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Environmental
Impact Statement
Proposed Looe Key
National Marine Sanctuary
October 1980
DOCUMENT
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U.S. DEPARTMENT OF COMMERCE
National Oceanic and Atmospheric Administration
Office of Coastal Zone Management
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FINAL ENVIRONMENTAL IMPACT STATEMENT
PREPARED ON THE PROPOSED
LOOE KEY NATIONAL MARINE SANCTUARY
DOCUMENT
LIBRARY
V^ods Hoie Oceanographic
Institution
November 1980
U. S, Department of Commerce
National Oceanic and Atmospheric Administration
Office of Coastal Zone Management
TABLE OF CONTENTS
COVER i
NOTE TO READER ii
INTRODUCTION AND SUMMARY 1
CHAPTER ONE: PURPOSE AND NEED FOR ACTION 21
CHAPTER TWO: ALTERNATIVES INCLUDING THE PREFERRED ALTERNATIVE 23
I. Introduction 23
II. No Action Alternative: Rely on the Legal Status Quo
III. Preferred Alternative 25
A. Goals and Objectives 25
B. Management 26
C. Preferred Boundary Alternative 29
D. Preferred Regulatory Alternatives 30
IV. Regulatory Alternatives Eliminated From Detailed Study 36
V. Summary of Analysis of Alternatives 38
CHAPTER THREE: AFFECTED ENVIRONMENT 45
I. Marine Environment 45
II. Socio-Economic Setting 59
III. Historic and Cultural Resources 67
IV. State and Other Federal Resource Management Provisions
in Adjacent and Nearby Areas 69
V. Legal Status Quo 73
CHAPTER FOUR: ENVIRONMENTAL CONSEQUENCES 93
I. Introduction 93
II. Boundary Alternatives 94
III. Environmental Consequences of the Proposed Regulations 99
A. Coral Collecting 99
B. Commercial Fishing 103
C. Spearfishing 119
D. Historical and Cultural Resources 121
E. Discharges 123
F. Anchoring 125
LIST OF PREPARERS 129
DISTRIBUTION LIST 131
BIBLIOGRAPHY 135
DRAFT DESIGNATION DOCUMENT AND DRAFT REGULATIONS
SITE ANALYSIS RESEARCH METHODS
APPENDIX A
APPENDIX B
APPENDIX C
APPENDIX D
LOOE KEY ONSITE SURVEY
FLORDIA STATE LAWS AND EXISTING STATE AND FEDERAL MARINE
RESERVES AND PARKS
APPENDIX E: COMMENTS ON THE DEIS AND NOAA RESPONSES
LIST OF FIGURES
FIGURE 1: LOCATION OF LOOE KEY 2
FIGURE 2: LOOE KEY BIOLOGICAL ZONES 6
FIGURE 3: BOUNDARY ALTERNATIVES 16
FIGURE 4: BOUNDARY ALTERNATIVES 27
FIGURE 5: LOOE KEY BIOLOGICAL ZONES 49
FIGURE 6: HABITAT AREA OF PARTICULAR CONCERN 82
FIGURE 7: BOUNDARY ALTERNATIVES 95
FIGURE 8: LOOE KEY CORE TRAPEZOID AREA 110
LIST OF TABLES
TABLE 1: CORAL COLLECTING/ WIRE FISH TRAPPING ANALYSES 39
TABLE 2: TROPICAL SPECIMEN COLLECTING/ SPEARFISHING ANALYSES 40
TABLE 3: LOBSTER TRAPPING ANALYSIS 41
TABLE 4: HISTORIC AND CULTURAL RESOURCES/ DISCHARGING ANALYSES 42
TABLE 5: ANCHORING ANALYSIS 43
TABLE 6: SUMMARY INCOME AND BUSINESS VOLUME 65
DESIGNATION: Final Environmental Impact Statement
TITLE: Proposed Looe Key Marine Sanctuary
ABSTRACT: The National Oceanic and Atmospheric Administration (NOAA)
proposed the designation of the waters at Looe Key, a sub-
merged section of the Florida Reef Tract, located 12.4 km
(6.7 nautical miles) southwest of Big Pine Key in the
Florida Keys, as a marine sanctuary. The proposed sanctuary
consists of 5 square nautical miles of high sea waters under
Federal jurisdiction.
The designation of a marine sanctuary would establish a
program of comprehensive management, including research,
assessment, monitoring, public education, long-term planning,
coordination and regulation for this section of the Florida
reef tract. The preferred alternative provides sanctuary
management goals and objectives which will serve as a
framework around which sanctuary activities will be structured.
Specific regulations are proposed which would apply only within
the sanctuary boundaries. The proposed regulations allow the
following activities only under NOAA permit for scientific and
educational purposes: possession and collecting of coral,
disturbance of historical and cultural resources and marine
specimen collecting. The proposal prohibits: spearfishing
and possession of spearfishing gear; the use of lobster
traps within a core area on the Fore Reef; use of wire
fish traps; anchoring on coral within the core area; the
discharge of substances except cooling waters from vessels,
fish or fish parts and chunminq materials and discharges
from marine sanitation devices.
Alternatives to the proposed action include the no action or
status quo alternative, modification of the sanctuary boundaries,
and more and less stringent regulations.
LEAD AGENCY: U.S. Department of Commerce
National Oceanic and Atmospheric Administration
Office of Coastal Zone Management
CONTACT: Dr. Nancy Foster, Deputy Director
Sanctuary Programs Office
OCZM
3300 Whitehaven Street, N.W.
Washington, D. C. 20235
(202)634-4236
INTRODUCTION AND SUMMARY
I. BACKGROUND
The Marine Protection, Research and Sanctuaries Act of 1972 (16 U.S.C.
1431-1434) authorizes the Secretary of Commerce, after consultation with
appropriate Federal agencies, and the affected State, and with Presidential
approval, to designate ocean areas having distinctive conservation, recre-
ational, ecological, or aesthetic values as marine sanctuaries. In 1977,
the National Oceanic and Atmospheric Administration (NOAA) of the Department
of Commerce sent out a nationwide letter asking for recommendations of sites
appropriate for consideration as marine sanctuaries.
The response to this request included a recommendation by the Florida
Keys Citizens Coalition (an association of approximately 21 public interest
groups) for the designation of Looe Key as a marine sanctuary "to establish
a recreational and aesthetic area managed to protect the coral and coral
reef ecosystem" (Nomination letter of November 23, 1977) (see Figure 1 for
location of Looe Key).
As part of the process for scoping out issues early in the designation
process, NOAA held a public workshop on the proposal at Big Pine Key in
January 1978. At the workshop the Lower Keys Chapter of the Organized
Fishermen of Florida (OFF) and many individual fishermen, testified that
they were opposed to any designation of Looe Key as a marine sanctuary.
OFF members were opposed to: (1) any regulation of fishing activities;
(2) any additional presence of the Federal government in the area; and
(3) the size of the proposed sanctuary which was rumored to be 20 sq nm.*
In addition to these concerns OFF members expressed belief that enough of
the Florida Keys and adjacent water areas were in some form of protective
status. Other residents opposed a sanctuary on the belief that a sanctuary
would only attract more tourists to the area which, in turn, would further
deplete and damage renewable resources.
On the other hand, a number of individuals and local groups spoke in
favor of some type of a sanctuary at Looe Key. The Florida Audubon Society;
Big Pine Key Citizens Association; the Isaak Walton League, Florida Chapter;
the Florida Keys Citizens' Coalition; and the Upper Keys Citizens' Association
testified on behalf of the proposal. The Newfound Harbor Marine Institute
* Rumors circulated in the Big Pine Key area that NOAA was proposing a
sanctuary consisting of approximately 20 sq nm. However, at that time NOAA
was merely investigating the feasibility of designating the sanctuary and did
not have any proposal that discussed size.
FIGURE 1
LOCATION OF LOOE KEY
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Sand Ktfy
KEY LARGO CORAL
REEF MARLVE
SANCTL'ARV
Key West
LOOE KEY
spoke in support of a core area where only non-consumptive uses would be
permitted. The majority of those testifying spoke of the importance of the
reef, although there was disagreement as to the best way of protecting its
unique and significant value for future generations. Most emphasized that
effective coral protection depended upon the onsite presence of enforcement
personnel .
Following the workshop, the South Atlantic and Gulf of Mexico Regional
Fishery Management Councils requested that NOAA delay further steps until
the Councils' coral reef study was completed. NOAA agreed to the delay.
Upon later recommendations of the Councils, NOAA resumed the evaluation of
Looe Key as a Marine Sanctuary candidate. To determine the desirability
and feasibility of proceeding with the designation, NOAA began preparation
of a Draft Environmental Impact Statement (DEIS) on October 1, 1979.
In October 1979, NOAA printed a Notice of Intent to Prepare an Environ-
mental Impact Statement in the Federal Register and held a scoping meeting
on the proposal. NOAA gathered and analyzed information and consulted
with other Federal agencies. State agencies, the Gulf of Mexico (GMFMC)
and South Atlantic Regional Fishery Management Councils (SAFMC), and local
interest groups.
In May 1980, NOAA issued proposed regulations and the DEIS for public
review. NOAA held public hearings on the DEIS in Miami, June 17, and in
Key West and Big Pine Key, June 18. The comment period on the DEIS ended
July 15 and the comment period on the regulations, July 21. Reaction to the
proposed sanctuary has been mixed. In general many local residents, mostly
fishermen, opposed the designation; while regional, state, and national civic
and environmental organizations, including the State of Florida, support the
designation.
At the public hearings, the majority of those testifying spoke against
the proposal. At all three hearings a number of individuals and environmen-
tal and civic organizations, such as the Marine Wilderness Society, Tropical
Audubon, the Sierra Club, and National Audubon supported the designation.
Members of OFF and a number of individual fishermen and private citizens
spoke in opposition. At the Big Pine Key hearing members of OFF presented
NOAA with a petition of over 500 names opposing the proposal. Other organi-
zations such as Newfound Harbor Marine Institute, the Lower Keys Chamber of
Commerce, and the Big Pine Key Civic Association supported a smaller (1 sq
nm) sanctuary (for a detailed summary of the public hearings see Appendix E).
Over 100 written comments were received in response to the DEIS. In con-
trast to the reaction at the public hearings, the written comments were
overwhelmingly in support of the NOAA proposal. Approximately 82 comments
were received representing membership in national, regional and local
conservation organizations, civic groups, recreational diving associations,
boating groups, and including Federal agencies and individuals. These
commentors either supported the proposal, or suggested an enlarged boundary
and/or more restrictive regulations. Approximately 10 written comments
were received that advocated a smaller area or opposed the proposal (see
Appendix E for a compilation of letters and NOAA responses).
The Final Environmental Impact Statement (FEIS) summarizes and responds
to all of the comments received through July 21, 1980. It proposes the desig-
nation of a marine sanctuary in high seas waters at Looe Key and describes
the proposed regulations for this sanctuary. The boundary and regulations
are summarized in this chapter and discussed more fully in Chapters Two and
Four and are presented in full in Appendix A. The major changes to the
proposal from the preferred alternative in the DEIS are as follows:
1. The Designation Document (Appendix A) has been changed to
acknowledge the importance of Looe Key to commercial fishing
in Article 3. Characteristics of the Area That Give It
Particular Value.
2. The description of the sanctuary boundary has been inserted in
Article 2. of the Designation Document (Appendix A).
3. The regulation on anchoring has been changed to prohibit
anchoring on coral within the Fore Reef area as defined by
the Loran "c" points 1 , 2, 3, 4 of Appendix A (see Chapter
Four, 7. Alternatives Regulating Anchoring). Sand anchoring is
encouraged, but not required, elsewhere within the sanctuary.
4. The regulation on tropical specimen collecting has been changed
to prohibit collecting within the sanctuary except with a
permit for scientific and educational purposes (see Chapter
Four, 3. Regulations Affecting Tropical Specimen Collecting
and Generic Response #4, Appendix E).
If NOAA decides to proceed with the designation, the Secretary
of Commerce must receive Presidential approval and final regulations
for the sanctuary will be issued.
II. NATIONAL MARINE SANCTUARY PROGRAM (NMSP) PURPOSES
The National Marine Sanctuary Program (NMSP) focuses on comprehensive
management of marine ecosystems for the long-term protection of natural
resources and the enjoyment and benefit of society.
The following program purposes present a framework for the national
sanctuary system:
° To provide long-term protection to special marine areas with unique
conservation, recreational, ecological or aesthetic values;
° To provide a focus for comprehensive management of these areas;
° To enhance public awareness of special marine areas and emphasize
wise use of these natural resources;
° To encourage research and exchange of information about marine
ecosystems.
III. THE RESOURCE
° General Biology of Coral Reefs
The reefs off eastern Florida begin at Fawrey Rock near Miami and
extend all the way to the Dry Tortugas. There is little coral grovifth
along the Florida west coast due to the limiting nature of the colder
water and sediment content of the Gulf of Mexico. Looe Key Reef is a
submerged section of this east coast Florida reef tract located 6.7
nautical miles southwest of Big Pine Key in the Lower Florida Keys.
The proposed sanctuary area includes a Fore Reef, Reef Flat, Patch Reef,
Deep Reef and Deep Ridge.
Coral reefs such as Looe Key are among the most biologically produc-
tive of all natural communities. Looe Key supports a wide variety of
life: fish, sponges, molluscs, crabs, octopi , starfish, shrimp, feather
duster worms and octocorals. The octocorals — fanlike, fernlike--are among
the most decorative creatures on the reefs.
The rich colors of the reefal organisms also provide an attraction
to swimmers. Looe Key, because of its wide range in depth, is accessible
to both the beginning swimmer and the experienced diver. In addition to
contributing to aesthetic experiences, colors are used by organisms for
identification, camouflage, and signals, and to establish territoriality
and attract mates. The solid substrate formed by the corals at Looe Key
provides for this tremendous diversity of life, all directly or indirectly
dependent upon the corals and coral rock for shelter, food or for a place
to attach and grow. On the seaward slope, the reef flat and on the sandy
bottom around the reef, one finds animal communities or assemblages
different from those on the reef itself. In the soft bottom areas, grasses
and algae cover the sediment and they in turn support still different
communities.
Many fish and invertebrates leave the safety of the Fore Reef at
night to search the nearby Reef Flat and Patch Reefs for prey. These areas
are also used as nursery grounds for juvenile fish. On the other hand,
sessile reef species often feed on planktonic stages of animals found away
from the Fore Reef in other habitats. The Reef Flat zone consists of rock
and rubble areas which serve as excellent habitat for small invertebrates.
The Fore Reef and surrounding communities form a complex and intricate
ecosystem which owes its evolution primarily to the corals' unusual ability
to extract dissolved salts from the ocean and convert them into the limestone
reef formations.
° General Ecological Relationships
Reefs depend upon two basic factors: solar energy and chemical
nutrients. Sunlight and nutrients in combination are utilized by plants
in the process called primary productivity. The majority of the plants at
Looe Key engaged in primary productivity are algae, microscopic in size
and sheltered within the tissues of soft and hard corals, sea anemones and
sponges. This is a form of symbiosis (mutual aid) in which algae produce
the food and in return receive shelter and sustenance from the corals.
FIGURE 2
l^/l PATCH REEF ZONE
"]"] REEF FLAT ZONE
^ FORE REEF ZONE
yy DEEP REEF ZONE
Cnidarians, sponges, echinoderms and molluscs all contribute to reef
building in that they can remove dissolved material from the water and deposit
it as hard mineral compounds. Calcium carbonate (CaCOo), the building material
of reefs, comprises much of this material. Stony corals and molluscs contri-
bute with their hard skeletal remains; gorgonians and certain sponges, by
secretions of microscopic rods of CaC03 released with the death of the animals;
echinoderms, through skeletal remains composed of carbonate plates.
The Looe Key Reef System
All major taxa of coral reef-dwelling organisms are represented at Looe
Key. A report, based on a resource inventory conducted by Antonious et al ,
in 1978, indicates the existence of several hundred species of marine
organisms, co-existing in the intricate functional web of the reef ecosystem.
The inventory divides the Looe Key Reef area, from an ecological /topo-
graphical point of view, into five zones: (1) a Patch Reef area between
Hawk Channel and the Looe Key reef flat, (2) the Reef Flat, triangular in
shape, with the Looe Key marker in the southeast corner, (3) the Fore Reef,
facing Florida Straits to the south, consisting of a spur and groove system,
and the reef crest (4) a Deep Reef area with a drop-off, southwest of the
Fore Reef and (5) a Deep Ridge, separated from the Deep Reef by an estimated
1 km of sand bottom (Figure 2). The proposed sanctuary boundary was selected
to insure inclusion of portions of all five zones.
Patch Reef
A flat and relatively shallow area of about 8 m in depth stretches from
Hawk Channel south to the Looe Key Flat. The area is dominated by a mixed
association of seagrasses, such as turtle grass and manatee grass, and green
algae and octocorals.
Continued survival of the seagrass beds is critical for maintenance of
the habitat utilized by numerous fishes and the spiny lobster. Utilization
of the patch reefs for shelter from predators allows both juveniles and
adults to exploit an enormous and nearby source of energy, the biomass of
seagrass association.
Due north of the Looe Key Reef Flat are numerous patch reefs scattered
throughout the seagrass community. Most of these reefs have little profile
and generally project up less than 2 m from the shallow bottom.
Among the faunal components in all the Patch Reefs, octocorals are by
far the most dominant. They not only grow densely enough to give certain
Patch Reefs the appearance of a heavily vegetated landscape, but also attain
unusual sizes. Octocoral species diversity is greater in the Patch Reefs than
on the more spectacular Fore Reef. Among giant sea feathers and sea whips,
the largest specimens are close to 2 m in height.
Reef Flat
The Looe Key Reef Flat is roughly the shape of an isosceles triangle,
its base facing south towards the Straits of Florida and the apex pointing
landward to the north. On this landward side there is a "jery gradual
transition from the seagrass coral association of the Patch Reef area into
the Reef Flat, marked mainly by the beginning of extensive sand flats and
an elevation of the bottom to about 2 m in depth. The bottom consists
primarily of calcareous sand, rubble, coarse sediments and extensive sea-
grass beds, a mixture of turtle grass, manatee grass and algae.
The rock and rubble grass beds of the Reef Flat provide excellent
habitat for small invertebrates. Abundant populations of other organisms,
such as brittle stars, small crustaceans, small gastropods, pelecypod
mollusks, and echinoderms abound in this area. The Reef Flat together
with the Patch Reef serve as nursery areas for juvenile fish and the sea-
grass beds of both zones are feeding grounds for deep-water fish migrating
to these areas at night.
Fore Reef
The Fore Reef zone of Looe Key is a wel 1 -developed and especially
spectacular formation. This zone is the principle diving attraction for
both local residents and tourists. Its main portion is a high profile
spur and groove system, bordering the Reef Flat in 'jery shallow water
and sloping down to a sand bottom in 9-11 m of depth with some of the
spurs showing a profile of up to 7 m high, caused mainly by the vigorous
construction activity of "mountainous" star coral (Montastraea annularis).
Massive growths of fire coral (Mijlepora complanata) are mainly found in
the shallowest part of the spurs, with substantial concentrations of
elkhorn coral immediately seaward of the fire coral complex. Almost all
of the species of fish encountered in the reef system can be found here,
with the exception of some species which prefer deeper water and can only
be observed beyond a depth of 10 m. The whole system, from easternmost
to westernmost spur, is about 1500 m long and, at the main center portion,
about 350 m wide, (Antonius ^. a]_. , 1978).
Deep Reef
The western half of the Fore Reef is intersected by a deeper reef,
which begins here as a finger-like extension of scattered coral outcrops
just beyond the terminus of the spur and groove system. From here, a
reef flat of 10-12 m depth stretches several hundred meters to the west
without showing much profile, representing a comparatively shallow subzone
of the Deep Reef.
Sponges are fairly common and grow to larger sizes in the Deep Reef
than in the Patch Reefs. Octocorals are dominant, but stony corals are
more numerous than in the Patch Reefs. Towards the south, the Deep Reef
gradually changes into a slope of increasing steepness with considerable
profile caused by surge channels.
B
While species composition of stony corals in the deeper part of this zone
remains about the same, the number and size of individual colonies increases,
making them the dominant component here. Also with increasing depth, changes in
the octocoral fauna take place. Among Pseudopterogorgia species, P. binnata far
outnumbers all others, and two deepwater species occur only here: the rare
monofilament Ellisella barbadensis, and\the abundant fan-shaped Iciligoria
schra,mmi .
Although species composition resembles that of shallower parts of the
reef, a number of hard or stony corals with branching and flower-like growth
forms occur on the Deep Reef, which are either not present or very rare in more
accessible areas of Looe Key. Species of the genera Madracis and Oculina grow
in clusters of small finger-like branches while colonies of Mussa angulos and
Eusmilia fasti giata resemble bouquets of densely packed flowers. Disc-like
growth forms of striking shape are found among many species of Agariciidae and
Mussidae, which only at this depth occur in appreciable numbers.
Deep Ridge
This Deep Ridge runs parallel to the margin of the continental shelf in
about 45 m depth. It shows very little profile and is only a few meters wide,
but, nevertheless, is an outcrop of living coral reef. The reef is formed
mainly by plate-like colonies of Montastraea cavernosa and several secies of
Agaricidae. Also present are deep water octocoral s, such as Iciligoria schrammi
and Ellisella barbadensis, with the latter much more abundant here than on the
Deep Reef.
° Cultural Values
Looe Key also offers unique cultural resources including the remains of the
H.M.S. Looe. The latter is used for research and as an educational tool by the
nearby liewfound Harbor Institute. In addition to providing marine archeological
information, shipwrecks become coral encrusted and offer unique dive experiences.
The potential exists for other shipwrecks in the Looe Key area as such resources
are common in the Florida Keys.
° Commercial Values
Fishery resources are an extremely valuable component of the proposal area.
Commercial fishermen with home ports adjacent to Looe Key derive about 28 percent
of their annual catch from the 5 sq nm area which includes the Fore Reef. This
catch primarily includes spiny lobster, snapper and grouper.
In addition, Looe Key is widely used by public charter boats, dive boats,
recreational divers and fishermen.
IV. THE STATUS QUO
One alternative to marine sanctuary designation of Looe Key is the no action
alternative (see Chapter 2). Under this alternative, existing authorities as
described in the Legal Status Quo would continue to control activities and
protect the environment in and around Looe Key. No comprehensive management
programs for research monitoring or education would be instituted. In addition,
long range planning focused on ensuring continued ecosystem viability would be
lacking.
° Concerns
The close proximity to land of the Florida Reef Tract, including Looe Key
Reef, makes these areas accessible to large numbers of people who are able to
drive or fly to the Keys. The Overseas Highway and its 44 bridges link the Keys
to the mainland, and jet air service connects Key West and Marathon to all major
American urban areas. In addition, public charter boat operators, dive boats,
recreation divers and fishermen, utilize the reef throughout the year.
Monroe County statistics indicate that the Keys are expanding rapidly in
both permanent resident and tourist populations. In the area nearest Looe Key,
from Seven Mile Bridge up to and including half of Ramrod Key, the population is
expected to grow from 1,833 in 1974 to 5,845 in 1998 (See Black, Crow & Eidsness,
pp 3-4). Tourism is increasing. In 1979 the number of visitors to Bahia Honda
State Park, in the vicinity of Looe Key, rose from 293,256 to 351,700.
Observations from the Looe Key Resource Inventory (Antonius et. aj_. , 1978)
and interviews with frequent visitors to Looe Key indicate that souvenir coral
collecting is an ongoing practice today, and as such constitutes a serious strain
on the reef's coral resources. The lack of certain species in accessible reef
areas of suitable habitat provide circumstantial evidence of the removal of the
more attractive growth forms.
Anchoring by hook and line fishermen, commercial and amateur tropical
specimen collectors, recreational fishermen, and divers can also cumulatively
damage reef structure. Physical damage to coral species from commercial fishing
can occur when wire fish traps and lobster traps are dropped on coral, dragged
across the bottom during retrieval or tossed about during rough weather.
There is widespread evidence of anchor damage to stony corals and octocorals
within the area of the proposed sanctuary. Broken pieces of elkhorn and staahorn
coral are easily visible in the Fore Reef and Reef Flat zones where the water is
shallow and the more spectacular coral is found. Some of this type of damage may
be related to wave damage or other natural factors. The extent to which it is
anchor- related is unknown at the present time. Numerous observations have been
made of boat anchors lying on living corals and of anchor chains and ropes
chafing corals.
The use of wire fish traps is a highly controversial issue. The traps are
extremely efficient gear. Fishing near the coral reefs with these traps can
cause adverse ecological impacts by killing or injuring non-target species and
removing too many of the predator species important to the coral reef system.
Traps lost by the separation of the buoy line (ghost traps) drift uncontrolled
and can continue to trap fish for unknown periods of time. Unregulated use of
wire traps can also impair recreational value.
10
Both amateur and limited commercial tropical fish and invertebrate collecting
occur throughout the Looe Key area. Tropical specimen collectors take a large
variety of fish, but concentrate primarily on a small number of the more popular
species. The most commonly collected fishes, according to a recent study, are
angelfishes, damselfi shes, and butterflyf ishes. Individually, the most sought
after fishes are the queen angelfish, rock beauty and neon goby.
Dredging, dredged material disposal and ocean outfalls do not appear to pose
a realistic threat to the area at this time. However, due to the increasing num-
ber of visitors, disposal and discharge of certain other substances such as trash
and litter are sources of concern. Current disposal and discharge activities are
generally incidental to recreation and research; i.e., disposal of fish parts
from cleaning and dressing fish caught in the area, release of marinetype
chumming or bait and materials, discharge of effluents from marine sanitation
devices, discharges of cooling waters from normal vessel engine operations and
disposal of trash and litter from pleasure and research watercraft and transient
vessels.
Finally, there is currently no protection for potentially important
archaeological resources found in the area, including the shipwreck HMS Looe.
° Statutory Authorities
Looe Key is located on the continental shelf seaward of the territorial sea
and State jurisdiction. A variety of Federal statues and regulations apply to
activities in the area. Those that apply to activites posing significant threats
are analyzed in Chapter Three, The Legal Status Quo. The mandates of existing
authorities are often too broad to focus adequately on small discrete areas
requiring special management measures. Jurisdictions include, in some cases,
all waters or seabed out to 200 nautical miles off the entire United States
coastline. In other cases, mandates are often too narrow to provide holistic
attention; statutes directed at a particular resource may neglect or exclude
components of the entire ecosystem. Finally, decentralized management of
multiple use areas can result in policy conflicts, and does not lend itself to
integrated management including education, research, recreation and information
exchange.
Regulation of coral collecting, tropical specimen collecting, spearfishing
and anchoring activities does not presently exist. Fishery Management Plans
(FMP) are in preparation for some, but not all species of interest. The SAFMC
and the GMFMC are jointly preparing a draft Coral and Coral Reef Resources FMP
as the initial step in the management of all coral species under the jurisdiction
of these two Councils. The current plan proposes to approve for harvest limited
quantities of certain soft coral species, and to prohibit taking of hard corals
except under permit for scientific and educational purposes. This draft FMP
further proposes to designate Looe Key as a 1 sq nm Habitat Area of Particular
Concern (HAPC) with special management measures for additional protection of
the Fore Reef area (see Legal Status Quo).
In addition to the Coral and Coral Reef Resources FMP, the SAFMC and the
GMFMC are jointly preparing a FMP for Spiny Lobster, and the SAFMC is preparing
a FMP for Snapper-grouper. Restrictions on fishing for these resources may be
n
proposed pursuant to the plans. In lieu of enough information to warrant
preparation of a FMP for reef resources such as tropical fish and invertebrates,
the Councils are considering the preparation of a profile or description of
the resource and fishery.
The final scope and content of all FMPs is uncertain at this time because
they are in draft form and subject to change. None of these FMPs is likely to
be implemented until late 1981.
Although a variety of Federal laws, regulations and policies apply to
activities occurring in the general area of the proposed sanctuary (see Chap-
ter 3, Section V), they do not appear adequate to assure long-term protection
of Looe Key.
Given these special resources, their particular vulnerability, and the
multiple, increasing human pressures on the area, assurance of long-term pre-
servation of Looe Key requires (a) a management framework that will monitor,
assess and act on information about the cumulative effects of human uses, (b)
a mechanism to coordinate and encourage research that will lead to necessary
management decisions, and (c) efforts to educate the public about the value
and the fragility of the reefal system. The no-action alternative appears to
meet none of these requirements.
The status quo provides no focal point for comprehensive long-term
management, and no programmatic mechanism to promote and coordinate research
on coral reef ecology and ecosystem recovery or to provide information to the
direct and indirect user public. There are currently no programs to provide
education and information aimed at increasing long-term protection of these
areas by increasing public awareness of the distinctive resources and their
susceptibility to disturbance.
The marine sanctuary program proposes to provide a comprehensive mechanism
through long-term management to protect this ecosystem and to respond in a timely
fashion to marine conservation issues and to the interests of affected user
groups as those issues arise.
V. THE PROPOSAL
The Office of Coastal Zone Management (OCZM), which is responsible for the
marine sanctuary program within NOAA, proposes the designation of Looe Key as
a marine sanctuary. The sanctuary area consists of 5 sq nm of high sea waters
under Federal jurisdiction surrounding Looe Key, a submerged section of the
Florida Reef Tract, located 6.7 nautical miles (12.4 km) southwest of Big Pine
Key in the lower Florida Keys at latitude 24°33' north and longitude 81°24' west
(see figs. 1 and 3).
Looe Key is part of a curving reef tract off the Florida Keys containing the
only living coral reefs in the United States (Ginsburg 1974). The Looe Key area
includes:
° Portions of Patch Reefs, a Reef Flat, Fore Reef, Deep Reef and Deep Ridge
in a small manageable unit which allows for a focus on public education
and research aimed at a better understanding of reef dynamics;
12
° Shallow water reef areas easily accessible to the public; ideal for
recreational uses by both amateur and experienced individuals.
The 5 sq nm boundary alternative will provide a reasonable slice of the
reef tract which will permit management to achieve the proposed sanctuary
objectives as described below and result in minimal economic impact. For
these reasons it was selected as the preferred boundary.
Proposed Management
The management of Looe Key as a marine sanctuary will focus on the attain-
ment of several goals and objectives (Chapter Two Preferred Alternative):
Goal 1: To maintain, protect and enhance the quality of the natural,
biological, aesthetic and cultural resources of Looe Key reef system.
Objectives:
° Promulgate protective regulations;
° Provide a framework for onsite management;
° Provide for adequate enforcement;
° Utilize research data to assess management needs and priorities,
modify regulations and to determine management strategies.
Goal 2: To promote and stimulate marine research efforts directed toward
identification and analysis of marine ecological interrelationships.
Objectives:
° Encourage and cooperate with interested parties in research and
study of reef interrelationships;
° To establish competitive funding mechanisms encouraging a wide
range of scientific expertise to focus attention on reef dynamics;
° Establish a clearing house for dissemination and exchange of
sanctuary research data; and
° To facilitate effective management of Looe Key.
Goal 3: To enhance public awareness of the need for conservation and
protection of the Looe Key coral reef system.
Objectives:
° Provide a means for education and information exchange;
° Develop educational programs that will increase awareness and
appreciation of Looe Key through a public information effort
(including slides, brochures, lectures, etc.);
° Establish a sanctuary information center; and
° Develop interpretative services.
The Management Plan and Enforcement
If the sanctuary designation occurs, development of a formal Management
Plan (MP) will be undertaken and completed within the first 9-12 months. NOAA
proposes to work with the Florida Department of Natural Resources in the
formulation of this plan. The MP development process will emphasize public
13
involvement and review. Alternative means of insuring user participation in
sanctuary management will be explored in the public forum. If advisory
committees are desired, they will become a part of the formal management
structure.
NOAA proposes to contract for day-to-day management of the sanctuary, if
such an arrangement can be reached under a Cooperative Agreement. The manage-
ment staff will consist of trained personnel with experience in special area
planning and management. The manager will be charged among other things with
responsibility for coordinating enforcement and surveillance activities within
the proposed sanctuary. The manager will be responsible for administering the
sanctuary and providing reports to include (but not limited to) the following
items:
° Environmental analysis studies;
° Visitor use and visitor use capacity studies, user-related
impacts, and such other information as necessary;
° Enforcement analysis, including a summary of activities, notices of
violations, case dispositions, including statistical information on
number of visitors, points of entry and areas and types of use, and
conclusions and recommendations, including ways to improve management.
The MP would provide for a visitor information station to distribute information
on regulations within the sanctuary and other public information concerning
knowledge of the Looe Key Coral Reef system and ongoing research projects in
the sanctuary and appropriate uses of the natural resources.
NOAA has initiated consultation with the U.S. Coast Guard headquarters on
the question of the proposed Looe Key Marine Sanctuary enforcement. The Coast
Guard will provide the Looe Key Marine Sanctuary enforcement and surveillance
for NOAA and arrangements will be worked out to insure an onsite presence.
NOAA believes that the level of enforcement required in the Looe Key Sanctuary
cannot be achieved through routine patrols or as an add-on to other duties.
Proposed Designation
The Designation Document (Designation) serves as a constitution for the
sanctuary (the draft Designation for the proposed Looe Key Marine Sanctuary is
presented in app. A). It establishes the boundary and purpose of the sanc-
tuary, identifies the types of activities that may be subject to regulation, and
specifies the extent to which other regulatory programs will continue to be
effective within the sanctuary. Its content can be altered only after repeating
the entire designation process and securing Presidential approval.
The draft Designation proposes that the following activities be subject to
necessary and reasonable regulation:
° Anchoring;
° Coral collecting and damage;
° Wire trap fishing;
° Lobster trapping;
14
° Tropical specimen collecting;
° Spearfishing;
° Bottom trawling and specimen-dredging;
° Discharging or depositing any substance;
° Tampering with, removing, or otherwise damaging, cultural
or historic resources; and
° Dredging or alteration of or construction on the seabed.
Hook and line fishing, net fishing and activities such as snorkeling and
SCUBA diving will not be subject to regulation under the current Designation
except where regulations relating to the damaging of natural resources apply.
Proposed Regulations
The proposed restrictions on activities are set forth in the draft regu-
lations (Appendix A). At the present time NOAA is not proposing to regulate
alteration of or construction on the seabed or bottom trawling and specimen-
dredging. However, by listing these activities in the Designation, restrictions
could be proposed in the future should conditions warrant it. NOAA may legally
promulgate regulations only in relation to the specific activities listed in
the Designation, but the Designation itself does not constitute regulations or
impose restrictions. Specific regulations must be proposed, subjected to public
review and comment and promulgated if NOAA wishes to control any aspect of the
activities listed in the Designation.
Specific regulations summarized here and presented in detail in Chapter
Two, are proposed for the protection of the natural resources and the safety of
the various user groups as part of NOAA's preferred alternative. To the extent
possible, the sanctuary managers will coordinate with existing authorities in
both the administration and enforcement of the regulations. These regulations
will apply only within the sanctuary boundaries. The full text of the proposed
regulations as they appear in the Federal Register is presented in Appendix A.
The proposed regulations would impose the following controls:
(1) Prohibit damage to or the collecting of coral except by permit
for research and educational purposes;
(2) Prohibit the collecting of tropical marine specimens
except by permit for scientific and educational purposes;
(4) Prohibit the use of wire fish traps;
(5) Prohibit lobster trapping on the Fore Reef (consisting of a
trapezoid within Loran "C" points 1 , 2, 3 and 4 consistent
with the Habitat Area of Particular Concern (HAPC) proposed
by the Gulf of Mexico and South Atlantic Fishery Management
Councils);
15
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(6) Prohibit anchoring on coral on the Fore Reef (consisting of a
trapezoid within Loran "C" points 1, 2, 3, 4, and encourage
sand anchoring elsewhere within the sanctuary;
(7) Prohibit tampering with, damaging or removal of natural histor-
ical and cultural resources except by permit for scientific and
educational purposes; and
(8) Prohibit all discharges except vessel cooling waters, fish parts,
chumming materials and effluents from marine sanitation devices.
VI. SUMMARY OF ENVIRONMENTAL CONSEQUENCES OF THE PREFERRED ALTERNATIVE
Sanctuary designation will provide long-term protection for a representa-
tive section of the Florida reef tract from Patch Reefs out to the Deep Ridge.
Comprehensive management of this area will include emphasis on increasing the
level of public awareness of resource values and of the potential for harm
through a public education program and research on reef biology and system
interactions. Management of a section of the reef tract will allow for appro-
priate distribution of visitor uses and consequent control of certain harmful
effects.
Minimal economic impacts will result from proposed restrictions within the
preferred boundary alternative (See Chapter Four Environmental Consequences).
° Boundary
The preferred alternative for the boundary (5.32 sq nm) will protect the
entire Fore Reef and Reef Flat and portions of the adjacent Patch Reef, Deep
Reef, and Deep Ridge. A sanctuary of this size will result in the protection
and management of a system, rather than simply individual components (see
Figure 3). It will help insure accomplishment of all sanctuary goals (See p. 4)
by encompassing a "slice of the ecological pie", affording opportunity for focus
on education and research. The preferred alternative emphasizes the maintenance
of the biological interrelationships of the reef system components in order to
maximize public benefits and minimize resource threats. The 5 sq nm sanctuary
will also maximize the enforcement capability for sanctuary regulations. In
addition, the 5 sq nm will have minimal adverse economic impact on commercial
fishing as compared to larger boundary options.
° Anchoring
The proposed regulation would prohibit anchoring on coral on the Fore Reef.
The regulation will help protect the Fore Reef coral assemblages from snagging,
breaking and other anchor damage. Sand anchoring will be encouraged outside the
Fore Reef. This will not provide maximum protection for coral growths in this
area but will have minimal impact on sanctuary users. An educational program
to advise users on anchoring procedures and frequent site inspections will be
utilized in order to ensure the success of this regulation. A mooring buoy
design and feasibility study will be initiated upon designation, and if such a
system seems desirable the proposed regulation would be modified at the time
buoys are installed.
17
° CorcQ CoTlepting and Damage
The proposed regulation would prohibit the collection or possession of
all corals, living or dead, within the proposed sanctuary (except as permitted
for scientific and education purposes)- The regulation will protect the coral
assemblages from stress and physical damage. This will maintain the reef
habitat for fish and preserve aesthetic qualities.
° Wire Fish Traps
The proposed regulation would prohibit the use of wire fish traps within
the entire preferred sanctuary boundary. This regulation would prevent both the
physical and ecological damage to the coral reef system from wire fish traps.
The recreational and aesthetic values of the sanctuary will also thereby be
maintained and enhanced. The regulation would not prohibit the setting of traps
beyond the sanctuary boundaries. The regulation will, however, adversely affect
those fishermen who presently use wire fish traps within the 5 sq nm area and
therefore will be forced to move elsewhere to trap.
° Lobster Trapping
The banning of lobster traps from the Fore Reef will prevent the physical
damage that frequently occurs when lobster traps contact the coral due to improper
placement or storm surge. However, because the prohibition is limited to a
small geographic area, the regulation will result in minimal, if any, economic
loss to the fishing community. The proposed regulation is the same as the special
management measure for Looe Key under consideration in the draft Coral and
Coral Reef Resources FMP.
° Tropical Marine Specimen Collecting
A prohibition on tropical specimen collecting (except by permit for scien-
tific and educational purposes) would protect and enhance the tropical fish
population at Looe Key, prevent the depletion of ecologically important species,
add to the aesthetics of the sanctuary, and maintain and enhance the long term
productivity of the Looe Key coral reef for future generations.
Many suitable areas for tropical specimen collectors to catch tropical
fish and invertebrates exist in the south Florida area including shallow inshore
areas, inshore coral heads, mid-channel reefs (in the middle of Hawk's Channel),
and the entire outer reef. This alternative would cause limited economic loss
to present commercial collectors.
The total economic loss of revenue per year estimated in the socio-
economic analysis for Boundary Alternative 2 would be $25,000 to $43,000 or
$80,075 to $137,729 using regional multipliers. At least some of this loss
could be made up by collecting elsewhere and by commercial collecting under
permit for sale to public aquaria and education research institutions.
18
° Spe.arfishing
The proposed regulation would prohibit spearfishing within the entire
preferred sanctuary boundary. One of the primary impacts of prohibiting the
spearing of fish will be to create better conditions for observing, studying
and photographing fish. This prohibition will also benefit the ecological
system by ameliorating the continued disturbance and removal of territorial
reef predators such as grouper, eliminating physical damage to coral from
inexperienced spearfishmen, reducing the inadvertent kill of non-edible
tropical reef fish species, and eliminating the potential for human injury.
° Discharges
The prohibition of discharges will help insure a high degree of water
quality by preventing the discharge or deposit of most material within the sanct-
uary. The regulation allows the discharge of chumming materials and fish parts,
cooling waters, and effluents from marine sanitation devices. The regulation
will not impact fishing activities. The economic impact on sanctuary users is
minimal, although they will be required to retain their trash for disposal in
proper sites.
° Historical or cultural resources
Tampering with, removing or damaging historical or cultural resources
is prohibited. The regulation will protect the HMS Looe from possible
tampering or removal.
VII. ACTIVITIES LISTED IN THE DESIGNATION DOCUMENT FOR WHICH REGULATIONS
ARE NOT CURRENTLY BEING PROPOSED
° Alteration of or construction on the seabed.
° Bottom trawling and specimen-dredging.
The Army Corps of Engineers (COE) exercises authority over construction
and the dumping of dredged materials but not the actual dredging. The Bureau
of Land Management (BLM) has jurisdiction over dredging activities related to
mineral leasing such as sand and gravel mining. However, no other existing
Federal regulatory authority has jurisdiction over other activities that might
alter the seabed such as dredging. Exploratory trawling for reef fish on live
bottoms in the South Atlantic has proven economically and technically feasible.
It is possible that some time in the future modified gear such as roller trawls
would be contemplated for use in areas such as Looe Key.
While adverse impacts of both of the above activities are well documented,
NOAA has no evidence to indicate that they pose realistic threats to the resour-
ces at this time. For this reason NOAA is not promulgating regulations but is
listing these activities in the Designation Document, and may issue regulations
at a future date if the need arises.
19
VIII. MARINE SANCTUARY PERMITS
Marine sanctuary permits, issued by NOAA, will be required for an
activity which would otherwise violate the regulations. The permit procedure
is specified in the regulations (app. A).
IX. CERTIFICATION OF OTHER PERMITS
The regulations propose to certify in advance any permit, license, or
other authorization issued pursuant to any other authority within the sanctu-
ary as long as the activity does not violate marine sanctuary regulations.
This notice of validity avoids duplicating permit delays and costs where
there is no violation.
20
CHAPTER ONE PURPOSE AND NEED FOR THE ACTION
The Office of Coastal Zone Management (OCZM) of the National Oceanic and
Atmospheric Administration (NOAA) has identified the Looe Key Reef as a special
marine area with important conservation, recreational, ecological and aesthetic
resources, threatened by existing and potential human use and deserving of marine
sanctuary designation. The goals of this proposed Looe Key Marine Sanctuary are
as follows (for a more detailed discussion see Chapter Two):
° To maintain, protect and enhance the quality of the natural biological
aesthetic and cultural resources of the Looe Key Reef system;
° To promote research and study of sanctuary resources;
° To enhance public awareness of the functioning of the Looe Key coral
reef system and to provide a means for education and information
exchange.
The Looe Key area offers an opportunity to focus management attention on
a small, highly used cross section of the Florida Reef tract. Looe Key manage-
ment will concentrate on encouraging coral reef research within the sanctury,
ensuring a coordinated approach to data exchange and availability, and developing
effective public education programs, and long-term plans for the preservation of
the resources. Each of these programs will contribute to increased knowledge and
understanding necessary to ensure wise use of our marine ecosystems.
The accessibility of Looe Key to commercial, recreational and educational
users, its high productivity, and superior scenic beauty have led to frequent
and increasing use of the area, with resulting physical and ecological damage
to the reef system. Monroe County socio-economic studies indicate that both
permanent and tourists populations, in the area nearest Looe Key, are increasing;
corresponding increases in the use of Looe Key have potential for long-term
adverse environmental consequences. Sanctuary designation will provide the
long term integrated management necessary to protect and use wisely these
resources.
As a part of the proposed management system certain additional regulations
appear necessary. Most significantly, in a recent legal opinion, the U.S. Court
of Appeals, Fifth Circuit, ruled that the Bureau of Land Management's jurisdic-
tion to regulate the taking of coral and other activities damaging to coral
reefs is restricted to offshore activities associated with mineral exploration
and development by lessees and their agents, leaving coral reefs such as Looe
Key unprotected from damage due to coral collecting, improper anchoring, and
certain potentially harmful fishing techniques.
OCZM, therefore, proposed to designate Looe Key as a National Marine
Sanctuary under Title III of the Marine Protection, Research and Sanctuaries Act
of 1972. Such an action will allow for long term protection of a valuable section
of the Florida reef tract and comprehensive management which will include both
research and educational components (See Chapter Four, Environmental Consequences).
21
CHAPTER TWO ALTERNATIVES INCLUDING THE PREFERRED ALTERNATIVE
I. INTRODUCTION
NOAA proposes to designate Looe Key as a marine sanctuary to protect
and enhance its natural features and to promote scientific understanding,
public appreciation and wise use of its resources. Various management,
boundary and regulatory alternatives have been considered in the evaluation
of the proposed action.
This section presents a brief analysis of all reasonable alternatives,
including a no action alternative (status quo) and the preferred alterna-
tive, and a brief discussion of the physical, biological, ecological and
socioeconomic impacts resulting from the proposed action. A detailed impact
analysis is presented in Chapter Four, Environmental Consequences.
II. NO ACTION ALTERNATIVE: RELY ON THE STATUS QUO
Looe Key is located on the high seas just seaward of State jurisdic-
tion. A variety of Federal laws, regulations, policies and procedures
apply to activities occuring in the general area of the proposed sanctuary
(for a detailed description please see Chapter Three, Section V The Legal
Status Quo).
An alternative to the proposed action is the "no action alternative"
(status quo), meaning that Looe Key would not be designated as a marine
sanctuary. Under this alternative, the existing authorities as described
in the Legal Status Quo would continue, to control activities and protect
the environmemt in and around Looe Key. No comprehensive management program
for research, monitoring or education would be instituted. In addition,
long range planning focused on insuring continued ecosystem viability would
be lacking.
As discussed below under the Preferred Alternative and in more detail
in Chapter IV, Looe Key is a special marine area; a complex, fragile eco-
system containing valuable natural resources. Part of it's uniqueness lies
in the fact that it is readily accessible to all user groups and it offers a
range of water depths which will accommodate novice to expert swimmers,
snorklers and divers. These factors in combination with its spectacular
beauty have resulted in increasing levels in human uses (Please see Chapter
One - Purpose and Need for Action). Human activities that either singularly
or in combination may place stress on the reef system include anchoring,
wire trap fishing, spearfishing, tropical specimen collecting, and damage
to or removal of historical and cultural resources. The current literature
suggests that coral reef resources, are unusually susceptible to some forms
of environmental perturbation. In addition, when a reef system is seriously
damaged the ecological conditions that follow cannot be expected to coincide
with those preceeding so that it cannot be taken for granted that the reef
will ever replace itself.
23
Given these unique resources, their particular vulnerability, and
the multiple, "increasing human pressures on the area, assurance of long
term preservation for Looe Key requires (a) a management framework that
will monitor, assess and act on information about the cumulative effects
of human uses, (b) a mechanism to coordinate and encourage research that
will lead to necessary management decisions, and (c) efforts to educate
the public about the value and the fragility of the reefal system. The
no action alternative appears to meet none of these requirements.
Existing statutes, including the Outer Continental Shelf Lands Act,
the Clean Water Act, and the Marine Mammal Protection Act, are directed
either at the accomplishment of a single purpose or the regulation of a
single activity, such as the extraction of oil and gas resources, the
preservation of water quality, and the conservation of marine mammals.
These authorities do not provide a comprehensive management mechanism.
These statutes also do not address all aspects of human threats to the
area. To take one example, the regulations controlling ocean discharge
and dumping do not consider all shipboard wastes. For example. Federal
regulation of sewage wastes from marine sanitation devices does not
extend beyond State waters (see the January 30, 1980 amendment to the
Clean Water Act in Section IV F). The discharge of oil beyond the ter-
ritorial sea (3 nm) from tankers under 150 gross tons and other vessels
under 500 gross tons is unregulated, and regulations pertaining to dis-
charges from machinery space bilges require that the activity must take
place as far as practical from nearest land, while in route, and must
not exceed 60 liters per mile or have oil content exceeding 100 parts
per million. Finally, there are no regulations to control the disposal
of trash and litter in high seas areas.
In addition, the status quo provides no programmatic mechanism to
promote and coordinate research on coral reef ecology and ecosystem re-
covery or to provide information to the direct and indirect user public.
There are currently no programs to provide education and information aimed
at increasing long-term protection of these areas by increasing public
awareness of the distinctive resources and their susceptibility to distur-
bance.
The regulatory regime closest in purpose and scope to the marine
sanctuary program is that provided by the Fishery Conservation and Man-
agement Act of 1976 (FCMA). Even that regime, however, does not satisfy
all of the management requirements described above. Under the FCMA,
Regional Fishery Management Councils propose and implement necessary
regulations for the management of selected commercial and recreational
fisheries which are in need of management pursuant to Fishery Management
Plans (FMP). These FMP's will provide for some protection of selected
Fishery resources at Looe Key but will not likely focus on the site spe-
cific ecosystem management. FMP's do not necessarily consider elements
of the ecosystem which are not harvested, nor do they address the entire
range of threats to which an ecosystem may be subject. Moreover, none of
the FMPs is final and projected time schedules are uncertain.
24
The FMP most relevant to Looe Key is the Coral and Coral Reef Resour-
ces Plan, This FMP proposes to create a Habitat Area of Particular Concern
(HAPC) consisting of 1 sq nm which emphasizes protection of the
actual spur and groove Fore Reef from physical damage. However, the Coral
and Coral Reef Resources FMP will not necessarily provide protection to
components of the system which are not exploitable fishery resources. In
addition, the long-term biological productivity of a system is by no means
assured by such protection efforts. Finally, the Coral and Coral Reef
Resources FMP does not focus on management, particularly as it relates to
environmental monitoring, visitor uses, public education, research aimed
at assessing the effectiveness of protective measures and the health of
the total system.
Thus, the management protections offered by the FCMA are at best
uncertain. Nor does the FCMA assure the site-specific research, moni-
toring and education elements that long term preservation of the area
requires. A marine sanctuary would provide a useful complement to the
FMP process.
In conclusion, available information indicates that perpetuation of
the status quo will not adequately protect the Looe Key area from present
or future impacts on the physical, biological, and ecological environment
nor enhance scientific, educational, recreational and aesthetic values of
the ecosystem. The marine sanctuary program proposes to provide a compre-
hensive mechanism through long-term management to protect this ecosystem
and to respond in a timely fashion to marine conservation issues and to
the interests of affected user groups as those issues arise.
III. PREFERRED ALTERNATIVE
A. Goals and Objectives
To determine the preferred alternative boundary and regulations that
adequately address the issues and problems of Looe Key, a set of management
goals and objectives has been developed and out of this management frame-
work appropriate controls will be determined. The goals and objectives
are as follows :
Goal 1: To maintain, protect and enhance the quality of the
natural, biological, aesthetic and cultural resources
of the Looe Key system.
Objectives:
° Promulgate protective regulations to provide a frame-
work for onsite management.
° Provide for adequate enforcement.
° Utilize data to modify regulations and to determine
management strategies; assess management needs and
priorities.
Goal 2: To promote and stimulate marine research efforts directed
toward identification and analysis of marine ecological
i nterrel ationships.
25
Objectives:
° Encourage and cooperate with interested parties
in research and study of reef interrelationships.
° Establish competitive funding mechanisms encour-
aging a wide range of scientific expertise to
focus attention on reef dynamics.
° Establish a clearing house for dissemination and
exchange of sanctuary research data.
Goal 3: To enhance public awareness of the functioning of the
Looe Key coral reef system.
Objectives: ° Provide a means for education and information exchange.
° Develop educational programs that will increase aware-
ness and appreciation of Looe Key through a public
information effort (including slides, brochures,
lectures, etc.)
° Establish a sanctuary information center.
° Develop interpretive services.
B. Management Plan
If the sanctuary designation occurs, development of a formal Management
Plan (MP) will be undertaken and completed within the first 9-12 months.
NOAA proposes to work with the Florida Department of Natural Resources in
the formulation of this plan. The MP development process will emphasize
public involvement and review. Alternative means of insuring user partici-
pation in sanctuary management will be explored in the public forum. If
advisory committees are desired they will become a part of the formal
managment structure.
The MP will be periodically reviewed and management measures including
regulations, evaluated for effectiveness in achieving sanctuary goals and
objectives. This periodic review will also involve a high degree of public
participation.
In order to provide an efficient system for the management of the
proposed Looe Key sanctuary, the following basic strategies are proposed:
Sanctuary Manager
NOAA proposes to contract with the State Department of Natural Resour-
ces for day to day management of the sanctuary. The management staff will
consist of objective personnel with experience in special area planning
and management. The manager will be charged among other things with respon-
sibility for coordinating enforcement and surveillance activities within
the proposed sanctuary. The manager will be responsible for administering
the sanctuary and providing reports to include (but not limited to) the
following items:
° environmental analysis studies;
° visitor use and visitor use capacity studies, user-related
impacts, and such other information as necessary;
26
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° enforcement analysis, including a summary of activities,
work that will entail survey, inventory and assessment of
submerged cultural resources. Attention will be given to
the interrelationship between cultural resources and bio-
logical processes.
The MP would provide for a visitor information station to distribute
information on regulations within the sanctuary and other public
information concerning knowledge of the Looe Key Coral reef system and
ongoing research projects in the sanctuary.
Enforcement
NOAA has initiated consultation with the U.S. Coast Guard headquarters
on the question of enforcement for the proposed Looe Key Marine Sanctuary.
The Coast Guard will provide the Looe Key Marine Sanctuary enforcement and
surveillance for NOAA. Arrangements will be worked out to insure an
on-site presence. NOAA believes that the level of enforcement required
in the Looe Key Marine Sanctuary can not be achieved through routine
patrols or as an add-on to other duties.
Anchoring Study
To explore methods of lessening the effects of improper anchoring, NOAA
will undertake a study to determine the feasibility and design of a mooring
buoy system for Looe Key or a suitable alternative. The study will include
a discussion of the impacts of placement of mooring buoys on the physical environ-
ment and resources. Proper anchoring information will be disseminated to users.
Public Education and Information
The "living laboratory" aspects of Looe Key can be fully utilized to
provide learning opportunities for the public to view the interrelationship
between man and the environment, and the implications of marine management.
This educational aspect will be developed through field activities, media
materials, lectures and brochures. A sanctuary user's guide will better
enable the public and educators to understand and safely utilize the resources.
Research
In an effort to provide scientific data upon which future change can
be evaluated and management decisions based, NOAA will give priority to
completing a biological inventory, reef health assessment, and water
quality assessment. Research at Looe Key will not duplicate but rather will
compliment research efforts at the Key Largo Marine Sanctuary /John Pennekemp
State Park, and the national marine parks in the Florida Keys.
28
Cultural Resources
The proposed sanctuary has a diversity of cultural resources (such as the
HMS Looe). To understand more fully their history and to provide a mechanism
that will ensure their survival, NOAA will competitively fund work that will
entail survey, inventory and assessment of submerged cultural resources.
Attention will be given to the interrelationship between cultural resources
and biological processes.
C. Preferred Boundary Alternative
Three boundary alternatives were considered for the proposed marine
sanctuary (see fig. 4, Boundary Alternatives).
1. Alternative 1 - an area 1 sq nm containing only the Fore Reef
and Reef Flat;
2. Alternative 2 - an area consisting of 5 sq nm containing the
Fore Reef, Deep Reef and Deep Ridge;
3. Alternative 3 - an area consisting of 10 square nautical
miles including the resources contained within the 5 sq nm
alternative plus more extensive portions of the Patch Reef
area.
The 5 square nautical mile boundary alternative was chosen as the
preferred alternative (See Chapter Four - Environmental Consequences for
a detailed analysis of the various alternatives, including the preferred).
The 5 sq nm alternative encompasses representative portions of all five
ecological zones found at Looe Key: Patch Reef; Reef Flat; Fore Reef; Deep
Reef and Deep Ridge. It also covers an extension of the Fore Reef to the
east discovered only recently as part of the survey work for this EIS.
The Patch Reef zone is a relatively shallow flat bottom area, covered
with extensive turtle grass and manatee grass. Interspersed among the sea-
grass beds are numerous patch reefs with \/ery little profile. The patch
reefs within this zone are usually dominated by densely growing, large octo-
corals. The species diversity of octocorals on the Patch Reef is
greater than that of the Fore Reef and certain octocorals exist only on the
Patch Reef. The scattered stony corals reach only moderate size, but never-
theless give the patch reefs enough structure to provide shelter for fishes
and invertebrates. In addition, the naturally rare pillar coral (Dendrogyra
cylindrus); is more likely to be found in the Patch Reef area than at the
Fore Reef (Antonus, 1979).
The significance of the Patch Reef zone as a shelter for a variety of
finfish and shellfish has been pointed out in a number of publications (e.g.,
Zieman & Roblee, 1979). Without the protection of the interspersed patch
reefs these animals would be unable to use the surrounding seagrass beds as
feeding grounds. This zone, together with the even shallower Reef Flat, are
Looe Key's nursery for juvenile fish. In addition, the extensive seagrass
beds of both zones constitute the feeding ground for many deep-water fishes
migrating to these areas at night.
The Fore Reef provides the deep sheltered channels for these migrations
from the Deep Reef to the shallow reef zones, while the much wider channels
on either side of the Fore Reef provide access for pelagic species.
29
The Deep Reef today still harbors territorial fishes such as groupers
which, given protection and time, may repopulate the apparently overfished
Fore Reef zone. This could also be the case for conspicuously missing corals
which might, in time, repopulate the Fore Reef from the stocks that live on
the Deep Reef.
Other fish found on the Fore Reef but occurring in greater abundance
on the Deep Reef are butterflyfishes, and hamlets, blue chromis and Creole
wrasses which prefer depths greater than 30-46 feet. Fish found only on
the Deep Reef by the Looe Key Resource Inventory are purple reef fish, sun-
shine fish, spotfin, and hogfish which naturally range between 55 and 120
feet (Noyes, 1980, public hearing testimony).
The main part of the Deep Reef exhibits a coral community of intermediate
to deepwater species, with some coral species growing abundantly here but
which no longer occur on the Fore Reef. The Deep Reef, on the seaward side,
is a slope of increasing steepness, ending in a small dropoff to about 25 to
35m depth.
Since the 5 sq nm alternative contains portions of the Deep Ridge as
well as the main four reef zones of Looe Key, it forms a representative
"slice of the ecological pie" through the reef tract in this area. This is
one of the basic reasons for its selection as the preferred boundary. The
5 sq nm boundary alternative would create a sanctuary containing representa-
tive components of each reef zone and would establish a sanctuary that protects
a piece of the reef tract system rather than one component as is the case in
boundary alternative #1. This approach is consistent with the goals and
objectives developed for a possible sanctuary at Looe Key.
The 5 nm area will pose less of an economic hardship to local fishermen
than would be the case in the 10 nm proposed sanctuary and yet will meet the
goals desired for the sanctuary. A sanctuary with this boundary would repre-
sent all of the reefal zones and be "systematic" in scope providing for the
maintenance and enhancement of long-term productivity of the entire Looe Key
ecological unit. This boundary alternative would provide a geographic basis
for achieving the sanctuary goals.
D. Preferred Regulatory Alternative
1 . Coral Collecting
The following alternatives were analyzed for regulating coral
col lecting:
a. Unregulated collecting (status quo);
b. Prohibiting collection or possession of all coral (living
or dead) except by permit for scientific and educational
purposes; and
c. Prohibiting the collection or possession of all coral
(living or dead) within the sanctuary.
30
NOAA has chosen alternative b as the preferred alternative. This
alternative would protect present and future coral resources while permit-
ting coral specimen collecting for educational and scientific purposes
under permit from NOAA. Since the current level of commercial coral col-
lecting is insignificant in the proposal area, the economic impact of this
alternative will be negligible. The proposed restriction is more stringent
than that being considered in the Coral and Coral Reef Resources Fishery
Management Plan (FMP) in that the latter permits limited harvest of soft
coral outside the 1 sq nm Habitat Area of Particular Concern (HAPC) at
Looe Key. OCZM will work closely with the Fishery Management Councils to
insure as nearly as possible compatible non-duplicative permitting proced-
ures.
A regulation similar to the preferred alternative is presently in
force in John Pennekamp State Park and in the Key Largo Marine Sanctuary.
As discussed in Chapter Three, the inclusion of a provision for prohibi-
tion of possession of coral, living or dead, within the proposed boundaries
has resulted in fewer enforcement difficulties within these two protected
areas. On the other hand Florida State Law, applicable in the territorial
sea, does not prohibit possession of cleaned or cured sea fans, hard and
soft corals and fire coral, and enforcement difficulty has arisen in State
waters because these organisms can be quickly killed and bleached on board
ship before enforcement agents can board for inspection (Tingley, personal
communication, 1979).
2. Wire Trap Fishing
The following alternatives were analyzed for regulating wire trap
fishing within the proposed sanctuary:
a. Unrestricted use of wire traps (status quo);
b. Prohibiting wire fish traps on the Fore Reef and Reef Flat
areas of the sanctuary and allowing wire fish traps else-
where; and
c. Prohibiting wire fish traps.
NOAA has chosen alternative c as the preferred alternative. This
alternative would prevent both physical and ecological damage to the coral
formations and resident fish species. Fishermen, although prohibited from
laying traps within the 5 sq nm area, could continue to utilize the area
seaward of the reef beyond approximately 140 ft and those areas adjacent to
Looe Key, along the outer reef tract.
This proposed regulation is slightly more restrictive than that
presently under consideration in the draft Snapper-Grouper FMP. This FMP
includes a proposed prohibition out to the 100 ft contour. The sanctuary
prohibition would extend to the proposed sanctuary boundary at approximately
the 140 ft contour.
31
3. Lobster Trapping
The following alternatives were analyzed for regulating lobster
trapping within the proposed sanctuary:
a. Unrestricted trapping for spiny lobster;
b. Prohibiting trapping on the Fore Reef only; and
c. Prohibiting lobster trappi ng.
NOAA has chosen alternative b as the preferred alternative. This
option would prohibit the setting of traps on the Fore Reef consistent
with the HAPC special management measure currently proposed by the South
Atlantic and Gulf Fishery Management Councils (see Chapter Three). No
lobster trapping would be allowed within the core trapezoid area (Loran
C Readings points 1 , 2, 3, and 4 see map Chapter Three). Lobster trapping
would be allowed within the sanctuary on the Reef Flat, Patch Reefs, the
Deep Reef and Deep Ridge.
This preferred alternative would protect the most spectacular coral
assemblages from lobster trap damage and contribute to protection of spiny
lobster as a major predator in the reef system. Restricting this part of
the reef system from further human activity would protect a significant
habitat for spiny lobster in the area which will, in the long term, bene-
fit the fisheries interest. Completion of the spiny lobster FMP will
also contribute to sustaining a viable lobster fishing industry over the
long term, but the degree of protection cannot be determined at this time.
An estimated 232,000 lbs. of spiny lobster were caught in the 5 sq nm
area in 1978. Personal communication with local residents and fishermen
revealed that, most of this catch was taken from outside the Fore Reef and
Reef Flat zones. According to interviews with local people, lobster boats
avoid shallow coral reef areas, preferring sites with greater maneuverability
and open sandy areas on which to place traps. This alternative would mini-
mize the economic losses to the commercial lobster fishermen and regional
businesses in the area by permitting fishing to continue in the major portion
of the reef area. It would afford site specific protection now to the Fore
Reef which will be enhanced by the Spiny Lobster FMP when it is final.
NOAA's Office of Coastal Zone Management (OCZM) and the South Atlantic
and Gulf of Mexico Fishery Management Councils (GMFMC) will continue to work
cooperatively under their Memoranda of Understanding in their efforts to protect
and enhance the Looe Key coral reef habitat and the spiny lobster fishery.
Continued monitoring of the area by the NMFS and the Councils would aid in
maintaining the stock of a valuable renewable resource, both in the restricted
area and in the area adjacent to the sanctuary.
4. Tropical Marine Specimen Collecting
The following alternatives were analyzed for regulating tropical specimen
collecting within the proposed sanctuary:
32
a. Unrestricted collecting (status quo);
b. Restricting tropical specimen collecting to collectors
with permits and prohibiting the use of chemicals; and
c. Prohibiting tropical specimen collecting except by permit
for scientific and educational purposes.
NOAA has chosen alternative c as the preferred alternative based on
information and written comments subsequent to the DEIS. Prohibiting
tropical specimen collecting would protect and enhance the tropical fish
population at Looe Key, prevent the depletion of ecologically important
species, add to the aesthetics of the sanctuary, and maintain and enhance
the long term productivity of the Looe Key coral reef for future genera-
tions. The Key Largo Marine Sanctuary and the Biscayne National Park
prohibit such taking.
The many suitable areas for tropical specimen collectors to catch
tropical fish and invertebrates in the south Florida area include shallow
inshore areas, inshore coral heads, mid-channel reefs (in the middle of
Hawk's Channel), and the entire outer reef. This alternative would thus
cause limited economic loss to present commercial collectors. The total
economic loss of revenue per year estimated in the socioeconomic analysis
for Boundary Alternative #2, would be $25,000 to $43,000 or $80,075 to
$137,729 using regional multipliers. At least some of this could be made
up by collecting elsewhere. This restriction would not prohibit commercial
collecting for scientific and educational purposes with a NOAA permit.
Prohibiting tropical specimen collecting rather than allowing collec-
ting by permit as proposed in the DEIS, would not require the establishment
of an administratively burdensome permit system of questionable value and
utility.
5. Spearf ishing.
The following alternatives were analyzed for regulating spearfishing
within the proposed sanctuary:
a. Unrestricted spearfishing (status quo);
b. Restricting spearfishing to devices such as pole spears and
Hawaiian slings; and
c. Prohibiting spearfishing and possession of spearfishing equipment.
NOAA has chosen alternative c as the preferred alternative. A primary
basis for this alternative is to enhance the quality of recreation experi-
ences by divers, snorklers and observers. Since spearfishing is believed
to contribute to wariness in reef fish and to the absence of large predators,
this alternative should enhance the return of larger grouper, snapper and
other predators to the reef and may, in time, lead to fish becoming less
cautious. In addition, it would lessen the human injury potential, the
33
inadvertent killing of non-edible tropical reef fish species found within
the sanctuary, and physical damage to the coral from divers in pursuit of
fish. All of the above would help ensure high quality recreational experi-
ences by divers and snorklers.
Although local residents and visitors will no longer have the oppor-
tunity to spearfish in the Looe Key 5 mile area, there are many other areas
nearby suitable for spearf i shing.
This prohibition wil 1 cause some revenue loss to dive and charter boat
companies who are hired to take spearf ishermen to Looe Key. It is difficult
to estimate this loss. However, a portion of their revenue also comes from
hook and line recreational fishermen and snorkelers/SCUBA divers who only
wish to view the underwater coral formations.
6. Historic and Cultural Resources
The following alternatives were analyzed for regulating the taking or
disturbance of cultural and historic resources within the proposed sanctuary:
a. Unrestricted tampering with, damage to, or removal of cultural
and historic resources (status quo);
b. Prohibiting tampering with, damage to, or removal, except with
a NOAA permit for educational and scientific purposes; and
c. Prohibiting tampering with, damage to or removal.
NOAA has chosen alternative b as the preferred alternative. This alter-
native would protect the submerged historical and cultural resources of the
sanctuary. Shipwrecks of interest in and adjacent to the area, particularly
the HMS Looe, could be explored and artifacts could be recovered under a NOAA
permit. The permit would be based on the educational and research value of
the proposed actions. This alternative, however, would not completely pre-
clude reef damage and other disruptions to the marine resources from salvage
and recovery operations.
The marine sanctuary program is the only vehicle for designation and
preservation of such resources. Under a recent court decision, the Antiqui-
ties Act, which provides that the Department of the Interior may designate
and protect certain historically important sites, does not authorize such
action in relation to antiquities located on the OCS. In addition, neither
the Abandoned Property Act nor the National Historic Preservation Act offer
protection for valuable marine artifacts.
7. Discharges
The following alternatives were analyzed for regulation of discharges
within the proposed sanctuary:
a. Relying on existing Federal regulation (status quo):
b. Prohibiting all discharges; and
34
c. Prohibiting the discharge of substances except cooling
waters from vessels, fish or parts and chumming material,
and discharges from marine sanitation devices.
NOAA has chosen alternative c as the preferred alternative.
This alternative would prohibit littering and discharge of solid waste
from vessels. It would prohibit the discharge of raw, untreated sewage into
the sanctuary. The large number of people using Looe Key has led to a high
incidence of litter and trash being discharged overboard. The proposed
regulation prohibiting discharging and littering will maintain the areas' over-
all recreational and aesthetic appeal. It would prevent floating or submerged
waste debris such as platic and metal objects.
The Coast Guard regulations prohibit the discharge of untreated wastes
within the territorial sea for public health reasons - the presence of
swimmers and relatively shallow water. Because Looe Key is heavily used
for water contact activities such as swimming and diving and portions have
relatively shallow water depths, NOAA has proposed regulations for the sanctuary.
Impacts of the regulation will be minor. Sanctuary users will have to
retain trash for disposal at proper facilities. Vessel operators will have
to utilize their MSD or holding tanks and will be unable to empty the latter.
Fishermen will be allowed to discharge fish or parts and use chumming materials.
By not restricting the discharge of cooling waters, this alternative will
allow the use of motorized vessels.
8. Anchoring
The following alternatives were analyzed for regulating anchoring within
the proposed sanctuary:
1. Unrestricted anchoring (status quo);
2. Prohibiting anchoring on the Fore Reef and encourage anchoring
in sand areas elsewhere;
3. Instituting a mooring buoy system; and
4. Requiring the use of sand anchors.
NOAA has chosen alternative b as the preferred alternative. This proposed
management measure is consistent with that being proposed for the HAPC in the
Coral Reef Resources FMP. Anchor abraision of corals is common in the Fore
Reef zone of Looe Key. It is here that anchor chains and lines, primarily
from the smaller draft boats anchored in the sand bottom between the coral
spurs chafe the adjacent corals. Raising anchors snagged on the coral spurs
also has resulted in significant damage. The preferred alternative would
protect the Fore Reef by preventing this type of anchor damage. This regulation
would result in boats anchoring on the Reef Flat and seaward of the Fore Reef.
Recreationists and hook and line fishermen would have to anchor off the Fore
Reef and drift into the area of troll or anchor in sand channels of the Fore Reef.
35
IV. REGULATORY ALTERNATIVES ELIMINATED FROM DETAILED STUDY
A. Regulations for Snorkeling and SCUBA Diving
Snorkel ing and SCUBA diving for the purposes of observation, under-
water photography, nature study, non-collecting scientific research and
educational training were not judged to have the potential for causing
significant damage to the reef. Therefore, alternative regulations for
these activities were reviewed but not proposed. All sanctuary users
are regulated to the extent that they must abide by regulations aimed at
protecting the natural system.
B. Regulations for Commercial Fishing Beyond the 5 Square Nautical
Mile Boundary Alternative but Inside the 10 Square Nautical Mile
Boundary Alternative
Although the northern portion of this area contains extensions of the
patch reefs found in the 5 sq nm boundary, the southern portions do not
contain any reef comparable to the center portion of the 5 sq nm proposed
sanctuary. There is also low probability that the deepest parts of this
area include coral communities similar to the Deep Reef within the 5 mile
area. It therefore seemed unnecessary to include this area in the proposed
sanctuary since the five ecological zones were included in the smaller
boundary alternative.
In addition, the Looe Key Onsite Survey indicates that local fishermen
depend on the 5 sq nm sanctuary proposal area for approximately one-third
of their catch and the area beyond the 5 sq nm boundary for approximately
two-thirds of their catch. Regulating commercial fishing within a 10 sq nm
area would thus cause considerable economic hardship on local long-tenn
commercial fishermen.
It was therefore determined that the environmental benefits of regu-
lating commercial fishermen to protect the natural resources in this area
were not substantial enough to propose regulations.
C. Regulations for Net Fishing
Only 12 percent of the fishermen use nets to catch fish at Looe Key.
Netting does not require anchoring and cannot be undertaken close to the
coral reefs. For these reasons, alternative regulations for netting were
not considered.
D. Regulations for Hook and Line Fishing
Commercial hook and line fishing for yellowtail snapper, mangrove,
mutton snapper, grouper, mackerel, some dolphin, pompano and lane snapper
occurs primarily along the outer reef track between and including American
Shoal and Big Pine Shoal with approximately 24.9 percent of the total catch
(671,880 lbs.) coming from the Boundary Alternative 2 area (Onsite Survey).
Ecological damage from commercial hook and line fishing does not seem to be
a major problem.
36
The Reef Flat bottom consists primarily of sand, coral fragments, seagrass,
algae, and occasional colonies of living coral. As a result, this area can
withstand much greater anchoring pressure than the Fore Zone with its well
developed coral structure. Because of the substrate and protected location of
the Reef Flat, small sand anchors, e.g., Danforth are capable of holding all but
the largest boats with a shallow enough draft to enter this zone. Divers and
snorklers entering the water can swim through this shallow (less than two meters)
area and pass through one of the surge channels of the reef crest and dive on
the Fore Reef. Only in rough weather is passage through the reef crest somewhat
hazardous. The area seaward of the Fore Reef is less protected but convenient
to the Fore Reef and would also be suitable as an anchoring area.
E. Activities Listed In The Designation Document For Which Regula-
tions Are Not Currently Being Proposed
° Alteration or construction of the seabed.
The Army Corps of Engineers (COE) exercises authority over construc-
tion and dumping of dredged materials but not the actual dredging. The
Bureau of Land Management (BLM) has jurisdiction over dredging activities
related to mineral leasing such as sand and gravel mining. However, no
other existing Federal regulatory authority has jurisdiction over other
activities that might alter the seabed such as dredging. While dredging
or alteration of the seabed could lead to damage and destruction of the
coral reefs and other habitat within the sanctuary, the likelihood of such
activities does not pose a realistic threat to the resources at this time.
For this reason NOAA is not promulgating regulations, but listing altera-
tion of the seabed as an activity in the Designation Document, and may
issue regulations at a future date if the need arises.
° Bottom trawling and specimen dredging.
Trawling for reef fish at live bottoms in the South Atlantic (off the
Carolinas) has proven economically and technically feasible, and it is pos-
sible that certain types of commercial bottom trawling may occur off Florida,
in areas such as Looe Key, in the future. Gear modifications include rollers,
runners or skids which elevate trawls and sleds above the irregular ocean
bottom. Even when elevated above the surface, however, various parts of the
gear (e.g., rollers, runners, skids, bottom guard-chains, nets and specimen
bags) still come into contact with the bottom and benthic organisms.
Various impacts on the environment are associated with bottom trawling
and specimen dredging. These include suspension of sediments dislodging or
breaking coral and generally degrading the physical benthic environment.
As with alteration or construction on the seabed, the likelihood of
bottom trawling and specimen dredging does not pose a realistic threat at
this time. Accordingly, NOAA is not promulgating regulations, but listing
the activity in the Designation and may issue regulations at a future date
if the need arises.
37
Hook and line fishing requires anchoring and sometimes fishing at
night when it can be difficult to set anchors away from coral. However,
it appears from personal interviews with fishermen that most boats avoid
the Fore Reef to prevent hull damage.
V. SUMMARY OF ANALYSIS OF ALTERNATIVES
The regulatory alternatives were developed in relation to the loca-
tion and size of the boundary alternatives and the environmental, social
economic consequences of such regulations. The detailed analyses of the
environmental consequences of these boundary and regulatory alternatives
are found in Chapter 4. This section summarizes these detailed analyses
in tabular form. The various proposed boundary and regulatory alterna-
tives Are summarized in Tables 1 through 5 -- The Alternative Matrices.
Tables 1 through 5 compare the various regulatory alternatives sum-
marizing the impacts of each alternative on the marine resources, and on
the human users of Looe Key. Three regulatory alternatives are presented
for the control of each of the human activity categories at Looe Key. The
regulations representing the status quo or no action are identified by the
initials "s.q."
In most cases, the proposed regulations apply to all three boundary
alternatives. If the regulation only applies to some but not all three
boundary alternatives, then the appropriate boundary alternative is iden-
tified at the top of the matrix. "Restricted" regulations indicate a
partial but not complete prohibition of the activity (i.e., banning in
the one mile area but not in the 5 mile area) or, in the case of anchoring
and spearf ishing, different ways of approaching regulation of the activity.
The preferred alternative for the regulation of each human activity,
outlined at the top of each matrix, is the result of weighing the environ-
mental, social and economic benefits and costs of each proposal as evaluated
in each matrix with an X. "Protection" in the context of the matrices means
ecological as well as physical protection. For example, by controlling the
removal of living coral, the regulation benefits or partially protects the
tropical fish and invertebrates belonging to the same ecological system.
By prohibiting the use of wire fish traps in boundary alternatives 1 and
2, the regulation would partially protect tropical specimens. In some cases
the regulation neither adversely nor positively impacts a marine resource
and is thorefore rated "Not Applicable."
38
TABLE 1
ACTIVITY; Coral Collecting
Preferred Alternative; Prohibit
the collection of coral, dead or alive within
the sanctuary, except by permit for
scientific/educational purposes
ACTIVITY: wire Fish Trapping
Preferred alternative: Prohibit
wire fish trapping in the 5 square.-
nautical mile saBtuary
Environmental Factors
Regulatory Alternatives Environmental Factor*; |
Regulatory Alternatives
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohib-I
ited
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohib-
ited
Coral Reef
S.q.
X
Coral Reef
Significant Damage
s.q.
#1, not
#2,3
#1,2
Significant Damage
not 3
Mod. Damage
X
Mod. Damage
X
y
Low/No Damage
X
Low/No Damage
X
Not Applicable
Not Applicable
Tropical Specimens
Tropical Specimens
(Fish, Invertebrates)
Fully Protected
(Fish, Invertebrates)
Fully Protected
Parti ally^ Protected
X
X
Partially Protected
X
X
Unprotected
X
Unprotected
y
Not Applicable
Not Applicable
Lobster/Fish Popul.
Lobster/Fish Popul.
Fully Protected
Fully Protected
Partially Protected
X
y
Partially Protected
X
X
Unprotected
X
Unprotected
V
Not Applicable
Not Applicable
SOCIOLOGICAL;
SOCIOLOGICAL;
Controversy
High
Controversy
High
Moderate
Moderate
X
X
Low
X
X
X
Low
X
Not Applicable
Not Applicable
ECONOMIC:
ECONOMIC;
Revenue Loss
High
Reve'nue Loss
High
Moderate
Moderate
Low
X
X
X
Low
y
X
X
Not Applicable
Not Applicable
39
TABLE 2
ACTIVITY: Trcpical SpecLmen
Collecting
Preferred Altamative: Prohibit
tropical specimen collecting except
by permit for scientific and
educational purposes.
ACTIVITY: Spearfishing
Preferred alternative:, Ptrfiibit
spearfishing and possession of
spearfishing equipment
Environmental Factors
Regulatory Alternatives Environmental Factors
Regulatory Alternative
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohib-
ited
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohil
ited
Coral Reef
Significant Damage
S.q.
Partial
Permit-
ing
#1,2
not 3
Coral Peef
Significant Damage
s.q.
Partial
limits
Mod. Damage
y
Mod. Damage
X
X
Low/No Damage
X
X
Low/No Damage
X ,
Not Applicable
Not Applicable
Tropical Specimens
(Fish, Invertebrates)
Fully Protected
y
Tropical Specimens
(Fish, invertebrates)
Fully Protected
X
Partially Protected
X
Partially Protected
X
Unprotected
y
Unprotected
X
Not Applicable
Not Applicable
Lobster/Fish Popul.
Fully Protected
Lobster/Fish Popul.
Fully Protected
X
[Partially Protected
X
X
Partially Protected
X
Unprotected
y
Unprotected
y
iNot Appl icable
Not Applicable
SOCIOLOGICAL:
X
SOCIOLOGICAL:
Controversy
High
Controversy
High
Moderate
y
Moderate
X
y
Low
Y
Low
X
Not Applicable
Not Applicable
ECONOMIC:
ECONOMIC:
Revenue Loss
High
Reve'riue Loss
High
i
Moderate
y
Moaerate
Low
y
y
Low
X
y
X
Not Applicable
Not Applicable
40
TABLES
ACTIVITY: lobster Trapping
Preferred Alternative: Prohibit
lobster trapping on the Fore Reef
Environmental Factors
Regulatory Alternatives
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohib-
ited
Coral Reef
s.q.
#1, not,
#2,3
#1, 2,
not #3
Significant Damage
Mod. Damage
X
X
Low/No Damage
X
Not Applicable
Tropical Specimens
(Fish, Invertebrates)
Fully Protected
Partially Protected
Unprotected
Not Applicable
X
X
X
Lobster/Fish Popul.
Fully Protected
Partially Protected
X
X
Unprotected
X
Not Applicable
SOCIOLOGICAL:
X
Controversy
High
Moderate
X
Low
V
Not Applicable
ECONOMIC:
Revenue Loss
High
Moderate
X
Low
X
X
Not Applicable
41
TABLE 4
ACTIVITY: Historic and Cultural Resources
Preferred Alternative: Prohibit tarnpering
with damage to, or removal, except with a
NQAA permit for educational and research
purposes
ACTIVITY:
Discharging
Preferred alternative: Prohibit the
discharge of substances except
cooling waters fran vessels, fish or parts
and chunming materials and discharges
fran marine sanitation devices
Environmental Factors
Regulatory Alternatives Environmental Factors
Regulatory Alternatives
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohib-
ited
MARINE RESOURCES
Unreg-
ulated
Restric-
ted
Prohib-
ited
Coral Reef
X
Coral Repf
Significant Damage
Significant Damage
Mod. Damage
X
Mod. Damage
X
Low/No Damage
X
Low/No Damage
X
X
Not Applicable
Not Applicable
Tropical Specimens
X
Tropical Specimens
(Fish, invertebrates)
Fully Protected
(Fish, Invertebrates)
Fully Protected
X
Partially Protected
X
Partially Protected
X
Unprotected
X
Unprotected
X
Not Applicable
Not Applicable
Lobster/Fish Popul.
X
Lobster/Fish Popul.
Fully Protected
Fully Protected
X
Partially Protected
X
Partially Protected
X
Unprotected
X
Unprotected
X
Not Applicable
Not Applicable
SOCIOLOGICAL:
SOCIOLOGICAL:
Controversy
High
Controversy
High
Moderate
Moderate
V
V
Low
X
X
X
Low
X
Not Applicable
Not Applicable
ECONOMIC:
X
X
ECONOMIC:
Revenue Loss
High
Revehue Loss
High
Moaerate
Moaerate
Low
X
Low
Not Applicable
Not Applicable
X
V
V
I
TABLE 5
ACTIVITY: Anchoring
Preferred Alternative: Prohibit anchoring on coral within the core trapezoid
area (Fore Reef), initiate research on the use of a mooring system.
Environmental Factors
MARINE RESOURCES
Unregu-
lated
Prohibi-
tion on
Mooring
System
Require sand
anchors
Coral Reef
Significant Damage
Mod. Damage
Low/No Damage
Not Applicable
Tropical Specimens
(Fish, Invertebrates)
Fully Protected
Partially Protected
Unprotected
Not Applicable
Lobster/Fish Popul
Fully Protected
Partially Protected
Unprotected
Not Applicable
SOCIOLOGICAL:
Controversy
High
Moderate
Low
Not Applicable
ECONOMIC:
Revenue Loss
High
Moderate
Low
Not Applicable
s.q.
Coral of
Fore Reef
in #1 & 2
43
CHAPTER THREE AFFECTED ENVIRONMENT
I. MARINE ENVIRONMENT
A. LOCATION
Looe Key Reef is a submerged section of the Florida Reef Tract located
12.4km (6.7 nm ) southwest of Big Pine Key in the lower Florida Keys at
latitude 24°, 33' north and longitude 81°, 24' west. It is bounded on the
south by the Straits of Florida and on the north by Hawk Channel. (See
Figure 1)
The Florida Reef Tract extends from the Miami area southwesterly, paral-
leling the Florida Keys and terminating in the Dry Tortugas. The most seaward
portion, or Outer Reef Tract, lies to the east and south of the emergent
Keys at a distance of from 4.8 to 11.3 km (2.6 to 6.1 nm). Beyond the
outer reef, the bottom slopes gradually for a few miles and then drops sharply
to about 900 meters in the trough of Florida Straits.
Although the reef tract extends for a linear distance of approximately
370 km (200 nm) , it is actually composed of a chain of individual living
reefs separated from each other by considerable areas which do not contain
living coral formations. According to Marszalek, et al (1977), approximately
96 km of outer bank reefs occur between Fowey Rocks Lighthouse near Miami
and the Marquesas Keys west of Key West, a distance of 270 km. The existence
of these living reefs in this latitude is, to a great extent, a result of
the proximity of the Florida Current, which carries warm, clear water of
normal salinity northward along the seaward edge of the outer reef.
The most extensive living reef areas occur in the northern portion of
the tract, while in the southern sector, well developed reefs are generally
smaller and are separated from each other by greater distances than those of
the northern tract. Between the outer reef and the emergent Florida Keys,
there exists a broad, shallow platform with an average water depth less than
ten meters. This area is known as Hawk Channel and contains more than 6,000
patch reefs (Marzalek et aT_, 1977).
B. ENVIRONMENTAL SETTING
Coral reefs occur in clear, tropical waters, and tolerate only minor
fluctuations of physical and chemical oceanographic parameters. Kissling
(1975) has measured some of these parameters over a four year period for the
Looe Key Reef area.
Maximum and minimum amplitudes for the mixed, semidiurnal tides are 80
cm and 20 cm, respectively. Dissolved oxygen content of surface water varies
45.
from 5.2 to 8.4 milligrams per liter, changing with the hour of day and
season. Salinity is relatively uniform at 36 to 38 parts per thousand, and
pH values vary from 8.1 to 8.5, all of which is well within the optimal
range for coral reef development. The area undergoes an annual wet-dry
hydrological cycle, with rainfall highest during the summer and fall, and a
relatively dry season extending from about December through April. The air
temperatures and prevailing wind directions which accompany these weather
conditions exert some influence on the reef ecology.
In summer, as is usual in tropical marine environments, and with winds
mostly from the southeast, air temperatures may climb to 35°C. Surface
water temperatures on the outer reefs then measure usually 30 to 31 °C, which
is close to optimal for reef-corals (Vaughan and Wells, 1943). In the winter
months, winds prevail from the east, northeast, and north, and frost m^
reach the southern tip of continental Florida, resulting in an air temperature
in the Keys only slightly above freezing. These extremes are caused by cold
fronts with strong northerly winds. Due to the east-west orientation of the
Reef Tract and open passages in the lower Keys, wind-driven winter currents
may carry large masses of cold Florida Bay water to the outer reefs and
lower water temperature there to less than 20°C. This phenomenon may also
be aided by movements of the Loop Current (Marszalek, 1977). Ginsburg and
Shinn (1964) observed that reefs occur mainly opposite land where they are
less exposed to Florida Bay water. For this reason, reefs are least developed
in the widely spaced middle Keys, and the largest reefs are found in the
upper Keys, where they are protected from cold Bay water by landbarriers,
by their north-south orientation, and close proximity of the Gulf Stream,
Measurements of minimum water temperatures made by Vaughan (1918) over a
period of 20 years, were 15.6°C. at Fowey Rocks, 18.2°C at Carysfort Reef,
and 17.9°C off Key West.
The seasonal drop in water temperature is the most severe natural factor
controlling coral reef development in Florida. Although a few species of
hermatypic corals endure colder water, most species die at about 16°C (Mayer,
1916), while exposure to about 18°C will block their growth (Mayer, 1914).
Although the situation may be different in certain IndoPacific reefs (Glynn,
1977), fluctuating water temperatures that remain below 24°C seem to inhibit
prominent coral reef development in the Caribbean Sea (Antonius, 1972). Dr.
Antonius, as well as other marine biologists have measured growth-rates of
several species of corals in Florida and areas of the Caribbean Sea (Antonius,
personal communications). In many cases, coral growth-rates in Florida were
found to be only about half or less the values found in central Caribbean
reefs. For example, an easily measured growth-rate is that of the staghorn
coral, Acropora cervicornis. It is about 10 cm per year in the Florida Reef
Tract, but in excess of 20 cm in reefs of the Virgin Islands as well as the
Barrier Reef of Belize, Central America (Robinson, personal communication,
1974).
It appears, therefore, that Florida's coral reefs, including Looe Key,
could grow only about half as fast as central Caribbean reefs, and any damage
done to the coral framework can take twice as long to heal or regrow.
46
C. GEOLOGY
The bedrock of the Florida Keys is of a dual origin. The Keys from Big
Pine Key through Key Largo, are underlaid by Key Largo Limestone, an elevated
coral reef of Pleistocene age. According to Hofmeister and Multer (1964),
the Key Largo Limestone underlies Miami Beach to the north, comes to the
surface at Soldier Key and is submerged beneath the Miami Oolite from Big
Pine Key through Key West. The latter formation is an oolitic limestone
composed of many small spherites of calcium carbonate. The oolite covers
all of the Lower Keys and is thinnest over their southern borders, increasing
in thickness to the north (Hofmeister, 1974).
The general consensus regarding the origin of the Florida Keys suggests
that about 95,000 years ago, during the last interglacial period (Sangamon),
the coral reefs which make up the Key Largo Limestone were a line of patch
reefs in the back reef area of a broad reef platform similar to the Florida
Reef Tract of today. Hofmeister and Multer (1968) hypothesize that marine
and subaerial erosion following the withdrawal of the sea during the Wisconsin
glacial period, possibly accompanied by a structural downward tilting or
faulting of the area, or both, resulted in the lowering of the platform to a
depth of about 23 meters at its seaward edge and progressively less further
inland. With the return of the sea, new reef growth began on the eroded
platform and continued to the present.
D. FLORIDA REEF TRACT DISTINCTIVE CHARACTERISTICS
As reported by Marszalek, et al (1977):
"The outer bank reefs are typically elongate features
of variable vertical relief which occur at the
shallow shelf edge between the 5 meter and 10 meter
depth contours. Their long axes form a discontinuous
line of reefs oriented parallel to the shelf edge.
The northernmost reefs trend N/S and the reefs near
Key West E/W reflecting the change in orientation of
the arcuate shelf edge. Approximately 56 km of
linear bank reefs are located north of Tavernier
Creek (at the south end of Key Largo Key), 17 km
of reefs in the middle Keys and 23 km in the lower
Keys (west of Big Pine Key). A spur and groove system
is developed on the seaward face of most of the
bank reefs, with the spurs and grooves oriented
generally perpendicular to the shelf edge and to
the oncoming waves of the Florida Current. Spurs
and grooves are best developed on outer bank reefs
of the upper Keys and lower Keys; the spur and groove
pattern on reefs in the middle Keys is generally less
developed and exhibits a more random orientation."
47
Although the outer reefs are highly variable in their degree of develop-
ment, several distinctive features are held in common by reefs well advanced
in the successional sequence leading to the mature, climax serai stage.
These characteristics include:
° the presence of the elkhorn coral (Acropora palmata)
at shallow depths. According to Shinn (1963) , the
spur and groove formations result from in situ growth
of elkhorn colonies. A significant proportion of
these formations is composed of encrusted rubble
and skeletal material, derived from this species,
which has been incorporated into the spur and
groove system;
° a vertical coral zonation characterized in the deeper
zones of the reef by large, massive heads of brain
(Diploria spp.) and star corals (Montastraea spp.) and,
in the shallow, more turbulent areas, branching
colonies of Acropora (A. palmata and A. cervicornis),
several types of fire coral , (MTllepora spp.) anci
extensive colonies of the colonial zoanthids
Palythoa and Zoanthus;
° a benthic macrobiota consisting of large populations
of the sea urchin (Diadema antillarum, numerous species
of cryptic ophiuroids (brittle stars), a diverse
group of octocorals (sea fans and sea whips) and
sponges and the calcareous green alga Halimeda
opuntia;
° a highly diverse finfish fauna. Stark (1967)
reported a total of 517 fish species from Alligator
Reef, of which 389 are coral reef forms. Many of
these fish populations are characteristic of
particular zones or specific habitats on the
reef while others have been found to be nonselective.
There is an apparent dependency relationship between
the abundant and diverse fish populations of the
Florida Reef Tract and the variety of available
habitat in the area, not the least of which is
the highly productive seagrass community in Hawk
Channel.
Much of the reef's structure is derived from the mechanical and biogenic
breakdown of calcareous material. Kissling's analysis (1975) of reef sediments
indicate that coral rubble in cobble and boulder sizes represents the vast
bulk of reef sediment. Fine sediments result from further breakdown of the
coarse material and from contributions by foraminifera, echinoderms, molluscs
and calcareous algae.
48
FIGURE 5
f^/l PATCH REEF ZONE
REEF FLAT ZONE
FORE REEF ZONE
yyi DEEP REEF ZONE
^
DEEP RIDGE ZONE
(NOT J
JHOWN)
£5?
•:•■;.:;•:
SAND SEA GRASS CORAL
HAWK CHANNEL
LOOE KEY
BIOLOGICAL ZONES
, CORAL SPURS
STRAITS OF FLORIDA
49
E. LOOE KEY REEF AREA
Looe Key Reef has recently been described in the Looe Key Reef Resource
Inventory prepared by the Florida Reef Foundation and conducted by Antonius
in 1978. (See app. B, Site Analysis Research Methods.) According to a
draft fishery management plan for coral and coral reef resources prepared
for the Gulf of Mexico and South Atlantic Fishery Management Councils (1979),
Looe Key Reef: ". . .is better known scientifically than most others in
South Florida" because of the resource inventory.
The inventory divides the Looe Key Reef area, from an ecological/topo-
graphical point of view into five zones: (See Figure 5)
A Patch Reef area between Hawk Channel and the Looe Key
Reef Flat;
The Reef Flat, triangular in shape, with the Looe Key
marker in the southeast corner;
The Fore Reef, facing Florida Straits to the south
consisting on a spur and groove system;
A Deep Reef area with a drop-off, southwest of
the Fore Reef;
A Deep Ridge, separated from the Deep Reef by
an estimated 1 km of sand bottom;
The proposed Looe Key marine sanctuary area encompasses all five zones.
All major taxa of reef-dwelling organisms are represented on Looe Key.
Inventory data indicate the existence of several hundred species of marine
organisms, joined together in the intricate functional web of the reef eco-
systan. Ecological diversity on Looe Key reef manifests itself in the exis-
tence of distinct natural communities or associations within the reef eco-
system. It is apparent that exchanges of energy and information occur between
the various associations, and between the reef biota proper and the adjacent
seagrass beds. Both demersal and pelagic fishes move freely throughout the
entire ecosystem, and large invertebrates, such as the spiny lobster, are
known to travel considerable distances.
1. Dominant Species of the Looe Key Area*
a. Patch Reef
A flat and relatively shallow area of about 8 m in depth stretches from
Hawk Channel south to the Looe Key Reef Flat. The area is dominated by a
mixed association of marine spermatophytes and green algae. The seagrasses
include: turtle grass (Thalassia testudinum) and manatee grass (Syringoduim
* See Appendix B for complete list.
50
fniforme). The algae, which represent a much smaller biomass than that of
the grasses, consist primarily of species of the genera Halimeda, Udotea,
and Penicillus.
Due north of the Looe Key Reef Flat are numerous Patch Reefs scattered
throughout the seagrass community. Most of these reefs have little profile
and generally project up less than 2 m from the shallow bottom.
The algal flora is quite sparse on the Patch Reefs themselves. The
coralline red algae Goniolithon sp. and Amphiroa rigida are most abundant.*
Scattered clumps of the attached brown alga (Sargassum polyceratium) , the
red alga (Laurencia intricata), and the green alga (Bryopsis pennata) were
observed. This scarcity of algae is a result of grazing pressure by herbi-
vorous fish and invertebrates.
Among the faunal components in all Patch Reefs, octocorals are by far
dominant. They not only grow dense enough to give certain Patch Reefs the
appearance of the heavily vegetated landscape, but also attain unusual sizes.
Among giant sea feathers and sea whips, the largest specimens, close to 2 m in
height, are mainly Plexaurella nutans and Pseudoplexaura flagellosa. Compared
with prominent main reef structures, the abundance of stony corals is quite
low, while sponges are comparatively well represented. Both stony corals
and sponges grow here to small or medium size and comprise about an equal
share of the Patch Reefs' biomass. The most important species of stony
corals in this zone are the hydrocoral (firecoral) (Millepora complanata) , the
scleractinians (Colpophyllia natans), (Diploria labyrinthiformis) , (D. strigosa),
(D. clivosa), (Siderastrea siderea), and especially the staghorn coral (Acropora
cervicornis) that occurs here with greater frequency than in any other part of the
Looe Key Reef. Elkhorn coral (Acropora palmata) is not found in the Patch
Reef association. The pillar coral (Dendrogyra cylindrus), is found on
several patch reefs. Four colonies of this rare species were located on one
patch. One colony was especially impressive with six large pillars rising 1 m
from the base, along with several smaller spires adjacent to it.
Frequently observed inhabitants of the patch reefs include: the anemones
(Bartholomea annulata), (Condylactis gigantea), and the mat-forming zoanthids
(Palythoa mammillosum) and (Zoanthus sociatus); serpulid and sabellid worms,
a variety of small crustaceans, especially the arrow crab (Stenorhynchus
seticornis). In the sandy and grassy areas adjacent to the Patch Reefs, the
echinoids Plagiobrissus grandis, Clypeaster rosaceus, and Diadema antillarum
are common. The latter are most abundant at the interface between the reef and
the surrounding halo. Summarizing all these data, the sand-sea-grass-reef
community of the Patch Reef zone appears to be a lagoon-type reef environment,
sheltered from violent wave action by the Looe Key Reef Flat, but subject to a
considerable sediment load suspended in the water column during rough weather.
Numerous consumers utilize patch reefs as habitat and feed directly on
seagrasses, their epiphytes and associated macro-algae (Ogden and Zieman, 1977).
''See Appendix B for complete list.
51
According te these authors:
"Carnivorous fishes (e.g. grunts, Pomadasyidae) resting on
coral reefs by day and feeding on seagrass invertebrates by
night are largely responsible for the enhanced fish biomass
characteristic of coral reefs near seagrass beds. The proximity
of seagrass beds to coral reefs provides food for fishes and
invertebrates feeding within the beds, shelter for juveniles,
and organic material exported to reefs. The primary limit to
further exploitation is lack of shelter within the beds."
Thus the patch reef community represents a distinct natural system
whose biota is adapted to the environmental conditions of the back reef
zone. Continued survival of this system is critical for maintenance of the
habitat utilized by numerous fishes and the spiny lobster. Utilization of
the patch reefs for shelter from predators allows both juveniles and adults
to exploit an enormous and nearby source of energy, the biomass of the seagrass
association. Much of this energy, in the form of finfish and shellfish
biomass is harvested by both the commercial and sport fishing industry of
the Florida Keys.
b. Reef Flat
The Looe Key Reef Flat is roughly in the shape of an isosceles triangle,
its base facing south towards the Straits of Florida and the apex pointing land-
ward to the north. On this landward side there is a very gradual transition
from the seagrass association of the Patch Reef area into the Reef Flat, marked
mainly by the beginning of extensive sand flats and an elevation of the bottom
to about 2 m in depth. From here toward the south, the Reef Flat becomes
gradually shallower with the main part of the area showing a depth of approx-
mately 1.5 m. The Reef Flat terminates in a sharply defined rock and rubble
zone immediately behind the uppermost rim of the Fore Reef. The water depth
in this area is no greater that about 0.5 m. The Reef Flat does not show
any profile other than the elevation of seagrass ridges approximately 0.5 m
above the sand bottom. The benthos consists primarily of calcareous sand,
rubble, coarse sediment and extensive seagrass beds. The latter are vegetated
by pure stands of turtle grass, or a mixture of turtle grass, manatee grass,
and algae. In some areas without seagrass, the bottom community consists of
algae and invertebrates.
The algae, in most area of the Reef Flat, include: species of the genera
Halimeda, Udotea, Penicillus, Caulerpa, Rhipocephalus, Cladophoropsis, Dasycladus
vermicularis, and several other chlorophycean algae, as well as representatives
of the red algal genera Laurencia, Goniolithon, Spyridia, and Chondria. Older
blades of turtle grass are almost invariably covered with the red algal
epiphyte Melobesia membranacea, and much of the manatee grass was observed
to be densely covered with an epiphytic species of Ceramium. Brown algae
are represented by species of the genus Dictyota, as well as Padina sanctae-crucis,
and Stypopodium zonal e. In the rock and rubble sector of the Reef Flat
behind the Fore Reef the algal community consists of those species requiring
a hard substrate. These include: Goniolithon spp. , Lithothamnium incertum,
large clumps of Halimeda opuntia, Dictyotota spp. , Stypopodium zonaTel
52
Compared to the seagrass and algal cover, the sessile benthic fauna of
the Reef Flat has only minor significance. Occurrence of sponges is negligible
and the number of stony corals ^ery limited. Specimens are usually small,
encrusting, and rather scattered, with the species Porites astreoides, Diploria
clivosa, Millepora squarrosa, M. complanata, and Siderastrea siderea, most
noticeable. A number of medium-sized coral colonies, mainly of the species
Montastrea annularis, Siderastrea siderea, Acropora palmata, and Diploria
clivosa, can be found within about a 100 m distance from the seaward terminus
of the Reef Flat. Within this belt, several patches, almost a zone, of
octocorals occur. Most noticeable is Pterogorgia citrina, the smallest of
all Looe Key octocoral species (about 15 cm in height), which grows only on
the Reef Flat but is the most abundant species here, the sea fan, Gorgonia
vental ina, is a close second, while sea whips are represented by several
species of the genera Eunicea and Plexaura and sea feathers by two species
of Pseudopterogorgia. Although the number of octocoral species, as well as
their. size, remains rather small, they nevertheless represent the only benthic
faunal component of some significance on the Reef Flat.
Within and adjacent to the seagrass beds of the Reef Flat, the most
commonly observed invertebrates include: the queen conch (Strombus gigas);
the pen shell (Atrina rigida); the holothurians (Holothuria floridana and
Actinopygia agassizii); and the reef squid (Sepioteuthis sepiodea).
The rock and rubble areas of the Reef Flat provide an excellent habitat
for small invertebrates. Numerous serpulid and sabellid worms protrude from
the surfaces of the eroded rocks, whereas terebellids are commonly found
beneath them. Abundant populations of other cryptic organisms, such as
brittle stars and small crustaceans abound in this area. Among crabs, the
majids (Mithras spp. and Stenorhynchus seticornis), the grapsid (Percnon
gibbesi ) , the xanthids (Leptodius floridanus and Glyptoxanthus erosus), and
the portunid (Portunus spinimanus) were most frequently observed. Small
gastropod and pelecypod molluscs are to be found in this area in considerable
abundance. Echinoderms are prolific, especial ly ophiuroids. A large population
of Diadema antillarum reside in this area. Other echinoids and holothurians
were observed but are not common.
c. Fore Reef
The Fore Reef zone of Looe Key is a well developed and especially spec-
tacular formation. Its main portion is a high profile spur and groove system,
bordering the Reef Flat in very shallow water and sloping down to a sand
bottom in 9-11 m of depth. The whole system, from easternmost to westernmost
spur, is about 1500 m long and, at the main center portion, about 350 m
wide. There are two associations, or subzones, that comprise the Fore Reef
complex.
The shallowest part of the spurs, just below the surface at low tide,
could be called the "reef crest". However, at Looe Key it is so narrow a
zone (less than 20 m) that it is treated here simply as the leeward end of
the spur and groove system. The benthic community of this subzone consists
of a massive growth of firecorals, mainly Millepora complanata, but lacks
53
the elkhorn coral (Acropora palmata) component which is usually characteristic
of reef crests. Moreover, this shal low Mil lepora zone does not form a proper
barrier but is transected by many valley's! Several of these are extensions
of the seaward grooves, others are transverse channels, running perpendicular
to the grooves, thus breaking up the Mil lepora zone into huge, block-like
segments. Sections of the walls and bottoms of these channels are lined
with the urchin Diadema antillarum.
Seaward, some portions of the Mil lepora zone drop abruptly to the rubble-
filled ends of the grooves. The sections in between gradually develop into
spurs, the tops of which are not deeper than about 2 m, for the first 20 to
30 m seaward. These platform-like "backs" of the leeward spurs, and their
almost vertical walls, are two distinctly different biotopes. On top, large
areas are covered by soft mats of colonial zoanthids Palythoa mammillosum
and Zoanthus pulchellus. Mil lepora complanata is the dominant stony coral
here although single colonies or clusters of elkhorn coral, (Acorpora palmata),
are irregularly interspersed. The only substantial concentration of Acropora
palmata is immediately seaward of the Mil lepora complex, exactly where one
would expect the highest part of the reef crest to be developed. Close
inspection of the reef's framework, on the spur's vertical walls, indicates
that the main construction element of the spurs has apparently been Acropora
palmata, which today does not seem to be that dominant. Discussions of
origin and zonation of spur and groove systems are given by Shinn (1963),
and Geister (1977).
Following the spurs seaward, in depth increasing from 3 to 8 m, (= depth
of spur's top), one finds a zone which may well be the most important, certainly
the most spectacular part of the Looe Key reef. Some of the spurs show a
profile here of up to 7 m high, caused mainly by the vigorous construction
activity of the "mountainous" star coral (Montastraea annularis). This species
builds buttresses of 2 to 3 m in diameter and 4 to 5 m from bottom to top:
the vertical walls of these form most of the spurs' steep sides. On top of
the spurs, (Montastraea annual aris) is still represented in boulders of 1.5
to 2 m in diameter, accompanied by similar sized specimens which are primarily
brain corals such as Diploria strigosa and Colpophyll ia natans. Due to the
massive nature of the reef-builders in this subzone, there are few holes in
the reef framework, consequently allowing little insight into the history of
construction.
The last segment of the spurs is a rather flat extension of the proceeding
high profile. The spurs' elevation over the sand bottom here is not more
than about 1 m, formed mainly by Montastraea cavernosa, which occurs in
cone-shaped colonies 30-40 cm in height. Similarly sized specimens of Sideras-
trea siderea, Montastraea annularis, Colpophyllia natans, Diploria strigosa,
U. labyrinthiformis, and Meandrina meandrites also occur here, but are much
less frequent.
Among other invertebrates, bivalve molluscs are relatively common in
recesses on the surfaces of the spurs, but are almost invariably encrusted
and very difficult to distinguish from the background. Gastropods are
ubiquitously distributed in this zone. Brittle stars are both numerous and
diverse in the Fore Reef; they appear most abundant in recesses and grooves
54
of the stony corals as well as under and behind rubble. They become quite
obvious at night when they expose their arms to feed. At least one species,
on Looe Key is bioluminescent and displays pulsating light patterns when
disturbed.
The dominant vegetation on the Fore Reef are encrusting species of red
algae of the genera Goniolithon, Lithothamnium, and Peyssonellia. Widely
scattered small clumps of Halimeda opuntia f. minor. Bryopsis pennata, and
Dictyota spp. occur on the tops and sides of the spurs. The distinct paucity
of the algal flora found here is probably a reflection of grazing pressure
from organisms such as sea urchins.
The Fore Reef zone has by far the greatest numbers of fish. Almost all
of the species encountered in the reef system can be found here, with the
exception of some deeper water species only observed beyond a depth of 10 m.
Two of the most abundant species, found in the Fore Reef zone, are tomate
grunts, (Haemulon aurolineatum), and yel lowtail snappers, (Ocyrus chrysurus).
Absent or rarely seen, according to the Inventory, (Antonius et al 19/8)
were grey or mangrove snapper, (Lutjanus griseus), and larger serranids,
such as black, red and nassau groupers. Black grouper and mangrove snapper,
where seen, were usually on the western end of the reef and moving away, out
of the range of visibility.
d. Deep Reef
At the seaward edge of the spur and groove system a sandflat begins in
about 9-11 m depth, wery gradually sloping down with a slight incline. In
front of the eastern half of the Fore Reef this sandflat is uninterrupted.
At the western half it is intersected by a deep reef, which begins here as a
finger-like extension of scattered coral outcrops just beyond the terminus
of the spur and groove system. From here a reef flat of 10-12 m depth stretches
several hundred meters to the west without showing much profile, representing
a comparatively shallow subzone of the Deep Reef.
Towards the south, the Deep Reef gradually changes into a second subzone.
Here, the reef flat curves into a slope of increasing steepness with a consi-
derable profile caused by surge channels. In the deepest portion of this
subzone, the slope forms a small but true drop-off which ends on a sandflat
in about 30 to 35 m depths. In this deepest sector of the Deep Reef, the
sediments are quite fine and silt-like and are easily raised up from the
bottom.
The shallower, plateau-like part of the Deep Reef is somewhat similar
to the previously described Patch Reefs. Octocorals are dominant here, with
a very similar species composition to that of the Patch Reefs, but they do
not outnumber stony corals here as much as they do in the Patch Reefs. The
most frequently encountered octocoral on this part of the Deep Reef is the
plexaurid Muriceopsis petila. Sponges are fairly common and grow to larger
sizes than in the Patch Reefs. Stony corals do not exceed medium sizes and
are scattered in distribution.
55
Although species composition resembles that of shallower parts of the
reef, a number of scleractinians with branching and flower-like growth forms
occur on the Deep Reef which are either not present or very rare in more
accessible areas of Looe Key. Species of the genera Madracis and Oculina
grow in clusters of small finger-like branches while colonies of Mussa angulosa
and Eusmilia fasti giata resemble bouquets of densely packed flowers. Disk-like
growth forms of striking shape are found amongst many species of Agariciidae
and Mussidae, which occur in appreciable numbers at this depth only.
While species composition of stony corals in the deeper parts of this
zone remains about the same, the number and size of individual colonies
increases, making them the dominant component here. Also with increasing
depth, an interesting change in the octocoral fauna takes place. Among
Pseudopterogorgia species, P. bipinnata far outnumbers all others, and two
deep water species occur only here: the rare, monofilament Ellisella barbadensis,
and the abundant, fan-shaped Iciligorgia schrammi.
Among other invertebrates, serpulid worms (Polychaetes) were noted to be
common in this area. Only one lobster was observed. The plant community on
the Deep Reef consists primarily of encrusting red algae, which become less
frequent with increasing depth. In the shallower subzone, an association of
green algae can be found, mainly attached to the coarse bottom sediments;
they include: Caulerpa spp. , Udotea spp., Penicillus spp., Halimeda incrassata,
Dasycladus vermicularis, and Rhipocephalus phoenix. Other greens, such as
Valonia ventricosa. Halimeda opuntia f. minor, as well as the brown algae
Dictyota dichotoma occur frequently on hard substrates.
Fish found only in the Deep Reef zone, according to the Looe Key Reef
Resource Inventory (Antonius et al , 1978) were purple reeffish, (Chromis scotti),
sunshine fish, (Chromis insolatus), spotfin hogfish, (Bodianus pulchellus),
and scamp, (Mycteroperca phenax). Other fish found on the Fore Reef, but
more abundant on the Deep Reef were butterflyfishes, hamlets, groupers, blue
chromis, and Creole wrasse. These distributions appears normal, as many reef
species prefer only certain depth zones (Noyes, 1980).
On the seaward edge of the coral reef, partially within the proposed
sanctuary boundaries extends a blue water environment, characterized by
extremely clear transparent water, due to a lack of phytoplankton. This
area is the home of many commercially and recreational ly valuable fishes.
Along the Florida coast, high populations of these fishes are at least partially
supported by the productivity of the reefs and inshore grass beds. Along
the reef tract, the large pelagic (open-ocean) fishes feed on bottom fishes
and animals which, in turn, have fed on benthic plants and detritus. This
short food chain permits more top carnivores to be supported by the extremely
high productivity of the reef and inshore environments. Commercially valuable
species mostly found in blue water but observed within the proposed sanctuary
boundaries are amberjack, grouper, hammerhead shark, king mackerel, Spanish
mackerel, and cero mackerel. Others which depend partially on habitat within
the proposed boundary include dolphin, ballyhoo, and pompano.
56
e. Deep Ridge
During the summer of 1973, an attempt was made to explore the deep
parts of several reefs in the Florida Reef Tract with the "Johnson-Sea-Link"
research submersible. At Looe Key, as well as at other reefs, a deep ridge
was discovered, separated from the end of the Deep Reef by an estimated
distance of at least 1 km of sand bottom (Antonius, 1974).
This Deep Ridge runs parallel to the margin of the continental shelf.
It shows very little profile and is only a few meters wide, but is, neverthe-
less, an outcrop of living coral reef. It lies in about 45 m depth and is
formed mainly by plate-like colonies of Montastraea cavernosa and several
species of Agariciidae, which show considerable sedimentation damage. Also
present are deep water octocorals, such as Iciligorgia schrammi and Ellisella
barbadensis, with the latter much more abundant here than on the Deep Reef.
One major significance of this deep ridge formation may lie in its
potential for elucidating the geological past of the area. Its biological
importance to the total Looe Key reef ecosystem has not been evaluated.
2. Trophic Relationships
Primary production generated by seagrasses and macro-algae on Looe Key
occurs mainly in two zones: the Patch Reefs and the Reef Flat. Many of the
herbivorous fish populations, as well as numerous invertebrates rely on
these seagrass beds both as their primary source of food and for protection.
The ecological significance of the interrelationships between patch reefs
and seagrass associations has been well documented (e.g., Ogden & Zieman, 1977),
Numerous consumers utilize patch reefs as habitat, but feed directly on
seagrasses and their epiphytes, as well as on associated macro-algae. Thus,
the Patch Reef ecosystem provides the two most important requirements for
the mobile, herbivorous reef fauna: shelter from predators and an unlimited
supply of food. The high productivity of areas like this is harvested in
the Florida Keys in the form of finfish, lobster, and other shellfish by
both the commercial and sport fishing industry.
With regard to feeding relationships, the importance of the coral reef
areas proper, (i.e., the reefs in the Patch Reef, the Fore Reef, and the
Deep Reef zones), lies mainly in their production of plankton, and, to an
unknown extent, excretion of non-living organic material, i.e, mucous.
Transport of planktonic larvae, eggs, spores, and other reproductive
entities between the various zones and subzones is probably considerable.
Dissolved organics, exocrines and a wide array of other metabolic excretions,
originating in any of these natural communities, are distributed throughout
the reef by tide and wind-driven currents. In situ primary production fixes
a certain percentage of the energy requirement of the reef ecosystem. However,
imports of energy from adjacent seagrass beds and phytoplankton populations
are probably of great importance to the reef's consumers.
57
Also, an unknown, but undoubtedly significant, contribution of dissolved
organic material and particulate detritus is carried to the reef from man-
grove wetlands by outgoing tides. The tremendous superiority of coral reefs
over other ecoystems in terms of productivity has been documented by Odum
(1971).
There is no doubt that all four reef zones (and possibly, also the Deep
Ridge), identified in this study, are tied together by trophic relationships,
just as the total coral reef ecosystem is tied in with the surrounding ocean.
The coral reef - open ocean relationship, is illustrated by the frequent
visits to the reef by large schools of jacks, mackerel and other pelagic
fishes. These fishes use the reef not only as a feeding ground, but also
participate in, and benefit from, the cleaning-mutualistic symbiotic relation-
ship with reef-dwelling finfish and invertebrates (i.e., "cleaning stations").
3. Endangered Species
There have been no reported endangered species in the Looe Key proposal
site. Although the Looe Key area is suitable habitat for three marine turtles
protected under the Endangered Species Act, no sightings, to date, have been
verified. Pillar coral (Dendrogyra cylindrus) found in the patch reefs
north of the main section of Looe Key was nominated but did not qualify as a
federally designated endangered species.
58
II. SOCIO-ECONOMIC SETTING
A. SOCIOLOGICAL CONDITIONS
The proximity of most of the Florida Reef Tract, including Looe Key
Reef, to the Florida Keys in Monroe County makes these reefs accessible to
the large numbers of people who are able to drive or fly to the archipelago.
The Overseas Highway and its 44 bridges link the Keys to the mainland, and
jet air service connects Key West and Marathon to all major American urban
areas.
At the present time, 37 of the existing 44 bridges are being replaced,
a major new fresh water aqueduct from the south Florida mainland to the
Keys is under construction, and extensive additions to the electrical trans-
mission and generation systems for the area are under way. Monroe County
statistics indicate that the Keys are expanding rapidly in both permanent,
resident population and tourist populations.
The unincorporated Monroe County population (outside Key West, Key
Colony Beach and Layton) increased by roughly 30 percent, or from 22,803 to
28,435, between 1970 and 1978 (Monroe County Statistics, p.A-2). In the
same period, tourism more than doubled, from 460,800 county tourists to
948,500 (Monroe County Statistics, p.E-1). Not only is tourism in Monroe
County increasing absolutely but the county is increasing its share of Florida
tourists, up in this period from 2.0 to 3.0 percent.
The increase in population is expected to continue. From a 1978 county
population of 54,793, the permanent resident population is expected to reach
55,600 to 56,400 by 1980, 56,700 to 58,400 by 1985, and between 60,900 to
66,300 by 1990, (Monroe County Statistics, p.A-6). This last figure implies
that in the next decade Monroe County is expected to grow by 10 to 20 percent.
In the area nearest Looe Key, from Seven Mile Bridge up to and including
half of Ramrod Key, the population is expected to grow from 1,833 in 1974 to
5,845 in 1998 (Black, Crow & Eidsness, P. 3-4.). Tourism is increasing.
Bahia Honda State Park, in the vicinity of the proposed sanctuary, reported
a 20 percent increase in visitors during Fiscal Year (FY) 1978-1979. The
number of visitors rose from 293,256 in 1978 to 351,700 in 1979. (Bahia
Honda Tabulation of Daily Visitors, FY 1978-1979.)
The impending construction of the new water aqueduct is predicted to
increase population of the Florida Keys (Black, Crow and Eidsness, Inc.,
1976). Construction in the Lower Keys hit an all time high in 1978, as permits
for 208 residential units were issued by the county (Monroe County Statistics,
p.B-5). The construction industry has clearly recovered from the recession
in 1975 and is building as rapidly as before. Overall, the unincorporated
Keys saw the housing stock increase by 59 percent in the 1970-1977 period
(Monroe County Statistics, p.B-3.). With the new aqueduct, this number
should increase.
59
As the number of persons in the Lower Keys increases, it is likely that
the amount of human activity at Looe Key will increase. In addition, with
the increasing popularity of SCUBA diving and snorkeling, it can be assumed
that the number of persons diving at Looe Key will increase.
B. ECONOMIC CONDITIONS
The economic base of Monroe County has four main elements: (1) tourism
(2) commercial and sport fishing, (3) retirement and second home communities,
and (4) Federal government operations (military). The remaining segments of
the economy center around wholesale and retail trade, services, light industry,
trades and government.
Of the nearly 19,500 persons (1976) in the civilian labor force, approx-
imately 40 percent were employed by businesses servicing the over 1 million
tourists a year that visit the Florida Keys. The majority of this income is
seasonal with peak periods from December to May (Monroe County Statistics,
1979).
Looe Key is widely used by commercial fishermen, public charter boat
operators, dive boats, recreational divers and fishermen, and educational
enterprises in the lower Florida Keys.
Recreational skin diving has become a significant commercial industry
in the Keys in recent years. According to the Skin Diver Magazine, 1979
Reader Survey, 38.8 percent of skin divers (snorkelers and SCUBA divers)
traveled to other States to dive. Of that 38.8 percent, 35.6 percent trav-
eled to the Florida Keys in Monroe County. The median amount per diver
spent in 12 months on diving trips, according to the survey, was $442.00;
the average $718.00. Although expenditures of this nature, Ue- , travel,
equipment purchases, are not entirely spent in the Monroe County region,
some, at least, of the income from these trips is realized by the local
economy.
In the last fifteen years, pleasure boat registration almost quadrupled
to 8,121 boats in Monroe County. Commercial boat registration rose by a
third in the same fifteen years to 2,749 boats. If these trends continue,
future human use of the area and all the Keys is much more likely to have a
recreational orientation than a commercial one (Mathis^^, p. 7, 1979).
The commercial fishing industry is an important source of income and
employment. In 1976, Monroe County ranked first in fish and shellfish
landings in Florida with fish catch valued at $23,605,000. Of that amount,
$19,965,000 came from shellfish and $3,640,000 from fish. Over 18 percent,
or about 28 million pounds, of the commercial fish landings in Florida in
1978 were brought into County docks. The 1978 value of Monroe County landings
was about $38 million, or nearly 42 percent of the total value for commercial
fish in Florida (Monroe County Statistics, 1979).
The continuously increasing population of retirees is not a major influence
on the area's economy because most live on fixed incomes (Monroe County
Statistics 1979, p.F-1). However, they, and the growing number of second
home owners, are the primary stimulus for the relatively small construction
industry in the Keys.
60
economy
of a
amou
B. LOOE KEY ONSITE SURVEY
The contribution of Looe Key to the economy of Monroe County can only be
approximated. All income and catch information from commercial fishermen and
income from commercial recreational businesses of Looe Key is only available
at the County or Standard Metropolitan Statistical Area level. To obtain a
more accurate socio-economic picture of the Looe Key area, NOAA undertook,
through a consultant (SGW), a time limited Looe Key Onsite Survey of human
activities and the estimated economic benefits to the Looe Key area from these
activities. The information from the survey presented below is a part of the
economically affected environment and was used in analyses to determine the
preferred alternative.
Like the major portion of the Keys, the economy of the area near Looe Key
is heavily dependent on fishing and tourism. The Onsite Survey concluded that
commercial fishermen with home ports adjacent to Looe Key derive about 28 per-
cent of their annual catch from the 5 sq nm area surrounding the main Looe Key
reef.
1. Commercial Fishing
Using average 1978, Monroe County dockside prices computed by the National
Marine Fisheries Service, the Onsite Survey results reported that the 1978
catch within the 5 sq. nm area at Looe Key was worth approximately $755,690
or $7,556.90 per boat/per year. The average annual income per boat for the
overall Looe Key area could thus be expected to be $27,000 in 1978 (see app.
C, Table 1,2). Comparing this figure based on actual information from the
survey interview schedules with the reported average 1976 income per boat in
Monroe County of $24,872 (Mathis et al 1979, Table 4), the Looe Key Onsite
Survey reported income/per boat was higher. The average survey reported
income for commercial fishermen from the Looe Key area was also higher than
the estimated income reported by the Lower Keys Chapter of Organized Fishermen
of Florida (OFF) at the public meetings in Big Pine Key, Florida. OFF testi-
fied, in January 1978, that the yearly catch value from the Looe Key area in
1978 ranged between $300,000 and $500,000. Survey information, as mentioned
above, reported $755,690 for just the 5 sq nm area or approximately $255,000
more than OFF's higher estimate.
The differences between published data on fish catch value for Monroe
County, the OFF testimony and the Survey data may result from (1) having
overestimated the actual fishing boats at Looe Key, or (2) by inflated catch
value estimates on survey interview schedules The Survey results, however,
are well within the range of probability and appropriate for general economic
analysis. Of the estimated $755,690 earned in the 5 sq nm area or Boundary
Alternative #2, 61.7 percent came from lobster trapping, 14.5 percent from
wire fish trapping, 17.7 percent from hook and line, 5.6 percent from netting
and 5 percent from trapping Stone Crab.
61
To account for income generated by commercial fishing businesses in the
Looe Key area other than the direct income earned by the fishermen, a regional
multiplier was used. Using the economic value of commercial fishing in
Boundary Alternative #2 ($755,690) and the appropriate regional multiplier
from the Bureau of Economic Analysis USDC, 1977, the economic effect on the Lower
Key economy of the fishing effort was reported to be $1,446,390 in 1978.
2. Commercial Recreational and Educational Businesses
Looe Key Coral Reef has come to be recognized as one of the more popular
snorkeling and diving sites in the Florida Keys. Businesses have sprung up
to serve the divers and others wishing to take advantage of the high recrea-
tional potential of the area.
Revenue from charter dive boat trips appears to be the major income
producing activity outside of commercial fishing directly utilizing Looe Key
reef. Other income producing businesses, such as marinas and fishing lodges,
rent boats and equipment.
The Newfound Harbor Marine Institute on Big Pine Key, a non-profit
organization offering one of the most comprehensive marine educational oppor-
tunities in the Florida Keys, focuses upon the nearby Looe Key coral reef
and other coral assemblages in the general vicinity for year round teaching.
Seacamp, a part of the Institute, offers a variety of educational programs
to students in the 4th grade through graduate school. Between 5,000 and
6,000 persons participated in the 3 to 30-day programs in 1978.
The Onsite Survey estimated revenue from dive boat trips to be between
$150,000 and $250,000 in 1978. This represents income from an estimated
7500 divers who charter dive boats annually, according to the Survey.
Divers charter boats, stay in hotels, motels and fishing lodges, visit
restaurants, frequent marinas and purchase air and diving equipment. These
economic multiplier effects were taken into account by using a regional
service sector multiplier. The multiplier selected for these commercial
dive boats was 3,203 (BEA 1977, p. 44). Thus, the total economic value of
commercial recreational businesses was estimated to be between $480,450 and
$800,750. Almost all of this income was derived from the 5 sq nm Boundary
Alternative #2 since the most utilized coral areas were found within the 5
sq nm boundary.
No attempt was made to estimate the economic value of Seacamp and the
activities of the Newfound Harbor Marine Institute although its apparently
significant economic value was considered in the development of regulations
for the sanctuary.
3. Tropical Specimen Industry
A preliminary unpublished draft study of the "Aquarium Reef Fish Industry
of Monroe County, Florida" based on 1976 and earlier data (Hess/Stevely) was
prepared for the Marine Resource Inventory Monroe County, Marine Advisory
Program of the Florida Cooperative Extension Service, and submitted in 1979.
62
This appears to be the best available information on the Florida Keys trop-
ical specimen industry to date although admittedly it is not a definitive
study.
Both the following economic discussion and the Environmental Consequen-
ces Chapter 4 analysis of proposed tropical specimen collecting regulations
are based largely on this draft study and personal interviews with tropical
specimen collectors at Looe Key and in the Florida Keys as part of the Onsite
Survey.
Areas of heavy boating traffic and dense coral relief of the reef struc-
ture, such as the Looe Key Fore Reef area are not generally considered suitable
as collecting areas for tropical fish and invertebrates (Causey, personal com-
munication, 1979). Boats carrying tourists and local residents can easily
foul and disconnect lines leading to submerged collectors and their equipment.
Dense coral structures offer multiple hiding places for desirable tropical
fish species.
The Onsite Survey revealed that some collecting occurred in the Looe Key
area. There are six full-time and two part-time collectors in the general
area. Their annual income varies considerably, depending on their expertise,
the amount and type of work they perform and changeable environmental condi-
tions. Full time tropical specimen collectors fall into two categories; those
who sell to wholesalers located along the Keys or large wholesale outlets in
Miami, and those who not only collect specimens but package and ship the organisms
directly to customers. The latter group's income falls within the higher estimated
range of income for collectors (Causey, personal communication, 1979).
Income estimates based on best available but very preliminary information
set the overall value of tropical fish and invertebrate collecting in the
vicinity of Looe Key at between $105,000 and $175,000. Collecting activities
inside the 5 sq nm boundary, according to the Onsite Survey, appear to amount
to less than 25 percent of the total collecting. There is some reported activity
among the rocky ledges of the Patch Reef zone, but minimal commercial activity
in the Fore Reef and Reef Flat zones. Occasional amateur collecting, however,
has been observed throughout the five mile area.
Thus the estimated range of income generated within the 5 sq nm proposed
sanctuary area is between $25,000 and $43,000. The regional multiplier would
increase these amounts to between $80,045 and $137,729.
4. Private Recreational Users
Commercial recreational questionnaires from the Onsite Survey estimated
that the average number of daily private boat visits to the proposed Looe Key
5 sq nm sanctuary ranged between a low of 11 and a high of 23 in 1978. If
these estimates are correct, then -- assuming 300 days of clear weather --
there were somewhere between 3,564 and 7,008 private boat visits to the reef
last year. According to the Onsite Survey, 2,346 to 4,672 of these boats
carried an estimated 9,694 to 19,061 divers to Looe Key reef in addition to
the 4,500 from commercially chartered dive boats.
63
By attributing an economic value to these commercial, non-quantifiable
activities (see app. C), it was possible to estimate the value of these
private non-commercial activities at Looe Key. Using the combined commercial
costs of snorkeling, and SCUBA diving, the economic value of the 9,694 to
19,061 private divers in Boundary Option No. 2 was estimated to be between
$137,364 and $240,094 in 1978. Using the appropriate regional multiplier,
the value of private recreational diving activity to the region was set
between $439,976 and $769,021 for the region.
Recreational fishing and sightseeing was valued to be between $27,520
and $93,440. The multiplier effect of this activity would raise the total
value of this activity to the region to between $152,200 and $299,288.
5. Summary
The income from commercial and recreational activities is approximately
$1,300,000 per year, which, in turn provides about $3,154,000 in business
for the area economy.
The economic impacts of human activity in the Looe Key area were consid-
ered in the drafting of regulatory alternatives. The approximate income and
business volume in dollars is summarized in the following table:
64
TABLE 6
SUMMARY APPROXIMATE INCOME AND BUSINESS VOLUME
Activity
1978 Income
5 nm Area
1978 Local
Economy Value
Fishing
Commercial (Catch Value)
$ 755,690
$1,446,390 1/
Tropical Specimen
Collecting
43,000 (max)
Income (gross)
317,729 2/ (max)
Tourism
Dive charter boats (Commercial
recreational businesses)
Sport fishing, diving,
snorkeling (imputed value)
(Private recreational
businesses)
250,000 (max)
240,094 (max)
800,750 2/ (max)
769,021 2/ (max)
Value
$1,288,784
$3,153, 890
y Economic Multiplier 1.914 (BEA 1977 p.44) .
2/ Enonomic Multiplier 3.203 (BEA 1977 p.44).
65
III. HISTORIC AND CULTURAL RESOURCES IN AND ADJACENT TO THE PROPOSED AREA
A. A World War II wreck rumored to be a small U.S. Navy utility vessel
is located 150 m north of the current marker post. Visible wreckage includes
6 rectangular steel tanks, much corroded, partially buried in the sand, and
partially overgrown with small corals and sponges. Assorted beams, fittings
and piping are scattered about the area.
B, About 1 km north of the current marker lie the remains of an un-
identified wreck, discovered in the 1960's by local salvager. Captain Art
Hartmann, who believed it to be the wreckage of the Snow which was in company
with the H.M.S. Looe when they both went up on the reef in 1744. The keel
and ribs are occasionally visible in the sifting sand at a depth of about 4
m. The British Admiralty records concerning the loss of the H.M.S. Looe
state that the Snow was behind the Looe when she went up on the north side
of the Reef Flat; it does not appear possible that the remains of the Snow
are those discovered by Captain Hartmann.
C. An anchor which could very well be from the Snow has been sighted
embedded in a ridge of coral in the mid-section of the Fore Reef spur and
groove system,
D. In the shallow basins of the rubble sub-zone between the Reef Flat
and Fore Reef, there are several scattered piles of the ballast stones commonly
used in the 19th century ships. These occur in identifiable concentration
at the southeastern end of the Reef Flat.
E. The wreckage of the H.M.S. Looe lies to the southwest of the current
marker post in 4.5 to 9 m of water, within the proposed boundaries of the
sanctuary. Some 14 cast iron ballast blocks, which are triangular in cross
section, stair-step sided, and characteristic of British men-of-war of that
period, lie only partially buried in the sand. These blocks, along with
other scattered remnants of the ship's structure, are heavily coral encrusted
and partially buried in the sand. When Ed Davidson, a local dive boat captain,
examined this wreck site in the company of a State of Florida underwater
archaeologist in the surmier of 1977, "hand-fanning" revealed fragments of
flint, pieces of the original oak timbers, and corroded iron fastenings in
the vicinity of the ballast blocks under only 18 inches of sand. Mendel L.
Peterson, curator of naval history for the Smithsonian, and Edward Link
(Harbor Branch Foundation) visited, salvaged and identified items from the
wreck site in 1950-1951. A variety of recovered ballast blocks, cannons,
shots, fasteners, pottery, bottles, and coins were shipped to the Smithsonian
Institution.
Investigations by Peterson (1955) into letter correspondence, British
Admiralty records, court martial proceedings, etc., reveal the following
facts about this ship and her fate. The H.M.S. Looe was a 44 gun British
frigate, armed with batteries of 6 and 12 pounders, launched in 1706 with a
complement of 190 men. She saw varied service as a hospital and convoy ship
in mid-career, before being refitted to her original warship configuration
and posted to the American Colonies under the command of Captain Utting.
She was headquartered at Port Royal in South Carolina and assigned to cruise
the Florida Straits in winter,
67
The Bureau of Land Management of the Department of the Interior is
preparing a Submerged Cultural Resource Plan to identify shipwreck sites
between Key West and Cape Hatteras out to 200 miles. Additional information
on shipwrecks in the Looe Key area will become available as these surveys
are completed.
68
IV. STATE AND OTHER FEDERAL RESOURCE MANAGEMENT PROVISIONS IN ADJACENT AND
NEARBY AREAS
Although the proposed sanctuary lies solely within Federal jurisdiction
it is adjacent to State waters. There are numerous protected areas adjacent
or in relatively close proximity to the proposed boundary. Federal and State
management measures for similar resources must be taken into account when
planning for sanctuary resource protection and use. Knowledge of related
programs will help insure that proposed sanctuary regulations are not dupli-
cative and that they are reasonable, necessary, and complement existing
protective measures and that sanctuary education and research objectives
take advantage of and enhance other research and education efforts.
Individual regulations of existing Florida Keys Federal and State marine
parks and the marine sanctuary at Key Largo reflect the concern for the
adverse impacts of commercial and recreational marine activities in the
Florida Keys area on the marine system.
Florida State laws protect certain marine species in territorial waters.
Most of these same species are also found in waters surrounding Looe Key.
Therefore these laws and protective measures are of interest in the considera-
tion of marine sanctuary designation. In some instances, such as the Bi scayne
National Park, some State marine regulations have been adopted as Federal
regulations. Details are found in Appendix D,
The John Pennekamp Coral Reef State Park and Key Largo Coral Reef Marine
Sanctuary, located in the upper keys, are actually two preserves, consisting
of an area extending out three miles from shore administered by the State of
Florida (Department of Natural Resources, (DNR), Division of Recreation and
Parks) and a Federally operated sanctuary beginning at the edge of State
jurisdiction and extending seaward 5 miles, administered by NOAA's Office of
Coastal Zone Management (OCZM) The Florida DNR, Division of Recreation and
Parks serves as on site manager for the Key Largo Sanctuary.
State law makes it illegal to possess certain species of "fresh, uncleaned,
or uncured sea fan, hard or soft coral or fire coral." The law is considered
difficult to enforce because the corals can be quickly killed and bleached on
a boat, before a patrolman can inspect the boat (Captain Tingley, Florida
Marine Patrol, 1979). The fine of $35.65, set at the present time by a Cir-
cuit Court Judge in the Florida Keys, for a misdemeanor of the second degree
(prescribed in the statute) is also considered by most as little deterrent to
the taking of coral from State waters. The regulation for the John Pennekamp
Coral Reef State Park, on the other hand, which states, "It is unlawful to
take coral from, or possess it," appears to be the most effective for enforce-
ment.
69
Spearfishing is prohibited within the boundaries of John Pennekamp
Coral Reef State Park, and the salt waters in Monroe County from the Dade/
Monroe County line to and including Long Key. The DNR also has the power to
establish restricted areas when safety hazards exist or when needs are deter-
mined by biological findings.
The National Park Service at the Everglades National Park, located at the
tip of the South Florida Peninsula, has initiated proposed regulations which
include restriction of recreational shellfishing and the elimination of com-
mercial fishing within the waters of the Park by December 13, 1985. These
proposed restrictions are highly controversial locally.
Biscayne National Park in the northernmost Florida Key is primarily an
underwater park although it was designated by Congress, with rules slightly
different from a National Park Service park. To establish Biscayne National
Monument, the State of Florida and the Federal government agreed that fishing
could continue, in accordance with State laws, unless it was determined to
be detrimental to the purposes for which the "monument" was established. If
so determined, it would be further regulated following consultation with the
State.
Commercial fishing and lobster-trapping are legal, as is sport fishing,
both by hook-and-line and by spear. Conch and lobster may also be taken by
divers, provided they are caught by hand or by hand-held net when in season
and provided legal limits are not exceeded. Tropical fish collection is not
legal. No fish traps are permitted.
The Park management is also currently experimenting with the use of
mooring buoys which mark an area for visitors and offer them an opportunity
to tie up to a buoy rather than anchoring in an area which might damage the
coral reef. The location of the moorings and educational material about
certain unique reefs are discussed in a booklet prepared and distributed by
the Biscayne Monument staff.
The National Park Service at Fort Jefferson National Monument, Dry
Tortugas, off Key West, Florida, has prohibited the taking or disturbing of
any species of coral, shells, shellfish, sponges, sea anemones or other forms
of marine life, with the exception of the recreational catch of spiny lobster
(Panulirus argus) and conch (Strombus gigas) which is limited to 2 per person.
The use or possession of spears or gigs is prohibited at all times.
With regard to enforcement of these other protected areas varying arrange-
ments exist. Through a joint management agreement with the State of Florida,
NOAA and the USCG, the Key Largo Coral Reef Marine Sanctuary and John Pennekamp
Coral Reef State Park are patrolled cooperatively by State Park Rangers, and
the U.S. Coast Guard (see Appendix D-9). Persons found to be in violation of
NOAA regulations are notified at the scene with the issuance of a Coast Guard
Report of Boarding (CG Form 4100). Evidence is seized by USCG personnel and
appropriate statements taken.
70
Coral or other materials or organisms mentioned above collected outside
of John Pennekamp Coral Reef State Park and Key Largo Coral Reef Marine
Sanctuary cannot be transported into these areas without danger of the pos-
sessor being fined. This is also true of the Key Biscayne National Park.
The effectiveness of enforcement arrangements at the Key Largo Coral
Reef Marine Sanctuary is of particular interest to the Looe Key proposal.
Although the Key Largo area is larger and immediately adjacent to an estab-
lished State Marine Park, its ecological system and the human impacts
occurring daily in the sanctuary are yery similar to those at Looe Key.
Bahia Honda State Park is in the vicinity of the proposed Looe Key
Sanctuary and managed by the Florida State DNR, Division of Recreation and
Parks, and located on Bahia Honda Key. The Bahia Honda State Park personnel
emphasize the protection of State resources by interpretation of the law to
those who use the park rather than by enforcement. The park employs 17
staff and 14 rangers, most without law enforcement authority, whose responsi-
bilities include search and rescue operations in State waters.
The National Key Deer Refuge, Key West National Wildlife Refuge, and
Great White Heron National Wildlife Refuge are administered from the National
Key Deer Refuge Headquarters by the U.S. Fish and Wildlife Service, located
on Big Pine Key, in the vicinity of the Looe Key area. The U.S. Fish and
Wildlife Service (FWS) has no jurisdiction in the State waters surrounding
the refuges but must maintain boats in order to inspect and manage 90 percent
of their lands. The FWS owns and maintains three boats; a 24'x9' workboat,
a 26' aqua sport and a shallow water craft (17'). All resources, both personnel
and budget, are fully committed to the purposes of the refuge and conversations
with the refuge manager indicate that they would not be able to be actively
involved in sanctuary management or enforcement.
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V. LEGAL STATUS QUO
A. Summary and Analysis
Looe Key is located on the Continental Shelf seaward of the territorial
sea and State jurisdiction. A variety of Federal Statutes and regulations
apply to activities taking place in the area. Those that apply to activities
posing significant threats to the resources at Looe Key identified in the
Affected Environment Section are discussed in the present section. Each is
examined in terms of its present effectiveness and potential capability in
controlling impacts on these resources. In addition, the enforcement
responsibility and capabilities of the relevant Federal agencies are examined
including their permitting, surveillance and monitoring procedures and the
enforcement arrangements among them and with State agencies.
Regulations for the most direct threats from man's activities to the
coral reefs such as the taking of coral and anchoring do not presently exist.
Until recently such activities were regulated by the Bureau of Land Management
(BLM) under the Outer Continental Shelf Lands Act (OCSLA) but a recent
decision of the Fifth Circuit held these regulations invalid except in
connection with BLM's OCS leasing activities. In addition, currently there
is no regulation of the collecting of tropical fish or invertebrates, and
little regulation of commercial fishing.
Looe Key is located within the geographical jurisdiction of the
South Atlantic Fishery Management Council (SAFMC). As described in this
section, the SAFMC is in the process of preparing a Fishery Management Plan
(FMP) for Snapper-Grouper Resources, and jointly with the Gulf of Mexico
Fishery Management Council (GMFMC), FMPs for Coastal Pelagic Migratory
Resources (Mackerel), Spiny Lobster and Coral and Coral Resources. Plans
would impose various limitations on the fishing of these resources as
detailed below. It is anticipated that the plans will be completed by
late 1981.
As drafted, the Coral and Coral Reef Resources FMP will protect
all coral within a 1 nm square HAPC (Habitat Area of Particular Concern
encompassing the Looe Key Fore Reef) where proposed management measures
would protect the resources against such direct threats as harvesting and
anchoring and it would prohibit spearfishing in this area. Beyond the
HAPC, the FMP proposes to prohibit the harvest of hard coral except under
permit for scientific and educational purposes. A limited harvest of soft
coral will be permitted.
The Spiny Lobster FMP would impose quite severe limitations on
the fishing for this resource, as detailed below. Looe Key is located
within the SAFMC s Snapper-Grouper Management Area III. South of Cape
Canaveral (mid-depth and inshore) in which various management measures
proposed to control these fisheries would apply, as described below.
Under the draft Mackerel FMP, specific management measures are proposed
for King and Spanish mackerel and cobia.
No FMP's are being prepared for other resources including numerous
species of tropical fish with aesthetic but limited commercial value,
73
invertebrates, and other species which are interrelated in the ecosystem.
In lieu of sufficient evidence to warrant preparation of a Tropical or
"Ornamental" Reef Fish FMp, the SAFMC and the GMFMC are considering preparing
a profile or description of the fishery and resource.
The effectiveness of the draft plans to mitigate the adverse physical
and ecological impacts of commercial and recreational fishing on the Looe
Key reef cannot be assessed at the present time. However, it should be
noted that there are distinct differences between managing fisheries for
optimum yield with special reference to food production and recreational
opportunities, and managing an ecological system for the protection and
maintenance of a coral reef with emphasis on enhancing public awareness
and wise use of reef systems, public education, research and assessment.
While the measures adopted for each purpose are likely to be complementary,
they may not be identical in this situation.
In addition to these more direct threats, the disposal of sewage
and trash, primarily by recreational boaters, could threaten the resources.
These threats are not considered in any FMP and regulation under other
laws is limited as detailed below. Finally the protection of a shipwreck,
the HMS Looe, found in the area is desirable and not currently provided.
Pollution from dredging and dredge spoil disposal, ocean outfalls
and other point source discharges and from any ocean dumping activities
does not appear to pose a realistic threat at least at the present time.
The Environmental Protection Agency and the Corps of Engineers have authority
under the Clean Water Act and Ocean Dumping Act to address these activities
on a case-by-case basis.
Surveillance and enforcement duties for the previously mentioned
laws and implementing regulations have been assigned, for the most part,
to three government agencies in the Florida region; the U.S. Coast Guard,
the NMFS Division of Law Enforcement and the Florida Marine Patrol. This
existing enforcement framework patrols the Fishery Conservation Zone, defined
as those waters "Seaward of the 3 mile territorial sea boundary to 200
miles." Detailed information on these enforcement agencies is found in
Section C— Enforcement (Dennis, 1979).
Eighty percent of Coast Guard missions in Florida deal with search
and rescue. The Group Key West Coast Guard ranges along the entire coastline
of the Florida Keys with their number one enforcement activity, at the
present time, being drug interdiction. Distances between stations and the
large territory to be covered makes their patrols for all missions intermittent
and infrequent (Dennis, 1979).
The extent to which the Coast Guard, patrolling the Florida Keys,
might be able to assist in the enforcement of the marine sanctuary at Looe
Key can be judged by the number of personnel and the number and complexity
of their present missions. From interviews with Commander Dave Russell,
Coast Guard 7th District in Miami, and Lt. Commander Sam Dennis, Commander
of Group Key West, it appears that the Coast Guard does not presently have
adequate time or personnel to enforce effectively a marine sanctuary at
Looe Key.
74
The enforcement responsibilities delegated by the Secretary of Commerce
to NOAA/NMFS are currently administered and carried out by an Enforcement
Division in the Office of Fisheries Management (a staff function) and by
five separate and independent regional law enforcement organizations (line
function) operating under the direction and control of the respective Regional
Directors. The National Marine Fisheries Service administrative and enforcement
resources are currently limited since available funds and personnel must be
spread throughout the 200 mile fisheries conservation zone.
The Florida Keys are part of the Eastern Enforcement Area of the NOAA/NMFS
Southeast Law Enforcement region, extending from North Carolina to Key West
and including Florida Bay. NMFS primarily investigates and processes civil/
criminal violations of the laws within NOAA jurisdiction. The Florida Marine
Patrol and the U.S. Coast Guard patrol the waters under Cooperative Agreements
entered into by the Regional Director of the NOAA/NMFS Law Enforcement Office
in the Southeastern region. This arrangement alleviates the problem of the
lack of ceiling points necessary to hire additional Agents for patrol work.
B. Survey of Authorities Relevant to the Protection of Looe Key
Resources
1. Fishery Conservation and Management Act of 1976 (FCMA) 16 USC
1801 et seq.
Authority includes:
Managing the 200 mile fishery conservation zone with
exclusive U.S. fishery management authority over all
fish except highly migratory species.
Promoting domestic, commercial and recreational fishing
under sound conservation and management principles.
Review, approval and implementation of fishery management
plans (FMP's) to achieve and maintain optimum yield from
each fishery.
The GMFMC (Texas, Louisiana, Mississippi, Alabama, and Florida) and the
SAFMC (Florida, Georgia, North and South Carolina) will prepare and submit
to the Secretary of Commerce, FMP's for each fishery within their geographical
area of authority. The Council's FMP's will be implemented by Commerce,
after a determination that the Plans are consistent with the FCMA's National
Standards, other provisions of the FCMA and other applicable laws.
FMP's being prepared by the GMFMC either unilaterally or jointly
with the SAFMC will affect species found and harvested commercially in the
Looe Key reef area. These FMP's are:
a. Spiny Lobster Resources Plan:
The latest available draft was circulated August 1979. Key Points:
While the spiny lobster management zone "encompasses the offshore areas
75
from North Carolina to Texas, in practice the commercial and recreational
harvest of spiny lobster from U.S. waters is almost exclusively limited to
waters off Southern Florida." (DEIS, 1979).
The plan strives to protect the spiny lobster population
for future use while allowing harvesting at a rate which approaches the maximum
sustainable yield and which provides the optimum economic and social contribution
from the fishery. To accomplish this, strict management measures have been
recommended including: "a size limit, a closed season, (including a special
recreational season), certain gear restrictions, measures to protect 'shorts'
and 'egg-bearing' females and prevent poaching, and a measure to encourage a
mechanism to minimize conflicts. Limited mandatory statistical reporting
will be required by user groups." (Summary Sheet DEIS). The species
involved are spiny lobster (Panulirus argus) and associated incidental
species as follows: smooth tail lobster (Panulirus laevicauda); and Spanish
lobster (Scyllarides aequinoctial is, Scyllarides nodifer, Scyllarus americanus,
and Scyllarus chacei ) .
Negligible economic, social or environmental changes are
anticipated, according to the DEIS, due to the proposed action. Impacts
of the plan are generally the same as those due to existing state regulatory
efforts and current practices within the fishery, since the proposed regulations
are almost identical to present State regulations. Enforcement duties for
the Spiny Lobster Plan will also be turned over to the State in the event
of Plan approval .
b . Draft FMP for Snapper-Grouper Resources
The latest version of this draft FMP (February 1980)
reviews (1) the short- and long-range goals of the FMP; (2) the distribution,
abundance and present condition, ecological relationships, estimate of
maximum sustainable yield, and probable future condition of fisheries within
the snapper — grouper complex; (3) the condition of natural and artificial
habitats of the stocks and Federal and State habitat protection programs,
laws and policies; (5) the history and present efforts of commercial and
recreational user groups, vessels and fishing gear; (6) the economic
characteristics of the fishery; (7) a description of the business, markets
and organizations associated with the snapper-grouper fishery; and (8) a
description of the social and cultural framework of domestic snapper-grouper
fishermen. Decision Elements for the draft Snapper-Grouper FMP were approved
by the Coiincil (August 25, 1980), as follows:
° Management Subunits:
1. Rlack sea bass
2. North of Canaveral (mid-depth)
Gag grouper Vermillion snapper
Scamp Grunts
Red porgy Speckled hind
Red snapper Triggerfish
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3. South of Canaveral (mid-depth and inshore) Looe Key Area
Mangrove snapper Inshore groupers
Yellowtail snapper Grunts
Mutton snapper Porqies
Lane snapper
4. Deep Water Complex (throughout range)
Snowy grouper Golden tilefish
Yellowedge grouper Black tilefish
° Estimates of the Current Catch by Sub-Unit
1. Rlack sea bass 1,605,914 lbs) to be
2. North of Canaveral (mid-depth 4,126,116 lbs) rounded
3. South of Canaveral (mid-depth & inshore 8,933,199 lbs) to nearest
4. Deep water (throughout range) 1,184,770 lbs) 100,000 lbs
Total catch 15, 8^4, 999 lbs.
° Estimates of Maximum Sustainable Yield (MSY)
MSY is determined to be equal to the best available estimate
of the current catch in management subunits 1, 2 and 3 and equal to optimum
yield for subunit 4.
° Management Goals:
1. Long range goal : Maximize the economic and social value
of the harvest consistent with preventing overfishing of the stocks.
Sub-goals:
° Establish an information system to monitor the status
of the snapper-grouper fishery.
° Encourage continued research on the biology and fishery
of significant species.
° Prevent further overfishing of those stocks which now
may be overexploited.
° Restore, over time, to the optimum level those stocks
which now may be overexploited.
° Encourage up to full exploitation those stocks not
currently harvested at the optimum yield.
° Encourage protection of existing habitat and the develop-
ment of new habitat by the construction of artificial reefs.
° Reduce gear and user conflicts.
77
° Give priority to specific gear in high use, nearshore waters
where growth overfishing is demonstrated.
2. Short term goal : Because of the dearth of information about
social and economic values of this fishery and the biological status of the
stocks, the short term goal is to stablilize harvest while socio-economic
and biological data are being obtained.
° Optimum Yield
Optimum yield (OY) in management subunit 1, 2 and 3 is specified
as equal to the current (1979) catch OY for subunit 4 is specified as the
amount of fish harvested which results in the average length of the catch
being no less than the average length at which females mature averaged with
the length at which males mature.
° Definition of overfishing
Harvest from any of the four management subunits in excess
of the stated OY for that subunit is to be considered overfishing and as
cause to restrain the fishery, with the following provisions.
1. The fishery is not to be restrained if the data used to
determine OY was faulty.
2. The fishery is not to be restrained if up-to-date biological
analysis indicates that the stock can safely sustain additional harvest.
3. The fishery is not to be restrained unless the social and
economic benefits to be gained in subsequent years are greater than the
social and economic costs which will be incurred in the year of restraint.
° Management measures
1 . Special Management 7ones
Zones in which special management measures are applicable
may be designated. Such designations may be for a stipulated period of
time or may be in force until changed by the Council.
The following is a broad spectrum of biological, socio-
economic and environmental indicators which the Council will employ to iden-
tify zones that may require a special management regime. It should be noted
that all of these indicators will be applicable in all situations. The
indicators that are applicable in a particular area will be balanced against
the objectives established for that fishery before the special management
zone designation is made.
Biological
a. Yield per recruit is less than the maximum (the
management goals for the fishery will determine
the level that is unacceptable).
78
b. Recruitment is declining (the danger point
cannot be precisely quantified).
c. Numerical decline in catch per unit of effort
(the acceptable level of CPDE is a subjective
economic-esthetic judgement).
d. A change in target species because of a scarcity of
the original target.
Socio-Economic
a. Conflicts among user groups (may vary seasonally,
during the week, etc.).
b. The real value of the fishery (i.e., adjusted for
inflation) is declining.
c. Decline in the level of participation in the fishery
(may vary with time of the week or season of the
year).
d. Change in the proportion of the total harvest taken
by various user groups.
e. Significant increases in participation which may
signal impending overcapitalization.
f. Request for special management zones for artificial reefs.
Environmental
a. Physical degradation of the habitat.
b. Biological degradation of the habit (e.g., diseases,
predators).
c. Chemical degradation of the habitat.
d. Decline in species diversity.
A. Zoning for Artificial Peefs or Fish Havens
Upon request from the permittee (i.e., holder of COE permit) for
any artificial reef or other modification of habitat for the purpose of
influencing fishing or fishes, the Council may, after due consideration and
within the constraints of the National Standards of FCMA and this plan,
designate the modified area and an appropriate surrounding area as a special
management zone and recommend that the Secretary promulgate regulations
which will further the purposes for which the permittee modified the habit.
79
B. Zoning for Fishing by Special C-,ear
In highly used nearshore waters when the fishing pressure placed
upon the fish population become greater than the reproductive and/or growth
potential the fish population is capable of meeting, the Council may designate
a special management zone in which priority will be given to users of specific
gear. Competition for the limited resources in areas of intense use will
be reduced by giving precedence to use of specific gear and by restraining
or prohibiting use of other kinds of fishing gear. Restraints on specific
gear for fishing may also be imposed.
1 . Catch Limitations
a. Total Allowable Level of Foreign Fishing (TALFF)
Specified as zero.
b. Prevention of Overfishing
The Secretary and the Council will evaluate the desirability
of implementing measures to avoid overfishing when the catch from subunits 1,
2 or 3 reaches 60''', of OY. In the case of the deep-water subunit, OY is
defined on the basis of average length of sexual maturity, evaluation will
occur when the average length in the catch of any of the four species is
the length at sex reversal for that species.
If after such consultation and evaluation, it is determined
that measures are necessary to avoid overfishing, one or more of the
following actions may be taken (by plan amendment) to apply for an appropriate
period of time.
1) Establish catch limits per vessel per time period.
2) Establish catch limits per fisherman per time period.
3) Designate Special Management Zones which will be closed
to fishing for designated species in the management unit. A provision may
be made for by-catch of prohibited species in fisheries directed at species
not in the management unit.
4) Designate Special Management Zones in which certain
designated types of fishing gear may be controlled or prohibited. One or
more of the following actions may be taken:
a) Preference will be given to the kind of gear employed
by the largest number of users.
kind of gear.
b) Preference will be given to the most efficient
c) Preference will be given to recreational users in
nearshore waters and to commercial users in offshore waters.
d) Preference will be given to traditional kinds of gear.
80
5) Establish size limits for designated species.
6) Other actions as may be deemed appropriate.
c. Fishing Year
The fishing year will be the calendar year.
d. Size Limits
Size limits may be implemented (by plan amendment) as a means
of attaining the following objectives and may also be appropriate to other
objectives.
1) To maximize yield per recruit.
2) To provide an adequate number of males in the population
of those species in which individuals start life as females and at a later
age change to males.
3) To maximize the dollar value, or some other specified
value, of the fishery when value varies with size of fish.
The following procedure will be used to set an appropriate size
limit, provided adequate information is available:
1) Estimate the number of undersized fish or the number of
juveniles in the catch of the fishery both as it is now prosecuted and at
the size which will attain the objective. If the objective is to maximize
yield per recruit, the size which will attain the objective will be known
in advance. However, the size that will attain the objective of maximizing
the value usually will not be known in advance. In such a case a range of
sizes that seems likely to attain the objective must be tested to determine
the best fit.
2) Estimate the discounted (i.e., present value) flow of the
future dollar yield, or other measure of value, from the undersized catch.
3) Choose the size of fish which the preceding analysis demonstrates
will maximize the dollar yield or other value from the fishery, considering
whether this will provide a desirable allocation among user groups.
2. Vessel, Gear and Enforcement Devices
a. The following measures shall apply throughout the management area:
1) Fish traps shall have a degradable panel of appropriate
size (at least as large as the entry ports) or degradable door fasteners.
2) Fish traps shall have a mesh size no smaller than 1x2
inches or 1.5 inch hexagonal one year after implementation of this plan.
81
FIGURE 6
LOOE KEY HABITAt AREA OF PARTICULAR
CONCERN
SCALE; 1" = 3000'
1" ' .49 nm-
1" = .gikin
8I*'24'W
24*28 N
Location of the Looe Key HAPC, as measured onto
the contours of NOAA National Ocean Survey Chart
11445. Square measures 1.852km (1 nm ) on each
side with a center at the asterisk.
82
3) An individual shall not fish traps other than his own without
the written authorization of the owner.
4) Traps and trap buoys shall be identified with the boat or
vessel fishing the traps.
b. The following measures shall apply south of Canaveral in waters
shallower than 50 fathoms:
1) Pulling fish traps is prohibited between the period one
hour after sunset and one hour before sunrise.
2) Fish traps shall not be larger than 54 cubic feet in volume.
3) The use of fish traps will be prohibited shoreward of the
ion ft. contour.
c. The use of poisons, explosives and powerheads for taking fishes
of the snapper-grouper complex is prohibited throughout the management area.
c. Coral and Coral Reef Resources Plan
A Draft Fishery Management Plan for coral and coral reef resources
(latest draft March 31, IPRO) now under revision is being considered now
by the Gulf and South Atlantic Fishery Management Councils.
The FMP concentrates on identifying participating user groups, research
organizations, public aquaria owners, and recreational and commercial poachers
(without permits), analyzing the resource and the human impacts on it and
describing the economic and legal factors involved. The recommended specific
management objectives are as follows:
Develop the scientific information necessary to determine the
feasibility and advisability of harvest of the coral resource.
Minimize, as appropriate, adverse human impacts on coral and
coral reef resources.
Provide for special management for coral habitat areas of
particular concern (HAPC) one of which is identified as a one
nmi square area which the plan believes "encompasses nearly
all of the significant reef zones and spur and groove
formations of Looe Key" as identified by Antonius et al (1978).
See Figure 6i.
Specific management measures now being proposed for the HAPC are:
° no coral collecting within the 1 nm sq;
° within a trapezoidal core no contact with coral or coral reef
resources, no collecting of tropical fish, no fixed fishing
gear, no spearfishing and no anchoring.
83
In addition, the draft Coral and Coral Reef Resources FMP proposes to
accept the protective regulations already in place for designated areas
such as Key Largo Marine Sanctuary, Biscayne National Monument and Ft.
Jefferson National Monument. It is therefore possible that if the Looe
Key marine sanctuary proposal adequately protects the resources the
Councils could determine that additional management measures are unnecessary
for the Looe Key HAPC.
In addition, the plan proposes to prohi[)it harvest of hard coral in the
FCZ except by permit for scientific and educational purposes and to allow
limited commercial harvest of soft coral.
d. Draft EIS and FMP for Coastal Pelagic Migratory Resources (Mackerel)
The SAFMC and GMFMC have developed and distributed for review
and comment a Draft EIS and FMp for Coastal Pelagic and Migratory Resources
(Mackerel) (February 1980).
Species within the management unit for which management regulations
are proposed include the king mackerel, Scomberomorus cavalla, Spanish
mackerel, S^. maculatus, and cobia, Rachycention canadum. Species included
in the management unit but for which regulations have not been proposed,
include the cero mackerel, S^. regal is, little tunny Euthynns alletteratus,
dolphin Coryphaena hippurus and bluefish, Pomatomus saltatrix.
Recommended management objectives for king and Spanish mackerel are:
° Instigate management measures necessary to prevent exceeding
maximum sustainable yield (MSY) ["the mathematical estimate for the pounds
of resource which can be harvested annually without overfishing the resource"
DEIS, 19«n].
° Establish a mandatory statistical reporting system for
monitoring catch.
° Minimize gear and user conflicts.
° (For Spanish mackerel only) promote the maximum use of the
resource up to the optimum yield estimate (the MSY estimate modified by
economic, sociological and ecological (biological) characteristics of the
fishery and user groups (DEIS, 1980).
The recommended management objective for cobia is to instigate
management measures necessary to increase yield per recruit and average
size and to prevent overfishing.
Management measures proposed for public review and comment in
the DEIS may be summarized as:
° If a conflict arises through expansion of a historical king
Mackerel or Spanish mackerel fisheries in a traditional fishing area or
region, the Secretary of Commerce (Secretary), after consultation with
affected Council and States, may take action to:
84
(a) separate users or gear by area (fishing zone);
(b) separate users or gear by time (day or week);
(c) assign quotas; or
(d) allow unlimited usage of gear or device.
If conflict arises through the introduction of king or Spanish
mackerel gear or devices into new regions where they have not been historically
fished, the Secretary, after consultation with affected Council and States,
may take action to:
(a) prohibit use of the gear or device in that region;
(b) allow only limited use of the gear or device;
(c) limit number of units of gear or device; or
(d) allow unlimited gear usage.
° If king mackerel catch exceeds the 37 million pound annual
allocation, the Secretary may take action to close the recreational or
commercial fisheries, after considering all relevant data and consulting
with affected Councils;
° Purchase, sale or processing king mackerel under 25 inches
fork length will be illegal;
° All king mackerel nets shall have a 4 3/4 inch minimum mesh size;
° Use of purse seines shall be prohibited in the king mackerel
fishery of the South Atlantic except in conjunction with research programs
to determine their effect on the fishery;
° After consulting with affected Councils, bag and size limits
for king mackerel taken by recreational or recreational-for-hire users or
trip limits for commercial users will be instituted when supporting data
becomes available;
° A 12-inch fork length minimum size limit will be set on Spanish
mackerel in both commercial and recreational fisheries. Taking undersized
fish cannot excel five per cent of total catch by weight;
° The Secretary is requested to develop a research program
to determine the effect of purse seines on Spanish mackerel;
° Rag limits for Spanish mackerel taken by recreational or
recreational-for-hire users and/or trip limit for commercial users will
be set when supporting data become available;
° Possession of cobia less than 33 inches fork length shall
be prohibited;
85
° The Councils will "require a reporting system for all user
groups and processors based on statistical sampling whereby it would be
mandatory for a selected respondant to provide answers to a sample questionnaire
on a recurring basis that is not of great frequency;"
° For king mackerel the Councils will require a mandatory trip
ticket system for all the for-hire charter and party boats; and
° For Spanish mackerel, the Councils will require a mandatory
trip ticket system for a sample of the "for-hire" charter and party boats.
(Draft EIS and FMP for'Coastal Pelagic Migratory FMP, 1^80).
E. Preliminary Management Plan (PMP) for Atlantic Billfishes and Sharks
The PMP for Atlantic Billfishes and Sharks currently prohibits
the retention of billfishes and other non-target species taken incidental
to directed foreign fisheries for tuna and shark within the FCZ. In the PMP,
it is being proposed to extend the 1979 procedures to minimize the capture
and subsequent mortality of non-target species in directed foreign shark
fisheries by imposing area and gear limitations. This proposal is designed
to limit the bycatch of incidental grouper and snapper and other prohibited
species.
2. The Outer Continental Shelf Lands Act (OCSLA) 43 OSC 1331 et seq.
Authority: Comprehensively regulate oil and gas leasing, exploration
and development activities. Expedite development while protecting the
marine environment.
Oil and gas development does not appear to be a realistic
possibility in the vicinity of Looe Key and, therefore, does not pose
a threat to the resources. More importantly for Looe Key, the OCSLA
does not appear to authorize general protection measures except in
connection with such activities.
The Department of the Interior has promulgated regulations at
43 CFR 6224.1-1, prohibiting activities directly causing damage or injury
to valuable coral communities unless a permit for the activity is first
obtained. However, in a recent decision. United States v. Alexander,
decided September 24, 1979, the U.S. Court of Appeals, Fifth Circuit,
ruled that the authority of the OCSLA is confined to the promulgation
of rules and regulations applicable to leasing operations on the OCS and
86
that, in the absence of a mineral lease operation in a given area, the
Department of the Interior is unable to enforce any regulation issued
pursuant to it.
The case involved attempts to salvage a sunken vessel (presumably
scuttled while transporting narcotics) on the Looe Key coral "foriTHtion.
The salvager damaged coral and was convicted in the District Court.
This appeal challenged the authority of the regulation cited above and,
as indicated, the Fifth Circuit reversed the conviction, stating
"The provision (Section 5(a)) is not, as the Government would have it,
an independent source of regulatory authority."
This decision is controlling in the Fifth Circuit which, of course,
includes Looe Key and the entire Gulf Coast, as well as the Atlantic
Coast of Florida and Georgia. A rehearing has been denied and it appears
that the Government will not seek review by the Supreme Court.
3. The Clean Water Act 33 U.S.C. 1251 et seg.
Authority: Restore and maintain water quality.
Section 301 prohibits the discharge of any pollutant into the
waters of the contiguous zone on the ocean from any point source other
than a vessel without a permit from EPA. The only such discharge likely
to occur at Looe Key, however, is a vessel discharge.
Section 311 of the CWA does apply to vessels and prohibits the
discharge of oil and hazardous substances in quantities which may be
harmful as defined by EPA. The current list excludes, among other things,
many items of trash and litter.
Section 1322 regulates the discharge from marine sanitation devices
but does not apply beyond the territorial sea (see regulations effective
June 1, 1980).
4. Marine Protection, Research and Sanctuaries Act of 1972, Title I,
33 U.S.C. 1411 et. seq. (The Ocean Dumping Act)
Authority: Prohibit the dumping of certain toxic materials into ocean
waters and regulate the dumping of other materials into such waters.
Section 101 prohibits the transportation from the U.S. of any
material for the purpose of dumping it into waters without a permit from
EPA (or the Corps in the case of dredge spoil disposal).
EPA, under Section 1412(c) of this act, pre-selects sites or times at
which certain materials may not be dumped and issues permits for the disposal
of all materials, with the exception of dredge spoils, which consider the
effects of the proposed dumping on marine ecosystems. At the present time,
there are no pre-selected dump sites in or adjacent to the Looe Key
area.
87
Permits for disposal of dredged materials are issued by COE, on
the basis of EPA criteria for protection of human health and the marine
environment. Permits have only been issued in Largo Sound and Key West.
While the disposal of trash and various materials from vessels is
not subject to EPA and COE authority, the agencies can regulate disposal
of other waste materials in the vicinity of Looe Key.
5. The Endangered Species Act of 1973, 16 U.S.C. 1531 et. seq. (ESA)
Authority: Prohibit the taking of listed endangered and threatened species
and ensure that actions "authorized, funded or carried out by Federal agencies
do not jeopardize species or critical habitat." The purposes of the act are to
provide a means whereby the ecosystems upon which endangered and threatened
species depend may be conserved and to provide a program for the conservation
of such species.
Although no listed endangered/threatened species have been identified
yet at Looe Key, the area contains a number of species considered endangered
or threatened by Florida. Furthermore, the area has been identified by
the U.S. Fish and Wildlife Service as suitable habitat for the following
listed endangered species.
Atlantic Green Turtle Chelonia mydas mydas - All coastal
and marine habitats.
Atlantic Hawksbill Turtle Erethmochelys imbricata imbricata -
Primary reef habitats.
Atlantic Ridley Turtle Lepidochelys kempi - All coastal
and marine habitats.
6. The Antiquities Act, 16 U,S.C. 1431 et seq,
Under a recent court decision, the Antiquities Act, which provides that
the Department of the Interior may designate and protect certain historically
important sites, does not authorize such action in relation to antiquities
located on the OCS. The Abandoned Property Act, 40 U.S.C. 310, is similarly
limited. The National Historic Preservation Act, 16 U.S.C. 470 et seq.,
offers protection for marine artifacts once listed but only with respect to
Federal or Federally supported activities. The historic shipwreck located
at Looe Key is not listed and, even if listed, would not be fully protected
from private activities.
C. Enforcement Agencies with Authority in the Federal Waters of the
Looe Key Area
1 . U.S. Coast Guard
The Coast Guard, as established in 1915, is a military service and a
branch of the armed forces of the U S. Its overall authority, to enforce or
assist in the enforcement of applicable Federal laws on and under the high
seas and waters, comes from Title 14, USC 2.
88
Primary Duties:
"The Coast Guard shall enforce or assist in the enforcement of all
applicable Federal laws on and under the high seas and waters
subject to the jurisdiction of the United States; shall administer
laws and promulgate and enforce regulations for the promotion of
safety of life and property on and under the high seas and waters
subject to the jurisdiction of the United States covering all
matters not specifically delegated by law to some other executive
department; shall develop, establish, maintain, and operate, with
due regard to the requirements of national defense, aids to maritime
navigation, icebreaking facilities, and rescue facilities for the
promotion of safety on, under, and over the high seas and waters
subject to the jurisdiction of the United States; shall, pursuant
to international agreements, develop, establish, maintain, and
operate icebreaking facilities on, under, and over waters other
than the high seas and waters subject to the jurisdiction of the
United States; shall engage in oceanographic research on the high
seas and in waters subject to the jurisdiction of the United States;
and shall maintain a state of readiness to function as a specialized
service in the Navy in time of war."
The Florida Keys are part of the 7th U. S. Coast Guard District with
headquarters in Miami, Florida. Group Key West, based in Key West, Florida,
has the enforcement responsibility for the Florida Keys, including the Looe
Key reef area.
The extent to which the Coast Guard can provide effective enforcement
of marine laws on the high seas depends on the number of personnel, boats
and other equipment at their disposal and the complexity of the missions
assigned to them.
There are three Coast Guard Stations on the Keys; Key West, Marathon and
Islamorada, with less than 75 personnel. Eighty percent of their missions
deal with search and rescue operations. Their law enforcement resources are
as follows:
Key West: 2 41' boats - 21 personnel
Marathon: 2 40' boats - 21 personnel
several small boats
Islamorada: 2 40' boats - 28 personnel
In addition to search and rescue operations, their missions can include:
Enforcement of Customs laws with respect to smuggling (primarily drugs);
Enforcement of Immigration laws with respect to refugees;
Establishing and maintaining aids to navigation in navigable waters and
on the high seas;
Environmental clean-up of toxic and hazardous substances in accordance
with the Federal Water Pollution Control Act.
89
Without formal agreement and funding, the Coast Guard makes no scheduled
patrols except for those undertaken as a part of their regular patrols.
Distances between stations and the large territory to be covered makes
these patrols intermittent and infrequent. (Lt. Cdr. Dennis, 1979) The Group
Key West Coast Guard ranges along the entire coastline, with the number
one enforcement activity, at the present time, being drug interdiction.
2. National Marine Fisheries Service. Division of Law Enforcement, Office
of Fisheries Conservation and Management
The NOAA/NMFS enforcement function originated in 1958 under the old
Bureau of Commercial Fisheries, evolving from loosely coordinated regional
programs responsible for enforcing international conventions, agreements.
Federal wildlife statutes and regulations pertaining to certain species of
fish, whales and fur seals. This function expanded in the late 1960's to
meet the growing demand to control increased foreign fishing effort off the
U. S. coast, including enforcement of the newly established Contiguous Fishery
Zone(Bartlett Act). As more treaties, agreements and laws with substantial
national consequences were implemented, the NMFS law enforcement program
necessarily became more essential. Enforcement responsibility substantially
increased with the passage of the Marine Mammal Protection Act of 1972
and the Endangered Species Act of 1973.
The enforcement responsibilities delegated by the Secretary of Commerce
to NOAA/NMFS are currently administered and carried out by an Enforcement
Division in the Office of Fisheries Management (a staff function) and by
five, separate, and independent regional law enforcement organizations
(line function) operating under the direction and control of the respective
Regional Directors.
The headquarters enforcement organization in Washington, D.C. is responsible
for establishing national enforcement policies and procedures but has no
direct control over regional law enforcement organizations.
The Florida Keys are part of the Eastern Enforcement Area of the NOAA/NMFS
Southeast Law Enforcement region, extending from North Carolina to Key West
and including Florida Bay. The Eastern Enforcement Area employs a Senior
Resident Agent and one Agent on a temporary appointment in Miami. Their
responsibilities include the enforcement of the Fisheries Conservation Manage-
ment Act, the Marine Mammal Protection Act, the Endangered Species Act, and
the Lacey and Black Bass Acts, (prohibiting the transport of materials/products
of fish and wildlife, illegally obtained under other laws in interstate commerce).
Their primary mission is to investigate and process civil/criminal vio-
lations of the laws mentioned above. The Florida Marine Patrol and the U.S.
Coast Guard patrol the waters under Cooperative Agreements entered into by
the Regional Director of the NOAA/NMFS Law Enforcement Office in the S.E.
region. This alleviates the problem of the lack of ceiling points necessary
to hire additional Agents for patrol work.
There is a Basic Agreement with the State of Florida, in effect since
July 1, 1975, signed by the Department of Commerce/NOAA for Law Enforcement
90
Services under the Marine Mammal Protection Act of 1972. The State law
enforcement officers are designated by the Regional Director, NMFS, to
act as Federal law enforcement agents in the enforcement of the act within
the State's jurisdiction or against its own citizens anywhere.
There is a new Cooperative Enforcement Agreement pending between the U.S.
Department of Commerce, NOAA/NMFS, the U.S. Coast Guard and the State Depart-
ment of Natural Resources Florida Marine Patrol for law enforcement services
under the Fishery Conservation and Management Act, deputizing State Officers
as Federal Enforcement Agents to enforce the act within the Fishery Conser-
vation Zone adjacent to the State and within the boundaries of the State and
providing U.S. Coast Guard assistance to the State, should it be available.
In exchange, the Department of Commerce, for $78,000, is to provide the
State with enhanced communication and data processing capabilities.
The effectiveness of this enforcement arm of the NMFS is limited by
lack of staff necessary to patrol the ocean waters within the jurisdiction
of the FCMA, Endangered Species Act and the Marine Mammal Protection Act and
their forced reliance on other agencies (Florida Marine Patrol and U.S.
Coast Guard).
The only law enforcement responsibility in NOAA outside of NMFS statutory
responsibility is that of enforcing Marine Sanctuary regulations. However,
the only two designated Marine Sanctuaries are enforced by agencies outside
of Commerce under contract to NOAA/Commerce (Monitor and Key Largo), at the
present time.
3. Florida Marine Patrol
The Florida Marine Patrol, law enforcement arm of the State Department
of Natural Resources, has an office and staff (25) at Marathon in Monroe
County. The Monroe County Marine Patrol has the responsibility for ^forcing
all State regulations in State waters on both sides of the Keys; NMFS regu-
lations for marine mammals and NMFS/Fish and Wildlife regulations for endan-
gered and threatened species in Florida Keys State waters; regulations for
endangered and threatened species in Federal waters and regulations for the
Marine Mammal Protection Act where its own citizens are involved anywhere.
Florida Marine Patrol agents are also uniformed officers of the State of
Florida and must enforce all State laws, both on land and in the water. The
State waters of the Florida Keys include the 3 mile area on both sides of
the Keys.
The USCG and the Patrol have verbal agreements to notify one another of
possible State/Federal violations.
The extent of Florida Marine Patrol effectiveness in both its statutory
and delegated responsibilities depends on adequate staffing and equipment.
Informal cooperation between the State enforcement officers and the Coast
Guard has increased the effectiveness of both agencies.
91
CHAPTER FOUR ENVIRONMENTAL CONSEQUENCES
I. INTRODUCTION
In order to discuss the potential environmental, social and economic
consequences of various boundary and regulatory alternatives considered
by NOAA, human activities were grouped, as follows:
Coral collecting
Commercial fishing
Tropical specimen collecting (tropical fish and invertebrates)
Spearfishing
Anchoring
Snorkeling, SCUBA diving
Removal of Historic and Cultural Resources
Discharges
Regulatory alternatives analyzed for each of these activities range
from the legal status quo, i.e. no proposed sanctuary regulations to
the banning of the activity within the sanctuary boundary recommended.
The discussion of the status quo alternative for each activity contains a
description of the existing environmental, economic, and social conditions.
Economic analysis of the regulatory alternatives centers on economic
impacts associated with the 5 sq nm boundary alternative. Boundary Alternative
#2 was selected for detailed analysis as the preferred alternative because it
encompasses the five ecological elements at Looe Key and satisfies the Sanctuary
Program objectives.
93
II. Boundary Alternatives (see Figure 7)
Boundary Alternative Approx. Area Ecological Zones (See Fig. 4)
#1 1 nm sq Fore Reef, portions of the Reef
Flat, Deep Reef, Patch Reef
#2 (preferred 5 sq nm Fore Reef, Reef Flat, Deep Reef,
alternative) Patch Reef, Deep Ridge
#3 10 sq nm All 5 above zones plus additional
Patch Reef areas east and west of
the reef
A. Boundary Alternative #1 (1 nmi sq 3.5 sq km)
This one nautical mile square alternative corresponds to the Habitat Area
of Particular Concern (HAPC) at Looe Key being proposed in the FMP for Coral and
Coral Reef Resources by the Gulf of Mexico and South Atlantic Fishery Management
Councils (for specific aspects of the plan see Chapter 3, Status Quo).
The coordinates for this boundary alternative are:
a. 24% 33.4' North b.
81% 25' West
d. 24% 32.2' N c.
81% 25' W
This one nautical mile square sanctuary with the center approximately
in the middle of the Looe Key Reef Flat would encompass two reef zones of
the Looe Key ecological system: the Reef Flat and the Fore Reef. At the
southern margin it would contain a narrow band of the shallowest part of the
Deep Reef and at the northern rim some very small reef outcrops belonging to the
Patch Reef zone. These additions, however, are so limited in area as to be
negl igible.
Boundary alternative #1 would protect the best developed and unique
coral formation of the entire Looe Key reef system from physical impact.
The Fore Reef is a spur and groove system about 1500 X 350 meters wide,
extending from the low tide mark down to a little over 9m depth (Antonius,
1980).
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It contains shallow, as well as intermediate, water-depth coral communities
but with the obvious lack of a number of species one might expect to occur
here. While the shallow "reef-crest-part" of the Fore Reef shows extensive
Millepora-Zoanthara fields, the deeper "reef-fingerpart" is a system of
alternating sand valleys and several meter-high coral ridges of massive
coral growth forms and is populated by the greatest numbers and species
diversity of fish in the five zones.
The Reef Flat borders the Fore Reef to the north, a sand-seagrass area
about one quarter of a square kilometer in size and an average of 1 .5 m deep.
It is also an important area offering a large recreational area of sandy reef
top, for inexperienced swimmers or families with children. Although the Reef
Flat provides little cover and has the lowest species diversity of all the
zones, it is an important feeding area for fish of the Fore Reef zone, an
integral part of the Looe Key Coral Reef system and very important to a seg-
ment of the recreational population.
The channels between the fingers of coral on the Fore Reef are very
important to fish migrations from one zone to the other (Zieman & Roblee
1979), and provide essential access to the reef for pelagic species, such
as mackerel. Although parts of the deeper sandy channels would be covered
by the 1 sq nm alternative, the more distant parts of the channels would
not be protected at all to the east and west of the Fore Reef, and Deep Reef
Ridge would remain virtually unprotected.
Enforcement of 1 nm sq area would be unlikely as the area is too small
for accurate boundary detection, considering the size boat that would be
used (Russell, Coast Guard personal communication, 1979). Citing of violators
in this alternative could also be difficult. Due to its limited boundaries,
violators would have sufficient time to escape as law enforcement officers
approach the sanctuary.
In addition there is a question of the wisdom of protecting part but not
all of a unit or ecological system such as Looe Key. User activities beyond
the 1 m sq alternative, uncontrolled by the sanctuary manager, could under-
mine the careful management within the sanctuary. Finally, though the physical
aspects of the spur and groove system could possibly be protected with this
boundary, that is only one of the sanctuary program objectives.
B. Boundary Alternative #2 - Preferred Alternative
This alternative covers a 5 sq nm (17 sq km) area, the coordinates of
which are:
a. 24°, 34' N b. 24°. 34.2' N
81°, 25.9' W 81°, 23.3' W
c. 24°, 31.6' N d. 24°, 32.3' N
81°, 25.9' W 81°, 23.3' W
96
The 5 sq nm alternative encompasses all five ecological zones: Patch
Reef; Reef Flat; Fore Reef; Deep Reef and Deep Ridge. It also covers an
extension of the Fore Reef to the east discovered only recently as part of
the survey work for this EIS.
The Patch Reef zone is a relatively shallow flat bottom area, covered
with extensive turtle grass manatee grass. Interspersed a.mong the sea-
grass beds are numerous patch reefs with very little profile. The Patch
Reefs within this zone are usually dominated by densely growing, large oct-
ocorals. The species diversity of octocorals on the Patch Reef is greater
than that of the Fore Reef and certain octocorals exist only on the Patch
Reef. The scattered stony corals reach only moderate size, but nevertheless
give the Patch Reefs enough structure to provide shelter for fishes and
invertebrates. In addition, the naturally rare pillar coral (Dendrogyra
cylindrus) is more likely to be found in the Patch Reef area than at the
Fore Reef.
The significance of the Patch Reef zone as a shelter for a variety of
finfish and shellfish has been pointed out in a number of publications (e.g.,
Zieman & Roblee, 1979). Without the protection of the interspersed Patch
Reefs, these animals would be unable to use the surrounding seagrass beds
as feeding grounds. This zone, together with the even shallower Reef Flat,
are Looe Key's nursery for juvenile fishes. In addition, the extensive
seagrass beds of both zones constitute the feeding ground for many deep-
water fishes migrating to these areas at night.
The Fore Reef provides the deep sheltered channels for these migrations
from the Deep Reef to the shallow reef zones, while the much wider channels
on either side of the Fore Reef provide access for pelagic species.
The Deep Reef todcO' still harbors territorial fishes such as groupers
which, given protection and time, may repopulate the apparently over-fished
Fore Reef zone. This could also be the case for conspicuously missing corals
which might, in time, repopulate the Fore Reef from the stock that live on
the Deep Reef.
The main part of the Deep Reef exhibits a coral community of intermediate
to deepwater species, with some coral species growing abundantly here that no
longer occur on the Fore Reef. The Deep Reef, on the seaward side, is a slope
of increasing steepness, ending in a small dropoff to about 25 to 35 m depth.
Numerous surge channels with a profile of up to 1 .5 m provide habitat for
territorial reef animals such as grouper and lobster.
Since the 5 sq nm alternative contains portions of the Deep Ridge as well
as the main four reef zones of Looe Key, it forms a representative "slice of
the ecological pie" through the reef tract in this area.
Though Looe Key alone represents a small segment of the Florida reef
tract, it is possible that by focusing intensive management on smaller
discrete units such as Biscayne National Park, Key Largo National Marine
Sanctuary, John Pennekamp State Park, Fort Jefferson National Park, and
Looe Key, we can protect enough of the reef tract to achieve a measure of
success in insuring long-term viability. In addition, these discrete pro-
tected areas are tied together by the broader conservation measures afforded
97
under the proposed joint Gulf and Coral Reef Resources Fishery Management
Plan. All of these entities, together with heightened awareness of the
need for close cooperative management strategies, should provide an in-
creased level of protection.
The 5 sq nm boundary alternative would create a sanctuary containing
representation components of each reef zone and establish a sanctuary that
protects a reef tract system rather than one component. This approach is
consistent with the goals and objectives for establishing a sanctuary at
Looe Key.
A sanctuary with this boundary would include all of the reefal zones
and be "systematic" in scope providing for the maintenance and enhancement
of long-term productivity of an entire ecological unit. This boundary alter-
native would provide a geographic basis for achieving the sanctuary goals:
° To maintain, protect and enhance the quality of the natural,
biological, aesthetic and cultural resources of Looe Key Reef
system;
° To promote and stimulate marine research efforts directed towards
identification and analysis of marine ecological interrelationships.
° To enhance public awareness of the functions of the Looe Key coral
reef system.
C. Boundary Alternative #3 (10 sq nm 34 sq km)
This alternative includes an area of 10 sq nm (34 sq km) the coordinates
of which are:
a. 24°, 33.3' N b. 24°, 34.3' N c. 24°, 34.2' N
81°, 27.5' W 81°, 25.4' W 81°, 23.3' W
d. 24°, 34.7' N e. 24°, 31.3' N f. 24°, 32.5' N
81°, 21.3' W 81°, 27.5' W 81°, 21.3' W
This area contains the entire 5 sq nm boundary alternative as well as
considerable portions of territory to the east and west (Fig. 4). Informa-
tion from actual field studies on the areas east and west of the Looe Key
reef itself was not readily available. The northern part of these additional
areas can generally be regarded as extensions of the Patch Reef Zone, a morpho-
logical feature that can be found along the entire chain of the Florida Keys
in shallow water and at a certain distance offshore. The southern part of
these additional areas, however, does not contain any significant reef.
Instead it contains a slope that consists mainly of sand bottom. Whether the
deepest parts include any type of coral community, such as the Deep Reef, is
not known at present, but the probability seems low.
Enlarging the sanctuary area to 10 square nautical miles could increase
the effectiveness of enforcement by making it more difficult for violators to
escape undetected before being caught.
98
The Onsite Survey of Looe Key indicates that local fishermen
depend on the 5 square nautical mile sanctuary proposal area for approxi-
mately one-third of their catch and the area beyond the 5 square nautical
mile boundary for approximately two-thirds of their catch. Therefore
posing restrictions on commercial fishing within a 10 sq nmi area would
likely cause considerable economic hardship on local long-term commercial
fishermen and yet not provide that great an increase in the degree of
protection of the reef systems.
III. Environmental Consequences of Proposed Regulatory Alternatives
A. Alternatives Concerning Coral Collecting.
1 . Status Quo: Unregulated taking, of coral under all boundary
alternatives.
The taking of coral in Looe Key is presently unregulated. State
regulations do not apply in waters beyond the territorial sea. BLM/Interior
regulations previously controlling the harvesting of corals are no longer
enforceable in the Looe Key Reef area (see above). The FMP for Coral
and Coral Reef Resources is still in the draft stage and the environmental
impact statement has not yet been completed. The final plan will not
likely be implemented before January, 1981 (GMFMC).
Direct observations (Davidson, 1979) indicate that souvenir coral
collecting is an ongoing practice today, and probably the most serious
drain of the reef's coral resources. The absence of certain species in
areas of the reef that provide accessible, suitable habitat provides
circumstantial evidence of the harvesting of these attractive growth
forms. There is a strong probability that small finger-like growth
forms, such as Madracis, Porites and Oculina species and especially the
beautiful flower coral Eusmilia fastigiata, which occur on the Deep
Reef but not on the more accessible Fore Reef, have been exterminated on
the Fore Reef by collectors. A larger type of flower coral, Mussa angulosa,
is also abundant on the Deep Reef, but rather rare on the Fore Reef. It
does occur somewhat more frequently in the Patch Reef zone, which may
reflect a difference in visitor-related collecting pressure. One naturally
rare species, the pillar coral Dendrogyra cylindrus, has almost been
exterminated by collectors in the entire Florida reef tract, including
Looe Key. Without regulatory protection of existing coral assemblages,
remaining populations of these scarce corals in the more accessible
areas of the reef could be eliminated. Collecting pressures could then
shift to other, less desirable species and to those populations which
persist on the Deep Reef and less frequented Patch Reefs.
A significant degree of commercial collecting does not occur here any
longer (Causey, personal communication, 1979). The long term consequences
of depletion and removal of entire species populations has been insufficiently
studied, but is considered by most scientists to be detrimental to the reef
ecosystem. The current draft of the FMP for Coral and Coral Reef Resources
proposes to approve for harvest by permit limited quantities of certain
99
soft coral species and to issue coral collecting permits for hard and soft
coral for scientific and educational purposes. It proposes to prohibit all
taking of corals vrithin the suggested 1 sq nm Habitat Area of Particular
Concern.
The perpetuation of the status quo would allow all coral collecting to
continue unless and until the FMP is approved and implemented. This could
result in adverse ecological consequences to the reef system and to those
valuable commercial and recreational species depending on it for habitat.
2. Prohibit the collection or possession of all coral, living or
dead within the sanctuary under all boundary alternatives but
permit the collection of coral for scientific and educational
purposes: PREFERRED ALTERNATIVE"
This alternative would protect present and future coral resources while
permitting coral specimen collecting for educational and scientific purposes
under permit from NOAA. Since the current level of commercial coral collec-
ting is insignificant in the proposal area the economic impact of this
alternative will be negligible. The proposed restriction is more stringent
than that being considered in the Coral FMP in that the latter permits limited
harvest of soft coral outside the 1 nm sq HAPC.
NOAA personnel would be needed to review the permits required by this
alternative thereby increasing the staff workload and detracting from other
duties. This alternative would also increase the responsibilities of enforce-
ment personnel .
A regulation similar to this proposed for the sanctuary is presently in
force in John Pennekamp State Park and in the Key Largo Marine Sanctuary. As
discussed in Chapter Three, the inclusion of a provision prohibiting posses-
sion of coral, dead or alive, within the proposed boundaries has resulted in
few enforcement difficulties within these two protected areas. On the other
hand, Florida State law, applicable in the territorial sea, does not prohibit
possession of cleaned or cured specimens of sea fans, hard and soft corals or
fire coral and enforcement difficulty has arisen because these organisms can
be quickly killed and bleached on board ship before enforcement agents can
board for inspection (Tingley, personal communication, 1979).
Protecting the Looe Key coral reef system by prohibiting the taking of
coral except for scientific and educational purposes will:
° maintain the coral as an important producer of sand, a
renewable resource which comes from dead coral,
° maintain the high primary productivity which produces
oxygen for the support of organisms living in the vicinity;
maintain these reefs as gene pools for future cclonizatipn of
adjacent coral areas;
100
° preserve a reef, which, if seriously degraded, might not
recover since today's environmental conditions may be
different from those existing at its inception;
° provide the structural foundations for future coral growth;
° pose limited enforcement difficulties;
° maintain the reef habitat thereby maximizing associated
recreational benefits such as quality of diving, and
fishing.
Since insignificant commercial collecting occurs within the boundaries
of the sanctuary proposal, this regulation will not have an economic impact.
OCZM will work closely with the Fishery Management Councils to insure as
nearly as possible compatible non-duplicative permitting procedures. If
Looe Key becomes a sanctuary and if NOAA consultation with the Council takes
all its concerns into account, the sanctuary permit could be the only one
required.
3. Prohibit the collection or possession within the sanctuary of
all coral, living or dead, under all boundary alternatives^
This alternative would fully protect the coral reef system at Looe Key
from coral collecting and would not place an additional administrative burden
on the Sanctuary Programs Office (SPO) staff. However, one of the proposed
sanctuary objectives is to promote research and study of the natural resources
of Looe Key and a prohibition of this type might discourage valuable studies
requiring the taking or study in the field of small numbers of specimens.
101
B. Alternatives Concerning Commercial Fishing
Environmental consequences of wire trapping, lobster trapping, net
and hook and line fishing were analyzed to determine whether or not
proposed restrictions were warranted. Available data do not support
controls on net and hook and line fishing at this time (see Chapter 2,
VI). The following specific alternatives were considered for wire trap
usage and lobster trapping.
1. Regulatory Alternatives for Wire Trap Fishing
a. Status quo: Unrestricted use of wire traps within all
boundary alternatives.
Recently wire trap fishing has become a highly controversial
and emotional issue. Unfortunately very little documented evidence exists
regarding actual or potential environmental, sociological and economic
impacts of trap usage.
Both the draft FMP for snapper-grouper resources and the first
quarterly report (November 1979 - January 1980) on the wire trap fishery
conducted jointly by the Florida Department of Natural Resources (FDNR)
and the National Marine Fisheries Service 'NMFS) offer information relating
to wire fish trapping in the Florida Keys. The latter report, the most
recent information available, represents data from the first 3 months
of the 12 month study.
At present, no regulations govern the use of wire fish traps
in this area. However, several management measures on the use of traps
are proposed in the draft FMP for snapper-grouper resources, including:
(1) traps will have degradeable panels of appropriate size (at least as
large as the entry ports) or degradeable door fasteners; (2) traps will
have mesh no smaller than 1x2 inches or 1.5 inch hexagonal; (3) trap
and buoys must be identified with the boat of the owner by a color code;
(4) a person must not fish traps other than his own without written
authorization of the owner; (5) pulling traps is prohibited between the
period one hour after sunset and one hour before sunrise; (6) traps may
not be larger than 54 cubic feet; and (7) the use of fish traps will be
prohibited shoreward of the 100 foot contour. Measures 1, 2, 6 and 7 are
conservation oriented. The purpose of the degradeable panel is to prevent
lost or "ghost" traps from continuing to capture fish. Specification of a
minimum mesh size is intended to provide for escapement of juvenile fish.
The draft FMP includes that a reasonable limitation on the size of traps
and on the areas where they can be deployed is warranted at this time to
lessen user group conflicts and until the biological, social and economic
impacts of the gear can be more fully evaluated. Measures 3, 4 and 5 are
intended to discourage poaching and theft and will improve the enforceability
of the other management measures pertaining to the trap fishery.
According to the first quarterly report, wire fish trapping
in Monroe (and Collier) Counties is a popular fishing method. Although it
has been used intermittently since the Depression, the use of wire traps
for commercial fishing is relatively new. According to the Florida Sea
Grant, their general acceptance in the Florida Keys started in 1976-77.
103
The traps are constructed of vinyl -covered welded wire mesh,
usually with openings of l"x2" or larger. The FDNR report and draft Reef
Fish Plan indicate that traps typically have overall dimensions of 2'x3'x4'
(FDNR, 1980) to 3'x6'x3' with a base of 18 square feet. On the other hand,
the Marine Wilderness Society in Florida has reported that wire traps can
cover from 25 square feet to as much as 40 square feet of bottom area.
Fish traps commercially available in the South Florida area can be purchased
with as much as 120 cubic feet in volume. The draft Reef Fish FMP proposes
to restrict all fish traps fished within the FCZ to 54 cubic feet or less
in volume.
The draft snapper-grouper FMP also indicates that traps are typically
set at depths of less than 30 to 150 feet {9.14m-45.75m). The first quar-
terly report of the Florida DNR substantiates this and indicates baited
traps are individually buoyed and normally placed 100' -150' apart in water
from 25' to 150' deep. Some of the small, shallow water operators can
visually select the area to place each trap. Deeper water fishermen rely
on fathometers to locate "good bottom" and then deploy their traps in a
line adjacent to the relief. Most fishermen in the Lower Keys and Tortugas
fish in depths of 80' to 150'. Others report that the normal fishing depth
is between five and 45 m (Sylvester and Dammann, 1972; Monro, 1974) in
the shallow reef areas of Florida.
The FDNR report observes that the most desirable bottom for
setting traps has various ledges with 2' -4' relief with live gorgonians,
sponges, and heads of hard coral and which extend in any one direction for
100' or more. A habitat of this type is fished heavily for 2-3 days, and
then the traps are moved to some other likely spot. If this ledge area
was a good producer, the fishermen will return two weeks later and again
fish it for 2-3 days. There are three areas in the Florida Keys that are
supporting fish traps continuously, at least for the first quarter of this
study. These areas are: the area immediately surrounding Sombrero Light
off Boot Key (Middle Keys), the area adjacent to the whistle buoy south of
Loggerhead Light (Dry Tortugas), and the area adjacent to the Big Pine
shoals off Big Pine Key (Lower Keys).
Conclusive data on the number of fishermen in the area that
use traps and the extent of the increasing use of traps is not available.
During the first quarterly report period, FDNR reports that the wire trap
fishery in Monroe County involves approximately 43 boats, with the crew
consisting normally of a captain/owner and a single mate. Several small
boat, nearshore operations were conducted by a captain only. Twenty-two
of the 43 captain/owners are part-time trappers who also fish lobster or
crab traps or engage in other types of fishing activity. Seven of these
trappers engage in wire fish trapping only during the summer when the
lobster and stone crab seasons are closed. These 43 fishermen utilized an
estimated 998 traps (an average of 23/boat).
National Marine Fisheries Service (NMFS) estimates are greater
than the figures obtained by FDNR. NMFS estimates that in Monroe County
8,000 traps maximum were used by fishermen in 1978 and that 300 to 350
104
vessels were involved. Data obtained during the Onsite Survey revealed
that in 1978 nearly 35% of commercial fish landings in the 5 square
nautical mile area were from wire traps (see Appendix C, Table 3).
According to Florida DNR, fishermen in the Florida Keys trap
fishery operate vessels that range from 34 ft. wooden vessels constructed
in Cuba of jubilla wood to a modern 75 ft. steel hull with freezers. Most
vessels have hydraulic pot haulers, fathometers and either loran or radar,
although several of the smaller vessels have neither pot haulers nor any
positioning device.
Since fish traps are normally placed on or adjacent to the
ledges of out croppings of 2 '-4' relief, wire trap fishermen come in close
contact with other users who are competing for this limited bottom area.
For example, sport trollers' rigs become entangled in trap buoys, and
bottom fishermen lose gear by becoming entangled with the traps. Physical
damage to coral species has occurred when these traps have been dropped on
corals, dragged across the bottom during retrieval and tossed about during
rough weather (personal communication, Davidson, 1979).
Sport divers also report that traps on shallow reefs capture
and kill excessive amounts of tropical reef fish and at the same time
destroy living coral. Fish trappers on the other hand, have stated that
their traps are not set on the tops of biologically productive reliefs,
but adjacent to these formations. These fishermen also reported that the
majority of reef tropicals and undersized groupers and snappers are re-
turned to the water immediately with little detrimental effect.
Traps lost by separation of the buoy line from the trap either
by vandals, propel lors or storms are called ghost traps and continue fish-
ing for unknown periods of time. The number of lost traps per fisherman
per year ranges from 30% to as high as 200% of the total of traps being
fished (FDNR, 1980).
One diver on Big Pine Key reports that on a recent dive around
Big Pine shoals, several ghost traps were in his field of vision at any
given time as he progressed down the reef in 50 feet of water. Further
research needs to be done to determine the numbers of ghost traps, their
life span, and their ability to catch and retain fish (FDNR, 1980).
The FDNR study, also observed that less than 10% of the total
fish caught by wire traps were dead or injured. The most commonly found
dead fish were barracudas and large jacks. The most common trap-caused
injury was the abrasion of the snout followed by gas embolism which is
caused by the rapid ascent through the water column. The report did not
measure, however, how many and what species of smaller fish were caught
and eaten during the period of captivity.
As part of this study captured species were categorized as
target or non-target depending on whether or not the fish were landed for
human consumption. Primary target species consisted of large (3.0 lb.
whole) black, red, Nassau, yellowfin, scamp, gag and hind groupers; button,
105
yellowtail, lane, silk, dog and schoolmaster snappers that were larger
than one pound gutted; hogfish larger than one pound; jolthead and knobby
porgies larger than one pound; margate, black margate and sailor's choice
grunts larger than one pound.
Small groupers and snappers were normally returned to the water
during this period of observation. Non-target species were considered to be
tangs, angels, butterflies, parrots, wrasses other than hogfish, triggers,
files and trunk fish and were discarded by most fishermen.
During the three months of this project, the investigators observed
the capture of 1568 target fishes of 29 species and 136 spiny lobster.
These amount to 61.4% of the total number (2552) and 72.9% of the total
weight (5164.6 lbs) of individuals of 48 species and accounted for 38.6%
of the total number and 27.1% of the total weight of individuals sampled.
The 10 most abundant species (3 groupers, 1 snapper, 2 porgies, 2
grunts, 1 angel, 1 tang) accounted for 58.7% of the total number of all
individuals and 61.02% of the total weight of all individuals. Groupers
(358 individuals weighing 2958.23 lbs) account for 14.0% of total number
of all individuals sampled and 57.3% of total weight of all individuals
sampled.
The study by the Florida DNR and the NMFS hopes to help resolve the
controversies surrounding wire trap use and facilitate management decisions
on the fish trap industry. In the meantime often cited disadvantages
include:
(1) financial success depends entirely upon unstable market demands,
supply, and price;
(2) high level of trap efficiency can interfere with the catch per
unit effort of recreational and commercial hook and line fishing;
(3) intense trapping efforts in isolated reef areas may radically
change fish species composition and abundance;
(4) trap dimensions (mesh size, entrance funnel size, orientation
and location, and trap volume) are not always species specific and are
selective for a wide variety of reef fish, including juveniles, trash or
forage species and non-food tropicals (the draft Reef Fish FMP, however
states that "...evidence suggests that traps are generally selective and
can be set so they are highly selective");
(5) Coral and coral reef resources can be physically damaged when
traps are dragged across the reef surface during retrieval or when displaced
by waves and currents;
(6) traps are easily lost due to theft, bad weather and vessel passage
severing buoy lines; these traps, popularly known as "ghost" or "drowned"
traps, continue fishing indefinitely unless retrieved by divers or destroyed
by corrosion or large predators;
106
(7) unnecessary trap-related mortalities occur from cannibalism or
starvation in side fished and "ghost" traps and from gas embolisms caused
by rapid ascent from depths during retrieval;
(8) traps containing large numbers of stressed fish or in the case
of "ghost" traps, mutiliated fish or skeletal remains, are unsightly and
detract from a SCUBA diver's aesthetic experience.
Specific observations on the use of traps in tropical areas outside
Florida include the following:
"If the use of fish traps becomes a significant fishing method
for harvesting reef fish in the Gulf of Mexico, there is a
possibility of seriously overfishing stocks of reef fish,
particularly in the nearshore waters unless effort by other
gear is reduced" (Draft Reef Fish FMP); "In Jamaica, where the
intensity of fishing on the nearshore reefs appears to
be higher than any other island in the Caribbean, the
abundance of fishes on the reef is remarkably low. We are
working on the hypothesis that the low density of fishes
is a direct consequence of exploitation with the small
mesh traps" (Munro, Reeson & Graut, 1971).
By contrast, often cited advantages of wire trap use include observations
that they:
(1) are inexpensive, easy to build and repair, and require little
maintenance;
(2) require a minimum of effort once set, allowing fishermen to
pursue other interests;
(3) can be used in areas where irregular bottom relief precludes
the use of trawls or nets;
(4) are successful for fish not easily taken by other methods; and
(5) are an important and efficient research and resource assessment tool.
In summary, the continued use of wire fish traps within the sanctuary
could, according to studies and observations in other areas, seriously deplete
reef fish stocks through overfishing and incidental bycatch, thereby reducing
species richness and fish populations in the Looe Key coral reef ecological
system (Stevenson, 1977; Thompson and Munro, 1974). Furthermore, according
to the SAFMC, snapper/grouper resources may be presently overfished unless
regulation and management occur for these already stressed reef fish stocks.
Unregulated use of wire fish traps within the sanctuary could impair recreational
value, depriving visitors of the opportunity to enjoy an area of great species
diversity. Underwater visitor sightings of wire traps on the sea floor
containing large amounts of fish will also detract from the natural aesthetics
of a sanctuary and may discourage visitor use. It will be several months
before the snapper-grouper FMP becomes public, and changes in proposed
management measures may occur as a result of public review. Close coordination
will continue throughout the process between the SAFMC and OCZM.
107
b. Prohibit wire fish traps on the Fore Reef and Reef Flat (Boundary
Alternative #1) but allow them in the Patch Reef, Deep Reef and Deep
Ridge zones alternatives outside 1 sq nm (Boundary Alternatives #2"& #3)
This alternative would protect the Fore Reef spur and groove
system from physical damage from traps and would maintain the Reef Flat
as a suitable recreational area for snorkelers and inexperienced divers.
It would enhance the superior recreational value of the 1 sq nm
boundary alternative by eliminating wire fish traps from the ocean floor.
However, ecological damage to the reef system from overfishing and
incidental bycatch of non-commercial species would not be prevented.
Due to the constant movement, back and forth, of fish between the Deep
Reef and Ridge through Fore Reef channels to the Patch Reefs to feed,
a 1 sq nm ban of wire traps in the Fore Reef and Reef Flat would not
effectively protect fish populations at Looe Key from depletion.
Similarly this alternative would not protect against damage
from traps and anchoring to Deep Reef and Deep Ridge living coral
assemblages which consist of a rich variety of stony coral, octocoral ,
sponges and types of coral no longer found on the Fore Reef.
Although the location of wire fish traps varies and largely
depends on where the fish are running, local residents interviewed
during the onsite survey stated that most trapping occurs seaward of
the Fore Reef and outside of the 1 sq nm alternative. Fishermen avoid
the spur and groove system of the Fore Reef and the shallowness of the
Reef Flat to avoid hull damage. Therefore, this alternative is not
likely to have a substantial adverse economic effect on Looe Key wire
trap fishermen.
c. Prohibit wire fish traps within the 5 sq nm sanctuary (Boundary
Alternative #2 and #3). PREFERRED ALTERNATIVE.
This alternative would prevent both physical and ecological
damage from traps to the coral formations and resident fish species.
Fishermen, although prohibited from laying traps within the 5 sq nm
area, could continue to utilize the area seaward of the reef beyond
approximately 140 feet and those areas beside Looe Key, along the outer
reef tract. This proposed regulation is slightly more restrictive
than that presently under consideration in the Draft Snapper-Grouper FMP
which includes a proposed prohibition out to the 100 foot contour south
of Cape Canaveral; the sanctuary prohibition would extend to the proposed
boundary at approximately the 140 foot contour.
The prohibition would probably not substantially affect the catch
of mackerel normally found in the "blue water" environment seaward of
the reef. How much this restriction could reduce the catch of yellow-
tail, mangrove and mutton snapper, and grouper by Looe Key fishermen
cannot be forecast. On the other hand, it can be stated that they
would be denied the value of the catch currently taken from this area
which amounts to about $109,000 or $3,900 per boat per year (Appendix C,
Table 2).
108
The Looe Key 0ns ite Survey indicated there were other zones
where wire fish traps are used by Looe Key fishermen. It is not definite
that the loss of fishing grounds in the five sq nm alternative could
not eventually be either partially or completely offset by setting
more traps in adjacent areas or moving to other localities to fish.
However, learning new areas takes time and there would be at least a
temporary reduction in fish catch and an accompanying economic loss
while fishermen located and became familiar with new fishing grounds.
Use of wire fish traps is prohibited within the Key Largo
Marine Sanctuary because they indiscriminately catch and kill large
numbers of tropical fish species (personal communication, Gillen, 1979).
Reducing the population of tropical fish by the use of wire fish traps
can diminish its delicate balance, creating unnecessary additional
stress to this fragile ecosystem (Stevenson, 1978).
Most visitors to the marine sanctuary depend on boundary
market buoys and other landmarks to determine their position within
the sanctuary. They do not visually carry sophisticated depth sounding
equipment aboard their small pleasure boats and would have difficulty
tracking several differing boundary restrictions. Therefore, for
regulations to be realistic and understandable to the general public,
they must be consistent throughout the sanctuary area and unchanging
with respect to depth. Therefore, this alternative would extend the
prohibition on wire trap use throughout the proposal area to the 140
foot depth and thus beyond the 100 foot depth proposed in the Snapper-
Grouper FMP.
109
FIGURE 8
CORE TRAPEZOID AREA
SCALE: 1" = 3000'
1" = .49 nmi
1" = .91krn
24"28'n
8J«24'W
Location of the Looe Key HAPC, as measured onto
the contours of NOAA national Ocean Survey Chart
11445. Square measures 1.852km (1 nmi) on each
side with a center at the asterisk. The LORAM-C
readings for the four points of the trapezoid are
listed below.
1 NW 7 980- W- 13973. 7, 7980-Y-43532.7
2 SW 7980-W-13973.4, 7980-Y-43532.4
3 NE 7980- W- 13975.0. 7980-Y-43530.1
4 SE 7980-W-13975.4, 7 980- Y- 4352 7. 7
110
2. Regulatory Alternatives Affecting Lobster Trapping.
a. Status quo: Unrestricted fishing for spiny lobster. within
all boundary alternatives.
The survey of fishing activity in Looe Key disclosed that
approximately 58,000 lbs. of lobster were caught in the Looe Key 5 square
nautical mile sanctuary boundary alternative by 25 fishermen in 1978
(see Appendix C, Table 4.) The catch was primarily in areas other than
the Fore Reef.
Lobster traps are generally set along the Florida reef tract,
according to the season. In early fall, at the beginning of the State
allowable harvest season, pots are numerous in the patch reef areas close
to shore. According to local fishermen, lobsters begin migrating in
October and November to cooler, deeper water. Pots are then placed in
and seaward of the reef tract (Armitt, 1979).
At the present time, there are no promulgated regulations to
control the impacts of trapping spiny lobster in Federal waters. The
GMFMC has a Spiny Lobster Plan under consideration because the fishery,
both commercially and recreational ly, is particularly active in Florida.
The plan includes proposed management measures restricting, among other
things, size, season and gear. Proposed restrictions are almost identical
to State regulations (for details see Chapter Three). In addition the
joint SAFMC and GMFMC Coral and Coral Reef Resources FMP now in preparation
proposes to prohibit potting within the core trapezoidal area of the
HAPC (see Chapter Three).
There is considerable disagreement among biologists, commercial
fishermen and conservationists as to the behavior of the spiny lobster.
National Park Service (NPS) scientists (managers of nearly 100,000 acres
of coral reef adult lobster habitat) have found that (1) adult lobsters at
Ft. Jefferson National Monument are primarily resident species (lobsters tagged
and released did not move outside a 10 km area at Dry Tortugas in 104
weeks); (2) one single 8 months open season for recreational lobster fishing
can deplete a large resident population of juvenile and adult lobster by up
to 50%, even with an enforced harvest limit of 2 lobsters per person per
day; (3) 1 year of complete prohibition of both recreational & commercial
fishing can restore an area to approximately 78% of its pre-harvest
level and increase the lair occupancy rate to 71% after 16 months of
post harvest protection; and (4) there are inherent conflicts between
fishery interests of promoting harvests and NPS management objectives
that emphasize preservation of species diversity.
Ill
Marine biologist Gary Davis at Ft. Jefferson points out in "Fishery
Harvest in an Underwater Park":
"Community structure, and therefore species richness, is
determined by species interactions as well as environmental
conditions and will reflect alterations in the abundance of
individual species, particularly abundant high-level predators.
P. argus is such a predator. The pre-harvest, natural standing
crop of P. argus was conservatively estimated from visual sightings
at 58.3 kg per hectare of diurnal lobster habitat at Dry Tortugas.
Mark and recapture efforts indicated that this figure may represent
only 30 to 40 percent of the actual biomass in the massive coral
reef complexes where there were numerous hidden caves and narrow
crevasses in which lobsters were probably undetected during diver
surveys. The total standing crop of coral reef carnivores at
Eniwetok was estimated at 470 kg per hectare, and total reef
fish standing crop from the Caribbean range from 273 to 1,590
kg per hectare. From this it can be seen that spiny lobsters
are abundant and may represent over 10 percent of the predator
biomass even in an extremely complex and diverse coral reef
ecosystem. Furthermore, P. argus is a secondary predator,
preferring other carnivores as food. Removal of a significant
proportion of the spiny lobsters from a reef system could be
expected to cause a shift toward simplicity, with a reduction
in species richness."
Continued unrestricted lobster fishing in the Looe Key Sanctuary boundary
areas could possibly deplete the resident population to a level that could
disrupt the reef ecosystem by reducing the numbers of those important
predators.
In addition to the significant changes in the lobster population
which could eventually occur within the Looe Key system, lobster traps
themselves, weighing about 80 pounds can physically damage coral. Careful
setting and retrieving of pots in sandy bottom channels can prevent most
damage; however, wave action from storms can drag pots into and over
coral causing damage beyond the control of fishermen. Unrestricted
lobster fishing will enable sp1r\y lobster fishermen to continue to take
a significant portion of their landings from the Looe Key area. The
value of the 1978 catch was about $466,320 or about 62% of the total
revenue from commercial fishing (see Table 2). Regulations under the
SpiiTy Lobster and joint Coral and Coral Reef Resources FMPs will not
likely be in place for at least 6 to 8 months and as plans are currently
only proposed the ultimate level of protection Is unpredictable.
112
b. Prohibit lobster trapping on Fore Reef _on1y under all, boundary
alternatives. PREFFERRED ALTERNATIVE.
This option would prohibit the setting of traps in the Fore Reef
consistent with the HAPC plan currently proposed by the South Atlantic and
Gulf Fishery Management Councils (see Chapter Three). No lobster trapping
would be allowed within the core trapezoid area (Loran "C Readi ngs, points
1, 2, 3, and 4, Appendix A). Lobster trapping would be allowed on the Reef
Flat, Patch Reefs, the Deep Reef and Deep Ridge. This preferred alternative
would protect the most spectacular coral assemblages from lobster trap
damage and contribute to species richness by partially protecting the
spiny lobster as a major predator in the reef system (Figure 8).
Studies on lobster populations in the Dry Tortugas have shown
seasonal relocations between adjacent reef and grass flat areas and that
individual lobsters return to the same general area each year. As a
result, individuals of the Looe Key resident population may be trapped
as they move between the Fore Reef, Reef Flat and the grass flats of
the Patch Reefs to feed.
Studies in Ft. Jefferson National Monument (Dry Tortugas) have
also demonstrated that in late summer and early fall an equal number of
males/females concentrated in large lairs in the shallow patch reefs.
If this is true of Looe Key, then large numbers of the Looe Key population
could be taken at the start of the fishing season in the Patch Reef
area, which lies outside the regulated area in Boundary Alternative #1.
Finally, studies indicate that in late November and early December, as
water temperatures cool, lobsters disperse to smaller scattered lairs on
the deeper reefs at depths 12-30 m.
It appears that a prohibition against lobster trapping on the
Fore Reef might help protect the renewable lobster resources at Looe Key
for the time being. Completion of the spiny lobster FMP will also contribute
to sustaining the lobster fishing industry over the long-term but the
degree of protection cannot be determined at this time.
An estimated 232,000 lbs. of spiny lobster were caught in
Boundary Option #2 in 1978. Personal communication with local residents
and fishermen revealed that most of this catch was taken from outside
the Fore Reef and Reef Flat zones. According to interviews with local
people, lobster boats avoid shallow coral reef areas, preferring sites
with greater maneuverability and more open sandy areas on which to place
traps. This alternative would protect the Fore Reef from physical damage
while resulting in minimal economic loss to the lobster fishermen and
regional businesses in the area by allowing trapping in a major portion
of the sanctuary.
113
NOAA's Office of Coastal Zone Management (OCZM) and the
appropriate Fishery Management Council will continue to work cooperatively
under Memoranda of Understanding in their efforts to protect and enhance
the Looe Key coral reef habitat and the spiny lobster fishery. Continued
monitoring of the area by the NMFS and the Councils would aid in maintaining
the stock of a valuable renewable resource, both in the restricted area
and in the area adjacent to the sanctuary.
c. Prohibit lobster trapping within the 5 sq nmi (Boundary
Alternative #2. and #37^
This alternative would prohibit lobster fishing within the 5 sq nmi
alternative but would permit trapping outside the five sq nm but within
the 10 square nautical mile sanctuary proposal. This alternative would
maintain a healthy, substantial spiny lobster population in the Looe Key
the region as increased numbers of juveniles would migrate from the reef
and be caught outside the boundaries. Coral damage from pots and incidental
bycatch of tropical fish would also be significantly eliminated within
the entire Looe Key system.
Banning traps from this five square mile area would be hardest
on the fishermen in fall and early winter when they mainly depend on
lobster fishing for revenue. The annual revenue from this area of Looe
Key (Boundary Alternative #2) is estimated at $466,320, as recorded in
Appendix C Table 2. This represents about 62 percent of all landings
within Boundary Alternative #2.
Because of its convenient location and generally productive
yield the denial of lobster fishing within Boundary Alternative #2 would
impose a significant economic hardship on fishermen and local businessmen
who support or rely on the industry.
114
3. Regulatory Alternatives Affecting Tropical Marine Specimen Collecting
a. Status quo: Unrestricted tropical specimen collecting( marine life
fishing) within all boundary alternatives.
The GMFMC and the SAFMC are preliminarily determining the feasibility
and desireability of preparing profile or description of the tropical reef
fish fishery. The SAFMC and GMFMC are proposing to prohibit tropical specimen
collecting within the 1 nautical mile square HAPC. At the present time,
however, no current or other proposed Federal regulations limit tropical
fish and invertebrate collection. The extent to which such activity can be
controlled through HAPC regulations in the Coral and Coral Reef Resources
FMP has not been determined judicially or administratively. Current indications
are that the Councils' definition of Coral Reef Resources does not include
invertebrates or reef fish but rather the dead reef structure only. Furthermore,
the final outcome of the Coral FMP is unpredictable until the Plan has
completed the NEPA process and becomes final.
Both commercial marine life fisheries and amateur tropical
fish and invertebrate collecting occurs throughout the Looe Key area.
Tropical fish collectors in general take a large variety of fish but
concentrate primarily on a small number of the popular species. Collectors
harvest mostly juvenile fish from shallow depths. Collected invertebrates
include brightly colored and otherwise aesthetically appealing molluscs,
small crustaceans, including several shrimp which participate in the
"cleaning symbiosis" relationship, and a wide variety of other species
for the home aquarist, biological specimen industry, curio trade and
municipal aquaria.
The most commonly collected families of fishes (Hess and Stevely,
1979) are angelfishes and butterflyfishes, damselfishes, cardinalfishes,
jawfishes, drums and croakers, blennies, wrasses and gobies. Neon gobies,
small shrimp, juvenile bluehead wrasses, juvenile French angelfish, and
juvenile porkfish to a lesser degree, are particularly known to set up
and participate in cleaning stations for finfish which then have an
overall beneficial effect on the ecological balance of the reef. Removal
of these species in large numbers could adversely affect the reef system.
Most collectors work from small outboard motor boats. Collectors
use small hand nets while diving underwater (snorkeling, SCUBA). Some
collectors also use a mild anesthetic, qui nal dine, to slow temporarily
the fishes while collecting. A few collectors who do not approve the
use of chemicals, use only skill to chase fishes into nets.
Quinaldine is a derivative of coal tar used in the manufacture
of dyes and explosives and was never intended as a fish collecting
anesthetic. Quinaldine is only slightly soluble in water and must be
dilutpH hpfore use. Diluting agents include ethyl alcohol and seawater,
115
with acetone added by some collectors to draw the fish from protective
cover. Studies, however, have indicated that acetone can be harmful
to gill membranes and liver. Quinaldine is absorbed primarily through
the gills and concentrates initially in the brain (Brandenburger Brown
et al , 1972) (Hess Steberg, 1979). Recovery usually occurs rapidly once
the fish is removed from the drugged water (1-10 minutes).
Concern for possible adverse effects of the widespread use of
quinaldine on the marine environment has led to its regulation by the
Florida DNR (since 1973) and a few preliminary studies on its open water
use. Jaap and Wheaton of FDNR stated in 1975 that "quinaldine treatment
induced no long term damage to octocorals (soft corals) and only slight
damage to two scleractinian specimens". The effects of quinaldine on
larval fishes and invertebrates are still unknown. There are obvious
advantages to the use of quinaldine in difficult terrain and deep water
collecting but "collecting with drugs is also very efficient and
contributes to the decline of marine tropicals on the reefs" (Moe, 1958).
Collecting with drugs may also lower the quality/health of fish sold
by collectors (personal communication, Bigford, 1980).
Bleaches, used also for collecting in the past are now prohibited
in Florida waters. Although regulating the use of quinaldine should restrict
its use to experienced collectors, some unskilled part time collectors
use quinaldine improperly thereby resulting in unnecessary mortality to
fishes and other marine organisms.
Although most of the marine specimens sold in today's U.S. aquarium
industry come from the marine environment, tropical fish are successfully
raised in captivity and sold commercially as well (Moe, 1980). Raising
fish in aquaria for commercial sale although not now economically
competitive with harvesting in the natural environment could eventually
be a viable alternative to tropical fish collecting at Looe Key.
Unregulated tropical specimen collecting in the marine sanctuary
would allow unlimited collecting of Looe Key reef species by commercial
and amateur collectors as long as there is a market and fish and invertebrates
to harvest. It appears that there is and continues to be considerable
growth of the market for marine aquarium hobby products in recent years
(Hess and Stevely, 1978). The economic take per year in Boundary Alternative
#2 is estimated at $25,000 to $43,000 or $80,075 to $137,725 using regional
multipliers. While this return is probably not great for any one collector,
it does contribute limited econcmiic benefit to the region. It is likely,
however, that the harvest could be taken from adjacent areas with an
equivalent minimal socio-economic impact.
b. Restrict tropical specimen collecting (marine life fishing)
to those with NOAA permits within all boundary alternatives and to non-
chemical techniques. ~
Restricting tropical specimen collecting to those individuals
with permits will limit marine specimen collecting within the sanctuary
to only those persons demonstrating a knowledge of tropical marine species
and the most accepted and non-damaging techniques for harvesting tropical
fishes and invertebrates. Requiring permits would not impose a significant
116
burden on those businesses now in the area, nor would it necessarily
preclude others from becoming collectors. However, a permit and monitoring
system will have to be established by OCZM that is suitable for processing
and monitoring commercial permits.
It is not likely that administration and enforcement of such a
permit system for effective regulation of tropical specimen collecting could
be developed. It would require the undertaking of extensive monitoring of
fish stocks to determine when sufficient populations of the species existed
and at what point and to what degree taking would be appropriate. Commercial
permitees could not be monitored given existing resources, to assure that their
actions would be consistent with the conditions of the permit. A permit system
of this nature would require elaborate surveillance of collectors and specified
check points for ingress and egress at the sanctuary. As an example, it would
be virtually impossible to determine whether a permitee took only x specimens
over a period of y months.
The taking of important ecological species such as the neon goby
and the depletion of naturally rare species so desirable to a marine
sanctuary would continue although permitting the activity would allow
monitoring of activity levels and control whenever necessary.
Prohibiting the use of chemicals would limit collecting activities
to the more experienced collector. Since the long term effects of the
commonly used qui nal dine are not well documented this restriction will
eliminate the potential for harm.
c. Prohibit tropical specimen collecting (marine life fishing)
within all boundary alternatives except for scientific and educational
purposes with NOAA permits. PREFERRED ALTERNATIVE.
This alternative would protect and enhance the tropical fish
population at Looe Key, prevent the depletion of ecologically important
species, add to the aesthetics of the sanctuary, and maintain and enhance
the long term productivity of the Looe Key coral reef for future generations.
The Key Largo Marine Sanctuary and the Biscayne National Monument do prohibit
such taking thereby providing a precedent for such action.
A prohibition on collecting (marine life fishing) would not
require the construction of an administratively burdensome permit and
monitoring system for commercial collecting. Instead, it would utilize
the already existing system designed for issuing a limited number of
permits for scientific and educational purposes, that has been established
for the Key Largo Marine Sanctuary.
117
It appears that there are many suitable areas for tropical
specimen collectors to catch tropical fish and invertebrates in Florida;
including shallow inshore areas, inshore coral heads, mid-channel reefs
(in the middle of Hawk's Channel), and the entire outer reef. This alter-
native would cause limited economic loss to present commercicfl collectors.
The total economic loss of revenue per year as estimated in
the socio-economic analysis for Boundary Alternative #2, would be $25,000
to $43,000 or $80,075 to $137,729 using regional multipliers. At least
some of this loss could be made up by collecting elsewhere.
118
J
C. Regulatory Alternatives for Spearfishing
1. Status quo: Unregulated spearfishing under all boundary
options.
Commercial spearfishing is no longer feasible because of
diminished populations of large specimens, according to the Looe Key
Reef Resource Inventory (1978). Individual spearfishing has continued
by sport fishermen and local residents who prefer this method of catching
edible fish. Although there are no public statistics on the number of
spearfishermen at Looe Key, the Looe Key Inventory has stated that spear-
fishing activity is widespread in this area.
In Florida, the total catch of spearfishermen is much less
than line fishermen due to environmental conditions (Davis, 1980). Spear-
fishinp is more limited by depth, visibility and seasonal temperatures.
A study of recreational boating in Dade County (Austin et. al .,
1977) has indicated that in Dade County the average daily catch of spearfish-
ermen was not much different from line fishermen in the same areas. However,
total spearfishing activity and grouper catch was much less than that of
line fishermen in all areas during all seasons except on the south reef in
summer.
Approximately 58.8 percent of the spearfishermen in the Dade
County study used rubberpowered, trigger-activitated guns, 16.5% used
Hawaiian slings and 24.7% used both. A small number used pneumatic or
springpowered guns or pole guns. Sixty percent were free diving (snorkel
only) and 28.4 % used SCUBA equipment when spearfishing. Of all spearfish-
ing in Dade County, none was recorded deeper than 80 feet and 71.5 % was
conducted between 11 and 30 feet.
Species sought were limited; groupers (35.8%), hogfish (32.4%)
and snapper (8.9%). Preference for snapper was misleading; however, since
many spearfishermen regard hogfish as snapper. It appears that spearfishing
at Looe Key will, but not in comparison to commercial and recreational line
fishing, reduce significantly large predators and other fish species impor-
tant to the continued health of the reef system.
Spearfishing, however, quickly makes grouper and snapper very
wary of divers, too wary in fact, to be observed by most nonspearfishermen
who lack experienced observation skills (Davis, 1980, DEIS comments). The
Looe Key Resource Inventory (1978) stated that "... the practice of spear-
fishing, even when not many fish are taken, creates wariness in the hunted
species and effectively causes them to move out of the area." The authors
contrast the current situation at Looe Key Reef, where larger groupers are
quite rare and exhibit wariness of divers, to that in the Key Largo Marine
Sanctuary, where these fish are relatively abundant and can be approached
closely.
119
There are no existing spearfishing controls and the final scope
of the Coral and Coral Reef Resources FMP special management measures are
unpredictable. The plan has not been through the EIS public review process
and will not likely be implemented until January 1981. The Plan proposes
to prohibit spearfishing within the core trapezoid of the 1 nm sq HAPC.
2. Restrict spearfishing within the sanctuary to pole spears
and Hawaiian slings under all boundary alternatives.
Restricting spearfishing to certain weapons would tend to re-
strict this type of fishing to the more experienced divers and snorkel ers
and eliminate the use of rubber-powered arbaletes, pneumatic and spring-
loaded guns and other types of weapons often used by novice divers.
In addition, it would tend to reduce both the physical damage
to the reefs caused by inexperienced spearfishermen and the chances of
human injury. This would probably have minimal economic impact on dive
and charter boat captains since only an estimated 15 percent of the Looe
Key divers now spearfish (personal communication, Davidson, 1979).
This alternative would not eliminate the wariness and removal
of certain species from the reef, nor would it prevent experienced spearfish-
ermen from contributing to the reduction of stocks of important commercial
fish species and key ecological species on the reef system. This option
would be difficult to enforce.
3. Prohibit spearfishing and possession of spearfishing gguiPt^gnt
within the 5 sq nmi (Boundary Alternative #2 and #3) PREFERRED
ALTERNATIVE.
A primary impact for this alternative is to enhance the quality
of resource recreational experiences by divers, snorkel ers and observers.
This prohibitipn, will also benefit the ecological system by preventing the
continued disturbance and removal of territorial reef predators and would
promote the return of larger grouper, snapper and other predators to the
reef or perhaps, in time, lead to fish becoming less wary. In addition, it
would remove the human injury potential, the inadvertent killing of non-
edible tropical reef fish species found within the sanctuary and physical
damage to the coral from divers in pursuit of fish. All of the above would
help ensure high quality recreational experiences by divers and snorklers.
Although local residents and visitors will no longer have the
opportunity to spearfish in the Looe Key 5 mile area, there are many other
areas suitable for spearfishing.
The oceanic side of the Florida Keys is a desirable area for
spearfishing with a submarine bank that varies in width from more than three
to nearly seven nautical miles along the length of the Keys. Most of this
bank lies in water depths less than 30 feet. The shallow inshore area is
not attractive to spearfishermen due to the small number of fish to be found
there. However, the many patches of corals scattered along the seaward edge
are favorite fishing grounds for spearfishermen (Murdock, 1957). It will not
discriminate against novice spearfishermen and will conform with the more
enforceable regulation at the Key Largo Marine Sanctuary which prohibits the
use of spear guns, slings, harpoons or other kinds of weapons potentially
harmful to human safety, fish and wildlife, and the reef structure.
120
D, Alternatives Regulating Tampering with. Damage to and Removal of
Submerged Historical and Cultural Resources within the Sanctuary.
1. Status quo: Unrestricted activities regarding submerged
historical and cultural resources in all boundary alternatives.
The Bureau of Land Management of the Department of the
Interior is preparing a Submerged Cultural Resource Plan to identify
shipwreck sites between Key West and Cape Hatteras out to 200 miles. A
Looe Key American Shoals survey is being conducted by the Newfound Harbor
Marine Institute. However, there are no Federal laws at the present
time regulating salvage and recovery operations in the high seas. The
status quo would allow the continued unregulated investigation and removal
of submerged artifacts and could also lead to the tampering and removal
of important historical and cultural resources within the sanctuary.
These recovery operations can result in damage to those coral communities
which have attached themselves to the submerged artifacts.
Under a recent court decision, the Antiquities Act which
provides that the Department of the Interior may designate and protect
certain historically important sites does not authorize such action in
relation to antiquities located on the OCS. In addition, neither the
Abandoned Property Act nor the National Historic Preservation Act offer
protection for valuable marine artifacts. The marine sanctuary program
is the only vehicle for designation and preservation of such resources.
2. Prohibit tampering with, damage to and removal of historical
and cultural resources in all boundary alternatives except with a NCAA
permit for scientific and educational purposes. PREFERRED ALTERNATIVE~
This alternative would prohibit tampering with, damage to and
removal of historical and cultural resources and still allow continued
exploration and investigation with minimal damage to coral reef resources.
Shipwrecks of interest in and adjacent to the area could be explored and
artifacts recovered under a NOAA permit which would be based on the
educational and research value of the proposed actions. This alternative,
however, would not completely preclude reef damage and other disruptions
to the marine resources from salvage and recovery operations.
Under this alternative, NOAA could cooperate and assist
the Bureau of Land Management in the preparation of the Submerged Cultural
Resource Plan which includes the Looe Key Reef area. Historical resources
could also eventually be placed on the National Register of the National
Historic Preservation Act once the nomination has been made and the
resource selected.
121
3. Prohibit tampering with, damage to and removal of historical and
cultural resources within 5 sq nm (Boundary Alternatives #2 and #3).
This regulation would protect the HMS Looe and other submerged
shipwrecks of cultural and historical significance from tampering and
removal. It would completely protect coral reef assemblages from further
damage from such operations.
It appears that there is little salvage and or other disturbing
activity in the area at the present time. Therefore this regulation
would not impact ongoing salvage and recovery operations, but it would
prevent possible research and educational benefits.
122
E. Alternatives for Regulating Discharges
1. Status quo: Rely on existing authorities to control discharges
in all boundary alternatives.
Federal regulation of sewage wastes from marine sanitation
devices, effective January 31, 1980, does not extend beyond territorial
(State) waters. The disposal of dredge materials and toxic and hazardous
substances are regulated by the Clean Water Act (CWA) and Title II,
Ocean Dumping of the Marine Protection Research and Sanctuaries Act; EPA
has the authority to develop criteria for dredge disposal and the disposal
of toxic and hazardous materials and for the selection of dump sites for
dredge disposal in ocean waters. Therefore, vessels are allowed to
discharge trash, litter, solid wastes, and sewage.
This alternative would not prevent the discharge from vessels
of trash, litter, solid waste, or untreated sewage directly into the proposed
sanctuary. The status quo would rely on the authority of the CWA, Title II
and corresponding regulations.
2. Prohibit the discharge of all substances in all boundary
alternatives.
This regulation would prohibit any discharge within the sanc-
tuary. Discharge of litter, trash, solid waste and sewage from vessels
would be prohibited. A prohibition on the discharging of vessel cooling
waters would prevent motorized vessels from entering the sanctuary.
Prohibiting the discharge of fish parts and chumming materials would
inconvenience fishermen and curtail otherwise allowed fishing activities.
3. Prohibit the discharge of substances except cooling waters
from vessels, fish or parts, chumming materials and discharges from
marine sanitation devices (MSP) within 5 sq nm (Boundary alternatives
12 and 13). PREPEI^RED ALTERNATIVE.
This alternative would prohibit littering and discharge of solid
waste from vessels. It would prohibit the discharge of raw, untreated sewage
into the sanctuary. However, it would allow fishermen to discharge fish or
parts and use chumming materials. By not restricting the discharge of cooling
waters, this alternative would allow the use of motorized vessels.
The large number of people using Looe Key has lead to a
high incidence of litter and trash being discharged overboard. The
proposed regulation prohibiting discharging and littering will help maintain
the area's overall recreational and aesthetic appeal. It would help to
prevent floating or submerged waste debris such as plastic and metal
objects discarded from users at Looe Key.
123
The proposed regulation would prevent the discharge of untreated
sewage from vessels allowing discharges from a MSD only. This regulation
is consistent with current Coast Guard regulation. The Coast Guard
regulations prohibit the discharge of untreated wastes within the territorial
sea for public health reasons - the presence of swimmers and relatively
shallow water. Because the site of the proposed sanctuary is heavily
used for water contact activities such as swimming and diving and portions
have relatively shallow water depths, only the discharge from MSDs is
al lowed.
Impacts of the regulation will be minor. Sanctuary users will have
to retain trash for disposal at proper facilities. Vessel operators
will have to utilize their MSD or holding tanks and will be unable to
empty the latter.
The Environmental Protection Agency, Marine Activities Office
(responsible for developing the regulations), and the U.S. Coast Guard,
Office of Marine Environment and Systems, Branch Enforcement (responsible
for implementing the regulations), have informed NOAA that there are no
existing studies on the effects of MSD chemicals on corals. These agencies
believe that MSD discharges will not negatively impact the health of the
reef. If the sanctuary is designated, NOAA will monitor closely the effects
of the discharges.
124
F. Alternatives Regulating Anchoring
1. Status Quo: Unrestricted anchoring within the three boundary
options.
At the present time, there are no Federal laws regulating the
location or type of anchoring in the Looe Key area.
Branching coral growth forms such as elkhorn (Acropora palmata) and
staghorn (Acropora cervicornis) in the Fore Reef system are especially
susceptible to anchor damage. Fortunately, however, these species appear
to have the greatest potential for regeneration. Recovery of other damaged
coral, however, is slow since, as discussed in Chapter Three, growth rates
of coral in the Florida Reef Tract are about one-half that of the Central
Caribbean. The draft Coral and Coral Reef Resources FMP (CNA 1979) states,
within this context, that: "coral growth rates are so slow in most species
that recovery rates after harvest, human impact or natural stress
are far slower than observed in most resources". Moreover, as has been
pointed out by Antonius (1975 and 1977), even slight mechanical injury
to large stony corals can initiate a series of events manifesting in
widespread pathology or even death of an entire colony.
Evidence of anchor damage to stony corals and octocorals is widespread
within surveyed areas of the proposed sanctuary boundaries. Broken pieces
of elkhorn and staghorn coral are easily visible in the Fore Reef and Reef
Flat zones where the water is shallow and the more spectacular coral is
found. Entire octocorals can be observed lying on the bottom, obviously
ripped from their substrate.
Much of this damage was fresh during observations in 1976 and 1977
and its occurrence and distribution is likely a result of a combination
of anchor damage, wave damage and other natural factors. Numerous
observations have been made of boat anchors lying in living coral and of
anchor ropes and chains chafing corals. Comparable information on cond-
itions in the Deep Ridge and Deep Reef zones is not available because
the depth of water makes these areas less accessible. However, it can
be reasonably assumed that the coral and benthic organisms have suffered
some damage from boats anchoring in deeper water.
Recreational and commercial boat anchoring damage observed at the
Looe Key coral reef has been found in other reefs. Damage to the benthos
and living coral in the Flower Garden and 28 Fathom Banks has resulted
from improper anchoring practices. Sand anchors, properly located in
the rubble and sand grooves between the coral spurs, or in deeper sandy
bottom seaward of the major coral formations, create the least disturbance.
Methods of anchoring in reef areas are discussed in the Draft Coral
and Coral Reef Resources FMP. This report cites a number of specific
anchoring problems which can cause damage to corals; anchor fluke span,
length of chain relative to water depth, and anchor placement.
125
The Draft Coral and Coral Reef Resources FMP further states: "... that
the amount of damage is proportional to the level of use in an area, the
method of anchoring, the size of the anchor used, and the composition of
the biotic community." The draft FMP goes on to cite accounts from
several areas which emphasize the relationship of user levels to anchor
damage. It would be reasonable to assume, for the Looe Key Reef, that,
in the absence of anchoring regulations, this same relationship would
hold. The number of boats presently anchoring in this small area is
already quite high and the stress is apparent. Anchor impacts on the
Looe Key Fore Reef coral community are projected to become more widespread
in the absence of regulation.
Unregulated anchoring would give unlimited choice of anchor sites to
recreational and commercial boats. Visitors could dive close by their
boats. Physical damage to coral would continue unabated.
2. Prohibit anchoring on coral on Fore Reef (delineated as the core
trapazoid in the Coral Reef FMP (Figure 8) and encourage anchoring in sand
areas elsewhere. PREFERRED ALTERNATIVE.
This alternative would help protect the Fore Reef coral assemblages
from snagging, breaking, or other anchor damage. Anchor abrasion of
corals is common in the Fore Reef zone of Looe Key. It is here that
anchor chains and lines, primarily from the smaller draft boats anchored
in the sand bottom between the coral spurs, chafe the adjacent corals.
Raising anchors snagged on the coral spurs also has resulted in significant
damage. As the popularity of Looe Key and its accessibility becomes
more widely known, anchor damage can be expected to occur more frequently.
Indiscriminate anchoring with its potential for damage in a coral reef
sanctuary, is incompatible with the purposes for which these areas are
considered for designation.
126
The Fore Reef is frequented by divers because of the spectacular nature
of the coral formations and the size and diversity of reef fish populations.
In order to gain access to this area, most boats anchor directly in this zone,
which is no deeper than nine meters or in the Reef Flat nearest the Fore Reef.
By prohibiting anchoring on coral in this area and encouraging sand anchoring
in adjacent areas, anchor damage to the Fore Reef can be substantially reduced.
The Reef Flat offers suitable protection from high waves because of its
location behind the reef crest. The bottom consists primarily of sand,
coral fragments, seagrass, macro-algae and occasional colonies of living
coral. As a result, this area can withstand much greater anchoring
pressure than the Fore Reef Zone with its well developed coral structure.
Because of the substrate and protected location of the Reef Flat, small
sand anchors, e.g. Danforth, are capable of holding all but the largest
boats with a shallow enough draft to enter this zone. Divers and
snorkelers entering the water can swim through this shallow (less than
two meters) area and pass through one of the surge channels of the
reef crest and dive on the Fore Reef. Only in rough weather is passage
through the reef crest somewhat hazardous.
The area seaward of the Fore Reef is less protected but convenient to
the Fore Reef and would also be suitable as an anchoring area. With
adequate enforcement and management at the sanctuary site, boats can
be directed to sandy areas, suitable for anchoring adjacent to the Fore Reef.
This alternative might inconvenience recreational and commercial hook and
line fishing in the area of the Fore Reef. Fishermen would have to
spend additional effort to insure sand anchoring within this small core
area.
Enforcement of this regulation will entail frequent site inspections
and the development of an educational program to advise users on anchoring
procedures.
This regulation would serve as an interim measure until information
is gathered to allow evaluation of alternative measures. Research and
assessment of the feasibility and possible design of or appropriate
mooring system for Looe Key will provide a basis for management decisions
which will better insure maximum opportunities for both public use and
resource protection. If the sanctuary is designated, such a study will
be designed as a part of the management plan.
3. Placement of a mooring buoy system or systems in strategic areas of
the Fore Reef zone in all boundary options.
This would enable divers, particularly SCUBA divers, with heavy
equipment, to dive safely near their boats and it would provide safe
access to the Fore Reef for novice divers. Biscayne National Monument
has an optional mooring buoy system which not only guides visitors to
certain coral reef areas but offers them the opportunity to tie up to
a buoy to prevent anchor damage.
127
A mooring system would have to be stable enough to secure large
dive and charter boats in moderately rough seas and designed in a manner
to prevent collisions between the moored vessels. This would result in
destruction of portions of the sea floor but could reduce anchor damage
substantially to the reef. Observations in Biscayne Monument have
noted some concentrated damage to adjacent coral areas, as in the
case of designated anchoring zones.
If the marine sanctuary is not adequately patrolled, this type of
regulation could cause conflicts among users. Although not prohibitively
expensive, mooring systems are costly and their purchase and installation
would have to be budgeted by Sanctuary management. The relatively small
Fore Reef area may not be large enough to place enough buoys to accommodate
the number of potential boats and buoy placement itself could be damaging
to the coral .
Periodic relocation of the anchoring zone of buoys to allow
impacted areas to recover could also be used to minimize the concentration
of damage in localized areas. This approach however has not been successful
at the Buck Island National Monument in the Virgin Islands. Park Service
officials indicate that rotating buoy location is not viable there. Coral
growth is too slow to make reasonable rotating times feasible.
4. Require the use of sand-anchors under all options.
Grapple hooks and other non-sand-bearing anchors are particularly
damaging to coral. Prohibition of grapple-type anchors is a consideration
because of the damage from such anchors used by divers in the Looe Key
area. A change to sand anchor would encourage anchoring in sand areas
only but would not solve all anchor associated problems. There is also
some doubt if this is a workable regulation due to the type of enforcement
it would require.
128
LIST OF PREPARERS
Many persons participated in the preparation of this document. A
portion of the environmental analysis was performed under contract by
Sager 0 Gardiner 0 Wilcox, 6723 Whittier Ave., McLean, Va. 22101.
major
Sager 0 Gardiner 0 Wilcox
Evelyn S. Wilcox
William P. Gardiner
Dr. Martha Sager
Dr. Arnfried Anton i us
Dr. Arthur Weiner
Richard N. Sharood
James A. Cato
Phillip Webre
Project Manager
Environmental Specialist
Ecologist
Marine Biologist
Marine Biologist
Attorney
Fisheries Economist
Economist
Office of Coastal Zone Management
Dallas Miner
Dr. Nancy Foster
Edward Lindelof
Annie Hillary
John Milholland
Director
Deputy Director
Gulf and Caribbean Project
Officer
Program Analyst
Attorney
129
LIST OF AGENCIES, ORGANIZATIONS, AND PERSONS
RECEIVING COPIES OF THE LOOE KEY FEIS
Federal Agencies
Advisory Council on Historic Preservation
Department of Agriculture
Department of Commerce
Department of Defense
Department of Energy
Department of Health and Human Services
Department of Housing and Urban Development
Department of the Interior
Department of Justice
Department of Labor
Department of Transportation
Environmental Protection Agency
Federal Energy Regulatory Commission
General Services Administration
Marine Mammal Commission
Nuclear Regulatory Commission
State, Regional and Local Government
Florida Department of Environmental Regulation
Florida Department of Natural Resources
Florida Department of State
Florida Game and Fresh Water Fish Commission
Florida Office of the Governor
Gulf of Mexico Fishery Management Council
Monroe County Board of County Commissioners
South Atlantic Fishery Management Council
Elected Officials
Hon. Dante B. Fascell
National and Local Interest Groups
Active Divers Association
Broward County Audubon Society
Camp Wesumkee
Center for Environmental Education
Central Florida Pleasure Divers
Dade Marion Institute
Defenders of Wildlife
Environmental Law Society
Everglades Protection Association
Florida Audubon Society
Florida Keys Fishing Guides Association
Florida Reef Foundation
131
Foundation for Pride
Friends of the Lower St. Johns
Islamorada Charter Boat Association
Izaak Walton League, Mangrove Chapter
Izaak Walton League, Cypress Chapter
Key Biscayne Anglers
Lake Region Audubon Society
Layton Kiwanis Club
Marathon Guides Association
Marine Mammal Foundation
Marine Wilderness Society
Marine Wildlife Foundation
National Association of Retired Federal Employees
National Audubon Society
National Fisheries Institute
New York Zoological Society
Norine Rouse Scuba Club
Periwinkle Al liance
Royal Palm Audubon Society
Sarasota County Sportsmen's Club
Save the Bay
Sierra Club, Florida Chapter
Sierra Club, Miami
Tropical Anglers Club
Tropical Audubon Society
Underwater Society of America
Upper Keys Citizens Association
Volusia Flager Sierra Group
Individuals
Karen Achor
Mr. & Mrs. J.S. Baker
Mary Bruce
Walter S. Boardman
James A. Bohnsack
CM. Buckman
Fiona R. Bruns
Charles A. Buckel
Josephine K. Carter
James M. Critaker
Paul P. Daley
Capt. Ed Davidson
J. Connor Davis
Alfred R. Dixon
Wil 11 am A. Dun son
Henry A. Feddern
Mr. & Mrs. Ron Galuba
Robert N. Ginsburg
Dorothy A. Harte
Lynn Houaman
Melvin P. House
Anita & Ferdinand Hurricks
Nan B. Keefer
132
Hand & Grace Kendall
Curtis R. Kruer
John R. Maiolo
Robert F. Merrick
Wil liam R. Meyers
Gary Milano
William T. Mills
John C. Noyes
J.L, Pinckney Jr.
Frank S. Potts
William Ruetel
Marcy Schiff
John J. Schoendorf
Susie Schultz
Larry Verdi er
William M. Warner
Lee Wood
133
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136
O'Kane, Lt. Kevin. 1979. Comparison between Looe Key Reef and Coral Reef
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Peterson M. L. 1955. The last cruise of the H.M.S. Looe
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Russell, Lt. Cdr. Dave. 1979. Personal communications. Assistant Chief,
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Samsome, Gerry. 1979. Personal communication. Executive Director, OFF
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Stevenson, David K. 1977. Proceedings Gulf and Caribbean Fishery Institute
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Stone, Alexander. 1979. Letter to Sanctuary Programs Office re wire mesh
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Taylor, Ronald J. and McMichael, Robert B. , " The first quarterly report on
the wire trap fishery in the Florida Keys based on observations
during November 1979 - January 1980". Florida Department of Natural
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Thomas, Richard. 1979. Personal communication, commercial fisherman.
Tilmant, Jim. 1979 Personal communication. Research Biologist, Biscayne
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Tingley, Ralph. 1979. Personal communication. Chief, Florida Marine Patrol,
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137
Sclent I f _ i c L i te r at u r e
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Antonius, A. 1974. Final report of the coral reef group of the
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Florida Scientist, 37: 15.
Antonius, A. 1975. Health problems of the Florida coral reefs.
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Antonius, A. 1977. Coral mortality in reefs: a problem for science
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Antonius et a 1 . 1978. Looe Key Reef Resource Inventory
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101 fig., 28 pi., 373 pp.
Bohike, J.E. and C.C.G. Chaplin. 1970. Fishes of the Bahamas and
adjacent tropical waters. Livingston Publishing Comp.,
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Chaplin, C.C.G. 1972. Fishwatchers guide to West Atlantic coral
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Cottam, G. and J. T. Curtis. 1956. The use of distance measure in
phytosociological sampling. Ecology, 37: 451-460.
deLaubenfels, M.W. 1953. A guide to the sponges of Eastern North
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Florida Coastal Coordinating Council. 1974. Florida Keys Coastal
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Gelster, J. 1977. The influence of wave exposure on the ecological
zonation of Caribbean coral reefs. Proc. Third Internat.
Coral Reef Symp., Univ. Ml2«ni, I: 23-29.
138
Ginsburg, Robert N. 1974. Florida Reef Types. Proceeding Florida Keys
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Ginsburg, R. N. and E. A. Shinn. 1964. Distribution of the reef-
building community in Florida and the Bahamas. Bull, Am.
Assoc. Petrol. Geol., 66: 310-318.
Glynn, P.W. 1977. Coral growth in upwelling and non-upwelling
areas off the Pacific coast of Panama. Journ. of Marine
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Goodson, G. 1976. Fishes of the Atlantic coast. Marquest Color-
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Goreau, T.F. 1959. The coral reefs of Jamaca: T. Species
composition and zonation. Ecology, 40: 67-90.
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distribution range. Bull. Mar. Sci., 17: 442-453.
Greenberg, I. 1977. Guide to corals and fishes of Florida, the
Bahamas, and the Caribbean. Seahawk Press, Miami,
Florida. 64 pp.
Hoffmeister, J. E. 1974. Land from the Sea. Univ. Miami Press,
Coral Gables, Florida. 143 pp.
Hoffmeister, J. E. , J. I. Jones, D. R. Moore, and H. G. Multer. 1964.
Living and fossil reef types of southern Florida. Geol.
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Kaufmann, L. 1977. The three spot damselfish: effects on benthic
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Kissling, D. L. 1975. Coral reefs in the lower Florida Keys: a
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H. G. Multer, Farleigh Dickinson Univ., Madison New
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Loya, Y. 1972. Community structure and species diversity of
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139
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Maclntyre, G. I.I and 0. H. Pi Ikey. 1969. Tropical coral reefs:
tolerance of low temperatures on the North Carol Ina
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Marszaiek, D.S., G. Babashoff, M.R. Noel, and D.R. Worley. 1977.
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animals. Pub I . Carnegie Inst. Wash., 183: 1-24.
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Randall, J. E. 1968. Caribbean reef fishes. T.F.ri. Publications,.
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Shinn, E.A. 1963. Spur and groove formation on the Florida Reef
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ShInn, E.A. 1966. Coral growth-rate, an environmental Indicator.
Jour. Paleo., 40 (2): 233-240.
Stark, W.A. 1968. A list of the fishes of Alligator Reef, Florida,
with comments on the nature of the Florida reef fish fauna.
Univ. Miami, Inst. Mar. Sci., 890, 28 pp.
140
J
stark, W.A. and W.P. Davis. 1967. Night habits of fishes of Alligator
Reef, Florida. Ichthyologica, 38 (4): 313-356, 25 fig.
Stoddart, D.R. 1963. Effects of hurricane Hattie on the British
Honduras reefs and cays, October 30-31, 1961.
Atoll Res. Bull., 95: 1-142.
Stoddart, D.R. 1969. Distribution of corals in reefs. Proc
Symp. Corals and Coral Reefs, Mandapan, India, pp. 71-80.
Vaughan, T.W. 1918. The temperature of the Florida Reef Tract.
Pap. Tort. Lab., Carnegie Inst. Wash., 9: 319-339.
Vaughan, T.W. and J.W. Wells. 1943. Revision of the suborders,
families, and genera of the Scleractinia. Spec. Papers
Geol. Soc. Amer., New York, 44: 1-363.
Voss, G.L. 1973. Sickness and death in Florida's coral reefs.
Nat. Hist., 82 (7): 40-47.
Wells, J.W. 1973. New and old scleractinian corals from Jamaica.
Bull. Mar. Sco. , 23(1): 16-58.
Wiedenmayer, F. 1977. Shallow water sponges of the western
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180 fig. , 43 pi . , 336 pp.
141
fl
Economic Analysis
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Black, Crow and Eidsness, Inc. 1976. Engineering and Financial Report for the
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Cato, James C 1979. Economic impact estimates concerning commercial fishing in
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Cooperative Extension Service, Marine Advisory Progr
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J. Production costs |
Cato, James C. , R. Allan Morris and Fred J. Prochaska. 1978
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Cato, James C. and Fred Prochaska. 1978. Socio-economic assessment of fishery
management in Everglades National Park. U.S. National Park Service,
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Florida Department of Administraton. 1979. Analysis of Florida Keys Economic Sec-
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142
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Prochaska. 1979. Commercial Fishing activity and Facility Needs in
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Analysis of King Mackerel Production by Hook and Line on the Florida
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and Marketing of Commercial Florida Marine Landings. Marine Advisory
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Programs: Their development, administration, and current status.
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Landings, Prices and Resource Productivity. Florida Sea Grant
Program, Gainesville, Florida.
144
APPEM)IX A DRAFT DESIGNATIC»J DOCUMENT
EESIGNATICN OF IHE LOOE KEY MARINE SANCTOARY
APPENDIX A
DRAFT DESIGNATION DOCUMENT
DESIGNATION OF THE LOOE KEY MARINE SANCTUARY
Preamble
Under the authority of the Marine Protection, Research and Sanctuaries
Act of 1972, P.L. 92-532, (the Act) the waters at Looe Key are hereby desig-
nated a Marine Sanctuary for the purposes of preserving and protecting this
valuable and fragile ecological and recreational resource and of stimulating
research activities and public awareness of its value and vulnerability.
Article 1. Effect of Designation
Within the area designated as the Looe Key Marine Sanctuary (the
Sanctuary), described in Article 2, the Act authorizes the promulgation of
such regulations as are reasonable and necessary to protect the values of the
Sanctuary. Article 4 of the Designation lists those activities which may
require regulation but the listing of any activity does not by itself prohibit
or restrict it. Restrictions or prohibitions may be accomplished only through
regulation and additional activities may be regulated only by amending Article
4.
Article 2. Description of the Area
The Sanctuary consists of a 5.32 square nautical mile (sq nm) area of
the waters located off the coast of Florida 6.7 nm (12.5 km) southwest of
Big Pine Key in the lower Florida Keys. The precise boundaries are as
follows:
Latitude and Longitude are furnished to .001 of a second.
LATITUDE LONGITUDE
PT NO 0 / // 0 / //
2-1
24
31 37
2-2
24
33 34
2-3
24
34 09
2-4
24
32 12
Article 3.
Characters
81
26
00
81
26
00
81
23
00
81
23
00
it Particular Value
The sanctuary area is a valuable diverse and biologically productive
living coral reef community in the Florida Reef Tract, including an array of
tropical fish species and a well defined classic "spur and groove" reef system.
The site also provides feeding, spawning, and nursery areas valuable for
commercial fisheries. The Sanctuary will provide recreational experiences,
A-1
scientific research opportunities and generally will have special value as an
ecological, recreational, esthetic and educational resource.
Article 4. Scope of Regulation
Section 1. Activities Subject to Regulation. In order to protect the
distinctive values of the sanctuary, the following activities may be regulated
within the Sanctuary to the extent necessary to ensure the protection and pres-
ervation of its marine features and the ecological, recreational, and esthetic
value of the area:
a. Collecting and damaging coral
b. Tropical specimen collecting
c. Vessel operations
d. Spearfishing
e. Wire fish trap fishing
f. Lobster potting
g. Bottom trawling and specimen dredging
h. Discharging or depositing any substance or object
i. Dredging or alteration of or construction on the seabed
j. Removing or otherwise harming cultural or historic resources
Section 2. Consistency with International Law. The regulations governing
the activities listed in Section 1 of this Article will apply to foreign flag
vessels and persons not citizens of the United States only to the extent
consistent with recognized principles of international law including treaties
and international agreements to which the United States is a party.
Section 3. Emergency Regulations. Where essential to prevent immediate,
serious and irreversible damage to the ecosystem of the area, activities
other than those listed in Section 1 may be regulated within the limits of
the Act on an emergency basis for an interim period not to exceed 12(1 days,
during which an appropriate amendment of this Article would be proposed in
accordance with the procedures specified in Article 6.
Article 5. Relation to Other Regulatory Programs
Section 1. Fishing. The regulation of fishing is not authorized under
Article 4 except with respect to the removal or damage of coral (paragraph
(a)), the removal of tropical fish and invertebrates, (paragraph (b), and
the use of certain techniques including paragraphs #(d)-(g) . In addition,
fishing vessels may be regulated with respect to discharges (paragraph (h))
and anchoring (paragraph (c)). All regulatory programs pertaining to fishing,
including particularly Fishery Management ^lans promulgated under the Fishery
Conservation and Management Act of 1976, 16 U.S.C 1801 et. seq. shall remain
in effect and all permits, licenses and other authorizations issued pursuant
thereto shall be valid within the Sanctuary unless authorizing any activity
prohibited by regulation implementing Article 4.
Section 2. Defense Activities. The regulation of those activities listed
in Article 4 shall not prohibit any activity conducted by the Department of
Defense that is essential for national defense or because of emergency. Such
activities shall be conducted consistently with all regulations to the maximum
extent practicable.
A-2
Section 3. Other Programs. All applicable regulatory programs shall
remain in effect and all permits, licenses and other authorizations issued
pursuant thereto shall be valid within the Sanctuary unless authorizing any
activity prohibited by any regulation implementing Article 4. The Sanctuary
regulations shall set forth any necessary certification procedures.
Article 6. Alterations to this Designation
This Designation can be altered only in accordance with the same proce-
dures by which it has been made, including public hearings, consultation with
interested Federal and State agencies and the appropriate Regional Fishery
Management Councils and approval by the President of the United States.
DRAFT REGULATIONS
PART 937 - THE LOOE KEY MARINE SANCTUARY REGULATIONS
937.1 Authority
937.2 Purpose
937.3 Boundaries
937.4 Definitions
937.5 Allowed Activities
937.6 Prohibited Activities
937.7 Penalties for Commission of Prohibited Acts
937.8 Certification of Other Permits
937.9 Appeals of Administrative Action
937.1 Authority
The sanctuary has been designated by the Secretary of Commerce pursuant
to the authority of section 302(a) of Title III of the Marine Protection,
Research and Sanctuaries Act of 1972, 16 U.S.C. 1431-1434 (the Act). The
following regulations are issued pursuant to the authorities of sections
302(f), 302(g) and 303 of the Act.
937.2 Purpose
The purpose of designating the Sanctuary is to protect and preserve the
coral reef ecosystem and other natural resources of the waters at Looe Key
and to ensure the continued availability of the area for public educational
purposes and as a commercial, ecological, research and recreational resource.
This area supports a particularly rich and diverse marine biota. The area
is easily accessible to the lower Florida Keys and is widely used by boaters,
charter boat operators, dive boats, recreational divers and fishermen.
Consequently, both present and potential levels of use may result in harm to
Looe Key in the absence of long term planning, research, monitoring and
adequate protection.
937.3 Boundaries
The Sanctuary consists of an area of 5.32 square nautical miles of high
sea waters off the coast of lower Florida Keys, 6.7 nautical miles (12.5 km)
southwest of Big Pine Key. The area includes the waters overlaying a section
of the submerged Florida Reef tract at Looe Key. The precise boundaries are:
A-3
Latitude and Longitude are furnished to .001 of a second.
LATITUDE
0 /
//
24 31
24 33
24 34
24 32
37
34
09
12
LONGITUDE
0
/
//
81
26
00
81
26
00
81
23
00
81
23
00
PT NO
2-1
2-2
2-3
2-4
937.4 Definitions
a. "Administrator" means the Administrator of the National Oceanic and
Atmospheric Administration.
b. "Assistant Administrator" means the Assistant Administrator for
Coastal Zone Management, National Oceanic and Atmospheric Administration.
c. "Person" means any private individual, partnership, corporation, or
other entity; or any officer, employee, agent, department, agency or instrumen-
tality of the Federal government, or any State or local unit of the government.
d. "Tropical fish" means fish and invertebrates of minimal sport and
food value, usually brightly colored, often used for aquaria purposes and
which live in a close interrelationship with the coral.
e. "The Reef" means the area of the well defined "spur and groove" coral
reef as delineated by Loran readings 1, 2, 3, 4 as follows:
1. NW 7980-W-13973.7, 7980-Y-43532.7
2. SW 7980-W-l 3975.4, 7980-Y-43532.4
3. NE 7980-W-13975.0, 7980-Y-43530.1
4. SE 7980-W-l 3975.4, 7980-Y-43527.7
937.5 Allowed Activities
All activities except those specifically prohibited by section 937.6 may
be carried on in the Sanctuary subject to all prohibitions, restrictions and
conditions imposed by any other authority.
937.6 Activities Prohibited Without a Permit
a. Unless permitted by the Assistant Administrator in accordance with
section 937.8, or as may be necessary for the national defense, in accordance
with Article 5, section 2 of the Designation, or to respond to an emergency
threatening life, property or the environment, the following activities are
prohibited within the Sanctuary. All prohibitions must be applied consistently
with international law.
A-4
(1 ) Removing or damaging distinctive natural features
(a) No person shall break, cut or similarly damage or take any coral
or marine invertebrate except as a result of anchoring outside the Fore Reef
as allowed under subsection 2(a) of this section. Divers are prohibited from
handling coral or standing on coral formations.
(b) No person shall take except incidentally to allowed fishing
activities, any tropical fish or marine invertebrate.
(c) There shall be a rebuttable presumption that any items listed in
this paragraph found in the possession of a person within the Sanctuary have
been collected or removed from within the Sanctuary.
(2) Operation of watercraft
All v/atercraft shall be operated in accordance with Federal rules and
regulations that would apply if there were no sanctuary. The following con-
straints also shall be imposed.
(a) No person shall place any anchor on coral within the Fore Reef of
the Sanctuary nor allow any chain or rope to enter the Fore Reef in a way that
injures any coral. When anchoring dive boats, the first diver down shall
inspect the anchor to ensure that it is placed off the corals and will not
shift in such a way as to damage corals. No further diving is permitted
until the anchor is placed in accordance with these requirements.
(b) Watercraft must use mooring buoys, stations or anchoring areas
when such facilities and areas have been designated and are available.
(c) Watercraft shall not be operated in such a manner as to strike
or otherwise cause damage to the natural features of the Sanctuary.
(d) All watercraft from which diving operations are being conducted
shall fly in a conspicuous manner, the red and white "divers down" flag.
(3) Using Harmful Fishing Methods
(a) No person shall use or place wire fish traps within the sanctuary.
(b) No person shall place lobster traps within the Fore Reef area of
the sanctuary.
(c) No person shall use pole spears, Hawaiian slings, rubber-powered
arbalets, pneumatic and spring loaded guns or similar devices known as spearguns
within the sanctuary.
(4) Removing or damaging distinctive historical or cultural resources
No person shall remove, damage or tamper with any historical or
cultural resource, including cargo, pertaining to submerged wrecks.
A- 5
(5) Discharges
No person shall deposit or discharge any materials or substances
of any ki nd except:
(a) Fish or parts and chumming materials
(b) Cooling water from vessels
(c) Effluents from marine sanitation devices
(6) Markers
(a) No person shall mark, deface or damage in any way or displace
remove or tamper with any signs, notices, or placards, whether temporary or
permanent, or with any monuments, stakes, posts or other boundary markers
installed by the managers or markers placed for the purpose of lobster pot
fishing.
(b) All activities currently carried out by the Department of
Defense within the Sanctuary are essential for the national defense and,
therefore, not subject to these prohibitions. The exemption of additional
activities having significant impacts shall be determined in consultation
between the Assistant Administrator and the Department of Defense.
(c) The prohibitions in this section are not based on any claim
of territoriality and will be applied to foreign persons and vessels only
in accordance with principles of international law, including treaties,
conventions and other international agreements to which the United States
is signatory.
937.7 Penalties for Commission of Prohibited Acts
Section 303 of the Act authorizes the assessment of a civil penalty of
not more than $50,000 against any person subject to the jurisdiction of the
United States for each violation of any regulation issued pursuant to the
Act, and further authorizes a proceeding in rem against any vessel used in
violation of any such regulation. Procedures are outlined in Subpart D of
Part 922 (15 CFR Part 922) of this chapter. Subpart D is applicable to any
instance of a violation of these regulations.
937.8 Permit Procedures and Criteria
(a) Any person in possession of a valid permit issued by the Assistant
Administrator in accordance with this section may conduct any activity in the
sanctuary specifically prohibited under section 937.6 provided that any permit
allowing the damaging, taking or removal of coral, tropical marine specimen
collecting (marine life fishing), or historical or cultural resources shall be
granted only if the activity involved furthers educational or scientific pur-
poses or is related to salvage or recovery operations.
(b) Permit applications shall be addressed to the Assistant Administrator
for Coastal Zone Management, ATTN: Sanctuary Programs Office, National Oceanic
and Atmospheric Administration, 3300 Whitehaven Street, N.W., Washington, D.C.
C. 20235. An application shall include a description of all activities
A-6
proposed, the equipment, methods, and personnel (particularly describing
relevant experience) involved, and a timetable for completion of the proposed
activity. Copies of all other required licenses or permits shall be attached.
(c) In considering whether to grant a permit the Assistant
Administrator shall evaluate such matters as (1) the general professional
and financial responsibility of the applicant; (2) the appropriateness
of the methods envisioned to the purpose(s) of the activity; (3) the
extent to which the conduct of any permitted activity may diminish or
enhance the value of the Sanctuary as a source of recreation, educational or
scientific Information; (4) the end value of the activity and (5) such other
matters as deemed appropriate.
(d) In considering any application submitted pursuant to this Section,
the Assistant Administrator shall seek the view of the Fishery Management
Councils and may seek and consider the views of any person or entity, within
or outside of the Federal Government, and may hold a public hearing, as deemed
appropriate.
(e) The Assistant Administrator, may, in his or her discretion grant
a permit which has been applied for pursuant to this Section, in whole or in
part, and subject to such cond1t1on{s) as deemed appropriate. The Assistant
Administrator or a designated representative may observe any permitted activity
and/or require the submission of one or more reports of the status or progress of
such activity. Any Information obtained shall be made available to the public.
(f) The permit granted under paragraph (e) may not be transferred.
(g) The Assistant Administrator may amend, suspend or revoke a permit
granted pursuant to this Section, in whole or In part, temporarily or indefinitely.
If the permit holder (the Holder) has acted in violation of the terms of the permit
or of the applicable regulations. Any such action shall be set forth In writing
to the Holder, and shall set forth the reason(s) for the action taken. The Holder
may appeal the action as provided for In 937.10.
937.9. Certifiction of Other Permits
All permits, licenses and other authorizations Issued pursuant to any
other authority are hereby certified and shall remain valid if they do not
authorize any activity prohibited by section 937.6. Any interested person may
request that the Assistant Administrator offer an opinion on whether an activity
Is prohibited by these regulations.
935.10. Appeals for Administrative Action
(a) Any Interested person (the Appellant) may appeal the granting,
denial, or conditioning of any permit under section 937.8 to the Administrator
of NOAA. In order to be considered by the Administrator, such appeal shall be in
writing, shall state the actlon(s) appealed and the reason(s) therefore and must
be submitted within 30 days of the actlon(s) by the Assistant Administrator. The
Appellant may request an Informal hearing on the appeal.
(b) Upon receipt of an appeal authorized by .this Section, the Administrator
shall notify the permit applicant, if other than the Appellant, and may request
such additional information and in such form as will allow action upon the appeal.
Upon receipt of sufficient information, the Administrator shall decide the appeal
A- 7
in accordance with the criteria set in 937.8(c) as appropriate, based upon
information relative to the application on file at OCZM and any additional
information, the summary record kept of any hearing and the Hearing Officer's
recommended decision, if any, as provided in paragraph (c) and such other con-
siderations as deemed appropriate. The Administrator shall notify all interested
persons of the decision, and the reason{s) therefore, in writing, normally within
30 days of the receipt of sufficient information, unless additional time is needed
for hearing.
(c) If a hearing is requested or if the Administrator
determines one is appropriate, the Administrator may grant an informal
hearing before a Hearing Officer designated for that purpose after first
giving notice of the time, place, and subject matter of the hearing in the
Federal Register. Such hearing shall normally be held no later than 30 days
following publication of the notice in the Federal Register unless the
Hearing Officer extends the time for reasons deemed equitable. The Appellant,
the Applicant (if different) and, at the discretion of the Hearing Officer,
other interested persons, may appear personally or by counsel at the
hearing and submit such material and present such arguments as determined
appropriate by the Hearing Officer. Within 30 days of the last day of
the hearing, the Hearing Officer shall recommend in writing a decision
to the Administrator.
(d) The Administrator may adopt the Hearing Officer's
recommended decision, in whole or in part, or may reject or modify it.
In any event, the Administrator shall notify interested persons of the
decision, and reason(s) therefore in writing within 30 days of receipt
of the recommended decision of the Hearing Officer. The Administrator's
action shall constitute final action for the Agency for the purposes of
the Administrative Procedure Act.
(e) Any time limit prescribed in this Section may be
extended for a period not to exceed 30 days by the Administrator for
good cause, either upon his or her own motion or upon written request
from the Appellant or Applicant stating the reason(s) therefore.
n-o
SCALE: 1" = 3000'
1" = .49 nmi
1" = .91km
24''28'n
8I°24'W
FIGURE 6-7. Location of the Looe Key HAPC, as measured onto
the contours of NOAA National Ocean Survey Chart
11445. Square measures 1.852km (1 nmi) on each
side with a center at the asterisk. The LORAM-C
readings for the four points of the trapezoid are
listed below.
1 NW 7980-W-13973.7, 7980-Y-43532.7
2 SW 7980-W-13973.4, 7980-Y-43532.4
3 NE 7930-W-13975.0, 7980-Y-43530.1
4 SE 7980-W-13975.4, 7980-Y-43527.7
A-9
APPEI^IX B SITE ANALYSIS RESEARCH ^E^^a)S
APPENDIX B
SITE ANALYSIS RESEARCH METHODS
Next to the ecological complexity of a coral reef, its size poses the
most difficult problem for research. Since coral reefs are usiially
much too large to be quantitatively assessed as a whole, a statistically
significant number of samples has to be selected for analysis. This
number has to be high enough to be truly representative for the entire
reef, but small enough to remain manageable. In order to achieve
this goal, a variety of field methods have been developed by
the scientific community. Diverse as they are, they can easily
be divided into two groups, one working with sample-plots, the
other with plotless lines.
The latest synopsis of sample-plot techniques (Stoddart, 1969) lists
over a dozen different methods. They all have in common the establish-
ment of fixed-area, permanent sample plots, inside of which all components
can be measured, mapped, photographed, etc., and the life-history of
their sessile organisms monitored over long periods of time. Dating
back to the beginning of this century, these methods have proved useful
scientifically, but also extremely time-consuming in terms of fieldwork
man-hours. In terrestrial phytosociology, it was finally discovered
(Cottam and Curtis, 1956) that sampling along plotless transect lines
yields no less valuable data, but saves up to 90% of working time.
This discovery was later adopted by some coral reef ecologists,
working on similar problems, but constantly hampered by the inherent
expense of underwater work. Plotless line techniques have been
used successfully for purely scientific purposes by several authors
(e.g. Loya and Slobodkin, 1971; Loya, 1972; Porter, 1972).
For the somewhat different goals of coral reef resource management,
plotless line techniques were recently adapted by Antonius (Antonius,
1974). Using these modified plotless line techniques, sample points
are recorded in evenly spaced intervals technique), as opposed to measur-
ing continuously under the transect line. Because of underwater operating
constraints, and the need to analyze large reef areas with transects in
the order of magnitude of kilometers, sample point intervals of one
meter were chosen for the Looe Key Reef Resource Inventory (Florida Reef
Foundation, 1978), the baseline study used in the Looe Key Affected
Environment site analysis.
The Looe Key Resource Inventory, used in the EIA, was directed
towards identifying the main components of the reef ecosystem
in terms of biomass, area coverage, and importance. In the field,
this strategy was manifested in an attempt to accurately sight-
identify dominant reef components.
B-1
Snorkeling and SCUBA diving techniques were used to visually assess fish
populations at Looe Key. Dives were aimed at covering all
four reef zones as thoroughly as possible without creating any
disturbance. All species were recorded and their relative abundance
noted by direct observation. At the onset of this study, it was
decided that fish-collecting techniques in any form would not be used
to establish the check list or to confirm the identities of any
questionable species. For the scope of this study, the possible
deleterious effects of rotenone use (i.e. poisoning the fish in a given
area for collection and identification) outweighed the advantages of
positive identification of questionable species. Only direct observa-
tions or photodocumentation were used to identify the fish.
Spawning activity was noted by actual observed spawning or by the
presence of demersal egg nests. Coral - fish interactions were
photographed and routinely monitored with particular emphasis placed
on the damselfishes (family Pomacentridae) and their selected coral
species habitat. The different reef zones were analyzed as to the
important species present and comparisons made with similar reefs
in the Key Largo Marine Sanctuary. Night dives were conducted to
account for the cryptic nocturnal species that may not be seen during
the day.
Collecting and laboratory identifying techniques for all species were
minimized, thereby curtailing negative impacts on the reef system
and allowing the project to proceed within its specific time and
funding constraints. Thus, species identifications of some algae,
infrequently observed sponges, octocorals difficult to identify in
the field (e.g. genus Eunicia), rare scleractinians (e.g. genus
Agaricia), a number of small molluscs, as well as some difficult
to observe fishes, have to be considered preliminary at the
present stage.
More extensive collecting and laboratory work in the future would
be highly desirable from a scientific point of view. However, since
all the species in question probably comprise less than one percent
of Looe Key Reef in terms of biomass and organic cover, they should
not be considered especially important for purposes of resource
management.
B-2
Appendix B
SYSTEMATIC LIST OF SPECIES
Thallophyta
Chlorophyta (Green Algae)
Phaeophyta (Brown Algae)
Bryopsis pennata v. leprieurii
Caulerpa racemosa v. macrophysa
Caulerpa vickersia
Caulerpa cupressoides
Caulerpa sertularoides f . farlowii
Halimeda opuntia
Halimeda opuntia f. minor
Hal imeda incrassata
Halimeda monile
Halimeda tuna
Halimeda discoides
Penicillus capitatus
Penicillus lamourouxii
Rhipocephalus oblongus
Rhipocephalus phoenix f . brevifolius
Udotea flabellum
Udotea sublittoralis
Udotea conglutinata
Cladophora fuliginosa
Anadyomene stellata
Valonia ventricosa
Valonia macrophysa
Acetabularia crenulata
Dasycladus vermicularis
Cladophoropsis macromeres
Cladophoropsis membranacea
Batophora oerstedii
Neomersis annulata"
Dictyosphaeria cavernosa
Stypopodium zonale
Dictyota dichotoma
B-3
Dictyota bartay res i i
Dictyota divaricata
Padina sanctae-crucis
Sargassum polyceratium
Rhodophyta (Red Algae)
LJagora ceranoides
Liagora pedicellata
Peysonellia spp.
Melobesia membranaces
Goniol ithon spp.
Lithothamnlum incertum
Lithothamnium spp.
Amphiroa fragjl isslma
Amphiroa n'gida v. antillana
Ceramium spp.
Spyridia filamentosa
Spyridia aculeata v. hypneoides
Chondria cnicophylla
Digenia simplex
Lithophyllum spp.
Laurencia intricata
Laurenci
a obtusa
Laurencia coral lopsis
Laurencia papiHosa
Wrangel ia sp.
Polysiphonia spp.
Spermatophyta
Angiospermae
Halophyta (Sea Grasses)
Porifera (Sponges)
Calcisponges
Syringodium filiforme (Manatee Grass)
Thalassia testudinum (Turtle Grass)
Leucetta floridana
B-4
Demosponges - Keratosa
Haplosclerina
Poecilosclerina
OUgoceras hemorrhages
lanthella ardis
Ircinia fascicularis (Stjnker Sponge)
IrcinJa "campana (Vase Sponge)
Ircinia strobilina (Cake Sponge)
Dysidea "etheria (Heavenly Sponge)
AplysiHa sulfurea
Verongia fistularis (Candle Sponge)
Verongia longissima (Branching Candle Sponge)
Hippospongia lachne (Sheepswool Sponge)
Spongia obliqua (Cuban Reef Sponge)
Dasychalina cyathina (Vase Sponge)
Neopetrosia longleyi (Sprawling Sponge)
Xestospongia muta"(Barrel Sponge)
Haliclona rubens (Red Sponge)
Haliclona viridis (Green Sponge)
Hal iclona variabilis
Haliclona permollis
Haliclona" subtriangularis
Callyspongia vanalis (Tube Sponge)
Callyspongia plicTfera (Tube Sponge)
lotrochota birotulata (Purple Bleeding Sponge)
Fibulia nolitangere (Do-not-touch-me Sponge)
Halichondria melandocia
Adocia neens
Tedania ignis (Fire Sponge)
Lissodendoryx isodictyalis
Xytopsues griseus
Agelas s"parsus
B-5
Hadromerina
Epipolaslda
Choristida
Carnosa
Aulospongus schoenus
Mycale angulosa
Homaxinella rudis
Higginsia strigilata
Cliona caribboea
Cliona Tampa [Boring Sponge)
Spheciospongia vesparia (Loggerhead Sponge)
Tethya diploderma (Golf Ball Sponge)
Cinachyra cavernosa
Geodia gibberosa (White Sponge)
Chondrilla nucula (Chicken Liver
Sponge)
Coelenterata
Hydrozoa - Athecata - Milleporina (Hydrocorals)
Millepora alcicornis
Millepora complanata
Millepora squarrosa
)
) (Fire Coral)
)
B-6
Anthozoa - Hexacorallia
Actiniaria (Sea Anemones)
Actinia bermudensis
Condylactis gigantea
Bunodosoma cavernata
Phymantis crucifer
Lebrunia danae
Bartholomea annulata
Calliactis tricolor
Stoichactis helianthus
Zoantharia (Mat Anemones)
Zoanthus sociatus
Zoanthus pulchellus
Palythoa mammillosa
Corallimorpharia (False Corals)
Ricordia florida
Rhodactis sanctithomae
Scleractinia (Reef Corals)
Stephanocenia intersepta (Blushing
Star Coral )
Madracis decactis (Cactus Coral )
Madracis mirabilis) (Pencil Corals)
Madracis asperula )
Acropora palmata (Elkhorn Coral)
Acropora ceryicornis (Staghorn Coral )
Acropora pro! if era (Fused Staghorn
Coral)
Agaricia agaricites
_f . agaricites
f. danai
f. carinata
T. purpurea
f. humilis
(Leaf Corals)
B-7
AgarJcia tenui folia
AgarJcia undata
Agarlda lamarckl
Agaricia grahamae
Agaricia fragilis
Helioseris cucullata
SJderastrea siderea
Siderastrea radians
Porites astreoides
Porites porites
Porites di varicata
Porites furcata
Favia fragum
(Leaf Corals)
(Sancer Corals)
(Star Corals)
(Mustard Hill oral)
(Finger Corals)
(Golfball Coral)
Diploria clivosa
Diploria labyrinthiformis (Brain Corals)
Diploria strigosa
Manicina areolata
Colpophyll ia natans
Montastraea annularis
Montastraea cavernosa
Solenastrea hyades
Solenastrea bournoni
Oculina diffusa
Oculina varicosa
Meandrina meandrites
Dichocoenia stokesi
Dichocoenia stellaris
Dendrogyra cyl indrus
Mussa angulosa
Scolymia lacera
Isophyllia sinuosa
Isophyllastrea ngida (Rough Star Coral)
Mycetophyllia lamarckiana
Mycetophyl 1 ia danaana
Mycetophyllia ferox (Fungus Corals)
Mycetophyllia al iciae
(Rose Coral)
(Brain Coral )
(Star Corals)
(Ivory Bush Corals)
(Brain Coral )
(Star Corals)
(Pillar Coral)
(Flower Coral )
(Disc Coral)
(Cactus Coral )
B-8
Octocorallia
Eusmilia fastigiata
Sphenotrochus auritus
Tubastrea aurea
(Flower Coral )
ScleraxonJa (Octocorals)
Rriareum asbestinum (Corky Sea Fingers)
Idligorgia schramml (Deepwater Sea Fan)
Erythropodlum caribaeorum
HolaxonJa
Plexaura homomalla
Plexaura flexuosa
Plexaura wagenaari
Euni
Euni
Euni
Euni
Eun
Eun
Eun
cea asperula
cea fusca
cea mammosa
cea succinea
cea laciniata
cea tourneforti
(Sea Whips)
cea calyculata
Muriceopsis flavida
Plexaurella dichotoma
PlexaureTTa nutans
PlexaureTTa grisea
Plexaurella fusifera
Muricea muricata
Muricea atlantica
Muricea elongate
Pseudopterogorgia bipinnata
Pseudopterogorgia acerosa (Sea Feathers)
Pseudopterogorgia americana
Gorgonia vental ina (Sea Fan)
Pterogorgia citrina
Pterogorgia anceps (Triangular Sea Band)
Pterogorgia guadeTupensis (Flat Sea Band)
El li sella barbadensis (Sea Wire)
Annelida
Polychaeta
Amphinomidae
Hermodice carunculata (Fire or Bristleworm)
Sabell idae
B-9
Sabella melanostigma (Banded Feather Duster)
Serpul idae
Spirobranchus giganteus (Horned
Feather Worm)
Pomatostegus stellatus (Star Feather
Worm)
Arthropoda
Crustacea - Decapoda
Stenopodidea
Stenopus hispidus (Banded Coral Shrimp)
Caridea
Periclimenes petersoni
Periclimenes yucatanlcus (Cleaning Shrimp)
Astacidea
Palinurus argus (Spiny Lobster)
Palinurus guttatus (Spotted Crawfish)
Anomura
Ranilia muricata
Brachyura (Crabs)
Callapa gallus (Yellow Box Crab)
Portunus spinimanus (Spiny-Handed
Portunus)
Carpilius corallinus (Coral Crab)
Gyptoxanthus erosus (Eroded Reef
Crab)
Leptodius floridanus (Florida
Leptodius)
Percnon gibbesi (Spray Crab)
Stenorhynchus seticornis (Arrow Crab)
Mithrax verrucosus (Granulated Spider
Crabl
Mithrax hispidus
spidu
ulptu
Mithrax sculptus (Spider Crab)
B-10
Stomatopoda
Pitho anisodan
MacrocoeToma trisplnosum
SquilUdae
Pseudosquilla ciHata (False Mantis
Shrimp)
Mollusca
Amphineura - Chitonida
Gastropoda
Prosobranchia -
Chaetopleura apiculata (Bee Chiton)
Isnochiton floridanus (Slender Chiton)
Archaeogastropoda (Sea Snails)
Hemitonia octoradiata (Eight-Ribbed
Limpet)
Diodora listeri
Diodora cayenensis
Diodora dysoni
Diodora minuta
Diodora jaumei
(Keyhole Limpets)
Lucapi
Lucapi
Lucapi
Lucapi
nella limatula
na suffusa
na sowerbii
na philippiana
Lucapina aegis
Limula frenulata
Limula pycnonema
(Key hold Limpets)
Limula p
Fissure!
la barbadensis
Fissurella angustata
Acmaea pustulata (Spotted Limpet)
Tegula 1 ividomaculata
Tegula hotessieriana (Top Shells)
CaTliostoma javanicum
Calliostoma" jubibum
Turbo canal iculatus (Channeled Turban)
Astraea caelata
Astraea tuber (Star Shells)
B-11
(Risso Shel Is)
Astrae phoebia
Astrae tecta
Rissolna bryerea
Rissolna cancellata
Caecum floridanum
Caecum pulchellum (Caecum Shel Is)
Cerlthium biminiense
Cerithium guinaicum (Horn Shells)
Sei
Tri
Tri
Tri
la adamsT (Screw Shel 1 )
phora turris-thomae
phora nigroclncta
phora pulchella (Triphora Shells)
Tri phora decorata
Epitonium lamellosum (Wentletrap)
Cheilea "equestris (False Limpet)
Crepidula plana (Slipper Shell)
Strombus gigas (Queen Conch)
Strombus pugilis (Fighting Conch)
Strombus raninus (Hawk Wing Conch)
Erata maugeriae (Erata Shell)
Trivia pediculus
Trivia quadripunctata (Trivia Shells)
Trivia suffusa
Cyprea zebra
Cyprea cinerea
Cyprea spurca
Cyprea cervus
(Cowries)
Cyphoma gibbosum
Cyphoma macgintyi
(Flamingo Tongue)
Polyneces lacteus (Moon Shell)
Morum oniscus (Wood Louse)
Phal ium granulatum (Scotch Bonnet)
Cassis madagascariensis (Helmit Shell)
Cypraecassis testiculus (Baby Bonnet)
Charonia variegata (Trumpet Shell)
Cymatium nicobaricum
Cymatium pileare ^Triton)
Cymatium vespaceum
B-12
Opisthobranchia
Pelecypoda
Bursa thomae (Frog Shell)
Tonna maculosa (Tun Shell)
Neoqastropoda
Morula nodulosa
Favartia cellulosa
Favartia alveata
Thais deltoidea (Rock Shell)
Coralliophila abbreviata
Coralliophila caribaea (Coral Snail)
Col umbel la mercatoria
Columbella rusticoides (Dove Shells)
NassarJnar moniUfera
Bailya pava
Bailya 1ntr1cata (Baily Shells)
Engjna turbinella
Pisania pusio
Pisania auritula (Pisa Shells)
Pisania tincta
Latirus infundibulum
Leucozonia nassa ("Latirus Shells)
Vasum muricatum (Vase Shell)
Jaspidella jaspidea (Dwarf Olive)
Mitra nodulosa [Miter Shells)
Mitra albocincta
Pusia gemmata
Marginella aureacincta
Marginella lavalleeana (Marginella)
Conus regius
Conus mus
Conus jaspideus (Cone Shells)
Conus Jul iae
Daphnella lymeiformis (Turret Shell)
Tectibranchia
Acteocina candei
Pleurobranchus aerolatus (Sea Slug)
Sacoglossa
Tridachia crispata (Sea Slug)
Fi li branch i a (Sea Shells)
B-13
Cephalopoda
Area imbricata
Barbatia Candida
Barbatia cancellaria (Ark Shells)
Acropsts adamsi
Anadara notabilis
Modiolus americanus
Brachiodontes exustus
Lioberus castaneus nigra (Mussels)
Lithophaqa bi sulcata
Lithophaqa aristata
Isogonomon radiatus
Pinctada radiata (Oysters)
Atrina rigida [Pen Shell)
Chi amy s sent is
Chlamys imbricata (Scallops)
Plicatula spondyloidea (Cat's Paw)
Lima scabra
Lima pellucida (File Shells)
Eulamellibranchia
Lucina pectinatus (Jamaica Lucine)
Codakia orbicularis (White Lucine)
Chama congregata
Chama sinosa (Jewel Box Shells)
Chama florida
Pseudochama radians
Trachycardium isocardia (Prickly Cockle)
Chione intapurpurea (Mottled Chione)
Tellina laevigata
Arcopaqia fausta (Tellin Shel Is)
Corbula swiftiana (Basket Clam)
Octopoda
Octopus briareus (Common Reef Octopus)
Octopus vulgaris (Common Octupus)
Teuthoidea
Sepioteuthis sepioidea (Reef Squid)
B-14
Echinodermata
Echinoidea (Sea Urchins)
Eucidaris tribuloldes (Slate-pencil
Urchin)
Diadema antillarum (Long-spined
Urchin)
Lytechinus variegatus (Variegated
Urchin)
Tripneustes ventricosus (Sea Egg)
Echinometra lucunter (Rock-bori ng
Urchin)
Echinometra viridis (Green Rock-boring
Urchin)
Clypeaster rosaceus (Brown Sea Biscuit)
Clypeaster subdepressus (Sand Dollar)
Encope michelini (Notched Sand
Dollar)
Echinoneus cyclostomus (Reef
Echinonens)
Meoma ventricosa (West Indian Sea
Bi scui T)
Plagiobrissus grandis (Long-spined
Sea Biscuit)
Asteroidea (Starfish)
Oreaster reticularis (Cushion Star)
Ophidi aster guildingi (Guil ding's
Star)
Echinaster sentus (Thorny Starfish)
Ophiuroidea (Brittle Stars)
Ophiomyxa flaccida (Slimy Brittle
Star)
Astrophyton muricatum (Basket Starfish)
Ophiothrix oerstedii (Oersted's
Brittle Star)
Ophiocoma echinata (Spiny Ophiocoma)
Ophiocoma riisei (Common Ophiocoma)
Ophiocoma wendti (Red Brittle Star)
Ophioderma appressum (Harlequin
B-15
Chordata
Vertebrata
Pisces
Brittle Star)
Ophioderma brevispinum (Short-spined
Brittle Star)
Ophiolepis elegans (Elegant Brittle
Star)
Holothuroidea (Sea Cucumbers)
Holothuria floridana (Florida Sea
Cucumber)
Actinopyqa agassizi (Agassiz' Sea
Cucumber;
Euapta lappa (Sticky-skinned Sea
Cucumber)
Tunicata - Ascidiacea
Didemnumcandium (White Sponge
Tunicate)
Clavelina picta (Painted Tunicate)
Ascidia nigra (Black Tunicate)
Bothryllus planus (Flat Tunicate)
Amaroucium stel latum (Starred
Tunicate)
Polycarpa obtecta (Incrusted
Tunicate)
Chondrichthyes
Ginglymostoma cirratum
Carcharhinus leucas
Carcharhinus obscurus
(Great Hammerhead)
Sphyrna makarran
Dasyatis americana
Stingray)
Urolophus jamaicensis
Stingray)
Aeobatus narinari
(Southern
(Yellow-Spotted
Osteichthyes
B-16
Megalops atlantica (Tarpon)
Harengula humeraTTs (Red-Ear Sardine)
Harengula pensacolae
Sardinella anchovia
Sy nodus foetens
Synodus intermedjus (Sand Diver)
Enchelycore nigricans (Viper Moray)
Enchelycore sp.
Gymnothorax funebris (Green Moray)
Gymnothorax moringa (Spotted Moray)
Gymnothorax vicinus (Purplemouth
Moray)
Muraena miliaris (Goldentail Moray)
Strong] ure notata
Tylosurus crocodilus (Houndfish)
Hemiramphus balaa
Hemiramphus brasil iensis (Ballyhoo)
Hyperhamphus unifasciatus
Aulostomus maculatus (Trumpetfish)
Fistularia tabacaria (Cornetfish)
Micrognathus crinigerus
Micrognathus crinitus
Adioryx vexillarius (Dusky Squirrel-
fish)
Holocentrus ascensionis
Holocentrus" rufus (Squirrelfish)
Myripristis jacobus (Blackbar
Soldierfish)
Centropomus uni decimal is (Snook)
Cephalopholis fulva (Coney)
Di plectrum formosum
Epinephelus adscensionis (Rock Hind)
Epinephelus guttatus (Red Hind)
Epinephelus morio (Red Grouper)
Epinephelus striatus (Nassau Grouper)
Hypopjectrus gemma
Hy|30|3lectrus puella (Barred Helmet)
Hypoplectrus unicolor (Butter Helmet)
Mycteroperca bonaci (Black Grouper)
Mycteroperca microlepsis (Gag)
Mycteroperca phenax (Scamp)
Mycteroperca tigris
Mycteroperca venenosa (Yellowfin)
Petrometopon cruentatum (Graysby)
Serranus tabacarius (Tobacco Fish)
B-17
Serranus tjgrinus (Harlequin Bass)
Rypticus saponaceus (Soapfish[
Rypticus subbifrenatus
Ambiydrrhltus pinos (Red Spotted
Hawkfish)
Lutjanus anal 1s (Mutton Snapper)
Lutjanus apodus (Schoolmaster)
Lutjanus cjriseus (Gray Snapper)
Lutjanus jocu (Dog Snapper)
Lutjanus mahogoni (Mahogany)
Lutjanus synagris (Lane)
Ocyurus chrysurus (Yellowfish
Snapper)
Pri acanthus cruentatus (Glasseye)
Apogon binotatus (Barred Cardinalfish)
Apogon maculatus (Flamefish)
Apogon planifrons
Apogon townsendi
Astrapogon punticulatus
Malacanthus plumieri (Sand Tilefish)
Cranax bartholomaei
Cranax fusus
Cranax hippos
Cranax latus
Cranax ruber
Elagatis bipinnulatus
Seriola dumerili (Greater Amberjack)
Trachinotus falcatus (Permit)
Eucinostomus argenteus
Gerres cinereus (Yellowfish Mojarra)
Anisotremus surinamensis (Black
Margate)
Anisotrems virginicus (Porkfish)
Haemulon album (Margate)
Haemulon aurolineatum (Tomtate)
Haemulon carbonari urn (Caesar Grunt)
Haemulon chrysargyreum
Haemulon flavolineatum (French Grunt)
Haemulon macrostomum (Spanish Grunt)
Haemulon melanururrTTCottonwick)
Haemulon parrai
Haemulon plumieri (White Grunt)
Haemulon sclurus~(Bluestriped Grunt)
Haemulon striatum
Equetus acuminatus (Cubbyu)
Equetus punctatus (Spotted Drum)
B-18
Udontosclon dentex (Reef Croaker)
MuHoldichthys martinicus (Yellow
Goatfish)
Pseudupeneus maculatus (Spotted
Goatfish)
Calamus bajonada (Jolthead Porgy)
Calamus calamus (Saucereye Porgy)
Calamus nodosus (Knobbed Porgy)
Calamus proridens (Littlehead)
Pempheris schomburgkj (Copper Sweeper)
Kyphosis incisor (Yellow Chub)
Kyphosis sectatrix (Bermuda Chub)
Chaetodipterus faber (Spadefish)
Chaetodon capistratus (Foureye
ButterflyfTsKl
Chaetodon ocellatus (Spotfin Butter-
flyfish)
Chaetodon sedentatius (Reef Butterf ly-
TTsh)
Chaetodon striatus (Banded Butterfly-
TTih)
Holocanthus ciliaris (Queen Angelfish)
HolocantlTus" isabeTTta (Blue Angelfish)
Holocanthus tricolor (Rock Beauty)
Pomacanthus arcuatus (Gray Angelfish)
Pomacanthus paru (French Angelfish)
Abudefduf saxatilis (Sergeant Major)
Chromis cyanea (Blue Chromis)
Chromis insolatus
Chromis multilineata (Yellow-Edge
Chromis)
Chromis scotti
Eupomacentrus fuscus (Dusky Damsel fish)
Eupomacentrus leucostictus (Beau
Gregory
Eupomacentrus mellis
Eupomacentrus parti tus (Bicolor
Damsel fish)
Eupomacentrus planifrons (Yellow
Damselfish)
Eupomacentrus variabiTis (Cocoa
Damselfish)
Microspathodon chrysurus (Yellowtail
Damselfish)
Bodianus pulchellus (Spotfin Hogfish)
Bodianus "rufus (Spanish Hogfish)
B-19
Clepticus parrai (Creole Wrasse)
Doratonotus megalepis
Halicoeres bivittatus (Slippery
DTckl
Halichoeres cyanocephalus
Halichoeres garnoti (Yellowhead
Wrasse)
Halichoeres maculi pinna (Clown
Wrasse)
Halichoeres pictus
Halichoeres radiatus (Pudding Wife)
Hemipteronotus martinicensis
Hemipteronotus novacula
Hemipteronotus splendens (Green
Razorfish)
Lachnolaimus maximum (Hogfish)
Thalassoma bifasciatum (Bluehead)
Nicholsina usta
Scarus coelestinus (Midnight
Parrot fish)
Scarus coeruleus (Blue Parrotfish)
Scarus croicensis
Scarus guacamaia
Scarus taeniopterus (Princess
Parrotfish)
Scarus vetula (Queen Parrotfish)
Sparisoma aurofrenatum (Redband
Parrotf i sh")
Sparisoma chrysopterum (Redtail Parrot-
fTShl
Sparisoma radians
Sparisoma viride (Stoplight Parrot-
fish)
Acanthurus bahianus (Ocean Surgeon)
Acanthuru? chirurgus (Doctorfish)
Acanthurus coeruleus (Blue Tang)
Scomberomorus cavalla
Scomberomorus maculatus
Scomberomorus regal is TCero Mackerel )
Barbulifer ceuthoecus
Coryphopterus eidolon
Coryphoterus glaucofraenum i
Coryphopterus 1 ipernes '
Coryphopterus personatus
Coryphoterus punctipectorphorus J
Elactinus oceanops '
B-20
Gramannia macrodon
Lythrypnus phorellus
Lythrypnus spilus
Scorpaena plumieri
Opistognathus aurifrons (Yellowhead
Jawfish)
Opistognathus whitehursti"
AcanthemblemarJa aspera
Enneanectes pectoral is
Labrisomus kal isherae
Malacoctenus macropus
Paraclinus fasciatus
Entomacrodus textilus
Ophioblennius atlanticus (Redlip
Blenny)
Sphyraena barracuda (Great Barracuda)
Echeneis naucrates
Alutera schoepfi (Orange Filefish)
Alutera scripta (Scrawled Filefish)
Balistes capriscus (Gray Triggerfish)
CantherTnes pull us
Canthi dermis sufflamen (Ocean Trigger-
fish)
Acanthostracion quadricornis (Scrawled
Cowfish)
Lactophrys bicaudalis (Spotted Trunk-
fish)
Lactophrys triqueter (Smooth Trunkfish)
Canthigaster rostata (Sharpnose Puffe£)
Diodon holocanthus (Spiny Puffer)
Diodon hystrix (Porcupinefish)
B-21
APPENDIX C LOOE KEY ONSITE SURVEY
APPENDIX C
LOOE KEY ONSITE SURVEY
A. Methodology
In order to assess the costs and benefits of the various regulatory and
boundary alternatives considered in the DEIS to the major user groups at Looe
Key, the following steps were taken to: (1) identify the major user groups,
including commercial fishermen, commercial recreational businesses, tropical
fish collectors and individual recreational snorkelers, divers, fishermen and
others who use the Looe Key coral reef area, (2) review the literature to
determine the characteristics of these groups and the likely extent of their
activity at Looe Key, (3) measure the annual income directly generated by the users
of Looe Key through the use of onsite surveys, (4) measure the indirect effects
of the income generated by activity through regional multipliers, (5) examine
the existing and predicted socio-economic circumstances of the Lower Keys, and
(6) evaluate the results of the surveys and the onsite information in an
overall economic and demographic context.
All income and catch information from commercial fishermen and income
from commercial recreational businesses of Looe Key were only available at the
County or Standard Metropolitan Statistical Area level. To obtain a more
accurate socio-economic picture of the Looe Key area, it was necessary to go
beyond published sources and conduct on onsite survey.
Using published literature on the user groups and the expertise of Fisheries
Economists from the University of Florida, interview schedules were designed for
each of the major user groups, with the exception of the individual recreational
users who were too numerous and scattered to interview and count.
Local organizations and key individuals were contacted in an effort to
locate as many of the actual users as possible.
Finally, to get a broad picture of the stream of expenditures of such
diverse, and diffuse user groups, regional multipliers were used, in accordance
with the U.S. Department of Commerce, Bureau of Economic Analysis methodology.
The recreational value of the reef was determined by estimating the volume
(people) of reef use from information provided by the Survey, and the fair market
cost of such activity. These estimates were checked against other data sources
and found to be consistent. Although not often used, this method of valuation
of recreational activities is well established (Krutilla, 1975).
Personal interviews were conducted in mid-October with users most likely
to be affected by the designation of Looe Key as a marine sanctuary.
C-1
The survey interview schedules were distributed to commercial fishermen,
commercial and recreational enterprises, fish houses and tropical specimen
collectors who could be expected, judging from other studies and surveys, to
depend on Looe Key for part of their livelihood. Commercial fishermen
and businesses which provide recreational services, such as dive boat
shops and marinas, were the main businesses surveyed.
Twenty-five interview schedules dealing with their 1978 catch, were
completed by commercial fishing businesses. This number represents 2.6
percent of fishermen/ boats in Monroe County estimated to be commercially
active in 1977-1978 (see Mathis et al , 1979 p. 15), and represented an
important portion of those active in the area under consideration. One
major tropical specimen collector and one fish house responded, as well as
two out of six dive shops and charter boats, one marina and a boat rental
and camping gear business.
The interview schedules were designed to obtain (1) a representative
sample from which to derive information on the total population user
group in the Looe Key area, (2) information on businesses' total income
generated by the Looe Key area, (3) information on other potential
sources of income to users, such as fishing or recreational diving areas
other than the area directly around Looe Key reef. The sample was derived
from meetings arranged with fishing representatives (members of the Organ-
ized Fishermen of Florida and marine agents), interviews with members of the
community, and the assistance of a local citizen with research and academic
experience who was familiar with the fishing industry.
The Looe Key reef itself was part of a 5.32 square mile area in the
survey that contained representative zones of the Looe Key ecological system
and coincided with the intermediate size boundary option for the
proposed sanctuary (Boundary Option #2).
While proposed sanctuary boundary alternatives range from 1 square
mile (#1) to 10 square miles (#3), this intermediate size provided a
good basis for analysis.
The year 1978 was selected as the sample year. Although new fishermen
and dive shops have entered the area since then, county and State data
are only available for 1978. Thus, to provide a statistical check, 1978
was used.
B. Looe Key Reef Area Sample Survey Results
1. Commercial Fishermen.
Twenty-five commercial fishermen (boats) in the vicinity of Looe Key were
surveyed, living between SevenMile Bridge in the north and Saddlebunch Keys in
the south. The major keys included in the survey were Bahia Honda Key, Big
Pine Key Summerland Key, Cudjoe and Ranrod Keys.
A previous survey by the University of Florida in 1978 indicated that 48
percent of Monroe County fishermen lived within one mile of their fishing ports
and roughly 64 percent lived within three miles. (Boat and fisherman travel
information, Mathis et al , 1978, p. 19).
C-2
It was expected that the most active fishermen in Looe Key were those
closest to it. Using average marine travel data (Mathis et al , 1979) as
a base, it was decided that an area with a 15 mile radius would be adequate
to obtain an statistical sample for measuring total commercial fish catch
value at Looe Key. In the course of the survey, the choice of the sample
survey area seemed validated. At the fringes of the area, some commercial
fishermen, dive shops and others reported little or no activity connected
with Looe Key.
The twenty-five fishermen in the sample survey all owned their own boats,
averaging 33 feet in length. The average fisherman had spent 10.32 years in
the business and had been fishing in the Looe Key 5 nmi zone for 7.6 years.
They employed a total of 36 crew (34 non-family). The average weekly wage for
these crewmen was $195.95 per week and they worked an average of 41.5 weeks per
year. Total yearly payroll, not including family members, was $276,499,56 or
$8,132,34 per employee, which was lower than the county average for private
non-farm wage earners.
Fish catches vary seasonally in the Looe Key area. From February to late
July, before the start of the lobster season, the fishermen depended mostly on
yellowtail, mangrove and mutton snapper, and grouper. In the fall and early
winter, they caught mainly lobster with little reported snapper or mackerel.
Spanish, cero and king mackerel began to plan a major role in the catch in
December and continued to March.
The most productive fishing areas reported were those between and includ-
ing Looe Key Reef and Big Pine Shoal, the area surrounding American Shoal areas
in Hawk Channel off Sugar Loaf Key and Cudjoe Key.
Most of the boats fished for more than one species, using a combination
of methods, such as hook and line part of the year and trapping during
the lobster season. Trapping for lobster, crab and fish amounted to
57.7 percent, 24.9 percent used hook and line, and 17.4 used nets.
(Table 2) Based on survey tabulations, commercial fishermen did not
all depend on Boundary Option #2 exclusively. Of the 597,356 lbs. caught
in the total area in and around Looe Key, 167,970 lbs. were landed in
the 5 mile area encompassing Looe Key. Most boats seem to fish the Looe
Key 5 nmi zone only part of the time, since the desired species migrate
both seasonally in and adjacent to Looe Key and throughout the entire reef
tract. (Table 1 )
This sample of 25 boats is roughly one-fourth of the estimated boats (100)
that could be affected by the Looe Key Sanctuary proposal, according to the
consensus of leading fishermen in the area. In order to obtain the total
estimated catch value of the Looe Key area, it was necessary to get an average
income per boat from the sample survey and multiply it by the total estimated
100 commercial fishing boats.
C-3
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Thus, using average 1978 Monroe County dockside prices, computed by the
National Marine Fihseries Service, the reported 1978 catch in Boundary
Option #2 was 28% and worth $755,690 or $7,556.90 or $7,556.90/ per
boat/per year. Based on information on total landings (100%) in the
area, boats could be expected to earn approximately $27,000, average
annual income. (Table 2) (Table 3)
Of the $755,690 earned in Boundary Option #2, 61.7 percent came from
lobster trapping, 14.5 percent from wire fish trapping, 17.7 percent
from hook and line fishing, 5.6 percent from netting and 5 percent from
trapping stone crab.
These fishermen, however, do more than just sell fish. They buy food,
gasoline, supplies for their boats. Their activities generate other
activities. The income generation process is usually called the multiplier
process. Each initial increase in income (in this case, sales of fish)
will magnify itself throughout the economy and the final increase will
be a number of times greater than the initial increase. The gross output
regional multiplier for forestry and fish products in the Miami Economic
Area of the Bureau of Economic Analysis is 1.914. (BEA, Regional Economic
Analysis Division, USDC, 1977). No forestry occurs in this region so this
multiplier should be fairly accurate for fishing. This regional multiplier
indicates the "regional" impact of the sales of fish. The impact after
the fish have been moved from the area for distribution, etc., is not
counted. The total economic impact of the fish at final sale will be
greater than 1.914. However, not all this impact is felt in the area of
catch, thus the regional multiplier should be appropriate. Using the
economic value of the commercial fishing in Boundary Option #2, the
economic effect of the fishing effort there, using the regional multiplier
is $1,445,390.
b. Commercial Recreational and Educational Businesses
The interview schedules to gather information about this group went largely
unanswered because of the low response rate, only revenue from the commercial
dive boat operations in the commercial business catagory were calculated in the
economic study.
Revenue from dive charter boats was estimated from the onsite survey to
be $250,000 and appears to be the major income, outside of commercial fishing
in the Looe Key area. Other income producing businesses were not accounted
for in the Survey, such as marinas and fishing lodges rent boats and equipment.
C-5
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average of seasonal averages compiled from the survey since each season
has a different visitation rate.) If these estimates are correct and,
assuming 300 days of clear weather, then there were somewhere between
3,564 and 7,008 private boats visits to the Looe Key reef last year.
A recent Key Biscayne National Park survey indicates that for all
boat use there was an average of 3.8 persons per boat. The Bahia Honda
State Recreational Area tabulation of daily visitors for FY 1978-79
showed that over 11,000 visitors arrived by boat to that facility in
that period. The Bahia Honda 11,063 visitors should, based on 3.8 per
boat have arrived in 2,911 boats. If only half of these went to Looe
Key Boundary Option #2, then 40 percent of the lower estimated boat
traffic (3,564) could be attributed to Bahia Honda alone. There are
also, of course, many other places from which boats to Looe Key can be
launched. Thus, the Looe Key boat visit estimates seem consistent with
other evidence.
It was assumed, based on personal interviews and published data that
one-third of these boats were used for recreational fishing and sightseeing,
and two-thirds of the boats were used by skin and SCUBA divers, of whom
two-thirds again were assumbed to be skin divers, not SCUBA divers.
The survey at the Biscayne National Park of the average number of
people per boat for different recreational activities indicated that between
3.7 and 4 .3 persons ride when engaging in diving activities. The weighted
average was 4.08 persons per private diving boat. Using the Biscayne
National Monument and multiplying by the number of boats estimated to be
carrying divers to Looe Key. It was estimated that the 2,376 to 4,672
boats which was assumed carried divers to Looe Key had 9,694 to 19,061
divers on board.
These estimates appear to be consistent with other available sources.
Bahia Honda had 351,700 visitors in FY 1978-79. A Florida Department of
Natural Resources survey of park visitors indicated that 4 percent of
visitors in southern Florida parks go SCUBA diving. Thus, at least 14,068
visitors to Bahia Honda could be expected to go SCUBA diving; probably more,
since 4 percent is an average and Bahia Honda is probably above average
with regard to its orientation towards water. In addition, of course,
there are non-Bahia Honda divers at Looe Key. The yearly estimates of
9,694 to 19,061 private divers in Boundary Option #2 thus seems conservative
but consistent with the Bahia Honda data.
An accepted method of imputing value to non- quantifiable activity is to use the
cost of the same or similar activity is paid to a commercial business to arrive
at an economic value.
The average cost of a private SCUBA dive trip to the Looe Key Reef ranges from
$17 to $25, according to survey responses. Using $12 as the value of a snorkel-
ing trip, based on the survey and information from the National Dive Center
Washington, D. C. , the combined value of a dive trip was estimated to be $16.50.
C-7
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Analysis of Fishing Methods in the Looe Key Area
Based on Sample Survey
Number
Number of fishing boats
Fish for lobsters only
Fish for lobsters & crabs
Fish for crabs
Fish only
Fishermen using hook 4 line
Fishermen using wire traps
Fishermen using nets
Fish for both lobster & fish
Fishermen who use only nets
25
100
4
16
23
92
10
40
2
8
16
64
7
28
3
12
;
18
72
0
0
Appendix C
Table 5
C-10
The divers chartering boats also stay in hotels, motels, visit
restaurants, and purchase air and other equipment. These economic multi-
plier effects were counted by using a regional service sector multiplier.
The multiplier selected for these commercial dive boats was 3.203 (BEA
1977, p. 44). Thus, their total economic value for purposes of analysis
was estimated at $800,750. Almost all of this income is derived from
the 5 square mile or Boundary Option #2.
The Newfound Harbor Marine Institute on Big Pine Key, a non-profit
organization offering one of the most comprehensive marine education opportuni-
ties in the Florida Keys, focuses upon the nearby Looe Key coral reef and other
coral assemblages in the general vicinity, for year round teaching. Seacamp, a
part of the Institute, offers a variety of educational programs to students in
the 4th grade through graduate school in college. Between 5,000 and 6,000
persons participate in the 3 to 30 day programs each year.
The analysis did not attempt to count income generated to the area
from marinas, fishing lodges or educational organizations due to the
lack of sufficient information.
c. Tropical Specimen Collectors
Tropical fish collectors who catch and sell the brightly colored reef
fishes of the coral reef for home aquaria and research purposes are one
small user group at Looe Key. While areas of extensive coral growth,
such as Looe Key, are not generally suitable as collecting areas because
of the many hiding places afforded by the reef, interview schedules and
information provided by persons familiar with the tropical fish industry
indicated that there was a limited amount of collecting occurring at Looe
Key.
Estimates, based on these sources, of the total value of tropical fish
collected yearly in the area, ranges from $200,000 to 250,000. Of these
figures, roughly $25,400 to $31,750 worth is collected in Boundary Option
#2. The regional multiplier effect would increase these estimates to
between $582,000 and $782,500 in the entire area. The Boundary Option
#2 generated income would lie between $74,000 and $92,500.
d. Private Recreational Users
Most sources interviewed agreed that the largest user group of the reef
combines skin and SCUBA divers and recreational fishermen. It is in the
measurement of this group's contributed economic value to the reef that
the greatest number of assumptions have to be made and the most qualifiers
have to be placed on any figure.
Commercial recreational questionnaires estimated that average daily
private boat visits to the proposed Looe Key 4.9 nmi sanctuary ranged
between a low of 11 and a high of 23. (Each of these is a weighted
c-n
The activity of the 9,694 to 19,061 divers in Boundary Option #2 was
worth between $159,951 and $314,506 in 1978.
These divers, however, do not merely dive, they stay in hotels and
motels, rent boats, buy air and other equipment. The multiplier of the
relevant sector selected this region was 2.203 (see BEA, 1977, p. 44).
The private recreational diving activity in Looe Key was thus considered
to be generating between $352,371 and $692,856 for the region in 1978.
It was assumed from personal interviews and Survey information that
the recreational fishermen and others would occupy one-third of the boats.
This means that 1,188 to 2,336 boats would be visiting Looe Key, carrying
recreational fishermen, sightseers and others. The figure of $40 per boat,
the average rental price, was selected to place a value on the non-quanti-
fiable activity of recreational fishing, sightseeing, and other related
activities. Recreational non-diving at Looe Key, therefore, was estimated
to be between $47,520 and $93,440. The multiplier effect of this activity
would raise the total value of the activity to (BEA, 1977, p. 44) the region
to between 104,686 and 205,848.
The estimated value to the community and region of the private recrea-
tional uses of Looe Key lies thus between $457,057 and $898,704.
Combining the 7,500 commercially transported divers with an average of
15,000 divers using their own transportation and adding an estimated 5,500
students from Newfound Harbor Institute, the total drive/snorkler load for
1978 would have been 28,000 individuals.
C-12
APPENDIX D FLORIDA STATE LAWS
AND
EXISTING STATE AND FEDERAL MARINE
RESERVES, PARKS AND SANCTUARIES
Appendix D
FLORIDA STATE LAWS AND EXISTING STATE AND FEDERAL MARINE RESERVES,
PARKS AND SANCTUARIES
A. Florida State Laws
Florida State laws which regulates human activities similar to
activities found in Looe Key Waters. Legal Authority: Chapter 370,
Florida State Code Enforcement Authority: DNR Division of Law Enforcement
(Table Dl) Chapter 370. Saltwater Fisheries and Conservation. 370,114
Taking of marine corals and sea fans regulated; penalties.
1. It is unlawful for any person, as defined in s. 1.01:
a. To take, attempt to take, or otherwise destroy, or to
sell or attempt to sell, any sea fan of the species
Gorgonia flabellum or of the species Gorgonia ventalina
or any hard or stony coral (Scleractinia) or any fire
coral (Millepora); or
b. To possess any fresh, uncleaned, or uncured sea fan of
the species Gorgonia flabellum or of the species
Gorgonia ventalina or any fresh, uncleaned, or uncured
hard or stony coral (Scleractinia) or any fresh, uncleaned,
or uncured fire coral (Millepora).
unless it can be probed by certified invoice that the sea fan or
coral was imported from a foreign country or unless it can be proven
that the sea fan or coral was lawfully taken before July 1, 1976.
2. This section shall not apply to any sea fan or coral taken for
scientific or educational purposes when the taking is approved
and permitted by the department.
3. It is unlawful to take coral from, or possess it in the John
Pennekamp Coral Reef State Park. The provisions of s. 592.17
shall be in addition to the provisions of this subsection.
4. A person who violates any provision of this section is guilty
of a misdemeanor of the second degree, punishable as provided
in s. 775.082 or s. 775.083.
The U. S. Coast Guard and the Florida Marine Patrol have verbal agree-
ments to notify one another of possible State/Federal violations of the
taking of coral in iState/Federal waters.
The State law, outside of the John Pennekamp Park, is considered by
some law enforcement personnel and administrators as largely unenforce-
able because "fresh, uncleaned, or uncured sea fan, hard or stony coral
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or fire coral" can be quickly killed and bleached on board a boat, with
the use of a bleaching agent, before a patrolman can inspect the boat.
The regulation for the John Pennekamp Coral Reef State Park, however,
which simply states "It is unlawful to take coral from, or possess it",
appears the most effective for enforcement purposes.
Penalty: Criminal
Fine: $35.65
The fine of $35.65, set at the present time by a Circuit Court Judge
in the Florida Keys, for a misdemeanor of the second degree (prescribed
in the statute), is considered by most as little deterrent in the
taking of coral from State waters.
Regulations: The Division of Law Enforcement of the Florida DNR has
not, as yet, adopted any regulations to accompany the statute, 370.114,
on the taking of marine corals and sea fans.
Other applicable state regulations:
370.071 Fishermen and equipment; regulation
370.10 Crustacea, marine animals, fish regulations; general provisions
370.101 Saltwater fish; regulations
370.11 Fish; regulation
370.113 Queen conchs of the species Stombus gigas; regulation
370.12 Marine Animals
370.13 Stone crabs
370.14 Crawfish
370.17 Sponges; regulation
370.172 Spearfishing definition; limitations Penalty
Spearfishing is prohibited within the boundaries of John Pennekamp
Coral Reef State Park, and the salt waters in Monroe County known
as the Upper Keys from the Dade/Monroe County line to and including
Long Key. The DNR also has the power to establish restricted areas
when safety hazards exist or when needs are determined by biological
findings.
370.072 State Endangered and threatened species
Threatened and endangered species and their habitat, Monroe County,
from inventory of rare & endangered biota of Florida, Florida Audubon
& Florida Defenders of the Environment.
D-4
Endangered Species as defined by the Florida Audubon Society and the
Florida Defenders of the Environment
Invertebrates found within the proposed sanctuary:
Elkhorn Coral
Staghorn Coral
Staghorn Coral
Pil lar Coral
Large Flower Coral
Lettuce Coral
Flower Coral
Starlet Coral
Brain Coral
Brain Coral
Small Star Coral
Large Star Coral
Brain Coral
Acropora palmata
A. Ceryicornis
A. prolifera
Dendrogyra cy 1 i ndrus
Mussa angulosa
Agaricia agaricites
Eusmilia fasti giata
Siderastrea siderea
Diploria clivosa"
p. labryinthiformis
Montastraea annularis
M. cavernosa
Meandrina meandrites
Outer Reef Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
Reef
Environment
All habitats
Atlantic Green Turtle Chelonia Mydas mydas
Species whose habitat are found within the proposed sanctuary:
Atlantic Green Turtle Chelonia Mydas mydas All habitats
Atlantic Hawksbill
Turtle
Atlantic Ridley
Turtle
Eretmochelys imbricata imbricata Primary reef
habitats
Lepidocheyls kempi
All habitats
All violations of the above State laws, with the exception of 370.12
Marine Animals (a first degree offense) are criminal offenses; misdemeanors
of the second degree, with punishment prescribed by a Circuit Judge in
Monroe County.
Enforcement Agency: Florida Marine Patrol
Chapter 258. State Parks and Preserves.
258.41 This provision permits the setting aside of State-owned submerged
lands of exceptional biological, aesthetic and scientific value as aquatic
preserves. Two of the thirty-one State aquatic preserves were established
in Monroe County. One of these, the Coupon Bight Aquatic Preserve is located
directly adjacent to the sanctuary off Big Pine Key. This Preserve, included
in the State Coastal Management Program as a Geographic Area of Particular
Concern, is a shallow semi-enclosed bay of unique biologic and scientific
valued.
D-5
B. Existing Federal and State Marine Parks and the Key Largo Marine
Sanctuary in the Florida Keys and Their Existing Regulations
1. Everglades National Park at the tip of the Sourth Florida Peninsula
(Department of Interior's National Park Service)
Everglades National Park includes a part of Florida Bay.
Five regulations have been proposed in 1979 to:
Close additional areas of Florida Bay to all public entry to
protect crocodile nesting critical habitat.
Restrict recreational shellfish harvest (blue crab traps,
stone crab traps and spiny lobster).
Establish bag limits for fish species.
Assimilate State of Florida statutes for commercial
stone crabbing.
Eliminate commercial fishing by December 31, 1985,
within the waters of the park.
Permits for all activities except hook-and-1 ine fishing in the Everglades
National Park are required and reviewed by the South Florida Research
Center, NPS, Homestead, Florida, who also review permits for the Fort
Jefferson National Monument, Dry Tortugas.
2. Fort Jefferson National Monument. Dry Tortugas
(Department of the Interior's National Park Service)
Located 110 km (65 miles) west of Key West, Florida, Fort Jefferson
National Monument which was established to protect Ft. Jefferson but also
manages 100,000 acres of coral reefs within park boundaries. The
taking or disturbing of any species of coral, shells, shellfish,
sponges, sea anemones or other forms of marine life is prohibited
with the exception of the recreational catch of spiny lobster
(Panulirus argus) and conch (Strombus gigas) which is limited to
2/person/day. Commercial fishing is limited to 40 percent of the
monument. The use or possession of spears, gigs, or other forms
of spearfishing is prohibited at all times.
3. Biscay ne National Park in the Northernmost Florida Keys
(Department of the Interior's National Park Service)
Biscayne National Park is primarily an underwater park. The "park"
is actually a monument, as designated by Congress, with rules slightly
I
D-6
different from a National Park Service park. To establish Biscayne
National Monument, the State of Florida and the Federal government
agreed that fishing be allowed to continue in accordance with State
laws unless it was determined to be detrimental to the purposes for
which the "park" was established. If so determined, it should be
further regulated following consultation with the State.
The enabling legislation reads, as follows:
Sec. 4 "The Secretary of the Interior shall preserve and administer
the Biscayne National Monument in accordance with the pro-
visions of the Act of August 25, 1916 (39 Stat.535;16 U.S.C.
1-4), as amended and supplemented. The waters within the
Biscayne National Monument shall continue to be open to
fishing in conformity with the laws of the State of Florida
except as the Secretary, after consultation with appropriate
officials of said State, designates species for which, areas
and times within which, and methods by v/hich fishing is
prohibited, limited or otherwise regulated in the interest of
sound conservation or in order to achieve the purposes for
which the national monument is established."
Commercial fishing and lobster-trapping are legal, as is sports fishing,
both by hook and line and by spear. Conch and lobster may also be taken
by divers, provided they are caught by hand or by hand-held net when in
season and provided legal limits are not exceeded. Tropical fish collec-
tion is not legal.
Under the laws and regulations of the Park, identical to State laws,
the Superintendent of the Park grants permits. Four patrol boats
survey the area (20' - 28') manned by four Park Rangers with law
enforcement authority. The Florida Marine Patrol enforces in
State waters. Total park acreage is 104,000.
At the present time, the Park management is conducting an extensive
fisheries management information program. Fishermen are interviewed
in the field out to the 60 ft. contour. Major species caught by
commercial fishermen are snapper, grouper, hogfish, grunts, dolphin and
sailfish. No fish traps are permitted. Some permits are granted for
stone crab and crawfish fishing. Aliens and non-residents must have
fishing licenses. Sportfishing must only be for edible fish.
The Park management is also currently experimenting with the use of
mooring buoys which mark an area for visitors and offer them an
opportunity to tie up to a buoy rather than anchoring in an area
D-7
I
which might damage the coral reef. The location of the moorings ,
and educational material about certain unique reefs are discussed |
in a booklet prepared and distributed by the Biscayne Park staff.
The Biscayne National Park is adjacent to a spiny lobster sanctuary.
4. Bahia Honda State Park in the lower Florida Keys
The Bahia Honda State Park, managed by the Florida State DNR, Division
of Recreation and Parks, is located on Bahia Honda Key adjacent to the
proposed Looe Key Sanctuary. The park offers overnight camping facili-
ties; two marinas; one for campers and one leased by a concessionaire;
and swimming, picnicking facilities. The marinas are approximately 30
minutes running time by boat from the Looe Key Reef area. Staff for the
park includes 17 staff and 14 rangers, most without law enforcement
authority whose responsibilities include search and rescue operations in
waters immediately adjacent to the park.
The Bahia Honda State Park personnel emphasize the protection of State
resources by interpretation of the law to those who use the park rather
than by enforcement.
5. John Pennekamp Coral Reef State Park and U.S. Key Largo Coral Reef
"Marine Sanctuary in the upper Florida Keys (State Department of Natural
Resources' Division of Recreation and Parks and Department of Commerce's
Office of Coastal Zone Management under NOAA)
The John Pennekamp Coral Reef State Park and U. S. Key Largo Coral Reef
Marine Sanctuary are actually two preserves, consisting of an area
extending out three miles from shore and administered by the State of
Florida (Department of Natural Resources, Division of Recreaton and
Parks) and a Federally operated sanctuary beginning at the end of
State jurisdiction and extending seaward, also administered by the DNR,
Division of Recreation and Parks.
Named after the late John Pennekamp, the combined area of both parks was
originally a State Park. The John Pennekamp Park was created in 1961
to protect coral and to prevent spearfishing and tropical fish
collection. The State did not limit commercial fishing and lobstering
in the State Park. In 1975, when the Supreme Court ruled State jusisdic-
tion could only extend three miles, the most luxuriant reefs, which lie
between four and six miles offshore, were without State protection. At
D-8
I
that time, the State of Florida nominated the offshore waters for
Marine Sanctuary status to insure continued protection of the
resources. The Key Largo Coral Reef Marine Sanctuary was designated
by NOAA in December, 1975, as prescribed in the Marine Protection,
Research and Sanctuaries Act of 1972. At the time, the existing State
regulations were adopted for the Federal waters seaward of the John
Pennekamp Coral Reef State Park and are still in force today.
Through a joint management agreement with the State of Florida and
managed by the State, the U.S. Key Largo Coral Reef Marine Sanctuary
is patrolled by State and Park Rangers and the U.S. Coast Guard.
Collection or possession of coral, dead or alive, and sand or any
other organism, dead or alive, (other than fish or lobster), can
cost up to $5,000. If coral or other materials or organisms
mentioned above are collected outside of John Pennekamp Coral Reef
State Park and U.S. Key Largo Coral Reef Marine Sanctuary, they
cannot be transported into these areas without danger of the
person possessing them being fined. This is also true of Biscayne
National Monument.
The management and enforcement of the Key Largo Coral Reef Marine
Sanctuary, is of particular interest to the Looe Key proposal. Although
the area is larger^ la the upper Keys, and immediately adjacent to
an established State marine park, its ecologinal system and the human
impacts occurring daily in the sanctuary are very similiar to the
area known as Looe Key.
a. Memorandum of Agreement
At present, there is a memorandum of agreement between NOAA/OCZM and
the State DNR, Division of Recreation and Parks, which provides:
0 State on-site management in accordance with the rules
and regulations promulgated by OCZM.
0 State administered regulation. Proposed regulations
revising existing interim - final regulations are
being considered at the present time.
0 At question appears to be how much should the regulations
resemble State regulations in the interest of consistency
and how much should they be a reflection of the objectives
of the Marine Protection Research Sanctuaries Act.
0 State evaluation of all permits.
0-9
0 state enforcement of the Sanctuary regulations through a
cooperative effort with the U. S. Coast Guard. The State
reviews all citations issued by the USCG and sends a
report of the violation and recommendations to the
NOAA/General Counsel, St. Petersburg, Florida.
0 State submissions of semi-annual reports to NOAA and
submission of recommendatons for more effective
management.
b. U.S. Coast Guard Enforcement Agreement
Patrol of the sanctuary is accomplished jointly by the Florida Marine
Patrol and U.S. Coast Guard personnel. Enforcement authority for State
Park rangers is limited to John Pennekamp Coral Reef State Park and
does not include Key Largo Coral Reef Marine Sanctuary. Persons found
to be in violation of NOAA regulations are notified at the scene by the
issuance of a Coast Guard Report of Boarding (CG Form 4100) . Evidence
is seized by USCG personnel and appropriate statements taken. NOAA
paid the salaries of two Coast Guard personnel assigned to Key Largo
in 1978. In 1979, the Coast Guard continued its allotment of personnel
to the sanctuary but refused payment, since enforcement was part of
their ongoing responsibility.
c. Law Enforcement Procedures
Once all officials and the violator have been notified and the State
park service has evaluated the information, the NOAA General Counsel
draws a Notice of Violation, specifying the precise violation involved,
and the proposed penalty (which may be negotiated).
The BLM coral regulations have rarely been used since these regulations
provide for criminal penalties involving arrest and appearance before
a Federal Magistrate.
d. Enforcement Results in Key Largo
There were six Notices of Violation issued in 1977, fifty-nine in 1978
and twenty-three in 1979. The average proposed penalty for the three
year period was $86.73, the average compromise penalty agreed upon by
the violators was $60.92.
D-10
APPENDIX E
NOAA RESPONSES TO COMMENTS RECEIVED ON THE
PROPOSED LOOE KEY MARINE SANCTUARY DEIS
GENERIC RESPONSE #1 - SUPPORT FOR THE LOOE KEY PROPOSAL
Thank you for your comments. NOAA concurs with the view that Looe Key
is a valuable and important resource and that Looe Key is a national resource
of high ecological value. NOAA also concurs that marine sanctuary designation
offers an effective mechanism to protect and conserve this portion of the
Florida reef system for the benefit of future generations.
E-1
GENERIC RESPONSE #2
Several reviewers voiced the opinion that adequate protection will
be afforded Looe Key by the Fishery Management Council pursuant to the
Fishery Conservation and Management Act (FCMA) and that sanctuary desig-
nation would, therefore, be duplicative and unneccesary. Although
the FCMA provides environmental protection, its principal focus is the
management of selected commercial and recreational fisheries. Conservation
efforts under this statute are by necessity directed toward individual
species rather than ecosystems. Accordingly, both in general and in the
case of Looe Key the two programs are complementary, not duplicative.
In accordance with the FCMA, the Regional Fishery Management
Councils (FMC) develop Fishery Management Plans (FMP), that are
implemented by the Department of Commerce. These FMP's provide for
protection of selected fishery resources but in general do not
focus on site-specific ecosystem management. FMP's do not necessarily
consider elements of the ecosystem which are not harvested nor do they
address the entire range of threats to which an area like Looe Key can
be subject. Title III of the Marine Protection Research and Sanctuaries
Act, on the other hand, authorizes conservation of special or threatened
ecosystems per se. Because of the differing focuses of the two statutes
the efforts of the FMP's and the Marine Sanctuaries Program should,
through cooperative efforts, complement each other.
In particular, major differences between the Councils' joint Coral
and Coral Reef Resources FMP and the NOAA Looe Key marine sanctuary
proposal include: (a) the size of the specific area to be protected;
(b) the range of organisms toward which management attention is directed;
and (c) the emphasis on comprehensive management planning, including
interpretive programs and design and implementation of long-term site
specific research.
First, with regard to size, the Habitat Area of Particular Concern
(HAPC) proposed in the draft Coral and Coral Reef Resources FMP includes
a one sq nm area which will allow the protection of the actual spur and
groove system from physical damage. However, the long-term biological
productivity of a system is by no means assured by such protection
efforts and NOAA believes that the FMP proposed protection of a 1 sq nm
area will not provide that assurance. Comprehensive management emphasis
on monitoring, visitor uses, research and public education aimed at
assessing the effectiveness of protective measures and health of the
total system will form the basis for ensuring future viability of this
section of the reef tract. For a discussion of the rationale for the
proposed sanctuary 5 sq nm boundary, please see Generic Response #3 and
Chapter IV (Environmental Consequences of the Proposed Action).
It should, however, be noted that knowledgable scientists have
questioned the likelihood that even the sanctuary program with its emphasis
on the latter facets of management can effectively protect this section of
the reef tract (Generic Response #2). The basis for this concern is the
small size of the proposed sanctuary. In the marine environment adequate
E-2
buffer zones replace the fences used in traditional land management
techniques. This approach requires a greater area to protect a given
resource than would nonnally be necessary on land. NOAA believes, however,
that after analyses of potential impacts on the total human environment,
5 sq nm represents a reasonable buffer beyond that provided through the
HAPC. This in combination with the management oriented facets of the
sanctuary program will complement the efforts of the Councils to protect
coral species in the fishery conservation zone.
Second, the Council's FMP limits the definition of coral reef
resources to the actual coral structure. This leaves the majority
of invertebrates and lower vertebrates without specific protection.
The productivity of coral reefs, equalled only by that of tropical
rain forests, is a result of the organisms forming the reef structure
(algal biomass may be three times greater than that of the corals); and
light, oxygen and efficient nutrient recycling as a result of the
innumerable non-coral reef organisms. It is this entire specialized
ecosystem that is the focus of sanctuary integrated research, education
and regulation over the long-term.
In conclusion, the major differences between the proposed management
measures for the HAPC and the final proposed marine sanctuary regulations
are focused on the emphasis placed on comprehensive management, monitoring,
research and public education by the sanctuary program which is lacking
in the HAPC proposal and which complements the Councils' FMP efforts.
A comparison of the two programs was forwarded by the GMFMC and an updated
version is presented below.
i
E-3
LOOE KEY PROPOSALS
Marine Sanctuary
General Area: Five square nautical
miles includes portions of the Patch
Reefs, a Reef Flat, Fore Reef, Deep
Reef, and Deep Ridge.
"Special Management Area": Trapezoid.
Coral Collection:
general
None permitted in
area; regulations also prohibit
damage to coral which would include
standing, breaking, etc.
Tropical Marine Specimens: Collection
of all tropical specimens, including
invertebrates, prohibited throughout
area, except by permit for scientific
and educational purposes.
Spearfishing:
area.
Prohibited in general
Fixed Gear: General area: prohibit
wire fish traps. Trapezoid area:
prohibit wire fish traps and lobster
traps.
Anchoring:
trapezoid.
Prohibited on coral in
Historical and Cultural Resources:
Removal, damaging, tampering
prohibited.
Toxic Materials: Prohibits all
discharges except vessel cooling
water, fish parts, chumming materials
and effluents from marine sanitation
devices.
Explosives: Not specifically addressed;
however, this would be included under the
prohibition of damage to coral.
Coral FMP
General Area: One nautical mile
square. Contains Fore Reef and Reef Flat.
"Special Management Area": Trapezoid.
Coral Collection: None permitted in the
general area and no contact with coral
permitted in trapezoid area.
Tropical Marine Specimens: Collection
of marine tropical fishes prohibited
in trapezoid area.
Spearfishing: Prohibited in trapezoid
area.
Fixed Gear: General area: prohibit fish
traps within 100- foot contour (Reef Fish
FMP). Trapezoid area: fixed fishing
gear prohibited.
Anchoring: Prohibited in trapezoid.
Historical and Cultural Resources:
Not applicable.
Toxic Materials: Prohibits toxic
chemicals in taking fish and other
marine organisms in coral areas; other
discharges not addressed.
Explosives: Prohibited over live
coral bottoms when causing coral damage,
E-4
GENERIC RESPONSE #3
During review of the DEIS and at the public hearings two issues were raised
focused on 1) the basis for selection of Looe Key as a sanctuary proposal and
2) the size of the proposal area. With regard to the first issue, certain
reviewers stated that in their opinion Looe Key is not a unique area and there-
fore sanctuary designation is not justified. The uniqueness of the Looe Key
area is indeed not measured in terms of new and different species assemblages.
It is true that the species found on Looe Key are also found all along the
Florida Reef tract. The special nature of Looe Key is measured, instead, in
terms of the spectacular beauty of the spur and groove system, the value of
this small area to local biological productivity (see commercial fishing
statistics) and the ease of accessibility to the user public. Looe Key is
located only 6.7 nm offshore and can be easily located in a relatively short
period of time. The shallow water portions of the reef in combination with the
deeper areas make it attractive to both novice and highly experienced swimmers,
snorklers and divers. Public charter boat operations, dive boats, recreational
divers and fishermen, a major non-profit organization (the Newfound Harbor
Marine Institute) and established commercial fishermen utilize the reef. The
area is currently experiencing intensive public use which based on population
and tourist projections is expected to increase. All of these factors
taken together contribute to the special nature of Looe Key. While it
is true that it is not the only beautiful section of the reef tract and that
it is but one of the several shelf margin reefs in the lower keys, NOAA
believes that, without question, the combination of factors discussed above
qualify Looe Key for sanctuary status and that given user pressures, this small
section of the reef tract must be comprehensively managed if its long-term
viability is to be assured.
The proposed 5 sq nm boundary was criticized during the review both as
being too large and as being much too small. It was felt by several commentors
that the proposed 1 sq nm HAPC presents an appropriate size for a sanctuary.
Protection of an area of this size will provide for prohibitions of physical
damage to the Fore Reef and associated organisms. It will not likely provide
an adequate area for assuring biological integrity of the system. In the marine
environment protection of any core area (Fore Reef) requires identification and
protection of even large areas (buffers) where essential processes for the
stability of the core take place. NOAA does not believe that 1 sq nm offers a
reasonable buffer to assure long-term productivity of the Looe Key reef system.
The 5 sq nm sanctuary proposal has also been criticized as being too small
and vulnerable to outside harmful activities to warrant designation. It is true
that marine systems cannot be managed by reliance upon traditional land manage-
ment techniques. Essential differences between marine and terrestrial environ-
ments include the size of the ecosystems, the mobility of marine organisms and
the three dimensional nature of the hydrosphere, sink, and downstream
affects. Because of these characteristics, setting aside limited marine areas
such as Looe Key contributes to protection of the large system. Locating
these small candidates for protection involves consideration of their location,
number, size and linkages. Ideally, management would be able to identify the
linkages, protect them and thereby protect the region as a whole while we
continue to use and enjoy it.
E-5
Though Looe Key alone represents a small segment of the reef system, it is
possible that by focusing intensive management on smaller discrete units such as
Biscayne Bay National Park, Key Largo National Marine Sanctuary, John Pennekamp
State Park, Fort Jefferson National Park, and Looe Key we can protect enough of
the reef tract linkages to insure protection of the entire system.
In addition, these discrete protected areas are tied together by the
broader conservation measures afforded under the Management Councils' Coral and
Coral Reef Resources Fishery Management Plan. In the near future other FMP's
will be implemented for fisheries under the jurisdiction of the South Atlantic
Council. All of these entities, together with heightened awareness of the need
for close cooperative management strategies, should provide an increased level
of protection.
In conclusion, after assessing the potential impacts of larger Looe Key
sanctuary boundaries, NOAA continues to propose the 5 sq nm alternative. In a
purely biological sense, a sanctuary covering the whole of the Florida Keys
might be more desirable; however, the Looe Key proposal offers a workable
proposal which will contribute to protection of the integrity of the
entire reef tract and at the same time minimize economic impacts to area
residents.
E-6
GENERIC RESPONSE #4
The preferred alternative (Alternative b) proposed in the DEIS
would have required that NOAA establish a permitting system and develop
criteria specifying under what conditions commercial collecting permits
would be granted. It would also have required the undertaking of extensive
monitoring of fish stocks to determine when adequate population levels
of target species existed and at what point and to what degree taking
would be appropriate. A number of reviewers opposed collection on ecological
or philosophical grounds. In response to concerns and arguments presented
in the DEIS review, NOAA has reconsidered the preferred alternative for
tropical specimen collecting and now proposes instead to prohibit collection
of such specimens except by permit for scientific and educational purposes.
Several reviewers felt that administration and enforcement of a permit
system for effective regulation of commercial tropical specimen collecting
could not be developed. Subsequent consultations with existing commercial
permitting authorities emphasized the difficulties involved. It is not
likely that permittees could be monitored to assure that their actions would
be consistent with the conditions of the permit without an elaborate sur-
veillance system with specified check points for ingress and egress at the
sanctuary boundaries. As an example, it would be virtually impossible to
determine whether a permittee took only 100 neon gobies over the period of
two months.
Establishment of a limited permitting system to allow taking of tropical
specimens for research and scientific purposes could be accomplished without
administrative and enforcement difficulties. It is anticipated that most
research within the sanctuary would be non-consumptive (i.e., observational)
and would not require a permit. Limiting the taking of specimens to research
and educational purposes only will result in significantly fewer permits than
would a system which included commercial taking. Furthermore, the Office of
Coastal Zone Management has already developed an administrative process
currently employed for the Key Largo Marine Sanctuary that is designed to
handle limited permits for these purposes.
There are many available easily accessible and suitable areas for
tropical specimen collectors to capture tropical fish and invertebrates in
south Florida; including shallow inshore areas, inshore coral heads,
mid-channel reefs (in the middle of Hawk's Channel), and the entire outer reef.
Prohibiting collecting in the Looe Key area would cause limited economic
loss to present commercial collectors. When the accessibility of alternative
sites, the small size of the proposed sanctuary, and the minimal economic
impact, however, are weighed against the administrative cost and burden of
establishing a commercial permitting system, commercial permitting does
not appear justifiable. From a conservation standpoint, a sanctuary prohibition
would protect and enhance the tropical specimen populations at Looe Key,
help prevent the depletion of ecologically important species, add to the
aesthetics of the sanctuary, and help maintain and enhance the long term
E-7
productivity of the Looe Key coral reef for future generations.
In addition, the majority of those reviewers who commented on this issue
did not support the permitting system for commercial collecting. For
these reasons NOAA proposes to prohibit all tropical specimen collecting
except by permit for scientific and educational purposes.
The proposed regulation, however, does not necessarily exclude all
commercial collection. For example, permits could be given for collecting
for sale to public aquaria. It is unlikely however that there will be as
many applications for this type of permit as there would be for full scale
commercial collecting. Section 938.8 of the proposed regulations details
the criteria the Assistant Administrator must consider in granting a
permit; (1) the general professional and financial responsibility of
the applicant, (2) the appropriateness of the methods envisioned to the
purpose(s) of the activity, (3) the extent to which the conduct of any
permitted activity may diminish or enhance the value of the Sanctuary,
(4) the end value of the activity (i.e., if the intended activity is (a)
for research related to the resources of the Sanctuary, or (b) to further
the educational value of the Sanctuary), and (5) other matters as deemed
appropriate. Each permit application will be judged on individual merit.
In conclusion, NOAA believes that this regulation will protect
the resource, and allow collecting that is consistent with sanctuary
goals and limited enough in scope that monitoring and enforcement can
be conducted adequately.
E-8
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