jLo S3 ! hjO Key Largo National Marine Sanctuary Management Plan sW£ £%£» JUL2 8 «83 U. S. Department of Commerce National Oceanic and ^j Atmospheric Administration Sanctuary Programs Division Key Largo National Marine Sanctuary Management Plan U.S. DEPARTMENT OF COMMERCE National Oceanic and Atmospheric Administration Office of Ocean and Coastal Resource Management Sanctuary Programs Division Washington, D.C. May 1983 U.S. Depository Copy Digitized by the Internet Archive in 2012 with funding from LYRASIS Members and Sloan Foundation http://www.archive.org/details/keylargonationalOOunit TABLE OF CONTENTS SECTION Page EXECUTIVE SUMMARY v ACKNOWLEDGEMENTS vi i I . I NTRODUCT I ON 1 M * nil LHUf I b I fly LcyijldllUlliD«»«*ii**ii«*i>«iti«*i«*iii rO ^ G*> >*** ^ '$£•■%' ,*£ « illW'lHIIMl1 " !•' <*&* ^ «*«»****** i**^ ■-i" f1 ■ I m I * I st rAI IS OF FuO*^ +<+ +* ^ .•> ^ **** ^ I ■ I 1 •1 Water circulation in the Sanctuary results from the combined effects of tide, wind and the Florida Current (General Oceanics, Inc., 1982). Flow on the outer shelf is primarily controlled by the Florida Current in the form of its northward moving front and random spin-off eddies. Currents in the inner- and mid-shelf regions result mainly from tide and wind forcing, which varies seasonally. During winter months (November-April) average longshore current is toward the southwest with speeds of about one-tenth of a knot. Under the influence of prolonged northwest winds associated with cold front passage, water flow may approach or exceed one knot. During the summer, the average flow reverses to the northeast with about the same magnitude as the winter. c. Historical Geology The Florida Keys are a crescent chain of small limestone islands extending 150 miles from near Miami on the north to the Dry Tortugas on the southwest. This island chain curves around the southern end of the mainland to bend west of the Florida Peninsula. The shape of the Keys changes from that of a typical northeast-southwest oriented barrier island in the north, to elongated islands with a northeast-southwest orientation in the south. The Keys are bounded on the ocean side by the Florida Current and on the Gulf side by Biscayne Bay, Florida Bay, and their adjoining waters. Several theories have been proposed concerning the geological formation of the Florida Keys. One theory asserts that the present Keys represent the remains of a relict coral reef from the Pleistocene Age, while another theory claims the Keys originated as lagoon patch reefs in the back reef area of a coral reef located inshore of the present position. The Keys consist of two main formations of the Pleistocene Age -- Key Largo limestone and Miami limestone with the former being coral reef rock and the latter being an oolitic limestone. The Key Largo limestone is the surface rock of the upper Keys and lies beneath the Miami limestone in the lower Keys. Offshore, the ocean bottom is underlain by Key Largo limestone with post-Pleistocene Key Largo limestone overlaying the older rock and increasing in thickness seaward. Covering all of this is a layer of calcium carbonate sediments. The outer reef base is post-Pleistocene Key Largo lime- stone formation overgrown in large areas by stands of living coral. 2. Living Marine Resources -- The Communities A variety of tropical marine habitats and associated biological communities are found within the Sanctuary and adjacent marine parks (Figure 2). A description of biological communities is presented first, followed by a dis- cussion of the resource locations and environmental conditions in the Sanctuary. a. Seagrass and Sand Communities A major portion of the State Park and portions of the Sanctuary consist of seagrass communities growing on sand substrate. Seagrasses begin at the intertidal zone along the shore and, except in the deep, silt bottom of 8 Hawk Channel, extend seaward to the back reef zone of the outer reefs. Of the approximately six species of marine grasses found in Florida waters, two are dominant in the Sanctuary. Turtle grass (Thalassia testudinum) is the dominant seed-bearing plant (angiosperm) of shallow waters. It is found wherever the sediment is sufficiently thick and stable for the grass to develop a root system, which may penetrate to 18 inches or more. Manatee grass (Syringodium fil i forme) grows in deeper parts of the Sanctuary and is either mixed with turtle grass or forms sparse beds of its own. The seagrass and sand communities are rich and diverse. Characteristically, many species of algae and encrusting invertebrates such as sponges, hydrozoans, flatworms and tunicates are found growing attached to blades of turtle grass, as well as to rocks and rubble in sand bottom areas. Other bottom-dwelling invertebrate groups associated with seagrass and sand communities include sea stars, sea cucumbers, sea urchins, sea snails, pen shells, clams, sea slugs, octopods and squids. Small outcroppings of finger coral and isolated heads of massive corals also occur. Seagrass meadows also serve as nurseries for a wide variety of juvenile fishes and invertebrates, including shrimp and lobster. In seagrass beds, as elsewhere in the reef complex, fish and invertebrates exhibit patterns of nocturnal and diurnal behavior related to feeding activities, sheltering, and hiding. Seagrass and sand communities support both resident inhabitants and transient, coral reef-dependent animals which migrate there at night. By day, damselfish, wrasses and juvenile white grunt are found near sparce coral outcroppings and parrotfish, goatfish and other browsers move in and out of the area. At night an entirely different cast is encountered, including snappers, groupers, squirrelfish and various grunts. Most nocturnal foragers retreat to the coral reef as dawn approaches. b. Patch Reef Communities Patch reefs are formed by loose aggregations of massive head corals growing on top of a rubble matrix. Dominate coral species include star corals (Montastraea annularis, ^. cavernosa, Siderastraea sidera, and Dichocoenia stokesii), brain corals (Colpophyllia natans, Diploria labyrinthiformis, and JD. stigosa) and finger coral (Porites astreoides). Patch reefs are charac- teristically surrounded by a halo of coarse sand and rubble kept free from encroaching turtle grass by browsing parrotfish and sea urchins. Most non-sessile invertebrates on patch reefs (e.g., crabs, lobsters, snails, octopus, sea stars) are nocturnal; mobile species hide by day in reef caves and crevices and emerge at dusk to begin their nighttime foraging activities. Large predators tend to feed at any time, but are especially active at dawn and dusk. Fishes that are active at night tend to be drabbly colored (e.g. grays and browns). On patch reefs, these include french angel- fish, black grouper, blue tangs, bluestriped grunt, and some parrotfish species. During the day, the brilliant yellow, blue and green fishes dominate. On patch reefs, these include sergeant major, bluehead wrasse, queen and rainbow parrotfish, and juvenile white grunt. 11 c. Hardbottom Communities Hardbottoms are bedrock areas veneered by encrusting and small head corals, numerous octocorals, and their associated communities. Small knobs of coral less than 3 feet in diameter are common including starlet coral (Siderastrea siderea), elliptical star coral (Dichocoenia stokesii), golf ball star coral ("Favia fragum), lobed star coral (Solenastrea hyades), finger coral (Porites astreoides), and knobby brain coral (Diplopia clivosaT. Various species of green and brown algae and a variety of sponges, soft corals, and other invertebrates also are associated with hardgrounds. Hardgrounds differ from coral reef areas in that they occur on a substrate that was not formed from the recent reproduction and growth of their associated fauna. Habitat diversity is lower in the hardground than coral reef communities, resulting in lower diversity of fish and invertebrates. d. Outer Coral Reef Communities Coral reef communities reach their maximum diversity on outer shelf coral reefs. The luxurient outer coral reefs in the Sanctuary, result from open-ocean circulation of warm, clear Florida Current waters and the absence of colder, turbid, less saline Florida Bay waters. The nearly con- tinuous landmass of Key Largo restricts mixing of bay and ocean waters and contributes to a more stable offshore environment. Coral reef areas are those communities that show active vertical and lateral coral growth in association with dead coral still in a growth position. As they die, the coral's hard skeletons contribute to reef develop- ment. In Sanctuary waters, bank reefs located at the shelf edge or just land- ward on the mid-shelf reef platform form the foundation for these reef com- munities. A common environmental characteristic of a bank reef is open circulation and relatively high energy current conditions, where temperature and salinity regimes are more stable. There are approximately 14 miles of bank reefs within the Sanctuary with, reef height typically on the order of 10-15 feet. Bank reef areas are highly diversified with many showing distinctive zonation. Elkhorn coral (Acropora palmata), a massive, branching sceleractinian coral, is the chief builder of bank reefs. Because it is able to withstand strong currents, its presence is an indication of open circulation. Its optimum depth range is from the surface to 25 feet. In less turbulent areas behind elkhorn coral, thickets of staghorn coral (/\. cervicornis) and clubbed finger coral (Porites porites) are found in varying abundance. These species indicate back reef zones with less turbulent energy conditions. In certain areas, the zonation continues and massive coral heads are seen. These corals tend to grow in shallow sheltered parts of bank reefs and in deeper areas in front of the reef slope. Their bases can be extensively undercut by boring sponges, worms, and mollusks, making them top 12 heavy and especially vulnerable to wave action as they grow. The star coral (Montastrea annularis) is the most abundant head coral in the Sanctuary bank reefs. Other less abundant corals include the brain corals (Diploria strigosa, D. labyrinthiformis, Colpophyllia natans) and the other star corals X^. cavernosa and Siderastrea siderea). Less abundant hard corals grow among the framework of bank corals and include lettuce coral (Agaricia agaricites), finger coral (Porites astreoides), fungus coral (Mycetophyl lia lamarckiana), elliptical star coral (D. stokesii), flower coral (Eusmill ia Tastigiata) , brain corals (Colpophyl 1 ia spp. and Meandrina meandrites) and solitary disk coral (Mussa angulosa). Fire coral (Millepora complanata) is important on certain bank reefs. It also secretes a hard calcareous skeleton and requires a hard substrate for growth. Calcareous algae, sponges, sea fans, and other invertebrates are important components of the coral reef ecosystem and are quite varied throughout the reef areas of the Key Largo National Marine Sanctuary. The associated fish life also is abundant and diverse. The structural complexity of the outer bank reefs provides many hiding places and its productivity provides an abundance of plant and animal food. Encountered by day, hovering in mid-water above the fore reef, are amberjacks, barracudas, blue chromis, rainbow and Creole wrasses and triggerfish. Found in close association with the coral reef surface are blue tangs; bluehead wrasses; small mouth, bluestripe and French grunts; yellowtail and threespot damselfish; and, gray snappers. Occasionally, found perched on top of a coral head or rock are lizardfish, scorpionf ish, blennies and gobies, and near the protection of a cave or under a ledge are found moray eels, Spanish grunts, porkfish, squi rrelfish, glass sweepers, cardinalf ish, drums and bicolor damselfish. Sand perch, sand tilefish, goatfish, flounders and rays are associated in sand bottom areas, such as in the sand channels or grooves between coral spurs on the fore reef slope. At night, many of the fishes that hide in caves or under ledges by day roam the reef or nearby grassbeds until dawn. Fishes in the Key Largo National Marine Sanctuary have been pro- tected from spearfishing and trapping for almost a decade, and as a result, the community structure and the behavior of fishes towards divers are different from that encountered in nonprotected areas. Large snappers, groupers, mackerels, moray eels, barracudas, jacks and sharks are more abundant and larger in the Sanctuary relative to spearfished reefs. Also, fishes are more approachable and less afraid of divers in the Sanctuary (Bohnsack, 1982). e. Deep Water Reef Communities Roughly one-half of the Sanctuary lies in 100-300 ft. of water. Deep water reef communities extend down to 130 ft. beyond which the bottom is covered with sand and algal rubble. There are several possible explanations for why reefs don't extend beyond this depth: (1) water depth in the Sanctuary is too great for corals to become established; (2) lack of a hard substrate for coral attachment; (3) reefs grew in the deep water areas in the past, but more recently have been covered by sediment accumulation; or (4) sea level has been rising too rapidly for reef establishment until the past 5,000 years, when the rise slowed enough to permit coral growth (N0AA, 1981). 13 Reduced light, water movement, temperature and availability of food are also regarded as barriers which exclude certain reef flora and fauna from extending their range from shallower reef areas to the deep reef tract. To accommodate reduced light conditions, dominant corals such as the star coral (Montastraea cavernosa), lettuce coral (Agarcia lamarcki ) and branching coral (Matracis mirabilis) assume a flattened, plate-like form which maximizes interception of solar radiation. Common shallow water fish species are replaced by deep water forms. For example, the brown chromis which occurs with the blue chromis as dominant mid-water plankton feeders on the fore-reef slope is replaced by the sunshine fish on the deep reef, and the harlequin bass is replaced by the tobaccofish of the same genus (NOAA, 1981). 3. Living Marine Resources -- The Habitats Distribution of habitats in the Sanctuary reflects the local and regional geomorphology of the Florida reef tract. Trending seaward from the shoreline, bottom topograpy is characterized by a series of low shelf banks or ridges alternating with shallow channels or valleys that parallel the Keys and the outer edge of the shelf (Hof fmei ster, 1974). Reefs are best developed on the outer edge of the shelf. The reef tract in the Sanctuary can be divided into five major zones (beginning from the Keys and moving seaward, see Figure 2): (1) Hawk Channel ; (2) mid-shelf reef platform; (3) sand channel ; (4) offshore reefs; and, (5) deep reefs. These major reef habitats and their associated biological communities are dis- cussed in the following section. a. Hawk Channel The prominent channel adjacent to the Keys is Hawk Channel. Three miles wide on the average and up to 15 feet deep, Hawk Channel extends from Biscayne National Park south to well into the lower Keys. The bottom of Hawk Channel is covered with soft fine sediments with sparse patches of sea- grasses, and is flanked by sand bottom areas and seagrass beds mixed with scattered inshore hardgrounds and patch reefs in the east. Ocean Reef, Turtle Harbor and Rock Harbor are sand bottom areas dominated by turtle grass, and North Channel, South Channel and Port Elizabeth are sand bottom areas with turtle grass and hardground with octocorals, sponges and small head corals (Voss, 1982). Angelfish Creek is an isolated patch reef surrounded by turtle grass; Basin Hill Shoals and Mosquito Bank are large, shallow banks of turtle grass dotted with patches of mixed hard and soft corals. Water depths over 14 inshore patch reefs range from less than 1 meter to just over 4 meters. Water clarity, controlled by local wind conditions that stir up shallow, fine-grained bottom sediments, is highly variable (Hudson, 1981). John Pennekamp Coral Reef State Park protects most of the Hawk Channel region with the exception of Basin Hill Shoals and Mosquito Bank which extend into the inner boundary of the Sanctuary. b. Mid-shelf Reef Platform The mid-shelf reef platform is a mosaic of habitats including patch reefs, hardgrounds, barrier-type reef formations, sand bottom areas, and sea grass beds. This region of the Sanctuary is sometimes referred to as intermediate or midshore reefs because the environmental conditions are intermediate to those at inshore reefs and to those further offshore. Water clarity is improved over that found inshore due to the influx of offshore water from the Florida Straits as well as the coarse-grained sediments that resist resuspension during periods of turbulence and to turtle grass beds that trap and bind unconsolidated bottom sediments (Hudson, 1981). Size and complexity of coral formations at the intermediate reef sites are less than that found at offshore reef sites. Key Largo Dry Rocks and Grecian Rocks are the most similar to offshore sites of the group. Grecian Rocks has a back reef, well-defined reef crest consisting primarily of densely packed elkhorn coral, and a short fore reef slope ending in a flat, sandy plateau. Key Largo Dry Rocks lacks a well-defined reef crest, but does have a back reef-rubble zone area and large hard coral development that approximates spur-and-groove formation. White Bank Dry Rocks and Turtle Rocks, unlike Key Largo Dry Rocks and Grecian Rocks, lack any morphological similarity to offshore reefs. Turtle Rocks is a loose aggregation of patch reefs consisting of a variety of hard corals. Patch reefs are separated by patches of turtle grass beds and sand bottom. Patch reefs at White Bank Dry Rocks are shallower and more consolidated than those at Turtle Rocks (Voss, 1982). c. Sand Channel The Sand Channel is more clearly defined in the northern region of the Sanctuary and in Biscayne National Park. The lack of definition of the Channel in the middle and southern portion of the Sanctuary results from long breaks in the fore reef (Curry, 1983, pers. comm.). d. Offshore Reefs Offshore reefs include Molasses, French, and Carysfort Reefs and The Elbow. Jones and Thompson (1978) and Voss (1982) provide a general habitat description of these reefs. Molasses Reef is a barrier-type coral reef with a lagoon community on its shoreward side. It is one of the most complex and productive reefs in the Sanctuary with a well-developed spur-and-groove system on the outer face of the reef. Molasses Reef differs from Caribbean barrier reefs by having an 15 extensive back reef rubble zone separated by a slightly deeper barren zone from a poorly defined elkhorn coral (Acropora palmata) reef crest. The Elbow is similar to Molasses Reef in having a spur-and-groove structure on the outer face and extensive back reef rubble zone. There is an old shipwreck on the reef as indicated by parts of the hull, boilers and engine. French Reef, also has a spur-and-groove formation on the outer face, although it is not as well-defined as at The Elbow, and the zone of active coral growth extends farther seaward than at Molasses Reef. The spurs are dominated by massive star corals (Montastea annularis) and are often inter- laced with caves and passages. French Reef also has extensive back reef rubble. Carysfort Reef shows a zonation and structure typically described for Caribbean barrier reefs (Goreau, 1959). There is a wel 1 -developed back reef zone and elkhorn coral (Acropora palamata) reef crest, which may be exposed at low tide. A fore reef slope gives way to a narrow gently sloping soft coral community that ends abruptly in extensive staghorn coral (Acropora cervicornis) thickets that, at approximately 14 meter water depths, are not found on any other offshore reefs. Further offshore, a barren zone grades into a deep reef slope that ends in a sand terrace at approximately 21 meter water depths. e. Deep Reefs A deep reef zone occupies an area of 50 square nautical miles (130 square kilometers) on the slope of the continental shelf in water depths greater than 100 feet (30.4 meters) (N0AA, 1981). Off French Reef, the deep reef is a continuous extension of the shallow reef, and off The Elbow, the two reefs are separated by a sand bottom and soft coral community. The deep reef off South Carysfort Reef is completely isolated from the shallow reef, and is unique because the common shallow-water staghorn coral is present. At 30 meters, coral and other epibenthic organisms grow on top of outcroppings or isolated carbonate structures that appear to be spurs from anticedent spur-and-groove systems that developed when sea level was at a lower stand (Jaap, 1981). The deep reef formations are surrounded by algal covered sediments and extend seaward to 40 meter depths. Seaward of this depth, the bottom is algal covered cobble with other sedimentary deposits, rose and finger corals, occasional large sponges and tilefish burrows. Beyond 55 meters (181 feet), the algal cobble disappears and a fine sand plain extends to 300 feet (91.4 meters). Except for numerous inconspicuous algae and occasional tilefish, sea bisquits, sea urchins and starfish, this deep zone apprears to be barren bottom. 4. Cultural and Historical Resources a. Carysfort Reef Lighthouse The most prominent cultural resource of the Sanctuary is Carysfort Reef Lighthouse, located at the north end of the Sanctuary. It was the first 16 lighthouse built by the U.S. Lighthouse Service on the Florida reef tract and served as a prototype for the other lighthouses in the Florida Keys built on severely exposed areas. Construction began in 1848 by Captain Howard Stansburg of the U.S. Topographical Corps of Engineers. Its light was first ignited on March 10, 1852, replacing a lightship that had been stationed on Carysfort Reef since 1825. Situated in approximately 6 feet (1.8 m) of water, the light- house is an iron skeleton tower on a pile foundation rising 100 feet (32.3 in) above mean low water. NOAA is currently conducting a structural analysis of the lighthouse as the first step in making some necessary improvements to the dock and living quarters so that it can be used to a limited extent as a base of operations for visiting scientists. b. Shipwrecks In 1733 almost an entire fleet of a 21-ship Spanish flotilla was 1 ost off Key Largo. Of these ships, two gal leons, JE1_ Infante and San Jose ^v_ los Amenas, have been located outside the southern boundary of the Sanctuary. Apparently the fleet was hit by a hurricane while returning to Spain. A hurri- cane may also have played the dominant role in the groundings of the Plata flotilla fleet of 13 galleons near Carysfort Reef in 1755, although the number of ships lost is unknown and no ship of this fleet has ever been located. Today several wreck sites exist in the Sanctuary, providing exciting dives for visitors. One of the best known wrecks is the 60-gun British frigate, HMS Winchester. Thrown on the reef by a storm in 1695, the wreck lies in 30 feet (9.1 m) of water 1.5 miles (2.5 km) southwest of Carysfort Reef Lighthouse, in direct line with Elbow Light. The Winchester was 44.5 meters long, but is now badly broken and scattered throughout the area. Two of the Winchester's cannons, recovered in 1940, are on display at the John Pennekamp Coral Reef State Park headquarters. Another well-known wreck in the Sanctuary is the Benwood, an 87 meter World War II freighter. In 1942, it was torpedoed by a German submarine and as the ship headed to shallow water it was accidentally rammed by another vessel. The hull was subsequently used for bombing practice until it was dynamited and sunk in 50 feet (15.2 m) of water. This maze of steel wreckage is one of the most popular diving spots in the Florida Keys. Lesser known wrecks also are located in the Sanctuary. The steamer Towanda, lost in 1866, can be found just north of Elbow Light. Near Elbow Reef Tower in 30 feet (9 m) of water lie the remains of a wooden ship encrusted with corals, seawhips, and sea fans. Heavy wooden beams are half buried but bronze fastening pins are still visible. The original name and nationality of the ship is unknown but local guides call it either "No Name Wreck", "Civil War Wreck", or "Old Wild Wreck". Ninety feet (27.4 m) due east of Molasses Reef tower, the schooner Windlass lies in 25 feet (7.6 m) of water. Its broken remnants are scattered around the coral heads and add to the excitement of diving at Molasses Reef. The schooner Thiorva went aground and sank at the north end of Turtle Reef on some unknown date. 17 In shallow water on White Bank, seaward of Basin Hill Shoals, sits the wreck of the Charles W. Baird. The hull of this ocean-going barge served as a shelter to wreckers and fishermen until it burned in the 1940's. All that remains is the hull superstructure, heavily encrusted with hard and soft corals, and serving as a haven for a myriad of fishes. Cannons of unknown origin also can be found in the Sanctuary. Approximately 300 feet (91.4 m) west of the wreck of the Towanda (at The Elbow) lies a \/ery old cannon. Its 6 foot (1.8 m) length is encrusted with corals and is reputed to be from a 17th or 18th century Spanish galleon. Another Spanish cannon is located 75 feet (23 m) south of the white buoy at Grecian Rocks. c. Christ of the Deep A unique aspect of the Sanctuary that draws thousands of visitors annually is the 9 foot (2.7 m) bronze statue, Christ of the Deep. It is at Key Largo Dry Rocks standing in approximately 25 feet (7.6 m) of water, 6 miles (9.5 km) east-northeast of the south cut of Largo Sound. Marked by an orange and white surface buoy, the 4,000 lb. statue rests upon a 21-ton concrete base. The statue, created by Guido Galletti of Italy, is an exact replica of the Christ of the Abysses statue placed in 50 feet (15 m) of water in the Mediterranean Sea near Genoa in 1954. 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CU >> a> O > t- (1/5 o 03 03 •p— SZ 3 ■o ■a +J c 00 o -o 03 c c c: O 03 03 00 E OO p— as 3 oo +-> CU -V 03 SZ a OJ sz +■> 03 00 CO p— •f— •p- c OQ "O <♦_ 00 2 ■o L. O ■!-> cu O JZ a 00 +J 4-> cu oo o U c +j CU 3 «3 » Pt 2 X C- -o <4~ to O cu CU cn c cu c: JZ O o p— CO jii 4-> 4-> c a 03 03 03 CL ■pJ cu +■> JZ o c £Z CO o 2 +-» £- a cu •o 00 Q p— •p— 4-> c 03 CO C 03 CU 3 03 CU 03 •r L„ +-> c JD to J= > O •p— •r— •p— !Z ■p— C O E C o -o JZ CU A t- •M •p— O cn t, CU C ■•-> JZ t, cu c cu ■M o ra u 03 JZ •p— > CU a .p— 3 (U +J CO cu TD -»-> 00 00 3 2 er •p— CU c 03 o O 03 c M- ac o U JZ ••-> E •r-" O 00 CU 3 to oo CU CO cu <+- O p-i CsJ JZ o m cu 00 to cu c_ -o -o 03 o *J -a cu c cn co CU •a ed: I. DEPUTIZATION OF STATE OFFICERS AS FEDERAL ENFORCEMENT AGENTS A. Those law enforcement officers (hereinafter referred to as Rangers) who are members of the Division of Recreation and Parks are hereby deputized and authorized as federal law enforcement agents to enforce the Act and the regulations promulgated thereunder, utilizing the powers and authorities of the Lacey Act as appropriate. Enforcement shall be under the direction of the Secretary or his or her designee and in accordance with any guidelines or limitations the Secretary or his or her designee may, from time to time, impose. 63 B. All Rangers, while acting as federal law enforcement agents , shall possess the powers and authorities as set forth above but shall not be held or considered as employees of the United States for the purposes of any laws administered by the United States Office of Personnel Management. Such Rangers, while acting as federal law enforcement agents, shall not be compensated, salaried or otherwise reimbursed by the United States for any services performed or expenses incurred in performance of such duties except as provided by memoranda of understanding, contracts, or cooperative agreements in accordance with this Agreement. C. Except as provided in this Agreement, the Rangers shall not have the authority to carry out any functions or responsibilities of the U.S. Government under the Act. D. Those Rangers who for any reason leave or are removed from service as members of the Division of Recreation and Parks will be simultaneously divested of authority herein conferred*, A newly appointed member will automatically be vested with authority under this Agreement as of the date of his or her appointment. E. All Rangers exercising authority under this Agreement shall, as soon as possible but not later than 15 days following the event, submit written documentation of any action taken pursuant to this Agreement.' Such documents shall include, but not be limited to, case investigation reports, a copy of any written warning or documentation of violation issued, and any supporting exhibits, affidavits, photographs, or other evidence gathered, and shall be submitted to the Southeast Regional. Counsel, National Oceanic and Atmospheric Administration, 9450 Roger Blvd., Suite 127, St. Petersburg, Florida 33702. Any arrest of persons or seizure of vessels made as a result of action taken fey any Ranger under this agreement shall be reported immediately to the NQAA Regional Counsel in St. Petersburg, Florida P. Rangers will be made available, upon request by the appropriate Federal authority, to appear as witnesses in connection with any action brought under the Act with which they have an involvement. G. Any vessel, fish, or cargo seized by a Ranger under the Act may be delivered to a U.S. Government official designated by the Secretary or other appropriate Federal authority. If such official is unable properly to provide for the care, handling, and preservation as evidence of such seized property, employees of the State will be expected to make reasonable arrangements for such care, handling, and preservation as evidence. Costs to third parties with whom arrangements for the care, handling, and preser- vation of seized property are made under this paragraph shall be considered as separate items for payment by the Secretary and will not be the responsi- bility of the State. H. The State shall prepare a monthly report witn respect to the activities under this Agreement and submit this report within 15 days of the close of the reporting month to the Director, Sanctuary Programs Office, National Oceanic and Atmospheric Administration. Such report shall contain, but not be limited to, a summary of the types of contacts made, 64 the frequency of specific violations, locations and tiroes (dates and hours) of patrols, and such other actions as may have been taken pursuant to the Act. In addition, the State shall make recan nendations , as appropriate, for improving the enforcement of marine sanctuary violations. II. OONDITICNS AND TERM OF AGREEMENT A. This Agreement shall be effective as of the date it is signed by the parties and shall remain in effect until 30 days after either party has given the other written notice of termination. This Agreement may be amended with the mutual consent of the parties in writing. B. In no event shall this Agreement be interpreted to conflict with any directives, specific operating policies or procedures promulgated by the Secretary or the State, without the express oral or written consent of an appropriate official of the United States or the Florida Division of Recreation and Parks respectively. If the terms of this agreement are inconsistent with any such existing directives, policies or procedures then those inconsistent terms shall be invalid, but the remaining terms and conditions shall remain in full force and effect. C. This agreement shall be construed to be consistent with the .Act, and regulations promulgated under that Act. UNITED STATE FOR THE SEQ BY: jf& TiytEz 1 Act: pig Assistant Administrator DATE: JUL 2 ? 1992 FLORIDA DEPARTMENT OF NATURAL RESOURCES FOR THE STATE OH FLORIDA BY: ZX^?)J L—UJt~ -w^— — APPROVED as TO SQHk & fcCGAUTY TITLE: Executive, Director ««=« JUlY 30. 19ft? °EPARTMENTATTO»NCV 65 APPENDIX E Sanctuary Research Guidelines DRAFT GUIDELINES FOR RESEARCH IN NATIONAL MARINE SANCTUARIES I. GUIDELINES FOR RESEARCH PROPOSALS A. Sanctuary-Sponsored Research The Sanctuary Programs Division (SPD) of the Office of Ocean and Coastal Resource Management in the National Oceanic and Atmospheric Administration (NOAA) provides support for research which addresses management issues in national marine sanctuaries. Research priorities are identified in sanctuary management plans. B. Types of Proposals The SPD provides financial support for research through grants, contracts, and cooperative agreements. Cost-sharing and coordination of projects with other government agencies, universities and private institutions is encouraged. The SPD considers proposals from universities and colleges; nonacademic research institutions (e.g., research laboratories, independent museums, professional societies); private organizations; local, state or other Federal government agencies; and unaffiliated qualified individuals. Proposals for research in national marine sanctuaries fall under one of several categories as defined below: 1. Competitive Proposals. Any procurement for which bids, quotations, or proposals are solicited or requested from several qualified sources for competitive evaluation. Requests for proposals (RFP) and scope of work are published in the Commerce Business Daily. 2. Noncompetitive Proposals. Any procurement for which bids, quotations or proposals are solicited or requested from only one source or for which only one bid, proposal or quotation is received. Noncompetitive proposals are considered when: (1) no other source has the capabilility and/or experience; (2) efforts to find other firms are unsuccessful; (3) only the one proposed contractor can meet the required delivery schedule; or (4) it would be less than economic if the requirement was procured by another source. 3. Unsolicited Proposals. Any formal written offer to perform a proposed task or effort that is initiated and submitted by a qualified prospective contractor without a solicitation by SPD. SPD encourages the submission of ideas, concepts or suggestions that may help to improve or enhance its mission or sanctuary management capabilities through unique or innovative methods or approaches. 69 C. General Policies Proposals for research in national marine sanctuaries are evaluated in accordance with stated evaluation criteria (see Guidelines for Evaluating Proposals). All proposals are reviewed by SPD officials, and experts know- ledgable on the subject matter. SPD does not normally support open-ended projects, projects with vague goals, projects with untested and unproven methods, or projects that will have adverse impacts on the sanctuary environment. New methods should be field tested and evaluated in small projects before use in major projects supported by SPD in order to ensure a high probability of successful project completion. SPD will consider providing support for research conducted outside of the sanctuary if the proposed effort is of importance to sanctuary management. When proposals include activities prohibited by sanctuary regulations, it may be determined that all or part of the research should be conducted outside the sanctuary boundary. Sanctuary regulations and Guidelines for applying for Sanctuary Research/Education Permits should be consulted to determine the appropriateness of the research approach considered before a proposal is submitted to SPD. Under special circumstances, activities otherwise prohibited by sanctuary regulations may be permitted under NOAA permit or otherwise con- ditioned to reduce the threat of harm to the environment. When research supported by other sources is to be conducted in the sanctuary, SPD and on-site sanctuary personnel should be notified in advance by the principal investigator to help assure that responsible program personnel are aware of all research activities in a particular sanctuary. Provisions for emergency response to crisis situations that may affect the sanctuary are being considered. During the past, several potential emergency situations have occurred, including oil spills, massive fish kills, apparent epidemics of disease, and boat groundings, and no contingency plan was in place to respond to the crisis or assess its impact in an organized and timely fashion. D. Proposal Content 1. Cover Sheet. The cover sheet should identify the following, where applicable: Announcement or solicitation number and closing date (if any) or identify as unsolicited Name of national marine sanctuary where proposed project is to be conducted ° Title of proposed project 70 ° Name and address of organization to which the award would be made 0 Type of organization Name, address and phone number of principal investigator and additional key project representatives ° Requested amount ° Proposed start date ° Proposed Project duration 0 Other funding sources (actual or potential) 0 Previous award numbers for renewal or continued support The title of the proposed research project should be brief, informative and intelligible to the general public. Specification of a proposed starting date does not guarantee award by that date (see page D-6). Work on the project should not begin before the effective date designated on the official notification of the award. A proposal must be signed by the organizational official authorized to contractually obligate the submitting organization. The principal investigator is also signatory. 2. Table of Content. 3. Lists of Figures and Tables. 4. Project Summary. A 250-word project summary should include a statement of research objectives, scientific methods to be used and the significance of the project to a particular sanctuary or to the national marine sanctuary system. The summary should be suitable for use in the public press. 5. Project Description. The main body of the proposal should be concise, but detailed. It should include: a. Description of Current State of Knowledge. Discuss the problem in light of significant previous work in the area. b. Project Objectives. State the objectives of the study. c. Project Significance. Discuss how the proposed effort will enhance or contribute to improving the state of knowledge. Discuss any relevant management issues and how the proposed effort will contribute to sanctuary management decisionmaking, future sanctuary research, and/or other works in progress. 71 d. Methods. Describe the tasks required to accomplish the pro- ject's objectives. Provide adequate description of field and laboratory methods and procedures. Provide a map to study location(s). Indicate habitat areas of particular concern. Indicate where laboratory analyses will be conducted, if applicable. Describe the rationale for selecting the proposed methods and study locations over any alternatives. Identify any environmental consequences. List and describe facilities and equipment to be used. Collaborative arrange- ments and cost-sharing should be documented in the proposal. ee Analysis of Results. Discuss how the results will be analyzed. Reference relevant statistical analyses. f. Deliverables. Discuss anticipated final products -- see IV. Report Preparation. Provide sample graphics or illustrations and layout design. If color photographs or graphics are to be used, provide justification for use and estimate total number. Indicate how results will be treated -- published in reference journal, published in the public press, incorporated into academic curriculum, submitted to SPD's Technical Report Series, etc (Note the SPD prints and publishes a limited number of outstanding reports in its Technical Report Series). 6* Personnel . Describe the research team and the specific task assign- ments of team members. Indicate the percentage of time, based on the offeror's regular work week, that personnel are expected to devote to the proposed work. Provide resumes listing qualifications and details relating professional and technical personnel. In an appendix, list each investigator's publications during the past 5 years. Describe and explain any portion of work expected to be subcontracted and identify probable sources. Submit evidence of ability to perform. Such evidence shall be in reference to similar efforts performed. 7. References. Cite only those used in the text of the proposal. 8. Budget, The applicant may request funds under any of the categories listed below as long as the item is considered necessary to perform the research. The applicant should provide justification for major items requested. a. Salaries and Wages. Salaries and wages of the principal inves- tigator and other members of the project team constitute direct costs in proportion to the effort devoted to the project. The number of fulltime person months or days and the rate of pay (hourly, monthly or annual) should be indicated. Salaries requested must be consistent with the institution's regular practices. The submitting organization may request that salary data remain proprietary information. b. Fringe Benefits. Fringe benefits (i.e., social security, insurance, retirement) may be treated as direct costs so long as this is consistent with the institution's regular practices. c. Equipment. Itemize equipment to be purchased, leased or rented by model number and manufacturer, where known. Describe purpose of 72 use. SPD defines equipment as an item of property that has an acquisition cost of $300 or more and an expected service life of 2 years or more. Equipment becomes the property of SPD at the termination of the contract. Where possible and economically advantageous, equipment should be rented or leased for the duration of the project. d. Travel . Describe the type and extent of travel and relation to the proposed research. Travel expense should not exceed 40 percent of total direct costs. Funds may be requested for field work and subsistence and for consultant 's travel . e. Other Direct Costs. The budget should itemize other antici- pated costs under the following categories: (1) Materials and Supplies. The budget should indicate in general terms the types of expendable materials and supplies required with their estimated costs. (2) Research Vessel or Aircraft Rental. Include unit cost and duration of use. (3) Laboratory Space Rental. Funds may be requested for use of laboratory space at research establishments away from the grantee institution while conducting studies specifically related to the proposed effort. (4) Reference Books and Periodicals. Funds may be requested for reference books and periodicals only if they are specifically required for the research project. (5) Publication and Reproduction Costs. This includes costs of preparing written text and illustrations and publishing results. (6) Consultant Services. Consultant services should be justified and information furnished on consultant's expertise, primary organizational affiliation, daily compensation rate and number of days of expected service. (Travel should be listed under travel in the budget). (7) Computer Services. The cost of computer services, including data analyses and storage, word processing for report preparation and computer-based retrieval of scienti- fic and technical information, may be requested and must be justified. (8) Subcontracts. Subcontracts must be be disclosed in the proposal for approval by SPD. f. Indirect Costs. Appropriate or established indirect cost rate; e.g., fees. 73 7. Other Sources of Financial Support. List all current or pending research to which the principal investigator or other key personnel have committed their time during the period of the proposed work, regardless of the source of support. Indicate the level of effort or percentage of time devoted to these projects. If the proposal submitted to SPD is being submitted to other possible sponsors, list them and describe the extent of support sought. Disclosure of this information will not jeoparadize chances for SPD funding. 8. Application for Sanctuary Permit. Removal or manipulation of sanctuary resources or activities prohibited by sanctuary regulations requires a sanctuary permit. Proposals should discuss the environmental consequence of conducting an otherwise prohibited activity and indicate whether the activity could be conducted outside the sanctuary and accomplish the project's objectives If collecting is required, indicate the type and quantity and where specimens will be deposited. Indicate what organisms might be collected incidentally to those specifically sought and identify specialists who might be interested in incidental groups. 9. Requests for Sanctuary Support Services. SPD has limited on-site sanctuary personnel, facilities and equipment which may be used on loan or lease to support research under special circumstances. Requests should include the following information: (1) type of support requested; (2) justification; (3) dates and duration of use; and (4) alternative plans if support is not available. 10. Coordination with Other Research In Progress or Proposed. SPD encourages coordination, collaboration and cost-sharing with other investi- gators to enhance scientific capabilities and avoid unnecessary duplication of effort. Proposals should include a description of these efforts. E. Submission of Proposals Dates for submission of solicited proposals are announced in the Commerce Business Daily. Unsolicited research proposals may be submitted at any time but in order to be funded in a particular fiscal year (ending September 30), proposals should be received no later than December 15 of that year. Applicants should allow at least three (3) months for review. Five (5) copies of the proposal should be submitted to: Dr. Nancy Foster Chief Sanctuary Programs Division Office of Ocean and Coastal Resources Management National Oceanic and Atmospheric Administration 3300 Whitehaven Street, N.W. Washington, D.C. 20235 (202)634-4236 Washington, D.C. 20235 (202)634-4236 74 GUIDELINES FOR SANCTUARY PERMITS* A. Introduction Permits may be issued by the Assistant Administrator for National Ocean Services or his/her designee under special circumstances for activities other- wise prohibited by sanctuary regulations when related to (1) research to enhance scientific understanding of the sanctuary environment or to improve management decisionmaking; (2) education to further public awareness, understanding, and wise use of the sanctuary environment; or (3) salvage and recovery operations Requests for permits are reviewed by SPD program officials. B. Application Content 1. Cover Sheet. The cover sheet should identify: (1) name of the national marine sanctuary in which the proposed activity would take place; (2) title of project; (3) name, address, telephone number, and affiliation of applicant: (4) name, affiliation, and relationship of colleagues to be covered by the permit; (5) project duration; (6) funding source; (7) key words; and (8) signa- ture of applicant on letterhead stationary. 2. Project Summary. A 250-word project summary should include a brief statement of research objectives, scientific methods to be used, and significance of the proposed work to a particular sanctuary or to the national marine sanctuary system. The summary should be suitable for use in the public- press. 3. Technical Information. This includes clear, concise and complete statements of the following: a. Objectives. State the objectives of the study. b. Project Significance. Discuss significant previous work in the area of interest and how the proposed effort would enhance or contribute to improving the state of knowledge. Explain why the proposed effort should be performed in the sanctuary and the potential benefits of the proposed effort to the sanctuary. c. Methods. Describe the tasks required to accomplish the project's objectives. Provide adequate description of field and laboratory methods and procedures. Describe the rationale for selecting the proposed methods over any alternative methods. If collecting is required, indicate the type and quantity and where specimens would be deposited. Indicate what organisms might be collected incidentally to those specifically sought and identify specialists who might be interested in incidental groups. *Note: Applicants submitting proposals for financial support should include permit requests in proposals following SPD's Guidelines for Research Proposals Investigators conducting non-SPD-sponsored research should follow guidelines discussed herein. 75 Provide a map to field study location(s). Describe habitat areas of particular concern. Indicate where the laboratory analyses will be conducted, if applicable. d. Environmental Consequences. Discuss the environmental consequence of conducting an otherwise prohibited activity and indicate whether the activity could be conducted outside the Sanctuary and accomplish the projects objectives. e. Personnel . Describe the research team and specific task assign- ments of team members. Provide evidence of ability to perform (i.e., qualifi- cations and reference to similar efforts performed). Note that only those persons specifically listed on the permit will be allowed to participate in permitted activities. f. Treatment of Results. Describe the nature and extent of antici- pated results. Indicate how the results will be treated (e.g., published in a reference journal, incorporated into academic curriculum, used in management decisionmaking, published in the public press). g. References. Cite only those used in the text of the proposal. 4. Supporting Information a. Financial Support. Provide contract number, performance period, and name of sponsoring agency. b. Coordination with Research in Progress or Proposed. SPD encourages coordination and cost-sharing with other investigators to enhance scientific capabilities and avoid unnecessary duplication of effort. Applications should include a description of these efforts, where applicable. C. Requests for Sanctuary Support Services SPD has limited on-site sanctuary personnel, facilities and equipment that may be used on loan or lease to support research under special circumstances. Requests for support should accompany the permit application and include the following information: (1) type of support requested; (2) justification; (3) dates and length of use; and (4) alternative plans if support is not available. D. Requests for Amendments to Active Permits Requests for extension of a permit period, change in study design or other form of amendment to active permits should conform to these guidelines. All pertinent information needed to make an objective evaluation of the amendment should be included in the request. The applicant may reference the original application in the request for an amendment. 76 E. Submission of Requests for Permits Requests for permits should be submitted in five (5) duplicate copies at least three (3) months in advance of the requested effective date to allow sufficient time for evaluation and processing. In proven emergency situations, exceptions to this requirement may be considered. Requests for permits should be addressed as follows: Assistant Administrator for National Ocean Service ATT: Dr. Nancy Foster, Chief Sanctuary Programs Division Office of Ocean and Coastal Resource Management 3300 Whitehaven Street, N.W. Washington, D.C. 20235 (202)634-4236 F. Evaluation of Permit Permit applications are checked for completeness and adherence to these guidelines. Complete applications are assigned tracking numbers. Incomplete applications are returned to applicant for clarification. Complete applica- tions reviewed by SPD program officials and outside experts. Applications are judged on the basis of (1) relevance or importance to sanctuary; (2) scientific or educational merits; (3) appropriateness and environmental consequences of technical approach; and (4) whether the proposed effort should be conducted outside of the sanctuary. G. Conditions of Permits Based on the findings of the evaluation, SPD recommends an appropriate action to the Assistant Administrator. If denied, applicants are notified of the reason for denial. If approved, the Assistant Administrator or his/her designee issues the permit. Permit holders must counter-sign the permit and return copies to SPD and on-site sanctuary personnel prior to conducting permitted activities in the sanctuary. A NOAA/SPD research flag will be issued to the permit holder by on-site sanctuary personnel. The flag must be displayed by the permit holder while conducting the permitted activity and returned to on-site personnel upon completion of the permitted activity. This requirement not only assures that sanctuary personnel are aware of permitted activities, but also alerts other sanctuary users that research is in progress. Permits must be carried aboard research vessels and made available upon request for inspection by sanctuary personnel or law enforcement officials. Only persons named on the permit may participate in permitted activities. Permits and NOAA/SPD flags are non-transferrable. Permit holders must abide by all provisions set forth in the permit as well as applicable sanctuary regulations. Applications for sanctuary permits are incorporated into the 77 conditions of the permit. Permitted activites must be conducted with adequate safeguards for the environment. Insofar as possible, the environment shall be returned to the condition which existed before the activity occurred. Any information obtained pursuant to the permitted activity shall be made available to the public. Submission of one or more reports to SPD on the permitted activity may be required. The Assistant Administrator may amend, suspend, or revoke a permit granted pursuant to these guidelines and sanctuary regulations, in whole or in part, temporarily or indefinitely, if in his/her view the permit holder(s) acted in violation of the terms of the permit or of applicable sanctuary regulations, or for any good cause shown. Any such action shall be communicated in writing to the permit holder, and shall set forth the reason for the action taken. The permit holder in relation to whom the action is taken may appeal the action as provided for in sanctuary regulations. H. Monitoring of Performance Permitted activities will be monitored to ensure compliance with the conditions of the permit. SPD and on-site sanctuary personnel may periodically assess work in progress by visiting the study location and observing any activity permitted by the permit or by reviewing any required reports. The discovery of any potential irregularities in performance under the permit shall be promptly reported and appropriate action taken. Permitted activities will be evaluated and the findings will be used to evaluate future applications. 78 APPENDIX F Summary of Sanctuary-sponsored Research cd o c CD C- CD <+- CO o -l-> -o O) +-> 03 r— >> CD X C£ 03 3 X 4-> o O X X 03 03 cd CO 00 CD cd C£ x •p— ■o X cd 03 t_ 21 o 00 i — x 03 o X Q. o co •p— 1 +-> >> 03 L. z 03 a o +-> CO o X c: 03 03 _J CO >> <4- O ^ >> t- 03 E E 3 CO CD > •I — +-> o •■-3 o o 4-> 03 CO •r- +-> CO CD > 03 CM +-> o CD o a. 4-> X o a. 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C 03 CD CD X r- >,_l C •1-3 lu c. -a -r- O O 3 >,L t- C O 4-> CD 03 a. < s: oo ^ s APPENDIX G Literature Cited Literature Cited (See Appendix F for additional references) Bohnsack, J. A., Resiliency of coral reef fish community structure in response to reduced harvesting pressure. A preliminary report to the Director of University Affairs, Office of the Administrator, National Oceanic and Atmospheric Administration, Washington, DC, February 1982 Curry, R., Personal Communication Biscayne National Park, Homestead, FL, 1983 Hoffmeister, J. H., Land from the Sea: The Geologic Story of South Florida, University of Miami Press, Coral Gables, FL, 1974 Hudson, J. H., Growth rates in Montastraea annularis: A record of environmental change in Key Largo Coral Reef Marine Sanctuary. Bull. Mar. Sci . 31(2): 444-459, 1981 Jaap, W. C, Stony Corals (Milleporina and Scleractinia) . In: Key Largo Coral Reef Marine Sanctuary Deep Water Resource Survey, National Oceanic and Atmospheric Administration, CZ/SP-1, pp 7-14, July 1981 Jones, R. S., and M. J. Thompson. Comparison of Florida Reef Fish Assemblages using a rapid visual technique. Bull. Mar. Sci. 28(1): 159-172, 1978 National Oceanic and Atmospheric Administration. Department of Commerce, Program Development Plan, 1982 National Oceanic and Atmospheric Administration. Key Largo Coral Reef Marine Sanctuary Deep Water Resource Survey. CZ/SP-1, Washington, DC, July 1981 Voss, G. L., An Environmental Assessment of Key Largo National Marine Sanctuary. Draft Final Report to the Sanctuary Programs Division, Office of Ocean and Coastal Resources, National Ocean Service under Contract number NA-79-SAC-00813. 89 PTlflY^iK"S,TY "-'BRAR.ES A0000?i2