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Key Largo
National Marine Sanctuary
Management Plan
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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<ititiii«ii X
B. Marine Sanctuary Program Goals 1
C. Key Largo National Marine Sanctuary 1
D. Purpose and Scope of the 1983 Key Largo
National Marine Sanctuary Management Plan 2
II. KEY LARGO NATIONAL MARINE SANCTUARY 5
A. Regional Context 5
1. Sanctuary Location 5
2. Sanctuary Access 5
3. Sanctuary Uses 5
B. Sanctuary Environment 5
1. Physical Environment 5
a. Climate 5
b. Water Masses 7
c. Historical Geology 8
2. Living Marine Resources -- The Communities 8
a. Seagrass and Sand Communities 8
b. Patch Reef Communities 11
c. Hardbottom Communities 12
d. Outer Coral Reef Communities 12
e. Deep Water Reef Communities 13
3. Living Marine Resources -- The Habitats 14
a. Hawk Channel 14
b. Mid-shelf Reef Platform 15
c. Sand Channel 15
d. Offshore Reefs 15
e. Deep Reefs 16
4. Cultural and Historical Resources 16
a. Carysfort Reef Lighthouse 16
b. Shipwrecks 17
c. Christ of the Deep 18
III. MANAGEMENT ISSUES, EVIDENCE AND STRATEGY 19
A. Introduction 19
B. Phase 1 Management Issues, Analysis and Strategy 19
IV. GUIDELINES FOR CONTINUING PROGRAM MANAGEMENT 23
A. Introduction 23
B. Administration 23
1. Administration: Roles and Responsibilities 24
2. Resource Protection: Roles and Responsibilities 25
3. Research Management: Roles and Responsibilities 26
4. Interpretation: Roles and Responsibilities 28
C. Resource Protection 29
1. Sanctuary Regulations 29
2. Future Activities 30
D. Research Management 33
1. General Context for Management 33
2. A Framework for Research 33
3. Priorities for Research and Future Activities 33
a. Establish a Comprehensive Baseline Picture of the
Sanctuary. 34
b. Develop an Effective Monitoring Program for the
Sa net ua ry 35
c. Establish an Effective Research Management Program
for the Sanctuary 35
d. Conduct Feasibility Studies on Research Support
Facil i ties 36
4. Annual Review of Research Program 36
5. Proposals for Research 36
6. Proposal Processing and Evaluation 37
7. Project Tracking and Product Evaluation 37
! 1
E. Interpretation 37
1. Existing Facilities and Programs 38
a. Vi sitor Center 38
b. Glass Bottom Boat Tour 38
2. Future Activities 39
V. APPENDICES 41
A. Marine Protection, Research and Sanctuaries Act,
Title III, P.L. 92-532 41
B. Sanctuary Coordi nates 47
C. Key Largo National Marine Sanctuary Final
Regulations 51
D. Surveillance and Enforcement Memorandum of
Agreement 61
E. Sanctuary Research Guidelines 67
F. Summary of Sanctuary-sponsored Research 79
G. Literature Cited 87
in
EXECUTIVE SUMMARY
Title III of the Marine Protection, Research and Sanctuaries Act of
1972 (Pub. L. 96-332) authorizes designation of marine areas as sanctuaries
to preserve or restore conservation, recreational, ecological or esthetic
values. Growing levels of human activities associated with the South
Florida Coral Reef Tract and the reefs environmentally sensitive nature
led to the designation of the Key Largo National Marine Sanctuary in 1975.
The Sanctuary protects approximately 100 square miles of marine resources
in federal waters off the coast of Key Largo, Florida. The coral reef tract
in the Sanctuary represents some of the world's northernmost living barrier
reefs and the only reefs located in continental U.S. waters. A diverse
array of invertebrates and fish inhabit the overhangs, crevices, sand flats,
seagrass meadows and other microhabi tats located in the Sanctuary.
Accessible from Miami and the upper Keys, the Sanctuary reefs are
heavily used, particularly in the summer, by divers, snorkelers, research
scientists and recreational and commercial fishermen. With such striking
natural resources, and educational and recreational opportunities, a compre-
hensive management framework is essential to ensure the reef's long-term
viabil ity.
Since 1975, management efforts have focused on increasing under-
standing of the reefs ecology through research and on encouraging wise
recreational use through interpretation. The initial programs to achieve
these goals were directed by a management plan prepared in 1979. This
revision of the 1979 management plan uses knowledge gained from past
management experiences to formulate strategies for resource protection,
interpretation, and research studies over the next five years.
The plan presents the future sanctuary management in two phases. During
the first two years of implementation (Phase 1), the focus will be on resolving
the current management issues and improving existing operations. Phase 2
activities will be determined based on an evaluation of the effectiveness
of Phase 1 activities and identification of management needs over the longer
term.
Management issues of concern during Phase 1 include: concentration of
visitor activities in the southern portion of the sanctuary; inadequate
facilities for visiting scientists which severly limits the scope of work
conducted in the Sanctuary; level of proposed development planned for upper
Key Largo adjacent to the Sanctuary; and, the increasing occurrence of
coral and fish diseases. Strategies to resolve these management issues
can be found in Section III. Phase 1 activities are likely to include:
° evaluate mooring buoys effectiveness;
° evaluate surveillance and enforcement effectiveness;
° develop long-term interpretive plan;
° determine the need for landbased signage, and install where
appropriate;
° repair Carysfort Reef Lighthouse dock;
° study endemic lobster population cycles; and,
0 determine study needs for identification of cause(s) of
coral and fish diseases.
VI
ACKNOWLEDGEMENTS
The Sanctuary Programs Division would like to thank the following people
for contributing their time and expertise in developing this management plan:
Ellison Hardee, Bureau of Environmental Land Management, Division
of Recreation and Parks, Florida Department of Natural Resources,
Virginia Vail, Bureau of Environmental Land Management, Division
of Recreation and Parks, Florida Department of Natural Resources,
Captain Mark W. Glissen, Bureau of Park Programs, Division of
Recreation and Parks, Florida Department of Natural Resources,
John Halas, Key Largo National Marine Sanctuary,
Lieutenant Junior Grade Peter Anderson, Bureau of Park Programs,
Division of Recreation and Parks, Florida Department of Natural
Resources,
Renate Skinner, Bureau of Park Programs, Division of Recreation and
Parks, Florida Department of Natural Resources,
Grant L. Beardsley, Southeast Fisheries Center, National Marine
Fisheries Service, National Oceanic and Atmospheric Administration,
Jim Bohnsack, Southeast Fisheries Center, National Marine Fisheries
Service, National Oceanic and Atmospheric Administration,
Rick Childs, Biscayne National Park, National Park Service,
Richard Curry, Resource Management Division, Biscayne National Park,
National Park Service,
Linda C. Dye, Resource Management Division, Biscayne National Park,
National Park Service,
Walter Jaap, Marine Research Laboratory, Florida Department of Natural
Resources,
William G. Lyons, Marine Research Laboratory, Florida Department
of Natural Resources,
Don Marszalack, Department of Marine Geology, Rosenstiel School
of Marine and Atmospheric Sciences, University of Miami,
James Tilmant, Marine Biologist, Everglades National Park and Fort
Jefferson National Monument, National Park Service.
VI i
KEY LARGO NATIONAL MARINE SANCTUARY MANAGEMENT PLAN
I. INTRODUCTION
A. Authorising Legislation
Title III of the Marine Protection, Research and Sanctuaries Act of 1972,
as amended in 1980, (the Act), authorizes the Secretary of Commerce, following
Presidential approval, to designate special marine areas as national marine
sanctuaries (Appendix A). Such designation is intended to preserve or restore
the area's conservation, recreational, ecological, or esthetic values through
comprehensive management. The Act is administered by the National Oceanic and
Atmospheric Administration (NOAA) through the National Ocean Service (NOS),
Office of Ocean and Coastal Resource Management (OCRM), Sanctuary Programs
Division (SPD).
B. Marine Sanctuary Program Goals
The National Marine Sanctuary Program's mission is to establish a system
of sanctuaries based on the identification, designation, and comprehensive
management of special marine areas for the long-term benefit and enjoyment
of the public (NOAA, 1982). Once designated, sanctuary resources are managed
to meet the following goals:
° Enhance resource protection through implementation of a comprehensive,
long-term multiple use management plan tailored to the specific
resources;
° Promote and coordinate research to expand scientific knowledge
of significant marine resources to improve management decision-
making in marine sanctuaries;
° Enhance public awareness, understanding, and wise use of the
marine environment through public interpretive and recreational
programs; and,
° Provide for optimum compatible public and private use of special
marine areas.
C. Key Largo National Marine Sanctuary
The only living coral reef tract in the waters of the continental U.S.
exists in the Atlantic Ocean adjacent to the Florida Keys. This location is
at the geographic limit where the proper environmental conditions necessary for
coral survival exist. Natural forces such as hurricanes, storms and the
intrusion of colder water change the environment from time to time, subjecting
the reefs to stressful conditions. Aside from such natural forces, coral reef
survival also can be affected by recreational and commercial activities.
Thousands of visitors are attracted to these coral reefs annually. Many local
businesses depend directly on the existence of healthy, thriving coral reefs
for their livelihood, while others are equally dependent on the tourists
attracted to these luxuriant coral reefs. However, in the past, coral damage
has been caused by careless boating and diving practices and coral takes many
years of growth to replace broken or damaged portions.
The potential adverse effect of human activities on the environmentally
sensitive South Florida Coral Reef Tract led to the designation of the Key
Largo National Marine Sanctuary in 1975. Overall management responsibility
rests with the Sanctuary Programs Division, while the Florida Department of
Natural Resources assists with onsite management. Programmatic goals were
established by the Sanctuary Programs Division to provide a framework for
management of the Sanctuary. The first management plan for the Key Largo
National Marine Sanctuary, published in 1979, includes a description of
sanctuary resources and uses, the sanctuary administrative framework, and
the types of activities planned for the Sanctuary until the early 1980's.
D. Purpose and Scope of the 1983 Key Largo National Marine Sanctuary
Management Plan
The purpose of this management plan is to provide an action-oriented, for-
ward-looking strategy to guide sanctuary management for the next five years.
Management planning involves continuous information gathering and analysis in
order to respond to changing conditions. This plan is based on knowledge
gained from past management experiences and recently developed sanctuary
program policies. It provides a comprehensive, yet flexible, management
strategy which focuses all activities over the coming years. Specific programs
to implement the management strategy include resource protection, research
studies, interpretation and administration.
Direction for these programs is provided by the following goals and
objectives for the Key Largo National Marine Sanctuary:
Resource Protection Management - Protecting the sanctuary
resources and environment is an important function of the
Marine Sanctuary Program.
Specific management objectives:
° provide resources necessary to enforce the sanctuary
regulations;
° ensure that Federal regulations adequately protect
sanctuary resources without being overburdensome; and,
° design contingency operation plans for environmental
disasters such as boat groundings, oil spills, fish
kills and disease epidemics.
Interpretive Management - The interpretive program goal
is to enhance visitor awareness of sanctuary resources
to broaden their experiences and enhance appreciation
of the resources, while encouraging wise use.
Specific management objectives:
° enhance public understanding of the marine environ-
ment and the programs used to protect the resources;
° inform a maximum number of audiences, including users
and non-users; and,
° increase public understanding of marine issues related
to and affecting the Sanctuary, including an appreciation
of the need for sanctuary designation.
Research Management - The goal for sanctuary research is
to encourage research directed toward understanding and
managing sanctuary resources. Information gained
through research will aid the other sanctuary programs.
Specific management objectives:
0 establish a research plan that will provide maximum
benefit to sanctuary management;
° identify those projects that should be given highest
priority and funding; and,
° incorporate research results into the resource pro-
tection and interpretive programs.
The Sanctuary Programs Division, the Florida Department of Natural Resources
and the Management Review Committee will evaluate management effectiveness
annually to fine-tune management direction and incorporate newly acquired
information into the decisionmaking process. After the fourth year of
operations, these groups will combine efforts to produce an updated version
of the Key Largo National Marine Sanctuary Management Plan.
II. KEY LARGO NATIONAL MARINE SANCTUARY
A, Regional Context
1 . Sanctuary Location
The Key Largo National Marine Sanctuary, extends from the 3-mile
limit of state jurisdiction off Key Largo, Florida, seaward to the 300-foot
isobath. The Sanctuary encompasses 100 square miles, approximately 20 miles
in length and varies from 3-6 miles in width (Figure 1).
There are two other coral preserves in the immediate area. Sharing a
common boundary to the west of the Sanctuary is the John Pennekamp Coral Reef
State Park, established in 1960 to protect the waters within the state's 3-mile
jurisdictional limit. Directly north of the Sanctuary is the Biscayne National
Park which preserves 175,000 acres of shallow bay, two offshore keys, seagrass
beds, patch reefs, and the northernmost reefs of the South Florida Coral Reef
Tract.
2. Sanctuary Access
Because the Sanctuary is located 3 miles offshore, visitors can reach
the Sanctuary only by some type of marine transportation. Several public boat
ramps and private launching facilities located along the Keys provide access
points for boats trailered into the area. Boaters also may embark from private
boat docks or rental concessions. Although a boat trip to the Sanctuary from
the Miami area takes many hours, some boaters make it an enjoyable weekend trip.
3. Sanctuary Uses
It is estimated that thousands of visitors visit the Sanctuary annually
for recreational, commercial, and research purposes which include:
0 SCUBA diving ° scientific research
° snorkeling ° boating
° sport fishing ° water skiing
0 commercial fishing ° swimming
B. Sanctuary Environment
1 . Physical Environment
a. Climate
Subtropical climatic conditions prevail in the Key Largo area
due to the southerly latitude of the area and the warm Florida Current which
flows along the Atlantic coast. The Florida Current, and the occasionally
KEY LARGO NATIONAL MARINE SANCTUARY
LOCATION MAP
FIGURE 1
meandering current waters, known as spin-off eddies which come over the reef
into nearshore areas, warm the onshore winds.
Wind speed and direction are variable throughout the year, however
the prevailing winds blow easterly to southeasterly. Strong easterlies can
create rough conditions on the outer reefs. Wind speed varies from 10-15
miles per hour in April, the windiest month, to 5 miles per hour in July and
August, the calmest months. During winter months (November-April) cold fronts
may occur on an average of one per week. At the onset of a cold front, winds
blow from the south, southeast, and shift to north, northwest after its passage.
The northerly winds can measure up to 25-30 knots. During the summer, winds
are light and variable, primarily from the southeast direction. Summer months,
however, are not without the influence of storms and occassional hurricanes.
The air temperature cycle is closely linked to meteorological
conditions. The mean annual air temperature is 76.2° F (24.6°C) with the
highest temperatures occurring in August and the lowest temperatures in January.
The greatest number of clear days occur in winter and early spring. The number
of cloudy days increases in the fall as clouds originate over the Straits of
Florida and are transported via the prevailing winds.
Average yearly rainfall is 46.26" with the rainy season occur-
ring from May to October and the dry season from November through April.
During the summer, thunderstorms form over the Florida Current and move inshore
during the hottest part of the day.
b. Water Masses
Seawater temperature is influenced by atmospheric forcing, the
Florida Current, and its associated eddies, and cross-shelf outwelling of
Biscayne Bay, Card Sound and Florida Bay waters. Seawater temperatures fluctuate
around 9°F (5°C) annually over outer reefs which are under the influence of the
warm, stable Florida Current. Temperature rarely exceeds 89°F (32°C) and
rarely drops below 68°F (20°C). However, abrupt changes of temperature with
depth do occur off deep reefs as a result of a seasonal thermocline or due to
a spin-off eddy containing upwel lings of deeper, cooler Florida Current water.
Additionally, passage of cold fronts with attendant reduced air temperature
causes a corresponding drop in surface seawater temperature.
The annual change in seawater temperature in shallower mid- and
inshore shelf locations is more variable (18°F or 9.9°C). On the shallow
carbonate shelf, both chilling and heating of seawater is more rapid and
extreme. Some cold air fronts produce water temperatures that could be lethal
to corals (15°C). Also, advection of bay and sound waters, which are highly
variable in temperature, salinity and turbidity conditions, can create stressful
conditions. Reefs off Key Largo are more protected from the latter situation
than reefs to the north and south due to the solid Key Largo landmass which
has few tidal inlets thus inhibiting passage of bay and sound waters.
Salinity remains fairly constant throughout the Sanctuary with
slight temporary changes due to spin-off eddies, shifts in current direction,
and heavy precipitation or evaporation during long periods of direct sunlight.
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
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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. Duplicated for Egidi
Cressi, an internationally known industrialist and undersea sportsman, it
was donated to the Undersea Society of America in 1961 and placed at Key
Largo Dry Rocks by the Florida Park Service for diving enthusiasts to
enjoy.
18
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IV. GUIDELINES FOR CONTINUING PROGRAM MANAGEMENT
A. Introduction
This section introduces the administrative framework and programs designed
to attain programmatic and site-specific goals.
B. Administration
Management of sanctuary programs and activities is carried out by a
tripartite administrative framework consisting of the Sanctuary Programs
Division, the Florida Department of Natural Resources, and the Management
Review Committee. Coordination and cooperation of these entities is essential
for successful management and resource protection. An overview of administra-
tive responsibilities and the relationships between these groups is presented
below. Following the overview, management roles for each program are presented
in detail .
Sanctuary Programs Division
Ultimate responsibility for the legislative mandate presented in Title
III of the Act rests with the Sanctuary Programs Division (SPD) within the Office
of Ocean and Coastal Resource Management, National Ocean Service (NOS) of the
National Oceanic and Atmospheric Administration (NOAA), U.S. Department of
Commerce. SPD administers the program and provides all funding for the Sanct-
uary. Headquarters for the National Marine Sanctuary Program is at 3300
Whitehaven Street, N.W., Washington, D.C. 20235 (202/634-4236).
Florida Department of Natural Resources
SPD delegates certain onsite responsibilities to the Florida Department
of Natural Resources (FDNR) through Cooperative Agreements. Adminstrative
support is provided by the Bureau of Environmental Land Management, FDNR,
located at 3900 Commonwealth Boulevard, Tallahassee, Florida 32303 (904/488-6242)
The Sanctuary Manager and Sanctuary Biologist representing NOAA and FDNR
onsite have offices at the John Pennekamp Coral Reef State Park, US #1, Key
Largo, Florida 33037 (305/451-2770). Through these positions, NOAA and FDNR
implement sanctuary research, education and enforcement programs, and evaluate
the effectiveness of these programs and sanctuary regulations.
Management Review Committee
A method of selecting members of the Management Review Committee and terms
of reference for its operation will be developed within the next year. The
criteria for establishing membership should be in place within six months of
the adoption of this plan. As many groups as possible which have indicated an
interest in Key Largo before, during, and after designation as a marine sanctuary
will be contacted by the Sanctuary Manager during the process of establishing the
Management Review Committee. NOAA's Sanctuary Programs Division will make the
final decision on membership. The Management Review Committee will not perform
23
a management role in a direct manner but will provide for effective continuing
public participation and ensure communication among all users and interest
groups involved with the Sanctuary. Membership on the Management Review Com-
mittee will be drawn from research and educational institutions, government
agencies, and local citizen groups which express an interest in participating.
Typical of the kinds of interest that might be represented on the Committee are:
Sea Grant Advisory Council, South Atlantic Fishery Management Council, Keys
Association of Dive Operators, National Park Service, National Marine Fisheries
Service, Marine Research Laboratory (FDNR), Sierra Club, National Audubon
Society, and universities which are carrying out research in the Sanctuary.
1. Administration: Roles and Responsibilities
Sanctuary Programs Division
a. Reviews activities and needs of sanctuaries to determine how
program resources can best be allocated among existing sanc-
tuaries.
b. Advises and assists the state in the preparation and adminis-
tration of the Sanctuary's budget, and provides funding for
sanctuary programs.
c. Negotiates yearly Cooperative Agreements with FDNR.
d. Informs FDNR, manager and biologist when SPD adopts new
policies and program changes.
e. Reviews periodic reports of resource health, resource protection,
administration, research and interpretation to assess progress
toward management objectives.
f. Assists in developing an operational plan to guide Federal and
state program administration.
Florida Department of Natural Resources
a. Determines Sanctuary budget requirements annually and submits
proposal to SPD.
b. Monitors sanctuary's performance in meeting management and
administrative objectives.
c. Assists in developing an operational plan to guide Federal and
state program administration.
24
Sanctuary Manager
a. Informs FDNR of needs and budget priorities for the upcoming
year.
b. Assists in developing an operational plan to guide Federal
and state program administrative responsibilities.
Sanctuary Biologist
a. Informs FDNR of needs and budget priorities for the upcoming
year.
b. Assists in developing an operational plan to guide Federal
and state program administrative responsibilities.
2. Resource Protection: Roles and Responsibilities
Sanctuary Programs Division
a. Provides legal support for enforcement of Federal Regulations
and prosecution of violations.
b. Reviews summaries of surveillance and enforcement activities
periodically, and updates Federal Regulations and resource
protection program as necessary to meet management objectives.
c. Ensures that each sanctuary is operated in a manner consistent
with established national program policies, and with applicable
Federal, international, state and local laws.
d. Coordinates with Federal, state, and local government agencies,
as well as public, private, and international entities con-
cerning protection and management of marine resources.
e. Coordinates development of enforcement and surveillance
reporting form.
Florida Department of Natural Resources
a. Coordinates enforcement and surveillance presence through FDNR
Rangers, maintains surveillance vessels, and reports violations
to NOAA.
b. Provides enforcement training for rangers.
25
c. Assists in developing the surveillance and enforcement reporting
form.
Sanctuary Manager
a. Supervises the rangers and enforcement program.
b. Reports violations to NOAA.
c. Assists in developing the surveillance and enforcement
reporting form.
Sanctuary Biologist
a. Informs the Rangers when and where scientific activities
will be conducted in the Sanctuary.
b. Notifies Rangers of any violation of sanctuary regulations
c. Monitors user damage.
3. Research Management: Roles and Responsibilities
Sanctuary Programs Division
a. Determines research priorities with the assistance of
the Sanctuary Biologist.
b. Issues request for proposals (RFP) for selected studies
and evaluates unsolicited proposals.
c. Coordinates the peer review process for evaluation
and selection of research proposals for funding.
d. Provides funding for priority research projects.
e. Issues research permits consistent with sanctuary
regulations and guidelines for research in national
marine sanctuaries.
f. Contributes to development of an operational plan to
guide the research program.
Florida Department of Natural Resources
a. Approves support for Sanctuary Biologist's activities.
26
b. Reviews and provides written comments on research proposals
and permit requests.
c. Participates in the peer review process for evaluation and
selection of research proposals for funding.
d. Contributes to development of an operational plan to guide
the research program.
Sanctuary Manager
a. Provides administrative support for Sanctuary Biologist's
activities.
b. Participates in the peer review process for evaluation and
selection of research proposals for funding.
c. Contributes to development of operation plan to guide the
research program.
Sanctuary Biologist
a. Identifies research needs annually and reports these
to FDNR and NOAA.
b. Reviews and provides written comments on research proposals
and permit requests.
c. Provides coordination and support services, when feasible,
for scientists conducting research.
d. Monitors performance of scientists under contract to
NOAA and reports periodically to SPD.
e. Informs Sanctuary Manager and enforcement rangers when
and where scientists will be working.
f. Issues and collects research permit flags.
g. Coordinates a monitoring program, approved by NOAA,
to obtain information on natural resources health and
impact of human activities.
h. Maintains current list of all publications on topics
relevant to Sanctuary resources.
i. Contributes to development of an operational plan to guide
the research program.
27
4. Interpretation: Roles and Responsibilities
Sanctuary Programs Division
a. Oversees development and implementation of long-term
interpretive plan.
b. Develops interpretive themes, messages and priority
audiences.
Florida Department of Natural Resources
a. Provides advice on interpretive themes, messages and
priority audiences.
Sanctuary Manager
a. Oversees planning, development and coordination of
interpretive and recreational programs, exhibits and
materials approved by NOAA.
b. Coordinates interpretive plan review process.
c. Assists in selection of annual interpretive priorities
and individual projects.
d. Reviews current socio-economic information and visitor
statistics to ensure interpretive programs will meet
long-term goals.
e. Ensures that interpretive programs are beneficial to
a variety of audiences, and effective, pragmatic and
within budget constraints.
f. Sees that interpretive materials based on scientific research
avoid the tendency to be overly detailed or technical.
g. Ensures that sanctuary visitors and extension audiences have
adequate opportunity to comment on sanctuary programs.
h. Report on program effectiveness to SPD and FDNR in
performance reports.
Sanctuary Biologist
a. Responds to requests for scientific information for the
interpretive programs.
b. Provides access to sanctuary resource data base.
28
c. Participates in interpretation plan review.
C. Resource Protection
1. Sanctuary Regulations
Final regulations published in June 1983 govern the management of the
Key Largo National Marine Sanctuary (Appendix C). In summary, specific
activities prohibited by these regulations include:
o
handling or standing on coral formations, or destruction of
natural features and marine life, or the removal of natural
features or marine life with the exception of lobster,
crawfish and stone crabs;
° tampering with archaeological or historical resources;
° tropical fish collecting;
° use of spearguns, guns, harpoons, poison, electric charges
or similar methods for taking fish is banned; and,
o
operating vessels in a manner which may cause damage to
natural features or other boats or divers.
Some activities are allowed but controlled by the regulations.
For example:
° vessels must use mooring buoys when available and anchors
must not be cast or dragged in a way that would damage coral;
and,
0 dredging, filling, excavating and building activities, and
discharge of refuse and polluting substances.
The commercial and recreational harvest of spiny lobster, stone crab, shrimp
and mackerel found in the Sanctuary is regulated by management plans and
regulations published by the Gulf of Mexico and South Atlantic Fishery
Management Councils.
Sanctuary regulations are enforced by the Coast Guard during their routine
operational patrols. In addition, FDNR and NOAA have a Memorandum of Agreement
whereby FDNR Rangers with law enforcement training may be deputized as Federal
law enforcement agents to enforce the Sanctuary regulations (Appendix D).
Violators will be notified of the alleged violation at the scene. Evidentiary
materials found in possession of a violator (e.g., corals, fish, spearguns,
etc.) will be seized by the enforcement agents and statements taken. Statements
and evidentiary material are transferred with a copy of the citation to the
Sanctuary Manager. Upon evaluation of all relevant information for sufficiency
of the evidence and severity of the offense, a complete report of the violation
29
along with a recommended penalty to be collected from the violator is sent to
the NOAA Office of General Counsel. The Office of General Counsel then sends
a Notice of Violation and Assessment specifying the precise violation and
subsequent penalty to the violator. Violaters are subject to civil penalties
of up to $50,000 under Public Law 92-532.
2. Future Activities
The enforcement of sanctuary regulations was carried out by Coast
Guard personnel who accompanied a State Park Ranger on regular patrols. After
June 30, 1983, this arrangement will be changed and the Coast Guard will only
enforce the sanctuary regulations during their routine patrols. State Park
Rangers, deputized to enforce the sanctuary regulations in July 1982, will
begin enforcement activities in the Sanctuary during the summer of 1983.
To determine the effectiveness of this program:
° FDNR will develop and articulate a program philosophy tailored to
previous Sanctuary and State Park enforcement programs;
° Sanctuary Manager and Sanctuary Biologist will identify areas and
times of intense visitor use and report to SPD and FDNR;
0 SPD and FDNR will use this information to design a surveillance and
reporting form that will provide statistically valid information
on visitor usage and regulation violations; and,
0 FDNR will provide information on the training, assignments and duty
hours of the enforcement rangers.
Another activity planned, is the evaluation of the mooring buoys
installed in 1982 (Figure 3). Mooring buoys have been installed in several
locations throughout the Sanctuary to distribute heavily concentrated use and
help alleviate anchor damage to the coral reefs. Sanctuary managers need to
evaluate the effectiveness of this program to determine what changes, if any,
are necessary to meet resource protection objectives.
This study, conducted by the Sanctuary Biologist, should at a minimum
cover these points:
° existing design (limitations, if any, previous designs found
inadequate and why);
° effect of buoys on the study area, if this cannot be determined
initially, determine how this information could be obtained;
° identify possible new locations for buoys; and,
0 recommend future activities.
Upon completion of this study, a report should be forwarded to SPD and FDNR.
30
along with a recommended penalty to be collected from the violator is sent to
the NOAA Office of General Counsel. The Office of General Counsel then sends
a Notice of Violation and Assessment specifying the precise violation and
subsequent penalty to the violator. Violaters are subject to civil penalties
of up to $50,000 under Public Law 92-532.
2. Future Activities
The enforcement of sanctuary regulations was carried out by Coast
Guard personnel who accompanied a State Park Ranger on regular patrols. After
June 30, 1983, this arrangement will be changed and the Coast Guard will only
enforce the sanctuary regulations during their routine patrols. State Park
Rangers, deputized to enforce the sanctuary regulations in July 1982, will
begin enforcement activities in the Sanctuary during the summer of 1983.
To determine the effectiveness of this program:
0 FDNR will develop and articulate a program philosophy tailored to
previous Sanctuary and State Park enforcement programs;
° Sanctuary Manager and Sanctuary Biologist will identify areas and
times of intense visitor use and report to SPD and FDNR;
0 SPD and FDNR will use this information to design a surveillance and
reporting form that will provide statistically valid information
on visitor usage and regulation violations; and,
° FDNR will provide information on the training, assignments and duty
hours of the enforcement rangers.
Another activity planned, is the evaluation of the mooring buoys
installed in 1982 (Figure 3). Mooring buoys have been installed in several
locations throughout the Sanctuary to distribute heavily concentrated use and
help alleviate anchor damage to the coral reefs. Sanctuary managers need to
evaluate the effectiveness of this program to determine what changes, if any,
are necessary to meet resource protection objectives.
This study, conducted by the Sanctuary Biologist, should at a minimum
cover these points:
° existing design (limitations, if any, previous designs found
inadequate and why);
° effect of buoys on the study areat if this cannot be determined
initially, determine how this information could be obtained;
0 identify possible new locations for buoys; and,
° recommend future activities.
Upon completion of this study, a report should be forwarded to SPD and FDNR.
30
Legend
Coral Reefs
Buoys
D. Research Management
1. General Context for Management
As a National Marine Sanctuary, Key Largo is recognized as a marine
resource of national significance. The distinctive character of Key Largo and
its special features outlined in earlier chapters clearly establish it as an
environmental benchmark for scientific research related to the coral reef
ecosystem.
As a general policy, research at Key Largo will be coordinated with
research in other nearby protected coral reef marine areas such as John Penne-
kamp Coral Reef State Park, Biscayne National Park, Looe Key National Marine
Sanctuary, and Fort Jefferson National Monument. This does not mean that
similar studies will not be undertaken in these areas, because often there is
value in replicating research to confirm results and/or differences and
similarities among reef systems. Yet there may be some research projects
undertaken elsewhere that need not be repeated at the Key Largo National Marine
Sanctuary.
Research projects at the Sanctuary will be designed to make effective
use of the most current research being undertaken on similar systems inter-
national ly.
A third general policy is that research at the Key Largo National
Marine Sanctuary will continue to focus on management issues, particularly as
they relate to the protection of significant resources. Studies to resolve
immediate problems will be initiated during Phase 1, the first two years,
and will continue to take priority until completed.
2. A Framework for Research
The potential to carry out interesting sanctuary research projects is
almost limitless. The number of requests to conduct research in the Key Largo
National Marine Sanctuary increases each year. Research emphasis will be
on applied biophysical and applied social research.
Applied biophysical research is directed toward analyzing the resources
of the reefs to better understand their capacity to sustain use. In the course
of undertaking this research, resources are used and sometimes subject to
impact depending on the nature of the field procedures. Applied social research,
on the other hand, is oriented to visitors and potential visitors. It does
not usually relate to the resources directly, but it can affect the quality of
the visitor experience. Guidelines for managing research are therefore required
to ensure that research activity is compatible with all sanctuary goals and
objectives.
3. Priorities for Research and Future Activities
Any presentation of the research program must be flexible since it
will require frequent updating as new projects are added, others are completed,
and those in progress proceed from phase to phase.
33
Within the broad concept of having research relate directly to current
sanctuary management issues, four basic directions for research are suggested:
0 establish a comprehensive baseline picture of the
Sanctuary.
0 develop an effective monitoring program for the Sanctuary.
0 establishing an effective research management program for the
Sanctuary.
0 conducting feasibility studies on research support programs.
Undoubtedly many of these projects will extend beyond Phase 1 and will
retain a high priority until completed.
Future research projects will continue to build upon the foundations
set down by the previously conducted studies. The following four groups of
research projects are considered as high priority:
a. Establish a comprehensive baseline picture of the Sanctuary.
For applied biophysical research:
° Evaluate the baseline resource information available on the
Sanctuary including that made available through the research
projects in progress (Appendix F), to determine to what extent
the broad biological structure of the reef system and processes
are understood and to identify basic gaps in knowledge;
0 Based on the gaps identified above, plan for future studies on
important sanctuary resources for which more detailed information
on distribution, abundance, and life history is needed for effective
sanctuary management;
° Produce small scale maps of selected habitats within the sanctuary
and locate resource features that will be of interest to scientists,
resource managers and recreationists; and,
° Develop an ecological model which describes, at first conceptually
and later mathematically, the dynamics of the coral reef ecosystem.
For applied socio-economic research:
° Conduct a baseline user survey and compile available information on
visitor activities to help establish the visitor use parameters for
monitoring; and,
° Conduct a baseline study on the socio-economic role and impact of
the Sanctuary, determining economic and employment impacts of various
activities (e.g., fishing, SCUBA diving, snorkeling, research).
34
b. Develop an effective monitoring program for the Sanctuary.
For applied biophysical research:
° Study the effectiveness of the Sanctuary mooring buoy system;
0 Study the ecological effects of physical damage and disease or
the causes and effects of coral disease in terms of prevalence
and frequency;
0 Continue to monitor coral reef fish populations (Appendix F);
° Develop environmental scenarios to run on the Key Largo water
quality model and analyze the predicted rates and directions
of water movement and effects;
° Recommend environmental parameters and study site locations for
an environmental impact assessment of potential coastal develop-
ment projects on North Key Largo.
° Study the feasibility of monitoring spiny lobster population
trends; and,
0 Study the effect of hook and line fishing on community
structure of reef fishes.
For applied socio-economic research:
° Design a quantitative visitor monitoring program; and,
0 Initiate a study to identify audiences for interpretive
programs.
c. Establish an effective research management program for the Sanctuary
For both applied biophysical and socio-economic research:
0 Establish a Management Review Committee to assist in annual
review and evaluation of the sanctuary research program;
° Establish an ad hoc peer review process and automate a listing
of specialists; and
° Establish an Emergency Response Team to respond to environ-
mental emergencies (e.g., oil spills, fish kills, disease
epidemics, boat groundings).
35
d. Conduct feasibility studies on research support facilities.
For biophysical research:
° Study the feasibility of establishing an access-controlled
research area at north Carysfort Reef for studies which require
minimal human intervention or disturbance.
For applied socio-economic research:
0 Conduct an onshore recreational tourist survey to determine
information needs and interests of the different groups
using the Sanctuary and the John Pennekamp Coral Reef State
Park Visitor Center.
As for the other management functions, an operational plan for research will
be prepared which presents in detail the sequence and phasing of research
projects, complete terms of reference, funding, and reporting requirements.
4. Annual Review of Research Program
Annual review of sanctuary research needs begins with recom-
mendations from the Management Review Committee to SPD and the Sanctuary
Biologist. Final identification of priority research studies involves
consideration of the following factors:
° immediate and evolving management issues that could
benefit or be resolved through directed research;
° achievements of research in progress or recently
completed;
° immediacy of need and environmental consequences
(i.e., is Key Largo the best place to conduct the
study? Will it result in user conflicts?); and,
° funding considerations.
5. Proposals for Research
The Sanctuary Programs Division supports research that addresses
management issues. Research priorities are identified in sancuary management
plans. Instructions for preparing and submitting proposals is presented in
Appendix E.
Funding for studies is normally provided through a competitive
process whereby requests for proposals are announced in the Commerce Business
Daily. However, unsolicited proposals of outstanding merit are also con-
sidered. In addition, SPD also conducts research inhouse through the Sanctuary
36
Biologist as well as through Cooperative Arrangements with other Federal
Agencies and with state governments.
The Sanctuary Programs Division also receives proposals requesting
research permits. When proposals include activities that are prohibited by
sanctuary regulations, NOAA may determined that all or part of the activity
should be conducted outside of the Sanctuary, or that activities within the
Sanctuary need to be limited.
6. Proposal Processing and Evaluation
Proposals are reviewed by recognized scientists and resource
managers. A method for evaluating proposals, including the criteria used, is
described in Appendix E. Briefly, the criteria considered include:
° relevance or importance of the research to sanctuary
management;
° scientific or educational merits of the research;
° research performance competence;
° technical approach; and,
° environmental consequences.
The Sanctuary Programs Division has final approval of projects. Awards are
provided through grants, contracts and cooperative agreements.
7. Project Tracking and Product Evaluation
The Sanctuary Programs Division and the Sanctuary Biologist monitor
performance of the contractor. Progress reports and final reports are required;
schedules are outlined under the terms of the contract. Final reports are
reviewed anonymously by recognized scientists and resource managers. Out-
standing projects are published by the Sanctuary Programs Division in its
Technical Report Series. The Sanctuary Programs Division is implementing a
computerized project tracking system to facilitate management of research
programs. The Sanctuary Manager also will keep records of research underway.
As for other management functions, an operational plan for research will be
prepared which presents in detail the sequence phasing of research projects,
complete terms of reference, funding and reporting requirements.
E. Interpretation
Interpretation plays a major role in all aspects of sanctuary manage-
ment. By addressing visitor safety, resource protection, public relations and
overall management, the interpretive program may be utilized to help accomplish
management goals. In addition, this program provides a mechanism for developing
37
strategies to avoid management problems, as well as being of key importance
for planning an enjoyable, safe and memorable recreational experience.
The goals of the Key Largo National Marine Sanctuary interpretive
program include:
° enhance resource protection through increased visitor awareness; and,
0 facilitate an appreciation for the reasons underlying sanctuary
designation.
Objectives include:
0 inform visitors about sanctuary ecosystems and their
sensiti vi ties;
° enhance understanding and appreciation of sanctuary regulations
and why they are needed; and,
0 direct and orient visitors to the Sanctuary and its services.
1. Existing Facilities and Programs
Since 1975, the sanctuary interpretive program has primarily
focused on reaching visitors through John Pennekamp Coral Reef State Park
programs and working closely with the commercial dive boat operators.
a. Visitor Center
Normally, the John Pennekamp Coral Reef State Park Visitor
Center is in operation seven days a week. It houses a 6,000 gallon aquarium,
various marine displays, and an auditorium that seats 80 people. The
Center also includes a display and distribution booth which is attended by
one or two Park employees who distribute free literature and answer questions
The aquarium may be viewed from all sides. The tank
displays a simulated patch reef that includes all the corals and most of
the fish found in the Sanctuary. Surrounding the big tank are several
smaller aquaria and dry displays that describe the inner and outer reef,
grass beds, mangroves, the geology and history of the Keys, and a cross-
section of the reef.
The auditorium is a separate room in the Visitor Center
where a slide show on the Sanctuary and Park resources is shown hourly.
This show gives an excellent overview of the relationships between all the
ecosystems in the area.
b. Glass Bottom Boat Tour
For a fee, sanctuary visitors may view the coral reefs
from a glass bottom boat departing from the marina adjacent to the Visitor
38
Center. Weather and sea conditions permitting, the boat makes three two-
hour trips daily. On board, a guide describes what is below the water and
makes references to the Key Largo National Marine Sanctuary.
2. Future Activities
Educational materials will be used to help resolve each of the manage-
ment issues. To inform visitors entering the Sanctuary from the water, a
brochure describing sanctuary regulations, diver boat safety problems and
location and proper use of mooring buoys will be designed by the sanctuary
managers for dissemination at boat licensing locations. Boat ramp signs
informing visitors entering from John Pennekamp State Park will discuss these
topics. In addition, a report written by the Sanctuary Biologist on research
in progress will be displayed on boat ramp signs and in the Visitor Center.
The above activities provide short-term measures for reaching the
management objectives. However, there is a need for a long-term plan to direct
the sanctuary interpretation program. This plan, developed during Phase 1,
should identify:
° all potential audiences;
0 sanctuary interpretive program needs;
° gaps in interpretive programs at John Pennekamp Coral Reef
State Park; and,
° recommendations for future programs.
39
APPENDIX A
Marine Protection, Research and
Sanctuaries Act
Title III
P.L. 92-532
MARINE SANCTUARIES LEGISLATION
MARINE PROTECTION, RESEARCH AND SANCTUARIES ACT
AMENDMENTS OF 1980 TO TITLE III (P.L. 96-332)
INCORPORATED INTO
TITLE III OF THE MARINE PROTECTION, RESEARCH AND SANCTUARIES ACT
of 1972 (P.L. 92-532)
AN ACT
To regulate the transportation for dumping, and the dumping, of material into
ocean waters, and for other purposes.
Be it enacted by the Senate and House of Representatives of
the United States of America in Congress assembled, that
this Act may be cited as the "Marine Protection, Research,
and Sanctuaries Act of 1972."
For the purposes of this document Title I (Ocea,n Dumping)
and Title II (Comprehensive Research on Ocean Dumping)
have been deleted.
TITLE III - MARINE SANCTUARIES
SEC. 301. Notwithstanding the provisions of subsection (h) of section 3 of
this Act, the term "Secretary," when used in this title, means Secretary of
Commerce. The term 'State', when used in this title, means any of the several
States or any territory or possession of the United States which has a popularly
elected Governor.
SEC. 302. (a) The Secretary, after consultation with the Secretaries of State,
Defense, the Interior, and Transportation, the Administrator, and the heads of
other interested Federal agencies, and with the approval of the President, may
designate as marine sanctuaries those areas of the ocean waters, as far seaward
as the outer edge of the Continental Shelf, as defined in the Convention of the
Continental Shelf (15 U.S.T. 74; TIAS 5578), of other coastal waters where the
tide ebbs and flows, or of the Great Lakes and their connecting waters, which
he determines necessary for the purpose of preserving or restoring such areas
for their conservation, recreational, ecological, or esthetic values. The
consultation shall include an opportunity to review and comment on a specific
proposed designation.
(b)(1) Prior to designating a marine sanctuary which includes waters lying
within the territorial limits of any State or superjacent to the subsoil and
seabed within the seaward boundary of a coastal State, as that boundary 1s
defined in section 2 of title I of the Act of May 22, 1953 (67 Stat. 29),
the Secretary shall consult with, and give due consideration to the views of,
the responsible officials of the State involved.
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(2) A designation under this section shall become effective unless --
(A) the Governor of any State described in paragraph (1) certifies
to the Secretary, before the end of the sixty-day period beginning
on the date of the publication of the designation, that the designation
or any of its terms described in subsection (f)(1), are unacceptable
to his State, in which case those terms certified as unacceptable will
not be effective 1n the waters described in paragraph (1) in such State
until the Governor withdraws his certification of unacceptability; or
(B) both Houses of Congress adopt a concurrent resolution in accordance
with subsection (h) which disapproves the designation or any of its
terms described in subsection (f)(1).
The Secretary may withdraw the designation after any such certification or
resolution of disapproval. If the Secretary does not withdraw the designation,
only those portions of the designation not certified as unacceptable under
subparagraph (A) or not disapproved under subparagraph (B) shall take effect.
(c) When a marine sanctuary is designated, pursuant to this section,
which includes an area of ocean waters outside the territorial jurisdiction
of the United States, the Secretary of State shall take such actions as may
be appropriate to enter into negotiations with other Governments for the purpose
of arriving at necessary agreements with those Governments, in order to protect
such sanctuary and to promote the purposes for which it was established.
(d) The Secretary shall submit an annual report to the Congress, on or
before November 1 of each year, setting forth a comprehensive review of his
actions during the previous fiscal year undertaken pursuant to the authority
of this section, together with appropriate recommendation for legislation
considered necessary for the designation and protection of marine sanctuaries.
(e) Before a marine sanctuary is designated under this section, the
Secretary shall hold public hearings in the coastal areas which would be most
directly affected by such designation, for the purpose of receiving and
giving proper consideration to the views of any interested party. Such hearings
shall be held no earlier than thirty days after the publication of a public
notice thereof.
(f)(1) The terms of the designation shall include the geographic
area Included within the sanctuary; the characteristics of the area that give
1t conservation, recreational, ecological or esthetic value; and the types of
activities that will be subject to regulation by the Secretary in order to
protect those characteristics. The terms of the designation may be modified
only by the same procedures through which an original designation 1s made.
(2) The Secretary, after consultation with other interested Federal and
State agencies, shall Issue necessary and reasonable regulations to implement
the terms of the designation and control the activities described in it, except
that all permits, licenses, and other authorizations issued pursuant to any
other authority shall be valid unless such regulations otherwise provide.
(3) The Secretary shall conduct such research as is necessary and reasonable
to carry out the purposes of this title.
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(4) The Secretary and the Secretary of the department 1n which the Coast
Guard is operating shall conduct such enforcement activities as are necessary
and reasonable to carry out the purposes of this title. The Secretary shall,
whenever appropriate and 1n consultation with the Secretary of the department
in which the Coast Guard Is operating, utilize by agreement the personnel, services,
and facilities of other Federal departments, agencies, and instrumentalities,
or State agencies or instrumentalities, whether on a reimbursable or a non-
reimbursable basis in carrying out his responsibilities under this title.
(g) The regulations issued pursuant to subsection (f) shall be applied
1n accordance with recognized principles of International law, Including treaties,
conventions, and other agreements to which the United States is signatory.
Unless the application of the regulations 1s in accordance with such principles
or is otherwise authorized by an agreement between the United States and the foreign
State of which the affected person is a citizen or, 1n the case of the crew of
a foreign vessel, between the United States and flag state of the vessel, no
regulation applicable to ocean waters outside the territorial jurisdiction of
the United States shall be applied to a person not a citizen of the United States.
(h)(1) For purposes of subsection (b)(2)(B), the Secretary shall transmit
to the Congress a designation of a marine sanctuary at the time of its publication.
The concurrent resolution described in subsection (b)(2)(B) 1s a concurrent
resolution which 1s adopted by both Houses of Congress before the end of the first
period of sixty calendar days of continuous session of Congress after the date
on which the designation 1s transmitted, the matter after the resolving clause
of which is as follows: 'That the Congress does not favor the taking of effect
of the following terms of the marine sanctuary designation numbered :
transmitted to Congress by the Secretary of Commerce on :
.', the blank space being filled with the number of the
designation, the second blank space being filled with the date of transmittal,
and the third blank space being filled with the terms of the designation which
are disapproved (or the phrase 'the entire designation' 1f the entire designation
is disapproved).
(2) For the purpose of paragraph (1) of this subsection
(A) continuity of session is broken only by an adjournment of
Congress sine die; and
(B) the days on which either House is not 1n session because of
an adjournment of more than three days to a day certain are excluded
in the computation of the sixty-day period.
(3) A designation which becomes effective, or that portion of a designation
which takes effect under subsection (b), shall be printed in the Federal Register.
SEC. 303. (a) Any person subject to the jurisdiction of the United States
who violates any regulation Issued pursuant to this title shall be liable to
a civil penalty of not more than $50,000 for each such violation, to be assessed
by the Secretary. Each day of a continuing violation shall constitute a
separate violation.
(b) No penalty shall be assessed under this section until the person
charged has been given notice and an opportunity to be heard. Upon failure
of the offending party to pay an assessed penalty, the Attorney General , at
45
the request of the Secretary, shall commence action in the appropriate district
court of the United States to collect the penalty and to seek such other relief
as may be appropriate.
(c) A vessel used in the violation of a regulation issued pursuant to
this title shall be liable in rem for any civil penalty assessed for such
violation and may be proceeded against in any district court of the United
States having jurisdiction thereof.
(d) The district courts of the United States shall have jurisdiction
to restrain a violation of the regulations issued pursuant to this title,
and to grant such other relief as may be appropriate. Actions shall be brought
by the Attorney General in the name of the United States, either on his own
initiative or at the request of the Secretary.
SEC. 304. (Appropriations not to exceed $2,235,000 per year have been
authorized for fiscal years 1982 and 1983.)
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APPENDIX B
Sanctuary Coordinates
The Key Largo National Marine Sanctuary Coordinates are: the point of
beginning (POB) is at geographic coordinates 25° (degrees), 19.45' (minutes)
north latitude, 80° (degrees), 12.0' (minutes) west longitude, said point
being the northeast boundary corner of John Pennekamp Coral Reef State
Park. From said POB run thence southeasterly to geographic coordinates 25°
(degrees), 16.2' (minutes) north latitude 80° (degrees), 8.7' (minutes) west
longitude, said point also being on the 300-foot Isobath, thence in a
southwesterly direction to geographic coordinates 25° (degrees), 07.5'
(minutes) north latitude 80° (degrees), 12.5' (minutes) west longitude,
thence again run in a southwesterly direction to geographic coordinates 24°
(degrees), 58.3' (minutes) north latitude, 80° (degrees), 19.8 (minutes) west
longitude, thence leaving said 300-foot Isobath run northwesterly to
geographic coordinates 25° (degrees), 2.2' (minutes) north longitude, 80°
(degrees), 25.25' (minutes) west longitude, said point being the southeast
boundary corner of John Pennekamp Coral Reef State Park, thence in a
northeasterly direction along said easterly boundary of said state park to
the POB.
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APPENDIX C
Key Largo National Marine Sanctuary
Final Regulations
Accordingly, it is proposed that 15 CFR Part 929 be revised as follows:
PART 929 - KEY LARGO NATIONAL MARINE SANCTUARY FINAL REGULATIONS
Sec.
929.1 Authority.
929.2 Purpose.
929.3 Boundaries.
929.4 Definitions.
929.5 Management and enforcement.
929.6 Allowed activities.
929.7 Activities prohibited or controlled.
929.8 Other authorities.
929.9 Penalties for commission of prohibited acts.
929.10 Permit procedures and criteria.
929.11 Appeals of administrative action.
Authority: Title III of Pub. L. 92-532, 86 Stat. 1061, 1062 (16 U.S.C.
1431-1434).
929.1. Authority
The Sanctuary has been designated by the Secretary of Commerce pursuant
to the authority of Section 302(a) of the Marine Protection, Research and
Sanctuaries Act of 1972 as amended (the Act). The following regulations
are issued pursuant to Title III of the Act.
929.2. Purpose
The purpose of designating the Key Largo National Marine Sanctuary is
to protect and preserve the coral reef ecosystem in its natural state and to
regulate uses within the Sanctuary to ensure the health and well-being of
the coral and associated flora and fauna.
929.3. Boundaries
The Sanctuary consists of a portion of the Atlantic Ocean beginning at
approximately three miles east of Key Largo, Florida, adjacent to the John
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Pennekamp Coral Reef State Park. The coordinates for the Sanctuary are: the
point of beginning (POB) is at geographic coordinates 25° (degrees), 19.45'
(minutes) north latitude, 80°, 12.0' west longitude, said point being the
northeast boundary corner of John Pennekamp Coral Reef State Park. From
said POB run thence southeasterly to geographic coordinates 25°, 16.2'
north latitude 80°, 8.7' west longitude, said point also being on the 300
foot isobath, thence in a southwesterly direction to geographic coordinates
25°, 07.5' north latitude, 80°, 12.5' west longitude, thence again run in
a southwesterly direction to geographic coordinates 24°, 58.3' north latitude,
80°, 19.8' west longitude, thence leaving said 300 foot isobath run north-
westerly to geographic coordinates 25°, 2.2' north latitude, 80°, 25.25'
west longitude, said point being the southeast boundary corner of John
Pennekamp Coral Reef State Park, thence in a northeasterly direction along
said easterly boundary of said State Park to the POB.
929.4. Definitions
(a) "Administrator" means the Administrator of the National Oceanic
and Atmospheric Administration (N0AA).
(b) "Assistant Administrator" means the Assistant Administrator for
National Ocean Service (N0S), National Oceanic and Atmospheric
Atmospheric Administration, or his/her successor, or designee.
(c) "Persons" means any private individual, partnership, corporation,
or other entity; or any officer, employee, agent, department,
agency or instrumentality of the Federal government, or any State
or local unit of the government.
(d) "The Sanctuary" means the Key Largo National Marine Sanctuary.
(e) "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 corals
and coral reef substrates.
929.5. Management and enforcement
The National Oceanic and Atmospheric Administration (N0AA) has primary
responsibility for the management of the Sanctuary pursuant to the Act.
NOAA's responsibilities under the Act require that the Sanctuary Programs
Division review, consider, and approve any activities that take place in
the Sanctuary in accordance with these rules and regulations. The Florida
Department of Natural Resources (FDNR), Division of Recreation and Parks,
assists N0AA in the administration of the Sanctuary, and acts as the onsite
manager, in conformance with cooperative agreements between the State of
Florida and N0AA. The U.S. Coast Guard and Division of Recreation and
Parks (FDNR) shall conduct surveillance and enforcement of these regulations
pursuant to 14 U.S.C 89, 16 U.S.C. 1432 (f)(4), 16 U.S.C. 7421 (b), 16 U.S.C.
3375 (a), or other appropriate legal authority.
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929.6. Allowed activities
All activities except those specifically prohibited by Section 929.7 or
other applicable authority may be undertaken within the Sanctuary subject to
the restrictions and conditions imposed by other authorities.
929.7. Activities prohibited or controlled
(a) Unless permitted by the Assistant Administrator in accordance
with Section 929.10, or as may be necessary for the national defense, or to
respond to an emergency threatening life, property or the environment, the
following activities are prohibited or controlled within the Sanctuary.
All prohibitions and controls must be applied consistently with international
law. Refer to Section 929.9 for penalties for commission of prohibited acts.
(1 ) Removal or damage of natural features, marine life and
archaeological and historical resources
(A) No person shall destroy, injure, harmfully disturb, break,
cut or similarly damage or remove any coral or other marine invertebrate, or
any plant, soil, rock, or other material except that commerical taking of
spiny lobster and stone crab by trap and recreational taking of spiny lobster
by hand which is consistent with both the applicable regulations under the
appropriate Fishery Management Plan and these regulations. Divers are pro-
hibited from handling coral formations, standing on coral formations, or other-
wise disturbing the corals.
(B) No person shall catch or collect any tropical fish.
(C) No person shall remove, deface, damage, or tamper with
archaeological or historical resources or the cargo of any submerged wrecks or
other historical resources within the boundaries of the Sanctuary.
(D) There shall be a rebuttable presumption that any items
listed in these paragraphs found in the possession of a person within the
Sanctuary have been collected or removed from within the Sanctuary.
(2) Dredging, filling, excavating and building activities. No
person shall dredge, excavate, fill or otherwise alter the seabed in any
way nor construct any structure of any kind, whether permanent or temporary,
with the exception of navigation aids.
(3) Discharges. No person shall deposit or discharge any
materials or substance of any kind into the waters of the Sanctuary. The
only exceptions are:
(A) Fish or fish parts and chumming materials;
(B) Cooling waters from vessels; and,
(C) Effluent from marine sanitation devices approved by the
United States Coast Guard.
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(4) Tampering with markers. No person shall mark, deface or
damage in any way whatsoever, or displace, remove or tamper with any signs,
notices or placards, whether temporary or permanent, or with any navigational
aids, monuments, stakes, posts, mooring buoys, scientific equipment or
other boundary markers installed by the Sanctuary Manager, or trap floats
placed for the purpose of lobster fishing.
(5) Use of harmful fishing methods. No person shall use within the
Sanctuary; or shall carry or possess, except while passing without interruption
through the Sanctuary or for law enforcement purposes, the following firearms or
or weapons: pole spears, air rifles, bows and arrows, slings, Hawaiian slings,
rubberpowered arbalets, pneumatic and spring loaded guns, explosive powered
guns or similar devices known as spearguns. No person shall use within the
Sanctuary:
(A) Wire fish traps;
(B) Bottom trawls, dredges, fish sleds, or similar vessel-
towed or anchored bottom fishing gear or net; or
(C) Poisons, electric charges, explosives or similar devices.
(6) Operation of watercraft and anchoring. All watercraft shall
be operated in accordance with applicable Federal rules and regulations. The
following additional regulations apply within the boundaries of the Sanctuary.
(A) Watercraft shall be operated to avoid striking or otherwise
causing damage to the natural features of the Sanctuary.
(B) Watercraft must use mooring buoys, stations or anchoring
arms when such facilities have been provided.
(C) No anchor shall be cast or dragged in such a way as to
damage any coral reef formations. Anchors shall be dropped only on sand flats
off the reefs and be placed to avoid dragging into the coral formations.
(D) Within 100 yards of divers, sightseeing boats or fisher-
men, no watercraft shall be operated at a speed greater than 4 knots or in any
manner to create a wake, except by law enforcement officials while in the
performance of their official duties.
(E) All watercraft from which diving operations are being
conducted shall fly in a conspicuous manner the red and white "divers
down" flag. Divers shall stay within 100 yards of their diving flag.
(7) Use of dangerous weapons. Except for law enforcement purposes,
no person shall use or discharge explosives or weapons of any description
within the Sanctuary boundaries. Distress signaling devices, necessary and
proper for safe vessel operation, and knives generally used by fishermen and
swimmers are not considered weapons for purposes of this Subsection.
56
(b) The Sanctuary may be closed to public use in the event of emergency
conditions endangering life or property. The Assistant Administrator or
his/her designee may also close certain areas in order to (i) permit recovery
of the living resources from overuse, or (ii) provide for scientific research
relating to protection and management. However, the total closed area shall
not exceed a size necessary to accomplish these purposes. Public notice of
closures will be provided through the local news media and posting of placards
at the John Pennekamp Coral Reef State Park, if deemed necessary.
(c) The regulation of activities within the Sanctuary 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 possible.
(d) 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 recognized principles of international law, including
treaties, conventions and other international agreements to which the United
States is signatory.
929.8. Other Authorities
No license, permit or other authorization issued pursuant to any other
authority may validly authorize any activity prohibited by Section 929.7
unless such activity meets the criteria stated in Section 929.10(c) and
(d), and is specifically authorized by the Assistant Administrator.
929.9. Penalties for Commission of Prohibited Acts
Section 303 of the Act authorizes the assessment of a civil penalty of
not more than $50,000 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 set out in Subpart D
of Chapter 15 CFR Part 922. Subpart D is applicable to any instance of a
violation of these regulations.
929.10. 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 in the Sanctuary
activities specified in the permit including any activity specifically pro-
hibited under Section 929.7, if such activity is: (1) research related to the
resources of the Sanctuary, (2) to further the educational value of the
Sanctuary, or (3) for salvage or recovery operations.
(b) Permit applications shall be addressed to the Assistant Administrator;
ATTN: Sanctuary Programs Division, National Oceanic and Atmospheric Admin-
istration, 3300 Whitehaven Street, N.W., Washington, D.C. 20235. An appli-
cation shall include a description of all activities proposed, the equip-
ment, 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.
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(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 being
proposed 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, education, or scientific information; and (4) the
end value of the activity.
(d) In addition to meeting the criteria in 929.10 (a) and (c), the
applicant must also satisfactorily demonstrate to the Assistant Administrator:
(1 ) that adequate safequards shall be provided to protect the environment,
and (2) that the environment shall be returned to the condition which existed
before the activity occurred. A permit issued according to the provisions for
an otherwise prohibited activity shall be appropriately conditioned, and
monitored by NOAA to ensure compliance.
(e) In considering an application submitted pursuant to this Section,
the Assistant Administrator may seek and consider the views of Regional Fishery
Management Councils and any other person or entity, within or outside of the
Federal government, and may hold a public hearing, as he/she deems appropriate.
(f) The Assistant Administrator may, grant a permit which has been applied
for pursuant to this Section, in whole or in part, and subject to such condition(s)
as deemed necessary, and may attach to any permit granted for research related
to the Sanctuary stipulations requiring that: (1) The Assistant Administrator
or a designated representative may observe and monitor any activity permitted
by this Section; (2) any information obtained in the research site shall be
made available to the public; (3) periodic reports of the status of progress
of such activity be submitted; and (4) the Permittee shall fly the Sanctuary
research flag while working in the Sanctuary.
(g) A permit granted pursuant to this Section is nontransferable.
(h) The Assistant Administrator may amend, suspend or revoke a permit
granted pursuant to this Section, in whole or in part, if it is determined that
the Permittee has acted in violation of the terms of the permit or of these
regulations or for other good cause shown. Any such action shall be com-
municated in writing to the Permittee, and shall set forth the reason(s) for
the action taken. Such action may be appealed as provided for in Section
929.11.
929.11. Appeals of Administrative Action
(a) The applicant for a permit or the Permittee, or any other interested
person (hereafter Appellant) may appeal the granting, denial, conditioning or
suspension of any permit under Section 929.10 to the Administrator of NOAA.
In order to be considered by the Administrator, such appeal shall be in writing,
shall state the action(s) appealed and the reason(s) therefor, and shall be
submitted within 30 days of the action(s) by the Assistant Administrator. The
Appellant may request an informal hearing on the appeal.
58
(b) Upon receipt of an appeal authorized by this Section, the Administrator
may request the appellant, and the permit applicant or Permittee if other than
the Appellant, to submit such additional information and in such form as will
allow action upon the appeal. The Administrator shall decide the appeal using
the criteria set out in Section 929.10(c), any information relative to the
application on file, any information provided by the Appellant, and such other
consideration as is deemed appropriate. The Administrator shall notify the
Appellant of the final decision and the reason(s) therefor, in writing normally
within 30 days of the date of the receipt of adequate information required to
make the decision.
(c) If a hearing is requested or, if the Administrator determines that
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 or Permittee, if
different, and, 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 a decision in writing 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 the interested persons of his/her decision, and the reason(s)
therefor in writing within 30 days of receipt of the recommended decision of
the Hearing Officer. The Administrator's decision 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 by the
Administrator for good cause for a period not to exceed 30 days, either
upon his/her own motion or upon written request from the Appellant, permit
applicant or Holder, stating the reason(s) therefor.
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APPENDIX D
Surveillance and Enforcement
Memorandum of Agreement
This Agreement is entered in by and between the Secretary of Commerce for
the United States of America (the Secretary), and the State of Florida
Department of Natural Resources,* Division of Recreation and Parks (the
State).
WITNESSETH :
Whereas, Title III of the Marine Protection, Research and Sanctuaries
Act, Public law 92-532 (as amended), 16 U.S.C. 1431 et seq. , (the Act),
authorized the designation of ocean waters as marine sanctuaries to
preserve or restore their conservation, recreational, ecological or
esthetic values; and
Whereas, under section 302(f)(4) (16 U.S.C. 1432(f)(4)) of the Act, the
Secretary is charged with the responsibility for enforcing the provisions
of the Act and is authorized to enter into, among other things, agreements
with state agencies to utilize such personnel, services, equipment, and
other facilities of such State agencies as may be necessary to carry out
the enforcement responsibilities of the Act; and
Whereas, such agreements with State agencies are also authorized by
Section 3(b) of the Fish and Wildlife Improvement Act of 1978 (16 U.S.C.
7421(b)) and by Section 6(a) of the Lacey Act (16 U.S.C. 3375(a)) both of
which enhance the Secretary's ability to enforce the Act insofar as it
relates to the protection of fish and wildlife; and
Whereas, on December 18, 1975 the Secretary designated the Key Largo
National Marine Sanctuary adjacent to the John Pennekamp Coral Reef State
Park and on January 16, 1981 the Secretary designated the Looe Key National
Marine Sanctuary located five miles south-southwest of Big Pine Key (the
Sanctuaries);
Whereas, the State possesses law enforcement personnel, vessels,
aircraft, vehicles and other equipment and capabilities presently engaged
in enforcing state conservation laws which could be utilized in assisting
the Secretary in carrying out the law enforcement responsibilities mandated
by the Act for the Sanctuaries;
NOW THEREFORE, it is mutually agrt->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.
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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
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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
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