[Federal Register Volume 62, Number 233 (Thursday, December 4, 1997)]
[Notices]
[Pages 64208-64210]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 97-31748]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration


Notice of Availability of Draft Proposed Comprehensive, Long 
Range Preservation Plan for the MONITOR National Marine Sanctuary

AGENCY: Sanctuaries and Reserves Division (SRD), Office of Ocean and 
Coastal Resource Management (OCRM), National Ocean Service (NOS), 
National Oceanic and Atmospheric Administration (NOAA), Department of 
Commerce (DOC).

ACTION: Notice.

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SUMMARY: In section 4 of Public Law 104-238 (The National Marine 
Sanctuaries Preservation Act (Act); October 11, 1996), Congress 
directed the Secretary of Commerce to prepare a long-range, 
comprehensive plan for the management stabilization, preservation, and 
recovery of artifacts and materials of the USS MONITOR. NOAA, on behalf 
of the Secretary of Commerce, developed a draft plan, entitled 
``Charting a New Course for the MONITOR: Comprehensive, Long Range 
Preservation Plan with Options for Management, Stabilization, 
Preservation, Recovery, Conservation and Exhibition of Materials and 
Artifacts from the MONITOR National Marine Sanctuary.'' The draft plan 
presents a range of options including a comprehensive management 
strategy that should ensure that, insofar as possible, the MONITOR will 
be preserved and protected for future generations. The draft plan 
recommends the application of state-of-the-art technology in overcoming 
the present rapid deterioration of the MONITOR through the combined 
strategies of stabilization and selective recovery.

DATES: Comments on the draft plan are invited and will be considered if 
submitted in writing by February 2, 1998.

ADDRESSES: Copies of the draft plan may be obtained from Dana Hill, 
MONITOR National Marine Sanctuary, The Mariners Museum, 100 Museum 
Drive, Newport News, VA 23606, tel. (757) 599-3122.
    The draft plan is also published on the World Wide Web at http://
www/nos.gov/nmsp/monitor/
 Comments should be submitted to John Broadwater, Manager, MONITOR 
National Marine Sanctuary, The Mariners Museum, 100 Museum Drive, 
Newport News, VA 23606.

FOR FURTHER INFORMATION CONTACT: Dana Hill at (757) 599-3122.

SUPPLEMENTRY INFORMATION:

I. Background

    The USS MONITOR was a radical departure from traditional warship 
design. The vessel was built almost entirely of iron; it was fully 
steam powered with no masts or sails; the engineering spaces, crews and 
officers quarters, and galley were all below the waterline; the hull 
was completely armored with a 5-foot-high, 32-inch-thick armor belt 
encircling the vessel for protection during battle. The most novel 
feature was the MONITOR's 22-foot-diameter, 9-foot-high iron turret. 
Positioned amidships, the armored turret could be rotated to train its 
two 11-inch Dahlgren smoothbore cannon in any direction.
    The MONITOR was launched at Greenpoint, New York, on January 30, 
1862. In early March, the MONITOR was ordered to Hampton Roads, 
Virginia, where on March 9 it engaged the CSS VIRGINIA, a Confederate 
ironclad constructed over the modified hull of the scuttled USS 
MERRIMACK. In the ensuing four-hour battle, the two vessels frequently 
bombarded each other at point-blank range with no substantial damage to 
either vessel. Although the battle ended in a draw, the MONITOR's 
performance impressed the

[[Page 64209]]

U.S. Navy and introduced features including full iron armor, low 
freeboard and revolving turret that altered naval technology forever.
    Shortly after midnight on December 31, 1862, while under tow by the 
USS RHODE ISLAND to Beaufort, North Carolina, the MONITOR sank in a 
storm off Cape Hatteras, North Carolina, with a loss of sixteen 
officers and crewmen.
    In 1973 the wreck of the USS MONITOR was located by an 
interdisciplinary scientific team operating from the Duke University 
Research Vessel EASTWARD. A second expedition in April 1974, partly 
sponsored by the U.S. Navy and the National Geographic Society, 
provided detailed photographic documentation from which an assessment 
of the wreck was made. A photomosaic produced by the Naval Intelligence 
Division revealed that, with the exception of damage to the stern 
section and the collapse of the lower hull forward of the midships 
bulkhead, the wreck was in relatively good condition.
    In recognition of the MONITOR's significance in American history 
and its profound impact on naval technology, the MONITOR was designated 
by the Secretary of Commerce as the first National Marine Sanctuary on 
January 30, 1975, pursuant to Title III of the Marine Protection, 
Research, and Sanctuaries Act of 1972 (renamed the National Marine 
Sanctuaries Act or NMSA), 16 U.S.C. 1431 et seq. Regulations 
implementing the designation are found at 15 CFR part 922, subpart F. 
NOAA is responsible for the management of the Sanctuary. The Sanctuary 
encompasses a vertical column of water one nautical mile in diameter 16 
miles off the coast of Cape Hatteras, North Carolina. The wreck of the 
MONITOR lies upside down in 230 feet of water, with the stern resting 
on the displaced turret, which is also upside down. Since 1977 NOAA has 
conducted numerous expeditions to the MONITOR designed to generate 
information on the condition of the wreck.
    Since 1991, a dramatic increase in the deterioration of the 
MONITOR's hull has been documented, leading NOAA to conclude that the 
collapse of the MONITOR's hull is imminent. In 1992, responding to the 
alarming degradation of the MONITOR's hull, NOAA commenced a broad 
range of initiatives including several expeditions to the Sanctuary, a 
cooperative effort with the U.S. Navy to help stabilize the MONITOR's 
hull, and development of a comprehensive plan for management of the 
Sanctuary and possible recovery of portions of the MONITOR. Because of 
the importance of these efforts and the limitations on funding, NOAA 
developed partnerships with several organizations, including the U.S. 
Navy, the National Undersea Research Program, The Mariners Museum, 
private dive groups and organizations, and others.
    In 1993 and 1995, NOAA conducted major engineering and 
archaeological surveys at the Sanctuary in conjunction with further 
archival research and several small-scale site operations. Private 
research divers also assisted NOAA during this period in the recovery 
of additional data on the MONITOR's condition. This research concluded 
that a concerted, well-planned effort would be required to preserve the 
remains of the MONITOR. Planning efforts were initiated for the conduct 
of additional archival, engineering and on-site research aimed at 
identifying viable options for the preservation of the MONITOR. NOAA 
also communicated the situation to Congress and the public.
    In 1996, Congress directed the Secretary of Commerce to prepare a 
long-range, comprehensive plan for the management, stabilization, 
preservation, and recovery of artifacts and materials of the USS 
MONITOR. Section 4 of Public Law 104-238 (The National Marine 
Sanctuaries Preservation Act (Act); October 11, 1996. The Secretary was 
also directed, to the extent feasible, to utilize the resources of 
other Federal and private entities with expertise and capabilities that 
are helpful. NOAA, on behalf of the Secretary of Commerce, developed a 
draft plan, entitled ``Charting a New Course for the MONITOR: 
Comprehensive, Long Range Preservation Plan with Options for 
Management, Stabilization, Preservation, Recovery, Conservation and 
Exhibition of Materials and Artifacts from the MONITOR National Marine 
Sanctuary.'' The draft plan presents a range of options including a 
comprehensive management strategy that should ensure that, insofar as 
possible, the MONITOR will be preserved and protected for future 
generations. The draft plan recommends the application of state-of-the-
art technology in overcoming the crisis at the Sanctuary through the 
combined strategies of stabilization and selective recovery.

II. Summary of the Draft Plan

    The draft plan includes a wide range of options for comprehensive 
preservation and management of the MONITOR National Marine Sanctuary. 
In developing these options, NOAA reviewed all previous reports and 
proposals for on-site activities, including papers presented at a 
MONITOR conference in Raleigh, North Carolina, previous engineering and 
corrosion reports and the Draft Revised Management Plan for the MONITOR 
National Marine Sanctuary (NOAA 1982), all of which addressed 
preliminary recommendations. NOAA sought and received assistance from 
the U.S. Navy, Oceaneering International, Inc., The Mariners Museum, 
and others. In addition, NOAA held informal discussions with numerous 
engineers, archaeologists, and other specialists in order to identify 
new technology that might be applicable for the MONITOR situation. The 
draft plan presents all options for stabilizing and/or preserving the 
MONITOR that were identified by NOAA as viable. The plan contains 
sufficient information to permit the formulation of a comprehensive 
phased approach to the problem. Once an option (or combination of 
options) has been selected, it will be necessary to seek expert 
assistance from appropriate disciplines (ocean engineers, nautical 
archaeologists, artifact conservators, etc.) to assist with the 
development of a detailed implementation plan.
    The draft plan presents several options along with pertinent 
information on advantages, disadvantages, required action and estimated 
costs. Advantages and disadvantages address potential impacts on the 
MONITOR and its contents. Options are discussed and compared, and 
recommendations are presented.
    Since the MONITOR is listed on the National Register of Historic 
Places, and in addition, is a National Historic Landmark, any plan 
proposing on-site activities that could disturb the site in any way 
must be reviewed by state and Federal officials, in compliance with 
section 106 of the National Historic Preservation Act, and other 
pertinent laws.
    In establishing an archaeology plan, consideration must be given to 
the fact that the MONITOR's hull and contents are threatened with 
damage or loss due to the rapid deterioration of the hull and loss of 
structural integrity. NOAA considers the MONITOR to be a threatened 
site and, therefore, will develop the archaeology plan accordingly. 
Federal law includes special provisions for threatened sites, with 
consideration being given to the relative impact to a threatened 
resource if left undisturbed versus taking positive action to preserve 
the resource. In the MONITOR's case, an effective argument can be made 
that if positive steps are not taken to stabilize the hull and/or 
recover some of the material, the entire

[[Page 64210]]

site could be irreparably damaged by continued deterioration in as 
little as one to five years. The draft plan is in keeping with the 
National Marine Sanctuaries Program's Strategic Plan for the 21st 
Century. The Program's primary goal is to protect sanctuary resources, 
making our sanctuaries world-class models for effective, innovative 
management of protected areas (Sanctuaries and Reserves Division 1997).

III. Summary of Options

    The options in the draft plan are summarized as follows:
    A. Non-intervention. With this option, NOAA would continue to 
manage the Sanctuary in accordance with the current policy but would 
take no action to prevent continuing deterioration. This option would 
allow nature to take its course, likely resulting in the ultimate 
collapse of the MONITOR's hull.
    B. In Situ Preservation by Encapsulation. With this option, the 
MONITOR would be entombed in some acceptable manner (i.e. covering with 
sand, grass mats, etc.). Possible impacts on the MONITOR and its 
environment might include additional damage to the wreck due to the 
weight of the covering material and the loss of access to the wreck.
    C. In Situ Preservation by Shoring. This option would be 
accomplished through the use of approved methods and materials, such as 
sand bags, grout bags, or jacks, to support portions of the hull that 
are suspended above the bottom by the position of the turret. Impact to 
the MONITOR and its environment would be negligible and some portions 
of the wreck would be given improved support.
    D. In Situ Preservation by Cathodic Protection. This option would 
involve the installation of a passive (sacrificial anode) or active 
(impressed current) cathodic protection system to reduce the corrosive 
action from the marine environment. Impact to the MONITOR and its 
environment is uncertain, and would not prevent inevitable collapse.
    E. Selective Recovery. This option includes a selective approach to 
recovering hull components and artifacts that are of significant 
historic value. Objects being considered for selective recovery include 
the propeller, turret, cannons, engine and small artifacts. Possible 
impact to the MONITOR and its environment might include unavoidable 
damage to other portions of the wreck and contents during recovery 
operations.
    F. Full Recovery. In this option, the entire hull, turret, cannons 
and all contents would be recovered, conserved, and, eventually 
displayed. This could include recovery of the entire hull as a single 
unit or a series of smaller recoveries. Possible impact to the MONITOR 
might include damage during recovery of portions of the hull and 
contents; however, if raised, the MONITOR could be conserved and 
reconstructed for display.
    G. Selective Recovery Followed by Encapsulation. This option 
combines selective recovery with in situ preservation by encapsulation. 
Following recovery of all selected hull components and artifacts, the 
site would be encapsulated for protection of the remaining cultural 
material. Possible impact to the MONITOR might include unavoidable 
damage to other portions of the wreck and contents during recovery 
operations and additional damage to the wreck due to the weight of the 
covering material and the loss of access to the wreck.
    H. Selective Recovery Combined with Shoring. This option combines 
selective recovery with in situ preservation by shoring of the 
remaining material, which would provide improved support. Possible 
impact to the MONITOR and its environment might include unavoidable 
damage to other portions of the wreck and contents during recovery 
operations.
    I. Expanded Enforcement of Sanctuary Regulations. This option 
addresses evidence of increased illegal encroachment on the Sanctuary 
by increasing enforcement activities at the site to prevent further 
damage from illegal activities. Unless combined with one or more of the 
other options, the only impact might be a reduction of damage from 
human causes.
    Because of the MONITOR's significance in American history and its 
status as a National Historic Landmark, NOAA is making this draft plan 
available to the public and invites comments and other pertinent 
information.

    Dated: November 28, 1997.
Captain Evelyn J. Fields,
Acting Deputy Assistant Administrator for Ocean Services and Coastal 
Zone Management.
[FR Doc. 97-31748 Filed 12-3-97; 8:45 am]
BILLING CODE 3510-08-M