[Federal Register Volume 69, Number 67 (Wednesday, April 7, 2004)]
[Rules and Regulations]
[Pages 18279-18291]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 04-7828]


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DEPARTMENT OF THE INTERIOR

Fish and Wildlife Service

50 CFR Part 17

RIN 1018-AT65


Endangered and Threatened Wildlife and Plants; Establishment of 
an Additional Manatee Protection Area in Lee County, FL

AGENCY: Fish and Wildlife Service, Interior.

ACTION: Emergency rule.

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SUMMARY: We, the Fish and Wildlife Service (Service), take emergency 
action to establish an additional manatee protection area in Lee 
County, Florida. This action is authorized under the Endangered Species 
Act of 1973, as amended (ESA), and the Marine Mammal Protection Act of 
1972, as amended (MMPA), based on our determination that there is 
substantial evidence of imminent danger of taking one or more manatees 
and the emergency designation of a manatee refuge is necessary to 
prevent such taking. In evaluating the need for emergency designation 
of an additional manatee protection area, we considered the biological 
needs of the manatee, the level of take at these sites, and the 
likelihood of additional take of manatees due to human activity. Within 
10 days after establishing a protection area in accordance with this 
section, the Service will begin proceedings to establish these areas in 
accordance with 50 CFR 17.103. The area established by this rule will 
be a manatee refuge as defined by 50 CFR 17.102 and watercraft will be 
required to proceed at either ``slow speed'' or at not more than 25 
miles per hour, on an annual or seasonal basis, as marked. While 
adjacent property owners must comply with the speed restrictions, the 
designation will not preclude ingress and egress to private property.
    We anticipate making a final determination of these sites in a 
final rule within the 120-day effective period unless State or local 
governments implement measures at these sites that would, in our view, 
make such establishment unnecessary to prevent the taking of one or 
more manatees.

DATES: In accordance with 50 CFR 17.106, the effective date for this 
action will be April 7, 2004, which will also be the date of posting of 
the sites, and publication in the following newspapers: Ft Myers News-
Press, Cape Coral Daily Breeze, and Naples Daily News. This emergency 
action will remain in effect for 120 days after publication in the 
Federal Register or until August 5, 2004.

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.

FOR FURTHER INFORMATION CONTACT: David Hankla or Chuck Underwood (see 
ADDRESSES section), telephone 904/232-2580 or visit our Web site at 
http://northflorida.fws.gov. In the event that our Internet connection 
is not functional, please contact the Service by mail (see ADDRESSES) 
or telephone (904/232-2580), for alternative methods to obtain further 
information related to this issue.

SUPPLEMENTARY INFORMATION:

Background

    The West Indian manatee (Trichecus manatus) is federally listed as 
an endangered species under the ESA (16 U.S.C. 1531 et seq.) (32 FR 
4001) and the population is further protected as a depleted stock under 
the MMPA (16 U.S.C. 1361-1407). Manatees reside in freshwater, 
brackish, and marine habitats in coastal and inland waterways of the 
southeastern United States. The majority of the population can be found 
in waters of the State of Florida throughout the year, and nearly all 
manatees winter in peninsular Florida during the winter months. The 
manatee is a cold-intolerant species and requires warm water 
temperatures generally above 20[deg] Celsius (68[deg] Fahrenheit) to 
survive during periods of cold weather. During the winter months, most 
manatees rely on warm water from natural springs and industrial 
discharges for warmth. In warmer months, they expand their range and 
are seen rarely as far north as Rhode Island on the Atlantic Coast and 
as far west as Texas on the Gulf Coast.
    Recent information indicates that the overall manatee population 
has grown since the species was listed (U.S. Fish and Wildlife Service 
2001). However, in order for us to determine that an endangered species 
has recovered to a point that it warrants removal from the List of 
Endangered and Threatened Wildlife and Plants, the species must have 
improved in status to the point at which listing is no longer 
appropriate under the criteria set out in section 4(a)(1) of the ESA.
    Human activities, and particularly waterborne activities, can 
result in the take of manatees. Take, as defined by the ESA, means to 
harass, harm, pursue, hunt, shoot, wound, kill, trap, capture, collect, 
or to attempt to engage in any such conduct. Harm means an act which 
kills or injures wildlife (50 CFR 17.3). Such an act may include 
significant habitat modification or degradation that kills or injures 
wildlife by significantly impairing essential behavioral patterns, 
including breeding, feeding, or sheltering. Harass includes intentional 
or negligent acts or omissions that create the likelihood of injury to 
wildlife by annoying it to such an extent as to significantly disrupt 
normal behavioral patterns, which include, but are not limited to, 
breeding, feeding, or sheltering (50 CFR 17.3).
    The MMPA sets a general moratorium, with certain exceptions, on the 
take and importation of marine mammals and marine mammal products and 
makes it unlawful for any person to take, possess, transport, purchase, 
sell, export, or offer to purchase, sell, or export, any marine mammal 
or marine mammal product unless authorized. Take, as defined by section 
3(13) of the MMPA, means to harass, hunt, capture, or kill, or attempt 
to harass, hunt, capture, or kill any marine mammal. Harassment is 
defined under the MMPA as any act of pursuit, torment, or annoyance 
which--(i) Has the potential to injure a marine mammal or marine mammal 
stock in the wild; or (ii) has the potential to disturb a marine mammal 
or marine mammal stock in the wild by causing disruption of behavioral 
patterns, including, but not limited to, migration, breathing, nursing, 
breeding, feeding, or sheltering.
    Human use of the waters of the southeastern United States has 
increased dramatically as a function of residential growth and 
increased visitation. This phenomenon is particularly evident in the 
State of Florida. The population of Florida has grown by 124 percent 
since 1970 (6.8 million to 15.2 million, U.S. Census Bureau) and is 
expected to exceed 18 million by 2010, and 20 million by the year 2020. 
According to a report by the Florida Office of Economic and Demographic 
Research (2000), it is

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expected that, by the year 2010, 13.7 million people will reside in the 
35 coastal counties of Florida. In a parallel fashion to residential 
growth, visitation to Florida has increased dramatically. It is 
expected that Florida will have 83 million visitors annually by the 
year 2020, up from 48.7 million visitors in 1998. In concert with this 
increase of human population growth and visitation is the increase in 
the number of watercraft that travel Florida waters. In 2001, 943,611 
vessels were registered in the State of Florida. This represents an 
increase of 42 percent since 1993.
    The large increase in human use of manatee habitat has had direct 
and indirect impacts on this endangered species. Direct impacts include 
injuries and deaths from watercraft collisions, deaths and injuries 
from water control structure operations, lethal and sublethal 
entanglements with commercial and recreational fishing gear, and 
alterations of behavior due to harassment. Indirect impacts include 
habitat destruction and alteration, including decreases in water 
quality throughout some aquatic habitats, decreases in the quantity of 
warm water in natural spring areas, the spread of marine debris, and 
general disturbance from human activities.
    Federal authority to establish protection areas for the Florida 
manatee is provided by the ESA and the MMPA, and is codified in 50 CFR 
part 17, subpart J. We have discretion, by regulation, to establish 
manatee protection areas whenever there is substantial evidence showing 
such establishment is necessary to prevent the taking of one or more 
manatees. In accordance with 50 CFR 17.106, areas may be established on 
an emergency basis when such takings are imminent.
    We may establish two types of manatee protection areas--manatee 
refuges and manatee sanctuaries. A manatee refuge, as defined in 50 CFR 
17.102, is an area in which we have determined that certain waterborne 
activities would result in the taking of one or more manatees, or that 
certain waterborne activities must be restricted to prevent the taking 
of one or more manatees, including but not limited to, a taking by 
harassment. A manatee sanctuary is an area in which we have determined 
that any waterborne activity would result in the taking of one or more 
manatees, including but not limited to, a taking by harassment. A 
waterborne activity is defined as including, but not limited to, 
swimming, diving (including skin and scuba diving), snorkeling, water 
skiing, surfing, fishing, the use of water vehicles, and dredge and 
fill activities.

Reasons for Emergency Determination

    In deciding to implement this emergency rule, we assessed the 
effects of a recent State court ruling overturning critically 
important, State-designated manatee protection zones in Lee County 
(State of Florida Fish and Wildlife Conservation Commission vs. William 
D. Wilkinson, Robert W. Watson, David K. Taylor, James L. Frock (2 
Cases), Jason L. Fluharty, Kenneth L. Kretsh, Harold Stevens, Richard 
L. Eyler, and John D. Mills), as well as the best available information 
to evaluate manatee and human interactions in these areas.
    Manatees are especially vulnerable to fast-moving power boats. The 
slower a boat is traveling, the more time a manatee has to avoid the 
vessel and the more time the boat operator has to detect and avoid the 
manatee. Nowacek et al. (2000) documented manatee avoidance of 
approaching boats. Wells et al. (1999) confirmed that, at a response 
distance of 20 meters, a manatee's time to respond to an oncoming 
vessel increased by at least 5 seconds if the vessel was required to 
travel at slow speed. Therefore, the potential for take of manatees can 
be greatly reduced if boats are required to travel at slow speed in 
areas where manatees can be expected to occur.
    The water bodies encompassed in this emergency designation receive 
extensive manatee use either on a seasonal or year-round basis as 
documented in radio telemetry and aerial survey data (FWCC 2003). The 
areas contain feeding habitats and serve as travel corridors for 
manatees (FWCC 2003). They have also been regulated at either slow 
speed or with a 25-mile-per-hour speed limit by State government since 
1999. However, a recent challenge to citations for violations of the 
State speed zone regulations has resulted in a State court voiding 
these State zones. Without this emergency Federal designation, 
watercraft can be expected to travel at high speeds in areas frequented 
by manatees, which would result in the take of one or more manatees. In 
fact, boat operators could inadvertently be encouraged to travel at 
high speeds. While the State court invalidated speed limits in the 
areas adjacent to navigation channels, it did not invalidate the 25-
mile-per-hour speed limit in the navigation channels that traverse the 
affected area. Therefore, the speed limit in the navigation channel is 
now lower than that of the surrounding, shallower areas. As a result, 
shallow-draft high-speed boats capable of traveling outside the 
navigation channels can be expected to be operated at high speeds 
(greater than 25 miles per hour) in the areas more likely to be 
frequented by manatees.
    There is a history of manatee mortalities in the area as a result 
of collisions with watercraft. At least 14 carcasses of manatees killed 
in collisions with watercraft have been recovered in or immediately 
adjacent to the designated areas since 1999 (FWCC 2003), and an 
additional carcass was recently recovered in close proximity to the 
site following the State court action. Necropsy revealed that the 
animal died of wounds from a boat collision. In areas of more seasonal 
use by manatees, the slow speed requirements begin on April 1. Without 
the emergency designation, these areas would not receive the needed 
protection because of the time necessary to complete the normal 
rulemaking process.
    For these reasons, we believe that there is imminent danger of take 
of one or more manatees in these areas and emergency designation of a 
manatee refuge is necessary to prevent such taking. Manatees utilize 
these areas, there is a history of take at these sites, future take is 
imminent, protection measures are insufficient, and we do not 
anticipate any alternative protection measures being enacted by State 
or local government in sufficient time to reduce the likelihood of take 
occurring.

Effective Date

    We are making this rule effective upon publication. In accordance 
with the Administrative Procedure Act, we find good cause as required 
by 5 U.S.C. 553(d)(3) to make this rule effective immediately upon 
publication in the Federal Register. As discussed under ``Reasons for 
Emergency Determination,'' we need to establish this manatee protection 
area immediately. Any delay in making this manatee refuge effective 
would result in further risks of manatee mortality, injury and 
harassment during the period of delay. In view of the finding of 
substantial evidence that taking of manatees is imminent and in fact 
has already occurred in or in close proximity to the site, we believe 
good cause exists to make this rule effective upon publication. For the 
same reasons, we also believe that we have good cause under 5 U.S.C. 
553(b)(3)(B) to issue this rule without notice and public procedure. We 
believe such emergency action is in the public interest because of the 
imminent threat to manatees and the time required to complete the 
standard rulemaking process would probably result in additional take of 
manatees. This rule does not supersede

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any more stringent State or local regulations.

Future Federal Actions

    Once this emergency rule is in effect, the emergency designation is 
temporary and applies to these areas for only 120 days. We believe the 
danger to manatees due to watercraft collisions in the Pine Island-
Estero Bay area is not only imminent, but also ongoing and year-round. 
Accordingly, we are preparing a proposed rule to establish an 
additional manatee protection area in Lee County, Florida, in 
accordance with 50 CFR 17.103. We anticipate publishing a proposed rule 
by the end of May 2004.

Definitions

    Planing means riding on or near the water's surface as a result of 
the hydrodynamic forces on a watercraft's hull, sponsons (projections 
from the side of a ship), foils, or other surfaces. A watercraft is 
considered on plane when it is being operated at or above the speed 
necessary to keep the vessel planing.
    Slow speed means the speed at which a watercraft proceeds when it 
is fully off plane and completely settled in the water. Due to the 
different speeds at which watercraft of different sizes and 
configurations may travel while in compliance with this definition, no 
specific speed is assigned to slow speed. A watercraft is not 
proceeding at slow speed if it is: (1) On a plane, (2) in the process 
of coming up on or coming off of plane, or (3) creating an excessive 
wake. A watercraft is proceeding at slow speed if it is fully off plane 
and completely settled in the water, not creating an excessive wake.
    Wake means all changes in the vertical height of the water's 
surface caused by the passage of a watercraft, including a vessel's bow 
wave, stern wave, and propeller wash, or a combination of these.

Area Designated as a Manatee Refuge by Emergency Rule

Pine Island-Estero Bay Manatee Refuge

    The Pine Island-Estero Bay Manatee Refuge encompasses water bodies 
in Lee County including portions of Matalacha Pass and San Carlos Bay 
south of Green Channel Marker ``77'' and north of the Intracoastal 
Waterway, portions of Pine Island Sound in the vicinity of York and 
Chino Islands, portions of Punta Rassa Cove and Shell Creek in San 
Carlos Bay and the mouth of the Caloosahatchee River, and portions of 
Estero Bay and associated water bodies. These water bodies are 
designated, as posted, as either slow speed or with a speed limit of 25 
miles per hour, on either a seasonal or annual basis. Legal 
descriptions and maps are provided in the ``Regulation Promulgation'' 
section of this notice.

Clarity of the Rule

    Executive Order 12866 requires each agency to write regulations/
notices that are easy to understand. We invite your comments on how to 
make this emergency rule easier to understand, including answers to 
questions such as the following: (1) Are the requirements in the 
emergency rule clearly stated? (2) Does the emergency rule contain 
unnecessary technical language or jargon that interferes with the 
clarity? (3) Does the format of the emergency rule (grouping and order 
of sections, use of headings, paragraphing, etc.) aid or reduce its 
clarity? (4) Is the description of the emergency rule in the 
SUPPLEMENTARY INFORMATION section of the preamble helpful in 
understanding the proposed rule? (5) What else could we do to make the 
emergency rule easier to understand?
    Send a copy of any comments that concern how we could make this 
emergency rule easier to understand to: Office of Regulatory Affairs, 
Department of the Interior, Room 7229, 1849 C Street, NW., Washington, 
DC 20240.

Required Determinations

Regulatory Planning and Review

    In accordance with the criteria in Executive Order 12866, this rule 
is not a significant regulatory action. The Office of Management and 
Budget makes the final determination under Executive Order 12866. 
Because this is an emergency rule, an extensive economic analysis was 
not possible.
    a. Based on experience with similar rulemakings in this area, this 
rule will not have an annual economic impact of over $100 million or 
adversely affect an economic sector, productivity, jobs, the 
environment, or other units of government. It is not expected that any 
significant economic impacts would result from the establishment of a 
manatee refuge (approximately 30 river miles) in Lee County in the 
State of Florida.
    The purpose of this rule is to establish an emergency manatee 
refuge in Lee County, Florida. We are preventing the take of manatees 
by controlling certain human activity in this County. For the manatee 
refuge, the areas are year-round or seasonal slow speed, or year-round 
or seasonal speed limits of 25 miles per hour. Affected waterborne 
activities include, but are not limited to, transiting, cruising, water 
skiing, fishing, marine construction, and the use of all water 
vehicles. This rule will impact recreational boaters, commercial 
charter boats, and commercial fishermen, primarily in the form of 
restrictions on boat speeds in specific areas. We will experience 
increased administrative costs due to this rule. Conversely, the rule 
may also produce economic benefits for some parties as a result of 
increased manatee protection and decreased boat speeds in the manatee 
refuge areas.
    Regulatory impact analysis requires the comparison of expected 
costs and benefits of the rule against a ``baseline,'' which typically 
reflects the regulatory requirements in existence prior to the 
rulemaking. For purposes of this analysis, the baseline assumes that 
the Pine Island-Estero Bay area has no regulating speed limits other 
than the 25 miles per hour in the navigation channels. The State-
designated speed zones, other than in the navigation channels, have 
been lifted by a State Court decision. However, residents and other 
water users have lived with speed restrictions in this area for many 
years and have established business and recreational patterns on the 
water to accommodate their needs and desires for water-based 
recreation. Even though the baseline is set at no speed zones, the 
actual economic effects may very well be insignificant for this 120-day 
emergency rule because almost all users have been previously subject to 
these restrictions. Thus, the rule is expected to have only an 
incremental effect. As discussed below, the net economic impact is not 
expected to be significant, but cannot be monetized given available 
information.
    The economic impacts of this rule would be due to the changes in 
speed zone restrictions in the manatee refuge areas. These speed zone 
changes are summarized in the emergency rule.
    In addition to speed zone changes, the rule no longer allows for 
the speed zone exemption process in place under State regulations. 
Florida's Manatee Sanctuary Act allows the State to provide exemptions 
from speed zone requirements for certain commercial activities, 
including fishing and events such as high-speed boat races. Under State 
law, commercial fishermen and professional fishing guides can apply for 
permits granting exemption from speed zone requirements in certain 
counties. Speed zone exemptions were issued to 28 permit holders in the 
former State zones that comprise the proposed manatee refuge area.
    In order to gauge the economic effect of this rule, both benefits 
and costs must be considered. Potential economic

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benefits related to this rule include increased manatee protection and 
tourism related to manatee viewing, increased number of marine 
construction permits issued (estimated at 80 per month for family boat 
docks), increased fisheries health, and decreased seawall maintenance 
costs. Potential economic costs are related to increased administrative 
activities related to implementing the rule and affected waterborne 
activities. Economic costs are measured primarily by the number of 
recreationists who use alternative sites for their activity or have a 
reduced quality of the waterborne activity experience at the designated 
sites. In addition, the rule may have some impact on commercial fishing 
because of the need to maintain slower speeds in some areas. The 
extension of slower speed zones in this rule is not expected to affect 
enough waterborne activity to create a significant economic impact 
(i.e., an annual impact of over $100 million).

Economic Benefits

    We believe that the designation of the Pine Island-Estero Bay 
Manatee Refuge in this rule will increase the level of manatee 
protection in these areas. A potential economic benefit is increased 
tourism resulting from an increase in manatee protection. To the extent 
that some portion of Florida's tourism is due to the existence of the 
manatee in Florida waters, the protection provided by this rule may 
result in an economic benefit to the tourism industry. We are not able 
to make an estimate of this benefit given available information.
    In addition, due to reductions in boat wake associated with speed 
zones, property owners may experience some economic benefits related to 
decreased expenditures for maintenance and repair of shoreline 
stabilization structures (i.e., seawalls along the water's edge). Speed 
reductions may also result in increased boater safety. Another 
potential benefit of slower speeds is that fisheries in these areas may 
be more productive because of less disturbance. These types of benefits 
cannot be quantified with available information.
    Based on previous studies, we believe that this rule produces some 
economic benefits. However, given the lack of information available for 
estimating these benefits, the magnitude of these benefits is unknown.

Economic Costs

    The economic impact of the designation of a manatee protection area 
results from the fact that, in certain areas, boats are required to go 
slower than under current conditions. Some impacts may be felt by 
recreationists who have to use alternative sites for their activity or 
who have a reduced quality of the waterborne activity experience at the 
designated sites because of the rule. For example, the extra time 
required for anglers to reach fishing grounds could reduce onsite 
fishing time and could result in lower consumer surplus for the trip. 
Other impacts of the rule may be felt by commercial charter boat 
outfits, commercial fishermen, and agencies that perform administrative 
activities related to implementing the rule.

Affected Recreational Activities

    For some boating recreationists, the inconvenience and extra time 
required to cross additional slow speed areas may reduce the quality of 
the waterborne activity, or cause them to forgo the activity. This will 
manifest in a loss of consumer surplus to these recreationists. In 
addition, to the extent that recreationists forgo recreational 
activities, this could result in some regional economic impact. In this 
section, we examine the waterborne activities taking place in each area 
and the extent to which they may be affected by designation of the 
manatee refuges. The resulting potential economic impacts are discussed 
below. These impacts cannot be quantified because the number of 
recreationists and anglers using the designated sites is not known.
    Recreationists engaging in cruising, fishing, and waterskiing may 
experience some inconvenience by having to go slower or use 
undesignated areas; however, the extension of slow speed zones is not 
likely to result in a significant economic impact.
    Currently, not enough data are available to estimate the loss in 
consumer surplus that water skiers will experience. While some may use 
substitute sites, others may forgo the activity. The economic impact 
associated with these changes on demand for goods and services is not 
known. However, given the number of recreationists potentially 
affected, and the fact that alternative sites are available, it is not 
expected to amount to a significant economic impact. Until recently, 
speed zones were in place in this area and recreationists have adjusted 
their activities to accommodate them. It is not expected that for a 
120-day emergency rule there would be a significant loss in consumer 
surplus from this activity.

Affected Commercial Charter Boat Activities

    Various types of charter boats use the waterways in the affected 
counties, primarily for fishing and nature tours. The number of charter 
boats using the Pine Island-Estero Bay areas is currently unknown. For 
nature tours, the extension of slow speed zones is unlikely to cause a 
significant impact, because these boats are likely traveling at slow 
speeds. The extra time required for commercial charter boats to reach 
fishing grounds could reduce onsite fishing time and could result in 
fewer trips. The fishing activity is likely occurring at a slow speed 
and will not be affected. Added travel time may affect the length of a 
trip, which could result in fewer trips overall, creating an economic 
impact.

Affected Commercial Fishing Activities

    Several commercial fisheries will experience some impact due to the 
regulation. To the extent that the regulation establishes additional 
speed zones in commercial fishing areas, this will increase the time 
spent on the fishing activity, affecting the efficiency of commercial 
fishing. While limited data are available to address the size of the 
commercial fishing industry in the manatee refuges, county-level data 
generally provide an upper bound estimate of the size of the industry 
and potential economic impact.
    Given available data, the impact on the commercial fishing industry 
of extending slow speed zones in the Pine Island-Estero Bay area cannot 
be quantified. The designation will likely affect commercial fishermen 
by way of added travel time, which can result in an economic impact. 
Some of the 28 active permit holders with speed limit exemptions are 
commercial fishermen. However, because the manatee refuge designation 
will not prohibit any commercial fishing activity, and because there is 
a channel available for boats to travel up to 25 miles per hour in the 
affected areas, the Service believes that it is unlikely that the rule 
will result in a significant economic impact on the commercial fishing 
industry. It is important to note that, in 2001, the total annual value 
of potentially affected fisheries was approximately $8.3 million 
(2001$); this figure represents the economic impact on commercial 
fisheries in these counties in the unlikely event that the fisheries 
would be entirely shut down, which is not the situation associated with 
this rule.

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Agency Administrative Costs

    The cost of implementing the rule has been estimated based on 
historical expenditures by the Service for manatee refuges and 
sanctuaries established previously. The Service expects to spend 
approximately $600,000 (2002$) for posting and signing 15 previously 
designated manatee protection areas (an average of $40,000 per area). 
This represents the amount that the Service will pay contractors for 
creation and installation of manatee refuge signs. While the number and 
location of signs needed to post the manatee refuges is not known, the 
cost of manufacturing and posting signs to delineate the manatee 
refuges in this rule is not expected to exceed the amount being spent 
to post previously designated manatee protection areas (Service, 
2003a). In addition, the Service anticipates that it will spend 
additional funds for enforcement of a staff newly designated manatee 
refuge for 120 days. These costs cannot be accurately estimated at this 
time. The costs of enforcement may include hiring and training new law 
enforcement agents and special agents, and the associated training, 
equipment, upkeep, and clerical support (Service, 2003b). Finally, 
there are some costs for education and outreach to inform the public 
about this new manatee refuge area.
    While the State of Florida has 12,000 miles of rivers and 3 million 
acres of lakes, this rule will affect approximately 30 river miles. The 
speed restrictions in this rule will cause inconvenience due to added 
travel time for recreationists and commercial charter boats and 
fishermen. As a result, the rule will impact the quality of waterborne 
activity experiences for some recreationists, and may lead some 
recreationists to forgo the activity. This rule does not prohibit 
recreationists from participating in any activities. Alternative sites 
are available for all waterborne activities that may be affected by 
this rule. The distance that recreationists may have to travel to reach 
an un-designated area varies. The regulation will likely impact some 
portion of the charter boat and commercial fishing industries in these 
areas as well. The inconvenience of having to go somewhat slower in 
some areas may result in changes to commercial and recreational 
behavior, resulting in some regional economic impacts. Given available 
information, the net economic impact of designating the manatee refuge 
is not expected to be significant (i.e., an annual economic impact of 
over $100 million). While the level of economic benefits that may be 
attributable to the manatee refuge is unknown, these benefits would 
cause a reduction in the economic impact of the rule.
    b. The precedent to establish manatee protection areas has been 
established primarily by State and local governments in Florida. We 
recognize the important role of State and local partners and continue 
to support and encourage State and local measures to improve manatee 
protection. We are designating the Pine Island-Estero Bay area, where 
previously existing State designations have been eliminated, to protect 
the manatee population in that area.
    c. This rule will not materially affect entitlements, grants, user 
fees, loan programs, or the rights and obligations of their recipients. 
Minimal restriction to existing human uses of the sites would result 
from this rule. No entitlements, grants, user fees, loan programs or 
effects on the rights and obligations of their recipients are expected 
to occur.
    d. This rule does not raise novel legal or policy issues. We have 
previously established other manatee protection areas.

Regulatory Flexibility Act

    We certify 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.). An initial/final 
Regulatory Flexibility Analysis is not required. Accordingly, a Small 
Entity Compliance Guide is not required.
    In order to determine whether the rule will have a significant 
economic effect on a substantial number of small entities, we utilize 
available information on the industries most likely to be affected by 
the designation of the manatee refuge. Currently no information is 
available on the specific number of small entities that are potentially 
affected. However, 28 active permit holders were exempt from the speed 
limits in the proposed refuge area. Since these zones have been in 
place since 1999 and people have adjusted and there were no other 
permit holders, it is reasonable to expect that the emergency rule will 
impact only the 28 permit holders in the former State speed zones. They 
are primarily commercial fishing boats and fishing guides. Both would 
be considered small businesses. The 28 permit holders had State 
exemptions from the speed restrictions based on an application that 
stated they would suffer at least a 25 percent income loss without the 
permit. The usual income level for these businesses is not known, 
however a 25 percent loss of business income is significant regardless 
of the level of business income. We acknowledge that there could be a 
significant loss of income to those permit holders that rely on speed 
to carry out their business activities, however, the Service believes 
that the 28 permit holders do not constitute a substantial number.
    This rule will add to travel time for recreational boating and 
commercial activities resulting from extension of existing speed zones. 
Because the only restrictions on recreational activity result from 
added travel time, and alternative sites are available for all 
waterborne activities, we believe that the economic effect on small 
entities resulting from changes in recreational use patterns will not 
be significant. The economic effects on most small businesses resulting 
from this rule are likely to be indirect effects related to reduced 
demand for goods and services if recreationists choose to reduce their 
level of participation in waterborne activities. Similarly, because the 
only restrictions on commercial activity result from the inconvenience 
of added travel time, and boats can continue to travel up to 25 mph in 
the navigation channels, we believe that any economic effect on small 
commercial fishing or charter boat entities (other than the 28 permit 
holders) will not be significant. Also, the indirect economic impact on 
small businesses that may result from reduced demand for goods and 
services from commercial entities is likely to be insignificant.
    The employment characteristics of Lee County are shown in Table 1 
for the year 1997. We included the following SIC (Standard Industrial 
Classification) categories, because they include businesses most likely 
to be directly affected by the designation of a manatee refuge:
     Fishing, hunting, trapping (SIC 09);
     Water transportation (SIC 44);
     Miscellaneous retail (SIC 59);
     Amusement and recreation services (SIC 79);
     Non-classifiable establishments (NCE).

[[Page 18284]]



                                        Table 1.--Employment Characteristics of Lee County in Florida--1997 Includes SIC Codes 09, 44, 59, 79, and NCE a)
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
                                                                                                                          Select SIC Codes (Includes SIC Codes 09, 44, 59, 79, and NCE a)
                                                                      Total Mid-     Mid-March         Total     -------------------------------------------------------------------------------
                                                                         March     establishment  establishments                     Number of       Number of       Number of       Number of
                               County                                employment b  b (select SIC       (all            Total      establishments  establishments  establishments  establishments
                                                                         (All         (Codes)       industries)   establishments       (1-4            (5-9           (10-19           (20+
                                                                      industries)                                                   employees)      employees)      employees)      employees)
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Lee................................................................       135,300          7,734         11,386             974             602             193              92             87
------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------
Source: U.S. Census County Business Patterns (http://www.census.gov/epcd/cbp/view/cbpview.html).
a Descriptions of the SIC codes included in this table as follows:
SIC 09--Fishing, hunting, and trapping.
SIC 44--Water transportation.
SIC 59--Miscellaneous retail service division.
SIC 79--Amusement and recreation services.
NCE--Non-classifiable establishments division.
b Table provides the high-end estimate whenever the Census provides a range of mid-March employment figures for select counties and SIC codes.

    As shown in Table 1, the vast majority (over 80 percent) of these 
business establishments in Lee County have fewer than ten employees, 
with the largest number of establishments employing fewer than four 
employees. Any economic impacts associated with this rule will affect 
some proportion of these small entities.
    Since the emergency designation is for a manatee refuge, which only 
requires a reduction in speed, we do not believe the designation would 
cause significant economic effect on a substantial number of small 
businesses. Currently available information does not allow us to 
quantify the number of small business entities such as charter boats or 
commercial fishing entities that may incur direct economic impacts due 
to the inconvenience of added travel times resulting from the rule but 
it is safe to assume that the current 28 permit holders may constitute 
the affected parties for a 120-day rule. The Service does not believe 
the 28 permit holders constitute a substantial number. If a future 
rulemaking establishes the Pine Island-Estero Bay as a permanent 
manatee refuge, public comments on a proposed rule will be used for 
further refinement of the impact on small entities and the general 
public. In addition, the inconvenience of slow speed zones may cause 
some recreationists to change their behavior, which may cause some loss 
of income to some small businesses. The number of recreationists that 
will change their behavior, and how their behavior will change, is 
unknown; therefore, the impact on potentially affected small business 
entities cannot be quantified. However, because boaters will experience 
only minimal added travel time in most affected areas and the fact that 
speed zones were in place until recently, we believe that this 
designation will not cause a significant economic impact on a 
substantial number of small entities.

Small Business Regulatory Enforcement Fairness Act

    This rule is not a major rule under 5 U.S.C. 804 (2). This rule:
    a. Does not have an annual effect on the economy of $100 million or 
more. As shown above, this rule may cause some inconvenience in the 
form of added travel time for recreationists and commercial fishing and 
charter boat businesses because of speed restrictions in manatee refuge 
areas, but this should not translate into any significant business 
reductions for the many small businesses in the affected county. An 
unknown portion of the establishments shown in Table 1 could be 
affected by this rule. Because the only restrictions on recreational 
activity result from added travel time, and alternative sites are 
available for all waterborne activities, we believe that the economic 
impact on small entities resulting from changes in recreational use 
patterns will not be significant. The economic impacts on small 
business resulting from this rule are likely to be indirect effects 
related to reduced demand for goods and services if recreationists 
choose to reduce their level of participation in waterborne activities. 
Similarly, because the only restrictions on commercial activity result 
from the inconvenience of added travel time, and boats can continue to 
travel up to 25 miles per hour in the navigational channels, we believe 
that any economic impact on most small commercial fishing or charter 
boat entities will not be significant. Also, the indirect economic 
impact on small businesses that may result from reduced demand for 
goods and services from commercial entities is likely to be 
insignificant.
    b. Will not cause a major increase in costs or prices for 
consumers, individual industries, Federal, State, or local government 
agencies, or geographic regions. It is unlikely that there are 
unforeseen changes in costs or prices for consumers stemming from this 
rule. The recreational charter boat and commercial fishing industries 
may be affected by lower speed limits for some areas when traveling to 
and from fishing grounds. However, because of the availability of 25-
miles-per-hour navigational channels, this impact is likely to be 
limited. Further, only 28 active permit holders were exempt from the 
former State speed zones. The impact will most likely stem from only 
these permit holders.
    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. As 
stated above, this rule may generate some level of inconvenience to 
recreationists and commercial users due to added travel time, but the 
resulting economic impacts are believed to be minor and will not 
interfere with the normal operation of businesses in the affected 
counties. Added travel time to traverse some areas is not expected to 
be a major factor that will impact business activity.

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. The 
designation of manatee refuges and sanctuaries, while imposing 
regulations for at least a limited period, will not impose obligations 
on State or local governments that have not previously existed.
    b. This rule will not produce a Federal mandate of $100 million or

[[Page 18285]]

greater in any year. As such, it is not a ``significant regulatory 
action'' under the Unfunded Mandates Reform Act.

Takings

    In accordance with Executive Order 12630, this rule does not have 
significant takings implications. A takings implication assessment is 
not required. The manatee protection areas are located over publicly-
owned submerged water bottoms.

Federalism

    In accordance with Executive Order 13132, this rule does not have 
significant federalism effects. A federalism assessment is not 
required. This rule will not have substantial direct effects on the 
State, in the relationship between the Federal government and the 
State, or on the distribution of power and responsibilities among the 
various levels of government. We coordinated with the State of Florida 
to the extent possible on the development of this rule.

Civil Justice Reform

    In accordance with Executive Order 12988, the Office of the 
Solicitor has determined that this rule does not unduly burden the 
judicial system and meets 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 will not impose new record keeping or 
reporting requirements on State or local governments, individuals, and 
businesses in it or organizations.

National Environmental Policy Act

    We have analyzed this rule in accordance with criteria of the 
National Environmental Policy Act. This rule does not constitute a 
major Federal action significantly affecting the quality of the human 
environment. An Environmental Assessment has been prepared and is 
available for review by written request to the Field Supervisor (see 
ADDRESSES section).

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), Executive Order 13175 and the Department 
of the Interior's manual at 512 DM 2, we readily acknowledge our 
responsibility to communicate meaningfully with federally recognized 
tribes on a government-to-government basis. We have evaluated possible 
effects on federally recognized Indian tribes and have determined that 
there are no effects.

Energy Supply, Distribution or Use

    On May 18, 2001, the President issued Executive Order 13211 on 
regulations that significantly affect energy supply, distribution, and 
use. Executive Order 13211 requires agencies to prepare Statements of 
Energy Effects when undertaking certain actions. Because this rule is 
not a significant regulatory action under Executive Order 12866 and it 
only requires vessels to continue their operation as they have in the 
past, it is not expected to significantly affect energy supplies, 
distribution, and use. Therefore, this action is not a significant 
energy action and no Statement of Energy Effects is required.

References Cited

    A complete list of all references cited in this final rule is 
available upon request from the Jacksonville Field Office (see 
ADDRESSES section).

Author

    The primary author of this document is David Hankla (see ADDRESSES 
section).

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

0
Accordingly, we amend part 17, subchapter B of chapter I, title 50 of 
the Code of Federal Regulations, as follows:

PART 17--[AMENDED]

0
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.


0
2. Amend Sec.  17.108 by adding paragraph (c)(15) as follows:


Sec.  17.108  List of designated manatee protection areas.

* * * * *
    (c) * * *
    (15) The Pine Island-Estero Bay Manatee Refuge. (i) Watercraft are 
required to proceed at slow speed all year in all waters of Matlacha 
Pass, south of a line that bears 90[deg] and 270[deg] from Matlacha 
Pass Green Channel Marker ``77'' (approximate latitude 26[deg]40'00'' 
North, approximate longitude 82[deg]06'00'' West), and north of Pine 
Island Road (State Road No. 78), excluding:
    (A) The portion of the marked channel otherwise designated in 
paragraph (c)(15)(iii) of this section;
    (B) All waters of Buzzard Bay east and northeast of a line 
beginning at a point (approximate latitude 26[deg]40'00'' North, 
approximate longitude 82[deg]05'20'' West) on the southwest shoreline 
of an unnamed mangrove island east of Matlacha Pass Green Channel 
Marker ``77'' and bearing 219[deg] to the northeasternmost point 
(approximate latitude 26[deg]39'58'' North, approximate longitude 
82[deg]05'23'' West) of another unnamed mangrove island, then running 
along the eastern shoreline of said island to its southeasternmost 
point (approximate latitude 26[deg]39'36'' North, approximate longitude 
81[deg]05'09'' West), then bearing 115[deg] to the westernmost point 
(approximate latitude 26[deg]39'34'' North, approximate longitude 
82[deg]05'05'' West) of the unnamed mangrove island to the southeast, 
then running along the western shoreline of said island to its 
southwesternmost point (approximate latitude 26[deg]39'22'' North, 
approximate longitude 82[deg]04'53'' West), then bearing 123[deg] to 
the northwesternmost point (approximate latitude 26[deg]39'21'' North, 
approximate longitude 82[deg]04'52'' West) of an unnamed mangrove 
island, then running along the western shoreline of said island to its 
southeasternmost point (approximate latitude 26[deg]39'09'' North, 
approximate longitude 82[deg]04'44'' West), then bearing 103[deg] to 
the northwesternmost point (approximate latitude 26[deg]39'08'' North, 
approximate longitude 82[deg]04'41'' West) of a peninsula on the 
unnamed mangrove island to the southeast, then running along the 
southwestern shoreline of said island to its southeasternmost point 
(approximate latitude 26[deg]38'51'' North, approximate longitude 
82[deg]04'18'' West), then bearing 99[deg] to the southernmost point 
(approximate latitude 26[deg]38'50'' North, approximate longitude 
82[deg]04'03'' West) of the unnamed mangrove island to the east, then 
bearing 90[deg] to the line's terminus at a point (approximate latitude 
26[deg]38'50'' North, approximate

[[Page 18286]]

longitude 82[deg]03'55'' West) on the eastern shoreline of Matlacha 
Pass; and
    (C) All waters of Pine Island Creek and Matlacha Pass north of Pine 
Island Road (State Road No. 78) and west and southwest of a line 
beginning at a point (approximate latitude 26[deg]39'29'' North, 
approximate longitude 82[deg]06'29'' West) on the western shoreline of 
Matlacha Pass and bearing 160[deg] to the westernmost point 
(approximate latitude 26[deg]39'25'' North, approximate longitude 
82[deg]06'28'' West) of an unnamed island, then running along the 
western shoreline of said island to its southernmost point (approximate 
latitude 26[deg]39'18'' North, approximate longitude 82[deg]06'24'' 
West), then bearing 128[deg] to the northernmost point (approximate 
latitude 26[deg]39'12'' North, approximate longitude 82[deg]06'17'' 
West) of an unnamed mangrove island to the south, then running along 
the eastern shoreline of said island to its southeasternmost point 
(approximate latitude 26[deg]39'00'' North, approximate longitude 
82[deg]06'09'' West), then bearing 138[deg] to a point (approximate 
latitude 26[deg]38'45'' North, approximate longitude 82[deg]05'53'' 
West) on the northern shoreline of Bear Key, then running along the 
northern shoreline of Bear Key to its easternmost point (approximate 
latitude 26[deg]38'44'' North, approximate longitude 82[deg]05'46'' 
West), then bearing 85[deg] to the westernmost point (approximate 
latitude 26[deg]38'45'' North, approximate longitude 82[deg]05'32'' 
West) of Deer Key, then running along the northern shoreline of Deer 
Key to its easternmost point (approximate latitude 26[deg]38'46'' 
North, approximate longitude 82[deg]05'22'' West), then bearing 
103[deg] to the northwesternmost point (approximate latitude 
26[deg]38'45'' North, approximate longitude 82[deg]05'17'' West) of the 
unnamed mangrove island to the east, then running along the western 
shoreline of said island to its southernmost point (approximate 
latitude 26[deg]38'30'' North, approximate longitude 82[deg]05'04'' 
West), then bearing 106[deg] to the westernmost point (approximate 
latitude 26[deg]38'30'' North, approximate longitude 82[deg]04'57'' 
West) of the unnamed island to the southeast, then running along the 
northern and eastern shorelines of said island to a point (approximate 
latitude 26[deg]38'23'' North, approximate longitude 82[deg]04'51'' 
West) on its eastern shoreline, then bearing 113[deg] to the 
northernmost point of West Island (approximate latitude 26[deg]38'21'' 
North, approximate longitude 82[deg]04'37'' West), then running along 
the western shoreline of West Island to the point where the line 
intersects Pine Island Road (State Road No. 78).
    (ii) Watercraft are required to proceed at slow speed all year in 
all waters of Matlacha Pass, St. James Creek, and San Carlos Bay, south 
of Pine Island Road (State Road No. 78), north of a line 500 feet 
northwest of and parallel to the main marked channel of the 
Intracoastal Waterway, west of a line that bears 302[deg] from 
Intracoastal Waterway Green Channel Marker ``99'' (approximate latitude 
26[deg]31'00'' North, approximate longitude 82[deg]00'52'' West), and 
east of a line that bears 360[deg] from Intracoastal Waterway Red 
Channel Marker ``10'' (approximate latitude 26[deg]29'16'' North, 
approximate longitude 82[deg]03'35'' West), excluding:
    (A) The portions of the marked channels otherwise designated in 
paragraphs (c)(15) (iv) and (v) of this section;
    (B) All waters of Matlacha Pass south of Pine Island Road (State 
Road No. 78) and west of the western shoreline of West Island and a 
line beginning at the southernmost point (approximate latitude 
26[deg]37'25'' North, approximate longitude 82[deg]04'17'' West) of 
West Island and bearing 149[deg] to the northernmost point (approximate 
latitude 26[deg]37'18'' North, approximate longitude 82[deg]04'12'' 
West) of the unnamed mangrove island to the south, then running along 
the eastern shoreline of said island to its southernmost point 
(approximate latitude 26[deg]36'55'' North, approximate longitude 
82[deg]04'02'' West), then bearing 163[deg] to the line's terminus at a 
point (approximate latitude 26[deg]36'44'' North, approximate longitude 
82[deg]03'58'' West) on the eastern shoreline of Little Pine Island;
    (C) All waters of Matlacha Pass, Pontoon Bay, and associated 
embayments south of Pine Island Road (State Road No. 78) and east of a 
line beginning at a point (approximate latitude 26[deg]38'12'' North, 
approximate longitude 82[deg]03'46'' West) on the northwestern 
shoreline of the embayment on the east side of Matlacha Pass, 
immediately south of Pine Island Road and then running along the 
eastern shoreline of the unnamed island to the south to its 
southeasternmost point (approximate latitude 26[deg]37'30'' North, 
approximate longitude 82[deg]03'22'' West), then bearing 163[deg] to 
the northwesternmost point of the unnamed island to the south, then 
running along the western shoreline of said island to its southernmost 
point (approximate latitude 26[deg]37'15'' North, approximate longitude 
82[deg]03'15'' West), then bearing 186[deg] to the line's terminus at a 
point (approximate latitude 26[deg]37'10'' North, approximate longitude 
82[deg]03'16'' West) on the eastern shoreline of Matlacha Pass;
    (D) All waters of Pine Island Creek south of Pine Island Road 
(State Road No. 78); and all waters of Matlacha Pass, Rock Creek, and 
the Mud Hole, west of a line beginning at a point (approximate latitude 
26[deg]33[min]52[sec] North, approximate longitude 
82[deg]04[min]53[sec] West) on the western shoreline of Matlacha Pass 
and bearing 22[deg] to a point (approximate latitude 
26[deg]34[min]09[sec] North, approximate longitude 
82[deg]04[min]45[sec] West) on the southern shoreline of the unnamed 
island to the northeast, then running along the southern and eastern 
shorelines of said island to a point (approximate latitude 
26[deg]34[min]15[sec] North, approximate longitude 
82[deg]04[min]39[sec] West) on its northeastern shoreline, then bearing 
24[deg] to a point (approximate latitude 26[deg]34[min]21[sec] North, 
approximate longitude 82[deg]04[min]36[sec] West) on the southern 
shoreline of the large unnamed island to the north, then running along 
the southern and eastern shorelines of said island to a point 
(approximate latitude 26[deg]34[min]31[sec] North, approximate 
longitude 82[deg]04[min]29[sec] West) on its eastern shoreline, then 
bearing 41[deg] to the southernmost point (approximate latitude 
26[deg]34[min]39[sec] North, approximate longitude 
82[deg]04[min]22[sec] West) of another unnamed island to the northeast, 
then running along the eastern shoreline of said island to its 
northwesternmost point (approximate latitude 26[deg]35[min]22[sec] 
North, approximate longitude 82[deg]04[min]07[sec] West), then bearing 
2[deg] to the southernmost point (approximate latitude 
26[deg]35[min]32[sec] North, approximate longitude 
82[deg]04[min]07[sec] West) of the unnamed island to the north, then 
running along the eastern shoreline of said island to its northernmost 
point (approximate latitude 26[deg]35[min]51[sec] North, approximate 
longitude 82[deg]03[min]59[sec] West), then bearing 353[deg] to the 
line's terminus at a point (approximate latitude 26[deg]36[min]08[sec] 
North, approximate longitude 82[deg]04[min]01[sec] West) on the eastern 
shoreline of Little Pine Island; and
    (E) All waters of Punta Blanca Bay and Punta Blanca Creek, east of 
the eastern shoreline of Matlacha Pass and east and north of the 
eastern and northern shorelines of San Carlos Bay.
    (iii) Watercraft may not exceed 25 miles per hour, all year, in all 
waters within the main marked channel in Matlacha Pass south of Green 
Channel Marker ``77'' (approximate latitude 26[deg]40[min]00[sec] 
North, approximate longitude 82[deg]06[min]00[sec] West) and north of a 
line perpendicular to the channel at a point in the channel \1/4\ mile 
northwest of the Pine Island Road Bridge (State Road No. 78).
    (iv) Watercraft may not exceed 25 miles per hour, all year, in all 
waters within the main marked channel in

[[Page 18287]]

Matlacha Pass south of a line perpendicular to the channel at a point 
in the channel \1/4\ mile southeast of the Pine Island Road Bridge 
(State Road No. 78), and north of a line 500 feet northwest of and 
parallel to the main marked channel of the Intracoastal Waterway (just 
north of Green Channel Marker ``1'').
    (v) Watercraft may not exceed 25 miles per hour, all year, in all 
waters within the marked channel in Matlacha Pass that intersects the 
main Matlacha Pass channel near Green Channel Marker ``15'' 
(approximate latitude 26[deg]31[min]57[sec] North, approximate 
longitude 82[deg]03[min]38[sec] West) and intersects the main marked 
channel of the Intracoastal Waterway near Green Channel Marker ``101'' 
(approximate latitude 26[deg]30[min]39[sec] North, approximate 
longitude 82[deg]01[min]00[sec] West).
    (vi) Watercraft are required to proceed at slow speed from April 1 
through November 15 in all canals and boat basins of St. James City and 
the waters known as Long Cut and Short Cut; and all waters of Pine 
Island Sound and San Carlos Bay south of a line beginning at the 
southernmost tip (approximate latitude 26[deg]31[min]28[sec] North, 
approximate longitude 82[deg]06[min]19[sec] West) of a mangrove 
peninsula on the western shore of Pine Island approximately 2200 feet 
north of Galt Island and bearing 309[deg] to the southeasternmost point 
(approximate latitude 26[deg]31[min]32[sec] North, approximate 
longitude 82[deg]06[min]25[sec] West) of another mangrove peninsula, 
then running along the southern shoreline of said peninsula to its 
southwesternmost point (approximate latitude 26[deg]31[min]40[sec] 
North, approximate longitude 82[deg]06[min]38[sec] West), then bearing 
248[deg] to a point (approximate latitude 26[deg]31[min]40[sec] North, 
approximate longitude 82[deg]06[min]39[sec] West) on the eastern 
shoreline of an unnamed mangrove island, then running along the 
southern shoreline of said island to its southwesternmost point 
(approximate latitude 26[deg]31[min]39[sec] North, approximate 
longitude 82[deg]06[min]44[sec] West), then bearing 206[deg] to the 
line's terminus at the northernmost point of the Mac Keever Keys 
(approximate latitude 26[deg]31[min]09[sec] North, approximate 
longitude 82[deg]07[min]09[sec] West), east of a line beginning at said 
northernmost point of the Mac Keever Keys and running along and between 
the general contour of the western shorelines of said keys to a point 
(approximate latitude 26[deg]30[min]27[sec] North, approximate 
longitude 82[deg]07[min]08[sec] West) on the southernmost of the Mac 
Keever Keys, then bearing 201[deg] to a point (approximate latitude 
26[deg]30[min]01[sec] North, approximate longitude 
82[deg]07[min]19[sec] West) approximately 150 feet due east of the 
southeasternmost point of Chino Island, then bearing approximately 
162[deg] to Red Intracoastal Waterway Channel Marker ``22'' 
(approximate latitude 26[deg]28[min]57[sec] North, approximate 
longitude 82[deg]06[min]55[sec] West), then bearing approximately 
117[deg] to the line's terminus at Red Intracoastal Waterway Channel 
Marker ``20'' (approximate latitude 26[deg]28[min]45[sec] North, 
approximate longitude 82[deg]06[min]38[sec] West), north of a line 
beginning at said Red Intracoastal Waterway Channel Marker ``20'' and 
bearing 86[deg] to a point (approximate latitude 26[deg]28[min]50[sec] 
North, approximate longitude 82[deg]05[min]48[sec] West) \1/4\ mile 
south of York Island, then running parallel to and \1/4\ mile south of 
the general contour of the southern shorelines of York Island and Pine 
Island to the line's terminus at a point on a line bearing 360[deg] 
from Red Intracoastal Waterway Channel Marker ``10'' (approximate 
latitude 26[deg]29[min]16[sec] North, approximate longitude 
82[deg]03[min]35[sec] West), and west and southwest of the general 
contour of the western and southern shorelines of Pine Island and a 
line that bears 360[deg] from said Red Intracoastal Waterway Channel 
Marker ``10,'' excluding the portion of the marked channel otherwise 
designated in paragraph (c)(15)(vii) of this section.
    (vii) Watercraft may not exceed 25 miles per hour from April 1 
through November 15 in all waters of the marked channel that runs south 
of the power lines from the Cherry Estates area of St. James City into 
Pine Island Sound, east of the western boundary of the zone designated 
in 17.108(c)(15)(vi), and west of a line perpendicular to the power 
lines that begins at the easternmost point (approximate latitude 
26[deg]30[min]25[sec] North, approximate longitude 
82[deg]06[min]15[sec] West) of the mangrove island on the north side of 
the power lines approximately 1800 feet southwest of the Galt Island 
Causeway.
    (viii) Watercraft are required to proceed at slow speed all year in 
all waters of San Carlos Bay and Punta Rassa Cove east of a line that 
bears 352[deg] from the northernmost tip of the northern peninsula on 
Punta Rassa (approximate latitude 26[deg]29[min]44[sec] North, 
approximate longitude 82[deg]00[min]33[sec] West), and south of a line 
that bears 122[deg] from Intracoastal Waterway Green Channel Marker 
``99'' (approximate latitude 26[deg]31[min]00[sec] North, approximate 
longitude 82[deg]00[min]52[sec] West), including all waters of Shell 
Creek and associated waterways.
    (ix) Watercraft are required to proceed at slow speed all year in 
all waters of San Carlos Bay and the Caloosahatchee River, including 
the residential canals of Cape Coral, northeast of a line that bears 
302[deg] and 122[deg] from Intracoastal Waterway Green Channel Marker 
``99'' (approximate latitude 26[deg]31[min]00[sec] North, approximate 
longitude 82[deg]00[min]52[sec] West), west of a line that bears 
346[deg] from Intracoastal Waterway Green Channel Marker ``93'' 
(approximate latitude 26[deg]31[min]37[sec] North, approximate 
longitude 81[deg]59[min]46[sec] West), and north and northwest of the 
general contour of the northwestern shoreline of Shell Point and a line 
that bears approximately 74[deg] from the northernmost tip (approximate 
latitude 26[deg]31[min]31[sec] North, approximate longitude 
81[deg]59[min]57[sec] West) of Shell Point to said Intracoastal 
Waterway Green Channel Marker ``93,'' excluding the Intracoastal 
Waterway between markers ``93'' and ``99'' (which is already designated 
as a Federal manatee protection area, requiring watercraft to proceed 
at slow speed, and is not impacted by this rulemaking).
    (x) Watercraft are required to proceed at slow speed from April 1 
through November 15 and at not more than 25 miles per hour the 
remainder of the year in all waters of Hell Peckney Bay southeast of 
Hurricane Bay, northeast of the northern shorelines of Julies Island 
and the unnamed island immediately northwest of Julies Island and a 
line that bears 312[deg] from the northwesternmost point of Julies 
Island (approximate latitude 26[deg]26[min]37[sec] North, approximate 
longitude 81[deg]54[min]57[sec] West), northwest of Estero Bay, and 
southwest of a line beginning at the southernmost point (approximate 
latitude 26[deg]27[min]23[sec] North, approximate longitude 
81[deg]55[min]11[sec] West) of an unnamed mangrove peninsula in 
northwest Hell Peckney Bay and bearing 191[deg] to the northernmost 
point (approximate latitude 26[deg]27[min]19[sec] North, approximate 
longitude 81[deg]55[min]11[sec] West) of an unnamed mangrove island, 
then running along the northern shoreline of said island to its 
southeasternmost point (approximate latitude 26[deg]27[min]11[sec] 
North, approximate longitude 81[deg]55[min]05[sec] West), then bearing 
115[deg] to a point (approximate latitude 26[deg]27[min]03[sec] North, 
approximate longitude 81[deg]54[min]47[sec] West) on the northwest 
shoreline of an unnamed mangrove island, then running along the 
northern shoreline of said island to its northeasternmost point 
(approximate latitude 26[deg]27[min]02[sec] North, approximate 
longitude 81[deg]54[min]33[sec] West), and then bearing 37[deg] to the 
line's terminus at the westernmost point of an unnamed mangrove 
peninsula in eastern Hell Peckney Bay.
    (xi) Watercraft are required to proceed at slow speed from April 1 
through November 15 and at not more than 25 miles per hour the 
remainder of the year in all waters of Hendry Creek south of a line 
that bears 270[deg] from a point (approximate latitude 
26[deg]28[min]40[sec] North, approximate longitude 
81[deg]52[min]56[sec] West) on the eastern shoreline of Hendry

[[Page 18288]]

Creek; and all waters of Estero Bay southeast and east of Hell Peckney 
Bay, a line that bears 340[deg] from a point (approximate latitude 
26[deg]25[min]56[sec] North, approximate longitude 
81[deg]54[min]25[sec] West) on the northern tip of an unnamed mangrove 
peninsula on the northeastern shoreline of Estero Island, and the 
northern shoreline of Estero Island, south of Hendry Creek and a line 
that bears 135[deg] and 315[deg] from Red Channel Marker ``18'' 
(approximate latitude 26[deg]27'46'' North, approximate longitude 
81[deg]52'00'' West) in Mullock Creek, and north of a line that bears 
72[deg] from the northernmost point (approximate latitude 
26[deg]24[min]22[sec] North, approximate longitude 
81[deg]52[min]34[sec] West) of Black Island, including the waters of 
Buccaneer Lagoon at the southern end of Estero Island, but excluding:
    (A) The portions of the marked channels otherwise designated in 
paragraph (c)(15)(xiii) of this section;
    (B) The Estero River; and
    (C) To waters of Big Carlos Pass east of a line beginning at a 
point (approximate latitude 26[deg]24[min]34[sec] North, approximate 
longitude 81[deg]53[min]05[sec] West) on the eastern shoreline of 
Estero Island and bearing 36[deg] to a point (approximate latitude 
26[deg]24[min]40[sec] North, approximate longitude 
81[deg]53[min]00[sec] West) on the southern shoreline of Coon Key, 
south of a line beginning at a point (approximate latitude 
26[deg]24[min]36[sec] North, approximate longitude 
81[deg]52[min]30[sec] West) on the eastern shoreline of Coon Key and 
bearing 106[deg] to a point (approximate latitude 26[deg]24'39'' North, 
approximate longitude 81[deg]52[min]34[sec] West) on the southwestern 
shoreline of the unnamed mangrove island north of Black Island, and 
west of a line beginning at a point (approximate latitude 
26[deg]24'36'' North, approximate longitude 81[deg]52'30'' West) on the 
southern shoreline of said unnamed mangrove island north of Black 
Island and bearing 192[deg] to the northernmost point (approximate 
latitude 26[deg]24[min]22[sec] North, approximate longitude 
81[deg]52[min]34[sec] West) of Black Island.
    (xii) Watercraft are required to proceed at slow speed from April 1 
through November 15 and at not more than 25 miles per hour the 
remainder of the year in all waters of Estero Bay and Big Hickory Bay 
south of a line that bears 72[deg] from the northernmost point 
(approximate latitude 26[deg]24[min]22[sec] North, approximate 
longitude 81[deg]52[min]34[sec] West) of Black Island, east of the 
centerline of State Road No. 865 (but including the waters of the 
embayment on the eastern side of Black Island and the waters inshore of 
the mouth of Big Hickory Pass that are west of State Road No. 865), and 
north of a line that bears 90[deg] from a point (approximate latitude 
26[deg]20[min]51[sec] North, approximate longitude 
81[deg]50[min]33[sec] West) on the eastern shoreline of Little Hickory 
Island, excluding Spring Creek and the portions of the marked channels 
otherwise designated under 17.108 (c)(15)(xiii) and the portion of 
Hickory Bay designated in paragraph (c)(15)(xiii) of this section.
    (xiii) Watercraft may not exceed 25 miles per hour all year in:
    (A) All waters of Big Hickory Bay north of a line that bears 
90[deg] from a point (approximate latitude 26[deg]20'51'' North, 
approximate longitude 81[deg]50'33'' West) on the eastern shoreline of 
Little Hickory Island, west of a line beginning at a point (approximate 
latitude 26[deg]20'48'' North, approximate longitude 81[deg]50'24'' 
West) on the southern shoreline of Big Hickory Bay and bearing 338( to 
a point (approximate latitude 26[deg]21'39'' North, approximate 
longitude 81[deg]50'48'' West) on the water in the northwestern end of 
Big Hickory Bay near the eastern end of Broadway Channel, south of a 
line beginning at said point on the water in the northwestern end of 
Big Hickory Bay and bearing 242( to the northernmost point (approximate 
latitude 26[deg]21'3'' North, approximate longitude 81[deg]50'50'' 
West) of the unnamed mangrove island south of Broadway Channel, and 
east of the eastern shoreline of said mangrove island and a line 
beginning at the southernmost point of said island (approximate 
latitude 26[deg]21'07'' North, approximate longitude 81[deg]50'58'' 
West) and bearing 167( to a point on Little Hickory Island (approximate 
latitude 26[deg]21'03'' North, approximate longitude 81[deg]50'57'' 
West);
    (B) All waters of the main marked North-South channel in northern 
Estero Bay from Green Channel Marker ``37'' (approximate latitude 
26[deg]26'02'' North, approximate longitude 81[deg]54'29'' West) to 
Green Channel Marker ``57'' (approximate latitude 26[deg]25'08'' North, 
approximate longitude 81[deg]53'29'' West);
    (C) All waters of the main marked North-South channel in southern 
Estero Bay south of a line beginning at a point (approximate latitude 
26[deg]24'36'' North, approximate longitude 81[deg]52'30'' West) on the 
southern shoreline of the unnamed mangrove island north of Black Island 
and bearing 192[deg] to the northernmost point (approximate latitude 
26[deg]24'22'' North, approximate longitude 81[deg]52'34'' West) of 
Black Island, and north and east of Red Channel Marker ``62'' 
(approximate latitude 26[deg] 21'31'' North, approximate longitude 
81[deg] 51'20'' West) in Broadway Channel;
    (D) All waters within the portion of the marked channel leading to 
the Gulf of Mexico through New Pass, west of the North-South channel 
and east of State Road No. 865; all waters of the marked channel 
leading to Mullock Creek north of a line beginning at a point 
(approximate latitude 26[deg]24'36'' North, approximate longitude 
81[deg]52'30'' West) on the eastern shoreline of Coon Key and bearing 
106[deg] to a point (approximate latitude 26[deg]24'39'' North, 
approximate longitude 81[deg]52'34'' West) on the southwestern 
shoreline of the unnamed mangrove island north of Black Island, and 
south of Red Channel Marker ``18'' (approximate latitude 26[deg]27'46'' 
North, approximate longitude 81[deg]52'00'' West);
    (E) All waters of the marked channel leading from the Mullock Creek 
Channel to the Estero River, west of the mouth of the Estero River. 
(This designation only applies if a channel is marked in accordance 
with permits issued by all applicable state and federal authorities. In 
the absence of a properly permitted channel, this area is as designated 
under paragraph (c)(15)(xi) of this section);
    (F) All waters of the marked channel commonly known as Alternate 
Route Channel, with said channel generally running between Channel 
Marker ``1'' (approximate latitude 26[deg]24'29'' North, approximate 
longitude 81[deg]51'53'' West) and Channel Marker ``10'' (approximate 
latitude 26[deg]24'00'' North, approximate longitude 81[deg]51'09'' 
West);
    (G) All waters of the marked channel commonly known as Coconut 
Channel, with said channel generally running between Channel Marker 
``1'' (approximate latitude 26[deg]23'44'' North, approximate longitude 
81[deg]50'55'' West) and Channel Marker ``23'' (approximate latitude 
26[deg]24'00'' North, approximate longitude 81[deg]50'30'' West);
    (H) All waters of the marked channel commonly known as Southern 
Passage Channel, with said channel generally running between Channel 
Marker ``1'' (approximate latitude 26[deg]22'58'' North, approximate 
longitude 81[deg]51'57'' West) and Channel Marker ``22'' (approximate 
latitude 26[deg]23'27'' North, approximate longitude 81[deg]50'46'' 
West); and
    (I) All waters of the marked channel leading from the Southern 
Passage Channel to Spring Creek, west of the mouth of Spring Creek.
    (xiv) Maps of the Pine Island-Estero Bay Manatee Refuge follow:
BILLING CODE 4310-55-P

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[[Page 18291]]


    Dated: March 30, 2004.
Paul Hoffman,
Acting Assistant Secretary for Fish and Wildlife and Parks.
[FR Doc. 04-7828 Filed 4-6-04; 8:45 am]
BILLING CODE 4310-55-C