[Federal Register Volume 63, Number 28 (Wednesday, February 11, 1998)]
[Proposed Rules]
[Pages 6883-6886]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-3405]


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DEPARTMENT OF COMMERCE

National Oceanic and Atmospheric Administration

15 CFR Part 922

[Docket No. 971014245-8014-02]
[RIN 0645-AK45


Anchoring on Tortugas Bank Within the Florida Keys 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: Proposed rule; environmental assessment.

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SUMMARY: The National Oceanic and Atmospheric Administration is 
proposing to amend the regulations for the Florida Keys National Marine

[[Page 6884]]

Sanctuary (FKNMS or Sanctuary) to make permanent the temporary 
prohibition on anchoring by vessels 50 meters or greater in registered 
length on Tortugas Bank. The preamble to this rule contains an 
environmental assessment for this proposed action. The intent of this 
proposed rule is to protect the coral reef at Tortugas Bank.

DATES: Comments must be received by March 13, 1998.

ADDRESSES: Comments should be sent to Billy Causey, Superintendent, 
Florida Keys National Marine Sanctuary, Post Office Box 500368, 
Marathon, Florida, 33050. Comments will be available for public 
inspection at the same address.

FOR FURTHER INFORMATION CONTACT:
Bill Causey at (305) 743-2437.

SUPPLEMENTARY INFORMATION:

I. Background

    The Sanctuary was designated by an act of Congress entitled the 
Florida Keys National Marine Sanctuary and Protection Act (FKNMSPA, 
Pub. L. 101-605) which was signed into law on November 16, 1990. The 
FKNMSPA directed the Secretary of Commerce to develop a comprehensive 
management plan and regulations for the Sanctuary pursuant to sections 
303 and 304 of the National Marine Sanctuaries Act (NMSA) (also known 
as Title III of the Marine Protection Research and Sanctuaries Act of 
1972), as amended, 16 USC 1431 et seq. The NMSA authorizes the 
development of management plans and regulations for national marine 
sanctuaries to protect their conservation, recreational, ecological 
historical, research, educational, or aesthetic qualities.
    The authority of the Secretary to designate national marine 
sanctuaries and implement designated sanctuaries is delegated to the 
Under Secretary of Commerce for Ocean and Atmosphere by the Department 
of Commerce, Organization Order 10-15, Sec. 3.01(x) (Jan. 26, 1996). 
The authority to administer the other provisions of the NMSA is 
delegated to the Assistant Administrator for Ocean Services and Coastal 
Zone Management of NOAA by NOAA Circular 83-38, Directive 05-50 
(September 21, 1983, as amended). The final Sanctuary regulations 
implementing the designation was published in the Federal Register on 
June 12, 1997, (62 FR 32154) and were effective July 1, 1997, and 
codified at 15 CFR part 922, Subpart P.
    In September 1997, NOAA became aware that significant injury to, 
and destruction of, living coral on the Tortugas Bank, west of the Dry 
Tortugas National Park, was being caused by the anchoring of vessels 50 
meters or greater in registered length.
    Section 922.165 of the Sanctuary regulations provides that, where 
necessary to prevent or minimize the destruction of, loss of, or injury 
to a Sanctuary resources, any and all activities are subject to 
immediate temporary regulation, including prohibition, for up to 120 
days. Emergency regulations cannot take effect until approved by the 
Governor of the State of Florida. In accordance with 15 CFR 922.165, 
and the Co-Trustees Agreement for Cooperative Management between NOAA 
and the State of Florida, in October 1997, NOAA consulted with and 
received approval by the Governor of the State of Florida to issue a 
temporary rule prohibiting the anchoring by vessels 50 meters or 
greater in length on Tortugas Bank west of the Tortugas National Park 
within the Sanctuary. The temporary rule (62 FR 54381; October 20, 
1997), took effect at 12:01 a.m. October 17, 1997 and will remain in 
effect until February 12, 1998.

II. Summary of the Proposed Regulatory Amendment

    The proposed rule would make permanent the temporary prohibition on 
anchoring by vessels 50 meters or greater in registered length on the 
Tortugas Bank west of the Dry Tortugas National Park within the 
Sanctuary. Current 15 CFR 922.163(a)(5)(ii) of the final Sanctuary 
regulations prohibits vessels from anchoring in the Sanctuary on living 
coral other than hardbottom in water depths less than 40 feet when 
visibility is such that the seabed can be seen. However, this 
regulation does not protect the coral located in the area covered by 
this proposed rule because the water there is deeper than 40 feet.
    Anchoring of vessels 50 meters or greater in registered length on 
Tortugas Bank has been documented as having caused significant injury 
to living coral reef resources. Vessels of such size have anchor gear 
(ground tackle) of massive weight and size with heavy chains hundreds 
of feet in length weighing as much as 8 to 10 tons. Proper anchoring 
requires that a length of chain five to seven times the depth of the 
water be lowered, this act of product seamanship allows for safe 
anchoring under any sea conditions. In most circumstances, much of this 
chain will drop to and remain on the bottom. The weight of the chain 
holds the vessel in place. In this area, the heavy chain crushes the 
coral and sponges. In addition, as the tide changes or the wind shifts, 
vessels often change position and drag their anchor chain over the 
seabed, further damaging the reef.
    For example, a 180 foot Coast Guard Cutter uses a 2000 pound anchor 
and chain sized appropriately to deploy it; whereas a Coast Guard 110 
foot Patrol Boat uses an 80 pound anchor and rather than chain, nylon 
line is used as ground tackle (anchor gear).
    Coast Guard patrol boats regularly in the area around Tortugas Bank 
report that they encounter either very large vessels (50 meters or 
greater in length), or fishing vessels or pleasure craft generally less 
than 35 meters in length.
    Vessels smaller than 50 meters in registered length have not been 
documented as having caused injury or loss of living coral on Tortugas 
Bank. Their anchoring gear is less massive in size, length and weight. 
Therefore, this rule would not prohibit anchoring by vessels less than 
50 meters in registered length on the Tortugas Bank. The location by 
coordinates of the prohibited anchoring area is set forth in the text 
of the proposed rule. Vessels greater than 50 meters in registered 
length are already prohibited by the FKNMSPA for operating in certain 
other areas of the Sanctuary, referred to in that statute and Sanctuary 
regulations as Areas to be Avoided (15 CFR 922.164(a)).
    Transit, fishing and all other activities currently allowed in the 
area would not be affected by this rule. Alternative anchor sites for 
vessels 50 meters or greater in length are located within approximately 
two nautical miles of the prohibited area. The close proximity of these 
alternative anchoring sites should mitigate any potential economic 
impact on such vessels since cost of the time and fuel to maneuver to 
this area and the additional time and labor in letting out and pulling 
in the additional anchor chain should be minimal.
    The recommended alternative anchoring location in the vicinity of 
the area closed to anchoring by vessels 50 meters or greater in 
registered length is the area outside the sanctuary boundary located 
approximately 2 nautical miles west of the living coral reefs that form 
the Tortugas Bank, where the water depth contour is 20 fathoms or 
greater as indicted on NOAA Nautical Chart Numbers 11434 and 11420. The 
bottom type in this area is sand/mud or sand/shell. Mariners should 
note the existence of a submerged shipwreck located at 24 deg.38'N 
83 deg.08.00'W. This shipwreck is a landing ship transport which was 
lost in 1948.

[[Page 6885]]

III. Miscellaneous Rulemaking Requirements

National Environmental Policy Act

    NOAA has prepared an environmental assessment (EA), pursuant to the 
National Marine Environmental Policy Act of 1969, 42 U.S.C. 4321 et 
seq., for the Florida Keys National Sanctuary on this proposed rule. 
The text of the EA follows.

Environmental Assessment

I. Description of the Affected Environment

    The Dry Tortugas Banks are located at the westernmost extent of the 
Florida Keys. These banks are separated from the remainder of the Keys 
by a 24 meter deep channel. The Banks have a rim of Holocene coral reef 
development surrounding an inner basin containing several sandy islands 
including Loggerhead Key, Garden Key, Bush Key, and Hospital Key. A 
little-known deep-water coral reef, informally named Sherwood Forest, 
is found at Tortugas Bank. The seabed includes corals, sponges, and 
other delicate coral reef organisms.
    Human uses of the affected environment includes snorkeling and 
diving, shrimping, day tours on charter boats, and pleasure boating on 
private boats. All of these vessels are less than 50 meters in 
registered length and none have been documented as causing damage to 
the reef by anchoring.

II. Need for the Proposed Rule

    The region within the Sanctuary known as Tortugas Bank has 
traditionally been an anchoring area for large, foreign flag vessels 
holding up and waiting order to enter a port within the region.
    However, personnel from the adjacent Dry Tortugas National Park 
have noticed that in the past six months, vessels have begun to anchor 
on the Bank itself.
    On August 30, Florida Keys National Marine Sanctuary staff received 
a video from a recreational diver charter captain documenting anchoring 
damage caused by a large, foreign-flagged vessel anchored within state 
waters on the Tortugas Bank, within the Sanctuary.
    Shortly thereafter, Sanctuary biologists visited the reported 
anchoring site to conduct a biological assessment of the injury to the 
living coral reef. When they arrived on Tortugas Bank, there were four 
foreign ships ranging from over 400 to 800 feet in length anchored on 
the 60' deep coral reef bank. Although staff was unable to locate the 
original site which was reported in the video, they were able to assess 
and photo-document the reef damage caused by the four vessels.
    Staff noted significant damage to corals, sponges, and other 
delicate coral reef organisms. Wide swaths of barren seabed and 
overturned coral heads were evidence of the ongoing disruption to the 
coral reef community caused by the ships' anchors and anchor chains.
    The proposed rule would make permanent the temporary prohibition on 
anchoring by vessels 50 meters or greater in registered length in an 
area approximately 39.53 square nautical miles. Transit, fishing and 
all other activities currently allowed in the area would not be 
affected by this rule.
    NOAA has identified and recommended alternative anchor sites within 
approximately two nautical miles of the prohibited area. Vessels 
greater than 50 meters in registered length are already prohibited by 
the FKNMSPA from operating in certain other areas of the Sanctuary, 
referred to in that statute and Sanctuary regulations as Areas to be 
Avoided (15 CFR 922.164(a)).

III. Alternatives, Including the Proposed Action and Their 
Environmental Impacts

No Action
    One alternative is to take no action, thus maintaining the status 
quo. This alternative is not acceptable because the coral reef located 
at Tortugas Bank would continue to be injured or destroyed by the 
anchoring of vessels 50 meters or greater in length.
Prohibit Anchoring by Vessels 50 Meters or Greater in Registered Length 
on Tortugas Bank Within the Florida Keys National Marine Sanctuary
    The preferred alternative is to make permanent the temporary 
prohibition on anchoring by vessels 50 meters or greater in registered 
length on Tortugas Bank within the Florida Keys National Marine 
Sanctuary. This alternative would protect the coral reef at Tortugas 
Bank while not unduly restricting the passage and anchoring of vessels 
which have not been documented as having caused harm in the area.
Prohibit Anchoring by All Vessels on Tortugas Bank Within the Florida 
Keys National Marine Sanctuary
    This alternative, to prohibit anchoring by all vessels on Tortugas 
Bank within the Florida Keys National Marine Sanctuary would unduly 
restrict the vessels which have not been documented as having caused 
harm in the area. Vessels smaller than 50 meters in registered length 
have not been documented as having caused injury or loss of living 
coral on Tortugas Bank. Their anchoring gear is less massive in size, 
length and weight than that of vessels of 50 meters or greater in 
registered length.
    Current uses of the Tortugas Bank, west of the Dry Tortugas 
National Park, include snorkeling and diving, shrimping, day tours on 
charter boats, and pleasure boating on private boats. All of these 
vessels are less than 50 meters in registered length and none have been 
documented as causing damage to the reef by anchoring. To prohibit 
anchoring by these vessels on the Tortugas Bank, west of the Dry 
Tortugas National Park, would likely be an unreasonable economic burden 
on small businesses and an unnecessary impact on the public relative to 
the apparently minimal environmental benefit of such a restriction.
Extend the Area to be Avoided to Include Tortugas Bank West of the Dry 
Tortugas National Park
    Extending the existing statutory Area To Be Avoided to include 
Tortugas Bank west of the Dry Tortugas National Park is an alternative 
that was considered and rejected. This alternative would eliminate the 
safe passage and transit through the area by all vessels greater than 
50 meters registered length. The passage of vessels through this area 
has not been determined to be detrimental to the environment. Vessels 
50 meters or greater in registered length frequently pass through this 
area enroute to major Gulf Coast ports, including Galveston and 
Houston, Texas; Mobile, Alabama; New Orleans, Louisiana; Tampa, Florida 
and the ships transit this area enroute to the Panama Canal. The overly 
broad restriction that would be caused if this alternative was accepted 
would cause a great economic burden to the shipping industry, and 
therefore was not selected as the preferred alternative.

IV. List of Agencies and Persons Consulted

    In an effort to inform all affected parties of the temporary rule, 
NOAA sent electronic mail messages to major international shipping 
companies, and notified the U.S. Coast Guard which resulted in a Notice 
to Mariners. NOAA issued a press release which was reported by the 
media throughout the area. Sanctuary staff notified all international 
underwriters for the relevant shipping companies to apprise them of the 
temporary rule and soliciting their help in notifying their shipping 
clients. Additionally, Sanctuary staff contacted all the Pilots'

[[Page 6886]]

Associations around the Gulf Coast and solicited their help in 
spreading the word to the shipping companies about the rule. In 
addition, NOAA consulted with, and received approval from, the State of 
Florida. NOAA will continue to consult, as appropriate, with all 
relevant parties during the pendency of this rule.

End of Environmental Assessment

Executive Order 12866

    The Office of Management and Budget (OMB) has concurred that this 
rule is not significant within the meaning of Section 3(f) of Executive 
Order 12866.

Executive Order 12612: Federalism Assessment

    NOAA has concluded that this regulatory action does not have 
sufficient federalism implications sufficient to warrant preparation of 
a federalism assessment under Executive Order 12612.

Regulatory Flexibility Act

    This regulatory action if adopted as proposed is not expected to 
have a significant economic impact on a substantial number of small 
entities within the meaning of the Regulatory Flexibility Act, and the 
Assistant General Counsel for Legislation and Regulation of the 
Department of Commerce has so certified to the Chief Counsel for 
Advocacy of the Small Business Administration.
    This proposed rule would make permanent the temporary prohibition 
on anchoring by vessels 50 meters or greater in registered length in a 
relatively small, sensitive area. Alternative anchoring sites for 
vessels subject to this regulation are within close proximity, which 
should mitigate any potential economic impact on such vessels since the 
cost of the time and fuel to maneuver to this area and the additional 
time and labor in letting out and pulling in the anchor chain should be 
minimal. Vessels smaller than 50 meters in registered length have not 
been documented as having caused injury or loss of living coral on 
Tortugas Bank and, therefore, would not be subject to this rule's 
prohibition. Accordingly, an initial Regulatory Flexibility Analysis 
was not prepared.

Paperwork Reduction Act

    This proposed rule would not impose an information collection 
requirement subject to review and approval by OMB under the Paperwork 
Reduction Act of 1980, 44 U.S.C. 3500 et seq.

List of Subjects in 15 CFR Part 922

    Administrative practice and procedure, Coastal zone, Education, 
Environmental protection, Marine resources, Natural resources, 
Penalties, Recreation and recreation areas, Reporting and recordkeeping 
requirements, Research.

(Federal Domestic Assistance Catalog Number 11.429, Marine Sanctuary 
Program)

    Dated: February 5, 1998.
Captain Evelyn J. Fields,
Deputy Assistant Administrator for Ocean Services and Coastal Zone 
Management.

    Accordingly, for the reasons set forth above, 15 CFR Part 922, 
Subpart P is proposed to be amended as follows:

PART 922--[AMENDED]

    1. The authority citation for Part 922 continues to read as 
follows:

    Authority: 16 U.S.C. 1431 et seq.

Subpart P--Florida Keys National Marine Sanctuary

    1. Section 922.164 is amended by adding the following paragraph (g) 
as follows:


Sec. 922.164  Additional activity regulations by Sanctuary area.

* * * * *
    (g) Anchoring on Tortugas Bank. Vessels 50 meters or greater in 
registered length are prohibited from anchoring on the Tortugas Bank. 
The coordinates of the area on the Tortugas Bank, west of the Dry 
Tortugas National Part, closed to anchoring by vessels 50 meters or 
greater in registered length are:

(1) 24 deg.45.75'N 82 deg.54.40'W
(2) 24 deg.45.60'N 82 deg.54.40'W
(3) 24 deg.39.70'N 83 deg.00.05'W
(4) 24 deg.32.00'N 83 deg.00.05'W
(5) 24 deg.37.00'N 83 deg.06.00'W
(6) 24 deg.40.00'N 83 deg.06.00'W

[FR Doc. 98-3405 Filed 2-10-98; 8:45 am]
BILLING CODE 3510-08-M