Strategy for Stewardship
-- Rachel Carson, The Edge of the Sea
Slip into its warm waters and enter a world of exotic fish, corals and sponges of every imaginable
color, a long-ago world of shipwrecks and pirates.
Set sail on its open water--fishing rod or binoculars in hand-- and enter a sportsman's paradise.
Stroll along the historic streets of Key West with its "conch houses" and porches adorned with
gingerbread.
Whatever way you experience it, you'll instantly appreciate the allure of the Florida Keys.
People love the Florida Keys. Each year over six million people arrive by plane, car, and boat to
dive in Key Largo, fish off Marathon, and tour historic Key West. The special lure of the Florida
Keys supports a $853 million dollar economy. This economy depends on a healthy marine
environment.
Floridians have long understood the importance of preserving the marine environment that
supports their economy--and their way of life. In 1960 they responded to early warning signs that
the Keys' marine environment was fragile--that its coral reefs, seagrass beds, mangrove islands
and the fish, lobsters, birds, and other creatures that live there were not infinite. Their concern led
to the creation of the world's first underwater marine park, the John Pennekamp Coral Reef State
Park.
Over the years, citizens protective of the environment voiced concern over pollution,
over-harvesting, physical impacts, and overuse in the Keys. Other management efforts were
undertaken to protect the coral reefs of the Florida Keys. The nation's second national marine
sanctuary was established in 1975 to protect the coral reef habitat off Key Largo in the Upper
Keys. In 1981, the Looe Key National Marine Sanctuary followed to protect the popular reef
located off Big Pine Key in the Lower Keys.
Through the '80s, citizens voiced concern over mounting threats to the health and ecological future
of the coral reef ecosystem. Concerns included deteriorating water quality throughout the region,
an unexplained occurrence of coral bleaching, the die-off of the long-spined urchin, loss of living
coral cover on reefs, a major seagrass die-off, declines in reef fish populations, and the spread of
coral diseases. The threat of offshore oil drilling galvanized concern for the future of the ecosystem.
Then, within an 18-day period in 1989, three large ships ran aground on the coral reef tract
causing serious damage. These groundings provided the impetus for Congress to take further
action to protect the coral reef ecosystem of the Florida Keys. Congressman Dante Fascell and
Senator Bob Graham--long time environmental supporters of South Florida--fought for and won
passage of the Florida Keys National Marine Sanctuary and Protection Act of 1990.
Once signed into law the sanctuary set in motion short-term and long-term protection for
2,800-square miles of coastal waters.
In developing Strategy for Stewardship, sanctuary planners explored a range of management
alternatives, from very restrictive to less so. Concurrently, NOAA assessed the environmental
consequences and socioeconomic impact of each alternative. The sanctuary and its citizens
advisory council selected its "preferred alternative" for managing the sanctuary from this range of
alternatives.
Now, after an unprecedented effort of local citizens working with government, Strategy for
Stewardship is here. It details a plan to protect and preserve this special place for generations to
come. The following narrative introduces you to this important document, and begins the public
dialogue necessary to ensure the long-term protection of the Florida Keys.
The Florida Keys National Marine Sanctuary and Protection Act immediately addressed two
major concerns of the residents of the Florida Keys. It placed an instant prohibition on oil
drilling--including mineral and hydrocarbon leasing, exploration, development, or
production--within the sanctuary.
The Act also created an internationally recognized area to be avoided (ATBA) for ships greater
than 50 meters in length, with designated access corridors to allow ships into Keys ports. The
ATBA provides a considerable buffer zone to protect the coral reef tract from oil spills and
groundings by large vessels.
The Act also called for a comprehensive, long-term strategy to protect and preserve the Florida
Keys marine environment. The sanctuary seeks to protect marine resources by educating and
interpreting for the public the Florida Keys marine environment, and by managing those uses that
result in resource degradation.
The greatest challenge to protecting the natural resources of the Keys and the economy they
support is preserving water quality. Whereas it was the exception for water clarity to drop below
100 feet of visibility in the 1970s, it has now become the exception for visibility to exceed 50 feet
on most reefs of the Lower Keys.
Congress heard the public concern over water quality. The Act brought various agencies together
to develop a comprehensive Water Quality Protection Program (WQPP) for the sanctuary. The
WQPP's purpose is to "recommend priority corrective actions and compliance schedules
addressing point and nonpoint sources of pollution to restore and maintain the chemical, physical,
and biological integrity of the sanctuary, including restoration and maintenance of a balanced,
indigenous population of corals, shellfish, fish, and wildlife, and recreational activities."
The high level and diversity of marine related activities in the Florida Keys and the importance of
tourism to its economy demand that the public have a strong role in the development of the
management plan. The Act wisely called for the public to be a part of the planning process, and
created a sanctuary advisory council (SAC) to aid in the development of the management plan.
The 22-member SAC consists of representatives from diving, fishing, boating, research, education,
and environmental groups--and private citizens.
The development of a comprehensive management plan and the WQPP is called for in one of the
most biologically and socioeconomically diverse settings in North America. The challenge for all
involved has been to balance resource protection with continued use of the resources, keeping in
mind the dependence of the economy on a healthy environment.
While making plans to protect sanctuary resources and improve water quality, sanctuary planners
attempted to not unduly restrict the activities of those that make their living on the water, or those
who operate businesses that are dependent on a healthy marine environment. They also attempted
to not place economic burdens on residents with costly remedies that may not work.
Strategy for Stewardship strives to apply common sense solutions to the many management
challenges, improve the coordination of management activities within the sanctuary, and identify
ways that resource managers in the area may share resources. The result will be a healthier marine
environment, and best use of taxpayers' dollars.
Strategy for Stewardship presents the necessary management solutions to protect the coral reef
ecosystem, while providing opportunities to better understand the various threats to the resources.
This level of management can only be gained through the implementation of the comprehensive
management plan called for in the Florida Keys National Marine Sanctuary and Protection Act.
A discussion of the goals and objectives of each action plan follows.
For the experienced and novice boaters, nature provides a built-in road map for navigating the
sometimes shallow, sometimes deep waters of the Keys.
However, even with this natural system an effective channel marking system remains essential to
protect shallow seagrass beds and coral reefs from prop damage and groundings. A well-designed
system protects nesting or wading marine mammals and birds, and provides additional safety for
snorkelers and divers.
For example, prop scarring caused by inadvertent or careless boating may cause significant
damage to shallow-water communities such as seagrass flats, which form important nursery areas
for commercially and recreationally significant fish, crabs, shrimp, lobster, and other marine
animals.
Improve public access by developing channel marking criteria to protect natural resources,
ensure reasonable boating access, and allow for easy transit within the sanctuary; and
Educate the public about channel marking and ways they may become better boaters.
The Florida Marine Research Institute and the Monroe County Department of Marine Resources
have begun work on the first step toward achieving these goals: a review of existing marine
facilities, types of facilities, services provided, and intensities and types of use.
The next steps involve a study of current boat use and travel patterns (where are we going, and
how we get there), an assessment of the distribution and extent of prop scarring damage, a review
of existing channel markers, and a survey of water depths at various strategic locations. These
steps ask boaters to contribute ideas on how to improve their ability to travel, while minimizing
damage to sanctuary resources.
This information will serve as the foundation for designing a comprehensive channel marking plan
that will immediately improve access and enjoyment for boaters, and protect the same resources
that lure us here. For this reason, the sanctuary plan gives this action its highest priority.
With the help of nature's natural road map and an effective channel marking system, boaters will
enjoy greater access to a healthier marine environment.
For the past 20 years, education has proven to be our most successful tool in protecting resources
in marine sanctuaries.
For example, successful enforcement--ever a challenge for resource managers--emphasizes
educating the public on the existence of and need for meaningful regulations.
Likewise, interpretative education puts important research findings into the hands of decision
makers, school children, and a concerned public.
Public service announcements, printed materials, and boat ramp signs educate the public on the
importance of channel markers and mooring buoys.
And education efforts empower teachers, who in turn empower children to be better stewards of
the marine environment.
To help it meet the unique education needs of the Keys community, sanctuary education staff
brought together representatives of environmental education, user groups, and the public to
develop its education goals.
environment, and the bond they share. Successful education programs at the Key Largo and Looe Key National Marine Sanctuaries provide a secure foundation on which to build a stronger education program. For example, sanctuary staff will build upon the success of Coral Reef Classroom to bring environmental education to more children. The education action plan divides its strategies into two categories: community involvement and product development. The former includes expanding the sanctuary's role as a facilitator for developing innovative education and outreach programs through establishment of teacher training workshops and an education advisory council, the creation of an education directory (already completed), and expanded classroom education. It also calls for extensive community outreach through public forums and greater participation in special events. Under product development, strategies include campaigns using printed materials, audiovisual, displays and exhibits, public service announcements, and a visitor center. In this and other efforts, every effort will be made to produce bilingual materials and reach out to non-English speaking residents and tourists. Again, much work has already been done in Florida and throughout the sanctuary system from which to learn and grow. The implementation of the various education strategies varies in priority and timing, with greatest emphasis given to producing printed materials. Also, education staff will depend upon the support of public and private organizations to help meet its goals. Enforcement Words such as "partnership," "cooperation," and "coordination" run throughout any discussion of
national marine sanctuaries. This is especially true of enforcement in the Florida Keys.
Since 1980, the sanctuary enforcement program (as well as other management programs) in
Florida has been operated under a cooperative agreement with the state. Enforcement officers in
Key Largo and Looe Key Sanctuaries are employees of the Florida Marine Patrol. In addition to
enforcing local and state laws, sanctuary enforcement officers possess the authority to enforce the
National Marine Sanctuaries Act and other NOAA-administered statutes.
Sanctuary enforcement joins education, research, and monitoring in an integrated approach to
resource management. Enforcement officers aim to protect natural and cultural resources by
preventing prop scarring, anchor damage, groundings, and other resource impacts. Enforcement
officers apply an "interpretive enforcement" strategy when patrolling waters or speaking to citizens.
This approach seeks voluntary compliance with sanctuary regulations by educating sanctuary users
about regulations, why they should comply, and how they can comply. Reaching out to the
sanctuary community through educational messages and literature reduces the number of
violations, and fosters a sense of stewardship among sanctuary users.
No less than eight different enforcement agencies have jurisdiction within the 2,800-square mile
sanctuary. The enforcement action plan calls for expanded coordination among all these agencies.
The direct benefits include improved resource protection, greater public support, and savings to
the taxpayers.
The enforcement action plan proposes two management strategies. The first recognizes the
challenge in patrolling an area roughly the size of Delaware and Rhode Island combined. It calls for
hiring additional officers and identifying high use areas to make best use of patrol time.
The second strategy will enhance existing efforts through cross deputization of officers from
different agencies. Developing standard procedures and a training program is integral to any new
cooperative enforcement effort.
Mooring buoys have been used as a management tool in the Keys for many years, first by the Key
Largo and the Looe Key National Marine Sanctuaries, and later by volunteer based groups such
as Reef Relief in Key West. Buoys provide an easy way for boaters to tie up, and protect coral
formations from anchor damage.
To achieve these goals, Strategy for Stewardship calls for an assessment of the characteristics
and impacts of boater and diver use in coral reef areas throughout the Keys. This information will
lead to new mooring buoys in key areas, and a standard system of marking buoys.
The impact of larger vessels on mooring buoys systems will also be assessed, and a size restriction
may be considered for use of the mooring buoy system. Finally, a program to study carrying
capacity limits for recreational activities will be explored for possible implementation over the
long-term.
Along with education and research, regulations are an integral tool for managing human activities.
They create a standard for protection of our resources and to encourage people to think beyond
their own welfare. Sanctuaries today face many similar management issues when trying to balance
multiple uses with resource protection. However, sanctuary planners craft regulations to meet the
unique circumstances and needs of a given sanctuary.
Drawing upon 20 years of management experience in the Key Largo and Looe Key sanctuaries,
NOAA has attempted to develop regulations that protect natural and historic resources and are
fair to users. The proposed regulations supplement (not replace) existing state and federal
protection efforts, including the "area to be avoided" and oil, gas, and mineral development
prohibitions called for in the Florida Keys National Marine Sanctuary and Protection Act.
These proposed regulations join existing federal and state rules. In consultation with various
agencies, the proposed sanctuary rules expressly incorporate some of these existing rules to
supplement and coordinate the management and enforcement efforts.
In particular, Strategy for Stewardship incorporates existing rules of the Key Largo and Looe
Key National Marine Sanctuaries. Similarly, the proposed wildlife management areas incorporate
existing rules in the Great White Heron and Key West National Wildlife Refuges. The State of
Florida rules on marine life collecting have been incorporated by reference. Finally, the taking of
any marine mammal, sea turtle, or seabird is prohibited except as permitted under laws protecting
those species.
To ease public review and comment of the proposed regulations, we have outlined the following
activities: commercial and recreational boating, commercial and recreational fishing, diving and
snorkeling, and commercial and recreational treasure hunting.
To protect nesting birds and other sensitive resources, boaters must slow down to idle speed and
not create wakes within 200 yards of emerging or shallow reefs and mangrove fringed islands. To
avoid injuring swimmers and divers, vessels will be required to take similar precautions within 100
yards of a "divers down" flag, or within 200 yards of residential shorelines or stationary vessels.
Boats may anchor throughout the sanctuary, but not on coral where the depth of water is less than
50 feet. When anchoring in Sanctuary Preservation Areas and Replenishment Reserves (described
further in the Zoning Action Plan), a diver must first ensure that the line and anchor do not touch
the coral or other creatures of the hardbottom community.
To minimize threats to resources from vessel groundings and scarring of the seabed from
propellers (prop scarring), vessels are not allowed to strike coral, seagrass and similar organisms
attached to the seabed. A minor plume of sediment or incidental cuts to the tops of grass blades
would not be a violation. However, the uprooting of seagrass would be a violation. Similarly, using
propellers or prop wash deflectors to excavate, dredge, or drill into the seabed would be
prohibited, except by permit.
As in other sanctuaries the disposal of solid waste and other materials is prohibited throughout the
sanctuary, except for bait and the disposal of fish during the operation of traditional fishing
activities. This prohibition will not apply to the discharge of cooling water and engine exhaust
generated by routine vessel operation. Similarly, the sanctuary will allow for the discharge from
marine sanitation devices approved by the U.S. Coast Guard, except in areas zoned for special
protection.
The Florida Marine Fisheries Commission, the Gulf and South Atlantic Fishery Management
Councils, and NOAA's National Marine Fisheries Service (NMFS) will continue to provide
management and regulation of fisheries in the sanctuary. Consultation with these fisheries
management experts has led to several proposed fishing rules.
The sanctuary will prohibit harvesting coral or live rock, except as permitted through the NMFS or
the State of Florida. Current state rules on the harvesting of tropical marine life--ornamental
tropical plants and fish, angel fish, butterfly fish, gobies, jawfish, long-spine urchin, cushion sea
stars--currently apply in the state portions of sanctuary. The sanctuary plan proposes to
incorporate them throughout the sanctuary.
The use of explosives or electrical charges is prohibited throughout the sanctuary. However, the
use of powerheads is allowed in federal waters outside the Sanctuary Preservation Areas and
Replenishment Reserves. The Sanctuary Preservation Areas and Replenishment Reserves will not
allow the taking or disturbance of any sanctuary resources. Fishing will not be permitted in these
non-consumptive areas.
Divers and snorkelers must fly a red and white divers down flag. Divers are prohibited from
moving, taking or otherwise injuring living or dead coral. To avoid injuring the coral, divers should
avoid standing or even touching coral. Standing on or even touching of coral is expressly
prohibited in Replenishment Reserves.
The sanctuary will prohibit any activity that harms or destroys natural or historic resources,
including destructive treasure hunting methods. Whereas the sanctuary will prohibit the unpermitted
removal or injury of historic sanctuary resources, it will allow private recovery of the historic
sanctuary resources in areas relatively devoid of coral, seagrass meadows, and other significant
natural resources.
The sanctuary will permit in certain circumstances private profit from recovery of the public's
historic resources. However, the policy preference is to keep conserved collections together for
research and exhibit and allow individuals to obtain profits from public display through museums
and other means. Private profit from the sale of recovered artifacts may also be permitted once
research and conservation is completed.
These proposed regulations are in response to the needs and concerns expressed during the many
public hearings and advisory council meetings, with every effort made to apply common sense
solutions to issues of public concern.
The Florida Keys ecosystem is diverse and complex, with many of its processes and
interrelationships barely understood. Research and monitoring helps to establish a baseline of
information on the various parts of the sanctuary ecosystem and how they interact with each other.
Gaining such scientific knowledge is critical for making informed decisions about protecting
sanctuary resources.
Research and monitoring are considered together because they are ultimately linked to each other.
Research tests a hypothesis or idea for a specific amount of time. Monitoring involves collecting
and analyzing long-term data to detect changes. Together, research and monitoring may assist in
effective implementation of the management plan, and evaluate the success of management
strategies.
Research and monitoring provide the knowledge necessary for making informed decisions about
protecting the sanctuary resources. The action plan will:
Research and Monitoring may be found as a part of action plans and strategies throughout the
Strategy for Stewardship. The action plan identifies five theme groups:
Research Management to facilitate or improve the capabilities for conducting research and
monitoring within the Sanctuary;
Monitoring for water quality, ecological monitoring, fisheries, and improved techniques;
Fishing Impacts to provide for basic research on fisheries, management methods,
mariculture, impacts of artificial reefs, and harvesting methods;
Environmental Assessment of conditions within the sanctuary such as habitat restoration,
pollution assessment, and determining the effects of Florida Bay on the water quality of the
sanctuary; and
Predictive Capabilities to provide research for assessing the potential impacts of different
management strategies.
Research and monitoring serve as critical tools for fine-tuning management strategies.
Communication between science and management ensures that Strategy for Stewardship will
continue to meet the needs of the environment and the community.
Along our nation's coast, sanctuaries protect and preserve the special natural resources of the
marine environment. Sanctuaries remain equally committed to their stewardship and trustee
responsibilities for historical and cultural resources.
Strategy for Stewardship defines historic resources as "possessing historical, cultural,
archaeological, or paleontological significance, including sites, contextual information, structures,
districts, and objects significantly associated with or representative of earlier people, cultures, and
human activities and events."
Within the Florida Keys National Marine Sanctuary, historical resources include shipwrecks that
are part of both U.S. and world history. The sanctuary strives to manage these and other historical
resources for public benefit and enjoyment, while preserving their historical and cultural heritage
for future generations.
To achieve these goals, the action plan proposes an inventory of submerged cultural resources
within the sanctuary. This would be followed by surveys to identify site locations and
characteristics including name, age, integrity, and historical and cultural significance.
The sanctuary and the State of Florida will develop a coordinated permitting system for the entire
sanctuary consistent with the Abandoned Shipwreck Act. Working together with the state and the
public, the sanctuary hopes to preserve and promote our shared coastal history.
Volunteer
Action Plan
Volunteers contribute to the Key Largo and Looe Key National Marine Sanctuaries in activities
ranging from reef cleanups to education programs. They help with office support, maintenance,
underwater cleanup efforts, data entry and database development, and mooring buoy installation.
Boating
Assist with boater surveys, underwater habitat restoration projects, removal and disposal of
abandoned and derelict vessels, and channel marking.
Fishing Assist with the research activities and on-water programs including data collection on artificial reefs, gear removal, and research on alternative fishing gear and methods. Recreation
Assist with a long-term, comprehensive water quality monitoring program, and help with an
extensive ecosystem monitoring program.
A sanctuary's greatest resource is its community. A successful volunteer program that engages and
empowers citizens results in a healthier environment, and a healthier community.
Clearly, the greatest threat to the environment, the natural resources of the Keys, and the Keys'
economy is the degradation of water quality. This has been a major concern for the residents of
the Keys for years.
The fragile marine ecosystem relies on an intricate balance of nutrient-free, saline-balanced,
oxygenated water. As water quality degrades, biodiversity may be compromised.
Some of the reasons for the decline are believed to be the lack of fresh water entering Florida
Bay; increased nutrients from domestic wastewater; and storm water runoff containing heavy
metals, fertilizers, and insecticides. Other factors may be marinas and live-aboards; poor flushing
of canals and embayments; buildup of organic debris along the shoreline; sedimentation; lack of
hurricanes; and environmental changes associated with global climate change and sea-level rise.
Congress recognized the importance of water quality in maintaining sanctuary resources and called
for a comprehensive Water Quality Protection Program (WQPP).
The purpose of the WQPP--as described in the Act--is to "recommend priority corrective actions
and compliance schedules addressing point and non point sources of pollution to restore and
maintain the chemical, physical, and biological integrity of the Sanctuary, including restoration and
maintenance of a balanced, indigenous population of corals, shellfish, fish, and wildlife, and
recreational activities."
Besides the corrective actions, the Act also requires development of a water quality monitoring
program and provision of opportunities for public participation in all aspects of developing and
implementing the program.
The program consists of four interrelated components:
They will make the regulatory and management system more efficient, possibly leading to indirect
reductions in pollution levels.
In response to the Florida Keys National Marine Sanctuary and Protection Act, Strategy for
Stewardship establishes five different areas: Wildlife Management, Replenishment Reserves,
Sanctuary Preservation, Existing Management, and Special Use. Both recreational and commercial
fishing and diving will be restricted in some zone types. Regulations may exist within these areas to
preserve the long-term health and productivity of the ecosystem. The success of the zoning
program will be evaluated during the five-year update of the final management plan.
Special Use Areas
Special Use Areas may be established for education, science, restoration, monitoring, or research.
Currently there are only four proposed special use areas--all for research only--in Conch Reef,
Looe Key, Pelican Shoal, and Tennessee Reef. Together they total less than 6/10 of a square
nautical mile.
Sanctuary management is a continuous process. The proposed zoning program will be evaluated
as part of a five-year management plan update cycle, with consideration given to modifying or
eliminating areas as appropriate.
In the coming months, we will be discussing these 10 action plans and the goals of Strategy for
Stewardship through informational expositions and public meetings. Public debate is critical to the
development of a final sanctuary management plan, and your comments do matter.
In true Florida Keys style, the community rolled up its collective sleeves and got down to the task
of finding solutions to protect the coral reefs, seagrass communities, mangrove islands, and the
thousands of species that live here. To the volunteer members of the advisory council we are
especially appreciative.
But the work remains unfinished, and we encourage and need the continued support of citizens in
Florida and around the country.
For a copy of Strategy for Stewardship, call or write the Florida
Keys National Marine Sanctuary, Main House, 5550 Overseas Highway, Marathon, FL 33050,
(305) 743-2437
Strategy for Stewardship is a document unlike any other in seeking solutions, engaging citizens,
building cooperation, and solving real problems. We hope this discussion is just the beginning.
Editor's note: Thanks to Alyson Simmons, Billy Causey, Ed Lindelof, Ben Haskell, and Ole
Varmer for their contributions to this issue.
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