               3. Applications to conduct surveys shall contain a           and logs generated during surveys shall be collated
               description of the methodology to be employed.               and archivally saved for future study.
               Preference shall be given to applications for survey/
               inventory permits that propose employing superior            9. Survey reports that describe the areas surveyed,
               scientific methodologies and techniques, i.e., the use       survey methods used, and the results of the survey
               of magnetometers, side-scan sonar, sub-bottom                shall be prepared and published. Copies of the
               profilers, and remotely operated vehicles, if appropri-      reports shall be submitted to NOAA and the State of
               ate for the area being surveyed. No more than one            Florida.
               permit will be issued for a particular site for a particu-
               lar period of time. The duration of permits should not       G. Research/Recovery Permits
               exceed five years.
                                                                            1. NOAA and the State of Florida agree that research
               4. Authorized survey activities shall be conducted           involving excavation, recovery or other intrusive
               according to the following minimum requirements:             activities will be prohibited, unless authorized and
                                                                            strictly regulated by a research/recovery or
                  a.   Surveys should be conducted systematically,          deaccession/transfer Special-use Permit issued
                       with sufficiently close lane spacing to              pursuant to section H.
                       provide accurate, detailed coverage of the
                       survey area;                                         2. Based upon the need to protect natural and
                                                                            historical resources, and the potential use of the
                  b. Surveys should be conducted by a team that             resource for research, education, recreation, or other
                       includes, at a minimum, persons trained or

               188






                                                                                             Action Plans: Submerged Cultural Resources

                 public or private uses, use of historic resources in               H. Deaccession/Transfer Special-use Permits
                 situ is preferred.
                                                                                    1. NOAA and the State of Florida agree that based
                 3. Recovery of historical resources may be appropri-               upon the potential use of historical resources for
                 ate if NOAA and the State of Florida determine that                research, maintaining recovered resources together
                 such activity is in the public interest and that the               at one location as a collection is preferred. However,
                 removal of historical resources may be necessary or                agreements for the curation and display of recovered
                 appropriate to protect the resource, preserve histori-             historical resources may provide for distribution of
                 cal information and/or fulfill other NMSA purposes,                artifacts in order to fulfill resource protection, re- '
                 such as land based research, education, public                     search, education or other purposes of the Sanctu-
                 access and appreciation.                                           ary.

                 4. Recovery of historical resources will only be                   2. The following types of artifacts are historical
                 permitted as part of research to preserve the historic             resources and shall remain Sanctuary resources and
                 information for public use.                                        shall not be unconditionally transferred to the private
                                                                                    sector, unless the NOAA Marine Archaeologist and
                 5. NOAA and the State of Florida will jointly deter-               the State archaeologist (NOAA/State archaeologists)
                 mine whether intrusive research/recovery should be                 determine that the artifact is no longer of historical
                 permitted on a case by case basis, weighing and                    interest pursuant to paragraphs 11 -13:
                 balancing the values and uses a particular shipwreck
                 may have, the potential public benefits to be derived                  a.   All portions of shipwrecks, which are of ar-
                 from the proposed recovery, and the potential                               chaeological interest and at least 50 years
                 adverse effects to be caused by the proposed                                old, including, but not limited to, arma-
                 activity. Only those recovery activities for which a                        ments, apparel, tackle, and cargo;
                 public interest is demonstrated and that further the
                 purposes and policies of the NMSA and FKNMSPA                          b.   Any material remains, if they are at least 50
                 shall be authorized.                                                        years old and reflect past human life or
                                                                                             activities, or have social, cultural,
                 6. To determine whether a proposed recovery activity                        archaeological, aesthetic, or religious signifi-
                 is in the public interest, NOAA and the State of                            cance with regard to past human life or
                 Florida shall, at a minimum, consider the public                            activities, found within or as part of a
                 interest consideration set forth in E.4 and the follow-                     shipwreck, in the debris field of a shipwreck,
                 ing:                                                                        or in an historical context. This includes, but
                                                                                             is not limited to, any portion or piece of
                     a.   The shipwreck's current and potential future                       crafted items, modified raw materials,
                          values and uses and whether the proposed                           natural-state raw materials, food products,
                          recovery is consistent with or enhances such                       and paleontological remains.
                          values and uses;
                                                                                    3. NOAA and the State of Florida agree that there
                     b.   The archaeological or historical significance             may be instances in which certain historical re-
                          of the shipwreck site;                                    sources are no longer of historical interest and,
                                                                                    therefore, may be transferred into private ownership.
                     c.   The structural integrity of the shipwreck site
                          and the potential adverse effects that may                4. NOAA and the State of Florida agree that if the
                          result from the proposed recovery; and                    NOAA/State archaeologists determine that an object
                                                                                    is not an historical resource, pursuant to 2(a) or 2(b),
                     d.   The environmental impacts of the proposed                 it may be available to the party that recovered it
                          recovery activity.                                        pursuant to a valid Sanctuary permit.

                 7. For any research/recovery activity proposed within              5. NOAA and the State of Florida agree that if certain
                 the FKNMS, the artifacts and material remains that                 artifacts or portions of a collection of artifacts become
                 are recovered from the shipwreck site shall remain                 available for transfer to the private sector, all of the
                 public resources, unless transfer of title has occurred            artifacts shall have first been conserved, analyzed,
                 pursuant to a permit described in section H.                       interpreted in a published report, and in each in-
                                                                                    stance, representative samples retained for research,
                                                                                    education, or public display.

                                                                                                                                                189






               Action Plans: Submerged Cultural Resources

               6. NOAA and the State of Florida agree that transfer               b.   An intact collection is usually of higher
               of artifacts may occur only after field operations and                  historical value then unrelated artifacts;
               laboratory analysis are completed and the final report
               is approved by the NOAA/State archaeologists.                      c.   Identical artifacts are usually of low histori-
                                                                                       cal interest when a representative sample is
               7. NOAA and the State of Florida agree that to the                      retained in public ownership;
               extent possible, the items transferred shall be
               preserved and maintained as an intact collection and               d.   Similar artifacts are usually of low historical
               shall be made available for future study, public                        interest when a sample representing all types
               interpretation, and exhibition.                                         is retained in public ownership;

               8. NOAA and the State of Florida agree that as a                   e.   Items of unmodified raw material are usually
               condition of transfer of ownership of artifacts, infor-                 of low historical interest when a sample
               mation on the recovery activity and the archaeologi-                    representing the full range of variation is
               cal findings shall be disseminated by the permittee to                  retained. in public ownership;
               the scientific community and the public.
                                                                                  f.   Items of modified raw material are usually of
               9. NOAA and the State of Florida agree that after an                    moderate historical interest;
               artifact has been conserved, analyzed, and inter-
               preted in a published report, the NOAA/State archae-               g.   Items that are rare or unique are of high
               ologists may determine that the significant historical                  historical interest;
               information has been preserved and that the artifact
               is no longer necessary for providing additional                    h.   Items that have future potential for
               significant scientific or humanistic understanding of                   archaeological, historical, cultural, or
               past human behavior, cultural adaptation, and related                   scientific research are of high historical
               topics. In such an instance, the artifact may become                    interest.
               available for transfer to the private sector.
                                                                             12. The NOAA/State archaeologist shall determine
               10. NOAA and the State of Florida agree that the              the final disposition of artifacts as follows:
               following items, if determined by the NOAA/State
               archaeologists to be randomly deposited and found                  a.   Certain artifacts of high historical interest, or
               outside of a shipwreck, shipwreck debris field, or                      overriding cultural or scientific importance
               historical association and determined by the NOAA/                      are not available for transfer of title;
               State archaeologists to have no future potential for
               indicating any hitherto unknown or indefinite historical           b.   All artifacts are available for loan or other
               resource, shall not be of historical interest and may                   uses short of ownership as means of
               be transferred to the private party that recovered it                   generating revenue provided the permit con
               under the ierms of a valid permit. Such items include:                  ditions have been satisfied and artifacts are
                                                                                       properly cared for;
                  a. Unworked minerals and rocks;
                                                                                  c.   Items that are recovered illegally, or in
                  b. Modified raW materials (ingots, bullion,                          violation of a permit or condition thereof are
                       pigs);                                                          not available for transfer of title;

                  c. Coins, gems, projectiles.                                    d.   Certain artifacts of low historical interest
                                                                                    may be available for transfer of title.
               To determine whether the artifact may be available
               for transfer to the private sector, the NOAA/State            13. The decision to transfer title is to be made by the
               Archaeologists shall consider the factors listed in           NOAA/State archaeologists pursuant to the following
               paragraphs 11-13.                                             criteria:

               11. The following criteria shall be applied to deter-              a. Items of low historical interest regardless of
               mine whether an artifact is of historical significance:                 age may be transferred;

                  a. Items with no archaeological association are                 b.   Items greater than 50 years of age, and
                       usually of low historical interest;                             having moderate historical interest, may be

               190







                                                                               Action Plans: Submerged Cultural Resources

                      transferred, provided that no such artifacts
                      shall be conveyed until all conditions of a
                      deaccession/transfer permit have
                      been satisfied and representative samples
                      have been retained;

                  c. Items of high historical interest shall not be
                      transferred.




































































                                                                                                                         191







                                                     Volunteer Action Plan


               This action plan identifies and describes the                  planned, deliberate actions designed to accomplish
               volunteer activities that will be implemented                  specific management objectives.
               through a variety of strategies in the Florida Keys
               National Marine Sanctuary. The activities and                  A volunteer coordinator position was established in
               strategies within the plan are derived from                    1992 through a national cooperative agreement
               Alternative Ill, the most-balanced of the mid-                 between NOAA and The Nature Conservancy (TNC),
               range management alternatives. For each strat-                 and is jointly funded by the two organizations. The
               egy, the component volunteer activities, existing              coordinator will be responsible for implementing the
               level of program implementation, and organiza-                 Volunteer Program, and will work directly with the
               tions or individuals that will be responsible for              Sanctuary Superintendent to coordinate all volunteer
               implementing and conducting any new programs                   activities. The coordinator will also be responsible for
               are outlined (Table 23). As volunteers are not                 ensuring that the volunteer components of each
               paid staff, funding levels have not been included              strategy are fulfilled. This will require interaction with
               Also, because the rate and level of volunteer                  the individuals (e.g., Sanctuary staff, interagency
               activity implementation will be based largely on               personnel, and others) responsible for implementing
               the implementation of other strategy compo-                    the other components of the strategies in this plan.
               nents, scheduling information is not currently
               available. Finally, although the plan includes the             How the Plan is Organized. This action plan is
               most complete set of volunteer activities, only a              organized in three sections: an introduction, descrip-
               subset will be implemented in the first year of                tion of strategies, and a discussion of implementation
               Sanctuary operation. They are, however, still                  considerations. The introduction provides back-
               expected to be a significant component of the                  ground information on the Volunteer Program and
               Sanctuary management process.                                  provides a brief summary of volunteer programs
                                                                              already in place at the Sanctuary. It also summarizes
                                                                              the goals and objectives of existing and proposed
                 Introduction                                                 volunteer activities.
               Volunteer activities and programs are critical to the          The strategy description section groups volunteer
               success of many boating, recreation, fishing, water            activities based on whether they are components of
               quality, and education strategies in the Sanctuary             boating, fishing, recreation, research and monitoring,
               Management Plan. Based on the lack of funding                  or education strategies. A volunteer program for
               available to implement a variety of strategy compo-            administrative support is also described, and related
               nents, and the success of the volunteer programs at            activities currently in place are summarized. In
               both the Key Largo and Looe Key National Marine                addition, the agencies or organizations responsible
               Sanctuaries, volunteers are seen as a valuable                 for implementing the volunteer activities are identified
               Sanctuary resource.                                            for each strategy.
               In addition to supporting management activities in the         The final section discusses some considerations for
               Sanctuary, the Volunteer Program will also help                implementing the plan. It emphasizes the supporting
               coordinate assistance in other Sanctuary-related               role of volunteers in strategy implementation, and
               tasks (e.g., administrative and office work), and will         how these efforts will be organized.
               allow other agencies and groups in the state to work           While the implementation schemes of many strate-
               together in solving common management and                      gies in the Management Plan require volunteer
               administrative problems.                                       assistance to be fully successful, the implementation
               Developing an Integrated Program. The Volunteer                scheme for specific strategies is only described in
               Program will be the focal point for determining the            detail in the appropriate action plan.
               timing, source, type, and degree of volunteer assis-
               tance provided for each strategy in this plan. It will be
               used to develop an organized method for providing
               volunteer assistance to the various public and private         Requirements of the Volunteer Program. The type of
               institutions involved in implementing strategies within        volunteer participation implemented will depend on
               the Sanctuary. Accordingly, volunteer efforts will be          the strategy to be completed. Although Keys-wide

                                                                                                                                         193









                         Action Plans Volunteer

                         community participation will be encouraged, selected                                      Largo will be considered when new space allocations
                         activities will require specific technical skills Volun-                                  are made Each location should have two desks and
                         teers that are certified divers, for example, may be                                      a computer
                         asked to be "buddy divers," or boat owners may be
                         asked to help implement certain on-water activities                                       Personnel The Volunteer Program has grown rapidly
                         Volunteers with boat maintenance and repair or                                            since its inception in 1992 Because of the territory
                         carpentry skills will also be needed to complete the                                      covered, as well as the diversity of projects included,
                         activities within some strategies                                                         additional support staff will be required to assist the
                                                                                                                   Volunteer Coordinator
                         Facilities. The Volunteer Coordinators office is
                         currently located at the Sanctuary Administrative                                         The strategies for the Management Plan, which
                         Office in Marathon It is considered centrally located,                                    includes the Volunteer Action Plan and all other
                         and it is expected that the office remain there                                           action plans combined, have been grouped into three
                         Additional temporary work space for volunteers is                                         priority levels, based on their relative importance or
                         needed, and sites in Key West, Marathon, and Key                                          feasibility A strategy's priority level is based on


                         Table 23. Summary of Strategies and General Sanctuary Support Items Requiring Volunteer Assistance


                                                                                  Overall Sanctuary               Planned Level of                      Associated Action
                           pap                      Strategies                      Priority Level +            Action In Year I                              Plans

                           197  Boating
                           197  B 1      Boat Access'                                                                                          Channel Marking Mooring Buoy
                           197  B2       Habitat Restoration                              Low                         None                     Research & Monitoring
                           197  B 3      Derelict Vessels                                 Low                         None
                           198  B 4      Channel/Reef Marking                             High                        LOW                      Channel/Reef Marking, Regulatory
                           198  B 9      Visitor Registration                             LOW                         None
                           198  B10      Damage Assessment                              Medium                      Medium
                           199  Fishing
                           199  F 7      Artificial Reefs                                 Low                         None                     Regulatory, Research & Monitoring
                           199 F 9       Gear Removal                                     Low                         None
                           199  F11      Gear/Method Impacts                              LOW                         None                     Research & Monitoring


                           200  R 1      SCR Management                                 Medium                        LOW                      Regulatory, Submerged Cultural
                           200  R 2      Recreation Survey                                Low                         Norte                    Resources
                           201  Education and Outreach
                           201  E I      Printed Materials                                High                        LOW                      Education and Outreach
                           201  E.2      Audio Visual Materials                         Medium                        Low                      Education and Outreach
                           202  E 3      Signs/Displays/Exhibits                           Medium                        Low                      Education and Outreach
                           202  E 4      Training Workshops/School Programs             Medium                        LOW                      Education and Outreach. Water Quality
                           202  E-5      PSAs                                           Medium                        Low                      Education and Outreach
                           203  E 7      Promotional                                    Medium                        Low                      Education and Outreach
                           203  E10      Public Forum                                   Medium                        LOW                      Education and Outreach
                           203  Ell      Special Events                                 Medium                        LOW                      Education and Outreach
                           204  Research and Monitoring
                           204  W 20 Monitoring                                           High                        Low                      Research & Monitoring, Water Quality
                           204  W 33 Ecological Monitoring                                High                        LOW                      Research & Monitoring, Water Quality
                         20G General FKNMS Support                                                                               
                           205  Office Support                                                                  NotApplicable
                           205  Computer Support                                                                NotApplicable
                           205  Marine and Dock Maintenance                                                     NotApplicable
                           206  Fundraising                                                                     NotApplicable
                           205  inter-organizational Volunteer Coordination                                     NotApplicable
                           205  Group Leaders                                                                    Not Applicable
                           20  Boat Captains                                                                   Not Applicalbe
                           206  Special Projects                                                                NotApplicable
                           + Strategies YAM an'** for Overall Sanctuary Priority Level are already existing programs and/or will be completed In the first year of Sanctuary operation
                           I Much of this strategy will be completed prior to year 1, however, It Includes an activity that will continue Ind____________.




                         194
 






                                                                                                                    Action Plans- Volunteer


                 Existing Programs

                 The National Marine Sanctuary Program has a history of           their knowledge of the Sanctuary program, and are
                 using volunteers to assist with activities ranging from          developing a list of questions commonly asked about the
                                                                                  Sanctuary. Existing volunteer programs that contribute to
                 maintenance tasks to public education programs at both
                 the Key Largo and Looe Key national marine sanctuaries           Sanctuary management but are not specific Sanctuaq
                 Volunteers currently help with office support, vessel and        programs include boat and marina surveys; the monitor-
                 vehicle maintenance, underwater cleanup efforts, data            ing of corals, rocky interfidal areas, sponges, algae,
                 entry and database development, festival and special             mangroves, and Flonda Bay salinity; and the delivery of
                 booth interpretive activities, mooring buoy installation and     dive cards to dive shops. The Nature Conservancy has
                 maintenance, and special request response projects In            developed a Flonda Bay Watch program that will use
                 addition, they act as visiting group leaders, boat captains,     volunteers to collect water samples.
                 and aerial and on-water interpreters Based on the
                 success of these existing programs, it is expected that          Program Under Development, In addition to these
                 volunteer assistance in these and other program areas            activities, a major volunteer program is currently under
                 will be an integral part of the Florida Keys National Manne      development It is a cooperative effort between the
                 Sanctuary Program                                                Sanctuary Program and the Professional Association of
                                                                                  Dive Instructors (PADI), using the association's expertise
                 Sanctuary Management Assistance The Sanctuary's                  to develop a more-comprehensive diver training program
                 volunteer coordinator is currently working with Sanctuary        thatwill lead to improvements in environmental mon'd6r-
                 management to establish a framework for implementing             ing techniques. Modules of the PAD[ prograrn currently
                 education and outreach, research and monitonng, and              being considered would focus on fish identification,
                 other management strategies with a volunteer compo-              artificial reef monitoring, reef cleanups, and marine
                 nent. Volunteers are also visiting businesses and other          archaeology. After the development and application of a
                 sites in the Keys to determine their interest in displaying      pilot project, the program will be used as the prototype for
                 Sanctuary materials, are interviewing businesses about           similar programs in other national madne sanctuaries.
                11@"

                factors such as available funding, costs, personnel               However, volunteer needs may change based on
                requirements, timing, levels of existing implementa-              strategy modifications In addition, the type of effort
                tion, and existing leg islative/regulatory authority The          currently expected may not be required during
                high priority level includes the 16 most important                implementation, and a different type of effort may be
                strategies The medium priority level contains 36                  required once a strategy is in place Also, volunteers
                strategies that represent the next level of importance            may be useful in implementing strategies not cur-
                to the sanctuary and will have some level of activity             rently included in this plan, and they will help com-
                in year one Low priority items contain the remaining              plete a number of additional tasks, including office
                strategies in the Management Plan Those strategies                and computer support and Sanctuary maintenance
                planned for completion in or before year one do not               activities They will also assist other agencies and
                have a priority level                                             organizations with programs that complement the
                                                                                  Sanctuary Program's goals
                Volunteer Strategies Volunteers will help implement
                21 management strategies Strategy B 1, Boat                       Relationship to Other Action Plans. Because of
                Access, is an existing program and will be completed              the nature of the education strategies, volunteers will
                in year 1 The two highest-ranking strategies (both                provide a useful, economical, and efficient means of
                high priority level) requiring volunteer assistance are           strategy implementation Volunteers will also assist in
                Channel Marking (B 4) and Monitoring (W 20) Other                 activities that are components of the Channel/Reef
                high priority level strategies requiring volunteer                Marking, Enforcement, Mooring Buoy, Research and
                assistance include Printed Materials (E 1) and                    Monitoring, and Water Quality action plans As noted
                Ecological Monitoring (W 33) In addition, nine                    previously, the details of the overall implementation
                medium priority level strategies will require volunteer           schemes for the strategies in these action plans can
                assistance, and each will have some level of activity             be found in the specific plan This action plan only
                in year 1 The seven remaining strategies with a                   describes the volunteer assistance expected to be
                volunteer component are a low priority level, and are             required for each strategy
                not expected to be implemented in year 1

                Types of Volunteer Assistance This plan describes
                the level and type of assistance that each strategy
                with a volunteer component is expected to have

                                                                                                                                                195







               Action Plans: Volunteer





               Sanctuary Goals. One goal of the Volunteer Pro-
               gram is to support efforts to improve public education
               and awareness about the Sanctuary. Another is to
               provide information to Sanctuary managers to allow
               them to make more informed decisions and update
               the overall Management Plan. Volunteers also
               provide a mechanism for involving the community in
               Sanctuary activities, and represent a valuable
               resource to accomplish a variety of additional Sanc-
               tuary tasks. Because of limited funding, volunteer
               assistance will be critical to the ultimate success of
               many Sanctuary strategies. Volunteers will assist in a
               variety of Sanctuary activities including research and
               monitoring, education and outreach programs,
               underwater projects, Sanctuary representation at
               certain events and functions, and off ice/administra-
               tive tasks.


               Another goal of the Sanctuary Volunteer Program is
               to develop a strategy to target recruitment of volun-
               teers. The strategy will propose approaches to
               generating interest in the Program; explore sources
               to recruit from ( i.e. community groups, churches,
               neighborhood associations, other volunteer groups,
               government agencies); encourage schools to start
               nature clubs from which volunteers may be recruited;
               and explore ways to appeal to potential volunteers
               with a diversity of interests and skills. The strategy
               will define training areas, qualifications (such as
               boating and diving skills or research knowledge), and
               who will provide the new volunteer's training. The
               new strategy will provide recognition for the volun-
               teers that will help keep them involved and interested
               and put a high priority in providing them a sense of
               stewardship.

               Sanctuary Objectives. The overall objective of the
               Volunteer Program is to develop a system of public
               involvement in supporting the Sanctuary Program in
               a "hands-on" manner. Volunteers will support many
               Sanctuary activities that would otherwise not be
               accomplished as efficiently.













               196



Action Plans: Volunteer

Description of Strategies

Boating

Six boating strategies have a volunteer component.
Volunteers will help with boater surveys. underwater
habitat restoration projects, the removal and disposal
of abandoned and derelict vessels, channel/reef
marking, and other activities.

Boating Strategies
 B.1: Boat Access
Assist in a public-access survey

B.2: Habitat Restoration
Serve as buddy drivers and underwater
assistants

B.3: Derelict Vessels
Assist in a survey of abandoned and derelict
vessels

B.4: Channel/Reef Marking
Help map channel /waterway marking areas

B.9: Visitor Registration
Serve as registrars for the Sanctuary

B.10: Damage Assessment
Assist the damage assessment
team

Strategy B.1:
Boat Access

conduct a survey to assess public and private boat
access throughout the Sanctuary.

Assist in updating Public-Access Survey.
Volunteers will assist in updating information to be
included in the marine facilities database.

Implementation. The Volunteer Coordinator will be
responsible for organizing volunteer assistance. The
Florida Department of Environmental Protection
(FDEP) will be the lead agency responsible for
implementing this activity. NOAA and Monroe County
will provide support.

The implementation scheme for this strategy is
descirbed in the Channel/Reef Marking Action
plan. The strategy is also included in the Mooring
Buoy Action Plan.

Strategy B.2:
Habitat Restoration

conduct a program of restoration research at repre-
sentative habitat sites within the Sanctuary; develop
a restoration plan and implement restoration at
severely impacted areas. Monitor recovery pro-
cesses.

Serve a "Buddy Divers" and Underwater
Assistants. The Keys population contains many
individuals with a scientific background. Volunteers
will assist researchers with habitat restoration by
becoming "buddy divers" and underwater assistants.

Existing Program implementation. For several
years, volunteers have helped with scientific research
projects at the Key Largo and Looe Key national
marine sanctuaries by acting as "buddy divers" on an
ad-hoc basis.

Implementation. The volunteer coordinator will be
responsible for implementing this activity. Overall,
NOAA and the FDEP will be the lead agencies
responsible for strategy implementation. Various
nongovernmental organizations(NGOs will assist in
implementation.

The implementation scheme for this strategy is
described in the Research and MOnitoring Action
plan.

Strategy B.3:
Derelict Vessels

Develop a removal and disposal plan for derelict and
abandoned vessels throughiout the Sanctuary,
streamline the existing permitting process, and 
require the removal of derelict and abandoned
vessels throughout the Sanctuary.

Assist in a Survey of Abandoned and Derelict
Vessels. Volunteers will assist in surveying for
derelict vessels and recording information about the 
location , type, size and weight of such vessels.
 
Existing Program implementation Volunteers,
especially boat captains, have contacted representa-

						197






              Action Plans: Volunteer

              tives of the Key Largo and Looe Key national marine         mImplementation. The Volunteer Coordinator will
              sanctuaries when derelict vessels have been identi-         administer this activity. Overall, NOAA will be the
              fied.                                                       lead agency responsible for implementing this
                                                                          strategy. The FDEP will provide secondary imple-
              mImplementation. The Volunteer Coordinator will             mentation support.
              administer this activity. Overall, the FDEP will be
              primarily responsible for strategy implementation.
              Monroe County, NOAA, and NGOs will aid in imple-                             Strategy B.10
              mentation efforts.                                                      Damage Assessment
                                 Strategy B.4:                            Establish damage assessment standands for vessel
                           Channel/Reef Marking                           groundings in the Sanctuary.

              Establish a channel/waterway marking system                 Provide Assistance to Damage Assessm'ant
              throughout the Sanctuary.                                   Team. Volunteers will assist the damage asseosment
                                                                          team by helping with equipment, measurements, and
               Help Map Marking Areas. Volunteers will assist in          other activities related to underwater damage as-
              assessing boater-use and impact levels. They will           sessment activities.
              also help develop a standardized marking system,
              determine the criteria used to evaluate which chan-         nExisting Program Implementation. NOAA and the
              nels will be marked, and install channel/reef markers.      FDEP are currently planning to establish damage
              mImplementation. The Volunteer Coordinator will             assessment procedures.
              administer this activity. Overall, NOAA and Monroe          mImplementation. The Volunteer Coordinator will
              County will share the lead responsibility for strategy      administer this activity. Overall, NOAA will be the
              implementation. The U.S. Coast Guard (USCG) and             lead agency responsible for implementing this
              the FDEP will provide secondary implementation              strategy. The FDEP will provide secondary imple-
              support.                                                    mentation support.

              The implementation scheme for this strategy is
              described in the ChanneLlReef Marking Action
                                                                                 n,
              Plan. This strategy is also included in the Regula-
              tory Action Plan.                                           Three fishing strategies have a volunteer component.
                                                                          Volunteers will assist in research activities and on-
                                 Strategy B.9:                            water programs.
                            Visitor Registration                                             m -
                                                                          WE 14 i     m"t,
                                                                                        a p9wes
                                                                                 M7     11
              Establish a voluntary visitor registration program to                   I#Re#k@
                                                                                                  lon
              assess user activity in the Sanctuary.                                                t
                                                                                                                   low
                                                                                           oval,"
                                                                                       ITO
               Serve as Registrars for the Sanctuaty. Volun-              ,@;F49: Gear,114
                                                                                        Onremoval
                                                                          is@ As,s 16t i n, go
              teers will work with Sanctuary staff at marinas, local
                                                                                                    M"
              chambers of commerce, visitor centers, Sanctuary
                                                                          OFF'.1 Z11,GwidMethod IM,
              offices, and other Federal, State, and local agencies
                                                                                                                                 J
                                                                                                     40"w
              to conduct surveys of areas visited most frequently,                                 , p,
                                                                                                     i   -imb,Adfishlha aear-lk@
              and types of visitor activities. The goal is to evaluate
              Sanctuary-use patterns.

              mExisting Program Implementation. Sanctuary
              officers have informally gathered information on
                                                                          @giO Ass





              visitor-use patterns for the past 17 years.


              198







                                                                                                                 Action Plans: Volunteer

                                                                                mExisting Program Implementation. The ongoing
                                     Strategy F.7:                              Sanctuary/PADI project includes a gear-removal
                                   Artificial Reefs                             component.
                Conduct research on the impacts of artificial reefs on          nImplementation. The Volunteer Coordinator will
                fish and invertebrate populations for long-term                 administer this activity. Overall, NOAA will be the
                management, including location, size, materials, etc.           lead agency responsible for strategy implementation.
                Monitor and evaluate habitat modification caused by             The process for developing and implementing
                the installation of marine structures. Assess and               regulations is described in.the Regulatory Action
                develop regulations for artificial reef construction, and       Plan.
                evaluate habitat suitability for artificial reefs.

                 Assist in Data Collection. Volunteers will assist                                  Strategy F. 11
                researchers in gathering information on the impacts                           Gear/Method Impacts
                of artificial reef development on fish and invertebrate
                populations. They will also help compile information            Conduct research on alternative fishing gear and
                about habitat modifications resulting from artificial           methods that minimize impacts on habitat. Implement
                reef construction.                                              a voluntary program to encourage the use of low-
                                                                                impact gear and methods. Implement regulations to
                mExisting Program Implementation. An ongoing                    require the use of low-impact gear and methods in
                Sanctuary/Professional Association of Dive Instruc-             priority areas. Characterize harvesting stresses
                tors (PADI) project involves training volunteer divers          affecting outer and inshore reefs and hardbottom
                in underwater data-collection techniques. Training              ecosystems.
                divers in artificial reef data-collection techniques is
                one element of the project. NOAA, the PADI, Florida              Assist with Research on Low-impact Fishing
                Sea Grant, and other NGOs are involved in develop-              Gear. Volunteers will assist Sanctuary staff by
                ing this project.                                               researching the use of low-impact fishing gear and
                                                                                methods.
                mImplementation. The Volunteer Coordinator will
                administer this activity. Overall, the FDEP will be the         simplementation. The Volunteer Coordinator will
                lead agency responsible for implementing this                   administer this activity. The South Atlantic and the
                strategy. The National Marine Fisheries Service                 Gulf of Mexico fisheries management councils and
                (NMFS), Monroe County, and Florida Sea Grant will               the Florida Marine Fisheries Commission (FMFC) will
                provide secondary implementation support.                       share the lead responsibility for strategy implementa-
                                                                                tion. The FDEP and NMFS will provide secondary
                The implementation scheme for this strategy is                  implementation support.
                described in the Research and Monitoring Action
                Plan.                                                           The implementation scheme for this strategy is
                                                                                described in the Research and Monitoring Action
                                                                                Plan.
                                     Strategy F.9:
                                    Gear Removal


                Develop a program for the removal of lost or out-of-
                season fishing gear, and implement in all areas of the
                Sanctuary.

                0 Assist in Gear Removal. As soon as the areas
                considered high-priority for cleanup have been
                identified and removal methods determined, volun-
                teers will assist in removing abandoned fishing gear
                and traps. This activity will complement the general
                underwater cleanups that occur several times a year.




                                                                                                                                         199







              Action Plans: Volunteer

                                                                          The implementation scheme for this strategy is
                             '3157
                                                                          described in the Submerged Cultural Resources
                                                   ..... . ..... ..... . ...... Action Plan. This strategy is also included in the
              Two recreation strategies have a volunteer compo-           Regulatory Action Plan.
              nent. They will primarily involve data-collection
              eff orts.                                                                      Strategy R.2:
                    %
                                                                                          Recreation Survey

                      SCRAan"60em""e'n't"",
                        "i 1 '8 '@" ' '@"' b                              Establish a routine survey of recreational activities
                  Assist in inventorying su merged cultural
                  resources                                               and use levels within the Sanctuary through a survey
                 "@,,Vdlunteeftraining program                            of charter and recreational-for-hire vessels, intercept
                                                                          surveys at access points and launch sites, and
                        der"eafloh' Survey
                "AZ- R'                                                   periodic field surveys.
                  Assist'in implementing the redre4tion survey
                    ss
                                                                            Assist in Implementing the Recreation Survey.
                                                                          Volunteers will help conduct a survey to determine-
                                 Strategy R.1:                            types, levels, users, and locations of recreation
                                                                          activities within the Sanctuary. They also will assist
                              SCR Management                              in interviewing captains of charter and recreational-
                                                                          for-hire vessels and the general public at access
                                                                          points, launch sites, and on the water. The survey
              Develop and implement a program to manage                   will collect information on operator and safety
              submerged cultural resources. Conduct an inventory          equipment and visitor behaviors, such as the use of
              of submerged cultural resources and assess survey           gloves and buoyancy vests.
              and extraction techniques within the Sanctuary.
              Require permitting throughout the Sanctuary.                mExisting Program Implementation. Volunteers have
                                                                          interviewed commercial boat captains as part.of the
                Assist in Inventorying of Submerged Cultural              recreation survey.
              Resources. Volunteers will assist Sanctuary staff in
              compiling an inventory of submerged cultural re-            mimplementation. The Volunteer Coordinator will
              sources, and will assist researchers in compiling           implement and administer this activity. Overall,
              specific site data (including name, age, integrity, and     NOAA will be the lead agency responsible for
              historical significance). Volunteers will also help         strategy implementation.
              develop a shipwreck survey and a comprehensive
              bibliography.


              ;
                Existing Program Implementation. The ongoing
                anctuary/PADI project includes a modu    le for
              inventorying and mapping SCRs.

              nImplementation. The Volunteer Coordinator will
              administer this activity. Overall, NOAA will be the
              lead agency responsible for strategy implementation,

                Volunteer Training Program. A volunteer training
              program will be established to provide a mechanism
              for general public involvement in SCR research,
              documentation, and management.

              mimplementation. The Volunteer Coordinator will
              administer this activity. Overall, the National Park
              Service (NPS) and Florida Division of Historical
              F"k
                  A's















































              Resources (FDHR) will share responsibility for
              strategy implementation.

              200








                                                                                                           Action Plans: Volunteer

                                                                      "71  activities in the Florida Keys and their impacts on
                                                        R01- '11@
                                                     WW
                Ed' ition a      inl@`O iulii"W                            Sanctuary resources. Produce a limited number of
                                                                           audios/videos to address gaps in available materials,
               Every education and outreach strategy (except E.6)          and to address major activities including boating,
               has a volunteer component, and volunteer assistance         fishing, diving, etc. Materials will be available at
               is critical to the success of the Sanctuary's Education     Sanctuary offices and will be distributed to key
               and Outreach Program.                                       locations (dive shops, etc.) throughout South Florida.

                                                                           Assist in Developing the Audio-Visual Library
                                  Strategy E.1:                            and Audio-Visual Products. Volunteers will help
                                Printed Materials                          assemble available audio-visual environmental
                                                                           education materials, and will also assist in producing
               Develop printed materials to promote public aware-          a limited number of audios/videos to address gaps in
               ness of the impact of their activities, both land and       available materials. The goal is to create a library for
               water-related, on the Sanctuary's resources and             use by the public, private organizations, and Sanctu-
               environmental quality. Promote the proper use of            ary staff.
               equipment used for these activities in order to             nExisting Program Implementation. Volunteers are
               minimize adverse impacts to natural resources.              currently assisting the staff at the Key Largo National
               Materials will include brochures, posters, newsletters,     Marine Sanctuary by cataloging videos and assem-
               contributions to periodicals, environmental nautical        bling a slide library.
               charts, color environmental atlases, and a color
               periodical. Distribute materials in bulk to high-           mImplementation. The Volunteer Coordinator will
               interception locations (e.g., marinas, boat ramps,          administer this activity. Overall, NOAA will be the
               dive shops, other businesses, etc.), and include bulk
               mailings as a means of distribution.
                                                                               Education and Outreach Stratogtos,

               0 Assist Sanctuary Staff in Developing and
                                                                               E.111: Printed,Materials
               Distributing Printed Materials. Volunteers will                   Assist Sanctuary staff in developing
               assist the Education and Outreach Program staff by                and distributing printed materials
               gathering references and developing artwork for
               printed materials. They will also help distribute the           IE.2: Audio-Visual Materials
               materials to high-interception locations. In addition,            Assist in developing the audio/video
               volunteers may provide the translations for multilin-             library and audio and video products
               gual materials.
                                                                               E.3. Signs/Displays/Exhibits
               mExisting Program Implementation. Volunteers have                 Assist in developing and installinq
               assisted with the production of printed materials and             Sanctuary signs/displays/exhIbits
               the distribution of brochures.
                                                                               E.4; Tfaining/Workshops/Schooll Pirogirt'irn'b""",
                                                                                 Assist in training, workshops, and @Sch6o(,
               gImplementation. The Volunteer Coordinator will
               administer this activity. Overall, NOAA will be the               programs
               lead agency responsible for implementing this                   E 5* P$As
               strategy. The FDEP will provide secondary imple-                  Assist in developing public service
               mentation support.                                                announcements
               The implementation scheme for this strategy is                  E.7- Promotional
               described in the Education and Outreach Action                    Assist in developing promotional materials'
               Plan.
                                                                               E.10: Public Forum
                                                                               - Assist in preparing for public, meetiNs
                                   Strategy E.2:                               - Volunteers speakers bureau"'
                            Audio-Visual Materials                             * Assist with Sanctuary watch hot line

                                                                               E.1 11;,`Sp
               Inventory and use existing videos, films, and audio-
               visual environmental education materials portraying


                                                                                                                                 201







               Action Plans: Volunteer

               lead agency responsible for implementing this
               strategy. The FDEP will provide secondary imple-                                    Strategy EA
               mentation support.                                               Train ing/Workshops/School Programs
               The implementation scheme for this strategy is                 Develop opportunities for instruction and training.
               described in the Education and Outreach Action                 This will include programs conducted by teachers,
               Plan.                                                          Sanctuary staff, and volunteers. Training programs
                                                                              (e.g., Coral Reef Classroom, submerged cultural
                                                                              resources, etc.) will also be provided for teachers,
                                    Strategy E.3:                             environmental professionals, business owners and
                            Signs/Displays/Exh !bits                          operators, and law enforcement officials.

               Develop signs/displays at high-use areas, all public             Assist in Training, Workshops, and School
               and some private boat ramps, and some public                   Programs. This activity will result in a formal training
               beach access areas, to inform participants in water-           program for new volunteers, involving basic educa-
               based activities of regulations and environmentally            tion/orientation about the marine Sanctuary program,
               sound practices, provide navigation information, and           as well as task-oriented training that will enable
               promote awareness of nearby sensitive areas.                   volunteers to assist with in-school presentations and
               Portable displays will also be produced with informa-          on-site programs.
               tion on Sanctuary resources, regulations, environ-
               mental quality, etc. Most of the signs will be multilin-       mExisting Program Implementation. The Sanctuary's
               gual. Targeted multimedia displays will be developed           Volunteer Program Coordinator currently assists with
               with information and impacts on the Sanctuary                  the Sanctuary Program orientation.
               relevant to the activity targeted. A number of wayside
               exhibits will be installed.                                    mImplementation. The Volunteer Coordinator will
                                                                              administer this activity. Overall, NOAA will be the
               Develop a user-friendly computer system containing             lead agency responsible for implementing this
               information on regulations, access, recreational sites,        strategy. The FDEP will provide secondary imple-
               environmental etiquette, etc. for visitor use at se-           mentation support.
               lected sites throughout the Sanctuary within five
               years.                                                         9 Deliver Education Message at the Resource.
               * Assist in Developing and Installing Sanctuary                Volunteers located at popular sites where the public
               SignslDisplayslExhibits. Volunteers will assist the            is likely to access the resource will help to deliver
               Education and Outreach Program staff in producing              resource education and interpretation at the site of
               and installing multilingual signs and static displays          the resource (i.e., Team O.C.E.A.N.).
               and will advise staff on the placement of the signs            mExisting Program Implementation. Currently educa-
               and displays. They will also help set up and take              tion staff provide program orientation and support for
               down traveling exhibits, and will compile information          this activity. Sanctuary vessels are made available
               for the development of a user-friendly computer                for this activity.
               system.
                                                                              wImplementation. Overall, NOAA will be the lead
               mImplementation. The Volunteer Coordinator will                agency responsible for implementing this strategy.
               administer this activity. Overall, NOAA will be the            The FDEP will provide secondary implementation
               lead agency responsible for implementing this                  support.
               strategy. The FDEP will provide secondary imple-
               mentation support.                                             The implementation scheme for these strategies
                                                                              are described in the Education and Outreach
               The implementation scheme for this strategy is                 Action Plan. A component of this strategy is also
               described in the Education and Outreach Action                 included in the Water Quality Action Plan.
               Plan.









               202








                                                                                                           Action Plans: Volunteer


                                  Strategy E.5:                            mExisting Program Implementation. Volunteers
                                        PSAs                               currently assist the education staff at the Key Largo
                                                                           National Marine Sanctuary off ice by displaying
               Establish a program to promote Sanctuary goals and          brochures for walk-in visitors.
               activities through public service announcements             mImplementation. The Volunteer Coordinator will
               (PSAs) in South Florida, with some national and             administer this activity. Overall, NOAA will be the
               international public exposure, that presents an             lead agency responsible for implementing this
               overview of the Sanctuary, its resources, and their         strategy. The FDEP will provide secondary imple-
               ecological significance for routine distribution to         mentation support.
               radio, cable television stations, and newspapers.
               Develop editorial/contributions for other printed           The implementation scheme for this strategy is
               media. Funds will be spent on routine media expo-           described in the Education and Outreach Action
               sure. PSAs would focus on participants in water-            Plan.
               related and other activities that affect the Sanctuary
               (boaters, divers, household etc.). These materials will
               also be organized into a press packet.                                          Strategy E. 10
                                                                                               Public Forum
                Assist in Developing PSAs. Volunteers will help
               produce multilingual public service announcements           Establish a program to ensure public involvement
               for radio and television, and will translate materials      throughout South Florida in Sanctuary activities by
               for printed media. Spanish-speaking volunteers, for         holding public meetings and promoting Sanctuary
               example, will assist in producing PSAs broadcast in         awareness to extracurricular groups.
               Spanish on Miami television and radio stations.
               Volunteers will also help compile and distribute a            Assist in Preparing for Public Meetings. Volun-
               press packet.                                               teers will help Sanctuary staff organize public meet-
                                                                           ings, and will help develop a limited number of
               mImplementation. The Volunteer Coordinator will             printed materials to support presentations to external
               administer this activity. Overall, NOAA will be the         organizations (4-H clubs, scouts, etc.) and NGOs.
               lead agency responsible for implementing this
               strategy. The FDEP and NGOs will provide second-            mExisting Program Implementation. Volunteers
               ary implementation support.                                 currently help Sanctuary staff compile information
                                                                           packets for Advisory Council meetings.
               The implementation scheme for this strategy is
               described in the Education and Outreach Action              mImplementation. The Volunteer Coordinator will
               Plan.                                                       administer this activity. Overall, NOAA will be the
                                                                           lead agency responsible for implementing this
                                                                           strategy. The FDEP will provide secondary imple-
                                   Strategy E.7:                           mentation support.
                                   Promotional
                                                                           0 Form a Volunteer Speakers Bureau. Selected
               Promote educational materials, 1  ,ncluding bilingual       volunteers will be recruited and trained to deliver
               materials and other information about the Sanctuary         public programs to groups in South Florida. They will
               and its resources, at existing Sanctuary offices and        provide information about the Sanctuary to a wider
               local chambers of commerce. Establish interagency           range of groups than the staff can currently reach.
               visitor centers with the U.S. Department of Interior        mImplementation. The Volunteer Coordinator will
               (USDOI) and the Florida DER                                 administer this activity. Overall, NOAA will be the
                                                                           lead agency responsible for implementing this
                Assist in Developing Promotional Materials.                strategy. The FDEP will provide secondary imple-
               Volunteers will help establish visitor booths/displays      mentation support.
               in Sanctuary offices, chambers of commerce, and at
               an interagency visitor center. They will also help          The implementation scheme for this strategy is
               identify other no-cost/low-cost spaces to display           described in the Education and Outreach Action
               educational materials.                                      Plan.


                                                                                                                                 203







              Action Plans: Volunteer

                                                                           Provide Monitoring Assistance. Volunteers will
                                Strategy EA 1:                           assist with the monitoring program to obtain informa-
                                Special Events                           tion on the status and trends of the Sanctuary's water
                                                                         quality parameters and biological resources. This will
              Organize, support, and/or participate in special           include collecting samples for evaluating water
              events (e.g., trade shows, expositions, grand open-        column and sediment parameters. Volunteers will
              ings, etc.) that allow for the exchange of Sanctuary       also help sample seagrass, hardbottom, and man-
              information. The Sanctuary will cosponsor a number         grove communities.
              of conferences and workshops, with selected sole
              sponsorship of some events. This would include a           nExisting Program Implementation. The Nature
              "Sanctuary Awareness Week" and a "grand opening"           Conservancy has developed a Florida Bay Watch
              to the Sanctuary. The Sanctuary Program would              program to incorporate volunteer efforts into a water-
              cosponsor other "awareness" events/weeks (e.g.,            sampling program.
              National Fishing Week, etc.).                              mImplementation. The Volunteer Coordinator will
              0 Assist at Trade Shows and Special Events.                administer this activity. Overall, EPA and the FDEP
              Volunteers will assist Sanctuary staff at trade shows,     will be the lead agencies responsible for implement-
              local festivals, and special events.                       ing this strategy.
              nImplementation. The Volunteer Coordinator will            The implementation scheme for this strategy is
              administer this activity. Overall, NOAA will be the        described in the Water Quality Action Plan.
              lead agency responsible for implementing this
              strategy. The FDEP will provide secondary imple-
              mentation support.                                                           Strategy W.33:
                                                                                      Ecological Monitoring
              The implementation of this strategy is described
              in the Education and Outreach Action Plan.                 Develop and implement a Sanctuary-wide, extensive
                                                                         ecosystem monitoring program. The objective of the
                                                                         program will be to monitor the status of various
                                                                         biological and ecological indicators of system compo-
              "RObJe6roh and Monjitoring
                                                                         nents throughout the Sanctuary and adjacent areas,
              Two research and monitoring strategies have a              in order to discern the local and system-wide effects
              volunteer component. Volunteers will assist Sanctu-        of human and natural disturbances, and assess the
              ary staff with many of the research activities in each     overall health of the Sanctuary.
              strategy.                                                  * Assist in the Monitoring Program. Volunteers will
                                                                         help collect data on the status and trends of various
                                                                         ecological indicators. Volunteers will collect "pres-
               "'Pow; W,
                                                                         ence and absence" data to provide fisheries re-
                              it I
                          "an orng:,,.,
                                                                         searchers with additional information.


                                                                         mExisting Program Implementation. The Atlantis Dive
                                                           _42  ,        Center in Key Largo is currently conducting a volun-
                        '46" 10""'g-11cid monk@rlnq-w@
                            0
                           n't"M                                         teer training program that teaches fish identification
                  ';A-,ï¿½sis-f 'h   -c 44
                               e, on orifig"progr4m      A-
                                                                         and data-collection techniques, as well as how to
                                                                         achieve high data confidence. In addition, The Nature
                                                                         Conservancy has developed and implemented a
                                Strategy W.20:                           volunteer diver training program to compile informa-
                                  Monitoring                             tion on the location and health of certain coral
                                                                         species, and the Sanctuary/PADI cooperative project
              Conduct a long-term, comprehensive monitoring              has a module which includes benthic monitoring.
              program as described in the EPA Water Quality              Additionally, Reef Relief is currently conducting a
              Protection Program.                                        photo-monitoring program on corals in the Lower
                                                                         Keys.


              204








                                                                                                                                       Action Plans: Volunteer

                     sImplementation: The Volunteer Coordinator will                            mimplementation. The Volunteer Coordinator will
                     administer this activity. Overall, NOAA will be the                        administer this activity. Overall, NOAA will be the
                     lead agency responsible for implementing this                              lead agency responsible for office databases.
                     strategy. The FDEP will provide secondary imple-
                     mentation support.                                                         Marine and Dock Maintenance. Volunteers will help
                                                                                                with marine maintenance and dock maintenance
                     The implementation scheme for this strategy is                             activities, including mooring buoy installation, repairs,
                     described in the Research and Monitoring Action                            and cleaning; vehicle maintenance; boat mainte-
                     Plan.                                                                      nance; grounds maintenance; and storage shed and
                                                                                                dock area cleaning.

                                                                                                mExisting Program Implementation. Volunteers
                                 AITKS 0,          SUPPOrt
                                             . ........                                         currently help marine mechanics with vehicle, vessel,
                     Volunteer assistance is an integral part of many                           and dock maintenance.
                     Sanctuary activities not associated with specific
                     strategies. Volunteers will assist with general office                     simplementation. The Volunteer Coordinator will
                     and computer support tasks, maintenance activities,                        administer this activity. Overall, NOAA will be the
                     fundraising, and other important program elements                          lead agency responsible for marine maintenance
                     as detailed below.                                                         activities and dock maintenance at Sanctuary offices.

                     r@,, ,,@ @,,                I I     I          1;_ 11   Yl"@ "',"          Fundraising. Volunteers Will help with fundraising
                          '0_                 0.0
                                                                                                activities, including researching what grants are
                                                                                                        ble and providing assistance in developing
                     IWYO
                                                                                                avai a
                                         tpp          "K
                                             "'o
                                                                                                grant proposals.
                                6
                                   ,P  v      Up
                                  4    W ,       -  I , 4
                                               x        a
                                            1,   oc           -an                               nExisting Program Implementation. Volunteers
                                   ldirjai'
                                                                                                currently assist Sanctuary staff in reading the Federal
                                                                                                Register on a weekly basis to identify available

                                                              4',
                                                                                                funding sources.

                                                                                                wImplementation. The Volunteer Coordinator will
                                                                                                dun druster this activity. Overall, NOAA will be the
                     Office Support. Volunteers will provide general                            lead agency responsible for fundraising activities.
                     administrative support at the Sanctuary offices,                           Inter-organizational Volunteer Coordina                  Ition.
                     including answering telephones, copying materials,                         Volunteers will coordinate with staff from other
                     preparing mailings, greeting visitors, and other duties                    government agencies and NGOs involved in Sanctu-
                     as assigned.                                                               ary activities. The goal is to provide volunteer assis-
                     sExisting Program Implementation. Volunteers are                           tance for projects administered by other agencies
                     currently assisting staff at the offices with general                      and organizations that support the Sanctuary.
                     administrative activities.                                                 simplementation. The Volunteer Coordinator will
                     simplementation. The Volunteer Coordinator will                            administer this activity.
                     administer this activity. Overall, NOAA will be the                        Group Leaders. Volunteers will be recruited and
                     lead agency responsible for administrative activities.                     trained to lead specific projects conducted by groups
                     Computer Support. Volunteers will assist with data                         visiting the Keys.
                     entry at several Sanctuary offices. Databases are                          mExisting Program Implementation. Volunteers
                     updated on a daily or weekly basis, and volunteers                         trained by Sanctuary staff currently lead some
                     will help develop databases or modify programs as                          Sanctuary projects. Volunteers also lead group reef
                     requested by Sanctuary staff.                                              cleanups, and train and lead others in underwater
                     nExisting Program Implementation. Volunteers                               environmental monitoring efforts.
                     currently help the staff update their education data-
                     base.                                                                      simplementation. The Volunteer Coordinator will
                                                                                                administer this activity.

                                                                                                                                                                   205







              Action Plans: Volunteer

              Boat Captains. Volunteers will be trained to operate           ing data and cost and personnel estimates are
              Sanctuary vessels.                                             specified in the action plans listed at the end of each
                                                                             strategy description.
              mExisting Program Implementation. Volunteers
              piloting Sanctuary vessels for visiting researchers            Not all of the volunteer activities listed in this plan will
              and other volunteer programs.                                  be implemented in year 1. Elements of certain
                                                                             strategies will begin in year 1 (e.g., volunteers
              mimplementation. The Volunteer Coordinator will                inventorying visitor centers and businesses desiring
              administer this activity.                                      Sanctuary displays), and Sanctuary managers will
                                                                             play a major role in determining priorities when
              Special Projects. Volunteers will be contacted on an           several strategies need to be implemented simulta-
              as-needed basis for special projects and one-time              neously.
              Sanctuary events.
                                                                             The Sanctuary's Volunteer Program will be funded
              mExisting Program Implementation. Each summer,                 jointly by NOAA and The Nature Conservancy. In
              dive shops and volunteers are contacted to help                1992 the program budget was $48,300 and included
              monitor when coral spawns.                                     the salary of the Volunteer Coordinator, travel,
                                                                             supplies, equipment (including a computer), and
              mimplementation. The Volunteer Coordinator will                uniforms. In 1993, the program budget was $56,200.
              administer this activity.                                      As the Program grows, the funding needs will in-
                                                                             crease. The Program demands are already increas-
                                                                             ing, and additional staff are needed to support the
                Implementation                                               growing number of volunteers. NOAA and The
                                                                             Nature Conservancy must continue to support the
              The purpose of the plan is to explain that@volunteer           Volunteer Program at a level that enables the neces-
              efforts will be planned, deliberate actions designed to        sary volunteer resources to be provided to the
              accomplish specific management objectives          All         Sanctuary Program.
              volunteer efforts will be organized and directed by,44
              Sanctuary volunteer coordinator. However, the
              Volunteer Program is not a stand-alone component
              of the Sanctuary Program, and its success depends
              on its full integration into all Sanctuary programs and
              activities. All strategies in this plan will be imple-
              mented by a mix of agencies and organizations,
              some local and some national, as detailed in the
              action plans containing the specific strategies. The
              Coordinator will ensure that the volunteer portions of
              the strategies are implemented. This will require that
              the Coordinator work with Sanctuary staff, other
              agencies, and NGOs to implement volunteer activi-
              ties. In cooperation with these agencies and groups,
              the timing, scope, and scale of volunteer effort for
              each strategy will be determined.

              An implementation schedule is not included for each
              of the activities. Volunteer assistance will be used as
              much as possible within the boundaries of strategy
              implementation schedules described in the respec-
              tive action plans. In addition, because these actions
              are voluntary, requiring little or no resources, funding
              data are not included (aside from the general infor-
              mation listed below). Cost estimates and personnel
              estimates are also excluded from this plan, since
              they are not appropriate and/or are already ac-
              counted for in the implementing action plans. Fund-


              206







                                                Water Quality Action Plan

                The purpose of this action plan is to describe the           The introduction summarizes the goals and objec-
                suite of activities-including corrective actions,            tives of the Water Quality Action Plan and provides
                monitoring, and research-that are proposed to                background on the development of the Plan.
                deal with water quality problems in the Florida
                Keys National Marine Sanctuary. Each activity is             The description of strategies section summarizes
                derived from the set of management strategies                strategies grouped according to nine themes:
                included in Alternative Ill. Although this is the
                final set of water quality activities for the Sanctu-            * Florida Bay/external influences;
                ary, only a subset may be implemented due to a
                limited budget. The Water Quality Protection                     9 domestic wastewater;
                Program Document should be consulted for
                detailed information about water quality activities              9 stormwater;
                in the Keys. Table 24 summarizes key information
                about the implementation of water quality strate-                * marinas and live-aboards;
                gies.
                                                                                 9 landfills;

                 Introduction                                                    * hazardous materials;
                Recognizing the critical role of water quality in                * mosquito spraying;
                maintaining Sanctuary resources, Congress directed               * canals; and
                the U.S. Environmental Protection Agency (EPA) and
                the State of Florida to develop a Water Quality                  - research/monitoring.
                Protection Program for the Sanctuary. The purpose
                of the Program is to "recommend priority corrective          To the extent possible, each strategy is broken down
                actions and compliance schedules addressing point            into its component activities. Activity descriptions
                and nonpoint sources of pollution to restore and             discuss existing program implementation (if any), the
                maintain the chemical, physical, and biological              parties responsible for implementation (responsible
                integrity of the Sanctuary, including restoration and        agency, primary role, or assisting role), and a pro-
                maintenance of a balanced, indigenous population of          posed schedule for implementation.
                corals, shellfish, fish and wildlife, and recreational
                activities in and on the water" (Florida Keys National       The implementation section details how the entire
                Marine Sanctuary and Protection Act). In addition to         group of strategies comprising the Water Quality
                corrective actions, the Act also requires the develop-       Action Plan will be implemented. It summarizes
                ment of a water quality monitoring program and               priorities, implementing agencies, schedules, costs,
                provision of opportunities for public participation in all   geographic focus, personnel and equipment require-
                aspects of developing and implementing the Pro-              ments, contingency planning for changing budgets,
                gram. This action plan is an abbreviated version of          and how Program effectiveness will be evaluated.
                information contained within the Water Quality
                Protection Program Document.

                How the Plan is Organized. This action plan
                outlines the Sanctuary's proposed water quality              The strategies for the Management Plan, which
                activities according to the set of strategies included       includes the Water Quality Action Plan and all other
                within the Preferred Alternative. The strategies             action plans combined, have been grouped into three
                provide a mechanism for achieving the goals of the           priority levels, based on their relative importance or
                Program. The plan is organized into three sections:          feasibility. A strategy's priority level is based on
                1) Introduction, 2) Descriptio .n of Strategies, and 3)      factors such as available funding, costs, personnel
                Implementation.                                              requirements, timing, levels of existing implementa-
                                                                             tion, and existing legislative/regulatory authority. The
                                                                             high priority level includes the 16 most important

                                                                                                                                    207






                  Action Plans Water Quality

                          Table 24. Summary of Water Quality Strategies


                                                                               Overall        Planned                Funding tor Number of
                                                                               Sanctuary      Level             Months    Full     Activities to Number
                                                                               Priority   of Action In ++       to   Implemen-           be            of
                          Page                  Strategies                       LovoI4' Yearl(FY94) Complete           tation     Undertaken Institutions
                               I . F1.FWJW1rJ MAE in 111411-1@@
                          210 W 19 Florida Bay Freshwater Flow                   High         Medium            36+     1000/0           2             10
                          212 W 24 Florida Bay Influence                         High         High              48      <50%             3             5
                                                  K4
                          213  W 1   OSDS Demonstration Project                  High         High              36      100%             2             5
                          214  W2    AWT Demonstration Project                 Medium         LOW               36      @500/0           2             4
                          214  W.3   Wastewater Management Systems               High         High              36      <5".             4             8
                          216  W 4   Wastewater Disposal, City of Key West       High         LOW               48      <500/6           2             6
                          217  W 5   Water Quality Standards                   Medium         None              6D+     <50%             2             4
                          217  W 6   NPDES Program Delegation                                                   24      1000/6           1             2
                          217  W.7   Resource Monitoring of Surface Discharges Low            LOW               36      100%             1             2
                          218  W8    OSDS Permittlng                             LOW          None              36      100%             3             3
                          219  W 9   Laboratory Facilities                       LOW          None              36      <50%             2             3
                          Bowl "... "I
                          220 W I I StormwaterRetrofnng                        Medium         LOW               60+     <SW,.            2             4
                          220 W 12   Stormwater Permitting                                                      0       1000/0           1             5
                          221 W 13   Stormwater Management                     Medium         Medium            24      1000/0           2             7
                          222 W 14   Best Management Practices                 Medium         LOW               36      <50%             1             8


                          223 B 7    Pollution Discharges                      Medium         Medium            48      <50%             5             5
                          224 Z5     Special-use Areas                         Medlurn        LOW               12+     <50%             3             5
                          225 L 1    Manna Pump-Out                              High         LOW               60      <50%             3             8
                          225 L 6    Mobile Pump-Out                           Medium         None              36      <50%             1             2
                          226 L2     Marina Sittrigs and Design                  LOW          None              36      1000/6           1             3
                          226 L3     Manna Operations                          Medium         None              36      <500/6           3             5
                          227 EA     TrainingtWorkshops/Schoot Programs        Medium         Medium            24      <50%             1             2
                               Nwrar-111111             M
                          228 L 7    SWD Problem Sites                         Medium         None              60+     <50*/*           3             3



                          229 W 15 AZMAT Response                              Medium         LOW               36      <50%             3             5
                          230 W 16   Spill Reporting                             LOW          LOW               24      <50%             2             3
                          231 L 10   HAZMAT Handling                           Medium         None              36                       1             4
                          12JRW@= M.T.Tf=.
                          231 W 17   Mosquito Spraying                           High         High              12   75-99%              4             2
                          232 W 18   Pesticide Research                          High         None              36+     <50%             3             3


                          233 W 10   Canal WO                                    High         LOW               60      -60%             8             5


                          236 W 20   Monitoring                                  High         High              60+     <5V/.            4             2
                          237 W 21   Predictive Models                           High         LOW               12+     <50%             2             4
                          237  W 22  Special Studies Wastewater Pollutants       High         Low               36      <50%             1             4
                          238  W 23  Special Studies Other Pollutants and WO Problems Medium  None              36   76-99%              4             6
                          238  W 28  Regional Database                           High         High              12      100%             3             3
                          239 W 29   Dissernfriatton of Findings               Medium         LOW               60+     <50%             4             3
                          240  W32   Technical Advisory Committee                                               0       1000/6           1             3
                          240 W 33   Ecological Monitoring Program               High               Rotor to Research and Monitoring Action Plan
                          + Strategies with an '. ' for Overall Sanctuary Priority Level are already existing programs andfor will be completed In the first yew of sanctuary operation
                          ++ Began October 1, 1993








                208








                                                                                                                        Action Plans: Water Quality

                  strategies. The medium priority level contains 36
                                                                                                                       
                  strategies that represent the next level of importance                      Goals and Objectives
                  to the Sanctuary and will have some level of activity
                  in year one. Low priority items contain the remaining                  The Florida Keys National Marine Sanctuary is the
                  strategies in the Management Plan. Those strategies                    first to include a Water Quality Protection Program.
                  planned for completion in or before year one do not,                   The purpose of the Program is specified in the
                  have a priority level.                                                 Florida Keys National Marine Sanctuary and Protec-
                                                                                         tion Act:
                  Water Quality Strategies. The Water Quality Action                           recommend priority corrective actions and
                  Plan contains 37 strategies. Three of these (NPDES
                  Program Delegation (W.6), Stormwater Permitting                              compliance schedules addressing point and
                  (W.12), and Technical Advisory Committee (W.32),                             nonpoint sources of pollution torestore and
                  will be completed within the first year of Sanctuary                         maintain the chemical, physical, and biologi-
                  operation (Table 24). Of the remainder, 14 are high                          cal integrity of the Sanctuary, including
                  priority level, 15 are medium priority level, and 15 are                     restoration and maintenance of a balanced,
                  low priority level. Consequently, 29 water quality                           indigenous population of corals, shellfish,
                  strategies that are included in this plan are expected                       fish and wildlife, and recreational activities in
                  to be initiated within the first year of Sanctuary                           and on the water.
                  operation.                                                             The Program's goals are the protection and improve-
                  The action plan strategies will be implemented by a                    ment of Sanctuary water quality and enhancement of
                  combination of Federal, State, and local agencies                      living resources. The Water Quality Protection
                  (Table 25). The EPA and the Florida Department of                      Program proposes many activities to achieve these
                  Environmental Protection (FDEP) will have lead roles                   goals, such as reducing anthropogenic loading
                  in the implementation of most strategies included in                   (wastewater and stormwater) to Sanctuary waters. In
                  this plan. Others, however, such as the South Florida                  addition to corrective actions, the Program also
                  Water Management District (SFWMD), Monroe                              includes development of a water quality monitoring
                  County, the Florida Department of Health and                           program and a special studies program, as well as a
                  Rehabilitative Services (FDHRS), and the U.S. Coast                    provision for opportunities for public participation in
                  Guard (USCG), will have a lead role in implementing                    all aspects of the Program's development and
                  selected strategies included within this Plan.                         implementation.

                  It is expected to cost $275 million to $495 million to                    Existing Programs
                  implement all of the strategies included in this plan
                  (Table 26). However, much of this total (>$200                            The Florida Keys National Marine Sanctuary is the first
                  million) is accounted for by two very expensive                           to have a water Quality Protection Program. There are
                                                                                            no existing programs at the Key largo or Loos key
                  strategies: Wastewater Management Systems (W.3)                           National, Marine Sanctuaries that focus specifically on
                  and Stormwater Retrofitting (W.1 1). Excluding these                                                                                  
                                                                                            water quality, although Sanctuary education programs
                  two strategies, the total cost of all strategies is $34                                                              
                                                                                           
                                                                                            typically include water quality among the many
                  million to $55 million. Funding for the Program will                     environmental issues they address.
                                                                                                                       
                  come from a combination of public (Federal, State,
                  and local) and private institutions. Eighteen govern-                     Many of the strategies included in the Water Quality,
                  ment institutions are identified as potential partici-                    Acton Plan involve' the modification of existing
                  pants in this Program (Table 25).                                         programs operated by one or more of -the' agencies
                                                                                            with jurisdiction over water quality in'the Florida Keys
                                                                                                                                                    
                                                                                               
                  Relationship to Other Action Plans. Many of the                           Other strategies involve entirely new programs, but
                                                                                            these would necessarily build upon the existing-',
                  strategies within this plan also appear in other action                   regulatory/management framework. Further informa-
                  plans. This is a result of the need to establish sepa-
                                                                                            tion about existing, programs 0perated by agencies and
                  rate components (i.e., research, education, volun-                        institutions with jurisdiction over water quality in the
                  teer) in Sanctuary management. In addition to having                      Florida Keys is provided in the Water Quality Protec-
                  a water quality thrust, a strategy may have a re-                         tion Program Phase II report available-from the U.ï¿½.
                  search, education, or volunteer component. If a                           Environmental Protection Agency.,
                  strategy appears in more than one action plan, this is					
                  noted at the end of the strategy/activity description. In                 Where appropriate, descriptions of strategies and,
                                                                                            activities in Water quality action plan include a                                               
                                                                                            section describin"Existing Program Implementation".                                        
                                                                                                                                 
                  most cases, the complete description only appears in                                                                              
                   one action plan.                                                                                                            
                                                                                        
                 

                                                                                                                                                        209
 





              Action Plans: Water Quality

              As specified in the Act, the Water Quality Protection      Sanctuary. Water quality and natural resources in
              Program was developed by the EPA and the FDEP,             Florida Bay are tightly linked to those of the Sanctu-
              working in close coordination with the National            ary. The need for action to deal with water delivery
              Oceanic and Atmospheric Administration. The                problems in Florida Bay has been strongly stressed
              Program was developed in two phases. During                by workshop participants and other scientists during
              Phase 1, information was compiled and synthesized          the development of the Water Quality Protection
              on the status of the Sanctuary's natural environment.      Program. Two strategies were developed to address
              Priority problems were identified through this litera-     this issue: one (W.1 9) would have the Steering
              ture review, and through consensus of technical            Committee for the Water Quality Protection Program
              experts and other participants in technical work-          take a leading role in working to restore historical
              shops. Phase 11 focused on developing options for          freshwater flow to Florida Bay; the other (W.24)
              corrective action, developing a water quality monitor-     would conduct research that will further document the
              ing program and associated research/special studies        influence of Florida Bay on water quality and biologi-
              program, and developing a public education and             cal resources in the Sanctuary. The research on
              outreach program. Findings from Phases I and 11            Florida Bay influence should supply additional
              were incorporated into the Water Quality Protection        scientific evidence to support the need for action.
              Program Document. Options for corrective action,
              research, monitoring, and education presented in the
              Program Document were incorporated into the                                  Strategy W. 19:
              strategies included in this action plan.                           Florida Bay Freshwater Flow
              Description of Strategies                                  The Steering Committee for the Water Quality
                                                                    "i"  Protection Program shall take a leading role in
                                    pr i
                                               U n
                                     r             Imp
                                                                    @,q
                                                                         restoring historical freshwater flow to Florida Bay,
                         e
                                                                    " -0 which is now in a state of crisis. In addition, Sanctu
                                                                    -mn_;
                                                                         ary representatives shall work with appropriate
              Severe water quality and ecological problems have          Federal, State, and local agencies to ensure that
              developed in Florida Bay in recent years, and the          restoration plans and surface-water improvement and
              Bay is now in a state of crisis. Problems include a        management plans for South Florida and the Ever-
              massive seagrass die-off; phytoplankton blooms;            glades are compatible with efforts to maintain water
              sponge die-offs; mangrove die-backs; and all of the        quality within the Sanctuary.
              potential cascading ecological effects of these            (Priority Level High, Medium Level of Action in Year
              phenomena. Since 1987, much of Florida Bay has             1, 36+ Months to Complete, 100% Funding Available
              been affected by a massive, unprecedented                  for Full Implementation)
              seagrass die-off that has left tens of thousands of
              acres of denuded sediments. Through the resulting          Activity 1-Establish a Leading Role for the Steer-
              sediment suspension and nutrient release, the              ing Committee. The Steering Committee for the
              seagrass die-off may be the cause of massive               Water Quality Protection Program includes high-level
              phytoplankton blooms which have affected the Bay           representatives of all relevant agencies, and can
              during recent years. Sponge die-offs caused by
              phytoplankton blooms may have serious impacts on
                                                                                             1@ 'U@
              juvenile spiny lo                                                m
                             bsters, which reside by day under
                                                                         IN
                                                                         0'm! ,km pi@
              sponges for protection from predation.                                                   C
                                                                                                71,


              Most scientists believe that recent ecological prob-
              lems in Florida Bay are the result of long-term
                                                                                       INCA
              reduction in freshwater flow from the Everglades. The
              mechanism has not been documented, but high
                                                                          7 J,      e
              salinities per se and a long-term change from an                                                    n"'
              estuarine to a marine system may be contributing                        Irl
              factors.
                                                                                        S  nca W55
                                                                          'C"Conduct,

              These problems in Florida Bay must be viewed as a
              potential threat to water quality and resources in the

              210







                                                                                                                               Action Plans Water Quality

                    therefore take a leading role in water management                          Activity 2-Participate in a ReviewlRevision of
                    issues affecting Florida Bay, including restoring                          Water Management Strategies. Sanctuary repre-
                    historical freshwater flow Both short- and long-term                       sentatives shall participate in the review and revision
                    solutions must be pursued at high levels of manage-                        of restoration plans and water management plans for
                    ment in both State and Federal agencies                                    Florida Bay and adjacent areas to ensure that these
                                                                                               proposals and/or actions will enhance and comple-
                    olipplementation The responsible agencies will be                          ment water quality improvement efforts undertaken in
                    the EPA and FDEP, which administer the Water                               the Sanctuary These plans include, but are not
                    Quality Protection Program All other agencies                              limited to, the Shark River Slough GDM, C-1 11 basin,
                    represented on the Steering Committee will have a                          Taylor Slough Restoration, West Dade Wellfield,
                    primary role, including NOAA, the National Park                            US 1 widening, National Park Service Everglades
                    Service (NPS), the U S Fish and Wildlife Service                           Restoration Plan, Lower East Coast Water Supply
                    (FWS), the U S Army Corps of Engineers (USACE),                            Plan, and Everglades Surface Water Management
                    the Florida Department of Community Affairs                                and Improvement Plan
                    (FDCA), the SFWMD, and the Florida Keys Aqueduct
                    Authority (FKAA)                                                           wImplementation The Management Committee of the
                                                                                               Water Quality Protection Program is responsible for
                    mSchedule This activity has been completed



                                                    Ongoing Efforts to Restore the South Florida Ecosystem

                       During the same time that this Management Plan was devel-               The ultimate objective of the Task Force Is to develop a
                       oped, several Federal and State initiatives were begun, largely         restoration plan for the entire South Florida ecosystem
                       at the urging of Sanctuary Advisory Council members, to restore
                       the entire South Flonda ecosystem, from the Kissimmee River             The Task Force established an 11 -member Interagency
                       through the Florida Keys                                                Working Group to formulato and recommend management
                                                                                               policies, strategies, plans, programs, and priorities for ecosys-
                       South Florida Ecosystem Restoration Task Force                          tom restoration arW maintenance to the Task Force.

                       In June 1993, Secretary of the Interior Bruce Babbit imple-             Science Plan for Florida Say
                       mented an interagency Initiative to address the environmental
                       problems In South Florida and Florida Say. In September 1903,           The development of a comprehensive research and monitoring
                       an interagency Agreement on South Flortda Ecosystem                     plan for Florida Bay, another Interagency effort, has been
                       Restoration was signed, formally establishing the South Florida         occurring at the same time as the development of the FKNM8
                       Ecosystem Restoration Task Force. The members of the Task               Draft Management Plan/EIS, Water Ouallty Protection Program,
                       Force are the assistant secretaries of the Departments of               and the South Flonda Ecosystem Restoration Report. In
                       Agriculture, the Army, Commerce, Interior, Justice, and the             January 1993, Me Everglades National Park research staff
                       Environmental Protection Agency. Plans are to include the               convened an Interagency group of managers and scientists to
                       Federal Highway Administration in the Agreement during the              review their research plan for Florida Bay. This group Informally
                       restoration effort. In addition, ft State of Florida and the Tribes     became the Florida Bay Interagency Working Group, with the
                       are members of the Task Force A list of the current member-             responsibility for developing the Science Plan for Florida Bay
                       ship is Included in Appendix 8 The agreement specified that the         that was released in April 1994. The final draft of this plan was
                       Task Force do the following                                             developed by scientists from the National Park Service,
                                                                                               National Biological Survey, NOAA, South Florida Water
                             ï¿½ agree on the Federal objectives for restoring the South         Management District, and Florida Department of Environmental
                               Florida ecosystem,                                              Protection, folkw4ng a series of Interagency reviews.

                             ï¿½ promote the establishment of an ecosystern-based                Governor's Commission-for a Sustainable South
                               science program that utilizes the strengths of public and       Florida
                               private entities and includes research, inventory,
                               monitoring, and modeling;                                       By Executive Order, Florida Governor Lawtort Chiles estab-
                                                                                               lished a'Cornmission for a Sustainable South Florida* on
                             ï¿½ support the development of appropriate multi-species            March 3,1994. The Commission, which has representatives
                               recovery plans for threatened and endangered species            from various local, State, and Federal agencies, the Tribes, as
                               and other species proposed for listing as threatened or         well as other public and private Interests In the region, was
                               endangered; and                                                 created to "develop recommendations and public support for
                                                                                               regaining a healthy South Florida ecosystem with a sustainable
                             ï¿½ encourage the expedited Implementation of projects,             economy and communities!
                               programs, and activities Included In the coordinated
                               plans for the environmental restoration and maintenance
                               of the South Florida ecosystem



                                                                                                                                                                  211






              Action Plans: Water Quality

              administering water quality management in the                   transport from Florida Bay to the Sanctuary. Studies
              Sanctuary. The responsible agencies will be the EPA             of groundwater flow may be included.
              and FDEP, which administer the Water Quality
              Protection Program. NOAA will have a primary role               mImplementation. The EPA and FDEP will be the
              because of its overall responsibility for managing the          responsible agencies for this strategy.
              Sanctuary. The main agencies involved in water
              management decisions for the Everglades and                     mSchedule. This activity will have a high level of
              Florida Bay are the NPS, SFWMD, and USACE. As                   action in year 1. It will require 48 months to complete.
              the State land-planning agency for a designated Area
              of Critical State Concern, the FDCA is also likely to           Activity 3-Conduct Ecological Studies. This
              be involved. Other primary agencies are the FWS                 activity will involve studies to document ecological
              and Monroe County.                                              impacts, if any, of Florida Bay waters on Sanctuary
                                                                              communities including seagrasses, coral reefs,
              wSchedule. This activity will have a medium level of            nearshore hardbottom communities, and potentially
              action in year 1. It will require 36+ months to com-            endangered or threatened species. Documentation of
              plete.                                                          potential impacts could provide a stronger basis for
                                                                              action to restore historical freshwater flow to Florida
                                                                              Bay.
                                 Strategy W.24:                                Implementation. The EPA and the FDEP will be the
                            Florida Bay Influence                             wresponsible agencies for this strategy.

                                                                              NSchedule. This activity will have a low level of action
              Conduct research to understand the effect of water              in year 1. It will require 36 months to complete.
              transport from Florida Bay on water quality and
              resources in the Sanctuary.                                     This strategy is also included in the Research
              (Priority Level High, High Level of Action in Year 1,           and Monito   .ring Action Plan.
              48 Months to Complete, <50% Funding Available for
              Full Implementation)                                                         Alk 14-
              Activity I-Conduct an Historical Assessment                       )T__
              This activity will involve an historical assessment of          This section describes strategies for reducing pollu-
              Everglades/Florida Bay/Florida Keys hydrology, as it            tion from land-based sources of domestic wastewa-
              has affected water quality and biological communities           ter. Pollution sources include cesspits, on-site
              in the Sanctuary. It will clarify the role of freshwater        disposal systems (OSDS), package plants, and
              inflows and water quality from the Everglades and               municipal treatment plants. Strategies for reducing
              other freshwater discharges to the southwest shore-             wastewater pollution from live-aboard boaters are
              line of Florida, to Florida Bay and the Sanctuary. The          covered in the Marina and Live-aboard section of this
              activity will examine the effects of structural modifica-       action plan.
              tions and changes in timing and volume of freshwater
              releases from existing structures, as well as land-             The first two domestic wastewater strategies (W. 1
              based practices affecting the water quality of runoff.          and W.2) are demonstration projects that would
              =Implementation. The SFWMD and the NPS will be                  provide information to decide among options for the
              the responsible agencies for this strategy. Assistance          main engineering strategy (W.3) for wastewater
              will be provided by USACE, which has historical data            management systems outside Key West.
              concerning water management activities affecting the            Strategy WA is also an engineering strategy, but is
              Everglades and Florida Bay.                                     applicable only to Key West. The remaining domestic
                                                                              wastewater strategies involve management activities
              aSchedule. This activity will have a high level of              designed to reduce pollution by developing water
              action in year 1. It will require 12 months to complete.        quality standards (including biocriteria) specific to the
                                                                              Florida Keys, and making the regulatory/manage-
              Activity 2-Conduct Circulation Studies. This                    ment system work more efficiently.
              activity will involve circulation studies to estimate
              present-day, long-term net transport and episodic


              212







                                                                                                     Action Plans Water Quality

                                                                          This strategy will provide information to help deter-
                  176mestic Wastewater Strategies                         mine the appropriate role, if any, of alternate OSDS
                                                                          (septic systems) in wastewater management in the
                  W.1., OSDS Demonstration Project                        Keys Although some alternate OSDS designs
                    I
                  ï¿½ Select alternate OSDS and test locations              appear promising, it is not appropriate to proceed
                  ï¿½ Conduct an OSDS demonstration project                 with broad-scale installation of these systems until an
                                                                          independent evaluation has been conducted
                  W.2: AWT Demonstration Project                          Activity I-Select Alternate OSDS and Test Loca-
                  o@_ Select speeffic technology and test location        tions Alternate OSDS designs will be reviewed, and
                  w Conduct AWT pilot project                             appropriate systems will be selected for evaluation
                  W.3: Wastewater Management Systems                      Suitable test locations will be selected
                    Establish inspection/compliance programs for          mImplementation The Florida Department of Health
                    cesspits, OSDS, and package plants                    and Rehabilitative Services (FDHRS) will be the
                    Evaluate development of nutrient reduction
                    targets                                               responsible agency for this activity Other primary
                    Develop sanitary wastewater master plan               agencies involved will be the EPA, FDEP, FDCA, and
                    Implement master plan                                 Monroe County
                @,V.4: Wastewater Disposal, City of Key West              oSchedule This activity has been completed
                    livaldateDisposall and reuse options                  Activity 2-Conduct an OSDS Demonstration
                    Upgrade effluent disposal
                                                                          Project. Alternate OSDS designed for nutrient
                  WS: Water Quality Standards                             removal would be installed and maintained in a
                    Develop and evaluate indicators                       manner consistent with actual residential use
                    Develop water quality standards                       Influent, effluent, and groundwater quality (both
                                                                          background and "down-gradient") would be moni-
                        NPDEig Program Delegation                         tored at regular intervals for at least a year In
                  -@- 6,-,                                                addition to nutrient-removal efficiency, the study
                    b@legate NPDES program                                would evaluate maintenance and inspection require-
                        Resource   ,Monitoring of Surface                 ments to keep units operating properly.

                                                                           Existing Program Implementation. Congress pro-
                          Ire; resource monitoring                        M
                                                                          vided $500,000 in additional funds to EPA's fiscal
                       -0SDSPermItttng                                    year 1993 budget for the Water Quality Protection
                                                                          Program to be used for demonstration projects. This
                            616tiragency coordination
                          v I
                         BiOdSDS permitting responsibilities              was used to initiate the OSDS Demonstration Project
                        karwhs`e'd OSDS rules                             (strategy W 1) before the fiscal year 1994 starting
                                                                          point for this action plan.
                      vLa Atbry Facilities                                mImplementation The FDHRS will be the responsible
                    40ndUpffiasibility study                              agency for this activity Other primary agencies
                    MAbIiï¿½ff-ihteraqency Iqhnrntnrv                       involved will be the EPA, FDEP, FDCA, and Monroe
                                                                          County.
                                  Strategy W.1:                           nSchedule This activity will have a low level of action
                       OSDS Demonstration Project                         in year 1. It will require 36 months to complete


               Conduct a demonstration project to evaluate innova-
               tive alternate, nutrient-removing OSDS
               F
                    omeq 14
                  LY
                -@ T.. I



































               (Priority Level High, High Level of Action in Year 1,
               36 Months to Complete, 100% Funding Available for
               Full Implementation)



                                                                                                                                213






               Action Plans: Water Quality

                                                                          mImplementation. The FDHRS will be the responsible
                                  Strategy W.2:                           agency for this activity. The EPA, FDEP, and Monroe
                        AWT Demonstration Project                         County will be involved as primary agencies.

                                                                          mSchedule. This activity will have no action in year 1.
               Conduct a pilot project to evaluate installation of a      It will require 36 months to complete.
               small, expandable AWT plant to serve an area of
               heavy OSIDS use with associated water quality
               problems.                                                                     Strategy W.3:
               (Priority Level Medium, Low Level of Action in Year                   Wastewater Management
               1, 36 Months to Complete, <50% Funding Available                                  Systems
               for Full Implementation)

               This strategy will pro'vide information to help decide
               whether elimination of OSDS would improve water            Establish authority for and implement inspection/
               quality in areas believed to be degraded by OSDS-          enforcement programs to identify all cesspits, and
               related nutrients. Existing OSDS in the test area          enforce existing standards for all OSDS and package
               would be connected to a small package plant provid-        plants. Evaluate the development of targets for
               ing advanced wastewater treatment (AWT), which             reductions in wastewater nutrient loadings necessary
               includes nutrient removal. The project will also           to restore and maintain water quality and Sanctuary
               provide information about the long-term performance        resources. Develop and implement a Sanitary
               of small AWT systems and septic tank effluent              Wastewater Master Plan that evaluates options for
               pumps or other collection systems. Both conventional       upgrading existing systems beyond current standards
               and innovative technologies will be considered.            or constructing community sewage treatment plants,
                                                                          based on nutrient reduction targets, cost and cost
               Activity 1-Select Specific Technology and Test             effectiveness, reliability/compliance considerations,
               Location. Different technologies for AWT will be           and environmental and socioeconomic impacts.
               reviewed and appropriate systems will be selected          (Priority Level High, High Level of Action in Year 1,
               for evaluation. Preferably, the test area will be one      36+ Months to Complete, - <50% Funding Available
               where water quality problems believed to be related        for Full Implementation)
               to OSDS nutrients have already been identified. In
               addition, the location should be appropriate for           Activity 1-Establish InspectionlCompliance
               eventual expansion of the AWT package plant to a           Programs for Cesspits, OSDS, and Package
               community or subregional plant if the test proves          Plants. This activity would establish on-site inspec-
               successful.                                                tion programs to identify all cesspits and ensure that
                                                                          OSDS and package plants are in compliance with
               mimplementation. The FDHRS will be the responsible         existing standards. Inspection/enforcement programs
               agency for this activity. The EPA, FDEP, and Monroe        for OSDS and package plants would ensure that
               County will be involved as primary agencies.               these systems are operating properly, reducing
                                                                          nutrient loading to groundwater. Cesspits identified
               mSchedule. This activity will have no action in year 1.    through this activity would eventually be replaced
               It will require 12 months to complete.                     with an approved OSDS or a connection to a commu-
                                                                          nity wastewater treatment plant, as determined by
               Activity 2-Conduct an A WT Pilot Project A small,          the Sanitary Wastewater Master Plan (described in
               expandable AWT package plant will be installed to          Activity 3). This would reduce nutrient loading to
               serve an area where there is high-density OSDS use         groundwater and eliminate health hazards from
               in close proximity to confined waters. Initial back-       untreated sewage. Because development and
               ground groundwater and surface water monitoring            implementation of the Sanitary Wastewater Master
               will be conducted, and plant influent and effluent will    Plan is a long-term process, Monroe County should
               then be monitored for at least one year after the plant    develop an interim response policy to address non-
               is in operation. Groundwater and surface-water             compliance wastewater treatment systems as part of
               monitoring will be continued for three to five years.      this activity. This activity will also include a public
               Most facilities constructed for the project could be       education/outreach component which would inform
               incorporated into a larger system if results are           the public about ways to assess and improve existing
               favorable.                                                 wastewater treatment systems.


               214






                                                                                                          Action Plans: Water Quality_
               sImplementation. The FDHRS will be the responsible                   V13g: Construct three subregional wastewater
               agency. Other primary agencies involved will be the                  treatment plants, to treat 94 percent of waste-
               EPA, FDEP, Monroe County, and the City of Key                        water flows outside the City of Key West.
               West.
                                                                              Currently, these options can be evaluated partially on
               wSchedule. This activity will have a high level of             the basis of estimated cost, cost effectiveness,
               action in year 1. It will require 36 months to complete.       nutrient reduction, and reliability of the technologies
                                                                              involved. However, the options should also be
               Activity 2-Evaluate Development of Nutrient                    evaluated in light of the nutrient-reduction targets
               Reduction Targets. The goal of this activity is to             which may be developed under Activity 2. In addition,
               identify and evaluate alternative strategies for               information about the nutrient removal capacity, cost
               developing nutrient reduction targets for wastewater           and cost effectiveness, and reliability of alternate,
               and stormwater in the Sanctuary. The information will          nutrient- removing OSDS and various conventional
               help the EPA and the State of Florida to determine             and innovative AWT technologies needs to be
               whether nutrient reduction targets should be devel-            considered; this information will come from the OSDS
               oped and if so, how development should proceed.                Demonstration Project (strategy W.1) and the AWT
                                                                              Demonstration Project (strategy W.2). Environmental
               mImplementation. The EPA and FDEP will conduct                 and socioeconomic impacts must also be analyzed.
               this activity.                                                 The Sanitary Wastewater Master Plan will also
                                                                              specify details of costs, schedules, service areas,
                 Schedule. This activity is in progress and will              etc. for implementation. The master plan should
               require 12 months to complete.                                 investigate the feasibility of wastewater utility districts
                                                                              and other alternative funding mechanisms.

               Activity 3-Develop Sanitary Wastewater Master                  mImplementation. FDEP and EPA will be the respon-
               Plan. This activity will develop a Sanitary Wastewater         sible agencies. FDHRS and Monroe County will also
               Master Plan to evaluate options for wastewater                 be involved as primary agencies.
               treatment developed in the EPA Water Quality
               Protection Program Phase 11 Report. The options                oSchedule. This activity will have no action in year 1.
               (using the numbering system in that report) are as             It will require 36 months to complete.
               follows:
                                                                              Activity 4-Implement a Master Plan. This activity
                   ï¿½ Vl3a: Upgrade existing systems to current                will implement the preferred wastewater treatment
                      standards                                               option specified in the Sanitary Wastewater Master
                                                                              Plan developed under Activity 3. The eventual
                   ï¿½  V13b: Upgrade package plants to AWT;                    preferred option cannot be identified at this time.
                   ï¿½  Vl3c: Upgrade package plants to AWT and                 However, two options are discussed below as
                      OSDS to alternate nutrient- removing systems;           examples.
                   ï¿½  Vl3d: Construct AWT plants for Key Largo and            Option W3d-Construct Two Community Plants.
                      Marathon (the two most populous communities             Advanced wastewater treatment plants would be
                      in the Upper and Middle Keys), and extend the           constructed for Key Largo and Marathon (the two
                      service area for the Key West treatment plant           most populous communities in the Upper and Middle
                      to adjacent areas of the Lower Keys, to treat           Keys), and the service area for the Key West treat-
                      52 percent of wastewater flows outside the City         ment plant would be extended to adjacent areas of
                      of Key West;                                            the Lower Keys. This would provide a high level of
                                                                              treatment for about 52 percent of the wastewater
                   ï¿½  V/3e: Construct seven community wastewater              flows outside Key West. Estimated Keys-wide
                      treatment plants for the most densely popu-             reductions in wastewater nutrient loadings are 43
                      lated areas, to treat 73 percent of wastewater          percent for total nitrogen, and 28 percent for total
                      flows outside the City of Key West;                     phosphorus. Much greater reductions (80 to 91
                                                                              percent for nitrogen and 50 to 83 percent for phos-
                   ï¿½  W3f: Construct 12 community wastewater                  phorus) would be achieved in the Key Largo and
                      treatment plants, to treat 94 percent of waste-         Marathon service areas, where cesspits, OSDS, and
                      water flows outside the City of Key West; and           package plants would be replaced by the new
                                                                              community plants.

                                                                                                                                          215







               Action Plans: Water Quality

               mimplementation. The responsible agency for this             (Priority Level High, Low Level of Action in Year 1, 48
               option has not been determined. Prior to constructing        Months to Complete, <50% Funding Available for Full
               community wastewater treatment plants, it will be            Implementation)
               necessary to identify an agency to serve as a waste-
               water utility. Candidates include the Florida Keys           Activity I-Evaluate Disposal and Re-use Options.
               Aqueduct Authority (FKAA), which already has the             Before use of the ocean outfall is discontinued, both
               authority, and Monroe County (administrative capa-           the environmental aspects of deep-well injection and
               bility only, or both administrative and operational          the economics of effluent re-use need to be evalu-
               capabilities). Other primary agencies likely to be           ated thoroughly. Studies of deep well injection need
               involved are the EPA, FDEP, FDCA, and the Florida            to investigate the possibility of effluent migrating
               Department of Transportation (FDOT). The FDHRS               through the boulder zone into Sanctuary waters. Re-
               may have an assisting role.                                  use options to be evaluated include irrigation and
                                                                            further treatment to produce potable water. Re-use
               oSchedule. This activity will have no action in year 1.      for local irrigation may be limited due to the small
               Time to complete is unknown.                                 number of application sites. Re-use for irrigation in
                                                                            areas outside the Florida Keys would be considered
               Option Iff3b-Upgrade Package Plants to AWE All               only if it were proposed for unincorporated Monroe
               package plants would be upgraded to AWT. Coupled             County. Potable re-use, although requiring costly
               with elimination of cesspits and enforcement of              treatment, might be cost-effective in the long term,
               existing standards for OSDS, this option would               considering the current cost of treating and pumping
               reduce wastewater nutrient loadings to groundwater           in drinking water from Florida City.
               Keys-wide by about 27 percent for nitrogen and 24
               percent for phosphorus. The cost would be much               mImplementation. The responsible agency will be the
               less than for option W3d. However, this option would         City of Key West or possibly FKAA (if selected as the
               not provide any additional nutrient reduction from           Keys-wide wastewater utility). Other primary agen-
               OSDS (including cesspits eventually replaced by              cies involved will be the.FDEP, EPA, FDCA, and
               OSDS), which are the leading source of wastewater            Monroe County.
               nutrients.
                                                                            mSchedule. This activity will have a low level of action
               mimplementation. The FDEP and EPA will be the                in year 1. It will require 12 months to complete.
               responsible agencies. Monroe County will also be
               involved as a primary agency, and the FDHRS may              Activity 2-Upgrade Effluent DisposaL Use of the
               have an assisting role.                                      ocean outfall would be discontinued (except in
                                                                            emergencies), and effluents would be disposed of
               oSchedule. This activity will have no action in year 1.      through deep-well injection, aquifer storage, and/or
               Time to complete is unknown.                                 re-use as appropriate based on results of the preced-
                                                                            ing activity. This strategy would reduce direct nutrient
                                                                            loadings to surface waters from the Key West
                                  Strategy WA:                              wastewater treatment plant.
                            Wastewater Disposal,                            mimplementation. The responsible agency will be the
                                City of Key West                            City of Key West or possibly FKAA (if selected as the
                                                                            Keys-wide wastewater utility). Other primary agen-
                                                                            cies involved will be the FDEP, EPA, FDCA, and
               Upgrade effluent disposal for the City of Key West           Monroe County.
               wastewater treatment plant. Evaluate deep-well
               injection, including the possibility of effluent migrating   oSchedule. This activity will have no action in year 1.
               through the boulder zone into Sanctuary waters.              It will require 48 months to complete.
               Evaluate options for the re-use of effluent, including
               irrigation and potable re-use. Discontinue use of
               ocean outfall and implement deep-well injection,
               aquifer storage, and/or re-use. Implement nutrient
               reduction technologies for effluent prior to disposal or
               re-use.





               216







                                                                                                     Action Plans: Water Quality-

                                                                           oSchedule. This activity will have no action in year 1.
                                  Strategy W.5:                            It will require 60+ months to complete.
                          Water Quality Standards
                                                                           This strategy is also included in the Research and
              Develop and implement water quality standards,               Monitoring Action Plan.
              including biocriteria, appropriate to Sanctuary re-
              sources.                                                                        Strategy W.6:
              (Priority Level Medium, No Action in Year 1, 60+
              Months to Complete, <50% Funding Available for Full                   NPDES Program Delegation
              Implementation)

              Activityl-Develop and Evaluate Indicators. This              Delegate administration of the National Pollutant
              activity will identify and evaluate indicators (biochemi-    Discharge Elimination System (NPDES) program for
              cal and ecological measures to provide early warning         Florida Keys dischargers to the State of Florida.
              of widespread ecological problems) in each type of           (Completed in Year 1)
              ecosystem. Examples are tissue C:N:P ratios,
              alkaline phosphatase activity, and shifts in commu-          Activity 1-Delegate the NPDES Program. Under
              nity structure by habitat. These measures could be           this activity, the EPA delegated NPDES permitting
              incorporated into the Water Quality Monitoring               authority to the State of Florida, as has been done in
              Program, and could provide the basis for resource-           many other states. This simplifies the permitting
              oriented water quality standards (biocriteria) for the       process for surface water dischargers by removing
              Sanctuary.                                                   the need to apply for permits from both the EPA and
                                                                           FDEP.
              mImplementation. The EPA and FDEP will be the
              responsible agencies for this strategy through the           mImplementation. This activity was implemented by
              Research/Special Studies Program. In addition to the         the EPA and FDEP in 1995. The EPA administers
              FDEP and EPA, NOAA/National Marine Fisheries                 the NPDES permitting program and has the authority
              Service (NMFS) may have a role in this research.             to delegate it to the states. FDEP submitted an
                                                                           application to the EPA to have the program del-
              mSchedule. This activity will have a low level of action     egated. The two agencies entered into a memoran-
              in year 1. It will require 36 months to complete.            dum of understanding (MOU) defining agency roles
                                                                           and responsibilities for NPDES permitting in Florida.
              Activity 2-Develop Water Ouality Standards. This
              activity will develop water quality standards, including     nSchedule. This activity has been completed.
              nitrogen and phosphorus standards and biocriteria,
              appropriate to Sanctuary resources (corals and               This strategy is also included in the Regulatory
              seagrasses). This activity will reduce impacts of            Action Plan.
              pollution on Sanctuary resources by determining
              water quality conditions to ensure resource protec-
              tion. The intent is to implement water quality stan-                            Strategy W.7:
              dards as guidance in determining permitted dis-                           Resource Monitoring
              charge limitations. Outstanding Florida Waters
              (OFW) standards will be used until research indicates                     of Surface Discharges
              that new, more stringent regulations are necessary.
              m1roplementation. The responsible agency for                 Require all NPDES-permitted surface dischargers to
              changes to the state's water quality standards will be       develop resource monitoring programs, including
              FDEP. The FDEP would need to initiate formal rule-           biological monitoring where appropriate.
              making in accordance with Chapter 120FS - Adminis-           (Priority Level Low, Low Level of Action in Year 1, 36
              trative Procedures Act. Once enacted, the new                Months to Complete, 100% Funding Available for Full
              standards would be implemented at the time new               Implementation)
              permits were being issued or existing permits reis-
              sued. Other primary agencies involved in developing          Activity 1-Require Resource Monitoring. This
              the standards will be the EPA and FDHRS.                     activity would help to evaluate environmental impacts
                                                                           of point source discharges by requiring all

                                                                                                                                 217







              Action Plans: Water Quality

              NPDES-permitted surface dischargers to develop               and revised specifically for the Florida Keys. This
              resource monitoring programs. This could be accom-           could also indirectly reduce wastewater pollution by
              plished in one of two ways. One way would be for             refining and simplifying the OSDS permitting process,
              EPA to eliminate the baseline exemption for resource         and increasing funds for compliance monitoring and
              monitoring under the Ocean Discharge Program, as it          enforcement.
              applies to the Florida Keys. All surface dischargers,
              except the City of Key West sewage treatment plant,          mImplementation. The responsible agency will be the
              are currently exempted from developing resource              FDEP, which will work through the Intergovernmental
              monitoring programs because the end of their                 Coordinating Council to review existing MOAs and
              discharge pipe does not extend beyond the baseline           MOUs. Other primary agencies involved will be the
              (the mean low-tide line). A second way to accomplish         EPA and FDHRS. No new rules or governmental
              the same goal would be for the FDEP, through the             structures will be required to implement this activity.
              State of Florida's permitting authority, to require
              resource monitoring when individual NPDES permits            mSchedule. This activity will have no action in year 1.
              come up for renewal. This approach probably would            It will require 24 months to complete.
              be easier, because it can be accomplished under
              existing rules. Eliminating EPA's baseline exemption         Activity 2-Combine OSDS Permitting Responsi-
              would require a Federal rule change.                         bilities. This activity would combine FDEP and
                                                                           FDHFIS permitting responsibilities for commercial
              mImplementation. The EPA and FDEP are the                    establishments, institutions, and multi-family residen-
              responsible agencies for this activity. The EPA could        tial establishments into one agency. Currently, for
              eliminate the baseline exemption as it applies to the        commercial establishments, institutions, and multi-
              Florida Keys. Alternatively, the FDEP could require          family residential uses with total daily flows of less
              resource monitoring as individual NPDES permits              than 5,000 gallons, the Monroe County Public Health
              come up for renewal. The FDEP has the authority to           Unit is authorized to permit the aerobic treatment unit
              require biological/resource monitoring under existing        and the filter unit, whereas the FDEP permits the
              NPDES regulations.                                           injection well (borehole). However, effluent from
                                                                           these aerobic systems does not meet the more
              wSchedule. This activity will have a low level of action     stringent wastewater treatment standards of the
              in year 1. It will require 36 months to complete.            FDEP.

                                                                           wImplementation. The    FDEP would be the respon-
                                 Strategy W.8:                             sible agency, working closely with the FDHRS. The
                               OSDS Permitting                             two agencies would enter into an MOU delineating
                                                                           their respective roles and responsibilities. The
                                                                           agencies would need to agree on establishing the
              Improve interagency coordination for industrial              same level of treatment requirements for existing and
              wastewater discharge permitting. Combine OSDS                new or innovative OSDS units to be permitted in the
              permitting responsibilities in one agency for commer-        Florida Keys. Once agreement is reached, the
              cial establishments, institutions, and multi-family          administrative rules regarding the quality of wastewa-
              residential establishments utilizing injection wells.        ter being discharged into injection wells would be
              (Priority Level Low, No Action in Year 1, 36 Months          amended.
              to Complete, 100% Funding Available for Full Imple-          oSchedule. This activity will have no action in year 1.
              mentation)                                                   It will require 36 months to complete.
              Activity 1-Improve Interagency Coordination. Thi
                                                                        18 Activity 3-Monitor Revised OSDS Rules. This
              strategy would improve coordination among the EPA,           activity will involve designing and implementing a
              FDEP, and local government relative to industrial            monitoring program to determine the effectiveness of
              wastewater discharge permitting and tracking (the            recent revisions in Part 11 of Chapter 1OD-6 Florida
              FDHRS is included for special cases, such as                 Administrative Code (FAC). Effective March 1992,
              seafood processing plants discharging into septic            the FDHRS implemented two key rule changes
              systems). At present, much of the interagency                specifically targeting the Florida Keys. One change
              coordination and tracking is handled through a series        makes the use of Class V underground injection
              of memoranda of agreement (MOAs) and MOUs.                   wells (boreholes) an option of last resort. The other
              These agreements would be reviewed, evaluated,               requires the placement of a 12-inch-thick (at a

              218






                                                                                                         Action Plans: Water Quality_
               minimum) filter layer of quartz sand below the                Activity 2-Establish Interagency Laboratory.
               drainfield absorption surface of the OSDS. Data are           Depending on the outcome of Activity 1 this activity
               needed to evaluate whether these changes are                  would create an interagency laboratory facility for
               achieving their desired effect.                               processing compliance monitoring samples.

               mImplementation. The responsible agency will be the           w1roplementation. The FDEP would be the respon-
               FDHRS, with primary responsibility assigned to the            sible agency, working with the FDHRS and possibly
               Environmental Administrator of the State Health               Monroe County.
               Office. The Monroe County Public Health Unit
               Environmental Health Section would provide field              oSchedule. This activity will have no action in year 1.
               staff. The change requires a 12-inch-thick filter layer       It will require 36 months to complete.
               of quartz sand, so it will be necessary to find
               homeowners with existing OSDS who are willing to
               serve as a control group.

               oSchedule. This activity will have no action in year 1.
               It will require 36 months to complete.


                                   Strategy W.9:
                              Laboratory Facilities


               Evaluate the feasibility of, and if appropriate, estab-
               lish an interagency laboratory capable of processing
               monitoring and compliance samples.
               Priority Level Low, No Action in Year 1, 36 Months to
               Complete, <50% Funding Available for Full Imple-
               mentation)

               Activity 1-Conduct Feasibility Study. This activity
               would evaluate the feasibility'Of creating an inter-
               agency laboratory facility in the Keys for processing
               compliance monitoring samples. Neither the FDEP
               nor the FDHRS has FDHRS-certified (or equivalent)
               laboratory facilities in the Keys. Because of quality
               control considerations (holding times), it is difficult or
               impossible to ship compliance/enforcement samples
               to Tallahassee for analysis, and use of contracted
               private laboratory facilities is expensive. The agen-
               cies should jointly evaluate the feasibility of establish-
               ing a laboratory facility certified by FDHRS or by the
               quality assurance section of FDEP. The laboratory
               would be located in the FDEP office building in
               Marathon and would not process toxics or status and
               trends samples from the water quality monitoring
               program.

               m1roplementation. The FDEP would be the respon-
               sible agency, working with the FDHRS and possibly
               Monroe County.

               nSchedule. This activity will have no action in year 1.
               It will require 36 months to complete.



                                                                                                                                    219








                Action Plans: Water Quality

                                                                                 Currently, no hot spots specifically attributable to
                                                                                 stormwater runoff have been identified, although
                                                                                 stormwater runoff may be a contributing factor in
                This section describes four strategies for reducing        some identified hot spots.
                pollution from stormwater runoff in the Keys. The first
                (W.1 1) would involve engineering modification of hot            Implementation. Monroe County will be the respon-
                spots to control pollutants in stormwater runoff. The            sible agency. Other primary agencies involved will be
                next two strategies (W.1 2 and W.13) work together to            the FDEP, Florida Department of Transportation
                require enactment of stormwater management                       (FDOT), and SFWMD.
                ordinances and master plans that would cover the
                entire Keys. The fourth (W.14) involves the develop-             Schedule. This activity will have a low level of action
                ment and implementation of widely used Best                      in year 1. It will require 12 months to complete.
                Management Practices and a public education
                program to reduce pollutants entering stormwater                 Activity 2-Retrofit Hot Spots and Portions of U.S.
                runoff.                                                          1. This activity will involve using grass parking,
                                                                               swales, pollution control structures, and detention/
                    Storm Water Strategies                                      retention facilities to control pollutants in stormwater
                                                                                 runoff. Hot spots would be identified in Activity 1.
                                                                                 Swales and detention facilities would be installed
                  W.11:Stormwater Retrofitting
                       Inventory stormwater hot spots
                        Retrofit hot spots and portions of us 1                along portions of US 1. Engineering actions would be
                                                                              taken to control stormwater runoff in areas handling
                    W.12:Stormwater Permitting
                         Eliminate permitting threshold                         toxic and hazardous materials.
                 
                     W.13: Stormwater Management                              Implementation. Monroe County will be the respon
                      Develop and enact stormwater ordinance
                       and master plan on a continuing. county                sible agency for stormwater retrofitting. Other primary
                       wide basis                                              agencies involved will be the FDEP, FDOT, and
                                                                                 SFWMD.
                     Petition EPA to include the Florida Keys in the 
      		   stormwater NPDES program
                                                  
                   W.14: Best Management Practices                             Schedule. This activity will have no action in year 1.
                   Develop and implement Best Management
                    practices and a public education program                     It will require 60+ months to complete.
                              
                     
                         
                                                                                                    Strategy W.1 2:
                                                 
                                       
                                        

                                                                                           Stormwater Permitting
                                  

                                                                                 Require that no development in the Florida Keys be
                                    Strategy W.11:                               exempted from the stormwater permitting process.
                             Stormwater Retrofitting                             (Completed in Year 1)
                                                                                 Activity 1-Eliminate Permitting Threshold. The
                                                                                 SFWMD, which currently has primary responsibility
                Identify and retrofit stormwater hot spots using Best            for stormwater permitting in the Florida Keys, ex-
                Management Practices, such as grass parking,                     empts developments of fewer than 10 acres in size,
                swales, pollution control structures, and detention/             or two acres of impervious surface, from having to
                retention facilities. Control stormwater runoff in areas         obtain a stormwater permit. Most developments in
                handling toxic and hazardous materials. Install                  the Keys fall below this threshold. Local governments
                swales and detention facilities along limited sections           are in the process of developing stormwater manage-
                of US 1.                                                         ment ordinances and/or stormwater management
                (Priority Level Medium, Low Level of Action in Year              master plans. This strategy would require that local
                1, 60+ Months to Complete, <50% Funding Available                government ordinances and master plans cover all
                for Full Implementation)                                         developments, with no exemptions from the
                Activity 1-Inventory Stormwater Hot Spots. This                  stormwater permitting process.
                activity would involve identifying stormwater hot spots
                for possible engineering modification (retrofitting).

                220
 






                                                                                                          Action Plans: Water Quality

                Existing Program Implementation. Monroe County's             Activity 1-Develop and Enact Stormwater Ordi-
               stormwater management ordinance is in place and               nances and Master Plans on a Continuing,
               addresses everything that falls below the SFWMD               County-Wide Basis. Under this activity, local
               permitting threshold. The City of Key West's Land             governments would enact ordinances and master
               Development Regulations also address develop-                 plans to control pollutants in stormwater runoff.
               ments that fall below the SFWMD permitting thresh-
               old.                                                          mImplementation. Each local government (Monroe
                                                                             County and the municipalities) will be responsible for
               wImplementation. Each local government (Monroe                developing its own stormwater management ordi-
               County and the municipalities) will be responsible for        nance. Subsequent modifications to each ordinance
               implementing its own ordinance within its jurisdic-           may be necessary once each local government
               tional limits. As the State land planning agency for a        adopts its stormwater management master plan.
               designated Area of Critical State Concern, the FDCA           Under authorities of Sections 163.3161 and 380.05
               has an oversight responsibility to ensure that local          FS, the FDCA has responsibility for ensuring that
               development regulations adequately protect the                programs and regulatory rules enacted by local
               area's natural resources and are consistent with              governments in Monroe County are consistent with
               those of their neighbors. The SFWMD will provide              the legislative growth management principles de-
               technical assistance in the development of                    scribed in the above-mentioned sections of the
               stormwater ordinances and master plans.                       Florida Statutes. The SFWMD may provide technical
                                                                             assistance in the development of stormwater ordi-
               oSchedule. This activity is in progress.                      nances and master plans.

                                                                             oSchedule. This activity will have a medium level of
                                  Strategy W. 13:                            action in year 1. It will require 12 months to complete.
                          Stormwater Management                              Activity 2-Petition EPA to Include the Florida
                                                                             Keys in the Stormwater NPDES Program. This
               Require local governments to enact and implement              activity would provide an alternate means of control-
               stormwater management ordinances and compre-                  ling stormwater pollutants in the Keys. It would be
               hensive stormwater management master plans.                   implemented only if adequate local stormwater-
               Petition the EPA to include the Florida Keys in the           management ordinances, and administrative capabil-
               stormwater NPDES program, if adequate stormwater              ity to manage such ordinances, are not in place by
               management ordinances and administrative capabil-             the deadlines established under Activity 1.
               ity to manage such ordinances are not in place by a           sImplementation. The, responsible agency will be the
               certain date.                                                 FDEP, which would petition the EPA to include the
               (Priority Level Medium, Medium Level of Action in             Keys in the stormwater NPDES program for separate
               Year 1, 24 Months to Complete, 100% Funding                   municipal storm sewer systems. Monroe County
               Available for Full Implementation)                            (including its municipalities) currently falls below the
               This strategy would help to reduce stormwater                 population threshold that would trigger the county's
               pollutant loadings (e.g., sediment, toxics, and nutri-        inclusion in the stormwater NPDES program. How-
               ents) by requiring local governments to develop               ever, states may petition EPA to include a local
               stormwater management ordinances and master                   government in the program.
               plans. Currently, there is little regulation of               oSchedule. This activity will have no action in year 1.
               stormwater runoff in the Keys. Many developments              It will require 24 months to complete.
               were constructed before SFWMD stormwater permit-
               ting requirements were in place or, if constructed
               more recently, they fell below the acreage thresholds
               for those regulations. Monroe County recently
               passed a stormwater ordinance, and other local
               governments are either developing ordinances and/or
               have stated in their comprehensive plans that
               stormwater management master plans will be
               developed.



                                                                                                                                      221




Action Plans: Water Quality

Strategy W.14:
Best Management Practices

Institute a series of Best Management Practices and
a public education program to prevent pollutants from
entering stormwater runoff.
(Priority Level Medium, Low Level of Action in Year
1,36 Months to Complete, <50% Funding Available
for Full implemntation)

Activity 1-Develop and implement Best Manage-
ment Practices and a Public Education Program.
This activity would reduce pollution from stormwater
runoff through a variety of programs, including street
sweeping: ordinances airned at controlling fertilizer
application on public and private landscaping;
collection locations and a public eduation program
for the proper use and disposal of fertilizers, pesti-
cides, motor oil, and other hazardous chemicals; and
strenuous litter-control programs.

Implementation. The responsible agencies would be
local governments (Monroe County and the munici-
palities). Other primary agencies invovled would be
the FDEP, FDCA, and SFWMD. Educational aspects
would be coordinated with teh educational staffs of
the Sanctuary (NOAA) and the SFWMD. in addition.
the FDACS would be involved with respect to fertiliz-
ers and pesticides.

Schedule. This activity will have a low level of action
in year 1. It will require 36 months to complete.

Marina and live-Aboard Strategies

This sectin describes strategies/activities to reduce
pollution from marinas and live-aboard boaters.
Seven strategies have been develped to help
reduce pollution from marinas and live-aboards. Five
would attempt to reduce pollution by restricting
discharges and educating the public (strategy B.7),
concentrating live-aboards in areas where wastewa-
ter treatment facilities can be provided (strategy z.5),
and increasing the availability of pump-out facilities
(strategies L.1 and L.6). Strategy L.2 would evaluate
interagency cooperation for marina permitting.
Strategy L.3 would reduce pollution from marina
operations. The last strategy (E.4) would reduce

Marina and Live-Aboard Strategies

B.7: Pollution Discharges
Implement the 1994 FLorida clean Vessel Act
Evaluate the need for no-Discharge zones
Establish no-discharge zones
Develop and implement a public education
program
Change environmental crimes category

Z.5: Special-use Areas
Evaluate Teasibility of mooring fields
Establish criteria for mooring fields
Establish mooring fields

L.1: Marina pumpout
Develop Plan for sewage discharge elimination
Require marina pump-out facilities
Enforce Pump-out use

L.6: Mobile Pumpout
Establish mobile pump-out service

L.2: Marina siting and Design
Improve interegency cooperation in marina
permitting

L.3: Marina Operations
Establish containment areas for boat
maintenance

Encourage marina owners to participate in
environmentally-oriented organizations
Encourage marina owners to provide a user
manual withlocal environmental information

E.4: Training/Workshps/School Programs
Expand environmental awareness program

222






                                                                                                       Action Plans: Water Quality

               pollution from boaters and marinas in general, by           Activity 2-Evaluate the Need for No-discharge
               expanding an existing ed ucation/envi ron mental            Zones. A study would be conducted to evaluate the
               awareness program.                                          need for no-discharge zones in the Florida Keys,
                                                                           particularly in areas where live-aboard vessels
               Additional data concerning pollutant concentrations in      congregate and there is a history of water quality
               water and sediments of marinas and live-aboard              violations. Aspects that should be considered
               areas will be collected through the Water Quality           include water circulation, concentration of boats in
               Monitoring Program described in strategy W.20.              the area, percentage of boats with Type I or 11 marine
               These data should indicate the severity and extent of       sanitation devices, and impacts on fishing and
               water quality problems, and whether there is a need         swimming areas.
               for further pollution-control measures.
                                                                           wImplementation. The EPA would be the responsible
                                                                           agency in evaluating the need for no-discharge
                                  Strategy B.7:                            zones. Other primary agencies involved would be
                             Pollution Discharges                          the USCG, NOAA, and the FDEP. Monroe County
                                                                           will have an assisting role.

               Reduce pollution discharges (e.g., sanitary wastes,         oSchedule. This activity will have a low level of
               debris, and hydrocarbons) from vessels by imple-            action in year 1. It will require 12 months to com-
               menting the 1994 Florida Clean Vessel Act and               plete.
               developing a public education program. Change the           Activity 3-Establish No-discharge Zones. Based
               environmental crimes category associated with               on the findings of the study described under Activity
               discharges from felony to civil offense, thereby            2, the EPA would designate no-discharge zones in
               removing the need to prove criminal intent.                 accordance with provisions of marine sanitation
               (Priority Level Medium, Medium Level of Action in           devices where live-aboard vessels congregate, and
               Year 1, 48 Months to Complete, <50% Funding                 there is a history of water quality violations.
               Available for Full Implementation)
               Activity 1-Implement the 1994 Florida Clean                 mImplementation. The EPA would be the responsible
               Vessel Act. The Florida Clean Vessel Act prohibits          agency in designating the no-discharge zones. The
               boaters from discharging raw sewage into state              legislative mechanism to implement this activity is in
               waters, effective October 1, 1994. In addition, all         place. Enforcement procedures and responsibilities
               vessels 26 feet or more in length with an enclosed          need to be worked out if the activity is to be effective.
               cabin and berthing facilities are required to have a        The FIDEP and Monroe County will have an assisting
               toilet on board. Houseboats and floating structures         role.
               must, by October 1, 1996 have permanently installed         mSchedule. This activity will have no action in year 1.
               toilets attached to Type III marine sanitation devices,     It will require 48 months to complete.
               or directly connect their toilets to shoreside plumbing.
               Full implementation and enforcement of the Clean            Activity 4-Develop and Implement a Public
               Vessel Act would reduce sewage pollution of Sanctu-         Education Program. This activity would create a
               ary waters.                                                 program to educate the boating public about ways to
               mimplementation. The agency responsible for enforc-         reduce pollution from vessels. The program would
               ing the Clean Vessel Act is the Florida Marine Patrol       include providing information about the Clean Vessel
               (FMP). NOAA will work with the EPA and the State to         Act and other regulations affecting discharges from
               phase in the implementation of the Clean Vessel Act         vessels.
               for Federal waters after full public review of the draft    mImplementation. The lead agency will be FMP, with
               rules and public hearings, prior to issuance of final       assistance from the EPA and NOAA.
               regulations. The Sanctuary regulations prohibit all
               marine sanitation discharges in the Ecological              mSchedule. This activity will have a low level of action
               Reserves and Sanctuary Preservation Areas.                  in year 1. This activity will require 12 months to
               wSchedule. This activity will have a low level of action    complete.
               in year 1. This activity will require 12 months to
               complete.


                                                                                                                                 223






                Action Plans: Water Quality

                Activity 5-Change the Environmental Crimes                      study would evaluate whether mooring fields could
                Category. This activity would change the environ-               be used in conjunction with shore-based or mobile
                mental crimes category associated with discharges               pumpout facilities to provide an effective means of
                from a felony or misdemeanor to a civil offense,                controlling waste discharges from live-aboard boats.
                thereby removing the need to prove criminal intent.
                Currently, it is difficult to prove criminal intent for         mImplementation. The Sanctuary will be the lead
                actions such as accidentally discharging fuel or                agency. Local government (Monroe County and/or
                pumping out a shipboard sewage holding tank.                    City of Key West) may have an assisting role,
                Therefore, in practice, law enforcement officers focus          depending on the location of the mooring field(s).
                more attention on other crimes that require a less
                rigorous burden of proof. Making environmental                  mSchedule. This activity will have a low level of action
                crimes a civil, rather than criminal, offense would             in year 1. It will require 12 months to complete.
                lead to an increased level of enforcement of environ-
                mental laws. Civil penalties could take the form of             Activity 2-Establish Criteria for Mooring Fields.
                major fines for such accidents, without considering             This activity would define criteria for designating
                the intent of the individual involved.                          mooring fields, based on the feasibility study con-
                                                                                ducted in Activity 1
                sImplementation. The responsible agency will be the
                FMP. Implementation would require changes in the                mimplementation. The Sanctuary will be the lead
                Florida Statutes and Florida Administrative Code                agency. Local government (Monroe County and/or
                (FAC). NOAA and Monroe County may have an                       City of Key West) may have an assisting role,
                assisting role.                                                 depending on the location of the mooring field(s).

                wSchedule. This activity will have no action in year 1.          Schedule. This activity will have no action in year 1.
                It will require 36 months to complete.                          It will require 12 months to complete.

                This strategy is also included in the Regulatory                Activity 3-Establish Mooring Fields. Depending
                Action Plan.                                                    on the outcome of Activities 1 and 2, this activity
                                                                                would establish designated mooring fields or anchor-
                                                                                age areas in places having significant concentrations
                                    Strategy Z.5:                               of live-aboard vessels.
                                Special-use Areas                               w Implementation. The Sanctuary will be the respon-
                                                                                sible agency for designating mooring fields. The
                                                                                FDEP and USCG would assist in implementing this
                This strategy establishes zones to set aside areas for          activity by providing sufficient technical expertise and
                scientific research and educational purposes, resto-            jointly processing required permits. Legal designation
                ration, monitoring, or to establish areas that confine          of mooring fields requires a permit or land lease from
                or restrict activities such as personal watercraft              the FDEP's Bureau of Submerged Lands and Pre-
                operations and live-aboard mooring fields. These                serves. It also requires a USCG permit because it
                areas will minimize impacts on sensitive habitats and           affects navigable waters. The FDEP conducts
                reduce user conflicts. Special management programs              environmental inspections of selected sites and
                (e.g., monitoring, research, Special-use Permits, and           issues resource evaluations and impact assess-
                restoration) can be conducted without impediment to             ments. Local government (Monroe County and/or
                these areas. They can be used to set aside areas for            City of Key West) may have an assisting role,
                specific uses such as long-term research and moni-              depending on the location of the mooring field(s).
                toring and/or minimizing the adverse environmental
                effects of high-impact activities.                              m Schedule. This activity will have no action in year
                (Priority Level Medium, Low Level of Action in Year             1. It will require 36 months to complete.
                1, 12+ Months to Complete, <50% Funding Available
                for Full Implementation)                                        This strategy is also included in the Regulatory,
                                                                                Research and Monitoring, and Zoning action
                Activity 1-Evaluate Feasibility of Mooring Fields.              plans.
                This activity would evaluate the feasibility of estab-
                lishing mooring fields in places having significant
                concentrations of live-aboard vessels. The feasibility

                224







                                                                                                          Action Plans: Water Quality
                                   Strategy LA:                              sImplementation. This activity could be implemented
                                                                             entirely by local government (Monroe County and the
                                 Marina Pumpout                              municipalities), which could pass ordinances requir-
                                                                             ing all marinas offering overnight docking to boats
                                                                             over a given length to have stationary or mobile
               Require marinas that have pump-out requirements to            equipment to pump the holding tanks of such ves-
               install pump-out facilities.                                  sels. The same option could be implemented at the
               (Priority Level High, Low Level of Action in Year 1, 60       State or even the Federal level, but implementation
               Months to Complete, <50% Funding Available for Full           at these levels would be legislatively more complex,
               Implementation)                                               and would take substantially longer to put into
               This strategy will eliminate marina live-aboard               practice. Monroe County will actively seek funding
               vessels as a source of pollution in the Sanctuary.            and coordinate with marinas to facilitate compliance.
               Though live-aboards within marinas may be a minor             mSchedule. This activity will have no action in year 1.
               contributor to the total pollutant load, marinas are          It will require 36 months to complete.
               normally located in confined waters that may be more
               susceptible to the impacts of such loading. By                Activity 3-Enforce Pump-out Use. This activity
               requiring marinas to provide pump-out facilities, two         would enforce use of the expanded pump-out facili-
               problems will be resolved: 1) boats in marinas that           ties developed under Activity 2 of this strategy, and
               don't currently pump out will be provided with the            the mobile pump-out service developed under
               means to do so; and 2) boats that moor outside of             Strategy L.6. A workable system of coordinated
               marinas can take advantage of the indreased number            enforcement procedures has never been developed.
               of pump-out facilities.                                       Current pump-out usage is low, in part because
               Activity I-Develop a Plan for Sewage Discharge                existing pump-out facilities are few, and some are
               Elimination. This activity would develop a compre-            inaccessible to the public. One possible enforcement
               hensive plan to deal with the problem of sewage               tool would involve issuing a large, visible sticker to all
               discharges from live-aboards and other boaters. The           boats anchored in, or passing through, the Sanctu-
               plan could include elements such as requiring all             ary. Each time a vessel's holding tanks were pumped
               marinas to install pump-out facilities (Activity 2);          out, the sticker would be stamped with the date and
               enforcing pump-out use (Activity 3); establishing a           time. If the vessel had not had its holding tanks
               mobile pump-out service (strategy L.6); establishing          pumped out within a given length of time based on its
               mooring fields (Activity 3 under strategy Z.5,                size and carrying capacity, a citation would be
               Special-use Areas), and evaluating the treatment and          issued.
               disposal of pumped out wastewater. However, before
               these activities are undertaken, a comprehensive              sImplementation. Enforcement must be coordinated
               study of the options is needed to devise a coordi-            among the Sanctuary staff, FMP, and the Monroe
               nated approach.                                               County Sheriff's Department. In addition, "boating
                                                                             rights" representatives from the Keys need to be part
               mimplementation. This activity could be implemented           of any discussions to implement, enforcement mea-
               by local government (Monroe County and the munici-            sures. Coordination could be formalized through a
               palities). The FDEP and FDCA (through its authority           series of MOUs or interlocal agreements.
               set out in Chapter 380 FS - Critical Area Program)
               would also have a primary role. The EPA and NOAA              nSchedule. This activity will have no action in year 1.
               would assist.                                                 It will require 60 months to complete.

               mSchedule. This activity will have a low level of action
               in year 1. It will require 12 months to complete.                                  Strategy L.6:
               Activity 2-Require Marina Pump-out Facilities.                                  Mobile Purnpout
               This activity would require all marinas (10 or more
               slips, as defined by the State of Florida) to install         Establish a mobile pump-out service through the
               pump-out facilities. This would greatly increase the          local government, or a franchise with a private
               number and accessibility of pump-out facilities in the        contractor, which would serve to pump out
               Florida Keys. If pump-out facilities were more numer-         live-aboard vessels moored outside of marina
               ous and accessible, more people presumably would              facilities. Encourage the use of existing, and the
               use them.


                                                                                                                                         225






                Action Plans: Water Quality

                construction of additional, shore-side facilities such      mimplementation. The responsible agency will be the
                as dinghy docks, parking areas, showers, and                FDEP. The other primary agency involved will be the
                laundries for use by live-aboards.                          ACOE. The FDEP and ACOE should consider
                (Priority Level Medium, No Action in Year 1, 36             implementing a joint permitting process. Also, the
                Months to Complete, <50% Funding Available for Full         FDEP needs to work with the EPA to make Florida a
                Implementation)                                             delegated state regarding NPDES stormwater
                                                                            discharge regulatory authority. This would avoid
                Activity 1-Establish a Mobile Pump-Out Service.             duplication in the permitting process.
                This activity would establish a mobile pump-out
                service either through local government or a fran-          wSchedule. This activity will have no action in year 1.
                chise arrangement with a private contractor.                It will require 36 months to complete.

                simplementation. Monroe County would be the
                responsible agency. No new legislation or legal                                Strategy U:
                authority is needed for the County to develop a                            Marina Operations
                mobile pump-out service. A prototype study could be
                conducted to determine how many live-aboard
                boaters in a given area would voluntarily subscribe to      Reduce pollution from marina operations by estab-
                such a service. If the idea appeared to be economi-
                cally viable, the County could advertise for suppliers      lishing containment areas for boat maintenance,
                of the service and sell franchises on a bid basis. The      encouraging marina owners to participate in environ-
                USCG would have an assisting role.                          mentally-oriented organizations such as the Interna-
                                                                            tional Marina Institute, and encouraging marina
                oSchedule. This activity will have no action in year 1.     owners to provide a user manual with local environ-
                It will require 36 months to complete.                      mental information such as locations of pumpout
                                                                            facilities and trash receptacles.
                                                                            (Priority Level Medium, No Action in Year 1, 36
                                                                            Months to Complete, <50% Funding Available for Full
                                   Strategy L.2:                            Implementation)
                          Marina Siting and Design
                                                                            Activity 1-Establish Containment Areas for Boat
                                                                            Maintenance. This activity would establish paved
                Conduct an assessment of marina (10 slips or more)          and curbed containment areas for boat maintenance
                compliance with current regulations and standards,          activities such as huff scraping and repainting,
                including OSHA standards for marina operations.             mechanical repairs, fueling, and lubrication. It would
                Evaluate interagency cooperation in marina permit           create secondary containment, generally in the form
                review process, and initiate action to eliminate            of curbing or synthetic liners, for areas where signifi-
                conflicts in agency jurisdictions. Improve marina           cant quantities of hazardous or toxic materials are
                siting criteria to ensure that only appropriate deep        stored. Procedures to avoid or reduce fuel spillage
                water access will be permitted, and to provide for the      during refueling operations would be evaluated.
                proper handling of noxious materials.
                (Priority Level Low, No Action in Year 1, 36 Months         nImplementation. The responsible agency will be the
                to Complete, 100% Funding Available for Full Imple-         EPA, working with the FDEP. Local governments
                mentation)                                                  (Monroe County and the municipalities) may have an
                                                                            assisting role. The NPDES stormwater discharge rule
                Activity 1-Improve Interagency Cooperation in               is the mechanism to implement this activity. In 1990,
                Marina Permitting. Marina operations are already            the EPA enacted rules to control stormwater dis-
                subjected to numerous permits and permit review             charges from a variety of uses. The rule is known as
                processes. This activity would evaluate interagency         the NPDES Permit Application Regulations for
                cooperation to simplify matters for the marina opera-       Stormwater Discharges. Marinas that are involved in
                tor, allow the implementation of Best Management            boat maintenance activities (including vessel rehabili-
                Practices, and help reduce pollution reaching adja-         tation, mechanical repairs, painting, fueling, and
                cent coastal waters. The possibility of consolidating       lubrication) or equipment-cleaning operations are
                permitting requirements into a single, ove .rail FDEP       considered industrial activities according to 40 CFR
                operating permit would be included in this evaluation.      122.26. Therefore, all marinas involved in such
                                                                            activities must apply for an NPDES stormwater

                226







                                                                                                    Action Plans: Water Quality

             permit. These permits require applicants to address         awareness program that has produced significant
             how they plan to eliminate pollutants such as toxics        results in the past. If this program were expanded,
             from the stormwater runoff generated as a result of         additional reductions in pollution could be expected.
             their marina activities. The applicants have to identify
             the Best Management Practices they intend to use.           mExisting Program Implementation. This activity
             One alternative is to construct containment areas and       would formalize and expand an existing activity - the
             restrict all marine repair and boat hull reconstruction     FMP District 9 environmental education program.
             to these areas.                                             The program would be enhanced to heighten the
                                                                         environmental awareness of how human activities
             wSchedule. This activity will have no action in year 1.     adversely affect water quality in the Keys.
             It will require 36 months to complete.
                                                                         mimplementation. The FDEP would be the respon-
             Activity 2-Encourage Marina Owners to Partici-              sible agency in expanding the existing program
             pate in Environmentally-oriented Organizations              operated by the FMP. All that is required to expand
             such as the International Marina Institute.                 the program is additional funding, and a management
                                                                         directive from the FDEP to improve and increase the
               Implementation. The responsible agencies will be          range of its existing program. All public awareness
             Monroe County and the municipalities working with           programs should be coordinated with the educational
             the FDEP.                                                   efforts of the Sanctuary.

               Schedule. This activity will have no action in year 1.    oSchedule. This activity will have a medium level of
             it will require 12 months to complete.                      action in year 1. It will require 24 months to complete.

             Activity 3-Encourage Marina Owners to Provide a             This strategy is also included in the Educationl
             User Manual with Local Environmental Informa-               Outreach and Volunteer action plans.
             tion. The information could include locations of
             pumpout facilities and trash receptacles, as well as
             sensitive habitats.


             m Implementation. The responsible agencies will be
             Monroe County and the municipalities working with
             the FDEP.


             0Schedule. This activity will have no action in year 1.
             it will require 12 months to complete.


                                Strategy EA
                      TrainingMorkshops/School
                                   Programs


             Develop opportunities for instruction and training.
             This will include programs conducted by teachers,
             Sanctuary staff, and volunteers. Training programs
             (e.g., Coral Reef Classroom, etc.) will also be pro-
             vided for teachers, environmental professionals,
             business owners and operators, and law enforce-
             ment officials.
             (Priority Level Mediuim, Medium Level of Action in
             Year 1, 24 Months to Complete, <50% Funding
             Available for Full Implementation)

             Activity 1-Expand the Environmental Awareness
             Program. The FMP already has an environmental

                                                                                                                              227






                Action Plans: Water Quality

                                                                                 treating leachate, constructing     slurry walls, and
                     @nf                                                         excavating and hauling landfill contents.
                                                                                 (Priority Level Medium, No Action in Year 1, 60+
                This section describes strategies/activities to deal             Months to Complete, <50% Funding Available for Full
                with potential pollution problems due to leaching from           Implementation)
                landfills. All landfill sites in the Florida Keys (with the
                exception of the Cudjoe Key expansion) were                      Activity I-Conduct a Historical Landfill Search
                developed prior to current regulations requiring                 and Assessment Conduct a comprehensive search
                bottom liners and leachate collection. At many sites,            for abandoned landfills and dumps. Evaluate each
                filling with solid waste probably occurred below the             site to determine if it contains hazardous materials or
                water table in the early stages. Consistent with                 is causing environmental problems. According to
                common practice at the time, there was probably little           knowledgeable state and local government person-
                or no control over materials deposited in these                  nel, there are a number of abandoned landfills and
                landfills. These conditions indicate a significant               dumps, many on private property, within the Florida
                potential for contamination of groundwater and                   Keys. A comprehensive program needs to be set up
                surface waters from these inactive landfills.                    to locate, map, and evaluate these historic casual
                                                                                 dump sites to determine if they contain hazardous
                Although the potential exists for problems, monitoring           materials, or are causing environmental problems.
                data do not indicate leaching or water quality degra-
                dation. Therefore, no corrective actions are pro-                nimplementation. The responsible agency will be
                posed. However, two investigative activities are                 Monroe County, working with the FIDEP. The
                proposed under strategy L.7, SWID Problem Sites.                 U.S. Navy would have a primary role in dealing with
                These activities would involve searching for and                 landfills on its property. The EPA would have an
                assessing abandoned landfills and dumps (Activ-                  assisting role.
                ity 1), and intensifying existing monitoring programs
                around landfills (Activity 2) to ensure that no leaching         mSchedule. This activity will have no action in year 1.
                into marine waters is occurring. Under Activity 3,               It will require 36 months to complete.
                remedial actions would be evaluated and imple-
                mented, but only if problems were discovered                     Activity 2-Intensify Landfill Monitoring. Intensify
                through Activities 1 or 2.                                       existing monitoring programs around landfills to
                                                                                 ensure that no leaching is occurring into marine
                                                                                 waters. Identify and monitor old landfills that were
                                                                                 never permitted, and therefore have no closure plans
                                7-
                               surat-0
                                                                                 or closure permits. This activity would help ensure

                                           4--
                                                                                 that existing monitoring programs are adequate to
                           WD       h           4,                               detect leaching from landfills. Monitoring data from
                                                      kch'an
                       ondu       ist   a        111'se       @d
                                                                                 landfills in the Florida Keys do not indicate that there
                                  '47                                                 leaching problem. However, the number of
                      aa(s&sess@
                   `14      "1  lAhdfifix
                        ensil,                   h
                                                                                 monitoring locations is small, and should be in-
                                  hd
                        aluat,   a   1   '16              1' Vac"d
                                                                                 creased to ensure that no leaching is occurring
                                                                                 around these landfills. In addition, this strategy would
                                                                                 provide for monitoring of older landfills that are not
                                                                                 currently being monitored. It should be noted that
                                     Strategy L.7:                               Monroe County is currently complying with all State
                                SWD Problem Sites                                and Federal monitoring guidelines.
                                                                                 mImplementation. The responsible agency will be
                Conduct an assessment to identify solid waste                    identified. The U.S. Navy would have a primary role
                                                                                 in dealing with landfills on its property. The EPA
                disposal sites that pose threats to water quality and/           would have an assisting role.
                or sensitive areas, based on EPA's Water Quality
                Plan. Intensify existing monitoring programs around              oSchedule. This activity will have no action in year 1.
                landfills to ensure that no leaching is occurring into           It will require 36 months to complete.
                marine waters. If problems are discovered, evaluate
                                                       w
                                                      A@",r
                                                     T. d a










                and implement appropriate remedial actions such as               Activity 3-Evaluate and Implement Remedial
                boring or mining, upgrading closure, collecting and              Actions. If problems are discovered, evaluate and

                228







                                                                                                         Action Plans: Water Quality
               implement appropriate remedial actions such as
               boring or mining, upgrading closure, collecting and
               treating leachate, constructing slurry walls, and
               excavating and hauling landfill contents.
                                                                             This section describes strategies/activities to reduce
               mimplementation. The responsible agency will be               the likelihood of pollution from spills of hazardous
               Monroe County, working with the FIDEP. The                    materials in and near the Keys. The current manage-
               U.S. Navy would have a primary role in dealing with           ment arrangement appears to be functioning ad-
  4,           landfills on its property. The EPA would have an              equately; however, there are some actions that could
               assisting role.                                               be taken to further reduce the potential for accidental
                                                                             spills. These management strategies would enhance
               zSchedule. This activity will have no action in year 1.       HAZMAT response (W.15), improve spill reporting
               It will require 60+ months to complete.                       (W. 16), and develop an inventory of hazardous
                                                                             materials handling and use in the Keys (L.10).








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                                                                                                                 -n



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                                                                                                Strategy W. 15:
                                                                                            HAZMAT Response


                                                                             Improve and expand oil and hazardous materials
                                                                             response programs throughout the Sanctuary.
                                                                             (Priority Level Medium, Low Level of Action in Year
                                                                             1, 36 Months to Complete, <50 % Funding Available
                                                                             for Full Implementation)

                                                                             This strategy will reduce the chances that a spill of oil
                                                                             or other hazardous materials will have a significant
                                                                             negative impact on Sanctuary resources. This will be
                                                                             accomplished by improving coordination and coop-
                                                                             eration among the Federal, State, and local agencies
                                                                             responding to spills; by encouraging improvements in
                                                                             response and containment technologies appropriate
                                                                             to the Keys; and by creating a spill contingency plan
                                                                             for the Sanctuary that includes crew and equipment
                                                                             staged in the Keys (possibly including skimmers).
                                                                             This strategy recognizes that spills of hazardous
                                                                             materials are handled independent of marine spills,

                                                                                                                                        229






               Action Plans: Water Quality
               and improvement measures will be developed for                              Strate y W. 16:
               both response programs.                                                             9
                                                                                          Spill Reporting
               Activity 1-Deveiop and Periodically Revise
               Sanctuary Spill Contingency Plan. This activity
               would involve creating and periodically revising spill    Establish a reporting system to ensure that all spills
               contingency plan for the Sanctuary that includes crew     in and near the Sanctuary are reported to Sanctuary
               and equipment staged in the Keys (possibly including      managers and managers of impacted areas within
               skimmers). The plan should cover spills of a size not     the Sanctuary. Establish a geo-referenced Sanctuary
               responded to by the USCG and should include               spills database.
               training and education of a local response team.          (Priority Level Low, Low Level of Action in Year 1, @4
               Marine HAZMAT response will be coordinated frorn          Months to Complete, <50% Funding Available for Full
               the Marine Safety Office in Miami. Because spills of      Implementation)
               hazardous materials are handled independent of            Activity 1 - Establish Spill Reporting System. This
               marine spills, improvement measures will be devel-        activity would establish a reporting system to ensure
               oped for both response programs.                          that all spills documented by various agencies (e.g.,

               m
               Implementation. The responsible agencies will be          USCG, NOAA, FDEP) are reported to Sanctuary
               '                                                         managers. Small spills in particular are under-
               the USCG and FDEP. NOAA, Monroe County, and               reported; they occur frequently, and therefore may
               FDCA will assist.                                         have a significant cumulative effect on water quality
               mSchedule. This activity will have no action in year 1.   in the Sanctuary.
               It will require 36 months to complete.                    nimplementation. The responsible agency will be the
                                                                         USCG. Other primary agencies involved are NOAA
               Activity 2-Improve Coordination and Cooperation.          and the FDEP. The FDEP would assist in reporting
               This activity will involve improving coordination and     land-based spills that might affect Sanctuary waters.
               cooperation among the Federal, State, and local           The existing protocol for spill notification should be
               agencies responding to spills.                            used. The National Response Center is to be notified
               Implementation. The responsible agencies will be          of all spills.
               0'
               the USCG and FDEP. NOAA, Monroe County, and               mSchedule. This activity will have a low level of action
               the FDCA will assist.                                     in year 1. It will require 12 months to complete.
               oSchedule. This activity will have a low level of action  Activity 2-Establish and Maintain Sanctuary Spills
               in year 1. It will require 12 months to complete.         Database. This activity would establish and maintain
                                                                         a geo-referenced database for the Sanctuary that
               Activity 3-Improve Response/Confainment                   could be used to keep track of information about
               Technologies. This activity would encourage               spills (e.g., locations, quantities, types of material
               improvements in response and containment tech-            spilled, environmental impacts).
               nologies appropriate to the Keys.
                                                                         mImplementation. The responsible agency will be
               mImplementation. The responsible agencies will be         NOAA, with assistance from the FDEP and the
               the USCG and FDEP. NOAA, Monroe County, and               USCG.
               FDCA will assist.
                                                                         oSchedule. This activity will have no action in year 1.
               mSchedule. This activity will have no action in year 1.   It will require 24 months to complete.
               It will require 36 months to complete.










               230








                                                                                                        Action Plans: Water Quality

                                  Strategy L. 10:
                                                    							MOsquito Spraying Strategies                         
                               HAZMAT Handling
                                                                             This section describes strategies/activities to reduce
                                                                             pollution from pesticides used in mosquito spraying.
               Conduct an assessment and inventory of hazardous              There are no data indicating that the Mosquito
               materials handling and use in the Florida Keys                Control Program is causing water quality problems in
               including facilities, types and quantities of materials,      the Sanctuary. However, there is little existing
               and transport/movement. Add information to the                information on environmental concentrations and/or
               FDEP/EPA/Monroe County geographic information                 effects of pesticides in the Sanctuary. Additional data
               system (GIS) database.                                        concerning pesticide concentrations in sediments
               (Priority Level Medium, No Action in Year 1, 36               and biological tissue throughout the Sanctuary will be
               Months to Complete)                                           collected through the Water Quality Monitoring
                                                                             Program (strategy W.20).
               Activity 1-Conduct a HAZMA T Assessment(
               Inventory. This activity would involve conducting an          Based on the considerations discussed above,
               assessment and inventory of hazardous materials               strategies for major changes to the Mosquito Control
               handling and use in the Florida Keys including                Program are not appropriate at this time. Additional
               facilities, types and quantities of materials, and            data from the Water Quality Monitoring Program
               transport/movement. Information will be added to the          (strategy W.20) will help to determine whether major
               FDEP/EPA/Monroe County GIS database.                          changes are warranted. Two strategies are dis-
                                                                             cussed below. The first (W.17) will involve making
               implementation. The responsible agency will be the           refinements to the existing program. The second
               FDEP. Other primary agencies involved will be the             (W. 18) will involve conducting research on the
               EPA, FDEP, and Monroe County (e.g., Monroe                    impacts of pesticide use in the Keys, and alternative
               County Health Department maintains database on                practices. Under strategy W. 18, the mosquito control
               hazardous materials). The FDCA will have an                   program could be modified depending on the re-
               assisting role.                                               search findings. Strategy W.18 also includes a field
                                                                             survey of the full suite of pesticides, herbicides,
               Schedule. This activity will have no action in year 1.       fungicides, etc. used in the Sanctuary.
               It will require 36 months to complete.
														MOsquito Spraying Strategies
                                                                                
                                                                                  W.17: Mosquito Spraying
                                                                                        Review aerial spraying threshold
                                                                                        Review flight plans and equipment                                                                                    
                                                                                        Reconsider larvicide use
                                                                                        Evalute ultra-low-volume methods
                                                                                               
                                                                                                             .. .. . . .....
                                                                                        W.18: Pesticide Research
                                                                                              Research Impacts and alternatives
                                                                                              Modify mosquito control program
                                                                                              Conduct field survey of pesticide and 	                                                                                                              
                                                                                              herbicide use                                                                                                                                                         
                                                                                                                                                                                                                                                                                                                                                                 

                                                                                               Strategy W. 17:
                                                                                            Mosquito Spraying


                                                                             Refine the aerial mosquito spraying program to
                                                                             further reduce aerial spraying over marine areas.
                                                                             (Priority Level High, High Level of Action in Year 1,
                                                                             12 Months to Complete, 75-99% Funding Available
                                                                             for Full Implementation)

                                                                                                                                   231
 






               Action Plans: Water Quality

               This strategy would seek to reduce the amounts of            therefore would eliminate this source of diesel oil in
               pesticides entering Sanctuary waters through refine-         the environment. The use of these techniques would
               ment of the existing aerial spraying program. Ground         likely require some additional training of pilots.
               spraying by truck is the current method of choice for
               controlling the adult mosquito population. However,          mImplementation. The responsible agency will be the
               aerial spraying is initiated when the mosquito popula-       FDACS. Also, the FDCA will have an assisting role.
               tion reaches a certain threshold as determined by
               mosquito landing counts at test sites. Although the          oSchedule. This activity will have a high level of
               Monroe County Mosquito Control District attempts to          action in year 1. It will require 12 months to complete.
               avoid marine areas during aerial spraying, the
               potential for pesticides to reach marine waters might
               be reduced through refinements in the program.                                  Strategy W. 18:
                                                                                            Pesticide Research
               Activity 1-Review the Aerial Spraying Threshold.
               The threshold for initiating aerial spraying will be
               reviewed to determine whether it can be raised.              Develop and implement an independent research
               mimplementation. The responsible agency will be the          program to assess and investigate the impacts of,
               Florida Department of Agriculture and Consumer               and alternatives to, current pesticide practices.
               Services (FDACS). Also, FDCA will have an assisting          Modify the Mosquito Control Program as necessary
               role.                                                        on the basis of research findings. Conduct afield
                                                                            survey of pesticide and herbicide use in the Keys.
               mSchedule. This activity will have a high level of           (Priority Level High, No Action in Year 1, 36+ Months
               action in year 1. It will require 12 months to complete.     to Complete, <50% Funding Available for Full Imple-
                                                                            mentation)
               Activity 2-Review Flight Plans and Equipment.                This strategy will establish an independent research
               The aerial spraying program would be reviewed to             program to identify the impacts that current spraying
               determine whether the amount of spray released         @ of  practices have on Sanctuary resources, and will
               over water could be reduced through developmeni              identify alternative means of mosquito control.
               a more refined plan for flight lines, and the use of         Because pesticides used in mosquito control are
               improved equipment.                                          nonspecific to the larval stages of crustaceans, fish,
               mImplementation. The responsible agency will be the          and natural mosquito control predators, the effects of
               FDACS. Also, the FDCA will have an assisting role.           the chemicals used, and all of the application meth-
                                                                            ods employed, need to be examined. In addition, the
               MSchedule. This activity will have a high level of           impact of housing patterns, design, and landscaping
               action in year 1. It will require 12 months to complete.     as they affect the demand for mosquito control needs
                                                                            to be investigated. The results of this research may
               Activity 3-Reconsider Larvicide Use. Ground                  be used to modify the Mosquito Control Program.
               spraying of larvicides in currently restricted areas will    Activity 1-Research Impacts and Alternatives. A
               be reviewed as a means to reduce the need for aerial         research program will be established to identify the
               spraying of adult mosquito populations.                      impacts of current spraying practices on Sanctuary
               :
               Implementation. The FDACS should be the respon-              resources, and to identify alternative means of
               ible agency to organize a meeting to discuss this            mosquito control.
               issue. The FDCA will have an assisting role in this          mimplementation. The responsible agency will be the
               activity.                                                    FDACS. The FDEP will also have a primary role
               Schedule. This activity will have a high level of            regarding evaluations of pesticide toxicity. The FDCA
               Zion in year 1. It will require 12 months to complete.       may also have an assisting role. As the State land-
                                                                            planning agency for a designated Area of Critical
               Activity 4-Evaluate Ultra-Low- Volume Methods.               State Concern, the FDCA has an oversight responsi-
               This activity will involve evaluating the possibility of     bility to ensure that local development regulations
               eliminating thermal fogs, which contain diesel oil.          adequately protect the area's natural resources.
               Ultra-low-volume (ULV) spraying techniques have              FDACS will be responsible for ensuring that mosquito
               been developed which do not use thermal fogs and

               232







                                                                                                     Action Plans: Water Quality
               control activities are addressed according to Chapter                        Strategy W.1 0:
               388, F.S.                                                                       Canal WO
               mSchedule. This activity will have no action in year 1.
               It will require 36 months to complete.
                                                                          Evaluate and revise list of known hot spot canal
               Activity 2-Modify the Mosquito Control Program.            systems. Inventory and characterize dead-end
               The results of the pesticide research program will be      canals/basins and investigate alternative manage-
               used to modify the existing Mosquito Control Pro-          ment strategies to improve their water quality. Revise
               gram as necessary.                                         FDEP permit criteria to allow alternative strategies to
                                                                          improve canal water quality. Identify and compile a
               mImplementation. The responsible agency will be the        list of technologies for canal restoration. Develop a
               FDACS. The FDEP will also be involved as a primary         community education and involvement program, and
               agency.                                                    conduct a canal system restoration pilot project.
                                                                          Implement improvements (consistent with the strate-
               mSchedule. This activity will have no action in year 1.    gies developed for wastewater and stormwater) in
               It will require 36+ months to complete.                    known hot spots throughout the Sanctuary.
                                                                          (Priority Level High, Low Level of Action in Year 1,
               Activity 3-Conduct Field Survey of Pesticide and           60+ Months to Complete, <50% Funding Available
               Herbicide Use. This activity would involve a field         for Full Implementation)
               survey of the full suite of pesticides, herbicides,
               fungicides, etc. used in the Keys.

                Implementation. The responsible agency will be the
               FDACS. The FDEP will also be involved as a primary
               agency.

                                                                                                             MUM
                Schedule. This activity will have no action in year 1.
               It will require 12 months to complete.
                                                                                                           1011m
               This strategy is also included in the Research
                                                                                                                      A
               and Monitoring Action Plan.


                                                          U@           20,
                     a, ";`Z't A


               This section describes strategies/activities to reduce
               water quality problems in canals. Although some of
               these problems are clearly linked to wastewater
               discharges (from septic tanks of homes lining the          Activity 1-Evaluate and Revise Hot Spot List. The
               canals), others may be due to the physical structure       SFWMD will conduct a hot spot workshop in early
               and orientation of the canals. These factors can lead      1996 to evaluate and revise the existing list of hot
               to low flushing and buildup of weed wrack, which           spots.
               consumes oxygen and releases nutrients as it
               decays. The strategy described here would inventory        mImplementation. The responsible agency will be
               and characterize canals and investigate technologies       SFWMD. Other agencies with primary roles will be
               to determine whether it would be worthwhile to             the EPA, FDEP, Monroe County, and the City of Key
               implement corrective actions such as weed gates            West.
               and bubblers, to improve water quality. Any plan for
               implementing such improvements would have to be            mSchedule. This activity will have a low level of action
               developed in coordination with plans for dealing with      in year 1. It will require 12 months to complete.
               wastewater pollution from septic tanks, which contrib-
               utes to water quality problems in many canal sys-          Activity 2-inventoty and Characterize Canals. An
               tems.                                                      inventory of dead-end canals and other confined
                                                                          water bodies will be conducted to identify areas
                                                                          where reduced circulation increases the risk of


                                                                                                                               233






              Action Plans: Water Quality

              depressed dissolved oxygen, retention of both                 Schedule. This activity will have no action in year 1.
              dissolved and particulate pollutants and potential          It will require 12 months to complete.
              impacts on benthic and pelagic environments. Canals
              with water quality problems attributable mainly to          Activity 6-Develop Community Education and
              their physical structure and orientation (e.g., allowing    Involvement Program. This activity would involve
              weed wrack buildup) rather than wastewater or               developing a community education program, includ-
              stormwater pollutants would be targeted for improve-        ing citizens monitoring.
              ments.
                                                                            Implementation. The responsible agency will be
                Implementation. The responsible agency will be the        SFWMD. Other agencies with primary roles will be
              SFWMD. Other agencies with primary roles will be            the EPA, FIDEP, Monroe County, and the City of Key
              the EPA, FIDEP, Monroe County, and the City of Key          West.
              West.
                                                                           Schedule. This activity will have no action in year 1.
                Schedule. This activity will have no action in year       It will require 12 months to complete.
              1. It will require 12 months to complete.
                                                                          Activity 7-Conduct Canal System Restoration
              Activity 3-Develop and Evaluate Improvement                 Pilot Project
              Strategies. A comprehensive management plan will
              be developed for improving water quality in                 m Implementation. The responsible agency will be
              nearshore confined basins and canals. Potential             SFWMD. Other agencies with primary roles will be
              methods of improving water quality (e.g., aeration,         the EPA, FIDEP, Monroe County, and the City of Key
              weed gates, and air curtains) will be tested in limited     West.
              areas to determine whether widespread application is
              appropriate.                                                n Schedule. This activity will have no action in year 1.
                                                                          It will require 12 months to complete.
                Implementation. The responsible agency will be the
              SFWMD. Other agencies with primary roles will be            Activity 8-Implement Improvement Strategies.
              the EPA, FIDEP, Monroe County, and the City of Key          Effective improvement strategies identified through
              West.                                                       previous activities will be implemented in all canals
                                                                          and basins identified as hot spots.
                Schedule. This activity will have no action in year 1.
              It will require 24 months to complete.                      m Implementation. The responsible agency will be the
                                                                          SFWMD. Other agencies with primary roles will be
              Activity 4-Revise FDEP Permit Criteria. This                the EPA, FIDEP, Monroe County, and the City of Key
              activity would revise FDEP permit criteria to allow         West.
              selected canal water quality improvement strategies.
                                                                          m Schedule. This activity will have no action in year 1.
                Implementation. The responsible agency will be            It will require 60 months to complete.
              SFWMD. Other agencies with primary roles will be
              the EPA, FIDEP, Monroe County, and the City of Key
              West.


                Schedule. This activity will have no action in year 1.
              it will require 12 months to complete.

              Activity 5-1dentify and Compile Technologies.
              This activity would identify and compile a list of
              technologies for improving water quality in canals.

                Implementation. The responsible agency will be
              SFWMD. Other agencies with primary roles will be
              the EPA, FIDEP, Monroe County, and the City of Key
              West.




              234







                                                                                                     Action Plans Water Quality

                                                                          transport pathways, and the biological communities
                         Win "quJad'Research/Special                      of the Sanctuary The Research/Special Studies
                     dliew            es                                  program is designed to do the following

               This section includes monitoring and research/                 * Identify and document cause/effect linkages
               special studies strategies designed to provide                    between specific pollutants, water quality
               information for management decisions Previously                   problems, and ecological impacts,
               described strategies which require information from
               research/monitoring efforts are W 3 (Wastewater                - Improve understanding of Sanctuary ecosys-
               Management Systems), W 5 (Water Quality Stan-                     tems and develop predictive capabilities based
               dards), W 11 (Stormwater Retrofitting), and W 19                  on that understanding, and
               (Florida Bay Freshwater Flow)
                                                                              e Develop innovative monitoring and research
               Goals of the comprehensive monitoring program                     tools to detect pollutants, provide early warning
               (strategy W 20) are the following                                 of widespread ecological problems, and
                                                                                 identify cause/effect relationships
                    ï¿½provide long-term, comprehensive information
                     about the status and trends of water quality         Other strategies in this section are applicable to both
                     parameters and biological resources in the           research/special studies and monitoring These are
                     Sanctuary, and                                       W 28 (Regional Database), W 29 (Dissemination of
                                                                          Research Findings), and W 32 (Technical Advisory
                    ï¿½ evaluate the effectiveness of remedial actions      Committee) Strategy W 32 must be implemented
                     taken to reduce water pollution                      first to provide technical oversight for the program
                                                                          Strategy W 28 should also be implemented before
               Goals of the Research/Special Studies Program              specific special studies and monitoring efforts are
               (strategies W 21 to W 24) are to identify and under-       undertaken
               stand cause/effect relationships involving pollutants,



                    fikiniforing and Special Studies Strategies

                    I
                    *j20: Monitoring                                      W.28., Regional Database
                    A%dvefop monitoring implementation plan               - Conduct user'needs assessment
                    Seloct organizationtlinstitution to conduct           9 Develop implementation plan
                    '-'ri*Aoring                                          * Implement and maintain data management system
                      tablish WdQC authority and protocols
                ,W tith emenimonitoring                                   W.29: Dissemination of Findings
                                                                          * EttablisK information exchange network
                '*.21.- Special Studies: Predictive Models                o Sponsor conferences
                    Conduct a modeling workshop                           * Support journal pubrication
                    brevelop, a modeling implementation plan              - Disseminate findings to the public
                ,',*22:'Spei1a1 Studies: Wastewater Pollutants            W.32: Technical Advisory Committee
                    4-Dittect wastewater pollutants and ecological          Establish technical advisory committee
                    impacts
                                                                          W.33. Ecological Monitoring Program
                                                                          (Refer to the Research and Monitoring Action Plan)
                     23..Spec@lat Studies: Other Pollutants and
                          W
                            'T
                            aer-Ofiality Problems
                              qtlj@r pollutant loadings
                            c4ugal linkages between pollutants and
                1,44
                    ecological impacts
               I
                    *Develop and evaluate innovative monitoring
                    tools.
                    *Gonduct research on global change



                                                                                                                                235






               Action Plans: Water Quality
                                  Strategy W.20:                                    Specific institutions, organizations, and/or
                                                                                    individuals may be selected to conduct various
                                     Monitoring                                     aspects of the Program. These will be selected
                                                                                    by the EPA and FDEP working with the Techni-
                                                                                    cal Advisory Committee (see strategy W.32).
               Conduct a long-term, comprehensive monitoring
               program as described in the EPA Water Quality                        General Cost. The Monitoring Program is
               Protection Program.                                                  expected to cost about $5 million over the
               (Priority Level High, High Level of Action in Year 1,                fiscal year 1994-98 planning period. This cost
               60+ Months to Complete, <50% Funding Available                       is for actual execution of the Program, and is
               for Full Implementation)                                             not reflected in the costs of preliminary activi-
                                                                                    ties described below.
               Thi's strategy will provide long-term, comprehensive
               information about the status and trends of water              Activity 1-Develop a Monitoring Implementation
               quality parameters and biological resources in the            Plan. This activity will develop an implementation
               Sanctuary. It will allow managers to identify or              plan that will: 1) revise the design of the Monitoring
               confirm problem areas and determine whether                   Program based on anticipated funding; and 2) de-
               conditions are improving or degrading. In addition,           scribe specific steps to be taken in implementing the
               remedial actions taken to reduce pollution will be            Program. Revision of the Program will probably
               monitored to evaluate their effectiveness. Water              involve some combination of reducing the scope of
               column parameters to be monitored include tempera-            individual components (e.g., number of stations,
               ture, salinity, dissolved oxygen, pH, photosyntheti-          transects, etc.) and prioritizing components to be
               cally active radiation, turbidity, nutrients, chlorophyll-    funded first.
               ja, and alkaline phosphatase activity. Sediment
               parameters to be monitored include grain size,                oSchedule. This activity has been completed.
               mineralogy, organic content, nutrients, metals,
               pesticides, PCBs, petroleum hydrocarbons, and                 Activity 2-Select Organizationso4nstitutions to
               sewage tracers. In addition to water and sediment             Conduct Monitoring. This activity will involve
               sampling, biological monitoring of seagrass,                  selecting an organization or institution to conduct the
               hardbottom, and mangrove communities will be                  monitoring program under the direction of the EPA,
               conducted. Seagrass communities and hardbottorn               FDEP, and the Technical Advisory Committee.
               communities (including offshore coral reefs and
               nearshore hardbottorn areas) will be monitored by in          mSchedule. This activity has been completed.
               situ sampling and remote sensing. Changes in the
               areal coverage of mangrove communities will be                Activity 3-Establish Quality AssurancelQuality
               monitored by remote sensing.                                  Control Authority and Protocols. This activity will
                                                                             involve designating a quality assurance/quality
               Design of the comprehensive monitoring program is             control (QA/QC) officer, developing QA/QC protocols
               described in the EPA Water Quality Protection                 for the Monitoring Program, and developing guide-
               Program Phase 11 Report, Task 6. An Implementation            lines for researchers to prepare their own QA/QC
               Plan was subsequently developed which: 1) revised             plans for research projects.
               the Program based on available funding; and 2)-
               developed specific details of program design (e.g.,           oSchedule. This activity has been completed.
               locations of water quality, coral reef, and seagrass
               sampling locations).                                          Activity 4-Implement Monitoring. This activity will
                                                                             involve conducting water quality, coral reef, and
                  ï¿½  Existing Program Implementation. All of the             seagrass monitoring as described in the Implementa-
                     preliminary activities described here have been         tion Plan developed in Activity 1.
                     completed, and monitoring is in progress.
                                                                             mSchedule. This activity will have a low level of action
                  ï¿½  General Implementation. The responsible                 in year 1. It will require 60+ months to complete.
                     agencies for water quality monitoring will be
                     the EPA and FDEP. In addition, the FDEP will            This strategy Is also Included In the Research
                     be responsible for establishing and maintaining         and Monitoring and Volunteer action plans.
                     the scientific database generated through the
                     Monitoring Program (see strategy W.28).

               236






                                                                                                       Action Plans: Water Quality

                                                                            mimplementation. The responsible agencies will be
                                  Strategy W.21:                            the EPA and FDEP. The NPS and SFWMD will have
                                Predictive Models                           an assisting role because they are involved in model
                                                                            development for the Everglades and Florida Bay.

                Develop phased hydrodynamic/water quality models            mSchedule. This activity will have a high level of
                and coupled, landscape-level ecological models to           action in year 1. It will require 12+ months to com-
                predict and evaluate the outcome of in-place and            plete.
                proposed water quality management strategies.
                (Priority Level High, Low Level of Action in Year 1,        This strategy is also Included in the Research
                12+ Months to Complete, <50% Funding Available              and Monitoring Action Plan.
                for Full Implementation)
                This strategy will develop predictive models which,                           Strategy W.22:
                used with appropriate scientific guidance, would                         Wastewater Pollutants
                allow resource managers to predict and evaluate the
                outcome of various management strategies (e.g.,
                engineering actions to reduce wastewater nutrient
                loadings). Initial conceptual models would be devel-        Conduct special studies to document the fate and
                oped, information needs identified, environmental           ecological impacts of wastewater pollutants.
                data gathered, and quantitative models developed            (Priority Level High, Low Level of Action in Year 1, 36
                and refined over the long-term and on a continuous          Months to Complete, <50% Funding Available for Full
                basis, to aid in management decisions.                      Implementation)
                    ï¿½ General Schedule. This is a long-term strategy        Activity 1-Detect Wastewater Pollutants and
                      that is expected to be ongoing through 1998.          Ecological Impacts. This activity involves conduct-
                                                                            ing special studies to: 1)establish pollutant loading
                    ï¿½ Existing Program Implementation. The Univer-          thresholds above which biotic communities are
                      sity of Miami's Center for Marine and Environ-        adversely affected; 2)detect the presence of waste-
                      mental Analysis is undertaking a major, 6-year,       water pollutants from OSDS, cesspits, package plant
                      multimillion dollar effort to model various           boreholes, and/or surface water dischargers and to
                      aspects of the South Florida environment.             determine the relative contributions of each to
                                                                            Sanctuary surface waters, groundwaters, and/or
                Activity 1-Conduct a Modeling Workshop. This                sediments; 3)document the transport of pollutants
                activity will involve conducting a workshop to discuss      and describe the severity and extent of ecological
                modeling approaches, develop preliminary concep-            impacts that can be specifically linked to these
                tual models, and define specific information needs for      pollutants. The scope includes all sources of waste-
                the models.                                                 water pollutants throughout the Sanctuary. Potential
                                                                            approaches include experimental studies (laboratory,
                mImplementation. The responsible agencies will be           mesocosm, iD s& or combinations); eutrophication
                the EPA and FDEP.                                           gradient studies; comparative studies of Impacted
                                                                            and non-Impacted sites; historical studies
                uSchedule. This activity will have a high level of          (sclerochronology, geological reconstruction);
                action In year 1. It will require 12 months to complete.    geographic comparisons (Keys vs. other areas); use
                                                                            of biochemical and ecological indicators such as
                Activity 2-Develop a Modeling Implementation                tissue C:N:P ratios, alkaline phosphate activity, and
                Plan. This activity will Involve developing an overall      shifts In community structure; use of sewage tracers;
                plan for developing predictive models focused on            and high-frequency and/or spatially intensive water
                management needs. The plan will include discussion          quality sampling.
                of preliminary conceptual models, data needs, data
                gathering, and model development and refinement.              Implementation. The EPA and FDEP will be the
                The plan will also discuss mechanisms for ensuring          responsible agencies for this strategy. NOAA may
                that the modeling effort remains closely tied to            also have a primary role, and Monroe County may
                management needs.                                           assist.



                                                                                                                                  237






              Action Plans: Water Quality

               Schedule. This activity will have a low level of            Schedule. This activity will have no action in year 1.
              action in year 1. It will require 36 months to complete.   It will require 36 months to complete.

              This strategy is also included in the Research             Activity 3-Develop and Evaluate Innovative
              and Monitoring Action Plan.                                Monitoring Tools. This activity would identify and
                                                                         evaluate innovative monitoring tools and methodolo-
                                                                         gies to detect pollutants and identify cause/effect
                                Strategy W.23:                           relationships involving water quality and biological
                               Special Studies                           resources. New or modified monitoring tools and
                                                                         methodologies may be needed because of the
                                                                         unique biota and environmental conditions of the
              Conduct special studies to document the fate and           Sanctuary.
              ecological impacts of non-wastewater pollutants,           m Implementation. The EPA and FIDEP will be the
              develop innovative monitoring tools, and examine the       responsible agencies for this strategy. NOAA will also
              effects of global climate change on the organisms          have a primary role.
              and ecosystems of the Keys.
              (Priority Level Medium, No Action in Year 1, 36              Schedule. This activity will have no action in year 1.
              Months to Complete, <50% Funding Available for Full        It will require 36 months to complete.
              Implementation)
                                                                         Activity 4-Conduct Research on Global Change.
              Activity I-Estimate Other Pollutant Loadings. This         This activity will involve research to examine the
              activity will involve documenting the locations and        effects of stresses associated with global change on
              magnitudes of pollution inputs (other than wastewa-        the ecosystem. Examples of stresses include tem-
              ter) to the Sanctuary to better understand what areas      perature, salinity, frequency and intensity of storms,
              are at risk. Sources will include those that are point,    turbidity, sea level change, ultraviolet and visible
              nonpoint, and external to the Sanctuary (e.g., permit-     radiation.
              ted discharges, OSIDSs, stormwater runoff, ground-
              water leachates, marinas, C-1 11, Biscayne Bay,              Implementation. NOAA will be the responsible
              Florida Bay, southwest Florida and oceanic fluxes          agency. The EPA, FWS, and FDEP will provide
              and gyre-induced upwelling). Pollutants will include       assistance.
              hydrocarbons, heavy metals, and pesticides. Load
              estimates will be based on the best available infor-         Schedule. This activity will have no action in year 1.
              mation, and will include engineering estimates where       It will require 36 months to complete.
              applicable.


              0
               Implementation. The EPA and FIDEP will be the             This strategy is also included in the Research
               '                                                         and Monitoring Action Plan.
              responsible agencies for this strategy. Assistance
              may be provided by NOAA, the NPS, and the
              SFWMD.
                                                                                           Strategy W.28:
               Schedule. This activity will have no action in year 1.                   Regional Database
              it will require 36 months to complete.

              Activity 2-Identify Causal Linkages Between                Establish a regional database and data management
              Pollutants and Ecological Impacts. This activity will      system for recording research results and biological,
              involve conducting research to identify and document       physical, and chemical parameters associated with
              causal linkages between non-wastewater pollutants          Sanctuary monitoring programs.
              and specific ecological problems.                          (Priority Level High, High Level of Action in Year 1,
                                                                         12 Months to Complete, 100% Funding Available for
               Implementation. The EPA and FIDEP will be the             Full Implementation)
              responsible agencies for this strategy. Assistance
              may be provided by NOAA, the NPS, and the                  Activity 1-Conduct User Needs Assessment This
              SFWMD.                                                     activity will involve contacting agencies, institutions,
                                                                         and individuals likely to be involved in water quality


              238






                                                                                                             Action Plans: Water Quality

                 monitoring and/or research efforts, to determine their
                 needs in terms of data products.                                                  Strategy W.29:
                                                                                           Dissemination of Findings
                  Existing Program Implementation. This activity has
                 been completed.                                                Develop a program to synthesize and disseminate
                 a Implementation. The FDEP will be the responsible             scientific research and monitoring results including
                 agency. The EPA and NOAA will have a primary role              an information exchange network, conferences, and
                 in a committee that will oversee data management               support for the publication of research findings in
                 eff o rts.                                                     peer-reviewed scientific journals.
                                                                                (Priority Level Medium, Low Level of Action in Year
                  Schedule. This activity has been completed.                   1, 60+ Months to Complete, <50% Funding Available
                                                                                for Full Implementation)
                 Activity 2-Develop Implementation Plan. This
                 activity will involve developing an implementation             This strategy would help to disseminate information
                 plan that addresses all aspects of data management             about research findings among scientists and re-
                 for research and monitoring efforts, including infor-          source managers and to the general public.
                 mation distribution, storage, archiving, and OA/QC of
                 data input. The regional database will include biologi-        Activity 1-Establish an Information Exchange
                 cal, physical, and chemical parameters and instru-             Network. This activity will develop a compendium of
                 ment records, etc. The implementation plan will                ongoing and planned research in the Sanctuary that
                 discuss existing databases and address issues                  will be updated periodically.
                 including public access, volunteer data entry, GIS
                 integration and compatibility, and integration of new          nImplementation. The EPA and FDEP will be the
                 and historical findings.                                       responsible agencies for this strategy. NOAA will
                                                                                have a primary role.
                 m Existing Program Implementation. This activity has
                 been completed.                                                oSchedule. This activity will have a low level of action
                                                                                in year 1. It will require 12 months to complete.
                  Implementation. The FDEP will be the responsible
                 agency. The EPA and NOAA will also have a primary              Activity 2-Sponsor Conferences. This activity will
                 role in a committee that will oversee data manage-             involve sponsoring conferences to keep both scien-
                 ment efforts.                                                  tists and managers abreast of research/monitoring
                                                                                results and existing/planned management actions.
                  Schedule. This activity has been completed.                   mimplementation. The EPA and FDEP will be the
                 Activity 3-Implement and Maintain Data Manage-                 responsible agencies for this strategy. NOAA will
                 ment System.                                                   have a primary role.
                 m Implementation. The FDEP will be the responsible             mSchedule. This activity will have no action in year 1.
                 agency. The EPA and NOAA will also have a primary              It will require 60+ months to complete.
                 role in a committee that will oversee data manage-
                 ment efforts.                                                  Activity 3-Support Journal Publication. This
                                                                                activity will involve funding the publication of research
                  Schedule. This activity will have a low level of              and monitoring findings in peer-reviewed scientific
                 action in year 1. It will require 60+ months to com-           and management journals.
                 plete.                                                         mImplementation. The EPA and FDEP will be the
                 This strategy Is also Included in the Research                 responsible agencies for this strategy. NOAA will
                 and Monitoring Action Plan.                                    have a primary role.

                                                                                mSchedule. This activity will have no action in year 1.
                                                                                It will require 60+ months to complete.





                                                                                                                                         239






             Action Plans: Water Quality
             Activity 4-Disserninate Findings to the Public.                               Strategy W.33:
             This activity would use existing mechanisms and
             continue to develop mechanisms to synthesize and                   Ecological Monitoring Program
             disseminate findings of the research and monitoring
             programs to the public.
                                                                         Develop and implement a Sanctuary-wide, intensive
               Implementation. The EPA, FDEP, and NOAA will              ecosystem monitoring program. The objective of the
             be the responsible agencies for this strategy. NOAA's       program will be to monitor the status of various
             annual report will contain a synthesis of scientific        biological and ecological indicators of system compo-
             findings written for the average citizen and will be        nents throughout the Sanctuary and adjacent areas,
             distributed widely.                                         in order to discern the local and system-wide effects
                                                                         of human and natural disturbances, and assess the
               Schedule. This activity will have no action in yearl.     overall health of the Sanctuary.
             it will require 60+months to complete.
                                                                         This strategy will establish a comprehensive, long-
             This strategy is also included in the Research              term monitoring program throughout the Sanctuary
             and Monitoring Action Plan.                                 and adjacent areas that will have three purposes: to
                                                                         supply resource managers with information on the
                                                                         status of the health of living resources and the
                                                                         ecosystem; to determine causal relationships related
                               Strategy W.32:                            to management decisions; and to evaluate'the
                    Technical Advisory Committee                         effectiveness of management actions such as zoning
                                                                         implementation.

             Establish a technical advisory committee for coordi-        The Ecological Monitoring Program will be fully
             nating and guiding research and monitoring activities       integrated with the comprehensive monitoring
             by both the EPA and NOAA.                                   program (water quality, coral reefs, seagrass), and
             (Completed in Year 1)                                       will include a temporal and spatial ecological informa-
                                                                         tion system based on current knowledge; a Technical
             Activity 1-Establish a Technical Advisory Com-              Advisory Committee to assist NOAA with the design
             mittee. This activity will create a technical advisory      and prioritization of the Research and Monitoring
             committee as required by the National Marine                Program; status and trends assessments of corals,
             Sanctuaries Program Amendments Act of 1992. The             fishes, seagrasses, benthic organisms and algae,
             Technical Advisory Committee "shall be composed of          plankton, and mangroves; a fisheries ecology moni-
             scientists from Federal agencies, State agencies,           toring and research component to examine commu-
             academic institutions, private nonprofit organizations,     nity composition and function within the Sanctuary's
             and knowledgeable citizens." It will guide the process      habitats; a sampling protocol; a data analysis,
             of setting priorities for research and monitoring for       management, and dissemination protocol; a quality
             both the EPA and NOAA.                                      assurance/quality control protocol; the development
                                                                         of an index of Sanctuary health; and a volunteer
             nExisting Program Implementation. This activity was         monitoring program.
             completed during fiscal year 1993, prior to the             (Priority Level High, Medium Level of Action in Year
             starting date used in this action plan.                     1, 60+ Months to Complete, <50% Funding Available
                                                                         for Full Implementation)
             mimplementation. The EPA and FDEP will be the
             responsible agencies for this strategy. NOAA will           sGeneral Implementation. NOAA will be responsible
             have a primary role.                                        for the overall implementation of the Ecological
                                                                         Monitoring Program, working with EPA, FDEP,
             This strategy is also included in the Research              academic and nongovernmental organizations,, and
             and Monitoring Action Plan.                                 the Technical Advisory Committee. NOAA will have
                                                                         lead responsibility for implementing most activities,
                                                                         but the FDEP will be responsible for establishing an
                                                                         ecological information system (Activity 1) and data
                                                                         analysis, management, and dissemination protocol
                                                                         (Activity 6). The Technical Advisory Committee will


             240







                                                                                             Action Plans: Water Quality

              assist NOAA in establishing a sampling protocol
              (Activity 5).

              sGeneral Relationship to Other Strategies. Integra-
              tion of the Ecological Monitoring program and the
              Water Quality Protection Program will be achieved
              through the Technical Advisory Committee (TAC)
              and Management Committee specified in the Water
              Quality Protection Program. The TAC will be used by
              NOAA to assist in the design and prioritization of the
              Research and Monitoring Program. The Sanctuary
              Superintendent will serve on the Management
              Committee which coordinates and facilitates the
              efforts of the TAC.


              mGeneral Schedule. The Ecological Monitoring
              Program will have a medium level of action in year 1.
              It will require 60+ months to complete.

              This strategy is also included in the Research
              and Monitoring and Volunteer Action Plans. Refer
              to the Research and Monitoring Action Plan for a
              description of activities.




































                                                                                                                     241






              Action Plans: Water Quality

                                                                            Cost. Table 26 also lists estimated costs to imple-
                Implementation                                              ment each strategy and its component activities.
                                                                            Costs are divided into capital cost, and annual
              This section explains how the Water Quality                   operating and maintenance costs.
              Action Plan will be implemented The institutions
              responsible for each activity, and those agencies             Most of the costs listed in the table are institutional
              that will provide some level of assistance, are               costs for implementing the strategies, as developed
              identified In addition, the number of months                  at the "Institutional Arrangements and Approximate
              required to complete, cost estimates, staff and               Costs Work Session" held in the Florida Keys on
              equipment requirements, and the geographic                    October 21-22, 1992. However, estimates for five
              focus of each activity are provided The section               strategies also include costs for upgrading, construct-
              concludes with a description of contingency                   ing, and/or maintaining facilities:
              planning for changing budgets, and the process
              used to evaluate the effectiveness of the Water                   9 WA (OSDS Demonstration Project);
              Quality Action Plan as it evolves over time.
                                                                                - W.2 (AWT Demonstration Project);
              Responsible Institutions. The Water Quality Action
              Plan will be implemented by a coordinated framework               9 W.3 (Wastewater Management Systems);
              of Federal, State, and local agencies. The EPA and
              FDEP, however, will have the lead responsibility in               * WA (Wastewater Disposal, City of Key West);
              the overall implementation of the Plan. They will                   and
              coordinate closely with NOAA, which has overall
              responsibility for implementing the Management Plan               e WA 1 (Stormwater Retrofitting).
              for the Sanctuary. Other agencies with lead responsi-
              bility for one or more activities are the USCG,               These costs are from the Phase 11 report of the EPA
              FDHRS, FDCA, FDACS, FKAA (possibly), Monroe                   Water Quality Protection Program. Potential funding
              County, and the municipalities. In addition, the              sources are also discussed in that report. Much more
              SFWMD has a primary or assisting role in several              detailed information on costs and implementation
              strategies. Table 25 lists the responsible institutions       requirements would have to be developed before
              and their level of responsibility in each activity.           these improvements were undertaken.

              Priority Activities. Each activity included in the            Based on the figures in Table 26, the estimated cost
              Water Quality Action Plan is ranked as high, medium,          to implement all activities in the Water Quality Action
              or low priority (Table 26). High-priority strategies          Plan is between $290 million to $510 million. How-
              (summarized in Table 27) are those that have the              ever, much of this total is accounted for by the
              greatest urgency and are most likely to be imple-             following two very expensive strategies.
              mented first. A strategy's priority is also based upon
              its projected effectiveness in reducing water quality               W.3 (Wastewater Treatment Outside Key
              problems in the Sanctuary. Strategies that would                    West): At a minimum, >$57 million to eliminate
              reduce pollution directly, provide information needed               cesspits and upgrade OSDS (septic systems)
              for critical decisions, or allow another high-priority              to current standards. Plus, if chosen as the
              strategy to be implemented are generally assigned a                 preferred wastewater treatment option,
              high priority. Strategies that might indirectly reduce              >$200 million to construct two community
              pollution by making the management/regulatory                       sewage plants serving Key Largo and Mara-
              system work more efficiently are generally assigned                 thon.
              a low priority. However, some low-priority strategies
              might be implemented early if they are simple and                   WA 1 (Stormwater Retrofitting): $200 million to
              inexpensive.                                                        implement stormwater engineering modifica-
                                                                                  tions to hot spots and portions of US 1.
              Schedule. Table 26 lists the. estimated time required
              for the implementation of each strategy and activity          Because of the high costs involved, substantial data
              included within the program. The number of months             collection through prerequisite strategies will be
              required to complete each strategy and activity is            necessary to enable decisions regarding implementa-
              provided. For this action plan, year 1 is defined as          tion of either strategy.
              beginning in fiscal year 1994, not in fall 1994 as in
              other action plans.

              242






                                                                                                        Action Plans: Water Quality

                 The following are additional strategies costing             Equipment. A variety of equipment will be required
                 $5 million or more:                                         to implement portions of the Water Quality Action
                                                                             Plan. Equipment needs cannot be summarized due
                     ï¿½ L.7 (SWD Problem Sites): >$10 million to              to the variety and complexity of activities described.
                       implement remedial actions at landfill sites, if      The following strategies are essentially administrative
                       necessary. (Note: the most costly activity            or "desktop" in nature, and should not require
                       (remediation) is a low priority, because it would     equipment purchase:
                       be implemented only if significant problems
                       were detected through a landfill search and               e W.5: Water Quality Standards
                       intensified monitoring.]                                  9 W.6:    NPDES Program Delegation
                     ï¿½ W.4 (Wastewater Disposal, City of Key West):              * W.7:    Resource Monitoring of Surface
                       >$7 million to upgrade effluent disposal (using                     Discharges
                       deep-well injection for a minimum estimate).
                     ï¿½ W.33 (Ecological Monitoring Program): $5                  * W.8:    OSDS Permitting
                       million to $7 million to monitor the status and           - W.1 2: Stormwater Permitting
                       trends of various ecological indicators of
                       ecosystem health.                                         e W. 13: Stormwater Management
                     ï¿½ W.14 (Best Management Practices): >$5 mil-                * W.16: Spill Reporting
                       lion to implement best management practices
                       for stormwater runoff.                                    - W.19: Special Studies: Florida Bay
                                                                                           Freshwater Flow
                     ï¿½ W.20 (Monitoring Program): About $7 million to
                       monitor status and trends in water quality and            - W.29: Dissemination of Findings
                       biological resources.
                                                                                 - W.32: Technical Advisory Committee
                 Excluding the two very expensive strategies dis-
                 cussed above (W.3 and W.1 1), the total cost of all         Contingency Planning for Changing Budgets. The
                 strategies is $34 million to $55 million. (This is based    Water Quality Action Plan includes a wide variety of
                 on the strategy costs listed in Table 26).                  strategies and activities that will be implemented by
                                                                             various agencies and funded through various mecha-
                 Geographic Focus. The geographic focus                      nisms. A separate study of potential funding sources
                 (Sanctuary-wide, Upper Keys, Middle Keys, or Lower          was conducted by the EPA, and is included in the
                 Keys) for each activity is indicated in Table 26. Most      Water Quality Protection Program Phase 11 Report.
                 of the activities are Sanctuary-wide in focus. The two      The EPA and FDEP, with guidance from the Techni-
                 demonstration projects (strategies W.1 and W.2) will        cal Advisory Committee (established under
                 be conducted in specific areas of the Upper or Middle       strategy W.32), will be responsible for reprioritizing
                 Keys, but are intended to provide broadly applicable        strategies and activities depending on the available
                 information. Strategy W.4 applies only to Key West.         funds.

                 Personnel. The staff required to implement the              Evaluating Program Effectiveness. The EPA and
                 Water Quality Action Plan will be a combination of          FDEP will report regularly to the Steering Committee
                 personnel from various agencies and organizations           on the effectiveness of program activities. Each
                 identified in Table 25. In addition, scientists from        strategy will be evaluated to determine whether it is
                 various universities, research institutions, and            being successfully implemented. The evaluation will
                 environmental firms may be involved in the Water            identify those types of activities which may no longer
                 Quality Monitoring Program (strategy W.20) and              be useful, and those which have not been adequately
                 various research strategies (strategies W.21 to             addressed. The Steering Committee will meet
                 W.24). Volunteers may be involved in conducting             regularly to review and assess the EPA's and FDEP's
                 portions of the Water Quality Monitoring Program, but       evaluation of Program implementation. As required
                 their role has not yet been identified. The total           by the National Marine Sanctuaries Program Amend-
                 number of personnel likely to be involved in imple-         ments Act of 1992, the Steering Committee will
                 menting each strategy is listed in Table 26.                submit a biennial report to Congress that will:


                                                                                                                                       243






           Action Plans: Water Quality

               ï¿½ summarize the progress of the Program;

               ï¿½ summarize any modifications to the Program
                 and its recommended actions and plans; and

               ï¿½ incorporate specific recommendations con-
                 cerning implementation of the Program.





















































           244






                                                                                                                                    Action Plans: Water Quality

                  Table 25. AgencieslOrganizations Identified for Implementing StrategieslActivities

                                                                                                        Agencies/Organizations



                                     Strategy/Activity                                 ?  0.

                                     FLORIDA BAY/EXTERNAL INFLUENCE
                                     WJ4 Florida bay Freshwater Flow'
                                     Establish Leading Role for Steering
                                     Committee                                   0        0           0000                0            00
                                     Participate in Review/Revisipn of           0        0          00       G   0       0          G        0
                                     Water Management Strategies

                                     W.24 Florida Bay Influence
                                     Conduct Historical Assessment                                    0       0                       9
                                     Conduct Circulation Studies                                                  0
                                     Conduct Ecological Studies                           0
                                     DOMESTIC WASTEWATER

                                     W.1 OSDS Demonstration Project
                                     Select Alternate OSIDS
                                     and Test Locations                                   0                       (D 0 0                      0
                                     Conduct OSDS Demonstration Project                   G                       000                         G
                                     W.2 AWT Demonstration Project
                                     Select Specific Technology and
                                     Test Location                                        0                       00                          0
                                     Conduct AWT Pilot Project                                                    00                          0
                                     W.3, Wastewater Management
                                          systems
                                     Establish Inspection/Compliance,
                                     Programs for Cesspits, OSDS, and
                                     Package Plants                                       ID                      Q 0                         G G
                                     Evaluate Development of Nutrient
                                     Reduction Targets                                    0                       0   (a                      0
                                     Develop Sanitary Wastewater
                                     Master Plan                                          0                       is  0                       G
                                     Implement Master Plan. Examples:
                                        9 V13d: Construct two community plants            0                       a   0   0       a        0  0
                                        - W3d: Upgrade package plants to AVrr             1*                      0   01                 1    0          1
                                                                                                                               @0
                                                                    0MV  0 :                            @ @:   i

                                     Evaluate Disposal and Rouse Options                  0                                                0  0    0
                                     Upgrade Effluent Disposal                            0                                                0  0    0


                                     Develop and Evaluate Indicators                      0                       0
                                     Develop Water Quality Standards


                                                                                                                                           . ... . ........
                                     Delegate NPDES Program
                                     "M

                                     Require Resource Monitoring                                                  0
                                     0 Lead          40 Primary Role        0 Assist
                                                                                                                        C*1
                                                                                 imtw'w                                      /h, -;/,A-








                                                                                                                                                                      245






                   Action Plans: Water Quality

                   Table 25. AgencieslOrganizations Identified for Implementing StrategieslActivities (cont.)

                                                                                                      Agencies/Organizations



                                                                                       Loll       Go                                             'a  a;
                                                                                                  (D                  E           0                 -C
                                     Strategy/Activity                                                             La,  12 UQ_ 10,  kcaL,           0
                                     DOMESTIC WASTEWATER (cont.)
                                     W.18"Ospï¿½*ermi nq@,
                                     Improve Interagency Coordination                                              00
                                     Combine OSDS Permitting
                                     Responsibilities                                                              00
                                     Monitor Revised OSDS Rules                                                    0
                                     @W.9', 60rator
                                     Conduct Feasibility Study
                                     Establish Interagency Laboratory                                              0                       0
                                                                              ""I                                  @*                      0@
                                     STORMWATER
                                     WA ittorr**Aeir Reviorittin
                                     'Inventory Stormwater Hot Spots
                                                                                                                   0            00         0
                                     Retrofit Hot Spots and Portions of US 1


                                                                                                                       0            0              0
                                     L*.'12 87tbr M'',
                                     Eliminate Permitting Threshold
                                     W.13'StbirmwaterMana6iment
                                     Develop  and Enact Stormwater
                                     Ordinances  and Master Plans                                                      0            0      000
                                     Petition the EPA to Include the Keys
                                     in the Stormwater NPDES Program                    0
                                     'W.i4l3eat MAnaqement Ar4eftices
                                     Develop and Implement Best
                                     Management Practices and a                  0                                 0   00           0      0       0
                                     Public Education Program
                                     MARINAS AND LIVE-ABOARDS


                                     Implement the 1994 Florida
                                     Clean Vessel Act                            0      (D                         0
                                     Evaluate the need for no-discharge          0      0   0                      0                       0
                                     zones
                                     Establish no-discharge zones                0      0   0                      0                       0
                                     Develop and Implement a Public
                                     Education Program                           (D     0                          0
                                     Change Environmental
                                     Crimes Category                             0                                 .0                      0
                                     Z.5 spe,6 likuse Areas
                                     Evaluate Feasibility of Mooring Fields      0                                                         0   0
                                     Establish Criteria for Mooring Fields       0                                                         0   0
                                     Establish Mooring Fields                    0          0                                              0   0
                                     L,    r na Pumpout
                                     ,1, Me I
                                     Develop Plan for Sewage Discharge           0      0   0                      0   0                   000
                                     Elimination
                                     Require Marina Pumpout Facilities                                                                     0   00
                                     Enforce Pumpout Use                         0          0                      10                      01         1
                                     L.6 Mobile ft,Kj,ibut
                                     Establish Mobile Pumpout Service                       0
                                                                                                           I /hc I/$       "/e. 8r/,
                                                                                 1J, ME      I   1 1 /@g           L             Lac,












                                     L-2'Marinai SlilhQ and Des
                                     improve Interagency Cooperation in
                                  I arina Permitting                               0                        00
                                     0 Lead         (2) Primary Role      0 Assist

                  246







                                                                                                                                                             Action Plans: Water Quality

                       Table 25. AgencieslOrganizations Identified for Implementing StrategieslActivities (cont.)

                                                                                                                         Agencies/Organizations
                                                                                                                                                                         Z'      Si


                                                                                                                                      LU     co
                                                                                                                                      0.4. 1Z 'T         i.-             lo 'ar
                                                                                                                                      Yr 84- f          0
                                                                                                                                      Ne  L,            BE
                                                Strategy/Activity                                          LU                                                              -0
                                                MARINAS AND LIVE-ABOARDS (cont.)
                                                    Marine Operations
                                                Establish Containment Areas for Boat
                                                Maintenance                                                0                          0                              00        0
                                                Encourage Owners to Participate in
                                                Environmentally-Oriented Organizations                                                0                              0 4111111 0
                                                Encourage Owners to Provide User Manual                                                                              00        0
                                                EA Training, Workshops, and
                                                School Programs
                                                Expand Environmental Awareness Program (2)                                            0
                                                LANDFILLS
                                                L.7 SWiii6bleM site$

                                                Conduct Historical Landfill Search and
                                                Assessment                                                 0                          0                              0
                                                Intensity Landfill Monitoring                              0                          0                              0
                                                Evaluate and Implement Remedial Actions                    0                          0                              0
                                                HAZARDOUS MATERIALS
                                                WAS H        MAT Resoff"I"
                                                Develop and Periodically Revise
                                                Sanctuary Spill Contingency Plan                 0            0                       0       0                      0
                                                Improve Coordination and Cooperation             0            0                       0       0                      0
                                                Improve Response/Containment
                                                Technologies                                     0            0                       0       0                      0
                                                WAS Spill Reporting
                                                Establish Spill Reporting System                 (S)          0                       0
                                                Establish and Maintain Sanctuary Spills
                                                D tabase                                         0            0                       0
                                                L.110 NAZMAT. Handi.1r.6-,
                                                Conduct HAZMAT Ass       essm  ent/                                                           0                      0
                                                Inventorv
                                                MOSQUITO SPRAYING
                                                W.17 Midiii6tto spraying
                                                Review Aerial Spraying Threshold                                                              0    0
                                                Review Flight Plans and Equipment                                                             0    0
                                                Reconsider Larvicide Use                                                                      0    0
                                                Evaluate Ultra-low-volume Methods                                                             0    0
                                                WAS Pesticide Research
                                                Research Impacts and Alternatives                                                     0       00
                                                Modify Mosquito Control Program                                                                    0
                                                Conduct Field Survey of Pesticide and
                                                Herbicide Use                                                                                      0

                                                CANALS
                                                "canal,
                                                Evaluate and Revise Hot Spot List                          0                          0                      0       G     G
                                                Inventory and Characterize Canals                          0                          0                      G       0     0
                                                Develop and Evaluate Improvement
                                                Strategies                                                 0                          0                                    0
                                                Revise FDEP Permit Criteria                                0                          0                      0       a     0
                                                Identity and Compile Technologies                          Q                          0                      0       0     0
                                                Develop Community Education and
                                                Involvement Program                                                                   0                      G       0     G
                                                                                                   0
                                                                                                    T
                                                                                                   0,      '3F
                                                                                                                                         /ea` I/ez


















                                                Conduct Canal System Restoration Pilot
                                                Project                                                    4)                         0                      0       0 0
                                                Implement Improvement Strategies

                                                0 Lead             0 Primary Role           0 Assist

                                                                                                                                                                                                      247







                Action Plans: Water Quality

                Table 25. AgencieslOrganizations Identified for Implementing StrategieslActivities (cont)

                                                                                           Agencies/Organizations



                                                                                      co
                                                                                                        0                        0
                                                                                                              ZC  00
                                Strategy/Activity                                                      .0 .0  a   .
                                                                          1-Z                       4, LE k   LE  U.        R?
                                MONITORING AND SPECIAL STUDIES
                                wl,@o lililionitorling
                                Develop Monitoring Implementation
                                Plan
                                Select Organization/institution to
                                Conduct Monitoring
                                Establish OA/QC Authority and
                                Protocols
                                Implement Monitoring
                                W.21 Predictive Wdels
                                                                                                                   . ........ .
                                Conduct a Modeling Workshop                                        4111111
                                Develop a Modeling Implementation
                                Plan                                         .0         0          .0               0
                                Wi2 Wastewater Pollutants
                                                                                                                        ... .. ..........
                                Detect Wastewater Pollutants and
                                Ecological Impacts                   0        0                                            0
                                W,Mi spectal"'StUdles
                                Estimate Other Pollutant Loadings    0        0     0              0                       0
                                Identify Causal Linkages Between                                                           0
                                Pollutants and Ecological Impacts    0        0     0              0
                                Develop and Evaluate Innovative
                                Monitoring Tools
                                Conduct Research on Global Change    0       10            0       0                          1
                                W.1804glonatUbtabiWe

                                Conduct User Needs Assessment
                                Develop Implementation Plan          (D       0
                                Implement and Maintain Data
                                Management System
                                .g@kjolaabmlnatlonof Findin
                                Establish Information Exchange
                                Network
                                Sponsor Conferences
                                Support Journal Publication          0       0
                                Disseminate Findings to the Public   0       0
                                V.32 Technical Adviid`r@y, Ciiir@M@ Ittee,
                                Establish Technical Advisory
                                Committee
                                W@ P@clog!csl 46nitarln4'kr@@
                                0 Lead      0 Primary Role      0 Assist
                                Abbreviations: NOAA. National Oceanic and Atmospheric Administration; NMFS, National Marine Fisheries Service; EPA, U.S.
                                Environmental Protection Agency; USCG, U.S. Coast Guard; USGS, U.S. Geological Survey, NPS. National Park Service; FWS, U.S. Fish
                                and Wildlife Service; USACE, U.S. Army Corp of Engineers; FDEP, Florida pfacr%entmoefEAffviaronmental Protection; FDHRS, Florida
                                Department of Health and Rehabilitative Services; FDCA, Florida Departme@teo surirs; FDACS, Florida Department of
                                Ariculture and Consumer Services; FOOT, Florida Department of Transportation; SFWMD, South Florida Water Management District; City
                                0?K.W., City of Key West; Other Municip.. Other Municivalities.
                                                                     i mlcllw,;@
                                                                                                   L
                                                                                                                     co LL






















































































               248







                                                                                                                                                                                   Action Plans: Water Quality

                         Table 26. Requirements for Implementation

                                                                                                                                      Implementation                    Cost to Complete
                                                                                                                         zr-                                       Institutional   Engln@ringfFwilffies
                                                                                                                                                                                                        '00
                                                                                                                         -J                       N AM


                                                                                                                                                g
                                                                                                                                                                                      -T.-ï¿½
                                      Strategy/Activity                                                                  IT                     (Z -0                                 owg                   1%
                                      FLORIDA BAY/EXTERNAL INFLUENCE
                                      W.16 Florida 6ay Freshwater Flow                               0            Medium              36+       1600/0'   NC       lo-99                                1-9
                                      Establish Leading Role for Steering                                         Done                0         10 0%     NC       10.99                        sw
                                      Committee
                                      Participate in Review/Revision of                                           Medium              36+       100%      NC       10.99                        sw
                                      Water Management Strategies
                                      W.24 Florida Say Influence                                     0            High                48        <60%      NC       '00-                                 3-5
                                                                                                                                                                   999+
                                      Conduct Historical Assessment                                               High                12        <50%      NC       io-99                        sw
                                                                                                                                                                   100
                                      Conduct Circulation Studies                                                 High                48        <50%      NC       999                          sw
                                      Conduct Ecological Studies                                                  Low                 36        <50%      NC       100-                         sw
                                                                                                                                                                   999

                                      DOMESTIC WASTEWATER
                                      W-i OS     DS Demonstration Project                                         High                36        loco.     io-00    10-0     so-W 2s.50                  V2
                                      Select Alternate OSDS and Test                                              Done                0         100% NC            1.9                          UK,
                                      Locations                                                                                                                                                 IVIK
                                      Conduct OSDS Demonstration Project                                          Low                 36        100%      10-99    10-99    30-60 25-50         UK,
                                                                                                                                                                                                IVIK
                                      W,,2 AWT Demonstration Project                                 0            None                36        <50%      10-99    10-99    wo,       17-33             1-2
                                                                                                                                                                            800
                                      Select Specific Technology and Test                                         None                12        <50% NC 1-9                                     UK,
                                      Locabon                                                                                                                                                   MK
                                      Conduct AWT Pilot Project                                                   None                36        <50%      10-99    10-99    300-      17-33     UK,
                                                                                                                                                                            600                 IVIK
                                      V.31W046water Management                                                                                                              110000-   61260
                                          .,$yet a                                                                High                36+       '460%     51row 6,000       MAW                         34
                                      Establish Inspection/Compliance for                                         High                36        <50%      NC       100-     57,000    NC        SW      3-5
                                      Cesspits, OSDS, and Package Plants                                                                                           999

                                      Evaluate Development of Nutrient                                            High                12        <50%      NC       10-99                        sw
                                      Reduction Targets
                                      Develop Sanitary Wastewater                                                 None                36        <50%      NC       10-99                        sw
                                      Master Plan
                                      Implement Master Plan. Examples:                                            None                ?         0%
                                          ï¿½ W3d: Construct two community plants                                                                           5.000.   1,000.   184.000   5.250     SW 11-25
                                                                                                                                                          10,000   5,000
                                          ï¿½ W3d: Upgrade package plants to AWT                                                                            NC       10-99    W,000  1 400        SW      1-2
                                      W.4 Wastewater Disposal, City of                               0            LOW                 48        <50%      NC,      100*     7,000     226
                                          . Key West                                                                                                      1.1      M
                                      Evaluate Disposal and Reuse Options                                         Low                 12         ?        NC       1100-
                                                                                                                                                                   999
                                      Upgrade Effluent Disposal                                                   None                48        <50%                        7,000     225       LK
                                      W.5 Water Quality Standards                                    0            LOW                 60+       <W%       NC       1 100*                               3-5
                                                                                                                                                                   099
                                      Develop and Evaluate Indicators                                             LOW                 36        <50%      NC       'OD-                         sw
                                                                                                                                                                   999
                                      Develop Water Quality Standards                                             None                60+       <50%      NC       10-99                        sw
                                      WA NPOES Program Delegation                                                                               loo%      No       10-99
                                                                                                                  Done                0
                                      Delegate NPDES Program                                                      Done                0         100%      NC       110-99                       sw
                                                                                        ii@e;r
                                      iWJ Resource Monitoring of
                                                                                    Su
                                             Discharges                                                           LOW                 36        100T.     INC 10-99                                     11-2
                                      Require Resource Monitoring                                                 Low                 36        1000%     1NC      1o.99                        sw I
                                                                                                                                                                                                I /Cf,












                                      Abbreviations: SW, Sanctuary Wide; UK, Upper Keys; MK, Middle Keys; LK, Lower Keys.
                                      Priority:               High          0 = Medium                     Low





                                                                                                                                                                                                                              249






                            Action Plans: Water Quality

                            Table 26. Requirements for Implementation (cont.)

                                                                                                                                                    Implementation                           Cost to Complete
                                                                                                                                                                                             Institutional /EnginwrinWFacilitle


                                                                                                                                       1z           -0
                                                                                                                                                                                                              &
                                                                                                                                                               1z
                                                                                                                                                    0          azl
                                            Strategy/Activity                                                                                                                                                         000
                                            DOMESTIC WASTEWATER (cont.)
                                            W006-bs 46ififfig                                                                                       iti    100%           NC7,                                                  3-5
                                            Improve Interagency Coordination                                                 None                   24     100%           NC                 i o-99                   sw
                                            Combine OSIDS Permitting
                                            Responsibilities                                                                 None                   36         ?          NC                 lo-99                    sw
                                            Monitor Revised OSDS Rules                                                       None                   36         ?          NC                 10-99                    sw
                                            'W.9 Latioratory 066111                                                                                                                                                             3-5

                                                                                                                                                                                             0
                                            Conduct Feasibility Study                                                        None                   12     <50%           10-99              10-9                     IVIK
                                                                                                                             None                   36     <50%           10-99                                       IVIK
                                            Establish Interagency Laboratory
                                            STORMWATER
                                            Vi.A1 Stormwater Retrofitting                                                    !L,6                                                            410;000
                                                                                                                                                                              .0
                                                                                                                                                                                                                                @101
                                            Inventory Stormwater Hotspots                                                    Low                    12     <50%                                                       VN@
                                            Retrofit Hotspots and Portions of US 1                                           None                   60+        0      >10,0001 >5,000        80.ODO      6,000        sw
                                            W.12 li6rihiWai6r Permitting,                                   @,_,C,           Done                   0      100%           NC                                                    None
                                            Eliminate Permitting Threshold                                                   Done                   0      100%           NC                                          sw
                                            WA3 Shorm,water Mansg6thent                                                      i0bdlu'm               '24'   100%           N0
                                            Develop and Enact Stormwater                                                                                                                     100
                                            Ordinances and Master Plans                                                      Medium                 12     100%           NC                 999                      sw
                                            Petition EPA to Include the Florida Keys
                                            in the Stormwater NPDES Program                                                  None                   24     100%           NC                 jo.99                    sw
                                            'mulssit Wn               -    ment Practices                      0             LOW,                   30'        %          JW                                                    3-5
                                                                                                                                                    _z"  I--- @F_ -   1--M
                                            Develop and Implement Best Management                                            LOW                    36         50%        1;;@ 1             :00D-                    sw
                                            Practices and Public Education Program                                                                                        9"                 5 000

                                            MARINAS AND LIVE-ABOARDS
                                            Air                                                                                                                                                                    --- ----
                                            Implement 1994 Florida
                                            Clean Vessel Act                                                                 Low                    12         ?          NC                 io-99                    sw
                                            Evaluate the Need for No-discharge                                               Low                    12
                                            Zones
                                            Establish No-clischarge Zones                                                    None                   48
                                            Develop and Implement a Public
                                            Education Program                                                                Low                    12         ?          NC                 10-99                    sw
                                            Change Environmental Crimes
                                            Categoriy                                                                        None      1            36     <50%           NC                 10-99                    sw
                                                                                                                             Low                    36     <WQ            ?                  ?                                  ?
                                            Z tloclall-Use Areas                                              0
                                            Evaluate Feasibility of Mooring Fields                                           Low                    12     <50%           NC                 10-99                    sw
                                            Establish Criteria for Mooring Fields                                            None                   12     <50%           NC                 10-99                    sw
                                            Establish Mooring Fields                                                         None                   36     <50%           ?                  ?                        sw
                                                                                                                                                                                  _fwo
                                            ILA'   41                                                                                                                                                                           3-6
                                            @_'_@Nar na Ptimpbut,                                                            Low                    W      <50%           NC                 9",
                                            Develop Plan for Sewage Discharge                                                LOW                    12     100%           NC                 10-99                    sw
                                            Elimination
                                            Require Marina Pumpout Facilities                                                None                   36     100%           NC                 lo-99                    sw
                                            Enforce Pumpout Use                                                              None                   60     <50%           NC                 10-99                    sw
                                            ILAMObtl Pm                                                                      Non&                                                            io-o
                                                       "         "                                                      -              '             @              II _NC
                                            Establish Mobile Pumpout Service                                                 None                          <50%           NC                 jo-99                    sw
                                            !L=2 file ri n a                                                                                        36  '100%                                                                   3-6
                                            Improve Interagency Cooperation in
                                            Marina Permitting                                                                None                   36     100%           NC                 i o-99                   sw

                                            Abbreviations: SW, Sanctuary Wide; UK, Upper Keys; MK, Middle Keys; LK, Lower Keys.
                                            Priority:               High           0 = Medium                        Low


                           250







                                                                                                                                                                                            Action Plans: Water Quality

                          Table 26. Requirements for Implementation (cont.)

                                                                                                                                          Implementation                         cost to complete
                                                                                                                                                                                 Institutional /E@gImwInVFW11ft    10
                                                                                                                               k

                                                                                                                                          -0

                                             Strategy/Activity
                                             MARINAS AND LIVE-ABOARDS (cont.)
                                                                                                                                                                                 10-99'
                                                  Mailno Operations
                                             Establish Contain     ment Areas for Boat                                  None              36      <50%           NC              io-99                     SW
                                             Maintenance
                                             Encourage Owners to Participate in                                         None              12      100%           NC              NC                        SW
                                             Environmental Organizations
                                             Encourage Marine Owners to Provide User
                                             M.nu.1 with Local Environmental Information                                None              12      100%        1  NC              INCI                      SW
                                             E.4 TrainingtWorkshops/School
                                                  Programs                                                            Medium              24      <60%        1  10              _I5
                                             Expand Environmental Awareness Program                                   Medium              24      <50%           10              5

                                             LANDFILLS
                                             L? SWO Problem Sft                                                         Now               60,     <"             to              1"
                                                                              !a-                    A.                                         ......                           low, -
                                             Conduct Historical Landfill Search and                                     None              36      <50%           NC              10-99                     SW
                                             Assessment
                                             Intensify Landfill Monitoring                                              None              36      <50%           <10             10-99                     SW
                                                                                                                                                                                 1,000-
                                             Evaluate and Implement Remedial Actions                                    None              60+     <50%           @10             5,000                     SW
                                             HAZARDOUS MATERIALS
                                             WAS HAMAT"IR"isponse                                                       Low               38      <60%           to@qo           f00499.                           1-2,
                                             Develop and Periodically Revise Sanctuary                                  None              36      <50%           10-99           10-99                     SW
                                             Spill Contingency Plan
                                             Improve Coordination and Cooperation                                       Low               12      100%           NC              10-99                     SW
                                             Improve Response/Containment
                                             Technologies                                                               None              36      <50%           10-99           10-99                     SW
                                             W-A 6 Spill Reporting_                                                     Low                                                      -
                                                                                                                                                  @W%            -oo'@           10-99
                                             Establish Spill Reporting System                                           Low               12          ?          NC              lo-99                     SW
                                             Establish and Maintain Sanctuary Spill
                                             Database                                                                   None              24      <50%           @10             10-99                     SW
                                             Ll 0 HAZMAT Handli 9                                          9            No"               3$          ?          NO,             loaq                              1-2
                                             Conduct HAZMAT AssessmentlInventory                                        None              36          ?          NC              i o-99                    SW
                                             MOSQUITO SPRAYING
                                             W.17 Mosquito Spraying                                       0             High              12      76@99%         toso            10-99
                                             Review Aerial Spraying Threshold                                           High              12      75-99%         NC              io-99                     SW
                                             Review Right Plans and Equipment                                           High              12      75-99%         10-99           10-99                     SW
                                             Reconsider Larvicide Use                                                   High              12      75-99%         NC              10-99                     SW
                                             Evaluate Ultra-low-volume Methods                                          High              12      75-99%         NC              i o-99                    SW
                                             WA 8 PeatlCW Research                                                      None              36+     4G%            NC              100-
                                             Research Impacts and Alternatives                                          None              36      <50%           NC              100-                      SW
                                                                                                                                                                                 999
                                             Modify Mosquito Control Program                                            None              36+     <50%                           ?                         SW
                                             Conduct Field Survey of Pesticide and
                                             Herbicide Use                                                              None              12      <50%           NC              100-                      SW
                                                                                                                                                                                 qqq
                                             CANALS
                                                                                                                        Low               W+      <50%           too,,           1W,                               1-2,
                                             W.10 Canal WO
                                             Evaluate and Revise Hot Spot List                                          Low               12      <50%           NC              I o-99                    SW
                                             Inventory and Characterize Canals                                          None              12      <50%           NC              lo-99                     SW
                                             Develop and Evaluate Improvement
                                             Strategies                                                                 None              24      <50%           10-99           10-99                     SW
                                             Revise FDEP Permit Criteria                                                None              12      100%           NC              io-99                     sw
                                             Identify and Compile Technologies                                          None              12      <50%           NC              10-99                     SW
                                             Develop Community Education and
                                             Involvement Program                                                        None              12      <50%           NC              io-w                      SW
                                             Conduct Canal System Restoration Pilot                                                                              100-            100-
                                             Project                                                                    None              12      <50%           999             999                       SW
                                                                                                                                                                 100-            100-
                                             Implement Improvement Strategies                                           None     .        6-                     .9              .999                      SW
                                             Abbreviations: SW, Sanctuary Wide; UK, Upper Keys; MK, Middle Keys; LK, Lower Keys.
                                             Priority:      0 = High              0 = Medium             * =Low


                                                                                                                                                                                                                                             251







                       Action Plans: Water Quality

                       Table 26. Requirements for Implementation (cont.)

                                                                                                                  Implementation                   Cost to Complete
                                                                                                          16-                                  Institutional /EngineeflnglFadiftle
                                                                                                          A
                                                                                                          "D _%Z
                                                                                                                                                                                      /0
                                                                                                                                                                                      R


                                                                                                                                                                             jo
                               Strategy/Activity                                                                          4C -0
                               MONITORING AND SPECIAL STUDIES

                                                                                                                  60+     <50%
                               Develop Monitoring Implementation
                               Plan                                                              Done             0       100%       NO        10-99                      sw
                               Identify Organization/Institution to
                               Conduct Monitoring                                                Done             0       100%       NO        <10                        sw
                               Establish QA/QC Authority and                                     Done             0       100%       NO        10-99                      sw
                               Protocols
                               Implement Monitoring                                              Low              60+     <50%       NO        5,000+                     sw
                                                                                                 High             12+     40%        No'       too-

                               Conduct Modeling Workshops                                        High             12      <50%       NO        10.99                      sw
                               Develop Modeling Implementation Plan                              High             12+     <50%       NO        10-99                      sw
                               ,W.2@vswowaii)r P@Illutants                             0         Low              36      <50%       NO        100-                               3-5

                               Detect Wastewater Pollutants and                                                                                100-                       sw
                               Ecological Impacts                                                Low              36      <50%       NO        999
                               W" SP044011'studies                                               None             36                 NC        too.
                                                                                                                          <60%

                               Estimate Other Pollutant Loadings                                 None             36      <50%       NO        100-                       sw
                                                                                                                                               999
                               Identify Causal Linkages Between                                                                                00-
                               Pollutants and Ecological Impacts                                 None             36      <50%       NO        1                          sw
                                                                                                                                               999

                               Develop and Evaluate Other                                        None             36      <50%       NO        100-                       sw
                               Monitoring Tools                                                                                                M
                               Conduct Research on Global Change                                 None             36      <50%       NO        9'00-                      sw
                                                                                                 High'            60+,,
                               Conduct User Needs Assessment                                     Done             0       100%       NO        lo-99                      sw
                               Develop Implementation Plan                                       Done             0       100%       <10       10-99                      sw
                               Implement and Maintain Data
                               Management System                                                 Low      1       60+     <50%    1  .00       10-991                  1  sw
                                                                                                 Low              60+     46%        <10
                               Establish Information Exchange Network                            Low              12      <50%       <10       10-99                      sw
                               Sponsor Conferences                                               None             60+     <50%       NO        10-99                      sw
                               Support Journal Publication.                                      None             60+     <600/0     NO        10-99                      sw
                               Disseminate Findings to the Public                                None             60+     <50%       NO        10-99                      sw


                               Establish Technical Advisory                                      Done             0       100%       NO        io-99                      sw
                               Committee
                               JOIN
                                                                                                          i Refer to Research and Monitoring Action Plan

                               Abbreviations: SW, Sanctuary Wide; UK, Upper Keys; MK, Middle Keys; LK, Lower Keys.
                               Priority:    0      High               Medium            =Low
                                                                                                          0
                                                                                           It?  FZTV                                                                            L







                       252







                                                                                                                Action Plans: Water Quality

                Tab le 27. Rationale for the High Priority Level of Water Quality Strategies

                                    Strategy/Activity                                                     Rationale

                                                                                                                                    . ..... ..... ...
                                                                                                                          T,
                                    'Y
                                W-A,        @'ERNALINJPLUEWI'itl@
                  W.19 Florida Bay Freshwater Flow                               Addresses a potentially major, external influence on water
                  e Establish Leading Role for Steering Committee                quality in the Sanctuary. The Sanctuary must be involved
                  * Participate in Review/Revision of Water Management           in decisions affecting its jurisdiction.
                    Strategies
                  W.24 Florida Bay Influence                                     Addresses a potentially major, external influence on water
                  ï¿½ Conduct Historical Assessment                                quality in the Sanctuary. Understanding Florida Bay
                  ï¿½ Conduct Circulation Studies                                  influence must be considered in decisions regarding
                  ï¿½ Conduct Ecological Studies                                   wastewater management systems (strategy W.3) and in
                                                                                 restoring freshwater flow to Florida Bay (strategy W. 19).

                        15STIC1WASTEWATER
                  WA OSDS Demonstration Project                                  Provides critical information for decisions regarding
                  ï¿½ Select Alternate OSDS and Test Locations                     wastewater management systems (strategy W.3).
                  ï¿½ Conduct OSDS Demonstration Project
                  W.2 AWT Demonstration Project                                  Provides critical information for decisions regarding
                  ï¿½ Select Specific Technology and Test Location                 wastewater management systems (strategy W.3).
                  ï¿½ Conduct AWT Pilot Project
                  W.3 Wastewater Management Systems                              Will lead to major reductions in wastewater nutrient loading
                  ï¿½ Establish InspectioniCompliance Programs for Cesspits,       to Sanctuary waters through enforcing existing standards,
                    OSDS, and Package Plants                                     upgrading existing systems, and/or constructing
                  ï¿½ Evaluate Development of Nutrient Reduction Targets           community wastewater plants.
                  ï¿½ Develop Sanitary Wastewater Master Plan
                  ï¿½ Implement Master Plan
                  W.4 Wastewater Disposal, City of Key West                      Directly reduces nutrient loadings to surface waters.
                  ï¿½ Evaluate Disposal and Reuse Options
                  ï¿½ Upgrade Effluent Disposal
                  W.22 Wastewater Pollutants                                     Provides critical information for decisions regarding
                    Detect Wastewater Pollutants and Ecological Impacts          wastewater management systems (strategy W.3). Provides
                                                                                 critical information about cause/effect relationships linking
                                                                                 wastewater pollutants and Sanctuary resources.


                                                                                                   ... . . ......
                  MARINAS AND LIVE-ABOARD$
                  LA Marina Pumpout                                              Develops and implements a coordinated plan to directly
                  o Develop Plan for Sewage Discharge Elimination                reduce nutrient loadings from live-aboards and other
                  * Require Marina Pumpout Facilities                            boaters, which can contribute to water quality degradation in
                  9 Enforce Pumpout Use                                          confined waters.
                                                                                                               . . .. ......                __7
                  "'MOSOU
                              ITO,SPRAYING
                  W.17 Mosquito Spraying                                         Reduces aerial spraying of pesticides, leading to reduced
                  o Review Aerial Spraying Threshold                             inputs of pesticides and diesel oil to the marine environ-
                  * Review Flight Plans and Equipment                            ment.
                  9 Reconsider Larvicide Use
                  9 Evaluate Ultra-low-volume Methods
                  WAS Pesticide Research                                         Evaluates alternatives to minimize impacts of current
                  e Research Impacts and Alternatives                            pesticide practices.
                  * Modify Mosquito Control Program
                  o Conduct Field Survey of Pesticide and Herbicide Use


                                                                                                                                            253







                Action Plans: Water Quality

                Table 27. Rationale for the High Priority Level of Water Quality Strategies (cont.)


                                   Strategy/Activity                                                 Rationale
                'CA ALA-v@

                WA 0 Canal WO                                                  Addresses documented water quality degradation
                ï¿½Evaluate and Revise Hot Spot List                             in canals.
                ï¿½Inventory and Characterize Canals
                ï¿½Develop and Evaluate Improvement Strategies
                ï¿½Revise FDEP Permit Criteria
                ï¿½Identify and Compile Technologies
                ï¿½Develop Community Education and Involvement Program
                ï¿½Conduct Canal System Restoration Pilot Project
                ï¿½Implement Improvement Strategies
                                                      --I-' 7@
                                                               MIES
                0@hlt@F!Wd, ND, SnMAL ST

                W.20 Monitoring                                                Provides critical data on long-term status and trends in
                ï¿½ Develop Monitoring Implementation Plan                       water quality and biological resources for management
                ï¿½ Identify Organization/Institution to Conduct Monitoring      decisions. The monitoring program is required by the
                ï¿½Establish QA/QC Authority and Protocols                       Florida Keys National Marine Sanctuary and Protection
                ï¿½Implement Monitoring                                          Act.
                W.21 Predictive Models                                         Provides critical guidance to resource managers.
                ï¿½ Conduct a Modeling Workshop
                ï¿½ Develop a Modeling Implementation Plan

                W.22 Wastewater Pollutants                                     (see above, Domestic Wastewater)
                * Detect Wastewater Pollutants and Ecological Impacts
                W.24 Florida Bay Influence                                     (see above, Florida Bay/External Influences)
                ï¿½ Conduct Historical Assessment
                ï¿½ Conduct Circulation Studies
                ï¿½ Conduct Ecological Studies
                W.28 Regional Database                                         Data management is an integral part of all
                ï¿½ Conduct User Needs Assessment                                monitoring and special studies efforts; must be
                ï¿½ Develop Implementation Plan                                  developed before field/lab work begins.
                ï¿½ Implement Data Management System
                W.32 Technical Advisory Committee                              Establishes technical (scientific and resource management)
                - Establish Technical Advisory Committee                       oversight for all monitoring and special studies efforts.

                W.33 Ecological Monitoring Program                             Provides critical information on the health of living
                                                                               resources and.the ecosystem, causal relationships
                                                                               related to management decisions, and the effectiveness
                                                                               of management actions. The ecological monitoring
                                                                               program is required by the Florida Keys National Marine
                                                                               Sanctuary and Protection Act.






                                                      Zoning Action Plan

              This action plan identifies the zoning strategies             Sanctuary Preservation Areas, and Special-use
              that will be implemented in the Sanctuary. The                Areas are established to ensure protection of Sanctu-
              strategies in the plan are derived from Alternative           ary resources. Each of these zone types is designed
              111, the most balanced of the management alterna-             to reduce damage to resources and threats to
              tives. For each strategy, the time required for               environmental quality, while allowing uses that are
              implementation, funding availability, level of                compatible with resource protection. The zones will
              activity in year 1, costs, and responsible parties            protect habitats and species by limiting consumptive
              are outlined. Maps showing the location of each               and/or conflicting user activities, and allowing re-
              zone are also included in this plan. Table 28                 sources to evolve in a natural state, with minimum
              summarizes key information about zoning strate-               human influence. This plan outlines the process for
              gies.                                                         establishing the zones. Prioritizing zone marking,
                                                                            marking zone boundaries, and managing zones are
                                                                            also each discussed.
                Introduction
                                                                            The term Ecological Reserves replaces the term
              The consideration of temporal and geographic zoning           Replenishment Reserves in the FMP/EIS. NOAA
              toensure protection of Sanctuary resources is                 has changed the name to reflect public concerns
              mandated under Section 7 (a) (2) of the Florida Keys          over the purpose of these areas, however, the
              National Marine Sanctuary and Protection Act.                 objective and definition of this zone type remains the
              Marine zoning is a management tool that has been              same. The main purpose of Ecological Reserves is
              used around the world to protect sensitive marine             to protect biodiversity by setting aside areas with
              resources from overuse and to separate conflicting            minimal human    'disturbance. These zones will serve
              visitor uses. Marine zoning is being implemented in           to protect and enhance the spawning, nursery or
              the Florida Keys National Marine Sanctuary to assist          permanent resident areas of fish and other marine
              in the protection of the biological diversity of the          life. Hundreds of marine species are not protected
              marine environment in the Keys. In addition, marine           by any form of management and the Ecological
              zoning will disperse uses of the resources in such a          Reserves will provide protection and allow areas to
              way as to reduce user conflicts and lessen the                return to their natural state. These areas will addi-
              concentrated impact to marine organisms on heavily            tionally protect the food and home of commercially
              used reefs. As a management tool, marine zoning               and recreationally important species of marine life.
              allows the sanctuary to focus the majority of its             The objective and definition of this zone type remains
              management efforts on a small portion of the sanctu-          the same.
              ary while addressing water quality and habitat
              degradation in the broader unzoned portions of the            The five zone types which will be implemented in the
              area.                                                         Sanctuary are:

              In addition to the Existing Management Areas in the           Wildlife Management Areas. These areas are estab-
              Keys (national wildlife refuges, state parks, etc.),          lished to minimize disturbance to especially sensitive
              Wildlife Management Areas, Ecological Reserves,               wildlife populations and their habitats to ensure


                                             ning    atdg%@-
                 Table 28. SumMa ofZo             @,Str
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                                                                                                                                    255







               Action Plans: Zoning

               protection and preservation consistent with the                   e Consider areas with good water quality.
               Sanctuary designation and other applicable laws
               governing the protection and preservation of wildlife             * Consider socioeconomic impact on displaced
               resources in the Sanctuary. Such areas would                        user groups.
               include bird nesting, resting, or feeding areas and
               turtle nesting beaches. Regulations governing access              9 Consider ownership of nearby waterfront
               are designed to protect endangered or threatened                    property.
               species or their habitats, while providing opportuni-
               ties for public use. Access restrictions include no-              * Consider sufficient size to include range of
               access buffer zones, no-motor zones, idle speed                     habitats.
               only/no wake zones, and closed zones. Twenty of the
               twenty-seven areas are under the management of                    * Consider other areas within and adjacent to the
               the U.S. Fish and Wildlife Service and are contained                Sanctuary with existing or proposed restric-
               in this plan as an integrated ecosystem management                  tions.
               approach to resource protection. These areas are
               located within the Great White Heron, Key West, Key               e Consider existing managed areas.
               Deer, and Crocodile Lakes National Wildlife Refuges
               managed by the U.S. Fish and Wildlife Service.               In addition to the aforementioned criteria, there are
                                                                            the statutory criteria under the FKNIVISPA for protect-
               Ecological Reserves. These areas are designed to             ing resources and facilitating multiple use, and under
               encompass large, contiguous diverse habitats. They           NEPA, for considering the environmental conse-
               are intended to provide natural spawning, nursery,           quences including the socio-economic impacts.
               and permanent residence areas for the replenish-
               ment and genetic protection of marine life and to            Sanctuary Preservation Areas. These areas will
               protect and preserve all habitats and species particu-       focus on the protection of shallow, heavily used reefs
               larly those not protected by fishery management              where conflicts occur between user groups, and
               regulations. These reserves are intended to protect          where concentrated visitor activity leads to resource
               areas that represent the full range of diversity of          degradation. They are designed to enhance the
               resources and habitats found throughout the Sanctu-          reproductive capabilities of renewable resources,
               ary.. The intent is to meet these objectives by limiting     protect areas critical for sustaining and protecting
               consumptive activities, while continuing to allow            important marine species, and reduce user conflicts
               activities that are compatible with resource protec-         in high-use areas. This will be accomplished through
               tion. This will provide the opportunity for these areas      a prohibition of consumptive activities within these
               to evolve in a natural state, with a minimum of human        areas. They have been chosen based on the status
               influence. These zones will protect a limited number         of important habitat, the ability of a particular area to
               of areas that provide important habitat for sustaining       sustain and protect the habitat, the level of visitor
               natural resources such as fish and invertebrates.            use, and the degree of conflict between consumptive
                                                                            and nonconsumptive users. The actual size and
               The following is a list of criteria that was developed       location of these zones have been determined by
               by the Sanctuary Advisory Council. These criteria            examination of user patterns, aerial photography, and
               were used to site the proposed Ecological Reserves           ground-truthing of specific habitats.
               in the DMP/EIS and were reconsidered along with
               public comment for this final plan.                          The following is a list of criteria that was developed
                                                                            by the Sanctuary Advisory Council. These criteria
                  ï¿½  Consider areas of high habitat and species             were used to site the proposed Sanctuary Preserva-
                     diversity representative of the Florida Keys           tion Areas in the DMP/EIS and were reconsidered
                     marine ecosystem.                                      along with public comment for this final plan.

                  ï¿½  Consider environmental and socio-economic                   9 Protect representative locations of the most
                     impacts on other areas resulting from displac-                rare habitats (i.e. reefs.)
                     ing existing uses.
                                                                                 * Consider long term impacts on areas of critical
                  ï¿½  Consider long-term impacts from establishing                  economic value.
                     ecological reserves in areas of critical eco-
                     nomic value.                                                e Protect areas that are buffered from poor water
                                                                                   quality.

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                                                                                                                 Action Plans: Zoning

                   ï¿½ Consider the accessibility of areas to fisherman        summarizes the goals and objectives of the Zoning
                     and other user groups.                                  Program, and provides background information on
                                                                             planning efforts. The strategy description section
                   ï¿½ Minimize conflicts.                                     groups activities by strategy, based on the five types
                                                                             of management zones. For each strategy and
                   ï¿½ Provide geographic spread.                              component activity, the priority level, funding avail-
                                                                             ability, costs, and timing of implementation are
                   ï¿½ Sufficient size to ensure viability.                    summarized. The implementation section details how
                                                                             the strategies in the plan will be placed into action.
                   ï¿½ Research potential/control areas.                       The final section includes a map of each zone, and
                                                                             an accompanying description of the area.
               In addition to the aforementioned criteria, there are
               the statutory criteria under the FKNMSPA for protect-
               Ing resources and facilitating multiple use, and under
               NEPA, for considering the environmental conse-
               quences including the socioeconomic impacts.                  Management Strategies. Each strategy has been
                                                                             assigned an estimated activity level for year 1 (high,
               Existing Management Areas. This zone simply                   medium, low, or none) that represents an estimate of
               identifies areas that are managed by other agencies           the planned level of action that will occur in the first
               where restrictions already exist. These zones                 year after the Management Plan is adopted. In
               delineate the existing jurisdictional authority of other      addition, the time required for implementation, costs
               agencies (i.e., State parks, aquatic preserves,               of implementation, and available funding (Federal,
               sanctuaries, and other restricted areas). Manage-             State, local, and private) have been estimated for
               ment of these areas within the Sanctuary may require          each strategy. The component activities in each
               additional regulations or restrictions to adequately          strategy, and the institutions responsible for imple-
               protect resources. Any additional management                  menting these activities, have also been identified.
               measures will be developed and implemented in
               coordination with the agency having jurisdictional            The strategies for the Management Plan, which
               authority. Their function is not to establish another         includes the Zoning Action Plan and all other action
               layer of bureaucracy, but to recognize established            plans combined, have been grouped into three
               management areas and, at a minimum, to comple-                priority levels, based on their relative importance or
               ment the existing management programs, ensuring               feasibility. A strategy's priority level is based on
               cooperation and coordination with other agencies.             factors such as available funding, costs, personnel
                                                                             requirements, timing, levels of existing implementa-
               Special-use Areas. These zones are used to set                tion, and existing legislative/regulatory authority. The
               aside areas for scientific research and educational           high priority level includes the 16 most important
               purposes, restoration, monitoring, or to establish            strategies. The medium priority level contains 36
               areas that confine or restrict activities such as             strategies that represent the next level of importance
               commercial personal watercraft operations and                 to the Sanctuary and will have some level of activity
               establish live-aboard mooring fields. These areas             in year one. Low priority items contain the remaining
               will minimize impacts on sensitive habitats and               strategies in the Management Plan. Those strategies
               reduce user conflicts. Special management pro-                planned for completion in or before year one do not
               grams (e.g., monitoring, research, special-use                have a priority level.
               permits and restoration) can be conducted without
               impediment in these areas. They can be used to set            Zoning Strategies. The strategies delineating
               aside areas for specific uses such as long-term               Ecological Reserves and Sanctuary Preservation
               research and monitoring and/or minimizing the                 Areas are considered priority level 1. The activities
               adverse environmental effects of high-impact activi-          described for those strategies will have a high level of
               ties. These zones will be limited in their length of          action in year 1 for the Western Sambos Ecological
               duration.                                                     Reserve and a medium level of action for selected
                                                                             Sanctuary Preservation Areas. The Special-use
               How the Plan is Organized. This action plan is                Areas strategy is considered high priority level, and
               organized in four sections: an introduction, descrip-         will also have a low level of action in year 1. Wildlife
               tion of strategies, a summary of implementation               Management Areas and Existing Management Areas
               procedures, and a series of maps showing the                  will both be established in year 1 and, accordingly,
               various zones in the Sanctuary. The introduction              have not been assigned a priority level.

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               Action Plans: Zoning

               NOAA will be the primary funding source for all                    protect biological diversity and the quality of
               strategies, except for marking Wildlife Management                 resources by protecting large, contiguous
               Areas in national wildlife refuges. The marking of                 diverse habitats that are intended to provide
               these zones may have to be implemented gradually                   natural spawning, nursery, and permanent
               as funds become available for installation of markers.             residence areas for the replenishment and
                                                                                  genetic protection of marine life and to protect
               Five-year Zoning Plan Review. The Sanctuary's                      and preserve all habitats and species;
               zoning program will be evaluated in the five-year
               update of the Management Plan, the effectiveness of              e minimize conflicting uses;
               the zones will be determined, and consideration will
               be given to modifying or eliminating zones at this               * protect Sanctuary resources and separate
               time.                                                              conflicting uses by establishing a number of
                                                                                  non-consumptive zones in areas that are
               Relationship to Other Action Plans. This plan                      experiencing conflict between consumptive and
               describes the process of prioritizing zones for mark-              non-consumptive uses and in areas that are
               ing, obtaining the information necessary to mark                   experiencing significant population or habitat
               boundaries, and the method of marking these                        declines;
               boundaries. The associated regulations are de-
               scribed in the Regulatory Action Plan. In addition,              9 eliminate injury to critical/sensitive habitats;
               research and monitoring will be conducted within
               Sanctuary Preservation Areas, Ecological Reserves,               9 disperse concentrated harvests of marine
               and Special-use Areas to provide information for                   organisms;
               better management. This may result in zone modifi-
               cations as part of the continuous management                     e prevent heavy concentrations of uses that
               process. These activities are described in the Re-                 degrade Sanctuary resources;
               search and Monitoring Action Plan. Finally, the
               establishment of live-aboard mooring fields as                   * provide undisturbed monitoring sites for
               Special-use Areas is described in the Water Quality                research activities by setting areas aside for
               Action Plan. This activity would establish designated              scientific research, monitoring, and restoration;
               mooring fields or anchorage areas in places with                   and
               significant concentrations of live-aboard vessels.
                                                                                  provide control sites to help determine the
                                                  @- ------- --                   effects of human activities on resources.

                    7               _X-
               Sanctuary Goals. Zoning is critical to achieving the
               Sanctuary's primary goal of resource protection. Its
               purpose is to protect and preserve sensitive compo-
               nents of the ecosystem by regulating within the
               zoned areas, while facilitating activities compatible
               with resource protection. Zoning will ensure that
               areas of high ecological importance will evolve in a
               natural state, with minimal human influence. Zoning
               will also promote sustainable use of the Sanctuary
               resources, and will protect areas representing
               diverse Sanctuary habitats and areas important for
               maintaining natural resources (e.g., fishes, inverte-
               brates, etc.) and ecosystem functions.

               Sanctuary Objectives. To achieve these goals, the
               following objectives must be accomplished:

                     reduce stresses from human activities by
                     establishing areas that restrict access to
                     especially sensitive wildlife populations and
                     habitats;

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                                                                                                                                         Action Plans:Zoning

                                                                                            other sensitive habitats. Restrictions prohibit use,
                  Description of Strategies                                                 modify the way areas are used or accessed, and
                                                                                            specify time periods when use is prohibited.
                                                                                            (Completed in Year 1)
                This Final plan contains five strategies from Manage-                       This strategy includes 27 areas, 20 that are part of
                ment Alternative Ill. The first zone type recognizes 27                     the Fish and Wildlife Service's (FWS) plan for man-
                Wildlife Management Areas. The second establishes                           aging backcountry portions of the Key West National
                one Ecological Reserve and commits NOAA to                                  Wildlife Refuge, Great White Heron National Wildlife
                completing the establishment of a second within a                           Refuge, and Crocodile Lake Wildlife Refuge. The
                two year time frame. The third establishes 18                               areas were established through a March 1993
                Sanctuary Preservation Areas. The fourth identifies                         agreement between the FWS and the Florida Depart-
                21 Existing Management Areas, and the fifth desig-                          ment of Environmental Protection (FDEP). The FWS
                nates four Special-use Areas.                                               is currently marking the 20 areas with buoys and/or
                                                                                            signs, and will administer these areas. NOAA, the
                                                                                            FDEP, and Monroe County will be responsible for
                                                                                            marking and managing the remaining seven areas.
                                         Strategy Z.1:                                      An additional WMA has been established in Eastern
                            Wildlife Management Areas                                       Lake Surprise (east of US 1) to manage vessel traffic
                                                                                            in that area to protect the American Crocodile and
                                                                                            West Indian manatees.
                This strategy establishes Wildlife Management Areas
                that restrict access to sensitive wildlife populations                      Activity 1-Prioritize Zone Marking. The boundaries
                and habitats. Such areas include bird nesting,                              of seven of the 27 areas will be identified and
                resting, or feeding areas, turtle nesting beaches, and                      marked. Since not all zones can be marked concur-
                                                                                            rently, zone marking will be prioritized. The primary
                                                                                            factors used to determine the order in which zones
                                                                                            will be marked include season and proximity to
                Zoning Management Strategies
                                                                                            human impacts. Boat-use survey data from the FDEP
                   Z.1: "Wildlife Management Areas
                                                                                            and The Nature Conservancy (TNC) will be used to
                        Prioritize zone marking                                              determine use periods, and research requirements
                        Determine  boundaries on-site                                        will also be considered.
                    Place buoys/signs along zone boundaries
                        Establish management responsibilities
                   Z.2: Ecological Reserves
				Determine boundaries on-site
				Place buoys along zone boundaries
                        Establish management responsibilities                       Implementation. NOAA will be the lead agency
                     z.3: Sanctuary Preservation Areas 
                         Prioritize zone marketing                                  responsible for implementing this activity. The FWS,
                         Determine boundaries on-site                                     FDEP, National Audubon Society, and TNC will be
                        Place buoys along zone boundaries                                   consulted regarding species activities. The FDEP
                        Establish management responsibilities
                                                                                           and TNC will be consulted for boat-use survey data.
                          
                    Z.4: Existing Management Areas                                          Schedule. This activity will be completed in year 1.
                         (Refer to Regulatory Action Plan)          
                                                                                         Activity 2-Determine Boundaries On-site. Accurate
                                                                                               readings (NOAA and FWS sites) will be developed
                    Z.5: SPecial-use Areas
                         Prioritize zone marking                                                  using aerial photography, global positioning system
                         Determine boundaries on-site                                              (GPS) receivers, and groundtruthing. Temporary
                         Place buoys along zone boundaries                                         markers will be placed at each corner of the sites to
                         Determine high-impact or user-conflict activities                          be identified and marked.
                         Determine appropriate zones for high-impact
 				 activites or user conflicts								Existing program Implementaion NOAA and the 
                          Determine permitting process 							sanctuary Advisory Council have preliminary bound-
       			Establish management respoonsibilities						aries for five of the seven zones(excluding Pelican
																Shoal and crocodile Lake) on nautical charts.
																
																Implementaion Noaa will be lead agency	
																responsible for implementing this activity. The
																National Audubon Society and the FLorida Game and
																			259



Action Plans: Zoning
Wildlife Management Areas

1. Sawyer Keys-Tidal creeks closed on south side.
2. East Harbor Key-No-access buffer zone (300 feet)
around northernmost island.
3. LIttle Mullet Key-No-access bufer zone (300 feet)
around island.
4. Upper Harbor Key-No-Access buffer zone (300
feet) around island.
5. Little crane Key-No-access buffer zone(300 feet)
around island.
6. Boca Grande key-South half of the beach closed.
7.WOman Key-Half of the beach and sand spit-
(Southeast side) closed.
8. Horseshoe key-No access buffer zone around
main island.
9. Cottrell key-No-motor zone (300 feet0 around
island.
10. Merquesas keys-
a. No-motor zones (300 feet) around three
smalles islands.
b. no-access buffer zone (300feet) around one
mangrove island.
c. Idle speed only/no wake zone through one tidal
creek.
 11. Snipe Keys-Idle speed only/no wake zone in main
creek No-motor zone elsewhere.
12 Mud keys-idle speed only/no wake zone in two
main creeks; two smaller creeks closed.
13. Big mullet key-no motor zone (300 Feet) around
island.
14. Tidal Flat south of marvin Key-No-Access buffer
zone.
15. West content keys-Idle speed only/no wake zone
in selected tidal creeks and one no access buffer
zone.
16. East content keys-idle speed only/no wake zones
in tidal creeks
17. Bay keys-idle speed only/no wake zone in tidal
creeks and no-motor zone (300 feet) around one 
island.
18. Lower Harbor Keys-Idle speed only/no wake zone
in selected tidal creeks.
19. Cayo Agua Keys-Idle speed only/no wake zone in
tidal creeks.
20. Pelican Shoal-No Landing and no-access zone
out of 50 meters from shore between April 1 and 
August 31.
21. Crocodile lake0-No-access buffer zone (100 feet)
along shoreline between March 1 and OCtober 1.
22. rodriguez Key- No Motor zone on tidal flat.
23. Tavernier Key-No-motor zone on tidal flat.
24. Snake creek-No motor zone on tidal flat.
25. Cotton Key-No-MOtor zone on tidal flat.
26. Dove Key-No-Motor zone on tidal flat, area closed
around two small islands.
27. Eastern lake Surprise Idle speed only/no wake
Zone east of US 1.
note areas in bold italics qwill be marked and managed by Noaa the
_____ and Monroe county crodcodile lake will be marked by NOAA
and managed along with the remaining sites by the FWS.

Freshwater Fish Commission (FGFWFC) staff will
provide secondary implementation support

Schedule. This activity will be completed in year 1.

Activity 3-Place Buoys/Signs Along Zone Bound-
aries. Boundary buoys and/or signs will be placed
along the boundaries of each zone, based on Federal
and State guidelines, and will show the restricted
action for each site. The type of buoy or sign used
will be determined by the substrate. The physical
placement of the buoys/signs will require developing
an agreement with the FDEP

Existing Program implementation. The FWS is
currently locating signs and/or buoys at the 19 sites
for which it will have primary responsibility.

Implementation NOAA will be the lead agency
responsible for implementing this activity. THe FWS.
FDEP, FGFWFC, and U.S. Coast Guard (USCG) will
assist in implementation.

Schedule. This activity will be completed in year 1.

Activity 4-Establish Management Responsibili-
ties NOAA, the FGFWFC the FDEP and Monroe 
county will manage seven of the 27 sites. The
remaining 20 sites (including crocodile lake) will be
managed by the FWS all the areas will be managed
to protect sensitive wildlife populations and habitats.

Implementation NOAA the FGFWFC, the FDEP,
and Monroe County will have the lead responsibility
for managing the seven sites not within the FWS
program. Although the FWS will be responsible for
managing and marking all other sites. NOAA will be
responsible for marking the crocodille Lake site.

Schedule THis activity will be continuous

The Regulations for Wildlife Management Areas
are included in teh Regulatory Action Plan.

Strategy Z.2:
Ecological Reserves
 
Ecological Reserves are Sanctuary zones that
encompass areas of contiguous, diverse habitats,
within which uses are subject to conditions and
prohibitions, including public use restrictions. These
areas are designed to minimize human influences, to
provide natural spawning, nursery, and permanent

260






                                                                                                                    Action Plans:Zoning

                residence areas for the replenishment and genetic              and State guidelines. Buoys will be placed in one-
                protection of marine life, and also to protect and             mile increments along zone boundaries, and will be
                preserve natural assemblages of habitats and                   visible for one mile. The type of anchor device used
                species within areas representing the full range of            will be determined by the substrate where the buoy is
                diversity of resources and habitats found throughout           placed.
                the Sanctuary.
                (Priority Level High, High Level of Action in Year 1,          mImplementation. NOAA will be the lead agency
                12+ Months to Complete)                                        responsible for implementing this activity. The FDEP
                                                                               and USCG will provide secondary implementation
                This Final Plan establishes one Ecological Reserve             assistance. The USCG must approve all buoys.
                in the Western Sambos. It also commits NOAA to
                determining the boundaries and identifying the                 mSchedule. This activity will have a high level of
                effective date for final regulations of a second               action in year 1. It will require 6+ months to complete.
                Ecological Reserve in the Dry Tortugas within two
                years.                                                         Activity 3-Establish Management Responsibill-
                                                                               ties. The Sanctuary Superintendent will oversee all
                In the DMP/EIS, NOAA proposed boundaries for a                 aspects of zone management, and will be respon-
                Replenishment Reserve (Ecological Reserve) in the              sible for ensuring that the first two activities (deter-
                Dry Tortugas based on distribution of significant              mining zone boundaries and placing buoys) are
                resources with an attempt to minimize or avoid                 implemented. NOAA will establish a process for
                impacts to users . Public comment identified serious           selecting the boundary of the Dry Tortugas Ecologi-
                adverse economic impact which would result from                cal Reserve. Sanctuary Managers will ensure that the
                implementation of the no-take regulations within the           public is educated about the zones and their restric-
                proposed boundary. Consequently, NOAA did not                  tions, that all research and monitoring efforts are
                establish final boundaries for the Dry Tortugas                consistent with the goals of the Sanctuary, and that
                Replenishment Reserve (Ecological Reserve) in the              all regulations related to the zones are enforced. The
                final management plan and regulations. However,                Superintendent will coordinate with the FDEP, FMFC,
                NOAA is committed to finalizing the Ecological                 and Monroe County in managing the zones.
                Reserve at the Dry Tortugas. NOAA intends to
                undertake a process to determine the final boundary            mImplementation. NOAA, the FMFC, the FDEP, and
                for the Dry Tortugas Ecological Reserve in coordina-           Monroe County will have the lead responsibility for
                tion with the National Park Service and recommends             managing the Replenishment Reserves.
                the inclusion of portions of the Dry Tortugas National
                Park. To identify the final boundary, NOAA and the             mSchedule. This activity will have a high level of
                National Park Service will use the information gath-           action in year 1. It will be continuous.
                ered as part of the public review of the draft manage-
                ment plan and hold workshops with users, agency                The research and monitoring components of this
                representatives, environmental organizations, and              strategy are described in the Research and
                the public. Prior to making a final decision, NOAA             Monitoring Action Plan. The regulations for
                and the National Park Service will publish the final           Ecological Reserves are Included in the Regula-
                boundary for public comment.                                   tory Action Plan.
                Activity 1-Determine Boundaries On-site. Accurate                                  Strategy Z.3:
                boundary readings will be developed using aerial                       Sanctuary Preservation Areas
                photography, GPS receivers, and groundtruthing.
                Temporary markers will be placed along the bound-
                aries of the reserve.                                          Sanctuary Preservation Areas are Sanctuary zones
                sImplementation. NOAA will be the lead agency                  that encompass discrete, biologically important
                responsible for implementing this activity.                    areas, within which uses are subject to conditions
                                                                               and prohibitions, including public use restrictions, to
                uSchedule. This activity will have a high level of             avoid concentrations of uses that could result in
                action in year 1. It will require 6+ months to complete.       significant declines in species populations or habitat,
                                                                               to reduce conflicts between uses, to protect areas
                Activity 2-Place Buoys Along Zone Boundaries.                  that are critical for sustaining important marine
                Boundary buoy placement will be based on Federal

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Action Plans: Zoning

Species and habitats, or privide opportunities for
scientific research.
(Priority Level High, High Level of Action in Year 1,
18+ Montsh to Complete)

This strategy establishes 18 Sanctuary Preservation
Areas (SPAs), totaling approximately 1,651ha. The
largest will be the Carysfort/South Carysfort Reef,
and the smallest will be Dry Rocks and Cheeca
Rocks. The proposed Western Sambos SPA was
eliminated from the Final Plan with teh establishment
of the Western Sambos Ecological Reserve which
encompasses a cross-section of the coral reef
community, ranging from the nearshore hardbottoms,
seagrass communities, patch reefs, mid-channel
reef, offshore patch reefs, and the fore reef habitat at
Western Sambos Reef.

NOAA has allowed catch and release fishing by
trolling in four SPAs: Conch Reef; Alligator Reef;
Sambrero Kay; and Sand Key. This action will allow
the activity of catch and release fishing to be com-
pared with other SPAs where it is not allowed. In
addition, the taking of ballyho for bait by net will be
allowed by permit in all SPAs.

Activity 1-Prioritize Zone Marking. The boundaries
for all zones will be indtified and marked. Since not
all zones can be marked concurrently, marking must
be Prioritized. The primary factors that will be used to

Sanctuary Preservation Areas
zone				Approzimate 	
            	          Area(ha)
Alligator Reef			60
Carysfort/South Carysfort reef 515
Cheeca ROcks			16
Coffins Patch			147
Conch Reef 				23
Davis Reef				58
Dry ROcks				16
Eastern Dry Rocks			27
French Reef				37
Grecian Rocks			107
Hen and Chickens			60
Looe Key				115
Molasses Reef			89
Newfound Harbor Key		43
Rock Key				25
Sand Key				151
Sombrero Key			73
The Elbow				90
Approximate Total			1,651

determine the order in which zones will be marked
include the level of current use, season, and relative
threats to resources(e.g., Vessel groundings). Boat-
use survey data from the FDEP and TNC aerial
census will be used to determine use periods, and
the availability of existing monitoring data will also be
considered.

Implementation. NOAA will be the lead agency
responsible for implementing this activity.

Schedule This activity will have a high level of
action in year 1. It will require 6+ months to complete.

Activity 2-Determine Boundaries on-site. Accurate
boundary readings of all sites will be determined
using aerial photography, GPS receivers, and 
groundruthing. Temporary markers will be placed at
the corner of each zone.

Implementation. NOAA will be the lead agency
responsible for implementing this activity.

Schedule. This activity will have a high level of
action in year 1. It will require 6+ months to complete.

Activity 3-Place Buoys Along Zone Boundaries.
Boundary buoys will be placed at the corner of each
zone based on Federal and State guidelines, with the
type of anchoring device determined by the substrate
where the buoy is placed. The buoys will be visible
for a half-mile.

Implementation. NOAA will be the lead agency
responsible for implementing this activity. The FDEP
and USCG will assist in implementing this activity.

Schedule. This activity will h ave a high level of
action in year 1. It will require 9 months to complete.

Activity 4- Establish Management Responsibili-
ties. The Sanctuary SUperintendent will oversee all
aspects of zone management, and will be respon-
sible for ensuring that the first three activities(priori-
tizing zone marking, determining boundaries, and
placing buoys) are implemented. Sanctuary Manag-
ers will ensure that the public is educated about the
zones and their restrictions, that all research and
monitoring efforts are consistent with the goals of the
Sanctuary, and that all related regulations are
enforced. The superintendent will coordinated with the
FDEP, the FMFC adn Monroe County in managing
the zones and will work with the Mooring Buoy
working group to install mooring buoys in these
areas.

262






                                                                                                                Action Plans Zoning
               mimplementation NOAA, the FMFC, the FDEP, and                                                    @Akdas
                                                                                       Existing Manadefffiht
               Monroe County will have the lead responsibility for
               managing the zones                                           Federal
                                                                                 14itionalQceanicandeAtftspi*riqAd6i'n"Ift
                                                                                                          'd    Seactuary'
               oSchedule This activity will have a medium level of                   Key Largo National Ma no
               action in year 1 It will be continuous                                Looe Key National Marine Sanctuary
                                                                                 U.S. Fish and Wildlife. Service
               The research and monitoring components of this                        Crocodile Lake National Wildlife Refuge
               strategy are described in the Research and                            Great WWte Heron National Wildlife 46_f4w
               Monitoring Action Plan. The regulations for                           Key West National Wildlife Refuge
               Sanctuary Preservation Areas are included in the                      National Key Deer Refuge
               Regulatory Action Plan.                                       State
                                                                                 Department of Environmental Protection
                                                                                   Division of Recreation and Parks
                                   Strategy Z.4:                                     Bahia Honda State Park
                        Existing Management Areas                                    Curry Hammock (undesignated)
                                                                                     Fort Zachary Taylor State Historic Site
                                                                                     Indian Key State @)storlc Site
                                                                                     John Pennekamp Coral Reef State Park
               Existing Management Areas are resource manage-                        Key Largo Harrimocks-@tite 136iaolcalifta
               ment areas currently managed by other agencies and                    Lignumvitae Key State 86tan6l Site
                                                                                                           J , _
               where regulations already exist Proposed Sanctuary                       (includes Shell Key S4te Preserve)
               regulations will supplement these authorities for                     Long Key State Recied'ion Area
                                                                                                       hdarwaltOr Archaeolo
                                                                                     San Pedro State U                    pqfp
               comprehensive protection of resources Any addi-                          site                                  'tal
               tional management measures that may be developed
                                                                                     Windley Key State Gbological Site
               and implemented will be in coordination with the                    Division of Marine Resources
               agency having jurisdictional authority                                Biscayne Bay and @Card Sound Aquatic
               (Completed in Year 1)                                                    Preserve
                                                                                     Coupon Sight Aquatic Preserve
               There are currently 21 Existing Management Areas                      Lignumvitae/Indi6n KeyXquatic Preserve
               within the Sanctuary Fifteen are administered by the
               FDEP, four by the FWS, and two by NOAA
                                                                            operations and live-aboard mooring fields These
                                                                            areas will minimize impacts on sensitive habitats and
                                   Strategy Z.5:                            reduce user conflicts Special management programs
                               Special-use Areas                            (e g , monitoring, research, special-use permits and
                                                                            restoration) can be conducted without impediment to
                                                                            these areas They can be used to set aside areas for
               This strategy establishes zones to set aside areas for       specific uses such as long-term research and moni-
               scientific research and educational purposes, resto-         toring and/or minimizing the adverse environmental
               ration, monitoring, or to establish areas that confine       effects of high-impact activities
               or restrict activities such as personal watercraft           (Prionty Level Medium, Medium Level of Action in
                                                                            Year 1, 12+ Months to Complete, <50% Funding
                                                                            Available for Full Implementation)

                                Special-use Areas                           This strategy initially establishes four zones desig-
                                                                            nated for scientific research and monitoring Those
                       Zone                             Area (ha)           designated are Conch and Tennessee reefs in the
                       Conch Reef                         72                Upper and Middle Keys, and Looe Key and Eastern
                       Looe Key (Patch Ree@               34                Sambos in the Lower Keys
                       Eastern Sambos                     63
                       Tennessee Reef                     53                The Eastern Sambos Research Only area replaces
                       Total                              219               Pelican Shoals in the draft plan as a Research Only
                       Note, These four zones are for research only         area The Eastern Sambos was selected in order to
                                                                            provide a better research and monitoring site, while


                                                                                                                                263






                Action Plans: Zoning

                simultaneously lessening the public impact of limiting               mImplementation. NOAA, the FIDEP, and Monroe
                access to the reef around Pelican Shoals.                            County will be jointly responsible for implementing
                                                                                     this activity.
                Activity 1-Prioritize Zone Marking. The boundaries
                of the four research-only zones will be identified and               mSchedule. This activity will have a low level of action
                marked. Since not all zones can be marked concur-                    in year 1. It will require 12 months to complete.
                rently, marking will be prioritized. The primary factors
                that will be used to determine the order in which the                Activity 5-Determine Appropriate Zones for High
                zones will be marked will include the level of current               Impact or User-Conflict Activities. Based on the
                use, season, and relative threats to resources (e.g.,                information developed in activity 4, management
                vessel groundings). Boat-use survey data from the                    zones may be developed for high-impact and user-
                FIDEP and TNC will be used to determine use                          conflict activities.
                periods, and the availability of existing monitoring
                data will also be considered.                                        mimplementation. NOAA, the FIDEP, and Monroe
                                                                                     County will be jointly responsible for implementing
                wimplementation. NOAA will be the lead agency                        this activity.
                responsible for implementing this activity.
                                                                                     mSchedule. No action is planned for year 1. It will
                oSchedule. This activity will have a medium level of                 require 12 months to complete.
                action in year 1. It will require 6+ months to complete.
                                                                                     Activity 6-Determine Permitting Process. The
                Activity 2-Determine Boundaries On-site. Accurate                    process for issuing permits for Special-use Areas will
                boundary readings of all sites will be determined                    be determined, and the procedures for reviewing and
                using aerial photography, GPS receivers, and                         approving permit applications will be defined.
                groundtruthing. Temporary markers will be placed at
                the corner of each zone.                                             mImplementation. NOAA, the FIDEP, and Monroe
                                                                                     County will be jointly responsible for implementing
                mimplementation. NOAA will be the lead agency                        this activity.
                responsible for implementing this activity.
                                                                                     oSchedule. No action is planned for year 1. It will
                wSchedule. This activity will have a low level of action             require 12 months to complete.
                in year 1. It will require 6+ months to complete.
                                                                                     Activity 7-Establish Management Responsibili-
                Activity 3-Place Buoys Along Zone Boundaries.                        ties. The Sanctuary Superintendent will oversee all
                Boundary buoys will be placed at the corner of each                  aspects of zone management, and will be respon-
                zone based on Federal and State guidelines, with the                 sible for ensuring that activities 1 to 6 are imple-
                type of anchoring device determined by the substrate                 mented. Sanctuary Managers will ensure that the
                where the buoy is placed. The buoys will be visible                  public is educated about the zones and their restric-
                for a half-mile.                                                     tions, that all research and monitoring efforts are
                                                                                     consistent with the objectives of the strategy, and
                mimplernentation. NOAA will be the lead agency                       that all related regulations are enforced.
                responsible for implementing this activity. The FIDEP
                and USCG will assist in implementation.                              wImplementation. NOAA, the FIDEP, and Monroe
                                                                                     County will be jointly responsible for implementing
                :
                Schedule. This activity will have a medium level of                  this activity.
                ction in year 1. It will require 9 months to complete.
                                                                                     mSchedule. This activity will have a low level of action
                Activity 4-Determine High-impact Activities or                       in year 1. It will be continuous.
                User-Conflicts. This activity will determine which
                activities will have a high impact on Sanctuary                      The regulations for Special-use Areas are in-
                resources. It will also identify those activities that               cluded in the Regulatory Action Plan. A compo-
                result in major user conflicts. Zones may be devel-                  nent of this strategy is also included in the Water
                oped for these activities if appropriate.                            Ouality Action Plan.




                264







                                                                                                                                       Action Plans:Zoning

                                                                                             Table 29. AgencieslOrganizations Identified for Imple-
                   Implementation                                                            menting StrategieslActivities               Agencles/Orga
                  This section explains how the strategies in the
                  zoning plan will be implemented. The institutions
                  responsible for each activity, and those agencies                          Strategy/Activity
                  that will provide some assistance, are identified.                         Zoning
                  Zoning strategies are also ranked to indicate their
                                                                                                         V hagement'A
                                                                                             Z1X11wl1dl'1W' a                i i's P-'-
                  overall Sanctuary priority level. In addition, the
                  planned level of activity in year 1, months to                             Prioritize Zone Marking                   0  0      0          0
                  complete, funding availability, cost estimates,                            Determine Boundaries On-site              0                    0
                  staff requirements, and geographic focus of each                           Place Buoys/Signs Along Zone              0  00     0      0
                  strategy and activity are provided.                                        Boundaries
                                                                                             Establish Management Responsibilities     0  0.     400    61
                  Responsible Institutions. The Zoning Plan will be                          ,Z-,,,2 Ecoll4li if-11 *11''i
                  implemented by the coordinated efforts of Federal,                         Determine Boundaries On-site              9         0
                  State, and local agencies in cooperation with non-                         Place Buoys Along Zone Boundaries         9      00
                  profit institutions. NOAA has the lead responsibility                      Establish Management Responsibilities     0         0   0
                  for implementing the overall Program. The FDEP and                         Z3 SaftWary.Pr"orvotion'Ateasl,-'@".,,,,,,,
                  the FMFC will provide primary support by managing                          Prioritize Zone Marking                 -_0
                  several zones, and the FWS will be responsible for                         Determine Boundaries On-site              0
                  managing most Wildlife Management Areas. In                                Place Buoys Along Zone Boundaries 0              00
                  addition, the FMFC, the USCG, Monroe County, and                           Establish Management Responsibilities     0         00
                  the National Audubon Society will help implement                           Z4,E#st1 '@-'Maq!gemeiri
                                                                                                                                  _
                  selected activities. Table 29 lists the participating
                                                                                             Z.5
                  institutions and their level of responsibility for imple-
                  menting each activity.                                                     Prioritize Zone Marking                   0
                                                                                             Determine Boundaries On-site              0
                  Prioritization of Implementation. The Zoning Plan                          Place Buoys Along Zone Boundaries         0      00
                  includes five strategies from Alternative 111. The                         Determine High-impact Activities or                 00
                                                                                             User-Conflicts
                  highest-ranking strategies are Ecological Reserves                         Determine Appropriate Zones for
                  and Sanctuary Preservation Areas, which are in-                            High-impact or User-Conflict Activities   0         00
                  cluded in the high priority level, based on their                          Determine Permitting Process              0         00
                  anticipated impact on Sanctuary resources. Wildlife                        Establish Management Responsibilities 10
                  Management Areas and Existing Management Areas                                         0 Primary Role      0 Assist
                  are not included in a priority group, because they will                    '0 Lead
                  be implemented completely or partially in year 1. The                      Abbreviations: NOAA, National Oceanic and Atmospheric Administration;
                  FWS has already established 20 Wildlife Manage-                            USFWS, U.S. Fish and Wildlife Service; USCG, U.S. Coast Guard; FDEP,
                                                                                             Florida Department of Environmental Regulation; FGFWFC, Florida Game and
                  ment Areas in the Sanctuary. NOAA will be respon-                          Freshwater Fish commission; The Nature Conservancy; Nall. Audubon, Na-
                  sible for marking the remaining seven areas. The                           tional Audubon Society.
                  Special-use Area strategy is included in the high
                  priority level.                                                            Cost. The estimated cost of implementing each
                                                                                             strategy is given in Table 30. Based on the large
                  Schedule. The Existing Management Areas and                                number of buoys to be installed, Sanctuary Preserva-
                  some Wildlife Management Areas strategies will be                          tion Areas is expected to be the most costly strategy
                  completed in year 1. The process of prioritizing and                       (it is included in the $10,000 to $99,000 category for
                  marking Sanctuary Preservation Areas and Ecologi-                          capital and annual operations and maintenance
                  Cal Reserves will begin in year 1, but marking will not                    costs). Approximately 80 buoys will be required to
                  be completed until after year 1. Zone management                           completely mark these zones. Because of the size of
                  will be continuous, and an integral part of the Sanctu-                    the Ecological Reserves, marking these areas will
                  ary management process. The Special-use Areas                              also be expensive. Assuming one buoy               is installed
                                                                                                                                            10.




























                  strategy will have only a medium level of action in                        every mile, about 10 buoys will be placed in this
                  year 1.                                                                    zone. Approximately 24 signs/markers will be placed




                                                                                                                                                             265







                       Action Plans: Zoning

                       Table 30. Requirements for Implementation


                                                                                                                                   Implementation             Cost to Complete
                                                                                                                                                           I        Lo C_0TpIt!/

                                                                                                                                   a
                                                                                                              pz                   4D
                                                                                                                     0             ?
                                                                                                              .91", @'             0 (Y
                                          Strategy/Activity                                                          I.

                                          ZONING
                                                      ffe           pm@htAress
                                          Z1,                                                                                      12+"   100%                              t"__
                                          Prioritize Zone Marking                                High         High                 3      100%           NO         <10      z
                                          Determine Boundaries On-site                           High         High                 6      100%           <10        <10      Z
                                          Place Buoys/Signs Along Zone                        Medium          High                 6      100%           10-99      <10      z
                                          Boundaries

                                          Establish Management Responsibilities Low                           High                 C      100%           NO         10-99    z

                                                                                                                                   12+    <50%
                                                               R"erves,                       j_,             High                                                                 6
                                          Determine Boundaries On-site                           High         High                 6+     <50%           <10        <10      z
                                          Place Buoys Along Zone Boundaries                      High         High                 6+     <50%           10-99      <10      z
                                          Establish Management Responsibilities                  High         High                 C      100%           NO         10-99    Z
                                          WZA  Sancluar      'PIrios0vation Ams,                 k@h                               18+,                  10.94
                                                            y-
                                          Prioritize Zone Marking                                High         High                 6+     100%           NO         <10      z
                                          Determine Boundaries On-site                           High         High                 6+     <50%           <10        <10      z
                                          Place Buoys Along Zone Boundaries                      High         High                 9      <50*/O         10-99      <10      z
                                          Establish Management Responsibilities Mediuml                   Medium                   C 1    100%      1    No         10-99    z   I
                                          ZA FiditfolfManagement Aroili                                                RefertoR ulato ActionPlan
                                          Z.413-p@'961al-U0q,Ar'ei   ''as                    Wdlurr       Madurn                   12+    @'60%,_ "<110"                           a'
                                          Prioritize Zone Marking                                High     Medium                   6+     <50%           NO         <10      z
                                          Determine Boundaries On-site                           High     Medium                   6+     <50%           NO         <10      z
                                          Place Buoys Along Zone Boundaries                   Medium      Medium                   9      <50%           <10        <10      z
                                          Determine High-Impact Activities or                    Low          Low                  12     <50%           <10        <10      Z
                                          User-Conflicts
                                          Determine Appropriate Zones for                        Low          None                 12     <50%           NO         10-99    Z
                                          High-impact or User-Conflict Activities
                                          Determine Permitting Process                           Low          None                 12     <50%           NO         10-99    z
                                          Establish Management Responsibilities             I    Low          Low                  C      100*/0         NO    1    10-99 1  z
                                          Abbreviations: C, Continuous; Z, Applies to Respective Zone.
                                          +Strategies with an '* ' for Overall Sanctuary Priority Level are already existing programs and will be completed In Year 1.
                                          Note: The priority levels for activities should not be compared across strategies-they only represent the relative
                                          importance of activities contained within a strategy.


                       in the Wildlife Management Areas. Each of these                                               Key to the Bay Keys, with a few in the Upper Keys.
                       strategies is included in the $10,000 to $99,000                                              Existing Management Areas are distributed through-
                       rainge for capital and annual operations and mainte-                                          out the Sanctuary.
                       nance costs. Because the Special-use Areas strategy
                       will evolve over time, the full cost of implementation                                        Staff. Overall, the Sanctuary Superintendent (NOAA)
                       is uncertain.                                                                                 will have the lead responsibility for implementing all
                                                                                                                     zoning strategies. However, a staff biologist and
                       Geographic Focus. The activities in strategies only                                           another staff member will be directly responsible for
                       apply to their respective zones. Sanctuary Preserva-                                          identifying and marking the zones. In addition,
                       tion Areas, reflecting their purpose of protecting                                            implementation will require the participation of
                       heavily used reefs, are distributed on the Atlantic side                                      personnel from various agencies and organizations,
                       of the Keys. The Western Sambos Ecological Re-                                                and private vendors will be contracted to assist in
                       serve is located in the Lower Keys and a site will be                                         identifying and marking the various zones.
                       in the Dry Tortugas, Wildlife Management Areas are
                       concentrated in the backcountry, from Horseshoe


                       266







                                                                                                                  Action Plans:Zoning

                Contingency Plan for a Changing Budget The
                level of funding for the Sanctuary Preservation Areas          Zoning Maps
                Ecological Reserves, and Special-use Areas strate-
                gies is insufficient to fully implement these activities     The maps in this section reflect the management
                in year 1. Consequently, marking may be delayed or           zones for the Final management plan. The first map
                modified until funds are available.                          shows Ecological Reserves, Sanctuary Preservation
                                                                             Areas, Special-use Areas, and Wildlife Management
                Evaluating Program Effectiveness. NOAA will                  Areas. Next, Existing Management Areas are shown
                evaluate the effectiveness of the Zoning Program in          on a single map. Following this are maps for each of
                its five-year update of the Management Plan. For             the Ecological Reserves, Sanctuary Preservation
                example, research and monitoring on Ecological               Areas, and Special-use Areas. Finally, Wildlife
                Reserves will be used to determine the degree to             Management Areas are mapped either individually or
                which the zones enhance biological diversity and             in groups, whichever best portrays the areas.
                increase the productivity of important marine life
                species. In order to accomplish this evaluation,
                NOAA will establish an interdisciplinary team includ-
                ing managers, scientists, affected users, and environ-
                mentalists. Also, because the Reserves will be used
                as control areas to help understand the impacts of
                water quality, pollution, and various human uses,
                their value in this capacity will be evaluated as well.
                Based on the results of these studies, NOAA will
                consider expanding, modifying, or eliminating Re-
                serves. The success of the other zones will be
                evaluated at this time as well.









































                                                                                                                                    267








                             Final Zoning Plan

                                      Zone Type
                                      Ecological Reserves (a)
                                      Sanctuary preservation Areas (b)
                                      Special-use Areas (c)
                                      Wildlife Management Areas
                                      1. Sawyer Keys                14. Tidal flat south of Marvin Key
                                      2*East Harbor Key             IS. West Content Keys
                                      3. Little Mullet Key          16. East Content Keys
                                      4. Upper Harbor Key           17. Bay Keys
                                      5. Little Crane Key           I B. Lower Harbor Keys
                                      6- Boca Grande Key            19. Cayo Ague Keys
                                      7. Woman Key                  2o. Pelican Shoal
                                      Horseshoe Key                 21. Crocodile Lake
                                      Cottrell Key                  22. Rodriguez Key
                                      10. Marquesas Keys            23. Tavemier Key
                                      11. Snipe Keys                24. Snake Creek
                                      12. Mud Keys                  25. Cotton Key
                                      13. Big Mullet Key            26. Dove Key
                                                                                                                                                                                                                                       22
                                                                    27. Eastern Lake Surprise                                                                                                                 -, 41                  25
                                                                                                                                                                                                                     25
                                                                                                                                                                                                  Cheeca Rocks
                                                                                                                                                                                                                   9                      Davis
                                                                                                                                                                                                                                      Hen and
                                                                                                                                                    is       4                                                                   Alligator Reef
                                                                                                                                                                                                                          Tennessee Reef (c)
                                                                                                                                                4t
                                                                                                                                          4
                                                                                                                                      12
                                                                                                                                                                                                                Collins Paich (b)
                                                                                                                               I      W
                                                                                                                                       . )-..                                                           Sornbr- Key (b)
                                                                                                                     9
                                                                                                                  3 L2 13
                                                                                                   0          6                                                                    Newfound Harbor (b)
                                                                                                                          Western                        (c)              Looe Key (c)
                                                                                                                  7       SaMbOS (a)        1920                       Key (b)
                                                                                                            Sand Key (b)-O


                                                                                                               Rock Key (b    Eastern Dry Rocks (b)







                               @N
                                              83* 00                                                                     82-00                                                                      81*00








                  Proposed Zoning Alternative III: Existing Management Areas

                  Note: Areas less than 5n,,2 (1,800ha)
                      are shown as points.
                                                                                                                       OW,

                25W








                                                                                                    -A






                25'W                                                                                         Lj



                                                              WU=on

                                                                                                                          =KV S

                                                                                                 Ma 9XII,


                                                                                 T
                                                                                              =Rr.










                                           82,30






             Action Plans: Zoning


                 Dry Tortugas Ecological Reserve Study Area


                                                                                                82:48'W    ShliMping
                                                                                    82'52'W     24 43.5' N
                                                                                    24*43.6'N


                                                                           Mb
                                                                          0                 30          \60
                                                                                    lb                            82*46'W
                                                                                                         3
                                                                    J                    30                       24'42'N
                                                                    '@ -@'?   ...
                                                                                30
                                                                                                                 82*46'W
                                                                                    b    0.     CZ),             24*40'N
                                                                                       1             30    60
                                                                      60

                                                                                     0      r
                 @N                                                     30
                                                                   60                    91            3-0-

                                                 Coral Reef      30                      Ft.
                                                                                         Jef erson
                                                Communities                  301                        82'48'W 24*37'N
                                                                         ab0
                                                                          30
                                                               L          -60      .01
                                                                                82*54'W 24*34'N
                                                     40,


                                                            4f                                    Lobster
                                                                                                 Trapping

                                                                                                              6 Ct>






                                                                                                  10
                                                                                                     0

                                                                                                 Shfimping




                 3 Valometem

               Baffiymehy is in feet


                 Description

                 The Dry Tortugas banks are located at the westemmost extent of the Keys. The area contains diverse habitats,
                 including seagrass beds, coral reef habitats, (e.g., patch reefs, fore reefs, intermediate and deep reefs), and
                 hardbottorn areas.


                 NOAA did not finalize the establishment of the Dry Tortugas ER in the management plan and regulations.
                 Rather, NOAA will postpone final establishment of the boundary of the Dry Tortugas ER until it undertakes a
                 process, in coordination with the National Park Service to identify an appropriate final boundary for the Reserve.
                 To identify the final boundary, NOAA and the National Park Service will use the information gathered as part of
                 the public review of the draft management plan, and hold workshops with users, agency representatives,
                 environmental organizations and the public. Prior to making a final decision, the proposed final boundary of the
                 Dry Tortugas ER will be published for public comment.






             270






                                                                          Action Plans:Zoning


            Ecological Reserve:       Western Sambos





                                  Woo'                                 81'40.8'W 24'33.7'N



                                     81'43.1'W 24'33.5-N
                                                   0
                                                   cis     Cis
                                                    '418



                                                    Is


                                                                is

                                                   18             30
                                                 1      @   12 1'100 18
                                                 0    030
                                                 r3O   is
                                                 ,(30  IZ30
                                                 18 @ 30
                                                 @Wo is
                                                 9--Z        01

                                                 I
                                                          30
                                                  e7i           30
                                                 18         301

                                                            0


                                           3   30
                                                 155,

                                                             @8
                                           3d

                                             Is        301-
                                                            81 '41.9'W 24*28.7'N
                                 81 *43.7'W 24'28.5'N                         3 KIIOMMM
            @N                                                              Bathyrnetry is in fimt

             Description

             The Western Sambos Ecological Reserve contains the greatest habitat diversity in the Lower Keys. Significant
             coral features include spur-and-groove formations, bank reefs, and nearshore patch reefs.

             This reserve is rectangular, extending from the northern limit at the U.S. Naval Air Station property on Boca
             Chica seaward to the southern limit at the 60-foot depth contour. At the air station, the Ecological Reserve is
             approximately 2nm (4km) wide; at the southern edge it is approximately 1.5nm (2.8 km) wide. The area
             covered totals approximately 9nM2, or about 3,000ha.

             Some current users, including lobster fishermen, tropical marine-life collectors, and recreational and commer-
             cial fishermen, will be displaced to other areas. Some spearfishing activities will also be displaced. Areas
             outside the Ecological Reserve will be im pacted some by the increased pressure from the displaced users.






                                                                                       271






              Action Plans: Zoning


                  Sanctuary Preservation Area: Alligator Reef












                                                        80*37.05'W 24*51.1@@

                                                                                    18
                                                                                        30


                                                                                                 60



                                                                          *4
                                                                                 ht
                                                                                                80*36.8W 24*50.8'N


                               80*37.6'W 24*50.7'N                             . ..........



                  @N                                              80*37.3'W 24*50.4'N                                    SW Matm
                                                                                                                     13athymetry is In feet


                  Description

                  Alligator Reef is a small bank reef with some transitional reef features. It is located between the shallow reefs of
                  the Upper Keys and the deeper, drowned reefs of the Middle Keys, and lies approximately 3.5 nautical miles (7km)
                  southeast of Upper Matecumbe Key.

                  The Alligator Reef Sanctuary Preservation Area (SPA) encompasses approximately 0.2nM2, or about 60ha. It
                  protects the drowned spur-and-groove system, reef crest, and a portion of the northeast rubble ridge.

                  Alligator Reef is easily accessible and mooring buoys are currently in place. The reef is heavily used*for a variety
                  of recreational and commercial purposes. Diving and snorkeling activities focus on the spur-and-groove system
                  and reef crest. Commercial activities occur in the rubble areas and surrounding flats and include tropical fish
                  collecting and ballyhoo fishing. The boundary separates these activities with minimal displacement of any user
                  group. However, catch and release fishing by trolling is allowed in this SPA. Because of easy accessibility and
                  heavy use, the area has poor research potential, except for comparison with other reefs.




              272







                                                                                                                       Action Plans:Zoning



                    Sanctuary Preservation Area: Carysfort/South Carysfort Reef



                                                                                       80*12.7'W 25*14.0'N



                                                                                               121P                       80:12 2'w
                                                                                                    1                     25 13:6'N
                                                                                 I r__           3
                                                                                                LY    30 1-1

                                                                      18

                                                                                                    30
                                                                        Carysfort Reef Ughtl


                                                                                                    J

                                                                                              18
                                                                                        3./

                                                    1P         12
                                                 12                   1.3
                                                                           42

                                               6



                                                             3-1
                                                                    30
                     @N
                                                                                      80'12.8'W 25*11.9'N                  Bathyrnetry is in feet
                     Description

                     Carysfort Reef i-s one of the best developed reef systems in the Keys, and contains a wide variety of reef features
                     including well-developed stands of elkhorn coral. Reef development is enhanced by the water quality, tempera-
                     ture, and salinities of the Gulf Stream, which sweeps close to the seaward edge of the reef. The historic Carysfort
                     lighthouse is located near the center of this Sanctuary Preservation Area (SPA), which is approximately 5.6nim
                     (10.5km) off the coast of Key Largo.

                     Carysfort/South Carysfort Reef is the largest of the SPAs, and encompasses approximately 1.5nM2, or about
                     515ha. It is rectangular, and extends seaward of the main reef to the first trough. The SPA protects the rubble
                     area behind the main reef, as well as some adjacent patch reefs.

                     Carysfort/South Carysfort Reef is accessible from the Ocean Re    ef community and from Card Sound through
                     Angelfish Creek. Commercial diving and recreational fishing occur in the area, but there appears to be little
                     conflict among users. Some lobster fishermen will be displaced to the surrounding areas. The Carysfort/South
                     Carysfort Reef SPA has high research potential and is a good candidate for use as a control area.




                                                                                                                                          273






                Action Plans: Zoning


                    Sanctuary Preservation Area: Cheeca Rocks















                                                                                         80-37.6'W  24-54.6'N


                                                     80'37.8'W 24'54.5'N





                                                                                          3



                                                      80*37.7'W 24'54.2'N                  .6-      80'37.5'W 24*54.3- N













                                                                                                                                           NO Matm

                                                                                                                                       Bathyrnstry is in feet


                    Description

                    The Cheeca Rocks Sanctuary Preservation Area (SPA) is the only area in the Middle Keys designated to protect
                    inshore patch reefs. Cheeca Rocks is one of the smallest SPAs, encompassing approximately 0.05nM2, or about
                    16ha. The area is approximately 0.5nm (1 km) southeast of Upper Matecumbe Key.

                    Cheeca Rocks is easily accessible. The reefs are heavily used, especially by visitors to Cheeca Lodge. Primary
                    uses include diving, snorkeling, and education activities. A few local tropical fish collectors use the area and will
                    be displaced by the SPA, but there are no major consumptive users. The potential for research is poor due to
                    heavy use.









               274






                                                                                                                            Action Plans:Zoning


                     Sanctuary Preservation Area: Coff ins Patch




                                                            A
                                             4.0




                                                                                               18      80*57.7'W 24*41.5'N







                                                                               r

                                                                  18            12


                                                                                                                   80'57.5'W 24*41.1'N
                                  80*58.6'W 24*41.1'N



                                                                                  18\






                                                                             18


                                                80*58AW 24*40.6'N

                                                                                                             Cothns Patch Light0
                       @N                                                                                                          500 Mem
                                                                                                                                Bathyrnstry is in feet


                       Description'

                       Although Coffins Patch is fairly close to shore, it has the characteristics of an offshore patch reef system. The
                       reef includes rare pillar coral and other coral species unique to the Keys. The Sanctuary Preservation Area
                       (SPA) is approximately 4nm (7km) southeast of Key Colony Beach.

                       The SPA is rectangular and covers an area of approximately 0.4nM2, or about 147ha. It includes the entire
                       patch reef and some of the rubble field behind the main reef. Other inshore and offshore patch reefs in the
                       surrounding area remain open.

                       The area is easily accessible, but no mooring buoys are currently in place. This is a low-use area visited by
                       divers, recreational fishermen, treasure hunters, and souvenir collectors. Some tropical fish collecting occurs
                       within and around the reef. Little, if any, displacement of users will occur since other patch reefs in the area
                       will remain open for use.





                                                                                                                                                275






              Action Plans: Zoning


                  Sanctuary Preservation Area: Conch Reef





                                                                         L
                                                                                  80'V.4'W 24'57.5'N

                                                                           12  1


                                                                  6         18         80'27.3'W 24'57.4'N


                                                                r
                                                                               30






                                                             I        r
                                                                                                           F


                                               N,
                                      80*27.6'W 2Z'96.
                                                     9>
                                                                                              60     1000X
                                          80*27.7'W 24*57.0'N












                                                                                                                    500 Metem
                                                                                                                Bathyrnstry Is In feet


                  Description

                  Conch Reef has one of the best developed reef wall systems in the Keys. It has good conch habitat and contains
                  well-developed stands of rare pillar coral. The Sanctuary Preservation Area (SPA) is located approximately 5nm
                  (9km) south of Tavernier Key.

                  The SPA is rectangular and covers and area of approximately 0.07nM2,  or about 23ha. It runs from the landward
                  boundary to an approximate depth of 45 feet, and includes some of the reef wall. Catch and release fishing by
                  trolling will be allowed in this SPA. The SPA is adjacent to a Special-use Area designated as "Research Only."

                  Conch Reef is easily accessible from Key Largo and is heavily used by divers, with some tropical fish collecting in
                  the rubble zone. There is little user conflict because lobster fishermen operate away from the area of heavy diving
                  activity. Recreational fishermen troll the reef wall in 160 to 180 feet of water.






              276






                                                                                                                                          Action Plans:Zoning


                       Sanctuary Preservation Area: Davis Reef












                                                                                                   80-30.3'W 24-55.6'N



                                                                                                  L112-

                                                                                                        / 30(           80'30.0' 24'55.3'N
                                           80*307W 24'65.4'N



                                                                                                                60


                                                                                                     ..... ....


                                                                        80'30.4'W 24*55.1>-

                         @N                                                                                                                     SW Meters
                                                                                                                                           Sathyrnstry Is In fest


                         Description

                         Davis Reef is a good example of a low-relief transitional reef containing well-developed gorgonlan coral. The
                         Sanctuary Preservation Area (SPA) is located approximately 4nm (7km) southeast of Plantation Key.

                         The SPA is a small, rectangular area covering approximately 0.2nM2, or about 58 he. Its presence will help
                         protect the area's unique deepwater corals.

                         Davis Reef is easily accessible and heavily used. The area attracts a considerable number of divers from
                         Islamorada, and is also used by recreational fishermen. There is some tropical fish collecting in the rubble areas,
                         and commercial fishing is conducted offshore. There will be little displacement of current users. Because the
                         area is heavily used, it has poor potential for research activities.
                                                                                                               /",60


                                                                                                                                                                277






                Action Plans: Zoning


                    Sanctuary Preservation Area: Dry Rocks, Grecian Rocks







                                                                                            Dry Rocks

                                                                                               80*17.9'W 25*7.6'N


                                                                      80*18.1'W 25'7_@@N               80*17.7'W 25*7.4- N


                                                                                                  80*17.8'W 25*7.3'N






                                                                                      80*18.2'W 25*6.9'N
                                                80*18.6'W 25*6.8'N



                                                                         12
                                                                              6
                                                                         @4      1, t         80'17.9'W 25*6.6'N

                                        Grecian Rocks





                                                 80*18.6'W 25*6.2- N

                                                                            80*18.5'W 25"6.1'N
                    @N
                                                                                                                                  Bathymetry is in fM


                    Description

                    Dry Rocks and Grecian Rocks lie within the boundaries of the Key Largo National Marine Sanctuary. They both
                    contain good stands of elkhorn coral, and Dry Rocks contains the statue "Christ of the Deep." The two Sanctuary
                    Preservation Areas (SPAs) are ringed with mooring buoys.

                    Both SPAs are located seaward of White Banks and extend to an approximate depth of 30 feet. Dry Rocks SPA
                    covers an area of approximately 0.05nM2,         or about 16ha. Grecian Rocks SPA covers an area of approximately
                    0.3nm2, or about 107ha. Both areas capture the main reef features of the area.

                    Dry Rocks and Grecian Rocks both have excellent accessibility and host a wide range of user activities including
                    commercial diving, snorkeling, and fishing. The presence of the SPAs helps alleviate the extensive conflict that
                    currently exist between fishermen and divers, with minimal displacement of either user group. Both areas have
                    been degraded by heavy use, and warrant further protection. The SPAs will be good candidates for the applica-
                    tion of carrying capacities and other research efforts.




                278







                                                                                                                                                  Action Plans: Zoning



                       Sanctuary Preservation Area: Eastern Dry Rocks, Rock Key, Sand Key









                                                                                                                 Eastern Dry Rocks

                                                                                                                                                81"50.5'W
                                                                                                                                                24'27.9' N
                                                                                                                                       L & - -
                          81'52.3'W                                                                                              12             4"
                          24*27.6'N                                                                                    81*50.8'W
                                 I 1@                                                                                  24*27.7'N
                                    30'_                             81-53.1- W
                                                                     24*27.6'N                                                                      81 *50.4'W
                                                                                                   81 *51.3'W                                       24*27.7'N
                                                                                                   24'jV.5'N
                                            12
                                                                                   81:51.6: wl
                                                                                   24 27.5 N
                                 r                                                                                                   81 *50.6'W
                                                            is                                             1     NY-                  24*27.5'N
                               18

                              '30     IZ
                                   C
                                        Y                                                81:51.5'W         60--  24-27.3- N
                                    L                                                   24 27.2' N
                                   NL
                                    Sand Key Light-J!             -81:53.1: W                              Rock Key
                          81*52.3'W                                 24 27.0 N
                          24*27.0'N

                                                      Sand Key


                          @N                                                                                                                               SW Medm
                                                                                                                                                       Bathyrnstry is in feet
                          Description

                          These three areas contain a concentration of important bank reef habitats within a small area. The three Sanctu-
                          ary Preservation Areas (SPAs) are located approximately 5nm (1 Okm) southwest of Key West.

                          The largest of the three SPAs is Sand Key. The boundary for the Sand Key SPA extends seaward to between
                          the 30- and 60-foot depth contour, but portions of the rubble ridge will be open to existing activities. Catch and
                          release fishing by trolling is allowed in this SPA. The approximate area of this SPA is 0.5nM2, or about 150ha.

                          At Rock Key and Eastern Dry Rocks, two small SPAs have been created using the reef crest and the 30-foot
                          depth contour as boundaries. A depth of 4 feet along the reef flat marks the east and west boundaries of these
                          two smaller SPAs. Both Rock Key and Eastern Dry Rocks have areas of approximately 0.1 nM2, or about 30ha.
                                                                                                                                 L




                                                                                                                 31































                          The three reefs are easily accessible from Key West and are of high economic value. The area is considered
                          very important for charter boat fishing, sportfishing, diving and lobster fishing. As a result, there are high user
                          conflicts that SPAs will help to alleviate.




                                                                                                                                                                         279







                  Action Plans: Zoning


                      Sanctuary Preservation Area: French Reef













                                               80*2112 W 25*2.3'N


                                                              N

                                                                                          -1    1A                86-20.6'W 25*2.2'N
                                                                                          r     i i
                                                                                  / 4



                                                                       L                    31)






                                                                                   80"1.0'W 25*1.8'N





                        @N
                                                                                                                                       BathyrneVy is in f"t


                      Description

                      French Reef contains many caves and arches within its spur-and-groove system. The Sanctuary Preservation
                      Area (SPA) is north of Molasses Reef, approximately 6nm (11 km) southeast of Key Largo.

                      The SPA is triangular and covers an area of approximately O.1nM2, or about 37ha. It includes an area from the
                      rubble field to the 60-foot depth contour, and captures the caves and arches, while many of the lobster fishermen
                      use the surrounding areas. The area's research potential is             poor because of its easy access.











                  280







                                                                                                                                     Action Plans:Zoning


                      Sanctuary Preservation Area: Hen and Chickens












                                                                         80'32.9'W 24*56.4- N








                                                                                                                   80'32.7'W 24*56.2'N






                                                                                                           18
                                                                                            21


                                            80*33.3'W 24*55.9'N


                                                                                                   18






                                                                                     80*33.1'W 24*55.7'N
                        @N                                                                                                               5W Mdem
                                                                                                                                     Bathymetry Is in I"


                       Description

                       Hen and Chickens is a unique mid-channel patch reef complex with growths of star coral that are beginning to
                       show signs of damage and decline. The Sanctuary Preservation Area (SPA) is approximately 2nm (4km) off of
                       Plantation Key, in the middle of Hawk Channel.

                       The SPA is rectangular and covers approximately 0.2nml, or about 60ha. Its boundary encompasses the patch
                       reef complex and the star coral.

                       Hen and Chickens is easily accessible, and currently has mooring buoys installed. The area is a high-use, low-
                       conflict zone, except during the sport lobster season when it is heavily impacted and user conflicts may be
                       numerous.











                                                                                                                                                          281






              Action Plans: Zoning


                  Sanctuary Preservation Area: Looe Key








                                                                                          81*24.2'W 24*33.2'@


                                    81*24.8'W 24"33.1'N-'--



                                                    V/

                                                                                     'N@
                                                                @!7
                                                                                                   12





                                                                                    r



                                                                                                   81 *24.08'W 24*32.6'N





                                         81*24.7'W 24*32.5'N



                                                                   -100-
                    @N                                                                                               600 metem
                                                                                                                 Bathyrnstry Is In feet


                  Description

                  The ecological importance of Looe Key has been established through the creation of Looe Key National Marine
                  Sanctuary. The Sanctuary Preservation Area (SPA) expands the current core area of the Looe Key National
                  Marine Sanctuary. The expanded area includes some of the transitional and intermediate reef features on the
                  seaward side and a larger portion of the seagrass community and rubble field on the landward side of the reef. It
                  is located approximately 5.5nm (1 Okm) south of Ramrod Key and about 8nm (1 5km) southwest of Bahia Honda
                  State Park.


                  The SPA is rectangular and extends seaward to the approximate 45-foot depth contour. It covers approximately
                  0.3nM2, or about 115ha. Increasing the size of the protected area around Looe Key benefits the entire reef
                  habitat and will have little effect on current users because of existing Sanctuary regulations.






              282







                                                                                                                                    Action Plans:Zoning


                    Sanctuary Preservation Area: Molasses Reef











                                                                         80'22.4'W 25*0.9'


                                                                                          INIM,

                                                                  r


                                                                            X
                                          80*22.8'W 25,o.r                  Reoe'Eg                                        80'22.0'W 25'0.7'N
                                                                                                   r
                                                                                                        30


                                                                                     r



                                                                                                          60








                                               80*22.8'W 25*0.2'N         100




                                                                                                                                          ISM motors
                      @N                                                                                                             8athymetry is in f"t

                      Description

                      Molasses Reef contains a significant number of boulder corals, and has a well-developed spur-and-groove
                      system that includes a deep wall. The Sanctuary Preservation Area (SPA) is located approximately 6nm (11 km)
                      southeast of Key Largo, near Rock Harbor.

                      The SPA includes a portion of the rubble field and extends to the 60-foot depth contour to protect the spur-and-
                      groove system, the reef crest, and the deep wall. It covers an area of approximately 0.3nm2, or about 90ha.

                      Molasses Reef is highly accessible, and is the most heavily visited reef in the Upper Keys for diving. Establishing
                      the SPA reduces conflicts between recreational hook-and-line fishermen and divers.










                                                                                                                                                        283







               Action Plans: Zoning


                    Sanctuary Preservation Area: Newfound Harbor Key














                                                                                           81        24*37.1 IN





                                                 ------                r6\
                                      81'23.9'W 24'36.9'N                       31 /1
                                                                                     r

                                                                         \r
                                                                                                81'23.8'W 24*36.7'N

                                                                              r



                                          81'23.3'W 24'36.6- N



                    @N                                                                                                  500 Met"
                                                                                                                    Bathymetry Is in feet


                    Description

                    Newfound Harbor Key contains a series of nearshore patch reefs close to Newfound Harbor. The Sanctuary
                    Preservation Area (SPA) is the only inshore patch reef complex protected in the Lower Keys. It is located less
                    than 0.5nm (<1 km) from the entrance to Newfound Harbor..

                    The SPA is rectangular and centered on two. patch reefs along the shoreline near Newfound Harbor. The sea-
                    ward boundary is the 18-foot depth contour and the landward boundary will allow boats and other watercraft
                    sufficient passage along the shore. It covers an area of approximately 0.1 nM2, or about 40ha.

                    Newfound Harbor has good accessibility. Although a total number of users is small, it is a high-use area for bait
                    fishing, spearfishing, and environmental education activities. Other nearshore patch reefs in the area will remain
                    open to users.






                284







                                                                                                                    Action Plans:Zoning


                  Sanctuary Preservation Area: Sombrero Key










                                                               81 *06.8W 24*37.9'N



                                                          12


                                           Sombrero                -'X    I
                                           Key Light

                                                                    /12
                                                                _Z@11 10
                                                                   -30



                                                                                                      81*06.1'W 24*37.4-N








                                81 *07.0'W 24*37.2'N










                                                                                                                          5W matem
                     @N                                                                                                Bathymetry Is in Imt

                    Description

                    Sombrero Key has a spur-and-groove reef formation with stands of elkhom coral. The Sanctuary Preservation
                    Area (SPA) is located approximately 3.5nm (Skm) seaward of Boot Key. The historic Sombrero Key Light is in
                    the northern corner of this triangular SPA.

                    The SPA covers an area of approximately 0.2nM2, or about 73ha. It captures the reef crest, spur-and-groove
                    system, and some of the rubble field.

                    Diving and snorkeling currently occurs in and around this high-use area. Most commercial fishing occurs
                    seaward on the reef, while most recreational fishing occurs to the back and at the sides of this site. Catch and
                    release fishing by trolling will be allow ed in this SPA. Current conflicts between divers and recreational fisher-
                                                               81 \*068W













                    men will be addressed by the proposed boundaries. Existing users will not be dramatically displaced, and
                    conflicts between user groups will be reduced.





                                                                                                                                       285







                  Action Plans: Zoning


                     Sanctuary Preservation Area: The Elbow





                                                                                       80*15.4'W 25*9.1'N







                                                                                   30    1                 30              80*15.1'W 25*8.9'N


                                                       80'15.7'W 25*8.8'N
                                                                                            Elbow              t
                                                                                            'R                        /60
                                                                                            LO
                                                                                                t
                                                                                            L   t







                                                                                                            12
                                                                                                              16










                                                                                               60







                                                                               80'15
                    @N                                                              TW 25*8.1'N                                    SOO Matem
                                                                                                                                Bathyrnetry is in 11"


                      Description

                      The Elbow is a bank reef with a well-defined spur-and-groove system and healthy deepwater corals. The
                      Sanctuary Preservation Area (SPA) is located approximately 5.5nm (1 Okm) southeast of Key Largo.

                      The SPA is irregularly shaped and covers approximately 0.3nM2, or about 90ha. It includes the reef crest,
                      rubble horns, and deepwater corals. Its seaward boundary extends to the 30-foot depth contour.

                      Lobster fishermen and ballyhoo fishermen use the reef and the surrounding area. There is significant recre-
                      ational fishing adjacent to, and seaward of, the reef. The level of conflict between users is currently minimal
                      because the area is not heavily used.








                  286







                                                                                                                                           Action Plans: Zoning


                      Special-use Area:                           Conch Reef (Research Only)





                                                                                          L/6

                                                                                             12


                                                                                  6           18              80*27.4'W 24*57.5'N

                                                                               r
                                                                                                 30




                                                         Conch Reef
                                                         Sanctus
                                                         Press    on
                                                         Area






                                                                                     80*27.5'W
                                                           N,                        24*57.2'N
                                                                                                                 -60                   80*27.0'W 24*57.0'N


                                                                                                     F       X       80*27.2'W 24*56.8'N
                        @N                                                                                                                    SM Mateft
                                                                                                                                          Uthyrnetry Is In feet


                        Description

                        Conch Reef contains stands of rare pillar coraland provides excellent habitat for conch. The seaward side has
                        one of the best developed reef wall systems in the keys. Octocorals and basket sponges are also present at this
                        site. This Special-use Area is located approximately 5nm (9km) southeast of Tavernier and is adjacent to the
                        Conch Reef Sanctuary Preservation Area (SPA).

                        The Special-use Area is designated as "Research Only," and will provide an area for the Aquarius underwater
                        laboratory to conduct research. The boundary of the Research Only area approximates the current designated
                         no anchor" zone for the Aquarius underwater laboratory. There is heavy diving activity landward in the adjacent
                        SPA, and recreational fishermen troll the reef wall in 160 to 180 feet of water.









                                                                                                                                                                 287






                 Action Plans: Zoning


                    Special-use Area: Eastern Sarnbos (Research Only)

                                                                   v@





                                                                A


















                                                                                                                 81*39.7'W 24*29.8'N

                                                                                        12



                                                        81*40.02W 24*29.7'N

                                                                                              3





                                                                                                                        81*39.6'W 24*29.5'N


                                                                                                      30


                                                                                    81'39.3'W
                                                                                    24'29.4'N         60
                      @N                                                                                                               ftthymetry is in feet

                      Description

                      Eastern Sambos is a spur-and-groove bank reef with excellent coral formations. It is located in a region of the
                      Keys that currently has some of the best remaining water quality along the reef tract. It is not heavily used by
                      divers and will serve as an excellent shallow reef community to compare with Tennessee Reef that in contrast is
                      located in an area of poor water quality, opposite of Florida Bay. By scientifically comparing these sites, re-
                      searchers will be able to separate impacts from overuse with those from poor water quality.












                  288







                                                                                                                 Action Plans:Zoning


                  Special-use Area: Looe Key (Research Only)















                                                                                            81*23.3'W 24*34.1'N





                                                                                       112    T
                                    81 '23.9'W 24'34.0? N                                         81*23.2'W 24*34.0'N



                                                 __12


                                         81*23.8'W 24*33.8'N













                                                                                                                       5W "M
                    @N                                                                                             Bathyrnetry Is in f"t

                   Description

                   The Looe Key Special-use Area lies inshore of the core area of the current Looe Key National Marine Sanctuary,
                   approximately 5.5nm (1 Okm) south of Ramrod Key and about 8nm (11 5km) southwest of Bahia Honda State Park.
                   The zone is rectangular and is centered on the mid-channel patch reefs in the northeast comer of the Sanctuary.
                   It covers an area of approximately 0. 1 nM2, or about 34ha.

                   The zone is designated as "Research Only," and is the only offshore patch reef complex protected in the Lower
                   Keys. Because the area is already protected as a national marine sanctuary, the Special-use Area will have very
                   little impact on current users and is a good choice for contirfued research activities.









                                                                                                                                   289







                Action Plans: Zoning


                     Special-use Area: Tennessee Reef (Research Only)




                                                           A












                                                                          80'45.1'W  24*46.2'N


                                                                                              N


                                                                                    L12-    r              80'44.9'W 24'46.0- N
                                      80*45.6'W 24*45.9'N                                    .3ar'-

                                                                             oo,

                                                                               r






                                                                       8045.4'W 24-45.7'N


                       @N                                                                                                 Bathyrnetry is in fast

                     Description

                     Tennessee Reef is a coral reef habitat containing a deep spur-and-groove system. It contains unique deepwater,
                     slow-growth corals and sponges, and is located approximately 4nm (7km) south of Long Key. This Special-use
                     Area is designated as "Research Only."

                     The area is rectangular and covers.0.2nM2, or about 53ha. It extends seaward to the 30-foot depth contour and
                     contains the drowned spur-and-groove system and the unique deepwater corals.

                     Tennessee reef is a low-use area since it is relatively inaccessible and contains no mooring buoys. While divers
                     occasionally visit the area, it is not a prime dive spot. Fishing and lobster trapping occurs inshore from the reef.
                     The area has good potential as a research site because of its relative inaccessibility and low level of use. Its
                     location in the path of waters from the Florida Bay will give scientists an excellent site to compare with a
                     "Research Only" site that has low use, but is located in an area with good water quality.





                 290







                                                                                                                  Action Plans:Zoning


                  Wildlife Management Area: Bay Keys

                                                                                                      Boundaries shown are
                                                                                                                   approximate.











                   Type of Restriction

                       No-motorZone

                       Idle-speed Only/No Wake Zone

                   E3 Low-water Line
                   Bathymetry is in feet.



                                                                                          3
                                                                                              3

                                                                            *%




                   @N                                                                                                  SM Met@

                   Description

                   The Bay Keys are a series of islands approximately seven kilometers north of Key West. Aside from the
                   Northwest Bay Key, the islands are unspoiled and largely composed of red mangroves. The largest key
                   harbors great white herons and a considerable number of tricolored and little blue herons. Restriction: A 300-
                   foot (91m) no-motor zone is created around one island and idle-speed only1no wake zones are estab-
                   lished in tidal creeks. Disturbance to nesting and roosting birds is decreased by the no-motor and idle-speed
                   zones without impact to boaters.








                                                                                                                                    291







            Action Plans: Zoning


               Wildlife Management Areas: Boca Grande Key, Woman Key
                                                          Type of Restriction      Boundaries shown are
                                                             Beach Closed                  approximate.

                                                          t:j Low Water Line
                                                          Bathymetry Is In feet.










                              Boca Grande Key


                     @,6 12



                                                                          3
                                                                                          n   V
                      /6

                                            3

                                            &. . ........


                       12")
                                                                                       Woman Key


               @N                                                                                 SW Motors
               Description
               Boca Grande Key is located about 22 kilometers west of Key West. It has an extensive, narrow, low-energy
               beach on the west and southwest side, which extends almost to the northern tip of the island. There is a
               relatively large interior pond on the shallow wash flats behind the dunes on the southwest side. Many species
               of birds use this area, including some that are listed as federally endangered and threatened. Restriction:
               Half of the beach Is closed. (Beach above mean high tide Is closed by the U.S. Department of the
               Interior). The most heavily used public-use area is still open.
               Woman Key is located about 21 kilometers west of Key West. The island contains an extensive south-facing,
               low-energy beach and associated dunes. Shallow-water flats (hardbottom) border most of the beach. Logger-
               head turtles nest on the beach and dunes. Several species of wading birds also nest in the area and a large
               number of shorebirds use the sand spits on the southeast side of the island. Restriction: Half of the beach
               and sand spit on the southeast side Is closed. (Beach above mean high tide /a closed by the U.S.
               Department of the Interior). The remainder of the beach remains open to the public.



             292






                                                                                                                    Action Plans: Zoning


                  Wildlife Management Area: Cayo Agua Keys

                                                                                                        Boundaries shown are
                                                                                                                    approximate.










                    Type of Restriction

                        Idle Speed Only/No Wake Zone

                    El Low water Line
                    Bathymetry Is in feet.









                    @N                                                                                                     250 MWem

                    Description

                    This series of islands located approximately 10 kilometers northeast of Key West, is dissected by tidal creeks.
                    All of the Cayo Agua islands consist largely of red mangroves and are used by great white herons and
                    ospreys. Restriction: Idle-speed only1no wake zones are created in each of the navigable tidal creeks.
                    No major impacts on users are expected.










                                                                                                                                      293






               Action Pians: Zoning


                   Wildlife Management Areas: Cotton Key, Snake Creek

                                                                                                        Boundaries shown are
                                                                                                                    approximate.






                                                                                                 &J


                   Type of Restriction

                      No Motor Zone

                   El Low water Line                                                                 3
                   Bathyrnetry is in feet.
                                                                                d5    6
                                                                                                                   3







                                                                                                 3
                                                                                                     6
                                                                                                             12
                                                      6
                               Cotton Key
                                                             3,
                                                                                                     DI





                                                                               Snake Creek

                                                                                   Z'

                   @N


                   Description

                   Cotton Key is located in the Upper Keys, off the northeastern tip of Upper Matecumbe Key. It is and area of
                   very shallow flats that are heavily used by a variety of birds as well as bonefish and other desirable fish
                   species. There are also several small mangrove islands that serve as nesting sites for a variety of birds,
                   including pelicans, cormorants, and at least four species of herons. Cotton Key is also a preferred roost for
                   magnificent frigatebirds. Restriction: There is a no-motor zone on the tidal flat. Shallow-water boats and
                   PWC have modified access to the area.


                   Snake Creek is located in the Upper Keys, east of Windley Key. It is an area of very shallow flats that are
                   heavily used by a variety of birds, as well as bonefish and other desirable fish species. Restriction: There is
                   a no-motor zone on the tidal flat. Shallow water boats and PWC have modified access to the area.





               294







                                                                                                                  Action Plans:Zoning



                   Wildlife Management Areas:                  Cottrell Key, Little Mullet Key, Big Mullet Key
                                                                        Type of Restriction            Boundaries shown are
                                                                            No Access Buffer                      approximate.

                                                                            No Motor Zone
                                                          4
                                                                        Bathymetry is in feet.
                                           % I' 1;






                                                                                                           Cottrell Key




                                                               6

                                                              3





                                                                 3












                                                    Little Mullet Key

                                                                                                  Big Mullet Key
                                           (D
                   @N                                                                                                       5W Metem
                   Description

                   Little Mullet Key is a small mangrove located about 15 kilometers northwest of Key West. Restriction: A 300-
                   foot (91m) no-access buffer zone is created around the Island. Vessel traffic is prevented from approach-
                   ing the island.

                   Big Mullet Key is located about 15 kilometers northwest of Key West. The island harbors nesting great white
                   herons and a variety of other wading birds. Mangrove terrapins are also present. Restriction: A 300-foot
                   (9 1m) no-motor zone Is created around the Island.

                   Cottrell Key is located about 15 kilometers northwest of Key West. It contains a variety of wading birds, and
                   mangrove terrapins. Restriction: A 300-foot (91m) no-motor zone is created around the Island. Boat
                   traffic has modified access to the island




                                                                                                                                    295






              Action Plans: Zoning


                  Wildlife Management Area: Crocodile Lake



                                                                           C6
                                                                                    6                            A11%,








                                                                                                                M

                  Type of Restriction

                     No Access Buffer

                  R Low Water Line

                  Bathymetry is in feet.

                  Boundaries shown are
                  approximate.
                                                                                                           3
















                                                      6
                                                               '47
                                                      -3
                                                                                          3

                  @N                                                                                              I Kibmmer

                  Description

                  Crocodile Lake is located in the Upper Keys, along the eastern shore of Card Sound. This area has the most
                  extensive stands of tropical hardwood hammocks in the United States. It harbors a number of endangered
                  and threatened species, including the American crocodile and the West Indian manatee. Restriction: There is
                  a 100-foot (30m) no-access buffer zone along the shoreline betwe'en March 1 and October 1. Motorized
                  vessels are prevented from approaching the shoreline. Jewfish and Steamboat Creeks remain open to
                  motorized vessel traffic.











              296






                                                                                                                  Action Plans:Zoning



                   Wildlife Management Areas: East Harbor Key, Lower Harbor Keys

                                                                                                       Boundaries shown are
                                                                                                                  approximate.









                                                   East Harbor Key
                     Type of Restriction                                         Ll

                        No Access Buffer                                                    6
                                                                                    6
                        Idle Speed Only/No Wake Zone
                                                             6   3        3
                     El Low Water Une                            3
                     Bathyrnetry is in feet.




                                               Lower Harbor Keys

















                     @N

                     Description

                     The East Harbor Keys are located approximately 15 kilometers northeast of Key West. All but one of the keys
                     are mangrove islands. The islands are heavily used by boaters, especially on weekends. Restriction: A 300-
                     foot (91m) no-access buffer zone is established around the northern most Island. Boaters are displaced
                     from the no-access zone.

                     The Lower Harbor Keys lie approximately 12 kilometers northeast of Key West, are dissected by tidal creeks,
                     lack dry land, and are composed primarily of red mangroves. Most of the islands are accessible by navigable
                     channels. The islands contain nesting gre at white herons, double-crested cormorants, and osprey. A variety of
                     other wading birds use the islands as well. Boat traffic is sometimes heavy on weekends. Restriction: Idle-
                     speed only1no wake zones are created In selected tidal creeks. This restriction will reduce the impact of boat
                     traffic.                                                                                                         I


                                                                                                                                    297






          Action Plans: Zoning


             Wildlife Management Area: Eastern Lake Surprise

                                                                              Boundaries shown are
                                                                                        approximate.



                                                                                               W.8mons,

                                                                                              H





                                                       H



                                                   SH


                                                SH                      6
             Type of Restriction

                Idle Speed Only/No Wake Zone
             E3 Low Water Line                                                          0 if
             Bathymetry is in feet.


                                                    SH       Lake Surprise

                                            SH




                   Blackwater Sound                                SH









                   Bathyrnetr
                      Shor Y, is in feet
             @N    SH -   aine                                                             Sw Menem

             Description

             Lake Surprise is located in the north Key Largo area. Currently, a man-made causeway composed of fill that
             serves as the base for Highway 1 (US) spans Lake Surprise and cuts it roughly in half. The western side is
             heavily used by recreational vessels and has remained isolated to the eastern side by the causeway. Future
             improvements to US 1 call for a bridge to span Lake Surprise. The causeway will be removed, thus improving
             water circulation in the area. In order to protect the endangered American crocodile and West Indian manatee
             that inhabit the area from vessel traffic. Restriction: Idle speed only1no wake zone east of US 1.
                                                                                            (
                                                                                                   on.
                                                                                                 'MM

                                                                                              H






































































          298






                                                                                                                   Action Plans:Zoning


                   Wildlife Management Area:                             Horseshoe Key
                                                                        Type of Restilicton            Boundaries shown are
                                                                            No Access Buffer                        approximate.

                                                                            Low water Line
                                                                         Bathymetry is in feet.




                    L
                                                                    \6



                                                                                                                     -6,


                                                                                                       3-@





                                                                                                                            5W Mahn


                     Description

                     Horseshoe Key is a relatively large island bordered entirely by red mangroves, and is located approximately 20
                     1kilometers northwest of Marathon. Two large openings on the island's interior contain salt prairies. Heron,
                     willet, and osprey nesting sites have been documented. The island is closed to public access. Restriction:
                     There is a 300-foot (91m) no-access buffer zone around the main island. (The main island Is closed by
                     the U.S. Department of the Interior). There has been minimal public use in the past, therefore, little impact
                     on users is expected.








                                                                                                                                     299






           Action Plans: Zoning



               Wildlife Management Areas:          Rodriguez Key, Dove Key, Tavernier Key

                                                                                   Boundaries shown are
                                                                                            approximate.




                                                                                               Rodriguez Key






                                                                                         6
               Type of Restriction                                                         Dove Key
                                                               6                       61
                  No Motor Zone                                                                       C@12
                                                                                3           .-1
               El Low Water Line
               Bathyrnetry is in feet.


                                                                                    712
                                                  6                                q2
                                                                3                2  r "a 'si
                                                                                M 18
                                                                                12






                                                                        2


                                                                       Tavernier Key

                                                        2

                                       E@
               @N                                                                                  2 Kibrroter

               Description

               These three sites are in the Upper Keys. Rodriguez Key is located east of Key Largo. Dove Key is located
               between Key Largo and Rodriguez Key. Tavernier Key is located east of Key Largo and Plantation Key. They
               are each areas of very shallow flats that are heavily used by a variety of birds as well as bonefish and other
               desirable fish species. Restriction: There is a no-motor zone on the tidal flats around each key. Addl-
               tionally, the area around the two small Islands of Dove Key is closed.













            300







                                                                                                                Action Plans: Zoning


                  Wildlife Management Area: Marquesas Keys
                                                                                                    Boundaries shown are
                                                                                                               approximate.










                    Type of Restriction

                       No Motor Zone

                       No Access Buffer

                       Idle Speed Only/No Wake Zone
                                                                   3

                       Low Water Line
                    Bathymetry is in feet.



                                                      3



                                                 6


                                                                              3                                  3  6












                                                                                                                        1 Kilometer


                    Description

                    The Marquesas Keys are a chain of islands located approximately 40 kilometers west of Key West. They are
                    characterized by an extensive network of low-energy beaches and dunes. Deepwater channels cut through
                    the interior of the islands. The islands are used by sea turtles and birds for nesting, feeding, and roosting.
                    Restriction: A 300-foot (91m) no-motor zone Is established around the three smallest Islands, a 300-
                    foot (91m) no-access buffer zone Is established around one mangrove Island, and an Idle speed onlyl
                    no wake zone Is established In the southwest tidal creek. Historically, public use of the area has been
                    low, and minimal impacts on users are. expected.







                                                                                                                                  301






             Action Plans: Zoning


                 Wildlife Management Area: Mud Keys

                                                                                                    Boundaries shown are
                                                                                                               approximate.









                 Type of Restriction

                     Closed
                 E3 Idle Speed Only/No Wake Zone                                                        3
                 EE-1 Low Water Line                                    31
                 Bathymetry is in feet.


                                                                                                            3








                                                                         a,     'D









                                                                     6

                                                                                            3

                 @N                                                                                                     5W Mdm

                 Description

                 Mud Keys are a series of islands approximately 25 kilometers northeast of Key West that are highly dissected
                 by navigable creeks. The islands consist almost entirely of red mangroves, although the northernmost island
                 has considerable upland vegetation. The islands contain nesting ospreys and a small great white heron
                 rookery. Frigatebirds sometimes roost on the islands. Restriction: Idle-speed only1no wake zones are
                 created in the two main tidal creeks. The two smaller creeks on the west side are closed to provide a
                 sanctuary for birds. Boaters will have modified access to this area.








             302







                                                                                                                  Action Plans:Zoning


                   Wildlife Management Area: Pelican Shoal
                                                                                                     Boundaries shown are
                                                                                                                approximate.










                      Type of Restriction
                      0 No Access Buffer

                      Bathyrnetry is in feet.







                                            12














                      N                                                                                                      50 Meters

                      Description

                      Pelican Shoal is located approximately 9 kilometers southeast of Boca Chica. It is primarily a small rubble
                      island that provides an important nesting site for birds. Visitor use is low in this area. Restriction: No-access
                      buffer zone is created out to 50 meters from shore between April 1 and August 31. (The shoal Is closed
                      by the Florida Game and Freshwater Fish Commission). No major displacements of user groups will occur
                      as a result of this new designation.









                                                                                                                                    303






            Action Plans: Zoning


                Wildlife Management Area: Sawyer Keys

                                                                                                   Boundaries shown are
                                                                                                              approximate.










                Type of Restriction
                0 Closed

                El Low water Line
                Bathymetry is in feet.



                                                      6-\.









                                                                                                               3

                                                                      11>
                                                !r


                @N                                                                                                    500 Motors

                Description

                Sawyer Keys consist of a series of islands east of Johnston Key Channel, approximately 35 kilometers
                northeast of Key West. These islands are dissected by shallow, tidal creeks. The northwest side of the largest
                island is privately owned. Sawyer Keys harbor nesting ospreys. The area is also used by 11 species of '
                wading birds. The area south of the two largest islands is an important staging area for migrant shorebirds in
                autumn. Restriction: Tidal creeks on the south side of the Islands are closed Vessel traff ic will be
                prevented from using much of the site.








            304







                                                                                                                   Action Plans:Zdning


                  Wildlife Management Area: Snipe Keys

                                                                          Boundaries shown are                 Type of Restriction
                                                                          approximate.                         19 No Motor Zone
                                                                                                               E3 Idle Speed Only/
                                                                                                                   No Wake Zone
                                                                                                               R   Low water une
                                                                                                               Bathyrnetry is in feet.
                                     .7





                                    12








                                                                   >




                                                                                                    r__j



                                                                                                 8












                                                                                                                             500 metem


                    Description

                    Snipe Keys are a group of small islands dissected by a maze of tidal creeks between Snipe Point and the
                    Outer Narrows. Snipe Keys lie east of Mud Keys and approximately 25 kilometers northeast of Key West.
                    Groups of little blue herons are present on the tidal creeks. Snipe Point is used by terns and various shore-
                    birds. Restriction: An idle-speed only1no wake zone Is created for the main tidal creek. A no-motor
                    zone will be established for the remaining creeks. Boat traffic will have modified access to this area.









                                                                                                                                     305






              Action Plans: Zoning


                  Wildlife Management Area: Tidal Flat South of Marvin Key

                                                                                                     Boundaries shown are
                                                                                                                approximate.











                  Type of Restriction
                  EO No Access Buffer

                  ED Low Water Line
                  Bathymetry is in feet.





                                                                                                           3




                  @N                                                                                                   SM Mows

                  Description

                  The tidal flats south of Marvin Key cover one to two acres and are inundated at high tide. Marvin Key is
                  located east of Mud Keys, approximately 25 kilometers northeast of Key West. Large numbers of resting
                  shorebirds use the flats. Restriction: A no-access buffer zone is created to protect birds resting on the
                  flats. Vessels and people will be prevented from entering the flats.










              306







                                                                                                                     Action Plans:Zoning


                    Wildlife Management Areas: Upper Harbor Key, East Content Keys

                                                                                                          Boundaries shown are
                                                                                                                     approximate.










                      Type of Restriction

                         No Access Buffer                                                                     Upper Harbor Key

                         Idle Speed Only/No Wake Zone

                         Low Water Line
                      Bathyrnetry is in feet.                     12
                                                                       6
                                                                                                                      %  12



                                                                                                        J
                                                                          East Content Keys





                                                                                                                    12






                                                                                                     6


                      @N

                      Description

                      Upper Harbor Key is a mangrove island approximately 35 kilometers northwest of Marathon that is surrounded
                      by flats but is accessible at high tide. It is a premier area for wading birds. The island is used by various bird
                      species including ospreys, frigatebirds, double-crested cormorants, and wading birds. Restriction: A 300-
                      foot (91m) no-access buffer zone is created around the island. Vessel traffic will be prevented f rom
                      approaching the island.

                      The East Content Keys are approximately 40 kilometers northwest of Marathon. These islands, which are
                      located east of Content Passage, are dissected by several shallow tidal creeks and are inaccessible to most
                                                                                                                        r


































                      vessels at low tide. Herons and white ibises use the interior tidal creeks. Restriction: Idle-speed only1no
                      wake zones are created In the tidal creeks. Impacts from shallow-draft boats will be decreased.




                                                                                                                                        307






            Action Plans: Zoning


                Wildlife Management Areas:                      West Content Keys, Little Crane Key

                                                                                                    Boundaries shown are
                                                                                                               approximate.










                Type of Restriction
                    No Access Buffer                                                         West Content Keys
                    Idle speed only/No Wake Zone
                                                                                                          C?
                    Low Water Line
                Bathyrnetry is in feet.



                                                                                $
                                                            D











                                                          Little Crane Key



                @N                                                                                                       Sw Matm
                Description

                The West Content Keys lie approximately 40 kilometers northwest of Marathon, north of Little Crane Key.
                These islands, west of Content Passage, are accessible at high tides. Broad, shallow tidal creeks dissect the
                area, and nesting ospreys and wading birds inhabit the islands. Restriction: Idle-speed only1no wake zones
                are established In selected tidal creeks, and a no-access buffer zone in one cove. There will be de-
                creased impacts from vessels using the tidal creeks.

                Little Crane Key is a very small island between the Content Keys and Raccoon Key, approximately 40
                kilometers northwest of Marathon. One side of the island has been eroded by storms. The island contains a
                large frigatebird roost and nesting areas for great egrets and double-crested cormorants. Restriction: A 300-
                foot (91m) no-access buffer zone Is placed around the island. The buffer zone will displace vessel traffic
                and divers.





            308







                                                           References

               Preferred Alternative/Management Plan                    Florida Department of Natural Resources. 1989.
                                                                            Five-year research plan, 1989-1994. Talahassee,
              Clark, J.R., B. Causey, and J.A. Bohnsack, 1989.              FL: Florida Department of Natural Resources,
                  Benefits from Coral Reef Protection: Looe Key             Division of Marine Resources. 85 pp.
                  Reef, Florida. In Coastal Zone'89, Proceedings        Harwell, C., ed. 1991. Report on the research
                  of the Sixth Symposium on Coastal and Ocean               planning workshop for the Florida Keys National
                  Management. New York, New York: American                  Marine Sanctuary. Office of Ocean and Coastal
                  Society of Civil Engineers.                               Resource Management, Sanctuaries and Re-
              Cox, C., T.R. Mathews, H. Norris, P. Donovan-Potts,           serves Division, NOAA, Rosenstiel School of
                  and J. Hunt. (in Prep) Draft Title: Boat Usage in         Marine and Atmospheric Science, University of
                  the Florida Keys National Marine Sanctuary -              Miami. 57 pp. + appendix.
                  final report for contract #C-23. FMRI Technical       Miller, J.W., ed. 1988. Results of a workshop on coral
                  Report Series.                                            reef research and management in the Florida
              Leeworthy, R. et al, 1993.                                    Keys: A blueprint for action. National Undersea
                                                                            Research Program Research Report 88-5.
                                                                            Washington, DC: Office of Undersea Research,
               Action Plans                                                 Oceanic and Atmospheric Research, NOAA. 49
                                                                            PP.

                                                                        Olson C. 1991. The Florida Keys environmental
                             'Op                                     9,1
                                                                            summit report. Key West, FL: Florida Keys Land
              Mathews, T.R., and P. Donovan-Potts, 1993. An                 and Sea Trust.
                  evaluation of mooring buoys in the Florida Keys       Sullivan, K. et al. 1996. Site Characterization for the
                  National Marine Sanctuary based on boating                Florida Keys National Marine Sanctuary and
                  patterns. DNR Contract C-8013, Looe Key                   Environs. Zenda, Wisconsin: Farley Court of
                  National Marine Sanctuary. 40 pp.                         Publishers.

              van Breda, A., and K. Gjerde, 1992. The use of
                  mooring buoys as a management tool. Center for
                  Marine Conservation. Washington, DC. 56 pp.


                                                       0
                                                        -7-
                                                       -K,1751"'ii '57


              Monroe County. 1992. Monroe Countyyear2010
                  comprehensive plan, 1992. Prepared for the
                  Monroe County Board of County Commissioners
                  by Wallace, Roberts, and Todd; Barton-Aschman
                  Associates, Inc.; Keith and Schnars, P.A.; Haben,
                  Culpepper, Dunbar, and French; Henigar and
                  Ray, Inc.; Price Waterhouse; and the Growth
                  Management Staff of Monroe County. 3 vols. 810
                  PP.

              D'Elia, C.F., R.W. Buddemeier, and S.V. Smith. 1991.
                  Workshop on coral bleaching, coral reef ecosys-
                  tems, and global change: Report on proceedings.
                  College Park, MD: Maryland Sea Grant College.
                  49 pp.


                                                                                                                            309






                                             Acronyms

           Acronym                        Meaning

           ACSC                           Areas of Critical State Concern
           AICUZ                          Air"Installation Compatible Use Zones
           APPS                           Act to Prevent Pollution from Ships
           ARPA                           Archaeological Resources Protection Act
           ASA                            Abandoned Shipwreck Act
           ATBAs                          Areas to be Avoided
           ATCA                           Atlantic Tuna Convention Act
           AWT                            Advanced Wastewater Treatment
           BMES                           Bureau of Marketing and Extension Services
           BMRRD                          Bureau of Marine Resource Regulation and Development
           BP                             Before Present
           BRD                            Bycatch Reduction Devices
           LP                             Bureau of Submerged Lands and Preserves
           BSRR                           Bureau of Sanctuaries and Research Reserves
           CAA                            Clean Air Act
           CARL                           Conservation and Recreation Lands
           CBRA                           Coastal Barrier Resources Act of 1972
           CBRS                           Coastal Barrier Resources System
           CCC                            Coastal Coordinating Council (Florida)
           CERCLA                         Comprehensive Environmental Response, Compensation,
                                           and Liability Act
           CDP                            Census Designated Place
           CFR                            Code of Federal Regulations
           CMWG                           Channel Marking Working Group
           CSA                            Continental Shelf Associates
           CWA                            Clean Water Act
           CzM                            Coastal Zone Management
           CZMA                           Coastal Zone Management Act of 1972
           DARRF                          Damage Assessment and Restoration Revolving Fund
           DBS                            Division of Beaches and Shores
           DCA                            Department of Community Affairs
           DEIS/MP                        Draft Environmental Impact Statement/Management Plan
           DEMA                           Dive Equipment Manufacturers Association
           DIVIR                          Department of Marine Resources (Monroe County)
           DO                             Dissolved Oxygen
           DRI                            Development of Regional Impact
           EIS                            Environmental Impact Statement
           EMAP                           Environment Monitoring and Assessment Program
           ENP                            Everglades National Park
           EPA                            Environmental Protection Agency
           ESA                            Endangered Species Act
           F.S.                           Florida Statutes
           FAA                            Federal Aviation Act of 1958
           FAC:                           Florida Administrative Code
           FAP                            Federal Archaeological Program
           FCD                            Flood Control District
           FCMP                           Florida Coastal Management Program
           FCREPA                         Florida Committee on Rare and Endangered Plants and Animals
           FCRES                          Florida Committee on Rare and Endangered Species
           FDA                            Florida Department of Agriculture
           FDACS                          Florida Department of Agriculture and Consumer Services


                                                                                             311







            Acronyms

            Acronym                                   meaning

            FDBS                                      Florida Division of Beaches and Shores
            FDCA                                      Florida Department of Community Affairs
            FDEP                                      Florida Department of Environmental Protection
            FDHR                                      Florida Division of Historical Resources
            FDHRS                                     Florida Department of Health and Rehabilitative Services
            FDMR                                      Florida Division of Marine Resources
            FDEP                                      Florida Department of Environmental Protection
            FDER                                      Florida Department of Environmental Regulation
            FDNR                                      Florida Department of Natural Resources
            FDOC                                      Florida Department of Commerce
            FDOI                                      Florida Department of the Interior
            FDOS                                      Florida Department of State
            FDOT                                      Florida Department of Transportation
            FDRP                                      Florida Division of Recreation and Parks
            FDSL                                      Florida Division of State Lands
            FEIS                                      Final Environmental Impact Statement
            FGFWFC                                    Florida Game and Fresh Water Fish Commission
            FDHRS                                     Florida Department of Health and Rehabilatative Services
            FDMR                                      Florida Division of Marine Resources
            FIO                                       Florida Institute of Oceanography
            FIRE                                      Finance, Insurance, and Real Estate Trades
            FKAA                                      Florida Keys Aqueduct Authority
            FKARA                                     Florida Keys Artificial Reef Association
            FKNMS                                     Florida Keys National Marine Sanctuary
            FKNMSPA                                   Florida Keys National Marine Sanctuary and Protection Act
            FMFC                                      Florida Marine Fisheries Commission
            FMP                                       Florida Marine Patrol
            FMP                                       Fishery Management Plan
            FMRI                                      Florida Marine Research Institute
            FNAI                                      Florida Natural Areas Inventory
            FPS                                       Florida Park Service
            FWIA                                      Fish and Wildlife Improvement Act
            FWS                                       Fish and Wildlife Service (U.S. Dept. of Interior)
            GDM                                       General Design Memorandum
            GIS                                       Geographic Information System
            GPS                                       Global Positioning System
            HAPC                                      Habitat Area of Particular Concern
            HAZMAT                                    Hazardous Materials
            IMC                                       Interagency Management Committee
            ITQ                                       Individual Transferrable Quota
            JPCRSP                                    John Pennekamp Coral Reef State Park
            .LA                                       Lacey Act
            LATF                                      Land Acquisition Trust Fund
            LEO                                       Law Enforcement Off icer
            LKNIVIS                                   Looe Key National Marine Sanctuary
            MBTA                                      Migratory Bird Treaty Act
            MCMCD                                     Monroe County Mosquito Control District
            MFCMA                                     Magnuson Fishery Conservation and Management Act
            MMPA                                      Marine Mammal Protection Act
            MMS                                       Minerals Management Service
            MOA                                       Memoranda of Agreement
            MOU                                       Memoranda of Understanding
            MPPRCA                                    Marine Plastic Pollution Research and Control Act of 1987
            MPRSA                                     Marine Protection, Research, and Sanctuaries Act


            312







                                                                                                                     Acronyms
              Asronym                                   Meaning
              NCP                                       National Contingency Plan
              NDP                                       Natural Disaster Planning
              NEPA                                      National Environmental Policy Act
              NERR                                      National Estuarine Research Reserve
              NFWF                                      National Fish and Wildlife Foundation
              NGOs                                      Nongovernmental Organizations
              NHPA                                      National Historic Preservation Act
              NMFS                                      National Marine Fisheries Service
              NMS                                       National Marine Sanctuary
              NMSA                                      National Marine Sanctuaries Act
              NOAA                                      National Oceanic and Atmospheric Administration
              NOS                                       National Ocean Service (NOAA)
              NPDES                                     National Pollutant Discharge Elimination System
              NPS                                       National Park Service
              NPS                                       Nonpoint Source
              NURC                                      National Underwater Research Center
              OCRM                                      Office of Ocean and Coastal Resource Management
              OCS                                       Outer Continental Shelf
              OCSLA                                     Outer Continental Shelf Lands Act
              ODA                                       Ocean Dumping Act of 1972
              OFMAS                                     Office of Fisheries Management and Assistance Services
              OFW                                       Outstanding Florida Water
              ONRW                                      Outstanding Natural Resource Waters
              OPA                                       Oil Pollution Act of 1990
              OPS                                       Office of Protected Species
              ORCA                                      Office of Ocean Resources Conservation and
                                                         Assessment (NOAA)
              OSDS                                      On-site Disposal System
              OSP                                       Optimum Sustainable Population
              PADI                                      Professional Association of Dive Instructors
              PAED                                      Planning Analysis Area/Enumeration District
              PL.                                       Public Law
              PRP                                       Potentially Responsible Parties
              PSA                                       Public Service Announcement
              PSD                                       Prevention of Significant Deterioration Provisions
              PWSA                                      Port and Waterways Safety Act
              RHA                                       Rivers and Harbors Act
              SAV                                       Submerged Aquatic Vegetation
              SCR                                       Submerged Cultural Resources
              SEA                                       Strategic Environmental Assessments Division
                                                         (ORCA, NOAA)
              SEFSC                                     Southeast Fisheries Science Center
              SFRC                                      South Florida Research Center
              SFWMD                                     South Florida Water Management District
              SHPO                                      State Historic Preservation Officer
              SLA                                       Submerged Land Act of 1953
              SOC                                       Save Our Coasts
              SOR                                       Save Our Rivers
              SPAs                                      Sanctuary Preservation Areas
              SPF                                       Standard Project Flood
              SPL                                       Saltwater Products License
              SRD                                       Sanctuaries and Reserves Division (OCRM, NOAA)
              SRS                                       Shark River Slough
              SWD                                       Solid Waste Disposal

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            Acronyms

            Acronym                              Meaning
            swim                                 Surface Water Improvement and Management Act
            SWM                                  Stormwater Management
            TDC                                  Tourism Development Council
            TNC                                  The Nature Conservancy
            TSRP                                 Taylor Slough Rainfall Plan
            UIC                                  Underground Injection Control
            ULV                                  Ultra Low Volume
            UNCW                                 University of North Carolina, Wilmington
            USACE                                United States Army Corps of Engineers
            USCG                                 United States Coast Guard
            USDOC                                United States Department of Commerce
            USDOI                                United States Department of the Interior
            USDOS                                United States Department of State
            USDOT                                United States Department of Transportation
            USGS                                 United States Geological Survey
            VTSS                                 Vessel Traffic Separation Schemes
            WCAs                                 Water Conservation Areas
            WQBELs                               Water Quality Based Effluent Limitations
            WWTP                                 Wastewater Treatment Plant














































            314






                                            Glossary of Technical Terms

              accretion- growth or increase in size by gradual              capital facilities- those buildings and structures
              external addition                                             required for the provision of public services

              ad valorem- according to value; imposed at a rate             Carolinian- refers to organisms and physical charac-
              percent of the value as stated in an invoice                  teristics of the southeastern U.S. coastline

              ahermatypic- non reef-building corals                         Census Designated Place- closely settled commu-
                                                                            nities without corporate limits or status
              anaerobic- capable of living or growing in an envi-
              ronment lacking free oxygen                                   common property resources- resources that are
                                                                            not exclusively controlled by a single agent or source.
              annelids- any of various worms with cylindrical               Access to such resources is not restricted, and
              segmented bodies                                              therefore the resources can be exploited on a first-
                                                                            come, first-served basis
              aquaculture- the cultivation of marine life for harvest
              and utilization by humans                                     convective storm- storm characterized by vertically
                                                                            rising air
              arboreal- relating to, or like, a tree; in referring to
              species, those that inhabit or frequent trees                 corallimorphs- false corals

              ascidians- "sack-like" tunicates; animals in which the        coralline- any animal related to or resembling corals
              larval stage resembles a tadpole but the adult is
              sedentary and sack-like (e.g. sea squirts)                    crenulated (corals)- corals having tiny notches or
                                                                            scallops
              backcountry- primarily referring to the Florida Bay
              area of the Keys' islands and waterways                       crinoids- "sea lilies"; echinoderms that are suspen-
                                                                            sion feeders with jointed arms and appendages that
              bathymetry- water depth measurement information               give a feathery appearance resembling a plant
              used to produce depth-contoured charts
                                                                            cyclonic storms/systems- a windstorm with a
              benthic communities- bottom-dwelling flora and                violent whirling movement; a system of rotating winds
              fauna                                                         over a vast area, spinning inward to a low pressure
                                                                            center (counterclockwise in the northern hemisphere)
              Bermuda/Azores high- the subtropical anticyclone              generally causing stormy weather
              positioned over the southern Atlantic Ocean in the
              Northern Hemisphere; it is most pronounced in spring          defaunated- indigenous animals are removed from a
              and summer                                                    particular area

              bioherm- a mound, dome, or reef-like structure built          desiccation- removal of moisture; drying out
              up by, and composed almost exclusively of, the
              remains of sedentary organisms, such as corals,               detrital- the accumulation of disintegrated material
              algae, or molluscs
                                                                            diurnal- pertaining to or occurring in a day or each
              biota- animal or plant life of a region considered as a       day; daily
              total ecological entity
                                                                            downzoning- the practice of rezoning a parcel or
              block-faulted- a type of normal faulting in which the         parcels in a "lower"or more restrictive zoning cat-
              Earth's crust is divided into structural or fault blocks      egory (e.g., a rezoning from multifamily residential to
              *of different elevations and orientations                     single-family residential) is considered downzoning;
                                                                            downzonings are often part of a growth management
              calcareous- containing characteristics of calcium             program employed when communities find that they
              carbonate, calcium, or limestone                              have overzoned for the population growth which is
                                                                            desired

                                                                                                                                      315







               Glossary of Technical Terms

               downwelling- a reverse vertical flow of water,                gastropods- "Stomach footed" class of molluscs that
               moving from the ocean's surface to great depths;              have only one shell and usually move about on a
               occurs at oceanic convergences                                muscular "foot" (e.g., snail, slug, cowry, limpet)

               echinoderms- radially symmetrical animals that are            gorgonian- a type of octocoral (soft coral) commonly
               exclusively marine and possess a spiny skin and a             found in southeast Florida reefs at depths less than
               system of water filled canals that aids in feeding and        30 meters; they include sea fans, sea plumes, sea
               locomotion. (e.g., sea urchins, sand dollars, and sea         whips, and sea rods
               cucumbers)                                                    dulf of Mexico Loop Current- major surface current
               endangered species- a species in danger of becom-             in the Gulf of Mexico; enters through Yucatan Straits,
               ing extinct that is protected by the Endangered               flows clockwise into the east central portion of the
               Species Act                                                   Gulf, and exits through the Straits of Florida becom-
                                                                             ing the Florida current and eventually the Gulf
               endemic- restricted to or native to a particular area         Stream
               or region
                                                                             gyre- circular spiral form; used mainly in reference to
               eplibenthic- organisms that live on the surface of a          the circular motion of water in major ocean basins
               substrate, including motile organisms such as                 centered in the subtropic high-pressure regions
               gastropods, sea urchins, sea stars, sea cucumbers,
               sea biscuits, and a wide variety of crustacea                 halophytic- type of plant that can survive in saltwater
                                                                             environments
               epifauna- animals that live on the ocean bottom,
               either attached or moving freely over it                      Holocene Era- designating the present epoch of
                                                                             geologic time
               epiphytic- any organisms that grow on the blades of
               seagrasses, including algae, diatoms, and other               hookah- an underwater breathing apparatus that
               encrusting organisms                                          supplies air to one or more divers through hoses
                                                                             attached to a compressor located on the surface
               eutrophication- the process by which nutrient-rich
               waters bring about a high level of biological produc-         hot spot- an area of actual or potential trouble
               tivity that may ultimately lead to reduced dissolved
               oxygen levels                                                 hydrography- the study, description, and mapping of
                                                                             oceans, lakes, and rivers with an emphasis on
               fauna- animal life of a particular region                     navigation

               flora- plant life of a particular region                      hydrology- the science dealing with the nature,
                                                                             distribution, and movement of water on and below
               Florida Current- the segment of current between the           the Earth's surface
               Gulf of Mexico Loop Current and the Gulf Stream
               from the Dry Tortugas to the Southeastern tip of              hydroperiod- hydrologic conditions that contribute to
               Florida, and confined by the 250-meter and 500-               seasonally elevated surficial and groundwater flow
               meter isobaths                                                conditions


               Florida reef tract- the third largest barrier reef in the     incorporated lands- land areas under the jurisdic-
               world, running from the Miami area southwest to the           tion of a municipal government; in Monroe County
               Dry Tortugas                                                  there are three incorporated areas: the cities of Key
                                                                             West, Layton, and Key Colony Beach; all other areas
               Floridan Aquifer- the rock mass of South Florida              in the Keys fall under Monroe County's jurisdiction
               that contains groundwater
                                                                             infaunal- organisms that live buried in sediments,
               foraminifera- an order of planktonic and benthic              including a variety of polychaetes, burrowing crusta-
               protozoans having a calcareous shell; perforations            ceans, and molluscs
               through which numerous pseudopodia protrude



               316







                                                                                                             Glossary of Technical Terms
                Infrastructure- basic installations and facilities, such        National Register of Historic Places- a congres-
                as roads, power plants, transportation, and communi-            sionally authorized register of historically significant
                cation systems                                                  places, and or objects that receive protection from
                                                                                alteration or demolition under law; alterations are
                iron-pile lighthouse- a lighthouse built on iron                subject to Historic Preservation Council approval and
                pilings that are threaded like a screw; the piling legs         must not significantly change the character or
                are screwed into the surface; this design allows water          associations of the place or object in question
                to pass through during storms
                                                                                nektonic- highly motile organisms, such as fishes
                Isobath- line connecting points of equal depth                  and squids that live in, or above, the seagrass
                                                                                canopy
                keystone species- a single species whose activities
                determine community structure; a species whose                  nonpoint source pollutant discharges- those
                presence is critical to that community                          pollutant discharges not associated with a specific
                                                                                location (e.g., urban and agricultural pesticide runoff)
                lithology- the scientific study of rocks usually with
                the unaided eye or little magnification                         nutrients- any number of organic or inorganic
                                                                                compounds used by plants in primary production
                live rock- rock to which living marine organisms are            (typically nitrogen and phosphorous)
                attached
                                                                                octocorals- coral type that includes sea plumes, sea
                Lower Keys- that part of incorporated Monroe                    whips, gorgonians, and soft corals
                County south and/or west of the Seven Mile Bridge
                (i.e., Little Duck, Missouri and Ohio Keys, Bahia               oolitic- made of a limestone composition consisting
                Honda, West Summerland/Spanish Harbor, and                      of many small grains of carbonate of lime cemented
                south to Stock Island)                                          together

                mailboxes- propeller-wash device treasure hunters               patch reef- small circular or irregular reefs that arise
                use to blow sediment away from wrecks buried                    from the floor of lagoons, behind barrier reefs, or
                beneath the seabed                                              within an atoll


                management alternative- a bundle of management                  pathogens- any agent, most commonly a microor-
                strategies that, when employed together, represent              ganism, capable of causing disease
                the means for achieving a desired level of protection
                within the Sanctuary                                            personal watercraft- a shallow-draft, jet drive
                                                                                watercraft on which the operator sits, kneels, or
                management strategy- an action or physical.mea-                 stands; excludes those vehicles piloted from inside
                sure taken to address a specific issue; a manage-               the craft
                ment strategy is combined with an implementation
                incentive or mechanism to induce behavior; an                   planktonic- organisms dependent on water move-
                institutional arrangement with authority to act; and a          ment and currents as their means of transportation,
                financing scheme to support the costs of implementa-            including phytoplankton, zooplankton, and
                tion                                                            ichthyoplankton

                Middle Keys- that part of unincorporated segment of             Planning Analysis Area/Enumeration District-
                Monroe County between Seven Mile Bridge and                     aggregated subcounty areas used as a framework for
                Whale Harbor Bridge (i.e., Islamorada, Upper and                compiling and analyzing census data; aggregated
                Lower Matecumbe, Fiesta Key, Long Key, Conch                    into three areas: Lower, Middle, and Upper Keys
                Key, Walkers Island, Duck Key, Fat Deer Key,
                Marathon, and Pigeon Key)                                       Pleistocene epoch- the first epoch of the Quater-
                                                                                nary Period of the Cenozoic Era, beginning approxi-
                military exclusion area- a region or tract reserved             mately 10,000 years ago; characterized by major
                for military uses, where unauthorized persons may               worldwide climatic fluctuations, the spreading and
                not enter                                                       recession of continental ice sheets with concomitant
                                                                                rise and fall of sea levels, and the appearance of
                                                                                modern humans

                                                                                                                                          317






              Glossary of Technical Terms

              point source pollutant discharges- the discharge           toxicant- a poisonous or toxic substance
              of pollutants from a distinct and identifiable source,
              such as a sewer or industrial outfall pipe                 turbid- the state of being clouded, opaqued, or
                                                                         obscured by suspended sediment
              polychaeta- class of annelid worms that includes
              bristle and feather duster worms                           unincorporated lands- lands not under the jurisdic-
                                                                         tion of (and not receiving services from) a town or city
              potable water- water that is safe to drink
                                                                         Upper Keys- that part of unincorporated portion of
              puerulus- the transitional swimming stage of the           Monroe County north of Whale Harbor Bridge;
              spiny lobster                                              geologically, the segment of the Keys comprised of
                                                                         exposed Miami Limestone substrate; includes the
              seasonal population- any group of organisms of the         area from Marathon to Soldier Key
              same species that occupy a given space at a particu-
              lar time of year (defined as winter, spring, summer,       vascular- typically describes tubular structures
              fall, wet, or dry)                                         involved in fluid transport

              sessile- immobile organisms that are permanently           viviparous- bearing or bringing forth live young, as
              fixed to the substrate                                     with most mammals


              sheet Iflow- surface water runoff                          zoanthids- generally small anemone; may be
                                                                         colonial or solitary, and both symbiotic and free-living;
              slough- swamp bog or marsh; especially one that is         the most common on the Florida reef tract is
              part of an inlet or backwater                              Palythoa caribbea, referred to as "golden sea mat"

              solution holes- depression in the Earth's surface          zone- an area or region considered as separate and
              caused by dissolving of substrate composed primarily       distinct from others because of its designated use,
              of calcium carbonate                                       plant or animal life, etc.

              southwest continental shelf- the submerged shelf           zoning- the act of partitioning areas of land or water
              of land that slopes gradually from the exposed edge        into sections dedicated to specific purposes and
              of the continent for a variable distance to the point      activities
              where the steep descent to the ocean floor begins

              spur and groove- coral formation endemic to
              fringing or bank reefs; spurs are usually composed of
              a framework or Acropora palmata that form ramparts
              protruding at right anglesto the axis of the reef and
              projecting into the prevailing wind pattern; the spaces
              between the spurs are sand channels referred to as
              grooves

              storm surge- water elevation change due especially
              to tropical or extratropical storms

              threatened species- plant or animal species be-
              lieved likely to move into the endangered category in
              the near future if causal factors at work continue to
              persist

              tourism units- hotel/motel rooms, sites for camping
              and recreational vehicles, and vacation rentals






              318







                                                 Metric Conversion Table


                 Linear Measurement                                          Area Measurement


                 1 foot                                                      1 acre
                          = 0.3048 meter                                              = 43,560 square feet
                                                                                      = 4,046.86 square meters
                 1 meter                                                              = 0.404686 hectare
                          = 3.28084 feet                                              = 0.0015625 square statute mile
                          = 0.001 kilometer
                                                                             1 hectare
                 1 kilometer                                                          = 2.47105 acres
                          = 1,000 meters                                              = 10,000 square meters
                          = 0.621371 statute mile                                     = 0.01 square kilometer
                                                                                      = 0.003861 square statute mile
                 1 statute mile
                          = 5,280 feet                                       1 square kilometer
                          = 1.60934 kilometers                                        = 247.105 acres
                          = 0.8689 nautical mile                                      = 100 hectares
                                                                                      = 0.386102 square statute mile
                 1 nautical mile
                          = 6,076.12 feet                                    1 square statute mile
                          = 1.852 kilometers                                          = 640 acres
                          = 1. 15078 statute miles                                    = 258.999 hectares
                                                                                      = 2.58999 square kilometers
                                                                                      = 0.755 square nautical mile

                                                                             1 square nautical mile
                                                                                      = 847.5443 acres
                                                                                      = 3.43 square kilometers
                                                                                      = 1.324288 square statute miles



                 Mass Measurement                                            Unit Abbreviations

                 1 pound                                                     foot                       (ft)
                          = 0.002 ton                                        hectare                    (ha)
                          = 0.453592 kilogram
                                                                             kilometer                  (km)
                 1 ton
                          = 2,000 pounds                                     meter                      (m)
                          = 0.907185 metric ton                              nautical mile              (nmi)
                 1 kilogram                                                  pound                      (lb)
                          = 2.20462 pounds                                                                m2)
                          = 0.001 metric ton                                 square kilometer           (k
                 1 metric ton                                                square meter               (m2)
                          = 2,240 pounds                                     square nautical mile       (nmi2)
                          = 1.10231 tons                                     square statute mile        (mi2)

                                                                             statute mile               (mi)


                 U.S. GOVERNMENT PRINTING OFFICE: IM 765-004146001A                                                               319






























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