[Federal Register Volume 63, Number 200 (Friday, October 16, 1998)]
[Rules and Regulations]
[Pages 55553-55557]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 98-27733]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AE47


Endangered and Threatened Wildlife and Plants; Final Rule to 
Establish an Additional Manatee Sanctuary in Kings Bay, Crystal River, 
Florida

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Final rule.

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SUMMARY: With this final rule, the Fish and Wildlife Service (Service) 
establishes an additional West Indian manatee (Trichecus manatus) 
sanctuary in Citrus County, Florida, adjacent to Kings Bay/Crystal 
River at the confluence of the Three Sisters Spring run with a 
residential canal, and prohibits all waterborne activities in the 
sanctuary for a period of November 15 through March 31 of each year. 
This final action will prevent the taking of manatees by harassment 
resulting from waterborne activities ``which includes, but is not 
limited to swimming, diving (including skin and scuba diving), 
snorkeling, water skiing, surfing, fishing, the use of water vehicles, 
and dredging and filling operations'' during the winter months. This 
increases the number of sanctuaries in Kings Bay from six to seven and 
has been initiated to prevent harassment caused by increasing public 
use at this site. This action is taken under the authority of the 
Endangered Species Act of 1973, as amended, and the Marine Mammal 
Protection Act of 1972, as amended.

DATES: This rule is effective November 16, 1998.

ADDRESSES: The complete file for this rule is available for inspection, 
by appointment, during normal business hours at the Jacksonville Field 
Office, U.S. Fish and Wildlife Service, 6620 Southpoint Drive South, 
Suite 310, Jacksonville, Florida 32216-0912.

FOR FURTHER INFORMATION CONTACT: Robert O. Turner at the above address, 
(904/232-2580, ext.117); or Vance Eaddy, Senior Resident Agent, U.S. 
Fish and Wildlife Service (813/893-3651); or Elizabeth Souheaver, 
Refuge Manager, Chassahowitzka National Wildlife Refuge, U.S. Fish and 
Wildlife Service (352/563-2088).

SUPPLEMENTARY INFORMATION:

Background

    Crystal River is a tidal river on the west coast of Florida. 
Forming the headwaters of Crystal River is Kings Bay, a lake-like body 
of water fed by numerous freshwater springs. The Kings Bay springs 
constitute one of the most important natural warm-water refuges for 
manatees, a federally listed endangered species. More than 250 animals 
may seek refuge in the Bay's warm waters during winter cold periods. 
With the winter presence of manatees and its sheltered, warm and clear 
waters. Kings Bay also attracts large numbers of waterborne users 
(boaters, recreational divers, snorkelers, and swimmers) most of whom 
seek out manatees for a close viewing experience. The influx of 
visitors, primarily there to see and interact with manatees, provides a 
major economic impact to the Crystal River community.
    Large aggregations of manatees apparently did not exist in Kings 
Bay until recent times (Beeler and O'Shea 1988). The first careful 
counts were made in the late 1960s. Since then manatee numbers have 
increased significantly. In 1967-1968, Hartman (1979) counted 38 
animals. By 1981-1982, the maximum winter count increased to 114 
animals (Powell and Rathbun 1984). In December 1994, the count was 271 
(U.S. Fish and Wildlife Service, unpublished data) and in January 1998, 
the count was 298. Both births and immigration of animals from other 
areas have contributed to the increases in manatee numbers at Crystal 
River.
    The second revision of the Florida Manatee Recovery Plan (U.S. Fish 
and Wildlife Service, 1995) identifies the need to minimize disturbance 
and harassment of manatees in the wild. This concern for the welfare of 
manatees in Kings Bay has resulted in the establishment of a series of 
sanctuary areas to protect manatees from any potential negative impacts 
of human activities. The first three sanctuaries were created in 1980, 
encompassing a total of about 10 acres in Kings Bay. These were closed 
to all human access

[[Page 55554]]

each winter from November 15 to March 31 and provided manatees with 
areas where they could retreat from waterborne users. To better 
administer and protect the Bay's manatee habitat, the Service purchased 
several islands associated with the sanctuaries in 1983 and established 
the Crystal River National Wildlife Refuge. During the 1980's, the 
number of manatees and divers increased steadily, resulting in the need 
for additional manatee sanctuaries. In 1994, the Service established 
three additional sanctuaries and expanded an existing sanctuary. The 
six sanctuaries encompass approximately 39 acres within Kings Bay.
    The Kings Bay manatee sanctuary system provides significant 
protection to the more than 250 manatees that use this area as a winter 
warm-water refuge. With the large number of manatees using Kings Bay 
and an increasing number of recreational divers and snorkelers coming 
to Crystal River to seek close encounters with manatees, another 
problem area outside the existing sanctuary system has been identified.
    Since the establishment of the three most recent sanctuaries, 
reports of waterborne users harassing manatees and causing manatees to 
leave the Three Sisters Spring run area has been documented by 
researchers, refuge staff and concerned citizens. The Save the Manatee 
Club and the U.S. Marine Mammal Commission have urged the Service to 
act to protect manatees utilizing the Three Sisters Spring run area. 
Dive shop operations have acknowledged that there is a manatee 
harassment problem in the area around Three Sisters Spring.
    Prior to the winter of 1996-97, the Service and local interest 
groups met separately with local dive shop owners to discuss the 
harassment issue and the feasibility of establishing a new sanctuary. 
There was a consensus that a sanctuary was needed and that it would be 
more effective if it was developed through a local city or county 
ordinance. Representatives of each of the local dive shops wrote 
letters recognizing the need for a small sanctuary near Three Sisters 
Spring and recommended that the regulations be promulgated locally. To 
date, the local government has not adopted regulation(s) to establish a 
sanctuary at this site.
    The Service funded a manatee and human interaction study at Three 
Sisters Spring (January 23-February 17, 1997) which confirmed that 
harassment was occurring and documented instances in which manatees 
left the warm waters at the confluence of the spring run and the 
residential canal when divers, snorkelers and/or swimmers arrived 
(Wooding 1997). The Service is concerned that these animals may be 
leaving earlier than if they were left undisturbed.

Reasons for Determination

    In deciding to implement the emergency rule and proceed with a 
proposed rule, the Service carefully assessed the best available 
information, including the aforementioned study to evaluate manatee and 
human interactions at Three Sisters Spring. The study clearly 
documented a manatee harassment problem at the site. With more than 250 
manatees using the sanctuary system along with an increasing number of 
visitors who seek close encounters with manatees, manatees are 
experiencing more frequent disturbance at Three Sisters Spring. Without 
sufficient space to rest free from harassment, a significant proportion 
of the manatees depending upon the Kings Bay springs could be at 
considerable risk should they be driven away from essential warm water 
areas. Based on this evaluation, the preferred action is to establish 
an additional sanctuary at the confluence of the Three Sisters Spring 
run and a residential canal in Kings Bay, Crystal River, Citrus County, 
Florida.
    Due to insufficient time to complete preparations for establishing 
a permanent sanctuary before cold weather would arrive in November 
1997, the Service proceeded with an emergency rule (November 26, 1997 
(62 FR 63036)) that established an interim manatee sanctuary at Three 
Sisters Spring for the November 24, 1997, through March 23, 1998, time 
period. The emergency sanctuary was marked with a buoy system similar 
to the other sanctuaries. To date, weekly aerial surveys by refuge 
biologists have documented that manatee use of the sanctuary has 
remained consistent and public use has remained at high numbers. The 
public has respected the boundaries as is reflected by few enforcement 
violations at the sanctuary.
    A proposed rule to establish a permanent manatee sanctuary at Three 
Sisters Spring was simultaneously published on November 26, 1997 (62 FR 
63062) with the emergency rule. The proposed rule offered a public 
hearing, if requested, and announced a 60-day public comment period 
that ended January 28, 1998. Also, on November 17 and 28, 1997, legal 
notices were placed in the Citrus County Chronicle and The St. 
Petersburg Times Citrus Edition, respectively, advertising the 
emergency and proposed rules and soliciting public comment.
    The authority to establish manatee protection areas is provided by 
the Endangered Species Act of 1973, as amended, and the Marine Mammal 
Protection Act of 1972, as amended, and is codified in 50 CFR part 17, 
subpart J. Under subpart J, the Director may establish, by regulation, 
manatee protection areas whenever he/she determines there is 
substantial evidence that there is imminent danger of a taking 
(including harassment) of one or more manatees, and that such 
establishment is necessary to prevent such a taking.
    The sanctuary is located on the west side of the confluence of 
Three Sisters Spring run and the residential canal, Kings Bay, Crystal 
River, Citrus County, Florida. The sanctuary is less than one quarter 
acre in size. A standard survey of the sanctuary area has been 
performed. The new area will be delineated with buoys, as are the 
existing sanctuaries.

Summary of Comments and Recommendations

    We received a total of seven letters during the comment period. All 
were supportive and recommended that the Service establish a permanent 
sanctuary as proposed. The U.S. Marine Mammal Commission's letter 
supported the Service's proposal, but stated that they were concerned 
that establishing the sanctuary through local efforts (city, county) 
would create the potential for inconsistencies in rule provisions and 
enforcement actions, such as the amounts of penalties for violation. 
Although the Service indicated in the proposed rule that it would leave 
the option open for local government to establish a sanctuary at Three 
Sisters Spring, this did not occur and the Service has proceeded with 
this final rule. The Marine Mammal Commission letter also commended the 
Service for the progress it is making to address manatee harassment 
problems at Kings Bay and suggested several additional measures to 
address the harassment issue. To further reduce harassment, the Service 
has increased public outreach efforts designed to educate boaters, 
swimmers, and divers on how they can avoid harassing or disturbing 
manatees. The Service has established a Manatee Education Center 
located near Crystal River at the Homossassa Springs State Park. The 
Service, in cooperation with the Save the Manatee Club and the 
Professional Association of Diving Instructors, has developed a new 
educational brochure entitled If You Love Me, Don't Disturb Me. This 
brochure specifically addresses the

[[Page 55555]]

issue of swimmer interactions with manatees. It is expected that over 
50,000 copies will be distributed to the public during 1998.
    In light of the supportive comments received from the media, 
citizens, and local dive shops, and the fact that local city and county 
governments did not step forward to establish the sanctuary themselves, 
the Service has concluded that it is in the best interest of the 
manatee to make the emergency sanctuary permanent. This is needed to 
accommodate the increase in the number of manatees using the Three 
Sisters Spring area as a warm water refuge, and to offset harassment 
from the increasing public use. The sanctuary system is essential to 
ensure adequate undisturbed natural areas in Kings Bay, where manatees 
can meet their needs, including warm water, food, and areas for resting 
and socializing. No changes to the proposed rule are necessary or 
warranted and, since there was no request for a public hearing, the 
Service is proceeding with this final rule action.

National Environmental Policy Act

    The Service has determined this action qualifies as a categorical 
exclusion in accordance with 516 DM 2, Appendix 1 and 516 DM 5, 
Appendix 1. No further National Environmental Policy Act documentation 
will, therefore, be made.

Required Determinations

Regulatory Planning and Review

    In accordance with the criteria in Executive Order 12866, this rule 
is not a significant regulatory action and was not subject to review by 
the Office of Management and Budget.
    a. This rule will not have an annual economic effect of $100 
million or adversely affect an economic sector, productivity, jobs, the 
environment, or other units of government. A cost-benefit and economic 
analysis is not required. It is not expected that any significant 
impacts would result from the establishment of a sanctuary of less than 
one quarter acre in size at Three Sisters Spring. The dive shops, tour 
operators and public are supportive of the sanctuary and respected the 
boundaries of the emergency rule, as was reflected by few enforcement 
violations at the emergency sanctuary.
    b. This rule will not create inconsistencies with other agencies' 
actions. The precedent to establish manatee sanctuaries in Kings Bay 
was established when the first three sanctuaries were created in 1980, 
encompassing a total of about 10 acres in Kings Bay. These were closed 
to all human access each winter from November 15 to March 31 and 
provided manatees with areas where they could retreat from waterborne 
users. In 1994, the Service established three additional sanctuaries 
and expanded an existing sanctuary. The six sanctuaries encompass 
approximately 39 acres within Kings Bay. The Service does not believe 
that the establishment of a seventh manatee sanctuary at Three Sisters 
Spring, which will be less than one quarter acre in size, would 
conflict with existing or proposed human activities or hinder public 
utilization of the Three Sisters Spring area. Over 400 acres of 
waterways in Kings Bay are available for public use. The emergency 
sanctuary was marked with a buoy system similar to the other 
sanctuaries from November 26, 1997, until March 26, 1998. Weekly aerial 
surveys by refuge biologists documented that manatee use of the 
sanctuary remained consistent and that the public use also remained at 
high numbers. The public respected the boundaries as was reflected by 
few enforcement violations at the sanctuary.
    c. This final rule will not materially affect entitlements, grants, 
user fees, loan programs, or the rights and obligations of their 
recipients. There are minimal restrictions to existing human uses of 
the Three Sisters Spring area as a result of this rule, but the 
restriction has been shown to enhance manatee viewing opportunities. No 
entitlements, grants, user fees, loan programs or the rights and 
obligations of their recipients are expected to occur.
    d. This rule will not raise novel legal or policy issues. The 
Service has previously established six other manatee sanctuaries in 
Kings Bay--three in 1980, their expansion and the creation of the 
Crystal River National Wildlife Refuge in 1983 and three new 
sanctuaries and the expansion of an existing sanctuary in 1994. This 
final action will reduce the need for enforcement actions to prevent 
the taking of manatees by harassment resulting from human-related 
waterborne activities such as swimming, diving, snorkeling, fishing, 
the use of water vehicles and dredging and filling operations in the 
Three Sisters Spring area.

Regulatory Flexibility Act

    The Department of the Interior certifies that this rule will not 
have a significant economic effect on a substantial number of small 
entities as defined under the Regulatory Flexibility Act (5 U.S.C. 601 
et seq.). Neither a Regulatory Flexibility Analysis nor a Small Entity 
Compliance Guide is required. The additional manatee sanctuary in 
King's Bay will be less than one quarter acre in size, bringing the 
total area of seasonally-restricted manatee sanctuaries in King's Bay 
to approximately 40 acres. Over 400 acres of waterways in King's Bay 
are available for public use and local dive shops have expressed 
support for an additional manatee sanctuary at Three Sisters Spring.

Small Business Regulatory Enforcement Fairness Act

    This rule is not a major rule under 5 U.S.C. 804(2), the Small 
Business Regulatory Enforcement Fairness Act. This rule will restrict 
waterborne activities seasonally in less than one quarter acre of 
waterway. This will bring the total acreage in seasonally restricted 
sanctuaries in Kings Bay to approximately 40 acres, leaving over 400 
acres in Kings Bay available for public use. Thus, this rule should 
have little or no effect on local dive shops, etc. This rule:
    a. Does not have an annual effect on the economy of $100 million or 
more.
    b. Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions.
    c. Does not have significant adverse effects on competition, 
employment, investment, productivity, innovation, or the ability of 
U.S.-based enterprises to compete with foreign-based enterprises.

Unfunded Mandates Reform Act

    In accordance with the Unfunded Mandates Reform Act (2 U.S.C. 1501, 
et seq.):
    a. This rule will not ``significantly or uniquely'' affect small 
governments. A Small Government Agency Plan is not required. County and 
local governments abstained from developing a local sanctuary ordinance 
and opted for the Service to establish the sanctuary.
    b. This rule will not produce a Federal mandate of $100 million or 
greater in any year, i.e., it is not a ``significant regulatory 
action'' under the Unfunded Mandates Reform Act.

Takings

    In accordance with Executive Order 12630, the rule does not have 
significant takings implications. A takings implication assessment is 
not required. The sanctuary is located over state owned submerged 
bottoms. This sanctuary, as have the previous six manatee sanctuaries 
that are adjacent to private lands, allows property owners navigational 
access to their property

[[Page 55556]]

during the November 15 through March 31 closures.

Federalism

    In accordance with Executive Order 12612, the rule does not have 
significant Federalism effects. A Federalism assessment is not 
required. This rule will not have substantial direct effects on the 
States, in their relationship between the Federal Government and the 
States, or on the distribution of power and responsibilities among the 
various levels of government. The Service coordinated with the State of 
Florida on the development of a manatee sanctuary at Three Sisters 
Spring.

Civil Justice Reform

    In accordance with Executive Order 12988, the Office of the 
Solicitor has determined that the rule does not unduly burden the 
judicial system and does not meet the requirements of sections 3(a) and 
3(b)(2) of the Order.

Paperwork Reduction Act

    This regulation does not contain collections of information that 
require approval by the Office of Management and Budget under 44 U.S.C. 
3501 et seq. The regulation does not impose record keeping or reporting 
requirements on State or local governments, individuals, businesses, or 
organizations.

Government-to-Government Relationship With Tribes

    In accordance with the President's memorandum of April 29, 1994, 
``Government-to-Government Relations with Native American Tribal 
Governments'' (59 FR 22951) and 512 DM 2, we have evaluated possible 
effects on Federally recognized Indian tribes and have determined that 
there are no effects.

References Cited

Beeler, E.I. and T.J. O'Shea. 1988. Distribution and mortality of 
the West Indian manatee (Trichechus manatus) in southeastern United 
States: a compilation and review of recent information. Prepared by 
the U.S. Fish and Wildlife Service for the U.S. Army Corps of 
Engineers. U.S. Natl. Tech. Info. Serv., Springfield, Virginia PB 
88-207 980/AS. 613 pp.
Hartman, D.S. 1979. Ecology and behavior of the manatee (Trichechus 
manatus) in Florida. Am. Soc. Mamm. Spec. Pub. No. 5. 153 pp.
Powell, J.A. and G.B. Rathbun. 1984. Distribution and abundance of 
manatees along the northern coast of the Gulf of Mexico. Northeast 
Gulf Sci. 7:1-2.
Wooding, J. 1997. An assessment of manatee behavior relative to 
interactions with humans at Three Sisters Springs, Crystal River, 
Florida. A report submitted to the U.S. Fish and Wildlife Service, 
Jacksonville, Florida. 65 pp.
U.S. Fish and Wildlife Service. 1995. Florida Manatee Recovery Plan 
Second Revision. U.S. Fish and Wildlife Service, Atlanta, Georgia. 
160 pp.

Author

    The primary author of this final rule is Robert O. Turner, Manatee 
Coordinator (see ADDRESSES section above).

Authority

    The authority to establish manatee protection areas is provided by 
the Endangered Species Act of 1973, as amended (16 U.S.C. 1531 et 
seq.), and the Marine Mammal Protection Act of 1972 (16 U.S.C. 1361-
1407), as amended.

List of Subjects in 50 CFR Part 17

    Endangered and threatened species, Exports, Imports, Reporting and 
recordkeeping requirements, Transportation.

Regulation Promulgation

    Accordingly, the Service amends part 17, subchapter B of chapter I, 
title 50 of the Code of Federal Regulations, as follows:

PART 17--[AMENDED]

    1. The authority citation for part 17 continues to read as follows:

    Authority: 16 U.S.C. 1361-1407; 16 U.S.C. 1531-1544; 16 U.S.C. 
4201-4245; Pub.L. 99-625, 100 Stat. 3500; unless otherwise noted.

    2. Amend Sec. 17.108 by adding paragraph (a)(7) and revising the 
map at the end of the section to read as follows:


Sec. 17.108  List of designated manatee protection areas.

    (a) * * *

    (7) A tract of submerged land, lying in Section 28, Township 18 
South, Range 17 East, Tallahassee Meridian, Citrus County, Florida, 
more particularly described as follows: For a point of reference, 
commence at the southwest corner of said Section 28 (N-1651797.56 E-
463846.96) Florida Coordinate System, West Zone, NAD 1983, N.G.S. 
adjustment of 1990 (expressed in U.S. survey feet); thence N. 
40 deg.08'47'' E., 5551.65 feet (5551.57 feet grid distance) to an 
aluminum monument stamped ``PSM 3341 1998'' (N1656009.01 E-
467449.35) marking the Point of Beginning; thence N. 77 deg.06'49'' 
E., 71.84 feet to an aluminum monument stamped ``PSM3341 1998'' (N-
1656025.04, N-467519.38); thence S. 04 deg.37'09'' W., 29.88 feet to 
an aluminum monument stamped ``PSM 3341 1998'' (N-1655995.26 E-
467516.98); thence N. 78 deg.29'57'' W., 69.01 feet to the point of 
beginning; to be known as the Three Sisters Spring Sanctuary.
* * * * *

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[GRAPHIC] [TIFF OMITTED] TR16OC98.000



    Dated: October 8, 1998.
Jamie Rappaport Clark,
Director, Fish and Wildlife Service.
[FR Doc. 98-27733 Filed 10-15-98; 8:45 am]
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