$s< 3y4:z £? Final Environmental Impact Statement Proposed Looe Key National Marine Sanctuary October 1 980 U.S. DEPARTMENT OF COMMERCE National Oceanic and Atmospheric Administration Office of Coastal Zone Management FINAL ENVIRONMENTAL IMPACT STATEMENT PREPARED ON THE PROPOSED LOOE KEY NATIONAL MARINE SANCTUARY November 1980 U. S. Department of Commerce National Oceanic and Atmospheric Administration Office of Coastal Zone Management Si 5 TABLE OF CONTENTS COVER NOTE TO READER INTRODUCTION AND SUMMARY CHAPTER ONE: PURPOSE AND NEED FOR ACTION CHAPTER TWO: ALTERNATIVES INCLUDING THE PREFERRED ALTERNATIVE I. Introduction II. No Action Alternative: Rely on the Legal Status Quo III. Preferred Alternative A. Goals and Objectives B. Management C. Preferred Boundary Alternative D. Preferred Regulatory Alternatives IV. Regulatory Alternatives Eliminated From Detailed Study V. Summary of Analysis of Alternatives CHAPTER THREE: AFFECTED ENVIRONMENT I. Marine Environment II. Socio-Economic Setting III. Historic and Cultural Resources IV. State and Other Federal Resource Management Provisions in Adjacent and Nearby Areas V. Legal Status Quo CHAPTER FOUR: ENVIRONMENTAL CONSEQUENCES I. Introduction II. Boundary Alternatives III. Environmental Consequences of the Proposed Regulations A. Coral Collecting B. Commercial Fishing C. Spearfishing D. Historical and Cultural Resources E. Discharges F. Anchoring LIST OF PREPARERS DISTRIBUTION LIST BIBLIOGRAPHY n 1 21 23 23 25 25 26 29 30 36 38 45 45 59 67 69 73 93 93 94 99 99 103 119 121 123 125 129 131 135 APPENDIX A APPENDIX B APPENDIX C APPENDIX D DRAFT DESIGNATION DOCUMENT AND DRAFT REGULATIONS SITE ANALYSIS RESEARCH METHODS LOOE KEY ONSITE SURVEY FLORDIA STATE LAWS AND EXISTING STATE AND FEDERAL MARINE RESERVES AND PARKS APPENDIX E: COMMENTS ON THE DEIS AND NOAA RESPONSES LIST OF FIGURES FIGURE 1: LOCATION OF LOOE KEY 2 FIGURE 2: LOOE KEY BIOLOGICAL ZONES 6 FIGURE 3: BOUNDARY ALTERNATIVES 16 FIGURE 4: BOUNDARY ALTERNATIVES 27 FIGURE 5: LOOE KEY BIOLOGICAL ZONES 49 FIGURE 6: HABITAT AREA OF PARTICULAR CONCERN 82 FIGURE 7: BOUNDARY ALTERNATIVES 95 FIGURE 8: LOOE KEY CORE TRAPEZOID AREA 110 Digitized by the Internet Archive in 2012 with funding from LYRASIS Members and Sloan Foundation http://www.archive.org/details/finalenvirOOnati LIST OF TABLES TABLE 1: CORAL COLLECTING/ WIRE FISH TRAPPING ANALYSES 39 TABLE 2: TROPICAL SPECIMEN COLLECTING/ SPEARFISHING ANALYSES 40 TABLE 3: LOBSTER TRAPPING ANALYSIS 41 TABLE 4: HISTORIC AND CULTURAL RESOURCES/ DISCHARGING ANALYSES 42 TABLE 5: ANCHORING ANALYSIS 43 TABLE 6: SUMMARY INCOME AND BUSINESS VOLUME 65 DESIGNATION : Final Environmental Impact Statement TITLE : Proposed Looe Key Marine Sanctuary ABSTRACT: The National Oceanic and Atmospheric Administration (NOAA) proposed the designation of the waters at Looe Key, a sub- merged section of the Florida Reef Tract, located 12.4 km (6.7 nautical miles) southwest of Big Pine Key in the Florida Keys, as a marine sanctuary. The proposed sanctuary consists of 5 square nautical miles of high sea waters under Federal jurisdiction. The designation of a marine sanctuary would establish a program of comprehensive management, including research, assessment, monitoring, public education, long-term planning, coordination and regulation for this section of the Florida reef tract. The preferred alternative provides sanctuary management goals and objectives which will serve as a framework around which sanctuary activities will be structured. Specific regulations are proposed which would apply only within the sanctuary boundaries. The proposed regulations allow the following activities only under NOAA permit for scientific and educational purposes: possession and collecting of coral, disturbance of historical and cultural resources and marine specimen collecting. The proposal prohibits: spearfishing and possession of spearfishing gear; the use of lobster traps within a core area on the Fore Reef; use of wire fish traps; anchoring on coral within the core area; the discharge of substances except cooling waters from vessels, fish or fish parts and chumming materials and discharges from marine sanitation devices. LEAD AGENCY Alternatives to the proposed action include the no action or status quo alternative, modification of the sanctuary boundaries, and more and less stringent regulations. U.S. Department of Commerce National Oceanic and Atmospheric Administration Office of Coastal Zone Management CONTACT: Dr. Nancy Foster, Deputy Director Sanctuary Programs Office OCZM 3300 Whitehaven Street, N.W. Washington, D. C. 20235 (202)634-4236 INTRODUCTION AND SUMMARY I. BACKGROUND The Marine Protection, Research and Sanctuaries Act of 1972 (16 U.S.C. 1431-1434) authorizes the Secretary of Commerce, after consultation with appropriate Federal agencies, and the affected State, and with Presidential approval, to designate ocean areas having distinctive conservation, recre- ational, ecological, or aesthetic values as marine sanctuaries. In 1977, the National Oceanic and Atmospheric Administration (NOAA) of the Department of Commerce sent out a nationwide letter asking for recommendations of sites appropriate for consideration as marine sanctuaries. The response to this request included a recommendation by the Florida Keys Citizens Coalition (an association of approximately 21 public interest groups) for the designation of Looe Key as a marine sanctuary "to establish a recreational and aesthetic area managed to protect the coral and coral reef ecosystem" (Nomination letter of November 23, 1977) (see Figure 1 for location of Looe Key). As part of the process for scoping out issues early in the designation process, NOAA held a public workshop on the proposal at Big Pine Key in January 1978. At the workshop the Lower Keys Chapter of the Organized Fishermen of Florida (OFF) and many individual fishermen, testified that they were opposed to any designation of Looe Key as a marine sanctuary. OFF members were opposed to: (1) any regulation of fishing activities; (2) any additional presence of the Federal government in the area; and (3) the size of the proposed sanctuary which was rumored to be 20 sq nm.* In addition to these concerns OFF members expressed belief that enough of the Florida Keys and adjacent water areas were in some form of protective status. Other residents opposed a sanctuary on the belief that a sanctuary would only attract more tourists to the area which, in turn, would further deplete and damage renewable resources. On the other hand, a number of individuals and local groups spoke in favor of some type of a sanctuary at Looe Key. The Florida Audubon Society; Big Pine Key Citizens Association; the Isaak Walton League, Florida Chapter; the Florida Keys Citizens' Coalition; and the Upper Keys Citizens' Association testified on behalf of the proposal. The Newfound Harbor Marine Institute * Rumors circulated in the Big Pine Key area that NOAA was proposing a sanctuary consisting of approximately 20 sq nm. However, at that time NOAA was merely investigating the feasibility of designating the sanctuary and did not have any proposal that discussed size. FIGURE 1 LOCATION OF LOOE KEY Sand Key KEY LARGO CORAL REEF MARINE SANCTUARY Key West LOOE KEY spoke in support of a core area where only non-consumptive uses would be permitted. The majority of those testifying spoke of the importance of the reef, although there was disagreement as to the best way of protecting its unique and significant value for future generations. Most emphasized that effective coral protection depended upon the onsite presence of enforcement personnel . Following the workshop, the South Atlantic and Gulf of Mexico Regional Fishery Management Councils requested that NOAA delay further steps until the Councils' coral reef study was completed. NOAA agreed to the delay. Upon later recommendations of the Councils, NOAA resumed the evaluation of Looe Key as a Marine Sanctuary candidate. To determine the desirability and feasibility of proceeding with the designation, NOAA began preparation of a Draft Environmental Impact Statement (DEIS) on October 1, 1979. In October 1979, NOAA printed a Notice of Intent to Prepare an Environ- mental Impact Statement in the Federal Register and held a scoping meeting on the proposal. NOAA gathered and analyzed information and consulted with other Federal agencies, State agencies, the Gulf of Mexico (GMFMC) and South Atlantic Regional Fishery Management Councils (SAFMC), and local interest groups. In May 1980, NOAA issued proposed regulations and the DEIS for public review. NOAA held public hearings on the DEIS in Miami, June 17, and in Key West and Big Pine Key, June 18. The comment period on the DEIS ended July 15 and the comment period on the regulations, July 21. Reaction to the proposed sanctuary has been mixed. In general many local residents, mostly fishermen, opposed the designation; while regional, state, and national civic and environmental organizations, including the State of Florida, support the designation. At the public hearings, the majority of those testifying spoke against the proposal. At all three hearings a number of individuals and environmen- tal and civic organizations, such as the Marine Wilderness Society, Tropical Audubon, the Sierra Club, and National Audubon supported the designation. Members of OFF and a number of individual fishermen and private citizens spoke in opposition. At the Big Pine Key hearing members of OFF presented NOAA with a petition of over 500 names opposing the proposal. Other organi- zations such as Newfound Harbor Marine Institute, the Lower Keys Chamber of Commerce, and the Big Pine Key Civic Association supported a smaller (1 sq nm) sanctuary (for a detailed summary of the public hearings see Appendix E). Over 100 written comments were received in response to the DEIS. In con- trast to the reaction at the public hearings, the written comments were overwhelmingly in support of the NOAA proposal. Approximately 82 comments were received representing membership in national, regional and local conservation organizations, civic groups, recreational diving associations, boating groups, and including Federal agencies and individuals. These commentors either supported the proposal, or suggested an enlarged boundary and/or more restrictive regulations. Approximately 10 written comments were received that advocated a smaller area or opposed the proposal (see Appendix E for a compilation of letters and NOAA responses). The Final Environmental Impact Statement (FEIS) summarizes and responds to all of the comments received through July 21, 1980. It proposes the desig- nation of a marine sanctuary in high seas waters at Looe Key and describes the proposed regulations for this sanctuary. The boundary and regulations are summarized in this chapter and discussed more fully in Chapters Two and Four and are presented in full in Appendix A. The major changes to the proposal from the preferred alternative in the DEIS are as follows: 1. The Designation Document (Appendix A) has been changed to acknowledge the importance of Looe Key to commercial fishing in Article 3. Characteristics of the Area That Give It Particular Value. 2. The description of the sanctuary boundary has been inserted in Article 2. of the Designation Document (Appendix A). 3. The regulation on anchoring has been changed to prohibit anchoring on coral within the Fore Reef area as defined by the Loran "c" points 1 , 2, 3, 4 of Appendix A (see Chapter Four, 7. Alternatives Regulating Anchoring). Sand anchoring is encouraged, but not required, elsewhere within the sanctuary. 4. The regulation on tropical specimen collecting has been changed to prohibit collecting within the sanctuary except with a permit for scientific and educational purposes (see Chapter Four, 3. Regulations Affecting Tropical Specimen Collecting and Generic Response #4, Appendix E). If NOAA decides to proceed with the designation, the Secretary of Commerce must receive Presidential approval and final regulations for the sanctuary will be issued. II. NATIONAL MARINE SANCTUARY PROGRAM (NMSP) PURPOSES The National Marine Sanctuary Program (NMSP) focuses on comprehensive management of marine ecosystems for the long-term protection of natural resources and the enjoyment and benefit of society. The following program purposes present a framework for the national sanctuary system: ° To provide long-term protection to special marine areas with unique conservation, recreational, ecological or aesthetic values; ° To provide a focus for comprehensive management of these areas; To enhance public awareness of special marine areas and emphasize wise use of these natural resources; ° To encourage research and exchange of information about marine ecosystems. III. THE RESOURCE ° General Biology of Coral Reefs The reefs off eastern Florida begin at Fawrey Rock near Miami and extend all the way to the Dry Tortugas. There is little coral growth along the Florida west coast due to the limiting nature of the colder water and sediment content of the Gulf of Mexico. Looe Key Reef is a submerged section of this east coast Florida reef tract located 6.7 nautical miles southwest of Big Pine Key in the Lower Florida Keys. The proposed sanctuary area includes a Fore Reef, Reef Flat, Patch Reef, Deep Reef and Deep Ridge. Coral reefs such as Looe Key are among the most biologically produc- tive of all natural communities. Looe Key supports a wide variety of life: fish, sponges, molluscs, crabs, octopi , starfish, shrimp, feather duster worms and octocorals. The octocorals—fanlike, fernlike--are among the most decorative creatures on the reefs. The rich colors of the reefal organisms also provide an attraction to swimmers. Looe Key, because of its wide range in depth, is accessible to both the beginning swimmer and the experienced diver. In addition to contributing to aesthetic experiences, colors are used by organisms for identification, camouflage, and signals, and to establish territoriality and attract mates. The solid substrate formed by the corals at Looe Key provides for this tremendous diversity of life, all directly or indirectly dependent upon the corals and coral rock for shelter, food or for a place to attach and grow. On the seaward slope, the reef flat and on the sandy bottom around the reef, one finds animal communities or assemblages different from those on the reef itself. In the soft bottom areas, grasses and algae cover the sediment and they in turn support still different communities. Many fish and invertebrates leave the safety of the Fore Reef at night to search the nearby Reef Flat and Patch Reefs for prey. These areas are also used as nursery grounds for juvenile fish. On the other hand, sessile reef species often feed on planktonic stages of animals found away from the Fore Reef in other habitats. The Reef Flat zone consists of rock and rubble areas which serve as excellent habitat for small invertebrates. The Fore Reef and surrounding communities form a complex and intricate ecosystem which owes its evolution primarily to the corals' unusual ability to extract dissolved salts from the ocean and convert them into the limestone reef formations. ° General Ecological Relationships Reefs depend upon two basic factors: solar energy and chemical nutrients. Sunlight and nutrients in combination are utilized by plants in the process called primary productivity. The majority of the plants at Looe Key engaged in primary productivity are algae, microscopic in size and sheltered within the tissues of soft and hard corals, sea anemones and sponges. This is a form of symbiosis (mutual aid) in which algae produce the food and in return receive shelter and sustenance from the corals. FIGURE 2 Y y\ PATCH REEF ZONE REEF FLAT ZONE FORE REEF ZONE ^)C| DEEP REEF ZONE DEEP RIDGE ZONE (NOT SHOWN) SAND SEA GRASS CORAL HAWK CHANNEL LOOE KEY BIOLOGICAL ZONES , CORAL SPURS STRAITS OF FLORIDA Cnidarians, sponges, echinoderms and molluscs all contribute to reef building in that they can remove dissolved material from the water and deposit it as hard mineral compounds. Calcium carbonate (CaCOo), the building material of reefs, comprises much of this material. Stony corals and molluscs contri- bute with their hard skeletal remains; gorgonians and certain sponges, by secretions of microscopic rods of CaC0 3 released with the death of the animals; echinoderms, through skeletal remains composed of carbonate plates. The Looe Key Reef System All major taxa of coral reef-dwelling organisms are represented at Looe Key. A report, based on a resource inventory conducted by Antonious et a! , in 1978, indicates the existence of several hundred species of marine organisms, co-existing in the intricate functional web of the reef ecosystem. The inventory divides the Looe Key Reef area, from an ecological /topo- graphical point of view, into five zones: (1) a Patch Reef area between Hawk Channel and the Looe Key reef flat, (2) the Reef Flat, triangular in shape, with the Looe Key marker in the southeast corner, (3) the Fore Reef, facing Florida Straits to the south, consisting of a spur and groove system, and the reef crest (4) a Deep Reef area with a drop-off, southwest of the Fore Reef and (5) a Deep Ridge, separated from the Deep Reef by an estimated 1 km of sand bottom (Figure 2). The proposed sanctuary boundary was selected to insure inclusion of portions of all five zones. Patch Reef A flat and relatively shallow area of about 8 m in depth stretches from Hawk Channel south to the Looe Key Flat. The area is dominated by a mixed association of seagrasses, such as turtle grass and manatee grass, and green algae and octocorals. Continued survival of the seagrass beds is critical for maintenance of the habitat utilized by numerous fishes and the spiny lobster* Utilization of the patch reefs for shelter from predators allows both juveniles and adults to exploit an enormous and nearby source of energy, the biomass of seagrass association. Due north of the Looe Key Reef Flat are numerous patch reefs scattered throughout the seagrass community. Most of these reefs have little profile and generally project up less than 2 m from the shallow bottom. Among the faunal components in all the Patch Reefs, octocorals are by far the most dominant. They not only grow densely enough to give certain Patch Reefs the appearance of a heavily vegetated landscape, but also attain unusual sizes. Octocoral species diversity is greater in the Patch Reefs than on the more spectacular Fore Reef. Among giant sea feathers and sea whips, the largest specimens are close to 2 m in height. Reef Flat The Looe Key Reef Flat is roughly the shape of an isosceles triangle, its base facing south towards the Straits of Florida and the apex pointing landward to the north. On this landward side there is a very gradual transition from the seagrass coral association of the Patch Reef area into the Reef Flat, marked mainly by the beginning of extensive sand flats and an elevation of the bottom to about 2 m in depth. The bottom consists primarily of calcareous sand, rubble, coarse sediments and extensive sea- grass beds, a mixture of turtle grass, manatee grass and algae. The rock and rubble grass beds of the Reef Flat provide excellent habitat for small invertebrates. Abundant populations of other organisms, such as brittle stars, small crustaceans, small gastropods, pelecypod mollusks, and echinoderms abound in this area. The Reef Flat together with the Patch Reef serve as nursery areas for juvenile fish and the sea- grass beds of both zones are feeding grounds for deep-water fish migrating to these areas at night. Fore Reef The Fore Reef zone of Looe Key is a wel 1-devel oped and especially spectacular formation. This zone is the principle diving attraction for both local residents and tourists. Its main portion is a high profile spur and groove system, bordering the Reef Flat in very shallow water and sloping down to a sand bottom in 9-11 m of depth with some of the spurs showing a profile of up to 7 m high, caused mainly by the vigorous construction activity of "mountainous" star coral ( Montastraea annularis ). Massive growths of fire coral ( Millepora complanata ) are mainly found in the shallowest part of the spurs, with substantial concentrations of elkhorn coral immediately seaward of the fire coral complex. Almost all of the species of fish encountered in the reef system can be found here, with the exception of some species which prefer deeper water and can only be observed beyond a depth of 10 m. The whole system, from easternmost to westernmost spur, is about 1500 m long and, at the main center portion, about 350 m wide, (Antonius et. a]_. , 1978). Deep Reef The western half of the Fore Reef is intersected by a deeper reef, which begins here as a finger-like extension of scattered coral outcrops just beyond the terminus of the spur and groove system. From here, a reef flat of 10-12 m depth stretches several hundred meters to the west without showing much profile, representing a comparatively shallow subzone of the Deep Reef. Sponges are fairly common and grow to larger sizes in the Deep Reef than in the Patch Reefs. Octocorals are dominant, but stony corals are more numerous than in the Patch Reefs. Towards the south, the Deep Reef gradually changes into a slope of increasing steepness with considerable profile caused by surge channels. 8 While species composition of stony corals in the deeper part of this zone remains about the same, the number and size of individual colonies increases, making them the dominant component here. Also with increasing depth, changes in the octocoral fauna take place. Among Pseudopterogorgia species, P. binnata far outnumbers all others, and two deepwater species occur only here: the rare monofilament Ell i sella barbadensis , andxthe abundant fan-shaped Iciligoria schrammi . Although species composition resembles that of shallower parts of the reef, a number of hard or stony corals with branching and flower-like growth forms occur on the Deep Reef, which are either not present or very rare in more accessible areas of Looe Key. Species of the genera Madracis and Ocul ina grow in clusters of small finger-like branches while colonies of Mussa angulos and Eusmilia fasti giata resemble bouquets of densely packed flowers. Disc-like growth forms of striking shape are found among many species of Agariciidae and Mussidae, which only at this depth occur in appreciable numbers. Deep Ridge This Deep Ridge runs parallel to the margin of the continental shelf in about 45 m depth. It shows very little profile and is only a few meters wide, but, nevertheless, is an outcrop of living coral reef. The reef is formed mainly by plate-like colonies of Montastraea cavernosa and several secies of Agaricidae. Also present are deep water octocoral s, such as Iciligoria schrammi and Ell i sell a barbadensis , with the latter much more abundant here than on the Deep Reef. ° Cultural Values Looe Key also offers unique cultural resources including the remains of the H.M.S. Looe . The latter is used for research and as an educational tool by the nearby Newfound Harbor Institute. In addition to providing marine archeological information, shipwrecks become coral encrusted and offer unique dive experiences. The potential exists for other shipwrecks in the Looe Key area as such resources are common in the Florida Keys. ° Commercial Values Fishery resources are an extremely valuable component of the proposal area. Commercial fishermen with home ports adjacent to Looe Key derive about 28 percent of their annual catch from the 5 sq nm area which includes the Fore Reef. This catch primarily includes spiny lobster, snapper and grouper. In addition, Looe Key is widely used by public charter boats, dive boats, recreational divers and fishermen. IV. THE STATUS QUJQ One alternative to marine sanctuary designation of Looe Key is the no action alternative (see Chapter 2). Under this alternative, existing authorities as described in the Legal Status Quo would continue to control activities and protect the environment in and around Looe Key. No comprehensive management programs for research monitoring or education would be instituted. In addition, long range planning focused on ensuring continued ecosystem viability would be lacking. Concerns The close proximity to land of the Florida Reef Tract, including Looe Key Reef, makes these areas accessible to large numbers of people who are able to drive or fly to the Keys. The Overseas Highway and its 44 bridges link the Keys to the mainland, and jet air service connects Key West and Marathon to all major American urban areas. In addition, public charter boat operators, dive boats, recreation divers and fishermen, utilize the reef throughout the year. Monroe County statistics indicate that the Keys are expanding rapidly in both permanent resident and tourist populations. In the area nearest Looe Key, from Seven Mile Bridge up to and including half of Ramrod Key, the population is expected to grow from 1,833 in 1974 to 5,845 in 1998 (See Black, Crow & Eidsness, pp 3-4). Tourism is increasing. In 1979 the number of visitors to Bahia Honda State Park, in the vicinity of Looe Key, rose from 293,256 to 351,700. Observations from the Looe Key Resource Inventory (Antonius et. aj_. , 1978) and interviews with frequent visitors to Looe Key indicate that souvenir coral collecting is an ongoing practice today, and as such constitutes a serious strain on the reef's coral resources. The lack of certain species in accessible reef areas of suitable habitat provide circumstantial evidence of the removal of the more attractive growth forms. Anchoring by hook and line fishermen, commercial and amateur tropical specimen collectors, recreational fishermen, and divers can also cumulatively damage reef structure. Physical damage to coral species from commercial fishing can occur when wire fish traps and lobster traps are dropped on coral, dragged across the bottom during retrieval or tossed about during rough weather. There is widespread evidence of anchor damage to stony corals and octocorals within the area of the proposed sanctuary. Broken pieces of elkhorn and staqhorn coral are easily visible in the Fore Reef and Reef Flat zones where the water is shallow and the more spectacular coral is found. Some of this type of damage may be related to wave damage or other natural factors. The extent to which it is anchor- related is unknown at the present time. Numerous observations have been made of boat anchors lying on living corals and of anchor chains and ropes chafing corals. The use of wire fish traps is a highly controversial issue. The traps are extremely efficient gear. Fishing near the coral reefs with these traps can cause adverse ecological impacts by killing or injuring non- target species and removing too many of the predator species important to the coral reef system. Traps lost by the separation of the buoy line (ghost traps) drift uncontrolled and can continue to trap fish for unknown periods of time. Unregulated use of wire traps can also impair recreational value. 10 Both amateur and limited commercial tropical fish and invertebrate collecting occur throughout the Looe Key area. Tropical specimen collectors take a large variety of fish, but concentrate primarily on a small number of the more popular species. The most commonly collected fishes, according to a recent study, are angelfishes, damselfi shes, and butterflyfishes. Individually, the most sought after fishes are the queen angelfish, rock beauty and neon goby. Dredging, dredged material disposal and ocean outfalls do not appear to pose a realistic threat to the area at this time. However, due to the increasing num- ber of visitors, disposal and discharge of certain other substances such as trash and litter are sources of concern. Current disposal and discharge activities are generally incidental to recreation and research; i.e., disposal of fish parts from cleaning and dressing fish caught in the area, release of marinetype chumming or bait and materials, discharge of effluents from marine sanitation devices, discharges of cooling waters from normal vessel engine operations and disposal of trash and litter from pleasure and research watercraft and transient vessels. Finally, there is currently no protection for potentially important archaeological resources found in the area, including the shipwreck HMS Looe . ° Statutory Authorities Looe Key is located on the continental shelf seaward of the territorial sea and State jurisdiction. A variety of Federal statues and regulations apply to activities in the area. Those that apply to activites posing significant threats are analyzed in Chapter Three, The Legal Status Quo. The mandates of existing authorities are often too broad to focus adequately on small discrete areas requiring special management measures. Jurisdictions include, in some cases, all waters or seabed out to 200 nautical miles off the entire United States coastline. In other cases, mandates are often too narrow to provide holistic attention; statutes directed at a particular resource may neglect or exclude components of the entire ecosystem. Finally, decentralized management of multiple use areas can result in policy conflicts, and does not lend itself to integrated management including education, research, recreation and information exchange. Regulation of coral collecting, tropical specimen collectings spearfishing and anchoring activities does not presently exist. Fishery Management Plans (FMP) are in preparation for some, but not all species of interest. The SAFMC and the GMFMC are jointly preparing a draft Coral and Coral Reef Resources FMP as the initial step in the management of all coral species under the jurisdiction of these two Councils. The current plan proposes to approve for harvest limited quantities of certain soft coral species, and to prohibit taking of hard corals except under permit for scientific and educational purposes. This draft FMP further proposes to designate Looe Key as a 1 sq nm Habitat Area of Particular Concern (HAPC) with special management measures for additional protection of the Fore Reef area (see Legal Status Quo). In addition to the Coral and Coral Reef Resources FMP, the SAFMC and the GMFMC are jointly preparing a FMP for Spiny Lobster, and the SAFMC is preparing a FMP for Snapper-grouper. Restrictions on fishing for these resources may be 11 proposed pursuant to the plans. In lieu of enough information to warrant preparation of a FMP for reef resources such as tropical fish and invertebrates, the Councils are considering the preparation of a profile or description of the resource and fishery. The final scope and content of all FMPs is uncertain at this time because they are in draft form and subject to change. None of these FMPs is likely to be implemented until late 1981. Although a variety of Federal laws, regulations and policies apply to activities occurring in the general area of the proposed sanctuary (see Chap- ter 3, Section V), they do not appear adequate to assure long-term protection of Looe Key. Given these special resources, their particular vulnerability, and the multiple, increasing human pressures on the area, assurance of long-term pre- servation of Looe Key requires (a) a management framework that will monitor, assess and act on information about the cumulative effects of human uses, (b) a mechanism to coordinate and encourage research that will lead to necessary management decisions, and (c) efforts to educate the public about the value and the fragility of the reefal system. The no-action alternative appears to meet none of these requirements. The status quo provides no focal point for comprehensive long-term management, and no programmatic mechanism to promote and coordinate research on coral reef ecology and ecosystem recovery or to provide information to the direct and indirect user public. There are currently no programs to provide education and information aimed at increasing long-term protection of these areas by increasing public awareness of the distinctive resources and their susceptibility to disturbance. The marine sanctuary program proposes to provide a comprehensive mechanism through long-term management to protect this ecosystem and to respond in a timely fashion to marine conservation issues and to the interests of affected user groups as those issues arise. V. THE PROPOSAL The Office of Coastal Zone Management (OCZM), which is responsible for the marine sanctuary program within NOAA, proposes the designation of Looe Key as a marine sanctuary. The sanctuary area consists of 5 sq nm of high sea waters under Federal jurisdiction surrounding Looe Key, a submerged section of the Florida Reef Tract, located 6.7 nautical miles (12.4 km) southwest of Big Pine Key in the lower Florida Keys at latitude 24°33' north and longitude 81°24' west (see figs. 1 and 3). Looe Key is part of a curving reef tract off the Florida Keys containing the only living coral reefs in the United States (Ginsburg 1974). The Looe Key area includes: ° Portions of Patch Reefs, a Reef Flat, Fore Reef, Deep Reef and Deep Ridge in a small manageable unit which allows for a focus on public education and research aimed at a better understanding of reef dynamics; 12 Shallow water reef areas easily accessible to the public; ideal for recreational uses by both amateur and experienced individuals. The 5 sq nm boundary alternative will provide a reasonable slice of the reef tract which will permit management to achieve the proposed sanctuary objectives as described below and result in minimal economic impact. For these reasons it was selected as the preferred boundary. Proposed Management The management of Looe Key as a marine sanctuary will focus on the attain- ment of several goals and objectives (Chapter Two Preferred Alternative): Goal 1: To maintain, protect and enhance the quality of the natural, biological, aesthetic and cultural resources of Looe Key reef system. Objectives: Promulgate protective regulations; Provide a framework for onsite management; ° Provide for adequate enforcement; ° Utilize research data to assess management needs and priorities, modify regulations and to determine management strategies. Goal 2: To promote and stimulate marine research efforts directed toward tification and analysis of marine ecological interrelationships. ident Objectives ° Encourage and cooperate with interested parties in research and study of reef interrelationships; ° To establish competitive funding mechanisms encouraging a wide range of scientific expertise to focus attention on reef dynamics; ° Establish a clearing house for dissemination and exchange of sanctuary research data; and To facilitate effective management of Looe Key. Goal 3: To enhance public awareness of the need for conservation and protection of the Looe Key coral reef system. Objectives: ° Provide a means for education and information exchange; Develop educational programs that will increase awareness and appreciation of Looe Key through a public information effort (including slides, brochures, lectures, etc.); ° Establish a sanctuary information center; and Develop interpretative services. The Management Plan and Enforcement . If the sanctuary designation occurs, development of a formal Management Plan (MP) will be undertaken and completed within the first 9-12 months. NOAA proposes to work with the Florida Department of Natural Resources in the formulation of this plan. The MP development process will emphasize public 13 involvement and review. Alternative means of insuring user participation in sanctuary management will be explored in the public forum. If advisory committees are desired, they will become a part of the formal management structure. NOAA proposes to contract for day-to-day management of the sanctuary, if such an arrangement can be reached under a Cooperative Agreement. The manage- ment staff will consist of trained personnel with experience in special area planning and management. The manager will be charged among other things with responsibility for coordinating enforcement and surveillance activities within the proposed sanctuary. The manager will be responsible for administering the sanctuary and providing reports to include (but not limited to) the following items: Environmental analysis studies; ° Visitor use and visitor use capacity studies, user-related impacts, and such other information as necessary; ° Enforcement analysis, including a summary of activities, notices of violations, case dispositions, including statistical information on number of visitors, points of entry and areas and types of use, and conclusions and recommendations, including ways to improve management. The MP would provide for a visitor information station to distribute information on regulations within the sanctuary and other public information concerning knowledge of the Looe Key Coral Reef system and ongoing research projects in the sanctuary and appropriate uses of the natural resources. NOAA has initiated consultation with the U.S. Coast Guard headquarters on the question of the proposed Looe Key Marine Sanctuary enforcement. The Coast Guard will provide the Looe Key Marine Sanctuary enforcement and surveillance for NOAA and arrangements will be worked out to insure an onsite presence. NOAA believes that the level of enforcement required in the Looe Key Sanctuary cannot be achieved through routine patrols or as an add-on to other duties. Proposed Designation The Designation Document (Designation) serves as a constitution for the sanctuary (the draft Designation for the proposed Looe Key Marine Sanctuary is presented in app. A). It establishes the boundary and purpose of the sanc- tuary, identifies the types of activities that may be subject to regulation, and specifies the extent to which other regulatory programs will continue to be effective within the sanctuary. Its content can be altered only after repeating the entire designation process and securing Presidential approval. The draft Designation proposes that the following activities be subject to necessary and reasonable regulation: ° Anchoring; Coral collecting and damage; Wire trap fishing; ° Lobster trapping; 14 ° Tropical specimen collecting; ° Spearfishing; Bottom trawling and specimen-dredging; ° Discharging or depositing any substance; Tampering with, removing, or otherwise damaging, cultural or historic resources; and ° Dredging or alteration of or construction on the seabed. Hook and line fishing, net fishing and activities such as snorkeling and SCUBA diving will not be subject to regulation under the current Designation except where regulations relating to the damaging of natural resources apply. Proposed Regulations The proposed restrictions on activities are set forth in the draft regu- lations (Appendix A). At the present time NOAA is not proposing to regulate alteration of or construction on the seabed or bottom trawling and specimen- dredging. However, by listing these activities in the Designation, restrictions could be proposed in the future should conditions warrant it. NOAA may legally promulgate regulations only in relation to the specific activities listed in the Designation, but the Designation itself does not constitute regulations or impose restrictions. Specific regulations must be proposed, subjected to public review and comment and promulgated if NOAA wishes to control any aspect of the activities listed in the Designation. Specific regulations summarized here and presented in detail in Chapter Two, are proposed for the protection of the natural resources and the safety of the various user groups as part of NOAA's preferred alternative. To the extent possible, the sanctuary managers will coordinate with existing authorities in both the administration and enforcement of the regulations. These regulations will apply only within the sanctuary boundaries. The full text of the proposed regulations as they appear in the Federal Register is presented in Appendix A. The proposed regulations would impose the following controls: (1) Prohibit damage to or the collecting of coral except by permit for research and educational purposes; (2) Prohibit the collecting of tropical marine specimens except by permit for scientific and educational purposes; (4) Prohibit the use of wire fish traps; (5) Prohibit lobster trapping on the Fore Reef (consisting of a trapezoid within Loran "C" points 1 , 2, 3 and 4 consistent with the Habitat Area of Particular Concern (HAPC) proposed by the Gulf of Mexico and South Atlantic Fishery Management Councils); 15 §5 < a co CO 5 w § « S D s O £ M K H e. V. CO •" 5 IS " is to o OS s < — 52 » I B fyHW ■«< zzz ess 16 ess; os coq D ZZZ 2 5=15 03 Bancs 2§gg EEE 555 -'•n (6) Prohibit anchoring on coral on the Fore Reef (consisting of a trapezoid within Loran "C" points 1, 2, 3, 4, and encourage sand anchoring elsewhere within the sanctuary; (7) Prohibit tampering with, damaging or removal of natural histor- ical and cultural resources except by permit for scientific and educational purposes; and (8) Prohibit all discharges except vessel cooling waters, fish parts, chumming materials and effluents from marine sanitation devices. VI. SUMMARY OF ENVIRONMENTAL CONSEQUENCES OF THE PREFERRED ALTERNATIVE Sanctuary designation will provide long-term protection for a representa- tive section of the Florida reef tract from Patch Reefs out to the Deep Ridge. Comprehensive management of this area will include emphasis on increasing the level of public awareness of resource values and of the potential for harm through a public education program and research on reef biology and system interactions. Management of a section of the reef tract will allow for appro- priate distribution of visitor uses and consequent control of certain harmful effects. Minimal economic impacts will result from proposed restrictions within the preferred boundary alternative (See Chapter Four Environmental Consequences). Boundary The preferred alternative for the boundary (5.32 sq nm) will protect the entire Fore Reef and Reef Flat and portions of the adjacent Patch Reef, Deep Reef, and Deep Ridge. A sanctuary of this size will result in the protection and management of a system, rather than simply individual components (see Figure 3). It will help insure accomplishment of all sanctuary goals (See p. 4) by encompassing a "slice of the ecological pie", affording opportunity for focus on education and research. The preferred alternative emphasizes the maintenance of the biological interrelationships of the reef system components in order to maximize public benefits and minimize resource threats. The 5 sq nm sanctuary will also maximize the enforcement capability for sanctuary regulations. In addition, the 5 sq nm will have minimal adverse economic impact on commercial fishing as compared to larger boundary options. ° Anchoring The proposed regulation would prohibit anchoring on coral on the Fore Reef. The regulation will help protect the Fore Reef coral assemblages from snagging, breaking and other anchor damage. Sand anchoring will be encouraged outside the Fore Reef. This will not provide maximum protection for coral growths in this area but will have minimal impact on sanctuary users. An educational program to advise users on anchoring procedures and frequent site inspections will be utilized in order to ensure the success of this regulation. A mooring buoy design and feasibility study will be initiated upon designation, and if such a system seems desirable the proposed regulation would be modified at the time buoys are installed. 17 ° CoraJ Collecting and Damage The proposed regulation would prohibit the collection or possession of all corals, living or dead, within the proposed sanctuary (except as permitted for scientific and education purposes). The regulation will protect the coral assemblages from stress and physical damage. This will maintain the reef habitat for fish and preserve aesthetic qualities. ° Wire Fish Traps The proposed regulation would prohibit the use of wire fish traps within the entire preferred sanctuary boundary. This regulation would prevent both the physical and ecological damage to the coral reef system from wire fish traps. The recreational and aesthetic values of the sanctuary will also thereby be maintained and enhanced. The regulation would not prohibit the setting of traps beyond the sanctuary boundaries. The regulation will, however, adversely affect those fishermen who presently use wire fish traps within the 5 sq nm area and therefore will be forced to move elsewhere to trap. ° Lobster Trapping The banning of lobster traps from the Fore Reef will prevent the physical damage that frequently occurs when lobster traps contact the coral due to improper placement or storm surge. However, because the prohibition is limited to a small geographic area, the regulation will result in minimal, if any, economic loss to the fishing community. The proposed regulation is the same as the special management measure for Looe Key under consideration in the draft Coral and Coral Reef Resources FMP. ° Tropical Marine Specimen Collecting A prohibition on tropical specimen collecting (except by permit for scien- tific and educational purposes) would protect and enhance the tropical fish population at Looe Key, prevent the depletion of ecologically important species, add to the aesthetics of the sanctuary, and maintain and enhance the long term productivity of the Looe Key coral reef for future generations. Many suitable areas for tropical specimen collectors to catch tropical fish and invertebrates exist in the south Florida area including shallow inshore areas, inshore coral heads, mid-channel reefs (in the middle of Hawk's Channel), and the entire outer reef. This alternative would cause limited economic loss to present commercial collectors. The total economic loss of revenue per year estimated in the socio- economic analysis for Boundary Alternative 2 would be $25,000 to $43,000 or $80,075 to $137,729 using regional multipliers. At least some of this loss could be made up by collecting elsewhere and by commercial collecting under permit for sale to public aquaria and education research institutions. 18 ° Spearfishing The proposed regulation would prohibit spearfishing within the entire preferred sanctuary boundary. One of the primary impacts of prohibiting the spearing of fish will be to create better conditions for observing, studying and photographing fish. This prohibition will also benefit the ecological system by ameliorating the continued disturbance and removal of territorial reef predators such as grouper, eliminating physical damage to coral from inexperienced spearfishmen, reducing the inadvertent kill of non-edible tropical reef fish species, and eliminating the potential for human injury. ° Discharges The prohibition of discharges will help insure a high degree of water quality by preventing the discharge or deposit of most material within the sanct- uary. The regulation allows the discharge of chumming materials and fish parts, cooling waters, and effluents from marine sanitation devices. The regulation will not impact fishing activities. The economic impact on sanctuary users is minimal, although they will be required to retain their trash for disposal in proper sites. ° Historical or cult ural resources Tampering with, removing or damaging historical or cultural resources is prohibited. The regulation will protect the HMS Looe from possible tampering or removal. VII. ACTIVITIES LISTED IN THE DESIGNATION DOCUMENT FOR WHICH REGULATIONS ARE NOT CURRENTLY BEING PROPOSED ° Alteration of or construction on the seabed* ° Bottom trawling and specimen-dredging. The Army Corps of Engineers (COE) exercises authority over construction and the dumping of dredged materials but not the actual dredging. The Bureau of Land Management (BLM) has jurisdiction over dredging activities related to mineral leasing such as sand and gravel mining. However, no other existing Federal regulatory authority has jurisdiction over other activities that might alter the seabed such as dredging. Exploratory trawling for reef fish on live bottoms in the South Atlantic has proven economically and technically feasible. It is possible that some time in the future modified gear such as roller trawls would be contemplated for use in areas such as Looe Key. While adverse impacts of both of the above activities are well documented, NOAA has no evidence to indicate that they pose realistic threats to the resour- ces at this time. For this reason NOAA is not promulgating regulations but is listing these activities in the Designation Document, and may issue regulations at a future date if the need arises. 19 VIII. MARINE SANCTUARY PERMITS Marine sanctuary permits, issued by NOAA, will be required for an activity which would otherwise violate the regulations. The permit procedure is specified in the regulations (app. A). IX. CERTIFICATION OF OTHER PERMITS The regulations propose to certify in advance any permit, license, or other authorization issued pursuant to any other authority within the sanctu- ary as long as the activity does not violate marine sanctuary regulations. This notice of validity avoids duplicating permit delays and costs where there is no violation. 20 CHAPTER ONE PURPOSE AND NEED FOR THE ACTION The Office of Coastal Zone Management (OCZM) of the National Oceanic and Atmospheric Administration (NOAA) has identified the Looe Key Reef as a special marine area with important conservation, recreational, ecological and aesthetic resources, threatened by existing and potential human use and deserving of marine sanctuary designation. The goals of this proposed Looe Key Marine Sanctuary are as follows (for a more detailed discussion see Chapter Two): ° To maintain, protect and enhance the quality of the natural biological aesthetic and cultural resources of the Looe Key Reef system; ° To promote research and study of sanctuary resources; ° To enhance public awareness of the functioning of the Looe Key coral reef system and to provide a means for education and information exchange. The Looe Key area offers an opportunity to focus management attention on a small, highly used cross section of the Florida Reef tract. Looe Key manage- ment will concentrate on encouraging coral reef research within the sanctury, ensuring a coordinated approach to data exchange and availability, and developing effective public education programs, and long-term plans for the preservation of the resources. Each of these programs will contribute to increased knowledge and understanding necessary to ensure wise use of our marine ecosystems. The accessibility of Looe Key to commercial, recreational and educational users, its high productivity, and superior scenic beauty have led to frequent and increasing use of the area, with resulting physical and ecological damage to the reef system. Monroe County socio-economic studies indicate that both permanent and tourists populations, in the area nearest Looe Key, are increasing; corresponding increases in the use of Looe Key have potential for long-term adverse environmental consequences. Sanctuary designation will provide the long term integrated management necessary to protect and use wisely these resources. As a part of the proposed management system certain additional regulations appear necessary. Most significantly, in a recent legal opinion, the U.S. Court of Appeals, Fifth Circuit, ruled that the Bureau of Land Management's jurisdic- tion to regulate the taking of coral and other activities damaging to coral reefs is restricted to offshore activities associated with mineral exploration and development by lessees and their agents, leaving coral reefs such as Looe Key unprotected from damage due to coral collecting, improper anchoring, and certain potentially harmful fishing techniques. OCZM, therefore, proposed to designate Looe Key as a National Marine Sanctuary under Title III of the Marine Protection, Research and Sanctuaries Act of 1972. Such an action will allow for long term protection of a valuable section of the Florida reef tract and comprehensive management which will include both research and educational components (See Chapter Four, Environmental Consequences). 21 CHAPTER TWO ALTERNATIVES INCLUDING THE PREFERRED ALTERNATIVE I. INTRODUCTION NOAA proposes to designate Looe Key as a marine sanctuary to protect and enhance its natural features and to promote scientific understanding, public appreciation and wise use of its resources. Various management, boundary and regulatory alternatives have been considered in the evaluation of the proposed action. This section presents a brief analysis of all reasonable alternatives, including a no action alternative (status quo) and the preferred alterna- tive, and a brief discussion of the physical, biological, ecological and socioeconomic impacts resulting from the proposed action. A detailed impact analysis is presented in Chapter Four, Environmental Consequences. II. NO ACTION ALTERNATIVE: RELY ON THE STATUS QUO Looe Key is located on the high seas just seaward of State jurisdic- tion. A variety of Federal laws, regulations, policies and procedures apply to activities occuring in the general area of the proposed sanctuary (for a detailed description please see Chapter Three, Section V The Legal Status Quo). An alternative to the proposed action is the "no action alternative" (status quo), meaning that Looe Key would not be designated as a marine sanctuary. Under this alternative, the existing authorities as described in the Legal Status Quo would continue to control activities and protect the environmemt in and around Looe Key. No comprehensive management program for research, monitoring or education would be instituted. In addition, long range planning focused on insuring continued ecosystem viability would be lacking. As discussed below under the Preferred Alternative and in more detail in Chapter IV, Looe Key is a special marine area; a complex, fragile eco- system containing valuable natural resources. Part of it's uniqueness lies in the fact that it is readily accessible to all user groups and it offers a range of water depths which will accommodate novice to expert swimmers, snorklers and divers. These factors in combination with its spectacular beauty have resulted in increasing levels in human uses (Please see Chapter One - Purpose and Need for Action). Human activities that either singularly or in combination may place stress on the reef system include anchoring, wire trap fishing, spearfishing, tropical specimen collecting, and damage to or removal of historical and cultural resources. The current literature suggests that coral reef resources, are unusually susceptible to some forms of environmental perturbation. In addition, when a reef system is seriously damaged the ecological conditions that follow cannot he expected to coincide with those preceeding so that it cannot be taken for granted that the reef will ever replace itself. 23 Given these unique resources, their particular vulnerability, and the multiple, increasing human pressures on the area, assurance of long term preservation for Looe Key requires (a) a management framework that will monitor, assess and act on information about the cumulative effects of human uses, (b) a mechanism to coordinate and encourage research that will lead to necessary management decisions, and (c) efforts to educate the public about the value and the fragility of the reefal system. The no action alternative appears to meet none of these requirements. Existing statutes, including the Outer Continental Shelf Lands Act, the Clean Water Act, and the Marine Mammal Protection Act, are directed either at the accomplishment of a single purpose or the regulation of a single activity, such as the extraction of oil and gas resources, the preservation of water quality, and the conservation of marine mammals. These authorities do not provide a comprehensive management mechanism. These statutes also do not address all aspects of human threats to the area. To take one example, the regulations controlling ocean discharge and dumping do not consider all shipboard wastes. For example, Federal regulation of sewage wastes from marine sanitation devices does not extend beyond State waters (see the January 30, 1980 amendment to the Clean Water Act in Section IV F). The discharge of oil beyond the ter- ritorial sea (3 nm) from tankers under 150 gross tons and other vessels under 500 gross tons is unregulated, and regulations pertaining to dis- charges from machinery space bilges require that the activity must take place as far as practical from nearest land, while in route, and must not exceed 60 liters per mile or have oil content exceeding 100 parts per million. Finally, there are no regulations to control the disposal of trash and litter in high seas areas. In addition, the status quo provides no programmatic mechanism to promote and coordinate research on coral reef ecology and ecosystem re- covery or to provide information to the direct and indirect user public. There are currently no programs to provide education and information aimed at increasing long-term protection of these areas by increasing public awareness of the distinctive resources and their susceptibility to distur- bance. The regulatory regime closest in purpose and scope to the marine sanctuary program is that provided by the Fishery Conservation and Man- agement Act of 1976 (FCMA). Even that regime, however, does not satisfy all of the management requirements described above. Under the FCMA, Regional Fishery Management Councils propose and implement necessary regulations for the management of selected commercial and recreational fisheries which are in need of management pursuant to Fishery Management Plans (FMP). These FMP's will provide for some protection of selected fishery resources at Looe Key but will not likely focus on the site spe- cific ecosystem management. FMP's do not necessarily consider elements of the ecosystem which are not harvested, nor do they address the entire range of threats to which an ecosystem may be subject. Moreover, none of the FMPs is final and projected time schedules are uncertain. 24 The FMP most relevant to Looe Key is the Coral and Coral Reef Resour- ces Plan. This FMP proposes to create a Habitat Area of Particular Concern (HAPC) consisting of 1 sq nm which emphasizes protection of the actual spur and groove Fore Reef from physical damage. However, the Coral and Coral Reef Resources FMP will not necessarily provide protection to components of the system which are not exploitable fishery resources. In addition, the long-term biological productivity of a system is by no means assured by such protection efforts. Finally, the Coral and Coral Reef Resources FMP does not focus on management, particularly as it relates to environmental monitoring, visitor uses, public education, research aimed at assessing the effectiveness of protective measures and the health of the total system. Thus, the management protections offered by the FCMA are at best uncertain. Nor does the FCMA assure the site-specific research, moni- toring and education elements that long term preservation of the area requires. A marine sanctuary would provide a useful complement to the FMP process. In conclusion, available information indicates that perpetuation of the status quo will not adequately protect the Looe Key area from present or future impacts on the physical, biological, and ecological environment nor enhance scientific, educational, recreational and aesthetic values of the ecosystem. The marine sanctuary program proposes to provide a compre- hensive mechanism through long-term management to protect this ecosystem and to respond in a timely fashion to marine conservation issues and to the interests of affected user groups as those issues arise. III. PREFERRED ALTERNATIVE A. Goals and Objectives To determine the preferred alternative boundary and regulations that adequately address the issues and problems of Looe Key, a set of management goals and objectives has been developed and out of this management frame- work appropriate controls will be determined. The goals and objectives are as fol lows : Goal 1: To maintain, protect and enhance the quality of the natural, biological, aesthetic and cultural resources of the Looe Key system. Objectives: ° Promulgate protective regulations to provide a frame- work for onsite management. Provide for adequate enforcement. ° Utilize data to modify regulations and to determine management strategies; assess management needs and priorities. Goal 2: To promote and stimulate marine research efforts directed toward identification and analysis of marine ecological i nterrel at ions hips. 25 Objectives: ° Encourage and cooperate with interested parties in research and study of reef interrelationships. ° Establish competitive funding mechanisms encour- aging a wide range of scientific expertise to focus attention on reef dynamics. ° Establish a clearing house for dissemination and exchange of sanctuary research data. Goal 3: To enhance public awareness of the functioning of the Looe Key coral reef system. Objectives: ° Provide a means for education and information exchange. ° Develop educational programs that will increase aware- ness and appreciation of Looe Key through a public information effort (including slides, brochures, lectures, etc.) ° Establish a sanctuary information center. ° Develop interpretive services. B. Management Plan If the sanctuary designation occurs, development of a formal Management Plan (MP) will be undertaken and completed within the first 9-12 months. NOAA proposes to work with the Florida Department of Natural Resources in the formulation of this plan. The MP development process will emphasize public involvement and review. Alternative means of insuring user partici- pation in sanctuary management will be explored in the public forum. If advisory committees are desired they will become a part of the formal managment structure. The MP will be periodically reviewed and management measures including regulations, evaluated for effectiveness in achieving sanctuary goals and objectives. This periodic review will also involve a high degree of public participation. In order to provide an efficient system for the management of the proposed Looe Key sanctuary, the following basic strategies are proposed: Sanctuary Manager NOAA proposes to contract with the State Department of Natural Resour- ces for day to day management of the sanctuary. The management staff will consist of objective personnel with experience in special area planning and management. The manager will be charged among other things with respon- sibility for coordinating enforcement and surveillance activities within the proposed sanctuary. The manager will be responsible for administering the sanctuary and providing reports to include (but not limited to) the following items: ° environmental analysis studies; ° visitor use and visitor use capacity studies, user-related impacts, and such other information as necessary; 26 13 >- < ^W o ?> c ) H— Gc j 9 CO >< Y SANC RNAT C •< fed t=j a D gg at** CO a OS Q < Q ZJ H J o< < b. CS osi H o •J~5 CO J Q< Q 6- aa "32 2 9 fco OS" <■ V. u; c 1 t s u w H < 3 CO te CO lj s. fcJ d f (K H c. C < ■*■ f- >», ;< CM ES C c3 M M 8 si _2 — K < u 2 o z < en EC < P CO c o <£ u y •< f- S* < lr> < 27 >>> PPP <<< zzz UUId <<< >>•>■ BiCCCC «e<< SCO a zzz Z 333 W OQO C3 S3BCS ^ lug £22 QQD EEE C3C3U oca ° enforcement analysis, including a summary of activities, work that will entail survey, inventory and assessment of submerged cultural resources. Attention will be given to the interrelationship between cultural resources and bio- logical processes. The MP would provide for a visitor information station to distribute information on regulations within the sanctuary and other public information concerning knowledge of the Looe Key Coral reef system and ongoing research projects in the sanctuary. Enforcement NOAA has initiated consultation with the U.S. Coast Guard headquarters on the question of enforcement for the proposed Looe Key Marine Sanctuary. The Coast Guard will provide the Looe Key Marine Sanctuary enforcement and surveillance for NOAA. Arrangements will be worked out to insure an on-site presence. NOAA believes that the level of enforcement required in the Looe Key Marine Sanctuary can not be achieved through routine patrols or as an add-on to other duties. Anchoring Study To explore methods of lessening the effects of improper anchoring, NOAA will undertake a study to determine the feasibility and design of a mooring buoy system for Looe Key or a suitable alternative. The study will include a discussion of the impacts of placement of mooring buoys on the physical environ- ment and resources. Proper anchoring information will be disseminated to users. Public Education and Information The "living laboratory" aspects of Looe Key can be fully utilized to provide learning opportunities for the public to view the interrelationship between man and the environment, and the implications of marine management. This educational aspect will be developed through field activities, media materials, lectures and brochures. A sanctuary user's guide will better enable the public and educators to understand and safely utilize the resources. Research In an effort to provide scientific data upon which future change can be evaluated and management decisions based, NOAA will give priority to completing a biological inventory, reef health assessment, and water quality assessment. Research at Looe Key will not duplicate but rather will compliment research efforts at the Key Largo Marine Sanctuary /John Pennekemp State Park, and the national marine parks in the Florida Keys. 28 Cultural Resources The proposed sanctuary has a diversity of cultural resources (such as the HMS Looe). To understand more fully their history and to provide a mechanism that will ensure their survival, NOAA will competitively fund work that will entail survey, inventory and assessment of submerged cultural resources. Attention will be given to the interrelationship between cultural resources and biological processes. C. Preferred Boundary Alternative Three boundary alternatives were considered for the proposed marine sanctuary (see fig. 4, Boundary Alternatives). 1. Alternative 1 - an area 1 sq nm containing only the Fore Reef and Reef Flat; 2. Alternative 2 - an area consisting of 5 sq nm containing the Fore Reef, Deep Reef and Deep Ridge; 3. Alternative 3 - an area consisting of 10 square nautical miles including the resources contained within the 5 sq nm alternative plus more extensive portions of the Patch Reef area. The 5 square nautical mile boundary alternative was chosen as the preferred alternative (See Chapter Four - Environmental Consequences for a detailed analysis of the various alternatives, including the preferred). The 5 sq nm alternative encompasses representative portions of all five ecological zones found at Looe Key: Patch Reef; Reef Flat; Fore Reef; Deep Reef and Deep Ridge. It also covers an extension of the Fore Reef to the east discovered only recently as part of the survey work for this EIS. The Patch Reef zone is a relatively shallow flat bottom area, covered with extensive turtle grass and manatee grass. Interspersed among the sea- grass beds are numerous patch reefs with very little profile. The patch reefs within this zone are usually dominated by densely growing, large octo- corals. The species diversity of octocorals on the Patch Reef is greater than that of the Fore Reef and certain octocorals exist only on the Patch Reef. The scattered stony corals reach only moderate size, but never- theless give the patch reefs enough structure to provide shelter for fishes and invertebrates. In addition, the naturally rare pillar coral ( Dendrogyra cylindrus ); is more likely to be found in the Patch Reef area than at the Fore Reef (Antonus, 1979). The significance of the Patch Reef zone as a shelter for a variety of finfish and shellfish has been pointed out in a number of publications (e.g., Zieman & Roblee, 1979). Without the protection of the interspersed patch reefs these animals would be unable to use the surrounding seagrass beds as feeding grounds. This zone, together with the even shallower Reef Flat, are Looe Key's nursery for juvenile fish. In addition, the extensive seagrass beds of both zones constitute the feeding ground for many deep-water fishes migrating to these areas at night. The Fore Reef provides the deep sheltered channels for these migrations from the Deep Reef to the shallow reef zones, while the much wider channels on either side of the Fore Reef provide access for pelagic species. 29 The Deep Reef today still harbors territorial fishes such as groupers which, given protection and time, may repopulate the apparently overfished Fore Reef zone. This could also be the case for conspicuously missing corals which might, in time, repopulate the Fore Reef from the stocks that live on the Deep Reef. Other fish found on the Fore Reef but occurring in greater abundance on the Deep Reef are butterflyfishes, and hamlets, blue chromis and Creole wrasses which prefer depths greater than 30-46 feet. Fish found only on the Deep Reef by the Looe Key Resource Inventory are purple reef fish, sun- shine fish, spot fin, and hogfish which naturally range between 55 and 120 feet (Noyes, 1980, public hearing testimony). The main part of the Deep Reef exhibits a coral community of intermediate to deepwater species, with some coral species growing abundantly here but which no longer occur on the Fore Reef. The Deep Reef, on the seaward side, is a slope of increasing steepness, ending in a small dropoff to about 25 to 35m depth. Since the 5 sq nm alternative contains portions of the Deep Ridge as well as the main four reef zones of Looe Key, it forms a representative "slice of the ecological pie" through the reef tract in this area. This is one of the basic reasons for its selection as the preferred boundary. The 5 sq nm boundary alternative would create a sanctuary containing representa- tive components of each reef zone and would establish a sanctuary that protects a piece of the reef tract system rather than one component as is the case in boundary alternative #1 . This approach is consistent with the goals and objectives developed for a possible sanctuary at Looe Key. The 5 nm area will pose less of an economic hardship to local fishermen than would be the case in the 10 nm proposed sanctuary and yet will meet the goals desired for the sanctuary. A sanctuary with this boundary would repre- sent all of the reefal zones and be "systematic" in scope providing for the maintenance and enhancement of long-term productivity of the entire Looe Key ecological unit. This boundary alternative would provide a geographic basis for achieving the sanctuary goals. D. Preferred Regulatory Alternative 1 . Coral Collecting The following alternatives were analyzed for regulating coral col lecting: a. Unregulated collecting (status quo); b. Prohibiting collection or possession of all coral (living or dead) except by permit for scientific and educational purposes; and c. Prohibiting the collection or possession of all coral (living or dead) within the sanctuary. 30 NOAA has chosen alternative b as the preferred alternative. This alternative would protect present and future coral resources while permit- ting coral specimen collecting for educational and scientific purposes under permit from NOAA. Since the current level of commercial coral col- lecting is insignificant in the proposal area, the economic impact of this alternative will be negligible. The proposed restriction is more stringent than that being considered in the Coral and Coral Reef Resources Fishery Management Plan (FMP) in that the latter permits limited harvest of soft coral outside the 1 sq nm Habitat Area of Particular Concern (HAPC) at Looe Key. OCZM will work closely with the Fishery Management Councils to insure as nearly as possible compatible non-duplicative permitting proced- ures. A- regulation similar to the preferred alternative is presently in force in John Pennekamp State Park and in the Key Largo Marine Sanctuary. As discussed in Chapter Three, the inclusion of a provision for prohibi- tion of possession of coral, living or dead, within the proposed boundaries has resulted in fewer enforcement difficulties within these two protected areas. On the other hand Florida State Law, applicable in the territorial sea, does not prohibit possession of cleaned or cured sea fans, hard and soft corals and fire coral, and enforcement difficulty has arisen in State waters because these organisms can be quickly killed and bleached on board ship before enforcement agents can board for inspection (Tingley, personal communication, 1979). 2. Wire Trap Fishing The following alternatives were analyzed for regulating wire trap fishing within the proposed sanctuary: a. Unrestricted use of wire traps (status quo); b. Prohibiting wire fish traps on the Fore Reef and Reef Flat areas of the sanctuary and allowing wire fish traps else- where; and c. Prohibiting wire fish traps. NOAA has chosen alternative c as the preferred alternative. This alternative would prevent both physical and ecological damage to the coral formations and resident fish species. Fishermen, although prohibited from laying traps within the 5 sq nm area, could continue to utilize the area seaward of the reef beyond approximately 140 ft and those areas adjacent to Looe Key, along the outer reef tract. This proposed regulation is slightly more restrictive than that presently under consideration in the draft Snapper-Grouper FMP. This FMP includes a proposed prohibition out to the 100 ft contour. The sanctuary prohibition would extend to the proposed sanctuary boundary at approximately the 140 ft contour. 31 3. Lobster Trapping The following alternatives were analyzed for regulating lobster trapping within the proposed sanctuary: a. Unrestricted trapping for spiny lobster; b. Prohibiting trapping on the Fore Reef only; and c. Prohibiting lobster trapping. NOAA has chosen alternative b as the preferred alternative. This option would prohibit the setting of traps on the Fore Reef consistent with the HAPC special management measure currently proposed by the South Atlantic and Gulf Fishery Management Councils (see Chapter Three). No lobster trapping would be allowed within the core trapezoid area (Loran C Readings points 1 , 2, 3, and 4 see map Chapter Three). Lobster trapping would be allowed within the sanctuary on the Reef Flat, Patch Reefs, the Deep Reef and Deep Ridge. This preferred alternative would protect the most spectacular coral assemblages from lobster trap damage and contribute to protection of spiny lobster as a major predator in the reef system. Restricting this part of the reef system from further human activity would protect a significant habitat for spiny lobster in the area which will, in the long term, bene- fit the fisheries interest. Completion of the spiny lobster FMP will also contribute to sustaining a viable lobster fishing industry over the long term, but the degree of protection cannot be determined at this time. An estimated 232,000 lbs. of spiny lobster were caught in the 5 sq nm area in 1978. Personal communication with local residents and fishermen revealed that, most of this catch was taken from outside the Fore Reef and Reef Flat zones. According to interviews with local people, lobster boats avoid shallow coral reef areas, preferring sites with greater maneuverability and open sandy areas on which to place traps. This alternative would mini- mize the economic losses to the commercial lobster fishermen and regional businesses in the area by permitting fishing to continue in the major portion of the reef area. It would afford site specific protection now to the Fore Reef which will be enhanced by the Spiny Lobster FMP when it is final. NOAA's Office of Coastal Zone Management (OCZM) and the South Atlantic and Gulf of Mexico Fishery Management Councils (GMFMC) will continue to work cooperatively under their Memoranda of Understanding in their efforts to protect and enhance the Looe Key coral reef habitat and the spiny lobster fishery. Continued monitoring of the area by the NMFS and the Councils would aid in maintaining the stock of a valuable renewable resource, both in the restricted area and in the area adjacent to the sanctuary. 4. Tropical Marine Specimen Collecting The following alternatives were analyzed for regulating tropical specimen collecting within the proposed sanctuary: 32 a. Unrestricted collecting (status quo); b. Restricting tropical specimen collecting to collectors with permits and prohibiting the use of chemicals; and c. Prohibiting tropical specimen collecting except by permit for scientific and educational purposes. NOAA has chosen alternative c as the preferred alternative based on information and written comments subsequent to the DEIS. Prohibiting tropical specimen collecting would protect and enhance the tropical fish population at Looe Key, prevent the depletion of ecologically important species, add to the aesthetics of the sanctuary, and maintain and enhance the long term productivity of the Looe Key coral reef for future genera- tions. The Key Largo Marine Sanctuary and the Biscayne National Park prohibit such taking. The many suitable areas for tropical specimen collectors to catch tropical fish and invertebrates in the south Florida area include shallow inshore areas, inshore coral heads, mid-channel reefs (in the middle of Hawk's Channel), and the entire outer reef. This alternative would thus cause limited economic loss to present commercial collectors. The total economic loss of revenue per year estimated in the socioeconomic analysis for Boundary Alternative #2, would be $25,000 to $43,000 or $80,075 to $137,729 using regional multipliers. At least some of this could be made up by collecting elsewhere. This restriction would not prohibit commercial collecting for scientific and educational purposes with a NOAA permit. Prohibiting tropical specimen collecting rather than allowing collec- ting by permit as proposed in the DEIS, would not require the establishment of an administratively burdensome permit system of questionable value and utility. 5. Spearfishing . The following alternatives were analyzed for regulating spearfishing within the proposed sanctuary: a. Unrestricted spearfishing (status quo); b. Restricting spearfishing to devices such as pole spears and Hawaiian slings; and c. Prohibiting spearfishing and possession of spearfishing equipment, NOAA has chosen alternative c as the preferred alternative. A primary basis for this alternative is to enhance the quality of recreation experi- ences by divers, snorklers and observers. Since spearfishing is believed to contribute to wariness in reef fish and to the absence of large predators, this alternative should enhance the return of larger grouper, snapper and other predators to the reef and may, in time, lead to fish becoming less cautious. In addition, it would lessen the human injury potential, the 33 inadvertent killing of non-edible tropical reef fish species found within the sanctuary, and physical damage to the coral from divers in pursuit of fish. All of the above would help ensure high quality recreational experi- ences by divers and snorklers. Although local residents and visitors will no longer have the oppor- tunity to spearfish in the Looe Key 5 mile area, there are many other areas nearby suitable for spearf i shing. This prohibition wil 1 cause some revenue loss to dive and charter boat companies who are hired to take spearf ishermen to Looe Key. It is difficult to estimate this loss. However, a portion of their revenue also comes from hook and line recreational fishermen and snorkelers/SCUBA divers who only wish to view the underwater coral formations. 6. Historic and Cultural Resources The following alternatives were analyzed for regulating the taking or disturbance of cultural and historic resources within the proposed sanctuary: a. Unrestricted tampering with, damage to, or removal of cultural and historic resources (status quo); b. Prohibiting tampering with, damage to, or removal, except with a NOAA permit for educational and scientific purposes; and c. Prohibiting tampering with, damage to or removal. NOAA has chosen alternative b as the preferred alternative. This alter- native would protect the submerged historical and cultural resources of the sanctuary. Shipwrecks of interest in and adjacent to the area, particularly the HMS Looe , could be explored and artifacts could be recovered under a NOAA permit. The permit would be based on the educational and research value of the proposed actions. This alternative, however, would not completely pre- clude reef damage and other disruptions to the marine resources from salvage and recovery operations. The marine sanctuary program is the only vehicle for designation and preservation of such resources. Under a recent court decision, the Antiqui- ties Act, which provides that the Department of the Interior may designate and protect certain historically important sites, does not authorize such action in relation to antiquities located on the OCS. In addition, neither the Abandoned Property Act nor the National Historic Preservation Act offer protection for valuable marine artifacts. 7. Discharges The following alternatives were analyzed for regulation of discharges within the proposed sanctuary: a. Relying on existing Federal regulation (status quo): b. Prohibiting all discharges; and 34 c. Prohibiting the discharge of substances except cooling waters from vessels, fish or parts and chumming material, and discharges from marine sanitation devices. NOAA has chosen alternative c as the preferred alternative. This alternative would prohibit littering and discharge of solid waste from vessels. It would prohibit the discharge of raw, untreated sewage into the sanctuary. The large number of people using Looe Key has led to a high incidence of litter and trash being discharged overboard. The proposed regulation prohibiting discharging and littering will maintain the areas' over- all recreational and aesthetic appeal. It would prevent floating or submerged waste debris such as platic and metal objects. The Coast Guard regulations prohibit the discharge of untreated wastes within the territorial sea for public health reasons - the presence of swimmers and relatively shallow water. Because Looe Key is heavily used for water contact activities such as swimming and diving and portions have relatively shallow water depths, NOAA has proposed regulations for the sanctuary. Impacts of the regulation will be minor. Sanctuary users will have to retain trash for disposal at proper facilities. Vessel operators will have to utilize their MSD or holding tanks and will be unable to empty the latter. Fishermen will be allowed to discharge fish or parts and use chumming materials. By not restricting the discharge of cooling waters, this alternative will allow the use of motorized vessels. 8. Anchoring The following alternatives were analyzed for regulating anchoring within the proposed sanctuary: 1. Unrestricted anchoring (status quo); 2. Prohibiting anchoring on the Fore Reef and encourage anchoring in sand areas elsewhere; 3. Instituting a mooring buoy system; and 4. Requiring the use of sand anchors. NOAA has chosen alternative b as the preferred alternative. This proposed management measure is consistent with that being proposed for the HAPC in the Coral Reef Resources FMP. Anchor abraision of corals is common in the Fore Reef zone of Looe Key. It is here that anchor chains and lines, primarily from the smaller draft boats anchored in the sand bottom between the coral spurs chafe the adjacent corals. Raising anchors snagged on the coral spurs also has resulted in significant damage. The preferred alternative would protect the Fore Reef by preventing this type of anchor damage. This regulation would result in boats anchoring on the Reef Flat and seaward of the Fore Reef. Recreationists and hook and line fishermen would have to anchor off the Fore Reef and drift into the area of troll or anchor in sand channels of the Fore Reef. 35 IV. REGULATORY ALTERNATIVES ELIMINATED FROM DETAILED STUDY A. Regulations for Snorkel ing and SCUBA Diving Snorkel ing and SCUBA diving for the purposes of observation, under- water photography, nature study, non-collecting scientific research and educational training were not judged to have the potential for causing significant damage to the reef. Therefore, alternative regulations for these activities were reviewed but not proposed. All sanctuary users are regulated to the extent that they must abide by regulations aimed at protecting the natural system. B. Regulations for Commercial Fishing Beyond the 5 Square Nautical Mile Boundary Alternative but Inside the 10 Square Nautical Mile Boundary Alternative Although the northern portion of this area contains extensions of the patch reefs found in the 5 sq nm boundary, the southern portions do not contain any reef comparable to the center portion of the 5 sq nm proposed sanctuary. There is also low probability that the deepest parts of this area include coral communities similar to the Deep Reef within the 5 mile area. It therefore seemed unnecessary to include this area in the proposed sanctuary since the five ecological zones were included in the smaller boundary alternative. In addition, the Looe Key Onsite Survey indicates that local fishermen depend on the 5 sq nm sanctuary proposal area for approximately one-third of their catch and the area beyond the 5 sq nm boundary for approximately two-thirds of their catch. Regulating commercial fishing within a 10 sq nm area would thus cause considerable economic hardship on local long-term commercial fishermen. It was therefore determined that the environmental benefits of regu- lating commercial fishermen to protect the natural resources in this area were not substantial enough to propose regulations. C. Regulations for Net Fishing Only 12 percent of the fishermen use nets to catch fish at Looe Key. Netting does not require anchoring and cannot be undertaken close to the coral reefs. For these reasons, alternative regulations for netting were not considered. D. Regulations for Hook and Line Fishing Commercial hook and line fishing for yellowtail snapper, mangrove, mutton snapper, grouper, mackerel, some dolphin, pompano and lane snapper occurs primarily along the outer reef track between and including American Shoal and Big Pine Shoal with approximately 24.9 percent of the total catch (671,880 lbs.) coming from the Boundary Alternative 2 area (Onsite Survey). Ecological damage from commercial hook and line fishing does not seem to be a major probl em. 36 The Reef Flat bottom consists primarily of sand, coral fragments, seagrass, algae, and occasional colonies of living coral. As a result, this area can withstand much greater anchoring pressure than the Fore Zone with its well developed coral structure. Because of the substrate and protected location of the Reef Flat, small sand anchors, e.g., Danforth are capable of holding all but the largest boats with a shallow enough draft to enter this zone. Divers and snorklers entering the water can swim through this shallow (less than two meters) area and pass through one of the surge channels of the reef crest and dive on the Fore Reef. Only in rough weather is passage through the reef crest somewhat hazardous. The area seaward of the Fore Reef is less protected but convenient to the Fore Reef and would also be suitable as an anchoring area. E. Activities Listed In The Designation Document For Which Regula- tions Are Not Currently Being Proposed ° Alteration or construction of the seabed. The Army Corps of Engineers (COE) exercises authority over construc- tion and dumping of dredged materials but not the actual dredging. The Bureau of Land Management (BLM) has jurisdiction over dredging activities related to mineral leasing such as sand and gravel mining. However, no other existing Federal regulatory authority has jurisdiction over other activities that might alter the seabed such as dredging. While dredging or alteration of the seabed could lead to damage and destruction of the coral reefs and other habitat within the sanctuary, the likelihood of such activities does not pose a realistic threat to the resources at this time. For this reason NOAA is not promulgating regulations, but listing altera- tion of the seabed as an activity in the Designation Document, and may issue regulations at a future date if the need arises. Bottom trawling and specimen dredging. Trawling for reef fish at live bottoms in the South Atlantic (off the Carolinas) has proven economically and technically feasible, and it is pos- sible that certain types of commercial bottom trawling may occur off Florida, in areas such as Looe Key, in the future. Gear modifications include rollers, runners or skids which elevate trawls and sleds above the irregular ocean bottom. Even when elevated above the surface, however, various parts of the gear (e.g., rollers, runners, skids, bottom guard-chains, nets and specimen bags) still come into contact with the bottom and benthic organisms. Various impacts on the environment are associated with bottom trawling and specimen dredging. These include suspension of sediments dislodging or breaking coral and generally degrading the physical benthic environment. As with alteration or construction on the seabed, the likelihood of bottom trawling and specimen dredging does not pose a realistic threat at this time. Accordingly, NOAA is not promulgating regulations, but listing the activity in the Designation and may issue regulations at a future date if the need arises. 37 Hook and line fishing requires anchoring and sometimes fishing at night when it can be difficult to set anchors away from coral. However, it appears from personal interviews with fishermen that most boats avoid the Fore Reef to prevent hull damage. V. SUMMARY OF ANALYSIS OF ALTERNATIVES The regulatory alternatives were developed in relation to the loca- tion and size of the boundary alternatives and the environmental, social economic consequences of such regulations. The detailed analyses of the environmental consequences of these boundary and regulatory alternatives are found in Chapter 4. This section summarizes these detailed analyses in tabular form. The various proposed boundary and regulatory alterna- tives are summarized in Tables 1 through 5 -- The Alternative Matrices. Tables 1 through 5 compare the various regulatory alternatives sum- marizing the impacts of each alternative on the marine resources, and on the human users of Looe Key. Three regulatory alternatives are presented for the control of each of the human activity categories at Looe Key. The regulations representing the status quo or no action are identified by the initials "s.q." In most cases, the proposed regulations apply to all three boundary alternatives. If the regulation only applies to some but not all three boundary alternatives, then the appropriate boundary alternative is iden- tified at the top of the matrix. "Restricted" regulations indicate a partial but not complete prohibition of the activity (i.e., banning in the one mile area but not in the 5 mile area) or, in the case of anchoring and spearf ishing, different ways of approaching regulation of the activity. The preferred alternative for the regulation of each human activity, outlined at the top of each matrix, is the result of weighing the environ- mental, social and economic benefits and costs of each proposal as evaluated in each matrix with an X. "Protection" in the context of the matrices means ecological as well as physical protection. For example, by controlling the removal of living coral, the regulation benefits or partially protects the tropical fish and invertebrates belonging to the same ecological system. By prohibiting the use of wire fish traps in boundary alternatives 1 and 2, the regulation would partially protect tropical specimens. In some cases the regulation neither adversely nor positively impacts a marine resource and is therefore rated "Not Applicable." 38 TABLE 1 ACTIVITY: Coral Collecting ACTIVITY: wire Fish Trapping Preferred Alternative: Prohibit Preferred alternative: prohibit the collection of coral, dead or alive within wire fish trapping in the 5 square. the sanctuary, except by permit for nautical mile santuary scientific/educational purposes Environmental Factors Regulatory Alternatives Environmental Factors Regulatory Alternatives MARINE RESOURCES Unreg- ulated Restric- ted Prohib- ited MARINE RESOURCES Unreg-I ulated Restric-IProhib : ted ited Coral Reef s.q. X Coral Reef Significant Damage s.q. #1, not #2,3 #1,2 Significant Damage not 3 Mod. Damage x Mod. Damage y y Low/No Damage x Low/No Damage X Not Applicable Not Applicable Tropical Specimens Tropical Specimens (Fish, Invertebrates) Fully Protected (Fish, Invertebrates) Fully Protected Partially Protected X x Partially Protected X X Unprotected X Unprotected X Not Applicable Not Applicable Lobster/Fish Popul. < Lobster/Fish Popul* Fully Protected Fully Protected Partially Protected X y Partially Protected X X Unprotected X Unprotected y Not Applicable Not Applicable SOCIOLOGICAL: SOCIOLOGICAL: Controversy High Controversy Hi_gh Moderate Moderate X X Low X X y Low X Not Applicable Not Applicable ECONOMIC: ECONOMIC: Revenue Loss High Reve'nue Loss High Moderate Moderate Low X X y Low y X y Not Applicable Not Applicable 39 TABLE! ACTIVITY: Tropical Specimen Collecting Preferred Alternative: Prohibit tropical specimen collecting except by permit for scientific and educational purposes. ACTIVITY: spearfishing Preferred alternative:, Prohibit spearfishing and possession of spearfishing equipment Environmental Factors Regulatory Alternatives Environmental Factors Regulatory Alternative! MARINE RESOURCES Unreg- ulated Restric- ted Prohib- ited MARINE RESOURCES Unreg- ulated Restric- ted Prohil ited Coral Reef Significant Damage s.q. Partial Permit- ing #1,2 not 3 Coral Peef Significant Damage s.q. Partial limits Mod. Damage . X, . Mod. Damage X X Low/No Damage X X Low/No Damage x Not Applicable Not Applicable Tropical Specimens (Fish, Invertebrates) Fully Protected y Tropical Specimens (Fish, invertebrates) Fully Protected X Partially Protected X Partially Protected x Unprotected X , . , Unprotected X Not Applicable Not AppH cable Lobster/Fish Popul. Fully Protected Lobster/Fish Popul. Fully Protected x Partially Protected X X Partially Protected X Unprotected ,x, . , Unprotected x Not Applicable Not Applicable SOCIOLOGICAL: X SOCIOLOGICAL: Controversy High Controversy High Moderate v Moderate x v Low „_.x_ Low X Not Applicable Not Applicable ECONOMIC: ECONOMIC: Revenue Loss High Revenue Loss High Moderate x Moderate Low _£ v Low x V X Not Applicable Not Applicable 40 TABLE 3 ACTIVITY: Lobster Trapping Preferred Alternative: Prohibit lobster trapping on the Fore Reef Environmental Factors Regulal :ory Alternatives MARINE RESOURCES Unreg- ulated Restric- ted Prohib- ited Coral Reef s.q. #1, not, #2,3 #1, 2, not #3 Significant Damage Mod. Damage X X Low/No Damage X Not Applicable Tropical Specimens (Fish, Invertebrates) Fully Protected Partially Protected Unprotected Not Applicable X x X Lobster/Fish Popul. Fully Protected Partially Protected X x Unprotected x Not Applicable SOCIOLOGICAL: X Controversy High Moderate X Low V Not Applicable ECONOMIC: Revenue Loss High Moderate X Low X V Not Applicable 41 TABLE 4 ACTIVITY: Historic and Cultural Resources Preferred Alternative: Prohibit tampering with damage to, or removal, except with a NQAA permit for educational and research purposes ACTIVITY: Discharging Preferred alternative: prohibit the discharge of substances except cooling waters from vessels, fish or parts and chumming materials and discharges from marine sanitation devices Environmental Factors Regulatory Alternatives Environmental Factors Regulatory Alternatives MARINE RESOURCES Unreg- ulated Restric- ted Prohib- ited MARINE RESOURCES Unreg- ulated Restric- ted Prohib- ited Coral Reef X Coral Ttepf Significant Damage Significant Damage Mod. Damage X Mod. Damage X Low/No Damaje X Low/No Damage X X Not Applicable Not Applicable Tropical Specimens X Tropical Specimens (Fish, invertebrates) Fully Protected (Fish, Invertebrates) Fully Protected X Partially Protected X Partially Protected X Unprotected X Unprotected X Not Applicable Not Applicable Lobster/Fish Popul. X Lobster/Fish Popul. Fully Protected Fully Protected X Partially Protected X Partially Protected X Unprotected X Unprotected Not Applicable Not Applicable SOCIOLOGICAL: SOCIOLOGICAL: Controversy High Controversy High Moderate Moderate v v Low X X X Low X Not Applicable Not Applicable ECONOMIC: X x ECONOMIC: Revenue Loss High Revenue Loss High Moderate Moderate Low X Low Not Applicable ' Not Applicable X X x 42 TABLE 5 ACTIVITY: Anchoring Preferred Alternative: Prohibit anchoring on coral within the core trapezoid area (Fore Reef), initiate research on the use of a mooring system. Environmental Factors MARINE RESOURCES Unregu- lated Prohibi- tion on Mooring System Require sand anchors Coral Reef s.q. Coral of Fore Reef in #1 & 2 Significant Damage X Mod. Damage Low/No Damage X X X Not Applicable Tropical Specimens (Fish, Invertebrates) Fully Protected Partially Protected X X X Unprotected X Not Applicable Lobster/Fish Popul. Fully^ Protected Partially Protected X X Unprotected X Not Applicable SOCIOLOGICAL: X X Controversy High Moderate X Low X Not Applicable ECONOMIC: Revenue Loss High Moderate X X X Low X Not Applicable 43 CHAPTER THREE AFFECTED ENVIRONMENT I. MARINE ENVIRONMENT A. LOCATION Looe Key Reef is a submerged section of the Florida Reef Tract located 12.4km (6.7 nm ) southwest of Big Pine Key in the lower Florida Keys at latitude 24°, 33' north and longitude 81°, 24' west. It is bounded on the south by the Straits of Florida and on the north by Hawk Channel. (See Figure 1) The Florida Reef Tract extends from the Miami area southwesterly, paral- leling the Florida Keys and terminating in the Dry Tortugas. The most seaward portion, or Outer Reef Tract, lies to the east and south of the emergent Keys at a distance of from 4.8 to 11.3 km (2.6 to 6.1 nm). Beyond the outer reef, the bottom slopes gradually for a few miles and then drops sharply to about 900 meters in the trough of Florida Straits. Although the reef tract extends for a linear distance of approximately 370 km (200 nm) , it is actually composed of a chain of individual living reefs separated from each other by considerable areas which do not contain living coral formations. According to Marszalek, et al (1977), approximately 96 km of outer bank reefs occur between Fowey Rocks Lighthouse near Miami and the Marquesas Keys west of Key West, a distance of 270 km. The existence of these living reefs in this latitude is, to a great extent, a result of the proximity of the Florida Current, which carries warm, clear water of normal salinity northward along the seaward edge of the outer reef. The most extensive living reef areas occur in the northern portion of the tract, while in the southern sector, well developed reefs are generally smaller and are separated from each other by greater distances than those of the northern tract. Between the outer reef and the emergent Florida Keys, there exists a broad, shallow platform with an average water depth less than ten meters. This area is known as Hawk Channel and contains more than 6,000 patch reefs (Marzalek et al_, 1977). B. ENVIRONMENTAL SETTING Coral reefs occur in clear, tropical waters, and tolerate only minor fluctuations of physical and chemical oceanographic parameters. Kissling (1975) has measured some of these parameters over a four year period for the Looe Key Reef area. Maximum and minimum amplitudes for the mixed, semidiurnal tides are 80 cm and 20 cm, respectively. Dissolved oxygen content of surface water varies 45, from 5.2 to 8.4 milligrams per liter, changing with the hour of day and season. Salinity is relatively uniform at 36 to 38 parts per thousand, and pH values vary from 8.1 to 8.5, all of which is well within the optimal range for coral reef development. The area undergoes an annual wet-dry hydrological cycle, with rainfall highest during the summer and fall, and a relatively dry season extending from about December through April. The air temperatures and prevailing wind directions which accompany these weather conditions exert some influence on the reef ecology. In summer, as is usual in tropical marine environments, and with winds mostly from the southeast, air temperatures may climb to 35°C. Surface water temperatures on the outer reefs then measure usually 30 to 31 °C, which is close to optimal for reef-corals (Vaughan and Wells, 1943). In the winter months, winds prevail from the east, northeast, and north, and frost may reach the southern tip of continental Florida, resulting in an air temperature in the Keys only slightly above freezing. These extremes are caused by cold fronts with strong northerly winds. Due to the east-west orientation of the Reef Tract and open passages in the lower Keys, wind-driven winter currents may carry large masses of cold Florida Bay water to the outer reefs and lower water temperature there to less than 20°C. This phenomenon may also be aided by movements of the Loop Current (Marszalek, 1977). Ginsburg and Shinn (1964) observed that reefs occur mainly opposite land where they are less exposed to Florida Bay water. For this reason, reefs are least developed in the widely spaced middle Keys, and the largest reefs are found in the upper Keys, where they are protected from cold Bay water by landbarriers, by their north-south orientation, and close proximity of the Gulf Stream. Measurements of minimum water temperatures made by Vaughan (1918) over a period of 20 years, were 15.6°C. at Fowey Rocks, 18.2°C at Carysfort Reef, and 17.9°C off Key West. The seasonal drop in water temperature is the most severe natural factor controlling coral reef development in Florida. Although a few species of hermatypic corals endure colder water, most species die at about 16°C (Mayer, 1916), while exposure to about 18°C will block their growth (Mayer, 1914). Although the situation may be different in certain IndoPacific reefs (Glynn, 1977), fluctuating water temperatures that remain below 24°C seem to inhibit prominent coral reef development in the Caribbean Sea (Antonius, 1972). Dr. Antonius, as well as other marine biologists have measured growth-rates of several species of corals in Florida and areas of the Caribbean Sea (Antonius, personal communications). In many cases, coral growth-rates in Florida were found to be only about half or less the values found in central Caribbean reefs. For example, an easily measured growth-rate is that of the staghorn coral, Acropora cervicornis . It is about 10 cm per year in the Florida Reef Tract, but in excess of 20 cm in reefs of the Virgin Islands as well as the Barrier Reef of Belize, Central America (Robinson, personal communication, 1974). « It appears, therefore, that Florida's coral reefs, including Looe Key, could grow only about half as fast as central Caribbean reefs, and any damage done to the coral framework can take twice as long to heal or regrow. 46 C. GEOLOGY The bedrock of the Florida Keys is of a dual origin. The Keys from Big Pine Key through Key Largo, are underlaid by Key Largo Limestone, an elevated coral reef of Pleistocene age. According to Hofmeister and Multer (1964), the Key Largo Limestone underlies Miami Beach to the north, comes to the surface at Soldier Key and is submerged beneath the Miami Oolite from Big Pine Key through Key West. The latter formation is an oolitic limestone composed of many small spherites of calcium carbonate. The oolite covers all of the Lower Keys and is thinnest over their southern borders, increasing in thickness to the north (Hofmeister, 1974). The general consensus regarding the origin of the Florida Keys suggests that about 95,000 years ago, during the last interglacial period (Sangamon), the coral reefs which make up the Key Largo Limestone were a line of patch reefs in the back reef area of a broad reef platform similar to the Florida Reef Tract of today. Hofmeister and Multer (1968) hypothesize that marine and subaerial erosion following the withdrawal of the sea during the Wisconsin glacial period, possibly accompanied by a structural downward tilting or faulting of the area, or both, resulted in the lowering of the platform to a depth of about 23 meters at its seaward edge and progressively less further inland. With the return of the sea, new reef growth began on the eroded platform and continued to the present. D. FLORIDA REEF TRACT DISTINCTIVE CHARACTERISTICS As reported by Marszalek, et al (1977): "The outer bank reefs are typically elongate features of variable vertical relief which occur at the shallow shelf edge between the 5 meter and 10 meter depth contours. Their long axes form a discontinuous line of reefs oriented parallel to the shelf edge. The northernmost reefs trend N/S and the reefs near Key West E/W reflecting the change in orientation of the arcuate shelf edge. Approximately 56 km of linear bank reefs are located north of Tavernier Creek (at the south end of Key Largo Key), 17 km of reefs in the middle Keys and 23 km in the lower Keys (west of Big Pine Key). A spur and groove system is developed on the seaward face of most of the bank reefs, with the spurs and grooves oriented generally perpendicular to the shelf edge and to the oncoming waves of the Florida Current. Spurs and grooves are best developed on outer bank reefs of the upper Keys and lower Keys; the spur and groove pattern on reefs in the middle Keys is generally less developed and exhibits a more random orientation." 47 Although the outer reefs are highly variable in their degree of develop- ment, several distinctive features are held in common by reefs well advanced in the successional sequence leading to the mature, climax serai stage. These characteristics include: ° the presence of the elkhorn coral ( Acropora palmata ) at shallow depths. According to Shi nn (1963), the spur and groove formations result from j_n situ growth of elkhorn colonies. A significant proportion of these formations is composed of encrusted rubble and skeletal material, derived from this species, which has been incorporated into the spur and groove system; ° a vertical coral zonation characterized in the deeper zones of the reef by large, massive heads of brain ( Diploria spp .) and star corals ( Montastraea spp .) and, in the shallow, more turbulent areas, branching colonies of Acropora (A. palmata and A. cervicornis ), several types of fire coral , ( Millepora spp .) arid~ extensive colonies of the colonial zoanthids Palythoa and Zoanthus ; a benthic macrobiota consisting of large populations of the sea urchin ( Diadema antillarum , numerous species of cryptic ophiuroids (brittle stars), a diverse group of octocorals (sea fans and sea whips) and sponges and the calcareous green alga Ha limed a opuntia ; ° a highly diverse finfish fauna. Stark (1967) reported a total of 517 fish species from Alligator Reef, of which 389 are coral reef forms. Many of these fish populations are characteristic of particular zones or specific habitats on the reef while others have been found to be nonselective. There is an apparent dependency relationship between the abundant and diverse fish populations of the Florida Reef Tract and the variety of available habitat in the area, not the least of which is the highly productive seagrass community in Hawk Channel . Much of the reef's structure is derived from the mechanical and biogenic breakdown of calcareous material. Kissling's analysis (1975) of reef sediments indicate that coral rubble in cobble and boulder sizes represents the vast bulk of reef sediment. Fine sediments result from further breakdown of the coarse material and from contributions by foraminifera, echinoderms, molluscs and calcareous algae. 48 FIGURE 5 ! ^ PATCH REEF Z0NE REEF FLAT ZONE FORE REEF ZONE £JS DEEP REEF ZONE DEEP RIDGE ZONE (NOT SHOWN) SAND SEA GRASS CORAL HAWK CHANNEL LOOE KEY BIOLOGICAL ZONES STRAITS OF FLORIDA 49 E. LOOE KEY REEF AREA Looe Key Reef has recently been described in the Looe Key Reef Resource Inventory prepared by the Florida Reef Foundation and conducted by Antonius in 1978. (See app. B, Site Analysis Research Methods.) According to a draft fishery management plan for coral and coral reef resources prepared for the Gulf of Mexico and South Atlantic Fishery Management Councils (1979), Looe Key Reef: ". . .is better known scientifically than most others in South Florida" because of the resource inventory. The inventory divides the Looe Key Reef area, from an ecological/topo- graphical point of view into five zones: (See Figure 5) A Patch Reef area between Hawk Channel and the Looe Key Reef Flat; The Reef Flat, triangular in shape, with the Looe Key marker in the southeast corner; The Fore Reef, facing Florida Straits to the south consisting on a spur and groove system; A Deep Reef area with a drop-off, southwest of the Fore Reef; A Deep Ridge, separated from the Deep Reef by an estimated 1 km of sand bottom; The proposed Looe Key marine sanctuary area encompasses all five zones. All major taxa of reef-dwelling organisms are represented on Looe Key. Inventory data indicate the existence of several hundred species of marine organisms, joined together in the intricate functional web of the reef eco- system. Ecological diversity on Looe Key reef manifests itself in the exis- tence of distinct natural communities or associations within the reef eco- system. It is apparent that exchanges of energy and information occur between the various associations, and between the reef biota proper and the adjacent seagrass beds. Both demersal and pelagic fishes move freely throughout the entire ecosystem, and large invertebrates, such as the spiny lobster, are known to travel considerable distances. 1. Dominant Species of the Looe Key Area* a. Patch Reef A flat and relatively shallow area of about 8 m in depth stretches from Hawk Channel south to the Looe Key Reef Flat. The area is dominated by a mixed association of marine spermatophytes and green algae. The seagrasses include: turtle grass ( Thalassia testudinum ) and manatee grass ( Syringoduim * See Appendix B for complete list. 50 fili forme ). The algae, which represent a much smaller biomass than that of the grasses, consist primarily of species of the genera Halimeda , Udotea , and Penicillus . Due north of the Looe Key Reef Flat are numerous Patch Reefs scattered throughout the seagrass community. Most of these reefs have little profile and generally project up less than 2 m from the shallow bottom. The algal flora is quite sparse on the Patch Reefs themselves. The coralline red algae Goniolithon sp . and Amphiroa rigida are most abundant.* Scattered clumps of the attached brown alga ( Sargassum polyceratium ) , the red alga ( Laurencia intricata ), and the green alga ( Bryopsis penriata ) were observed. This scarcity of algae is a result of grazing pressure by herbi- vorous fish and invertebrates. Among the faunal components in all Patch Reefs, octocorals are by far dominant. They not only grow dense enough to give certain Patch Reefs the appearance of the heavily vegetated landscape, but also attain unusual sizes. Among giant sea feathers and sea whips, the largest specimens, close to 2 m i n height, are mainly Plexaurella nutans and Pseudoplexaura flagellgsa . Compared with prominent main reef structures, the abundance of stony corals is quite low, while sponges are comparatively well represented. Both stony corals and sponges grow here to small or medium size and comprise about an equal share of the Patch Reefs' biomass. The most important species of stony corals in this zone are the hydrocoral (firecoral ) ( Millepora complanata ) , the scleractinians ( Colpophyl lia natans ), ( Diploria labyrinthiformis ) , ( D.~strigosa ) , ( D. clivosa ), ( Siderastrea siderea ), and especially the staghorn coral ( Acropora cervicornis ) that occurs here with greater frequency than in any other part of the Looe Key Reef. Elkhorn coral ( Acropora palmata ) is not found in the Patch Reef association. The pillar coral ( Dendrogyra cylindrus ), is found on several patch reefs. Four colonies of this rare species were located on one patch. One colony was especially impressive with six large pillars rising 1 m from the base, along with several smaller spires adjacent to it. Frequently observed inhabitants of the patch reefs include: the anemones ( Bartholomea annulata ), ( Condylactis gigantea ), and the mat-forming zoanthids ( Palythoa mammillosum ) and ( Zoanthus sociatus ); serpulid and sabellid worms, a variety of small crustaceans, especially the arrow crab ( Stenorhynchus seticornis) . In the sandy and grassy areas adjacent to the Patch Reefs, the echinoids Plagiobrissus grandis , Clypeaster rosaceus , and Diadema anti 11 arum are common. The latter are most abundant at the interface between the reef and the surrounding halo. Summarizing all these data, the sand-sea-grass-reef community of the Patch Reef zone appears to be a lagoon-type reef environment, sheltered from violent wave action by the Looe Key Reef Flat, but subject to a considerable sediment load suspended in the water column during rough weather. Numerous consumers utilize patch reefs as habitat and feed directly on seagrasses, their epiphytes and associated macro-algae (Ogden and Zieman, 1977). r See Appendix B for complete list. 51 According to t+tese authors: "Carnivorous fishes (e.g. grunts, Pomadasyidae) resting on coral reefs by day and feeding on seagrass invertebrates by night are largely responsible for the enhanced fish biomass characteristic of coral reefs near seagrass beds. The proximity of seagrass beds to coral reefs provides food for fishes and invertebrates feeding within the beds, shelter for juveniles, and organic material exported to reefs. The primary limit to further exploitation is lack of shelter within the beds." Thus the patch reef community represents a distinct natural system whose biota is adapted to the environmental conditions of the back reef zone. Continued survival of this system is critical for maintenance of the habitat utilized by numerous fishes and the spiny lobster. Utilization of the patch reefs for shelter from predators allows both juveniles and adults to exploit an enormous and nearby source of energy, the biomass of the seagrass association. Much of this energy, in the form of finfish and shellfish biomass is harvested by both the commercial and sport fishing industry of the Florida Keys. b. Reef Flat The Looe Key Reef Flat is roughly in the shape of an isosceles triangle, its base facing south towards the Straits of Florida and the apex pointing land- ward to the north. On this landward side there is a \/ery gradual transition from the seagrass association of the Patch Reef area into the Reef Flat, marked mainly by the beginning of extensive sand flats and an elevation of the bottom to about 2 m in depth. From here toward the south, the Reef Flat becomes gradually shallower with the main part of the area showing a depth of approx- mately 1.5 m. The Reef Flat terminates in a sharply defined rock and rubble zone immediately behind the uppermost rim of the Fore Reef. The water depth in this area is no greater that about 0.5 m. The Reef Flat does not show any profile other than the elevation of seagrass ridges approximately 0.5 m above the sand bottom. The benthos consists primarily of calcareous sand, rubble, coarse sediment and extensive seagrass beds. The latter are vegetated by pure stands of turtle grass, or a mixture of turtle grass, manatee grass, and algae. In some areas without seagrass, the bottom community consists of algae and invertebrates. The algae, in most area of the Reef Flat, include: species of the genera Hal imeda , Udotea , Penicillus , Caulerpa , Rhipocephalus , Cladophoropsis , Dasycladus vermicularis , and several other chlorophycean algae, as well as representatives of the red algal genera Laurencia , Goniol ithon , Spyridia , and Chondria . Older blades of turtle grass are almost invariably covered with the red algal epiphyte Melobesia membranacea , and much of the manatee grass was observed to be densely covered with an epiphytic species of Ceramium . Brown algae are represented by species of the genus Dictyota , as well as Padina sanctae-crucis , and Stypopodium zonale . In the rock and rubble sector of the Reef Flat behind the Fore Reef the algal community consists of those species requiring a hard substrate. These include: Goniolithon spp . , Lithothamnium incertum , large clumps of Halimeda opuntia , Dictyotota spp . , Stypopodium zonale . 52 Compared to the seagrass and algal cover, the sessile benthic fauna of the Reef Flat has only minor significance. Occurrence of sponges is negligible and the number of stony corals very limited. Specimens are usually small, encrusting, and rather scattered, with the species Porites astreoides , Diploria clivosa , Millepora squarrosa , M. complanata , and Si derast rea siderea , most noticeable. A number of medium-sized coral colonies, mainly of the species Montastrea annularis , Siderastrea siderea , Acropora palmata , and Diploria clivosa , can be found within about a 100 m distance from the seaward terminus of the Reef Flat. Within this belt, several patches, almost a zone, of octocorals occur. Most noticeable is Pterogorgia citrina , the smallest of all Looe Key octocoral species (about 15 cm in height), which grows only on the Reef Flat but is the most abundant species here. The sea fan, Gorgonia ventalina , is a close second, while sea whips are represented by several species of the genera Eunicea and Plexaura and sea feathers by two species of Pseudopterogorgia . Although the number of octocoral species, as well as their. size, remains rather small, they nevertheless represent the only benthic faunal component of some significance on the Reef Flat. Within and adjacent to the seagrass beds of the Reef Flat, the most commonly observed invertebrates include: the queen conch ( Strombus gigas ); the pen shell ( Atrina rigida ); the holothurians ( Holothuria floridana and Actinopygia agassizii ); and the reef squid ( Sepioteuthis sepiodea ). The rock and rubble areas of the Reef Flat provide an excellent habitat for small invertebrates. Numerous serpulid and sabellid worms protrude from the surfaces of the eroded rocks, whereas terebellids are commonly found beneath them. Abundant populations of other cryptic organisms, such as brittle stars and small crustaceans abound in this area. Among crabs, the ma j ids ( Mithras spp. and Stenorhynchus seticornis ), the grapsid ( Percnon gibbesi ) , the xanthids ( Leptodius floridanus and Glyptoxanthus erosus ), and the portunid ( Portunus spinimanus ) were most frequently observed. Small gastropod and pelecypod molluscs are to be found in this area in considerable abundance. Echinoderms are prolific, especially ophiuroids. A large population of Diadema antillarum reside in this area. Other echinoids and holothurians were observed but are not common. c. Fore Reef The Fore Reef zone of Looe Key is a well developed and especially spec- tacular formation. Its main portion is a high profile spur and groove system, bordering the Reef Flat in very shallow water and sloping down to a sand bottom in 9-11 m of depth. The whole system, from easternmost to westernmost spur, is about 1500 m long and, at the main center portion, about 350 m wide. There are two associations, or subzones, that comprise the Fore Reef complex. The shallowest part of the spurs, just below the surface at low tide, could be called the "reef crest". However, at Looe Key it is so narrow a zone (less than 20 m) that it is treated here simply as the leeward end of the spur and groove system. The benthic community of this subzone consists of a massive growth of firecorals, mainly Millepora complanata , but lacks 53 the elkhorn coral ( Acropora palmata ) component which is usually characteristic of reef crests. Moreover, this shal low Millepora zone does not form a proper barrier but is transected by many valleysT Several of these are extensions of the seaward grooves, others are transverse channels, running perpendicular to the grooves, thus breaking up the Millepora zone into huge, block-like segments. Sections of the walls and bottoms of these channels are lined with the urchin Diadema antillarum . Seaward, some portions of the Millepora zone drop abruptly to the rubble- filled ends of the grooves. The sections in between gradually develop into spurs, the tops of which are not deeper than about 2 m, for the first 20 to 30 m seaward. These platform-like "backs" of the leeward spurs, and their almost vertical walls, are two distinctly different biotopes. On top, large areas are covered by soft mats of colonial zoanthids Palythoa mammillosum and Zoanthus pulchellus . Millepora complanata is the dominant stony coral here although single colonies or clusters of elkhorn coral, ( Acorpora palmata ), are irregularly interspersed. The only substantial concentration of Acropora palmata is immediately seaward of the Millepora complex, exactly where one would expect the highest part of the reef crest to be developed. Close inspection of the reef's framework, on the spur's vertical walls, indicates that the main construction element of the spurs has apparently been Acropora palmata , which today does not seem to be that dominant. Discussions of origin and zonation of spur and groove systems are given by Shinn (1963), and Geister (1977). Following the spurs seaward, in depth increasing from 3 to 8 m, (= depth of spur's top), one finds a zone which may well be the most important, certainly the most spectacular part of the Looe Key reef. Some of the spurs show a profile here of up to 7 m high, caused mainly by the vigorous construction activity of the "mountainous" star coral ( Montastraea annularis ). This species builds buttresses of 2 to 3 m in diameter and 4 to 5 m from bottom to top: the vertical walls of these form most of the spurs' steep sides. On top of the spurs, ( Montastraea annual aris ) is still represented in boulders of 1.5 to 2 m in diameter, accompanied by similar sized specimens which are primarily brain corals such as Diploria strigosa and Colpophyllia natans . Due to the massive nature of the reef-builders in this subzone, there are few holes in the reef framework, consequently allowing little insight into the history of construction. The last segment of the spurs is a rather flat extension of the proceeding high profile. The spurs' elevation over the sand bottom here is not more than about 1 m, formed mainly by Montastraea cavernosa , which occurs in cone-shaped colonies 30-40 cm in height. Similarly sized specimens of Sideras - trea siderea , Montastraea annularis , Colpophyllia natans , Diploria strigosa , D. labyrinthiformis , and Meandrina meaTidrites also occur here, but are much less frequent. Among other invertebrates, bivalve molluscs are relatively common in recesses on the surfaces of the spurs, but are almost invariably encrusted and very difficult to distinguish from the background. Gastropods are ubiquitously distributed in this zone. Brittle stars are both numerous and diverse in the Fore Reef; they appear most abundant in recesses and grooves 54 of the stony corals as well as under and behind rubble. They become quite obvious at night when they expose their arms to feed. At least one species, on Looe Key is bioluminescent and displays pulsating light patterns when disturbed. The dominant vegetation on the Fore Reef are encrusting species of red algae of the genera Goniolithon , Lithothamnium , and Peyssonellia . Widely scattered small clumps of Halimeda opuntia f. minor . Bryopsis pennata , and Dictyota spp . occur on the tops and sides of the spurs. The distinct paucity of the algal flora found here is probably a reflection of grazing pressure from organisms such as sea urchins. The Fore Reef zone has by far the greatest numbers of fish. Almost all of the species encountered in the reef system can be found here, with the exception of some deeper water species only observed beyond a depth of 10 m. Two of the most abundant species, found in the Fore Reef zone, are tomate grunts, ( Haemulon aurolineatum ), and yell owtail snappers, ( Ocyrus chrysurus ). Absent or rarely seen, according to the Inventory, (Antonius et al 19/8) were grey or mangrove snapper, ( Lutjanus griseus) , and larger serranids, such as black, red and nassau groupers. Black grouper and mangrove snapper, where seen, were usually on the western end of the reef and moving away, out of the range of visibility. d. Deep Reef At the seaward edge of the spur and groove system a sandflat begins in about 9-11 m depth, very gradually sloping down with a slight incline. In front of the eastern half of the Fore Reef this sandflat is uninterrupted. At the western half it is intersected by a deep reef, which begins here as a finger-like extension of scattered coral outcrops just beyond the terminus of the spur and groove system. From here a reef flat of 10-12 m depth stretches several hundred meters to the west without showing much profile, representing a comparatively shallow subzone of the Deep Reef. Towards the south, the Deep Reef gradually changes into a second subzone. Here, the reef flat curves into a slope of increasing steepness with a consi- derable profile caused by surge channels. In the deepest portion of this subzone, the slope forms a small but true drop-off which ends on a sandflat in about 30 to 35 m depths. In this deepest sector of the Deep Reef, the sediments are quite fine and silt-like and are easily raised up from the bottom. The shallower, plateau-like part of the Deep Reef is somewhat similar to the previously described Patch Reefs. Octocorals are dominant here, with a very similar species composition to that of the Patch Reefs, but they do not outnumber stony corals here as much as they do in the Patch Reefs. The most frequently encountered octocoral on this part of the Deep Reef is the plexaurid Muriceopsis petila . Sponges are fairly common and grow to larger sizes than in the Patch Reefs. Stony corals do not exceed medium sizes and are scattered in distribution. 55 Although species composition resembles that of shallower parts of the reef, a number of scleractinians with branching and flower-like growth forms occur on the Deep Reef which are either not present or very rare in more accessible areas of Looe Key. Species of the genera Madracis and Oculina grow in clusters of small finger-like branches while colonies of Mussa angulosa and Eusmilia fastigiata resemble bouquets of densely packed flowers. Disk-like growth forms of striking shape are found amongst many species of Agariciidae and Mussidae, which occur in appreciable numbers at this depth only. While species composition of stony corals in the deeper parts of this zone remains about the same, the number and size of individual colonies increases, making them the dominant component here. Also with increasing depth, an interesting change in the octocoral fauna takes place. Among Pseudopterogorgia species, P. bipinnata far outnumbers all others, and two deep water species occur only here: the rare, monofilament Ell i sell a barbadensis , and the abundant, fan-shaped Iciligorgia schrammi . Among other invertebrates, serpulid worms (Polychaetes) were noted to be common in this area. Only one lobster was observed. The plant community on the Deep Reef consists primarily of encrusting red algae, which become less frequent with increasing depth. In the shallower subzone, an association of green algae can be found, mainly attached to the coarse bottom sediments; they include: Caulerpa spp. , Udotea spp. , Penicillus spp. , Halimeda incrassata , Dasycladus vermicularis , and Rhipocephalus phoenix . Other greens, such as Valonia ventricosa . Halimeda opuntia f. minor , as well as the brown algae Dictyota dichotoma occur frequently on hard substrates. Fish found only in the Deep Reef zone, according to the Looe Key Reef Resource Inventory (Antonius et al , 1978) were purple reeffish, ( Chromis scotti ), sunshine fish, ( Chromis insolatus ), spotfin hogfish, ( Bodianus pulchellus ), and scamp, ( Mycteroperca phenax ). Other fish found on the Fore Reef, but more abundant on the Deep Reef were butterflyfishes, hamlets, groupers, blue chromis, and Creole wrasse. These distributions appears normal, as many reef species prefer only certain depth zones (Noyes, 1980). On the seaward edge of the coral reef, partially within the proposed sanctuary boundaries extends a blue water environment, characterized by extremely clear transparent water, due to a lack of phytoplankton. This area is the home of many commercially and recreational ly valuable fishes. Along the Florida coast, high populations of these fishes are at least partially supported by the productivity of the reefs and inshore grass beds. Along the reef tract, the large pelagic (open-ocean) fishes feed on bottom fishes and animals which, in turn, have fed on benthic plants and detritus. This short food chain permits more top carnivores to be supported by the extremely high productivity of the reef and inshore environments. Commercially valuable species mostly found in blue water but observed within the proposed sanctuary boundaries are amberjack, grouper, hammerhead shark, king mackerel, Spanish mackerel, and cero mackerel. Others which depend partially on habitat within the proposed boundary include dolphin, ballyhoo, and pompano. 56 e. Deep Ridge During the summer of 1973, an attempt was made to explore the deep parts of several reefs in the Florida Reef Tract with the "Johnson-Sea-Link" research submersible. At Looe Key, as well as at other reefs, a deep ridge was discovered, separated from the end of the Deep Reef by an estimated distance of at least 1 km of sand bottom (Antonius, 1974). This Deep Ridge runs parallel to the margin of the continental shelf. It shows ^/ery little profile and is only a few meters wide, but is, neverthe- less, an outcrop of living coral reef. It lies in about 45 m depth and is formed mainly by plate-like colonies of Montastraea cavernosa and several species of Agariciidae, which show considerable sedimentation damage. Also present are deep water octocorals, such as Iciligorgia schrammi and Ellisella barbadensis , with the latter much more abundant here than on the Deep Reef. One major significance of this deep ridge formation may lie in its potential for elucidating the geological past of the area. Its biological importance to the total Looe Key reef ecosystem has not been evaluated. 2. Trophic Relationships Primary production generated by seagrasses and macro-algae on Looe Key occurs mainly in two zones: the Patch Reefs and the Reef Flat. Many of the herbivorous fish populations, as well as numerous invertebrates rely on these seagrass beds both as their primary source of food and for protection. The ecological significance of the interrelationships between patch reefs and seagrass associations has been well documented (e.g., Ogden & Zieman, 1977), Numerous consumers utilize patch reefs as habitat, but feed directly on seagrasses and their epiphytes, as well as on associated macro-algae. Thus, the Patch Reef ecosystem provides the two most important requirements for the mobile, herbivorous reef fauna: shelter from predators and an unlimited supply of food. The high productivity of areas like this is harvested in the Florida Keys in the form of finfish, lobster, and other shellfish by both the commercial and sport fishing industry. With regard to feeding relationships, the importance of the coral reef areas proper, (i.e., the reefs in the Patch Reef, the Fore Reef, and the Deep Reef zones), lies mainly in their production of plankton, and, to an unknown extent, excretion of non-living organic material, i.e, mucous. Transport of planktonic larvae, eggs, spores, and other reproductive entities between the various zones and subzones is probably considerable. Dissolved organics, exocrines and a wide array of other metabolic excretions, originating in any of these natural communities, are distributed throughout the reef by tide and wind-driven currents. In situ primary production fixes a certain percentage of the energy requirement of the reef ecosystem. However, imports of energy from adjacent seagrass beds and phytoplankton populations are probably of great importance to the reef's consumers. 57 Also, an unknown, but undoubtedly significant, contribution of dissolved organic material and particulate detritus is carried to the reef from man- grove wetlands by outgoing tides. The tremendous superiority of coral reefs over other ecoystems in terms of productivity has been documented by Odum (1971). There is no doubt that all four reef zones (and possibly, also the Deep Ridge), identified in this study, are tied together by trophic relationships, just as the total coral reef ecosystem is tied in with the surrounding ocean. The coral reef - open ocean relationship, is illustrated by the frequent visits to the reef by large schools of jacks, mackerel and other pelagic fishes. These fishes use the reef not only as a feeding ground, but also participate in, and benefit from, the cleaning-mutual istic symbiotic relation- ship with reef-dwelling finfish and invertebrates (i.e., "cleaning stations"). 3. Endangered Species There have been no reported endangered species in the Looe Key proposal site. Although the Looe Key area is suitable habitat for three marine turtles protected under the Endangered Species Act, no sightings, to date, have been verified. Pillar coral ( Dendrogyra cylindrus ) found in the patch reefs north of the main section of Looe Key was nominated but did not qualify as a federally designated endangered species. 58 II. SOCIO-ECONOMIC SETTING A. SOCIOLOGICAL CONDITIONS The proximity of most of the Florida Reef Tract, including Looe Key Reef, to the Florida Keys in Monroe County makes these reefs accessible to the large numbers of people who are able to drive or fly to the archipelago. The Overseas Highway and its 44 bridges link the Keys to the mainland, and jet air service connects Key West and Marathon to all major American urban areas. At the present time, 37 of the existing 44 bridges are being replaced, a major new fresh water aqueduct from the south Florida mainland to the Keys is under construction, and extensive additions to the electrical trans- mission and generation systems for the area are under way. Monroe County statistics indicate that the Keys are expanding rapidly in both permanent, resident population and tourist populations. The unincorporated Monroe County population (outside Key West, Key Colony Beach and Layton) increased by roughly 30 percent, or from 22,803 to 28,435, between 1970 and 1978 (Monroe County Statistics, p.A-2). In the same period, tourism more than doubled, from 460,800 county tourists to 948,500 (Monroe County Statistics, p.E-1). Not only is tourism in Monroe County increasing absolutely but the county is increasing its share of Florida tourists, up in this period from 2.0 to 3.0 percent. The increase in population is expected to continue. From a 1978 county population of 54,793, the permanent resident population is expected to reach 55,600 to 56,400 by 1980, 56,700 to 58,400 by 1985, and between 60,900 to 66,300 by 1990, (Monroe County Statistics, p.A-6). This last figure implies that in the next decade Monroe County is expected to grow by 10 to 20 percent. In the area nearest Looe Key, from Seven Mile Bridge up to and including half of Ramrod Key, the population is expected to grow from 1,833 in 1974 to 5,845 in 1998 (Black, Crow & Eidsness, P. 3-4.). Tourism is increasing. Bahia Honda State Park, in the vicinity of the proposed sanctuary, reported a 20 percent increase in visitors during Fiscal Year (FY) 1978-1979. The number of visitors rose from 293,256 in 1978 to 351,700 in 1979. (Bahia Honda Tabulation of Daily Visitors, FY 1978-1979.) The impending construction of the new water aqueduct is predicted to increase population of the Florida Keys (Black, Crow and Eidsness, Inc., 1976). Construction in the Lower Keys hit an all time high in 1978, as permits for 208 residential units were issued by the county (Monroe County Statistics, p.B-5). The construction industry has clearly recovered from the recession in 1975 and is building as rapidly as before. Overall, the unincorporated Keys saw the housing stock increase by 59 percent in the 1970-1977 period (Monroe County Statistics, p.B-3.). With the new aqueduct, this number should increase. 59 As the number of persons in the Lower Keys increases, it is likely that the amount of human activity at Looe Key will increase. In addition, with the increasing popularity of SCUBA diving and snorkeling, it can be assumed that the number of persons diving at Looe Key will increase. B. ECONOMIC CONDITIONS The economic base of Monroe County has four main elements: (1) tourism (2) commercial and sport fishing, (3) retirement and second home communities, and (4) Federal government operations (military). The remaining segments of the economy center around wholesale and retail trade, services, light industry, trades and government. Of the nearly 19,500 persons (1976) in the civilian labor force, approx- imately 40 percent were employed by businesses servicing the over 1 million tourists a year that visit the Florida Keys. The majority of this income is seasonal with peak periods from December to May (Monroe County Statistics, 1979). Looe Key is widely used by commercial fishermen, public charter boat operators, dive boats, recreational divers and fishermen, and educational enterprises in the lower Florida Keys. Recreational skin diving has become a significant commercial industry in the Keys in recent years. According to the Skin Diver Magazine , 1979 Reader Survey, 38.8 percent of skin divers ( snorkel ers and SCUBA divers) traveled to other States to dive. Of that 38.8 percent, 35.6 percent trav- eled to the Florida Keys in Monroe County. The median amount per diver spent in 12 months on diving trips, according to the survey, was $442.00; the average $718.00. Although expenditures of this nature, jue. , travel, equipment purchases, are not entirely spent in the Monroe County region, some, at least, of the income from these trips is realized by the local economy. In the last fifteen years, pleasure boat registration almost quadrupled to 8,121 boats in Monroe County. Commercial boat registration rose by a third in the same fifteen years to 2,749 boats. If these trends continue, future human use of the area and all the Keys is much more likely to have a recreational orientation than a commercial one (Mathis et ^1_, p. 7, 1979). The commercial fishing industry is an important source of income and employment. In 1976, Monroe County ranked first in fish and shellfish landings in Florida with fish catch valued at $23,605,000. Of that amount, $19,965,000 came from shellfish and $3,640,000 from fish. Over 18 percent, or about 28 million pounds, of the commercial fish landings in Florida in 1978 were brought into County docks. The 1978 value of Monroe County landings was about $38 million, or nearly 42 percent of the total value for commercial fish in Florida (Monroe County Statistics, 1979). The continuously increasing population of retirees is not a major influence on the area's economy because most live on fixed incomes (Monroe County Statistics 1979, p.F-1). However, they, and the growing number of second home owners, are the primary stimulus for the relatively small construction industry in the Keys. 60 The largest single and least seasonal element of the Monroe County economy is the military. In 1976, the Naval Air Station provided 34 percent of all employment and 24 percent of all personal income in Key West, which amounted to almost $49 million. B. LOOE KEY ONSITE SURVEY The contribution of Looe Key to the economy of Monroe County can only be approximated. All income and catch information from commercial fishermen and income from commercial recreational businesses of Looe Key is only available at the County or Standard Metropolitan Statistical Area level. To obtain a more accurate socio-economic picture of the Looe Key area, NOAA undertook, through a consultant (SGW), a time limited Looe Key Onsite Survey of human activities and the estimated economic benefits to the Looe Key area from these activities. The information from the survey presented below is a part of the economically affected environment and was used in analyses to determine the preferred alternative. Like the major portion of the Keys, the economy of the area near Looe Key is heavily dependent on fishing and tourism. The Onsite Survey concluded that commercial fishermen with home ports adjacent to Looe Key derive about 28 per- cent of their annual catch from the 5 sq nm area surrounding the main Looe Key reef. 1. Commercial Fishing Using average 1978, Monroe County dockside prices computed by the National Marine Fisheries Service, the Onsite Survey results reported that the 1978 catch within the 5 sq. nm area at Looe Key was worth approximately $755,690 or $7,556.90 per boat/per year. The average annual income per boat for the overall Looe Key area could thus be expected to be $27,000 in 1978 (see app. C, Table 1,2). Comparing this figure based on actual information from the survey interview schedules with the reported average 1976 income per boat in Monroe County of $24,872 (Mathis et al_ 1979, Table 4), the Looe Key Onsite Survey reported income/per boat was higher. The average survey reported income for commercial fishermen from the Looe Key area was also higher than the estimated income reported by the Lower Keys Chapter of Organized Fishermen of Florida (OFF) at the public meetings in Big Pine Key, Florida. OFF testi- fied, in January 1978, that the yearly catch value from the Looe Key area in 1978 ranged between $300,000 and $500,000. Survey information, as mentioned above, reported $755,690 for just the 5 sq nm area or approximately $255,000 more than OFF's higher estimate. The differences between published data on fish catch value for Monroe County, the OFF testimony and the Survey data may result from (1) having overestimated the actual fishing boats at Looe Key, or (2) by inflated catch value estimates on survey interview schedules The Survey results, however, are well within the range of probability and appropriate for general economic analysis. Of the estimated $755,690 earned in the 5 sq nm area or Boundary Alternative #2, 61.7 percent came from lobster trapping, 14.5 percent from wire fish trapping, 17.7 percent from hook and line, 5.6 percent from netting and 5 percent from trapping Stone Crab. 61 To account for income generated by commercial fishing businesses in the Looe Key area other than the direct income earned by the fishermen, a regional multiplier was used. Using the economic value of commercial fishing in Boundary Alternative #2 ($755,690) and the appropriate regional multiplier from the Bureau of Economic Analysis USDC, 1977, the economic effect on the Lower Key economy of the fishing effort was reported to be $1,446,390 in 1978. 2. Commercial Recreational and Educational Businesses Looe Key Coral Reef has come to be recognized as one of the more popular snorkeling and diving sites in the Florida Keys. Businesses have sprung up to serve the divers and others wishing to take advantage of the high recrea- tional potential of the area. Revenue from charter dive boat trips appears to be the major income producing activity outside of commercial fishing directly utilizing Looe Key reef. Other income producing businesses, such as marinas and fishing lodges, rent boats and equipment. The Newfound Harbor Marine Institute on Big Pine Key, a non-profit organization offering one of the most comprehensive marine educational oppor- tunities in the Florida Keys, focuses upon the nearby Looe Key coral reef and other coral assemblages in the general vicinity for year round teaching. Seacamp, a part of the Institute, offers a variety of educational programs to students in the 4th grade through graduate school. Between 5,000 and 6,000 persons participated in the 3 to 30-day programs in 1978. The Onsite Survey estimated revenue from dive boat trips to be between $150,000 and $250,000 in 1978. This represents income from an estimated 7500 divers who charter dive boats annually, according to the Survey. Divers charter boats, stay in hotels, motels and fishing lodges, visit restaurants, frequent marinas and purchase air and diving equipment. These economic multiplier effects were taken into account by using a regional service sector multiplier. The multiplier selected for these commercial dive boats was 3,203 (BEA 1977, p. 44). Thus, the total economic value of commercial recreational businesses was estimated to be between $480,450 and $800,750. Almost all of this income was derived from the 5 sq nm Boundary Alternative #2 since the most utilized coral areas were found within the 5 sq nm boundary. No attempt was made to estimate the economic value of Seacamp and the activities of the Newfound Harbor Marine Institute although its apparently significant economic value was considered in the development of regulations for the sanctuary. 3. Tropical Specimen Industry A preliminary unpublished draft study of the "Aquarium Reef Fish Industry of Monroe County, Florida" based on 1976 and earlier data (Hess/Stevely) was prepared for the Marine Resource Inventory Monroe County, Marine Advisory Program of the Florida Cooperative Extension Service, and submitted in 1979. 62 This appears to be the best available information on the Florida Keys trop- ical specimen industry to date although admittedly it is not a definitive study. Both the following economic discussion and the Environmental Consequen- ces Chapter 4 analysis of proposed tropical specimen collecting regulations are based largely on this draft study and personal interviews with tropical specimen collectors at Looe Key and in the Florida Keys as part of the Onsite Survey. Areas of heavy boating traffic and dense coral relief of the reef struc- ture, such as the Looe Key Fore Reef area are not generally considered suitable as collecting areas for tropical fish and invertebrates (Causey, personal com- munication, 1979). Boats carrying tourists and local residents can easily foul and disconnect lines leading to submerged collectors and their equipment. Dense coral structures offer multiple hiding places for desirable tropical fish species. The Onsite Survey revealed that some collecting occurred in the Looe Key area. There are six full-time and two part-time collectors in the general area. Their annual income varies considerably, depending on their expertise, the amount and type of work they perform and changeable environmental condi- tions. Full time tropical specimen collectors fall into two categories; those who sell to wholesalers located along the Keys or large wholesale outlets in Miami, and those who not only collect specimens but package and ship the organisms directly to customers. The latter group's income falls within the higher estimated range of income for collectors (Causey, personal communication, 1979). Income estimates based on best available but yery preliminary information set the overall value of tropical fish and invertebrate collecting in the vicinity of Looe Key at between $105,000 and $175,000. Collecting activities inside the 5 sq nm boundary, according to the Onsite Survey, appear to amount to less than 25 percent of the total collecting. There is some reported activity among the rocky ledges of the Patch Reef zone, but minimal commercial activity in the Fore Reef and Reef Flat zones. Occasional amateur collecting, however, has been observed throughout the five mile area. Thus the estimated range of income generated within the 5 sq nm proposed sanctuary area is between $25,000 and $43,000. The regional multiplier would increase these amounts to between $80,045 and $137,729. 4. Private Recreational Users Commercial recreational questionnaires from the Onsite Survey estimated that the average number of daily private boat visits to the proposed Looe Key 5 sq nm sanctuary ranged between a low of 11 and a high of 23 in 1978. If these estimates are correct, then -- assuming 300 days of clear weather -- there were somewhere between 3,564 and 7,008 private boat visits to the reef last year. According to the Onsite Survey, 2,346 to 4,672 of these boats carried an estimated 9,694 to 19,061 divers to Looe Key reef in addition to the 4,500 from commercially chartered dive boats. 63 By attributing an economic value to these commercial, non-quantifiable activities (see app. C), it was possible to estimate the value of these private non-commercial activities at Looe Key. Using the combined commercial costs of snorkel ing, and SCUBA diving, the economic value of the 9,694 to 19,061 private divers in Boundary Option No. 2 was estimated to be between $137,364 and $240,094 in 1978. Using the appropriate regional multiplier, the value of private recreational diving activity to the region was set between $439,976 and $769,021 for the region. Recreational fishing and sightseeing was valued to be between $27,520 and $93,440. The multiplier effect of this activity would raise the total value of this activity to the region to between $152,200 and $299,288. 5. Summary The income from commercial and recreational activities is approximately $1,300,000 per year, which, in turn provides about $3,154,000 in business for the area economy. The economic impacts of human activity in the Looe Key area were consid- ered in the drafting of regulatory alternatives. The approximate income and business volume in dollars is summarized in the following table: 64 TABLE 6 SUMMARY APPROXIMATE INCOME AND BUSINESS VOLUME Activity 1978 Income 5 run Area 19 78 Local Economy Value Fishing Commercial (Catch Value) $ 755,690 $1,446,390 1/ Tropical Specimen Collecting 43,000 (max) Income (gross) 317,729 2/ (max) Tourism Dive charter boats (Commercial recreational businesses) Sport fishing, diving, snorkel ing (imputed value) (Private recreational businesses) 250,000 (max) 240,094 (max) 800,750 2/ (max) 769,021 2/ (max) Value $1,288,784 $3,153, 890 1/ Economic Multiplier 1.914 (BEA 1977 p. 44) 2/ Enonomic Multiplier 3.203 (BEA 1977 p. 44) 65 III. HISTORIC AND CULTURAL RESOURCES IN AND ADJACENT TO THE PROPOSED AREA A. A World War II wreck rumored to be a small U.S. Navy utility vessel is located 150 m north of the current marker post. Visible wreckage includes 6 rectangular steel tanks, much corroded, partially buried in the sand, and partially overgrown with small corals and sponges. Assorted beams, fittings and piping are scattered about the area. B. About 1 km north of the current marker lie the remains of an un- identified wreck, discovered in the 1960 ' s by local salvager, Captain Art Hartmann, who believed it to be the wreckage of the Snow which was in company with the H.M.S. Looe when they both went up on the reef in 1744. The keel and ribs are occasionally visible in the sifting sand at a depth of about 4 m. The British Admiralty records concerning the loss of the H.M.S. Looe state that the Snow was behind the Looe when she went up on the north side of the Reef Fl at; it does not appear possible that the remains of the Snow are those discovered by Captain Hartmann. C. An anchor which could very well be from the Snow has been sighted embedded in a ridge of coral in the mid-section of the Fore Reef spur and groove system. D. In the shallow basins of the rubble sub-zone between the Reef Flat and Fore Reef, there are several scattered piles of the ballast stones commonly used in the 19th century ships. These occur in identifiable concentration at the southeastern end of the Reef Flat. Eo The wreckage of the H.M.S. Looe lies to the southwest of the current marker post in 4.5 to 9 m of water, within the proposed boundaries of the sanctuary. Some 14 cast iron ballast blocks, which are triangular in cross section, stair-step sided, and characteristic of British men-of-war of that period, lie only partially buried in the sand. These blocks, along with other scattered remnants of the ship's structure, are heavily coral encrusted and partially buried in the sand. When Ed Davidson, a local dive boat captain, examined this wreck site in the company of a State of Florida underwater archaeologist in the summer of 1977, "hand-fanning" revealed fragments of flint, pieces of the original oak timbers, and corroded iron fasten.ings in the vicinity of the ballast blocks under only 18 inches of sand. Mendel L* Peterson, curator of naval history for the Smithsonian, and Edward Link (Harbor Branch Foundation) visited, salvaged and identified items from the wreck site in 1950-1951. A variety of recovered ballast blocks, cannons, shots, fasteners, pottery, bottles, and coins were shipped to the Smithsonian Institution. Investigations by Peterson (1955) into letter correspondence, British Admiralty records, court martial proceedings, etc., reveal the following facts about this ship and her fate. The H.M.S. Looe was a 44 gun British frigate, armed with batteries of 6 and 12 pounders, launched in 1706 with a complement of 190 men. She saw varied service as a hospital and convoy ship in mid-career, before being refitted to her original warship configuration and posted to the American Colonies under the command of Captain Utting. She was headquartered at Port Royal in South Carolina and assigned to cruise the Florida Straits in winter. 67 The Bureau of Land Management of the Department of the Interior is preparing a Submerged Cultural Resource Plan to identify shipwreck sites between Key West and Cape Hatteras out to 200 miles. Additional information on shipwrecks in the Looe Key area will become available as these surveys are completed. 68 IV. STATE AND OTHER FEDERAL RESOURCE MANAGEMENT PROVISIONS IN ADJACENT AND NEARBY AREAS Although the proposed sanctuary lies solely within Federal jurisdiction it is adjacent to State waters. There are numerous protected areas adjacent or in relatively close proximity to the proposed boundary. Federal and State management measures for similar resources must be taken into account when planning for sanctuary resource protection and use. Knowledge of related programs will help insure that proposed sanctuary regulations are not dupli- cative and that they are reasonable, necessary, and complement existing protective measures and that sanctuary education and research objectives take advantage of and enhance other research and education efforts. Individual regulations of existing Florida Keys Federal and State marine parks and the marine sanctuary at Key Largo reflect the concern for the adverse impacts of commercial and recreational marine activities in the Florida Keys area on the marine system. Florida State laws protect certain marine species in territorial waters. Most of these same species are also found in waters surrounding Looe Key. Therefore these laws and protective measures are of interest in the considera- tion of marine sanctuary designation. In some instances, such as the Bi scayne National Park, some State marine regulations have been adopted as Federal regulations. Details are found in Appendix D. The John Pennekamp Coral Reef State Park and Key Largo Coral Reef Marine Sanctuary, located in the upper keys, are actually two preserves, consisting of an area extending out three miles from shore administered by the State of Florida (Department of Natural Resources, (DNR), Division of Recreation and Parks) and a Federally operated sanctuary beginning at the edge of State jurisdiction and extending seaward 5 miles, administered by NOAA's Office of Coastal Zone Management (OCZM) The Florida DNR, Division of Recreation and Parks serves as on site manager for the Key Largo Sanctuary. State law makes it illegal to possess certain species of "fresh, uncleaned, or uncured sea fan, hard or soft coral or fire coral." The law is considered difficult to enforce because the corals can be quickly killed and bleached on a boat, before a patrolman can inspect the boat (Captain Tingley, Florida Marine Patrol, 1979). The fine of $35.65, set at the present time by a Cir- cuit Court Judge in the Florida Keys, for a misdemeanor of the second degree (prescribed in the statute) is also considered by most as little deterrent to the taking of coral from State waters. The regulation for the John Pennekamp Coral Reef State Park, on the other hand, which states, "It is unlawful to take coral from, or possess it," appears to be the most effective for enforce- ment. 69 Spearfishing is prohibited within the boundaries of John Pennekamp Coral Reef State Park, and the salt waters in Monroe County from the Dade/ Monroe County line to and including Long Key. The DNR also has the power to establish restricted areas when safety hazards exist or when needs are deter- mined by biological findings. The National Park Service at the Everglades National Park, located at the tip of the South Florida Peninsula, has initiated proposed regulations which include restriction of recreational shellfishing and the elimination of com- mercial fishing within the waters of the Park by December 13, 1985. These proposed restrictions are highly controversial locally. Biscayne National Park in the northernmost Florida Key is primarily an underwater park although it was designated by Congress, with rules slightly different from a National Park Service park. To establish Biscayne National Monument, the State of Florida and the Federal government agreed that fishing could continue, in accordance with State laws, unless it was determined to be detrimental to the purposes for which the "monument" was established. If so determined, it would be further regulated following consultation with the State. Commercial fishing and lobster-trapping are legal, as is sport fishing, both by hook-and-line and by spear. Conch and lobster may also be taken by divers, provided they are caught by hand or by hand-held net when in season and provided legal limits are not exceeded. Tropical fish collection is not legal. No fish traps are permitted. The Park management is also currently experimenting with the use of mooring buoys which mark an area for visitors and offer them an opportunity to tie up to a buoy rather than anchoring in an area which might damage the coral reef. The location of the moorings and educational material about certain unique reefs are discussed in a booklet prepared and distributed by the Biscayne Monument staff. The National Park Service at Fort Jefferson National Monument, Dry Tortugas, off Key West, Florida, has prohibited the taking or disturbing of any species of coral, shells, shellfish, sponges, sea anemones or other forms of marine life, with the exception of the recreational catch of spiny lobster ( Panulirus argus ) and conch ( Strombus gigas ) which is limited to 2 per person. The use or possession of spears or gigs is prohibited at all times. With regard to enforcement of these other protected areas varying arrange- ments exist. Through a joint management agreement with the State of Florida, NOAA and the USCG, the Key Largo Coral Reef Marine Sanctuary and John Pennekamp Coral Reef State Park are patrolled cooperatively by State Park Rangers, and the U.S. Coast Guard (see Appendix D-9). Persons found to be in violation of NOAA regulations are notified at the scene with the issuance of a Coast Guard Report of Boarding (CG Form 4100). Evidence is seized by USCG personnel and appropriate statements taken. 70 Coral or other materials or organisms mentioned above collected outside of John Pennekamp Coral Reef State Park and Key Largo Coral Reef Marine Sanctuary cannot be transported into these areas without danger of the pos- sessor being fined. This is also true of the Key Biscayne National Park. The effectiveness of enforcement arrangements at the Key Largo Coral Reef Marine Sanctuary is of particular interest to the Looe Key proposal. Although the Key Largo area is larger and immediately adjacent to an estab- lished State Marine Park, its ecological system and the human impacts occurring daily in the sanctuary are ^ery similar to those at Looe Key. Bahia Honda State Park is in the vicinity of the proposed Looe Key Sanctuary and managed by the Florida State DNR, Division of Recreation and Parks, and located on Bahia Honda Key. The Bahia Honda State Park personnel emphasize the protection of State resources by interpretation of the law to those who use the park rather than by enforcement. The park employs 17 staff and 14 rangers, most without law enforcement authority, whose responsi- bilities include search and rescue operations in State waters. The National Key Deer Refuge, Key West National Wildlife Refuge, and Great White Heron National Wildlife Refuge are administered from the National Key Deer Refuge Headquarters by the U.S. Fish and Wildlife Service, located on Big Pine Key, in the vicinity of the Looe Key area. The U.S. Fish and Wildlife Service (FWS) has no jurisdiction in the State waters surrounding the refuges but must maintain boats in order to inspect and manage 90 percent of their lands. The FWS owns and maintains three boats; a 24'x9' workboat, a 26' aqua sport and a shallow water craft (17'). All resources, both personnel and budget, are fully committed to the purposes of the refuge and conversations with the refuge manager indicate that they would not be able to be actively involved in sanctuary management or enforcement. 71 V. LEGAL STATUS QUO A. Summary and Analysis Looe Key is located on the Continental Shelf seaward of the territorial sea and State jurisdiction. A variety of Federal Statutes and regulations apply to activities taking place in the area. Those that apply to activities posing significant threats to the resources at Looe Key identified in the Affected Environment Section are discussed in the present section. Each is examined in terms of its present effectiveness and potential capability in controlling impacts on these resources. In addition, the enforcement responsibility and capabilities of the relevant Federal agencies are examined including their permitting, surveillance and monitoring procedures and the enforcement arrangements among them and with State agencies. Regulations for the most direct threats from man's activities to the coral reefs such as the taking of coral and anchoring do not presently exist. Until recently such activities were regulated by the Bureau of Land Management (BLM) under the Outer Continental Shelf Lands Act (OCSLA) but a recent decision of the Fifth Circuit held these regulations invalid except in connection with BLM's OCS leasing activities. In addition, currently there is no regulation of the collecting of tropical fish or invertebrates, and little regulation of commercial fishing. Looe Key is located within the geographical jurisdiction of the South Atlantic Fishery Management Council (SAFMC). As described in this section, the SAFMC is in the process of preparing a Fishery Management Plan (FMP) for Snapper-Grouper Resources, and jointly with the Gulf of Mexico Fishery Management Council (GMFMC), FMPs for Coastal Pelagic Migratory Resources (Mackerel), Spiny Lobster and Coral and Coral Resources. Plans would impose various limitations on the fishing of these resources as detailed below. It is anticipated that the plans will be completed by late 1981. As drafted, the Coral and Coral Reef Resources FMP will protect all coral within a 1 nm square HAPC (Habitat Area of Particular Concern encompassing the Looe Key Fore Reef) where proposed management measures would protect the resources against such direct threats as harvesting and anchoring and it would prohibit spearfishing in this area. Beyond the HAPC, the FMP proposes to prohibit the harvest of hard coral except under permit for scientific and educational purposes. A limited harvest of soft coral will be permitted. The Spiny Lobster FMP would impose quite severe limitations on the fishing for this resource, as detailed below. Looe Key is located within the SAFMC s Snapper-Grouper Management Area III. South of Cape Canaveral (mid-depth and inshore) in which various management measures proposed to control these fisheries would apply, as described below. Under the draft Mackerel FMP, specific management measures are proposed for King and Spanish mackerel and cobia. No FMP's are being prepared for other resources including numerous species of tropical fish with aesthetic but limited commercial value, 73 invertebrates, and other species which are interrelated in the ecosystem. In lieu of sufficient evidence to warrant preparation of a Tropical or "Ornamental" Reef Fish FMP, the SAFMC and the GMFMC are considering preparing a profile or description of the fishery and resource. The effectiveness of the draft plans to mitigate the adverse physical and ecological impacts of commercial and recreational fishing on the Looe Key reef cannot be assessed at the present time. However, it should be noted that there are distinct differences between managing fisheries for optimum yield with special reference to food production and recreational opportunities, and managing an ecological system for the protection and maintenance of a coral reef with emphasis on enhancing public awareness and wise use of reef systems, public education, research and assessment. While the measures adopted for each purpose are likely to be complementary, they may not be identical in this situation. In addition to these more direct threats, the disposal of sewage and trash, primarily by recreational boaters, could threaten the resources. These threats are not considered in any FMP and regulation under other laws is limited as detailed below. Finally the protection of a shipwreck, the HMS Looe , found in the area is desirable and not currently provided. Pollution from dredging and dredge spoil disposal, ocean outfalls and other point source discharges and from any ocean dumping activities does not appear to pose a realistic threat at least at the present time. The Environmental Protection Agency and the Corps of Engineers have authority under the Clean Water Act and Ocean Dumping Act to address these activities on a case-by-case basis. Surveillance and enforcement duties for the previously mentioned laws and implementing regulations have been assigned, for the most part, to three government agencies in the Florida region; the U.S. Coast Guard, the NMFS Division of Law Enforcement and the Florida Marine Patrol. This existing enforcement framework patrols the Fishery Conservation Zone, defined as those waters "Seaward of the 3 mile territorial sea boundary to 200 miles." Detailed information on these enforcement agencies is found in Section C— Enforcement (Dennis, 1979). Eighty percent of Coast Guard missions in Florida deal with search and rescue. The Group Key West Coast Guard ranges along the entire coastline of the Florida Keys with their number one enforcement activity, at the present time, being drug interdiction. Distances between stations and the large territory to be covered makes their patrols for all missions intermittent and infrequent (Dennis, 1979). The extent to which the Coast Guard, patrolling the Florida Keys, might be able to assist in the enforcement of the marine sanctuary at Looe Key can be judged by the number of personnel and the number and complexity of their present missions. From interviews with Commander Dave Russell, Coast Guard 7th District in Miami, and Lt. Commander Sam Dennis, Commander of Group Key West, it appears that the Coast Guard does not presently have adequate time or personnel to enforce effectively a marine sanctuary at Looe Key. 74 The enforcement responsibilities delegated by the Secretary of Commerce to NOAA/NMFS are currently administered and carried out by an Enforcement Division in the Office of Fisheries Management (a staff function) and by five separate and independent regional law enforcement organizations (line function) operating under the direction and control of the respective Regional Directors. The National Marine Fisheries Service administrative and enforcement resources are currently limited since available funds and personnel must be spread throughout the 200 mile fisheries conservation zone. The Florida Keys are part of the Eastern Enforcement Area of the NOAA/NMFS Southeast Law Enforcement region, extending from North Carolina to Key West and including Florida Bay. NMFS primarily investigates and processes civil/ criminal violations of the laws within NOAA jurisdiction. The Florida Marine Patrol and the U.S. Coast Guard patrol the waters under Cooperative Agreements entered into by the Regional Director of the NOAA/NMFS Law Enforcement Office in the Southeastern region. This arrangement alleviates the problem of the lack of ceiling points necessary to hire additional Agents for patrol work. B. Survey of Authorities Relevant to the Protection of Looe Key Resources 1. Fishery Conservation and Management Act of 1976 (FCMA) 16 USC 1801 et seq. Authority includes: Managing the 200 mile fishery conservation zone with exclusive U.S. fishery management authority over all fish except highly migratory species. Promoting domestic, commercial and recreational fishing under sound conservation and management principles. Review, approval and implementation of fishery management plans (FMP's) to achieve and maintain optimum yield from each fishery. The GMFMC (Texas, Louisiana, Mississippi, Alabama, and Florida) and the SAFMC (Florida, Georgia, North and South Carolina) will prepare and submit to the Secretary of Commerce, FMP's for each fishery within their geographical area of authority. The Council's FMP's will be implemented by Commerce, after a determination that the Plans are consistent with the FCMA's National Standards, other provisions of the FCMA and other applicable laws. FMP's being prepared by the GMFMC either unilaterally or jointly with the SAFMC will affect species found and harvested commercially in the Looe Key reef area. These FMP's are: a. Spiny Lobster Resources Plan : The latest available draft was circulated August 1979. Key Points: While the spiny lobster management zone "encompasses the offshore areas 75 from North Carolina to Texas, in practice the commercial and recreational harvest of spiny lobster from U.S. waters is almost exclusively limited to waters off Southern Florida." (DEIS, 1979). The plan strives to protect the spiny lobster population for future use while allowing harvesting at a rate which approaches the maximum sustainable yield and which provides the optimum economic and social contribution from the fishery. To accomplish this, strict management measures have been recommended including: "a size limit, a closed season, (including a special recreational season), certain gear restrictions, measures to protect 'shorts' and 'egg-bearing' females and prevent poaching, and a measure to encourage a mechanism to minimize conflicts. Limited mandatory statistical reporting will be required by user groups." (Summary Sheet DEIS). The species involved are spiny lobster ( Panul irus argus ) and associated incidental species as follows: smooth tail lobster ( Panul irus laevicauda ); and Spanish lobster ( Scyllarides aequinoctial is , Scy liar ides nodifer , Scyllarus americanus , and Scyllarus chacei ). Negligible economic, social or environmental changes are anticipated, according to the DEIS, due to the proposed action. Impacts of the plan are generally the same as those due to existing state regulatory efforts and current practices within the fishery, since the proposed regulations are almost identical to present State regulations. Enforcement duties for the Spiny Lobster Plan will also be turned over to the State in the event of Plan approval . b. Draft FMP for Snapper-Grouper Resources The latest version of this draft FMP (February 1980) reviews (1) the short- and long-range goals of the FMP; (2) the distribution, abundance and present condition, ecological relationships, estimate of maximum sustainable yield, and probable future condition of fisheries within the snapper — grouper complex; (3) the condition of natural and artificial habitats of the stocks and Federal and State habitat protection programs, laws and policies; (5) the history and present efforts of commercial and recreational user groups, vessels and fishing gear; (6) the economic characteristics of the fishery; (7) a description of the business, markets and organizations associated with the snapper-grouper fishery; and (8) a description of the social and cultural framework of domestic snapper-grouper fishermen. Decision Elements for the draft Snapper-Grouper FMP were approved by the Council (August 25, 1980), as follows: Management Subunits: 1 . Rlack sea bass 2. North of Canaveral (mid-depth) Gag grouper Vermillion snapper Scamp Grunts Red porgy Speckled hind Red snapper Triggerfish 76 3. South of Canaveral (mid-depth and inshore) Looe Key Area Mangrove snapper Inshore groupers Yellowtail snapper Grunts Mutton snapper Porgies Lane snapper 4. Deep Water Complex (throughout range) Snowy grouper Golden tilefish Yellowedge grouper Black tilefish ° Estimates of the Current Catch by Sub-Unit 1. Black sea bass 1,605,914 lbs) to be 2. North of Canaveral (mid-depth 4,126,116 lbs) rounded 3. South of Canaveral (mid-depth & inshore 8,933,199 lbs) to nearest 4. Deep water (throughout range) 1 ,184,770 lbs ) 100,000 lbs Total catch 15,8°4,Q99 lbs. ° Estimates of Maximum Sustainable Yield (MSY) MSY is determined to be equal to the best available estimate of the current catch in management subunits 1, 2 and 3 and equal to optimum yield for subunit 4. ° Management Goals : 1. Long range goal : Maximize the economic and social value of the harvest consistent with preventing overfishing of the stocks. Sub-goals : ° Establish an information system to monitor the status of the snapper-grouper fishery. Encourage continued research on the biology and fishery of significant species. ° Prevent further overfishing of those stocks which now may be overexploited. ° Restore, over time, to the optimum level those stocks which now may be overexploited. ° Encourage up to full exploitation those stocks not currently harvested at the optimum yield. ° Encourage protection of existing habitat and the develop- ment of new habitat by the construction of artificial reefs. ° Reduce gear and user conflicts. 77 ° Give priority to specific gear in high use, nearshore waters where growth overfishing is demonstrated. 2. Short term goal : Because of the dearth of information about social and economic values of this fishery and the biological status of the stocks, the short term goal is to stablilize harvest while socio-economic and biological data are being obtained. ° Optimum Yield Optimum yield (OY) in management subunit 1, 2 and 3 is specified as equal to the current (1979) catch OY for subunit 4 is specified as the amount of fish harvested which results in the average length of the catch being no less than the average length at which females mature averaged with the length at which males mature. ° Definition of overfishing Harvest from any of the four management subunits in excess of the stated OY for that subunit is to be considered overfishing and as cause to restrain the fishery, with the following provisions. 1. The fishery is not to be restrained if the data used to determine OY was faulty. 2. The fishery is not to be restrained if up-to-date biological analysis indicates that the stock can safely sustain additional harvest. 3. The fishery is not to be restrained unless the social and economic benefits to be gained in subsequent years are greater than the social and economic costs which will be incurred in the year of restraint. Management measures 1 . Special Management 7ones Zones in which special management measures are applicable may be designated. Such designations may be for a stipulated period of time or may be in force until changed by the Council. The following is a broad spectrum of biological, socio- economic and environmental indicators which the Council will employ to iden- tify zones that may require a special management regime. It should be noted that all of these indicators will be applicable in all situations. The indicators that are applicable in a particular area will be balanced against the objectives established for that fishery before the special management zone designation is made. Biological a. Yield per recruit is less than the maximum (the management goals for the fishery will determine the level that is unacceptable). 78 b. Recruitment is declining (the danger point cannot be precisely quantified). c. Numerical decline in catch per unit of effort (the acceptable level of CPUE is a subjective economic-esthetic judgement). d. A change in target species because of a scarcity of the original target. Socio-Economic a. Conflicts among user groups (may yary seasonally, during the week, etc.). b. The real value of the fishery (i.e., adjusted for inflation) is declining. c. Decline in the level of participation in the fishery (may vary with time of the week or season of the year). d. Change in the proportion of the total harvest taken by various user groups. e. Significant increases in participation which may signal impending overcapitalization. f. Request for special management zones for artificial reefs, Environmental a. Physical degradation of the habitat. b. Biological degradation of the habit (e.g., diseases, predators). c. Chemical degradation of the habitat. d. Decline in species diversity. A. Zoning for Artificial Peefs or Fish Havens Upon request from the permittee (i.e., holder of COE permit) for any artificial reef or other modification of habitat for the purpose of influencing fishing or fishes, the Council may, after due consideration and within the constraints of the National Standards of FCMA and this plan, designate the modified area and an appropriate surrounding area as a special management zone and recommend that the Secretary promulgate regulations which will further the purposes for which the permittee modified the habit. 79 B. Zoning for Fishing by Special dear In highly used nearshore waters when the fishing pressure placed upon the fish population become greater than the reproductive and/or growth potential the fish population is capable of meeting, the Council may designate a special management zone in which priority will be given to users of specific gear. Competition for the limited resources in areas of intense use will be reduced by giving precedence to use of specific gear and by restraining or prohibiting use of other kinds of fishing gear. Restraints on specific gear for fishing may also be imposed. 1. Catch Limitations a. Total Allowable Level of Foreign Fishing (TALFF) Specified as zero. b. Prevention of Overfishing The Secretary and the Council will evaluate the desirability of implementing measures to avoid overfishing when the catch from subunits 1, 2 or 3 reaches 60% of 0Y. In the case of the deep-water subunit, 0Y is defined on the basis of average length of sexual maturity, evaluation will occur when the average length in the catch of any of the four species is the length at sex reversal for that species. If after such consultation and evaluation, it is determined that measures are necessary to avoid overfishing, one or more of the following actions may be taken (by plan amendment) to apply for an appropriate period of time. 1) Establish catch limits per vessel per time period. 2) Establish catch limits per fisherman per time period. 3) Designate Special Management Zones which will be closed to fishing for designated species in the management unit. A provision may be made for by-catch of prohibited species in fisheries directed at species not in the management unit. 4) Designate Special Management Zones in which certain designated types of fishing gear may be controlled or prohibited. One or more of the following actions may be taken: a) Preference will be given to the kind of gear employed by the largest number of users. b) Preference will be given to the most efficient kind of gear. c) Preference will be given to recreational users in nearshore waters and to commercial users in offshore waters. d) Preference will be given to traditional kinds of gear. 80 5) Establish size limits for designated species. 6) Other actions as may be deemed appropriate. c. Fishing Year The fishing year will be the calendar year. d. Size Limits Size limits may be implemented (by plan amendment) as a means of attaining the following objectives and may also be appropriate to other objectives. 1) To maximize yield per recruit. 2) To provide an adequate number of males in the population of those species in which individuals start life as females and at a later age change to males. 3) To maximize the dollar value, or some other specified value, of the fishery when value varies with size of fish. The following procedure will be used to set an appropriate size limit, provided adequate information is available: 1) Estimate the number of undersized fish or the number of juveniles in the catch of the fishery both as it is now prosecuted and at the size which will attain the objective. If the objective is to maximize yield per recruit, the size which will attain the objective will be known in advance. However, the size that will attain the objective of maximizing the value usually will not be known in advance. In such a case a range of sizes that seems likely to attain the objective must be tested to determine the best fit. 2) Estimate the discounted (i.e., present value) flow of the future dollar yield, or other measure of value, from the undersized catch. 3) Choose the size of fish which the preceding analysis demonstrates will maximize the dollar yield or other value from the fishery, considering whether this will provide a desirable allocation among user groups. 2. Vessel, Gear and Enforcement Devices a. The following measures shall apply throughout the management area: 1) Fish traps shall have a degradable panel of appropriate size (at least as large as the entry ports) or degradable door fasteners. 2) Fish traps shall have a mesh size no smaller than 1x2 inches or 1.5 inch hexagonal one year after implementation of this plan. 81 FIGURE 6 LOOE KEY HABITA'f AREA OF PARTICULAR CONCERN SCALE: 1" * 3000' 1" * .49 run- 1" = .91km 24 C 28'N 8I°24'W Location of the Looe Key HAPC, as measured onto the contours of NOAA National Ocean Survey Chart 11445. Square measures 1.852km (1 nm ) on each side with a center at the asterisk. 82 3) An individual shall not fish traps other than his own without the written authorization of the owner. 4) Traps and trap buoys shall be identified with the boat or vessel fishing the traps. b. The following measures shall apply south of Canaveral in waters shallower than 50 fathoms: 1) Pulling fish traps is prohibited between the period one hour after sunset and one hour before sunrise. 2) Fish traps shall not be larger than 54 cubic feet in volume. 3) The use of fish traps will be prohibited shoreward of the ion ft.- contour. c. The use of poisons, explosives and powerheads for taking fishes of the snapper-grouper complex is prohibited throughout the management area. c. Coral and Coral Reef Resources Plan A Draft Fishery Management Plan for coral and coral reef resources (latest draft March 31, 1980) now under revision is being considered now by the Gulf and South Atlantic Fishery Management Councils. The FMP concentrates on identifying participating user groups, research organizations, public aquaria owners, and recreational and commercial poachers (without permits), analyzing the resource and the human impacts on it and describing the economic and legal factors involved. The recommended specific management objectives are as follows: Develop the scientific information necessary to determine the feasibility and advisability of harvest of the coral resource. Minimize, as appropriate, adverse human impacts on coral and coral reef resources. Provide for special management for coral habitat areas of particular concern (HAPC) one of which is identified as a one nmi square area which the plan believes "encompasses nearly all of the significant reef zones and spur and groove formations of Looe Key" as identified by Antonius et al (1978). See Figure 6<. Specific management measures now being proposed for the HAPC are: ° no coral collecting within the 1 nm sq; ° within a trapezoidal core no contact with coral or coral reef resources, no collecting of tropical fish, no fixed fishing gear, no spearfishing and no anchoring. 83 In addition, the draft Coral and Coral Reef Resources FMP proposes to accept the protective regulations already in place for designated areas such as Key Largo Marine Sanctuary, Biscayne National Monument and Ft. Jefferson National Monument. It is therefore possible that if the Looe Key marine sanctuary proposal adequately protects the resources the Councils could determine that additional management measures are unnecessary for the Looe Key HAPC. In addition, the plan proposes to prohibit harvest of hard coral in the FCZ except by permit for scientific and educational purposes and to allow limited commercial harvest of soft coral. d. Draft EIS and FMP for Coastal Pelagic Migratory Resources (Mackerel) The SAFMC and GMFMC have developed and distributed for review and comment a Draft EIS and FMP for Coastal Pelagic and Migratory Resources (Mackerel) (February 1980). Species within the management unit for which management regulations are proposed include the king mackerel, Scomberomorus cava! la , Spanish mackerel, _S. maculatus , and cobia, Pachycention canadum . Species included in the management unit but for which regulations have not been proposed, include the cero mackerel, _S. regal is , little tunny Euthynns alletteratus , dolphin Coryphaena hippurus and bluefish, Pomatomus saltatrix . Recommended management objectives for king and Spanish mackerel are: ° Instigate management measures necessary to prevent exceeding maximum sustainable yield (MSY) ["the mathematical estimate for the pounds of resource which can be harvested annually without overfishing the resource" DEIS, 1980]. ° Establish a mandatory statistical reporting system for monitoring catch. ° Minimize gear and user conflicts. ° (For Spanish mackerel only) promote the maximum use of the resource up to the optimum yield estimate (the MSY estimate modified by economic, sociological and ecological (biological) characteristics of the fishery and user groups (DEIS, 1 980). The recommended management objective for cobia is to instigate management measures necessary to increase yield per recruit and average size and to prevent overfishing. Management measures proposed for public review and comment in the DEIS may be summarized as: ° If a conflict arises through expansion of a historical king Mackerel or Spanish mackerel fisheries in a traditional fishing area or region, the Secretary of Commerce (Secretary), after consultation with affected Council and States, may take action to: 84 (a) separate users or gear by area (fishing zone); (b) separate users or gear by time (day or week); (c) assign quotas; or (d) allow unlimited usage of gear or device. ° If conflict arises through the introduction of king or Spanish mackerel gear or devices into new regions where they have not been historically fished, the Secretary, after consultation with affected Council and States, may take action to: (a) prohibit use of the gear or device in that region; (b) allow only limited use of the gear or device; (c) limit number of units of gear or device; or (d) allow unlimited gear usage. ° If king mackerel catch exceeds the 37 million pound annual allocation, the Secretary may take action to close the recreational or commercial fisheries, after considering all relevant data and consulting with affected Councils; ° Purchase, sale or processing king mackerel under 25 inches fork length will be illegal; ° All king mackerel nets shall have a 4 3/4 inch minimum mesh size; ° Use of purse seines shall be prohibited in the king mackerel fishery of the South Atlantic except in conjunction with research programs to determine their effect on the fishery; ° After consulting with affected Councils, bag and size limits for king mackerel taken by recreational or recreational -for-hire users or trip limits for commercial users will be instituted when supporting data becomes available; ° A 12-inch fork length minimum size limit will be set on Spanish mackerel in both commercial and recreational fisheries. Taking undersized fish cannot excel five per cent of total catch by weight; ° The Secretary is requested to develop a research program to determine the effect of purse seines on Spanish mackerel; ° Rag limits for Spanish mackerel taken by recreational or recreational-for-hire users and/or trip limit for commercial users will be set when supporting data become available; ° Possession of cobia less than 33 inches fork length shall be prohibited; 85 The Councils will "require a reporting system for all user groups and processors based on statistical sampling whereby it would be mandatory for a selected respondant to provide answers to a sample questionnaire on a recurring basis that is not of great frequency;" ° For king mackerel the Councils will require a mandatory trip ticket system for all the for-hire charter and party boats; and ° For Spanish mackerel, the Councils will require a mandatory trip ticket system for a sample of the "for-hire" charter and party boats. (Draft EIS and FMP for' Coastal Pelagic Migratory FMP, 1980). E. Preliminary Management Plan (PMP) for Atlantic Bil 1 fishes and Sharks The PMP for Atlantic Bi 1 1 fishes and Sharks currently prohibits the retention of billfishes and other non-target species taken incidental to directed foreign fisheries for tuna and shark within the FCZ. In the PMP, it is being proposed to extend the 1979 procedures to minimize the capture and subsequent mortality of non-target species in directed foreign shark fisheries by imposing area and gear limitations. This proposal is designed to limit the bycatch of incidental grouper and snapper and other prohibited species. 2. The Outer Continental Shelf Lands Act (OCSLA) 43 OSC 1331 et seq. Authority : Comprehensively regulate oil and gas leasing, exploration and development activities. Expedite development while protecting the marine environment. Oil and gas development does not appear to be a realistic possibility in the vicinity of Looe Key and, therefore, does not pose a threat to the resources. More importantly for Looe Key, the OCSLA does not appear to authorize general protection measures except in connection with such activities. The Department of the Interior has promulgated regulations at 43 CFR 6224.1-1, prohibiting activities directly causing damage or injury to valuable coral communities unless a permit for the activity is first obtained. However, in a recent decision, United States v. Alexander , decided September 24, 1979, the U.S. Court of Appeals, Fifth Circuit, ruled that the authority of the OCSLA is confined to the promulgation of rules and regulations applicable to leasing operations on the OCS and 86 that, in the absence of a mineral lease operation in a given area, the Department of the Interior is unable to enforce any regulation issued pursuant to it. The case involved attempts to salvage a sunken vessel (presumably scuttled while transporting narcotics) on the Looe Key coral 'formation. The salvager damaged coral and was convicted in the District Court. This appeal challenged the authority of the regulation cited above and, as indicated, the Fifth Circuit reversed the conviction, stating "The provision (Section 5(a)) is not, as the Government would have it, an independent source of regulatory authority." This decision is controlling in the Fifth Circuit which, of course, includes Looe Key and the entire Gulf Coast, as well as the Atlantic Coast of Florida and Georgia. A rehearing has been denied and it appears that the Government will not seek review by the Supreme Court. 3. The Clean Water Act 33 U.S.C. 1251 et seq. Authority : Restore and maintain water quality. Section 301 prohibits the discharge of any pollutant into the waters of the contiguous zone on" the ocean from any point source other than a vessel 'without a permit from EPA. The only such discharge likely to occur at Looe Key, however, is a vessel discharge. Section 311 of the CWA does apply to vessels and prohibits the discharge of oil and hazardous substances in quantities which may be harmful as defined by EPA. The current list excludes, among other things, many items of trash and litter. Section 1322 regulates the discharge from marine sanitation devices but does not apply beyond the territorial sea (see regulations effective June 1, 1980). 4. Marine Protection, Research and Sanctuaries Act of 1972, Title I, 33 U.S.C. 1411 et . seq . (The Ocean Dumping Act) Authority : Prohibit the dumping of certain toxic materials into ocean waters and regulate the dumping of other materials into such waters. Section 101 prohibits the transportation from the U.S. of any material for the purpose of dumping it into waters without a permit from EPA (or the Corps in the case of dredge spoil disposal). EPA, under Section 1412(c) of this act, pre-selects sites or times at which certain materials may not be dumped and issues permits for the disposal of all materials, with the exception of dredge spoils, which consider the effects of the proposed dumping on marine ecosystems. At the present time, there are no pre-selected dump sites in or adjacent to the Looe Key area, 87 Permits for disposal of dredged materials are issued by COE, on the basis of EPA criteria for protection of human health and the marine environment. Permits have only been issued in Largo Sound and Key West. While the disposal of trash and various materials from vessels is not subject to EPA and COE authority, the agencies can regulate disposal of other waste materials in the vicinity of Looe Key. 5. The Endangered Species Act of 1973, 16 U.S.C. 1531 et. seq . (ESA) Authority : Prohibit the taking of listed endangered and threatened species and ensure that actions "authorized, funded or carried out by Federal agencies do not jeopardize species or critical habitat." The purposes of the act are to provide a means whereby the ecosystems upon which endangered and threatened species depend may be conserved and to provide a program for the conservation of such species. Although no listed endangered/threatened species have been identified yet at Looe Key, the area contains a number of species considered endangered or threatened by Florida. Furthermore, the area has been identified by the U.S. Fish and Wildlife Service as suitable habitat for the following listed endangered species. Atlantic Green Turtle Chelonia mydas mydas - All coastal and marine habitats. Atlantic Hawksbill Turtle Erethmochelys imbricata imbricata - Primary reef habitats. Atlantic Ridley Turtle Lepidochelys kempi - All coastal and marine habitats. 6. The Antiquities Act, 16 U,S.C. 1431 et seq, Under a recent court decision, the Antiquities Act, which provides that the Department of the Interior may designate and protect certain historically important sites, does not authorize such action in relation to antiquities located on the OCS. The Abandoned Property Act, 40 U.S.C. 310, is similarly limited. The National Historic Preservation Act, 16 U.S.C. 470 et seq ., offers protection for marine artifacts once listed but only with respect to Federal or Federally supported activities. The historic shipwreck located at Looe Key is not listed and, even if listed, would not be fully protected from private activities. C. Enforcement Agencies with Authority in the Federal Waters of the Looe Key Area 1 . U.S. Coast Guard The Coast Guard, as established in 1915, is a military service and a branch of the armed forces of the U S. Its overall authority, to enforce or assist in the enforcement of applicable Federal laws on and under the high seas and waters, comes from Title 14, USC 2. 88 Primary Duties: "The Coast Guard shall enforce or assist in the enforcement of all applicable Federal laws on and under the high seas and waters subject to the jurisdiction of the United States; shall administer laws and promulgate and enforce regulations for the promotion of safety of life and property on and under the high seas and waters subject to the jurisdiction of the United States covering all matters not specifically delegated by law to some other executive department; shall develop, establish, maintain, and operate, with due regard to the requirements of national defense, aids to maritime navigation, icebreaking facilities, and rescue facilities for the promotion of safety on, under, and over the high seas and waters subject to the jurisdiction of the United States; shall, pursuant to international agreements, develop, establish, maintain, and operate icebreaking facilities on, under, and over waters other than the high seas and waters subject to the jurisdiction of the United States; shall engage in oceanographic research on the high seas and in waters subject to the jurisdiction of the United States; and shall maintain a state of readiness to function as a specialized service in the Navy in time of war." The Florida Keys are part of the 7th U. S. Coast Guard District with headquarters in Miami, Florida. Group Key West, based in Key West, Florida, has the enforcement responsibility for the Florida Keys, including the Looe Key reef area. The extent to which the Coast Guard can provide effective enforcement of marine laws on the high seas depends on the number of personnel, boats and other equipment at their disposal and the complexity of the missions assigned to them. There are three Coast Guard Stations on the Keys; Key West, Marathon and Islamorada, with less than 75 personnel. Eighty percent of their missions deal with search and rescue operations. Their law enforcement resources are as follows: Key West: 2 41 ' boats - 21 personnel Marathon: 2 40' boats - 21 personnel several small boats Islamorada: 2 40' boats - 28 personnel In addition to search and rescue operations, their missions can include: Enforcement of Customs laws with respect to smuggling (primarily drugs); Enforcement of Immigration laws with respect to refugees; Establishing and maintaining aids to navigation in navigable waters and on the high seas; Environmental clean-up of toxic and hazardous substances in accordance with the Federal Water Pollution Control Act. 89 Without formal agreement and funding, the Coast Guard makes no scheduled patrols except for those undertaken as a part of their regular patrols. Distances between stations and the large territory to be covered makes these patrols intermittent and infrequent. (Lt. Cdr. Dennis, 1979) The Group Key West Coast Guard ranges along the entire coastline, with the number one enforcement activity, at the present time, being drug interdiction. 2. National Marine Fisheries Service, Division of Law Enforcement, Office of Fisheries Conservation and Management The NOAA/NMFS enforcement function originated in 1958 under the old Bureau of Commercial Fisheries, evolving from loosely coordinated regional programs responsible for enforcing international conventions, agreements, Federal wildlife statutes and regulations pertaining to certain species of fish, whales and fur seals. This function expanded in the late 1960's to meet the growing demand to control increased foreign fishing effort off the U. S. coast, including enforcement of the newly established Contiguous Fishery Zone(Bartlett Act). As more treaties, agreements and laws with substantial national consequences were implemented, the NMFS law enforcement program necessarily became more essential. Enforcement responsibility substantially increased with the passage of the Marine Mammal Protection Act of 1972 and the Endangered Species Act of 1973. The enforcement responsibilities delegated by the Secretary of Commerce to NOAA/NMFS are currently administered and carried out by an Enforcement Division in the Office of Fisheries Management (a staff function) and by five, separate, and independent regional law enforcement organizations (line function) operating under the direction and control of the respective Regional Directors. The headquarters enforcement organization in Washington, D.C. is responsible for establishing national enforcement policies and procedures but has no direct control over regional law enforcement organizations. The Florida Keys are part of the Eastern Enforcement Area of the NOAA/NMFS Southeast Law Enforcement region, extending from North Carolina to Key West and including Florida Bay. The Eastern Enforcement Area employs a Senior Resident Agent and one Agent on a temporary appointment in Miami. Their responsibilities include the enforcement of the Fisheries Conservation Manage- ment Act, the Marine Mammal Protection Act, the Endangered Species Act, and the Lacey and Black Bass Acts, (prohibiting the transport of materials/products of fish and wildlife, illegally obtained under other laws in interstate commerce). Their primary mission is to investigate and process civil/criminal vio- lations of the laws mentioned above. The Florida Marine Patrol and the U.S. Coast Guard patrol the waters under Cooperative Agreements entered into by the Regional Director of the NOAA/NMFS Law Enforcement Office in the S.E. region. This alleviates the problem of the lack of ceiling points necessary to hire additional Agents for patrol work. There is a Basic Agreement with the State of Florida, in effect since July 1, 1975, signed by the Department of Commerce/NOAA for Law Enforcement 90 Services under the Marine Mammal Protection Act of 1972. The State law enforcement officers are designated by the Regional Director, NMFS, to act as Federal law enforcement agents in the enforcement of the act within the State's jurisdiction or against its own citizens anywhere. There is a new Cooperative Enforcement Agreement pending between the U.S. Department of Commerce, NOAA/NMFS, the U.S. Coast Guard and the State Depart- ment of Natural Resources Florida Marine Patrol for law enforcement services under the Fishery Conservation and Management Act, deputizing State Officers as Federal Enforcement Agents to enforce the act within the Fishery Conser- vation Zone adjacent to the State and within the boundaries of the State and providing U.S. Coast Guard assistance to the State, should it be available. In exchange, the Department of Commerce, for $78,000, is to provide the State with enhanced communication and data processing capabilities. The effectiveness of this enforcement arm of the NMFS is limited by lack of staff necessary to patrol the ocean waters within the jurisdiction of the FCMA, Endangered Species Act and the Marine Mammal Protection Act and their forced reliance on other agencies (Florida Marine Patrol and U.S. Coast Guard). The only law enforcement responsibility in NOAA outside of NMFS statutory responsibility is that of enforcing Marine Sanctuary regulations. However, the only two designated Marine Sanctuaries are enforced by agencies outside of Commerce under contract to NOAA/Commerce (Monitor and Key Largo), at the present time. 3. Florida Marine Patrol The Florida Marine Patrol, law enforcement arm of the State Department of Natural Resources, has an office and staff (25) at Marathon in Monroe County. The Monroe County Marine Patrol has the responsibility for enforcing all State regulations in State waters on both sides of the Keys; NMFS regu- lations for marine mammals and NMFS/Fish and Wildlife regulations for endan- gered and threatened species in Florida Keys State waters; regulations for endangered and threatened species in Federal waters and regulations for the Marine Mammal Protection Act where its own citizens are involved anywhere. Florida Marine Patrol agents are also uniformed officers of the State of Florida and must enforce all State laws, both on land and in the water. The State waters of the Florida Keys include the 3 mile area on both sides of the Keys. The USCG and the Patrol have verbal agreements to notify one another of possible State/Federal violations. The extent of Florida Marine Patrol effectiveness in both its statutory and delegated responsibilities depends on adequate staffing and equipment. Informal cooperation between the State enforcement officers and the Coast Guard has increased the effectiveness of both agencies. 91 CHAPTER FOUR ENVIRONMENTAL CONSEQUENCES I. INTRODUCTION In order to discuss the potential environmental, social and economic consequences of various boundary and regulatory alternatives considered by NOAA, human activities were grouped, as follows: Coral collecting Commercial fishing Tropical specimen collecting (tropical fish and invertebrates) Spearfishing Anchoring Snorkel ing, SCUBA diving Removal of Historic and Cultural Resources Discharges Regulatory alternatives analyzed for each of these activities range from the legal status quo, i.e. no proposed sanctuary regulations to the banning of the activity within the sanctuary boundary recommended. The discussion of the status quo alternative for each activity contains a description of the existing environmental, economic, and social conditions. Economic analysis of the regulatory alternatives centers on economic impacts associated with the 5 sq nm boundary alternative. Boundary Alternative #2 was selected for detailed analysis as the preferred alternative because it encompasses the five ecological elements at Looe Key and satisfies the Sanctuary Program objectives. 93 II. Boundary Alternatives (see Figure 7) Boundary Alternative Approx. Area Ecological Zones (See Fig. 4) #1 1 nm sq Fore Reef, portions of the Reef Flat, Deep Reef, Patch Reef #2 (preferred 5 sq nm Fore Reef, Reef Flat, Deep Reef, alternative) Patch Reef, Deep Ridge #3 10 sq nm All 5 above zones plus additional Patch Reef areas east and west of the reef A. Boundary Alternative #1 (1 nmi sq 3.5 sq km) This one nautical mile square alternative corresponds to the Habitat Areai of Particular Concern (HAPC) at Looe Key being proposed in the FMP for Coral and Coral Reef Resources by the Gulf of Mexico and South Atlantic Fishery Management Councils (for specific aspects of the plan see Chapter 3, Status Quo). The coordinates for this boundary alternative are: a. 24% 33.4' North b. 81% 25' West d. 24% 32.2' N c. 81% 25' W > 24% 33.4' N 81% 24' W 24% 32.2' N 81% 24' W This one nautical mile square sanctuary with the center approximately in the middle of the Looe Key Reef Flat would encompass two reef zones of the Looe Key ecological system: the Reef Flat and the Fore Reef. At the southern margin it would contain a narrow band of the shallowest part of the Deep Reef and at the northern rim some wery small reef outcrops belonging to the Patch Reef zone. These additions, however, are so limited in area as to be negl igible. Boundary alternative #1 would protect the best developed and unique coral formation of the entire Looe Key reef system from physical impact. The Fore Reef is a spur and groove system about 1500 X 350 meters wide, extending from the low tide mark down to a little over 9m depth (Antonius, 1980). 94 95 S3 < :Sw © £> u CO Ed fcP z 5 rtwcs O < f3S ca a i CO H H Q 5 s < Q OE K ARINE ALT < fe CS oss H o J~?£ m J Q< a fc, 63Q 2§ z £§ 5 2 2 O ' i i o s» CS 03 o < D u e < H g S s -fa, y H g|2£ ■<<<< szr ass <« oee §zzz 333 | gig = .558 £|| £22 EES OC9C5 sss It contains shallow, as well as intermediate, water-depth coral communities but with the obvious lack of a number of species one might expect to occur here. While the shallow "reef-crest-part" of the Fore Reef shows extensive Mi 1 1 epora-Zoanthara fields, the deeper "reef-fingerpart" is a system of alternating sand valleys and several meter-high coral ridges of massive coral growth forms and is populated by the greatest numbers and species diversity of fish in the five zones. The Reef Flat borders the Fore Reef to the north, a sand-seagrass area about one quarter of a square kilometer in size and an average of 1 .5 m deep. It is also an important area offering a large recreational area of sandy reef top, for inexperienced swimmers or families with children. Although the Reef Flat provides little cover and has the lowest species diversity of all the zones, it is an important feeding area for fish of the Fore Reef zone, an integral part of the Looe Key Coral Reef system and yery important to a seg- ment of the recreational population. The channels between the fingers of coral on the Fore Reef are yery important to fish migrations from one zone to the other (Zieman & Roblee 1979), and provide essential access to the reef for pelagic species, such as mackerel. Although parts of the deeper sandy channels would be covered by the 1 sq nm alternative, the more distant parts of the channels would not be protected at all to the east and west of the Fore Reef, and Deep Reef Ridge would remain virtually unprotected. Enforcement of 1 nm sq area would be unlikely as the area is too small for accurate boundary detection, considering the size boat that would be used (Russell, Coast Guard personal communication, 1979). Citing of violators in this alternative could also be difficult. Due to its limited boundaries, violators would have sufficient time to escape as law enforcement officers approach the sanctuary. In addition there is a question of the wisdom of protecting part but not all of a unit or ecological system such as Looe Key. User activities beyond the 1 nm sq alternative, uncontrolled by the sanctuary manager, could under- mine the careful management within the sanctuary. Finally, though the physical aspects of the spur and groove system could possibly be protected with this boundary, that is only one of the sanctuary program objectives. B. Boundary Alternative #2 - Preferred Alternative This alternative covers a 5 sq nm (17 sq km) area, the coordinates of which are: a. 24°, 34' N b. 24°, 34.2' N 81°, 25.9' W 81°, 23.3' W c. 24°, 31.6' N d. 24°, 32.3' N 81°, 25.9' W 81°, 23.3' W 96 The 5 sq nm alternative encompasses all five ecological zones: Patch Reef; Reef Flat; Fore Reef; Deep Reef and Deep Ridge. It also covers an extension of the Fore Reef to the east discovered only recently as part of the survey work for this EIS. The Patch Reef zone is a relatively shallow flat bottom area, covered with extensive turtle grass manatee grass. Interspersed among the sea- grass beds are numerous patch reefs with wery little profile. The Patch Reefs within this zone are usually dominated by densely growing, large oct- ocorals. The species diversity of octocorals on the Patch Reef is greater than that of the Fore Reef and certain octocorals exist only on the Patch Reef. The scattered stony corals reach only moderate size, but nevertheless give the Patch Reefs enough structure to provide shelter for fishes and invertebrates. In addition, the naturally rare pillar coral ( Dendrogyra cylindrus ) is more likely to be found in the Patch Reef area than at the Fore Reef. The significance of the Patch Reef zone as a shelter for a variety of finfish and shellfish has been pointed out in a number of publications (e.g., Zieman & Roblee, 1979). Without the protection of the interspersed Patch Reefs, these animals would be unable to use the surrounding seagrass beds as feeding grounds. This zone, together with the even shallower Reef Flat, are Looe Key's nursery for juvenile fishes. In addition, the extensive seagrass beds of both zones constitute the feeding ground for many deep- water fishes migrating to these areas at night. The Fore Reef provides the deep sheltered channels for these migrations from the Deep Reef to the shallow reef zones, while the much wider channels on either side of the Fore Reef provide access for pelagic species. The Deep Reef today still harbors territorial fishes such as groupers which, given protection and time, may repopulate the apparently over-fished Fore Reef zone. This could also be the case for conspicuously missing corals which might, in time, repopulate the Fore Reef from the stock that live on the Deep Reef. The main part of the Deep Reef exhibits a coral community of intermediate to deepwater species, with some coral species growing abundantly here that no longer occur on the Fore Reef. The Deep Reef, on the seaward side, is a slope of increasing steepness, ending in a small dropoff to about 25 to 35 m depth. Numerous surge channels with a profile of up to 1 .5 m provide habitat for territorial reef animals such as grouper and lobster. Since the 5 sq nm alternative contains portions of the Deep Ridge as well as the main four reef zones of Looe Key, it forms a representative "slice of the ecological pie" through the reef tract in this area. Though Looe Key alone represents a small segment of the Florida reef tract, it is possible that by focusing intensive management on smaller discrete units such as Biscayne National Park, Key Largo National Marine Sanctuary, John Pennekamp State Park, Fort Jefferson National Park, and Looe Key, we can protect enough of the reef tract to achieve a measure of success in insuring long-term viability. In addition, these discrete pro- tected areas are tied together by the broader conservation measures afforded 97 under the proposed joint Gulf and Coral Reef Resources Fishery Management Plan. All of these entities, together with heightened awareness of the need for close cooperative management strategies, should provide an in- creased level of protection. The 5 sq nm boundary alternative would create a sanctuary containing representation components of each reef zone and establish a sanctuary that protects a reef tract system rather than one component. This approach is consistent with the goals and objectives for establishing a sanctuary at Looe Key. A sanctuary with this boundary would include all of the reefal zones and be "systematic" in scope providing for the maintenance and enhancement of long-term productivity of an entire ecological unit. This boundary alter- native would provide a geographic basis for achieving the sanctuary goals: ° To maintain, protect and enhance the quality of the natural, biological, aesthetic and cultural resources of Looe Key Reef system; ° To promote and stimulate marine research efforts directed towards identification and analysis of marine ecological interrelationships. ° To enhance public awareness of the functions of the Looe Key coral reef system. C. Boundary Alternative #3 (10 sq nm 34 sq km) This alternative includes an area of 10 sq nm (34 sq km) the coordinates of which are: a. 24°, 33. 3 1 N b. 24°, 34.3' N c. 24°, 34.2' N 81°, 27.5' W 81°, 25.4' W 81°, 23.3' W do 24°, 34.7' N e. 24°, 31.3' N f. 24°, 32.5' N 81°, 21.3' W 81°, 27.5' W 81°, 21.3' W This area contains the entire 5 sq nm boundary alternative as well as considerable portions of territory to the east and west (Fig. 4). Informa- tion from actual field studies on the areas east and west of the Looe Key reef itself was not readily available. The northern part of these additional areas can generally be regarded as extensions of the Patch Reef Zone, a morpho- logical feature that can be found along the entire chain of the Florida Keys in shallow water and at a certain distance offshore. The southern part of these additional areas, however, does not contain any significant reef. Instead it contains a slope that consists mainly of sand bottom. Whether the deepest parts include any type of coral community, such as the Deep Reef, is not known at present, but the probability seems low. Enlarging the sanctuary area to 10 square nautical miles could increase the effectiveness of enforcement by making it more difficult for violators to escape undetected before being caught. 98 The Onsite Survey of Looe Key indicates that local fishermen depend on the 5 square nautical mile sanctuary proposal area for approxi- mately one-third of their catch and the area beyond the 5 square nautical mile boundary for approximately two-thirds of their catch. Therefore posing restrictions on commercial fishing within a 10 sq nmi area would likely cause considerable economic hardship on local long-term commercial fishermen and yet not provide that great an increase in the degree of protection of the reef systems. III. Environmental Consequences of Proposed Regulatory Alternatives A. Alternatives Concerning Coral Collecting. 1 . Status Quo: Unregulated taking ,of coral under all boundary alternatives. The taking of coral in Looe Key is presently unregulated. State regulations do not apply in waters beyond the territorial sea. BLM/Interior regulations previously controlling the harvesting of corals are no longer enforceable in the Looe Key Reef area (see above). The FMP for Coral and Coral Reef Resources is still in the draft stage and the environmental impact statement has not yet been completed. The final plan will not likely be implemented before January, 1981 (GMFMC). Direct observations (Davidson, 1979) indicate that souvenir coral collecting is an ongoing practice today, and probably the most serious drain of the reef's coral resources. The absence of certain species in areas of the reef that provide accessible, suitable habitat provides circumstantial evidence of the harvesting of these attractive growth forms. There is a strong probability that small finger-like growth forms, such as Madracis , Porites and Oculina species and especially the beautiful flower coral Eusmilia fasti giata, which occur on the Deep Reef but not on the more accessible Fore Reef, have been exterminated on the Fore Reef by collectors. A larger type of flower coral, Mussa angulosa , is also abundant on the Deep Reef, but rather rare on the Fore Reef. It does occur somewhat more frequently in the Patch Reef zone, which may reflect a difference in visitor-related collecting pressure. One naturally rare species, the pillar coral Dendrogyra cyl i rxirus , has almost been exterminated by collectors in the entire Florida reef tract, including Looe Key. Without regulatory protection of existing coral assemblages, remaining populations of these scarce corals in the more accessible areas of the reef could be eliminated* Collecting pressures could then shift to other, less desirable species and to those populations which persist on the Deep Reef and less frequented Patch Reefs. A significant degree of commercial collecting does not occur here any longer (Causey, personal communication, 1979). The long term consequences of depletion and removal of entire species populations has been insufficiently studied, but is considered by most scientists to be detrimental to the reef ecosystem. The current draft of the FMP for Coral and Coral Reef Resources proposes to approve for harvest by permit limited quantities of certain 99 soft coral species and to issue coral collecting permits for hard and soft coral for scientific and educational purposes. It proposes to prohibit all taking of corals within the suggested 1 sq nm Habitat Area of Particular Concern. The perpetuation of the status quo would allow all coral collecting to continue unless and until the FMP is approved and implemented. This could result in adverse ecological consequences to the reef system and to those valuable commercial and recreational species depending on it for habitat. 2. Prohibit the collection or possession of all coral, living or dead within the sanctuary under all boundary alternatives but permit the collection of coral for scientific and educational purposes: PREFERRED ALTERNATIVE . This alternative would protect present and future coral resources while permitting coral specimen collecting for educational and scientific purposes under permit from NOAA. Since the current level of commercial coral collec- ting is insignificant in the proposal area the economic impact of this alternative will be negligible. The proposed restriction is more stringent than that being considered in the Coral FMP in that the latter permits limited harvest of soft coral outside the 1 nm sq HAPC. NOAA personnel would be needed to review the permits required by this alternative thereby increasing the staff workload and detracting from other duties. This alternative would also increase the responsibilities of enforce- ment personnel . A regulation similar to this proposed for the sanctuary is presently in force in John Pennekamp State Park and in the Key Largo Marine Sanctuary. As discussed in Chapter Three, the inclusion of a provision prohibiting posses- sion of coral, dead or alive, within the proposed boundaries has resulted in few enforcement difficulties within these two protected areas. On the other hand, Florida State law, applicable in the territorial sea, does not prohibit possession of cleaned or cured specimens of sea fans, hard and soft corals or fire coral and enforcement difficulty has arisen because these organisms can be quickly killed and bleached on board ship before enforcement agents can board for inspection (Tingley, personal communication, 1979). Protecting the Looe Key coral reef system by prohibiting the taking of coral except for scientific and educational purposes will: ° maintain the coral as an important producer of sand, a renewable resource which comes from dead coral, ° maintain the high primary productivity which produces oxygen for the support of organisms living in the vicinity; maintain these reefs as gene pools for future colonization of adjacent coral areas; 100 ° preserve a reef, which, if seriously degraded, might not recover since today's environmental conditions may be different from those existing at its inception; ° provide the structural foundations for future coral growth; pose limited enforcement difficulties; ° maintain the reef habitat thereby maximizing associated recreational benefits such as quality of diving, and fishing. Since insignificant commercial collecting occurs within the boundaries of the sanctuary proposal, this regulation will not have an economic impact. OCZM will work closely with the Fishery Management Councils to insure as nearly as possible compatible non-duplicative permitting procedures. If Looe Key becomes a sanctuary and if NOAA consultation with the Council takes all its concerns into account, the sanctuary permit could be the only one required. 3. Prohibit the collection or possession within the sanctuary of all coral, living or dead, under all boundary alternatives . This alternative would fully protect the coral reef system at Looe Key from coral collecting and would not place an additional administrative burden on the Sanctuary Programs Office (SPO) staff. However, one of the proposed sanctuary objectives is to promote research and study of the natural resources of Looe Key and a prohibition of this type might discourage valuable studies requiring the taking or study in the field of small numbers of specimens. 101 B. Alternatives Concerning Commercial Fishing Environmental consequences of wire trapping, lobster trapping, net and hook and line fishing were analyzed to determine whether or not proposed restrictions were warranted. Available data do not support controls on net and hook and line fishing at this time (see Chapter 2, VI). The following specific alternatives were considered for wire traD usage and lobster trapping. p 1. Regulatory Alternatives for Wire Trap Fishing a. Status quo : Unrestricted use of wire trap s within all boundary alternatives . " ~ ~ Recently wire trap fishing has become a highly controversial and emotional issue. Unfortunately very little documented evidence exists regarding actual or potential environmental, sociological and economic impacts of trap usage. Both the draft FMP for snapper-grouper resources and the first quarterly report (November 1979 - January 1980) on the wire trap fishery Zt£u + J01nt \, b y. the r F1 e rida Apartment of Natural Resources (FDNR) and the National Marine Fisheries Service 'NMFS) offer information relating to wire fish trapping in the Florida Keys. The latter report, the most oTthe 12 month'study 31 ' 13516 ' repreSentS data from the first 3 month s ■ 4-u- At P resent > no regulations govern the use of wire fish traps in this area. However, several management measures on the use of tra D s are proposed in the draft FMP for snapper-grouper resources, including U traps will have degradeable panels of appropriate size (at least as large as the entry ports) or degradeable door fasteners; 2) traps will have mesh no smaller than 1x2 inches or 1.5 inch hexagonal (3) trap and buoys must be identified with the boat of the owner by a color code- 4) a person must not fish traps other than his own without written authorization of the owner; (5) pulling traps is prohibited between the period one hour after sunset and one hour before sunrise; (6) traps may not be larger than 54 cubic feet; and (7) the use of fish trin^m ho prohibited shoreward of the 100 foot contour M asure 2 ^ 6 and are losroT-ahosrl^nl-f ^ P ^° Se ° f the d ^adeable panel 'is U J pee t lost or ghost traps from continuing to capture fish. Specification of a Th lT\rt h M o S - Z Vl intended t0 provide f0 " escapement of juvenile fish The draft FMP includes that a reasonable limitation on the size of traos and on the areas where they can be deployed is warranted at this time to lessen user group conflicts and until the biological, social and economic \T^L°l ^ 9eaP "" be m ° re ful1 * evaluated! Me s re 3, 4 and a e If thf il° dlscoura 9e Poaching and theft and will improve the enforceability of the other management measures pertaining to the trap fishery. in Monroe UndTJl JlUV^- 1 " St 1 uarter ]y report, wire fish trapping in Monroe (and Collier) Counties is a popular fishing method. Althouah it has been used intermittently since the Depression, the use of wire trans Grant C °Th:? ial flSh " 9 is datively new/ According to the Flo ida Sea Grant, their general acceptance in the Florida Keys started in 1976-77. 103 The traps are constructed of vinyl -covered welded wire mesh, usually with openings of l"x2" or larger. The FDNR report and draft Reef Fish Plan indicate that traps typically have overall dimensions of 2 , x3'x4' (FDNR, 1980) to 3'x6'x3' with a base of 18 square feet. On the other hand, the Marine Wilderness Society in Florida has reported that wire traps can cover from 25 square feet to as much as 40 square feet of bottom area. Fish traps commercially available in the South Florida area can be purchased with as much as 120 cubic feet in volume. The draft Reef Fish FMP proposes to restrict all fish traps fished within the FCZ to 54 cubic feet or less in volume. The draft snapper-grouper FMP also indicates that traps are typically set at depths of less than 30 to 150 feet (9.14m-45.75m). The first quar- terly report of the Florida DNR substantiates this and indicates baited traps are individually buoyed and normally placed 100' -150' apart in water from 25' to 150' deep. Some of the small, shallow water operators can visually select the area to place each trap. Deeper water fishermen rely on fathometers to locate "good bottom" and then deploy their traps in a line adjacent to the relief. Most fishermen in the Lower Keys and Tortugas fish in depths of 80' to 150'. Others report that the normal fishing depth is between five and 45 m (Sylvester and Dammann, 1972; Monro, 1974) in the shallow reef areas of Florida. The FDNR report observes that the most desirable bottom for setting traps has various ledges with 2 '-4' relief with live gorgonians, sponges, and heads of hard coral and which extend in any one direction for 100' or more. A habitat of this type is fished heavily for 2-3 days, and then the traps are moved to some other likely spot. If this ledge area was a good producer, the fishermen will return two weeks later and again fish it for 2-3 days. There are three areas in the Florida Keys that are supporting fish traps continuously, at least for the first quarter of this study. These areas are: the area immediately surrounding Sombrero Light off Boot Key (Middle Keys), the area adjacent to the whistle buoy south of Loggerhead Light (Dry Tortugas), and the area adjacent to the Big Pine shoals off Big Pine Key (Lower Keys). Conclusive data on the number of fishermen in the area that use traps and the extent of the increasing use of traps is not available. During the first quarterly report period, FDNR reports that the wire trap fishery in Monroe County involves approximately 43 boats, with the crew consisting normally of a captain/owner and a single mate. Several small boat, nearshore operations were conducted by a captain only. Twenty-two of the 43 captain/owners are part-time trappers who also fish lobster or crab traps or engage in other types of fishing activity. Seven of these trappers engage in wire fish trapping only during the summer when the lobster and stone crab seasons are closed. These 43 fishermen utilized an estimated 998 traps (an average of 23/boat). National Marine Fisheries Service (NMFS) estimates are greater than the figures obtained by FDNR. NMFS estimates that in Monroe County 8,000 traps maximum were used by fishermen in 1978 and that 300 to 350 104 vessels were involved. Data obtained during the Onsite Survey revealed that in 1978 nearly 35% of commercial fish landings in the 5 square nautical mile area were from wire traps (see Appendix C, Table 3). According to Florida DNR, fishermen in the Florida Keys trap fishery operate vessels that range from 34 ft. wooden vessels constructed in Cuba of jubilla wood to a modern 75 ft. steel hull with freezers. Most vessels have hydraulic pot haulers, fathometers and either loran or radar, although several of the smaller vessels have neither pot haulers nor any positioning device. Since fish traps are normally placed on or adjacent to the ledges of out croppings of 2 '-4' relief, wire trap fishermen come in close contact with other users who are competing for this limited bottom area. For example, sport trollers' rigs become entangled in trap buoys, and bottom fishermen lose gear by becoming entangled with the traps. Physical damage to coral species has occurred when these traps have been dropped on corals, dragged across the bottom during retrieval and tossed about during rough weather (personal communication, Davidson, 1979). Sport divers also report that traps on shallow reefs capture and kill excessive amounts of tropical reef fish and at the same time destroy living coral. Fish trappers on the other hand, have stated that their traps are not set on the tops of biologically productive reliefs, but adjacent to these formations. These fishermen also reported that the majority of reef tropicals and undersized groupers and snappers are re- turned to the water immediately with little detrimental effect. Traps lost by separation of the buoy line from the trap either by vandals, propellors or storms are called ghost traps and continue fish- ing for unknown periods of time. The number of lost traps per fisherman per year ranges from 30% to as high as 200% of the total of traps being fished (FDNR, 1980). One diver on Big Pine Key reports that on a recent dive around Big Pine shoals, several ghost traps were in his field of vision at any given time as he progressed down the reef in 50 feet of water. Further research needs to be done to determine the numbers of ghost traps, their life span, and their ability to catch and retain fish (FDNR, 1980). The FDNR study, also observed that less than 10% of the total fish caught by wire traps were dead or injured. The most commonly found dead fish were barracudas and large jacks. The most common trap-caused injury was the abrasion of the snout followed by gas embolism which is caused by the rapid ascent through the water column. The report did not measure, however, how many and what species of smaller fish were caught and eaten during the period of captivity. As part of this study captured species were categorized as target or non-target depending on whether or not the fish were landed for human consumption. Primary target species consisted of large (3.0 lb. whole) black, red, Nassau, yellowfin, scamp, gag and hind groupers; button, 105 yellowtail, lane, silk, dog and schoolmaster snappers that were larger than one pound gutted; hogfish larger than one pound; jolthead and knobby porgies larger than one pound; margate, black margate and sailor's choice grunts larger than one pound. Small groupers and snappers were normally returned to the water during this period of observation. Non-target species were considered to be tangs, angels, butterflies, parrots, wrasses other than hogfish, triggers, files and trunk fish and were discarded by most fishermen. During the three months of this project, the investigators observed the capture of 1568 target fishes of 29 species and 136 spiny lobster. These amount to 61.4% of the total number (2552) and 72.9% of the total weight (5164.6 lbs) of individuals of 48 species and accounted for 38.6% of the total number and 27.1% of the total weight of individuals sampled. The 10 most abundant species (3 groupers, 1 snapper, 2 porgies, 2 grunts, 1 angel, 1 tang) accounted for 58.7% of the total number of all individuals and 61.02% of the total weight of all individuals. Groupers (358 individuals weighing 2958.23 lbs) account for 14.0% of total number of all individuals sampled and 57.3% of total weight of all individuals sampled. The study by the Florida DNR and the NMFS hopes to help resolve the controversies surrounding wire trap use and facilitate management decisions on the fish trap industry. In the meantime often cited disadvantages include: (1) financial success depends entirely upon unstable market demands, supply, and price; (2) high level of trap efficiency can interfere with the catch per unit effort of recreational and commercial hook and line fishing; (3) intense trapping efforts in isolated reef areas may radically change fish species composition and abundance; (4) trap dimensions (mesh size, entrance funnel size, orientation and location, and trap volume) are not always species specific and are selective for a wide variety of reef fish, including juveniles, trash or forage species and non-food tropicals (the draft Reef Fish FMP, however states that "...evidence suggests that traps are generally selective and can be set so they are highly selective"); (5) Coral and coral reef resources can be physically damaged when traps are dragged across the reef surface during retrieval or when displaced by waves and currents; (6) traps are easily lost due to theft, bad weather and vessel passage severing buoy lines; these traps, popularly known as "ghost" or "drowned" traps, continue fishing indefiniteTy unless retrieved by divers or destroyed by corrosion or large predators; 106 (7) unnecessary trap-related mortalities occur from cannibalism or starvation in side fished and "ghost" traps and from gas embolisms caused by rapid ascent from depths during retrieval; (8) traps containing large numbers of stressed fish or in the case of "ghost" traps, mutiliated fish or skeletal remains, are unsightly and detract from a SCUBA diver's aesthetic experience. Specific observations on the use of traps in tropical areas outside Florida include the following: "If the use of fish traps becomes a significant fishing method for harvesting reef fish in the Gulf of Mexico, there is a possibility of seriously overfishing stocks of reef fish, particularly in the nearshore waters unless effort by other gear is reduced" (Draft Reef Fish FMP); "In Jamaica, where the intensity of fishing on the nearshore reefs appears to be higher than any other island in the Caribbean, the abundance of fishes on the reef is remarkably low. We are working on the hypothesis that the low density of fishes is a direct consequence of exploitation with the small mesh traps" (Munro, Reeson & Graut, 1971). By contrast, often cited advantages of wire trap use include observations that they: (1) are inexpensive, easy to build and repair, and require little maintenance; (2) require a minimum of effort once set, allowing fishermen to pursue other interests; (3) can be used in areas where irregular bottom relief precludes the use of trawls or nets; (4) are successful for fish not easily taken by other methods; and (5) are an important and efficient research and resource assessment tool. In summary, the continued use of wire fish traps within the sanctuary could, according to studies and observations in other areas, seriously deplete reef fish stocks through overfishing and incidental bycatch, thereby reducing species richness and fish populations in the Looe Key coral reef ecological system (Stevenson, 1977; Thompson and Munro, 1974). Furthermore, according to the SAFMC, snapper/grouper resources may be presently overfished unless regulation and management occur for these already stressed reef fish stocks. Unregulated use of wire fish traps within the sanctuary could impair recreational value, depriving visitors of the opportunity to enjoy an area of great species diversity. Underwater visitor sightings of wire traps on the sea floor containing large amounts of fish will also detract from the natural aesthetics of a sanctuary and may discourage visitor use. It will be several months before the snapper-grouper FMP becomes public, and changes in proposed management measures may occur as a result of public review. Close coordination will continue throughout the process between the SAFMC and OCZM. 107 b. Prohibit wire fish traps on the Fore Reef and Reef Flat (Boundary Alternative #1) but allow them in the Patch Reef, Deep Reef and Deep" Ridge zones alternatives outside 1 sq nm (Boundary Alternatives #2 & #3) This alternative would protect the Fore Reef spur and groove system from physical damage from traps and would maintain the Reef Flat as a suitable recreational area for snorkelers and inexperienced divers. It would enhance the superior recreational value of the 1 sq nm boundary alternative by eliminating wire fish traps from the ocean floor. However, ecological damage to the reef system from overfishing and incidental bycatch of non-commercial species would not be prevented. Due to the constant movement, back and forth, of fish between the Deep Reef and Ridge through Fore Reef channels to the Patch Reefs to feed, a 1 sq nm ban of wire traps in the Fore Reef and Reef Flat would not effectively protect fish populations at Looe Key from depletion. Similarly this alternative would not protect against damage from traps and anchoring to Deep Reef and Deep Ridge living coral assemblages which consist of a rich variety of stony coral, octocoral , sponges and types of coral no longer found on the Fore Reef. Although the location of wire fish traps varies and largely depends on where the fish are running, local residents interviewed during the onsite survey stated that most trapping occurs seaward of the Fore Reef and outside of the 1 sq nm alternative. Fishermen avoid the spur and groove system of the Fore Reef and the shallowness of the Reef Flat to avoid hull damage. Therefore, this alternative is not likely to have a substantial adverse economic effect on Looe Key wire trap fishermen. c. Prohibit wire fish traps within the 5 sq nm sanctuary (Boundary Alternative #2 and #3). PREFERRED ALTERNATl"vT T^ This alternative would prevent both physical and ecological damage from traps to the coral formations and resident fish species. Fishermen, although prohibited from laying traps within the 5 sq nm area, could continue to utilize the area seaward of the reef beyond approximately 140 feet and those areas beside Looe Key, along the outer reef tract. This proposed regulation is slightly more restrictive than that presently under consideration in the Draft Snapper-Grouper FMP which includes a proposed prohibition out to the 100 foot contour south of Cape Canaveral; the sanctuary prohibition would extend to the proposed boundary at approximately the 140 foot contour. The prohibition would probably not substantially affect the catch of mackerel normally found in the "blue water" environment seaward of the reef. How much this restriction could reduce the catch of yellow- tail, mangrove and mutton snapper, and grouper by Looe Key fishermen cannot be forecast. On the other hand, it can be stated that they would be denied the value of the catch currently taken from this area which amounts to about $109,000 or $3,900 per boat per year (Appendix C, Table 2). 108 The Looe Key Onsite Survey indicated there were other zones where wire fish traps are used by Looe Key fishermen. It is not definite that the loss of fishing grounds in the five sq nm alternative could not eventually be either partially or completely offset by setting more traps in adjacent areas or moving to other localities to fish. However, learning new areas takes time and there would be at least a temporary reduction in fish catch and an accompanying economic loss while fishermen located and became familiar with new fishing grounds. Use of wire fish traps is prohibited within the Key Largo Marine Sanctuary because they indiscriminately catch and kill large numbers of tropical fish species (personal communication, Gillen, 1979). Reducing the population of tropical fish by the use of wire fish traps can diminish its delicate balance, creating unnecessary additional stress to this fragile ecosystem (Stevenson, 1978). Most visitors to the marine sanctuary depend on boundary market buoys and other landmarks to determine their position within the sanctuary. They do not visually carry sophisticated depth sounding equipment aboard their small pleasure boats and would have difficulty tracking several differing boundary restrictions. Therefore, for regulations to be realistic and understandable to the general public, they must be consistent throughout the sanctuary area and unchanging with respect to depth. Therefore, this alternative would extend the prohibition on wire trap use throughout the proposal area to the 140 foot depth and thus beyond the 100 foot depth proposed in the Snapper- Grouper FMP. 109 FIGURE 8 CORE TRAPEZOID AREA SCALE: 1" = 3000' 1" = .49 nmi 1" = .91km 8I 24'W 24°28N Location of the Looe Key HAPC, as measured onto the contours of NOAA National Ocean Survey Chart 11445. Square measures 1.852km (1 nmi) on each side with a center at the asterisk. The LORAN-C readings for the four points of the trapezoid are listed below. 1 NW 7980-W-13973.7, 7930-Y-43532.7 2 SW 7980-W-13973.4, 7980-Y-43532.4 3 NE 7930-W- 13975.0, 7930-Y-43530.1 4 SE 7980-W-13975.4, 7 930- Y- 4352 7. 7 110 2. Regulatory Alternatives Affecting Lobster Trapping. a. Status quo: Unrestricted fishing for spiny lobster, within all boundary alternatives. The survey of fishing activity in Looe Key disclosed that approximately 58,000 lbs. of lobster were caught in the Looe Key 5 square nautical mile sanctuary boundary alternative by 25 fishermen in 1978 (see Appendix C, Table 4.) The catch was primarily in areas other than the Fore Reef. Lobster traps are generally set along the Florida reef tract, according to the season. In early fall, at the beginning of the State allowable harvest season, pots are numerous in the patch reef areas close to shore. According to local fishermen, lobsters begin migrating in October and November to cooler, deeper water. Pots are then placed in and seaward of the reef tract (Armitt, 1979). At the present time, there are no promulgated regulations to control the impacts of trapping spiny lobster in Federal waters. The GMFMC has a Spiny Lobster Plan under consideration because the fishery, both commercially and recreational ly, is particularly active in Florida. The plan includes proposed management measures restricting, among other things, size, season and gear. Proposed restrictions are almost identical to State regulations (for details see Chapter Three). In addition the joint SAFMC and GMFMC Coral and Coral Reef Resources FMP now in preparation proposes to prohibit potting within the core trapezoidal area of the HAPC (see Chapter Three). There is considerable disagreement among biologists, commercial fishermen and conservationists as to the behavior of the spiny lobster. National Park Service (NPS) scientists (managers of nearly 100,000 acres of coral reef adult lobster habitat) have found that (1) adult lobsters at Ft. Jefferson National Monument are primarily resident species (lobsters tagged and released did not move outside a 10 km area at Dry Tortugas in 104 weeks); (2) one single 8 months open season for recreational lobster fishing can deplete a large resident population of juvenile and adult lobster by up to 50%, even with an enforced harvest limit of 2 lobsters per person per day; (3) 1 year of complete prohibition of both recreational & commercial fishing can restore an area to approximately 78% of its pre-harvest level and increase the lair occupancy rate to 71% after 16 months of post harvest protection; and (4) there are inherent conflicts between fishery interests of promoting harvests and NPS management objectives that emphasize preservation of species diversity. Ill Marine biologist Gary Davis at Ft. Jefferson points out in "Fishery Harvest in an Underwater Park": "Community structure, and therefore species richness, is determined by species interactions as well as environmental conditions and will reflect alterations in the abundance of individual species, particularly abundant high-level predators. P. argus is such a predator. The pre-harvest, natural standing crop of P. argus was conservatively estimated from visual sightings at 58.3 kg per hectare of diurnal lobster habitat at Dry Tortugas. Mark and recapture efforts indicated that this figure may represent only 30 to 40 percent of the actual biomass in the massive coral reef complexes where there were numerous hidden caves and narrow crevasses in which lobsters were probably undetected during diver surveys. The total standing crop of coral reef carnivores at Eniwetok was estimated at 470 kg per hectare, and total reef fish standing crop from the Caribbean range from 273 to 1,590 kg per hectare. From this it can be seen that spiny lobsters are abundant and may represent over 10 percent of the predator biomass even in an extremely complex and diverse coral reef ecosystem. Furthermore, P. argus is a secondary predator, preferring other carnivores as food. Removal of a significant proportion of the spiny lobsters from a reef system could be expected to cause a shift toward simplicity, with a reduction in species richness." Continued unrestricted lobster fishing in the Looe Key Sanctuary boundary areas could possibly deplete the resident population to a level that could disrupt the reef ecosystem by reducing the numbers of those important predators. In addition to the significant changes in the lobster population which could eventually occur within the Looe Key system, lobster traps themselves, weighing about 80 pounds can physically damage coral. Careful setting and retrieving of pots in sandy bottom channels can prevent most damage; however, wave action from storms can drag pots into and over coral causing damage beyond the control of fishermen. Unrestricted lobster fishing will enable spiny lobster fishermen to continue to take a significant portion of their landings from the Looe Key area. The value of the 1978 catch was about $466,320 or about 62% of the total revenue from commercial fishing (see Table 2). Regulations under the Spiny Lobster and joint Coral and Coral Reef Resources FMPs will not likely be in place for at least 6 to 8 months and as plans are currently only proposed the ultimate level of protection is unpredictable. 112 b. Prohibit lobster trapping on Fore Reef _only under all, boundary alternatives. PREFFERRED ALTERNATIVE. This option would prohibit the setting of traps in the Fore Reef consistent with the HAPC plan currently proposed by the South Atlantic and Gulf Fishery Management Councils (see Chapter Three). No lobster trapping would be allowed within the core trapezoid area (Loran "C" Readings, points 1, 2, 3, and 4, Appendix A). Lobster trapping would be allowed on the Reef Flat, Patch Reefs, the Deep Reef and Deep Ridge. This preferred alternative would protect the most spectacular coral assemblages from lobster trap damage and contribute to species richness by partially protecting the spiny lobster as a major predator in the reef system (.Figure 8). Studies on lobster populations in the Dry Tortugas have shown seasonal relocations between adjacent reef and grass flat areas and that individual lobsters return to the same general area each year. As a result, individuals of the Looe Key resident population may be trapped as they move between the Fore Reef, Reef Flat and the grass flats of the Patch Reefs to feed. Studies in Ft. Jefferson National Monument (Dry Tortugas) have also demonstrated that in late summer and early fall an equal number of males/females concentrated in large lairs in the shallow patch reefs. If this is true of Looe Key, then large numbers of the Looe Key population could be taken at the start of the fishing season in the Patch Reef area, which lies outside the regulated area in Boundary Alternative #1. Finally, studies indicate that in late November and early December, as water temperatures cool, lobsters disperse to smaller scattered lairs on the deeper reefs at depths 12-30 m. It appears that a prohibition against lobster trapping on the Fore Reef might help protect the renewable lobster resources at Looe Key for the time being. Completion of the spiny lobster FMP will also contribute to sustaining the lobster fishing industry over the long-term but the degree of protection cannot be determined at this time. An estimated 232,000 lbs. of spiny lobster were caught in Boundary Option #2 in 1978. Personal communication with local residents and fishermen revealed that most of this catch was taken from outside the Fore Reef and Reef Flat zones. According to interviews with local people, lobster boats avoid shallow coral reef areas, preferring sites with greater maneuverability and more open sandy areas on which to place traps. This alternative would protect the Fore Reef from physical damage while resulting in minimal economic loss to the lobster fishermen and regional businesses in the area by allowing trapping in a major portion of the sanctuary. 113 NOAA's Office of Coastal Zone Management (OCZM) and the appropriate Fishery Management Council will continue to work cooperatively under Memoranda of Understanding in their efforts to protect and enhance the Looe Key coral reef habitat and the spiny lobster fishery. Continued monitoring of the area by the NMFS and the Councils would aid in maintaining the stock of a valuable renewable resource, both in the restricted area and in the area adjacent to the sanctuary. c. Prohibit lobster trapping within the 5 sq nmi (Boundary Alternative #2, and #3TT This alternative would prohibit lobster fishing within the 5 sq nmi alternative but would permit trapping outside the five sq nm but within the 10 square nautical mile sanctuary proposal. This alternative would maintain a healthy, substantial spiny lobster population in the Looe Key the region as increased numbers of juveniles would migrate from the reef and be caught outside the boundaries. Coral damage from pots and incidental bycatch of tropical fish would also be significantly eliminated within the entire Looe Key system. Banning traps from this five square mile area would be hardest on the fishermen in fall and early winter when they mainly depend on lobster fishing for revenue. The annual revenue from this area of Looe Key (Boundary Alternative #2) is estimated at $466,320, as recorded in Appendix C Table 2. This represents about 62 percent of all landings within Boundary Alternative #2. Because of its convenient location and generally productive yield the denial of lobster fishing within Boundary Alternative #2 would impose a significant economic hardship on fishermen and local businessmen who support or rely on the industry. 114 3. Regulatory Alternatives Affecting Tropical Marine Specimen Collecting a. Status quo: Unrestricted tropical specimen collecting( marine life fishing) within all boundary alternatives . The GMFMC and the SAFMC are preliminarily determining the feasibility and desireability of preparing profile or description of the tropical reef fish fishery. The SAFMC and GMFMC are proposing to prohibit tropical specimen collecting within the 1 nautical mile square HAPC At the present time, however, no current or other proposed Federal regulations limit tropical fish and invertebrate collection. The extent to which such activity can be controlled through HAPC regulations in the Coral and Coral Reef Resources FMP has not been determined judicially or administratively. Current indications are that the Councils' definition of Coral Reef Resources does not include invertebrates or reef fish but rather the dead reef structure only. Furthermore, the final outcome of the Coral FMP is unpredictable until the Plan has completed the NEPA process and becomes final. Both commercial marine life fisheries and amateur tropical fish and invertebrate collecting occurs throughout the Looe Key area. Tropical fish collectors in general take a large variety of fish but concentrate primarily on a small number of the popular species. Collectors harvest mostly juvenile fish from shallow depths. Collected invertebrates include brightly colored and otherwise aesthetically appealing molluscs, small crustaceans, including several shrimp which participate in the "cleaning symbiosis" relationship, and a wide variety of other species for the home aquarist, biological specimen industry, curio trade and municipal aquaria. The most commonly collected families of fishes (Hess and Stevely, 1979) are angelfishes and butterflyfishes, damselfishes, cardinalfishes, jawfishes, drums and croakers, blennies, wrasses and gobies. Neon gobies, small shrimp, juvenile bluehead wrasses, juvenile French angelfish, and juvenile porkfish to a lesser degree, are particularly known to set up and participate in cleaning stations for finfish which then have an overall beneficial effect on the ecological balance of the reef. Removal of these species in large numbers could adversely affect the reef system. Most collectors work from small outboard motor boats. Collectors use small hand nets while diving underwater ( snorkel ing, SCUBA). Some collectors also use a mild anesthetic, quinaldine, to slow temporarily the fishes while collecting. A few collectors who do not approve the use of chemicals, use only skill to chase fishes into nets. Quinaldine is a derivative of coal tar used in the manufacture of dyes and explosives and was never intended as a fish collecting anesthetic. Quinaldine is only slightly soluble in water and must be dilut.pH hpfore use. Diluting agents include ethyl alcohol and seawater, 115 with acetone added by some collectors to draw the fish from protective cover. Studies, however, have indicated that acetone can be harmful to gill membranes and liver. Quinaldine is absorbed primarily through the gills and concentrates initially in the brain (Brandenburger Brown et al , 1972) (Hess Steberg, 1979). Recovery usually occurs rapidly once the fish is removed from the drugged water (1-10 minutes). Concern for possible adverse effects of the widespread use of quinaldine on the marine environment has led to its regulation by the Florida DNR (since 1973) and a few preliminary studies on its open water use. Jaap and Wheaton of FDNR stated in 1975 that "quinaldine treatment induced no long term damage to octocorals (soft corals) and only slight damage to two scleractinian specimens". The effects of quinaldine on larval fishes and invertebrates are still unknown. There are obvious advantages to the use of quinaldine in difficult terrain and deep water collecting but "collecting with drugs is also yery efficient and contributes to the decline of marine tropicals on the reefs" (Moe, 1958). Collecting with drugs may also lower the quality/health of fish sold by collectors (personal communication, Bigford, 1980). Bleaches, used also for collecting in the past are now prohibited in Florida waters. Although regulating the use of quinaldine should restrict its use to experienced collectors, some unskilled part time collectors use quinaldine improperly thereby resulting in unnecessary mortality to fishes and other marine organisms. Although most of the marine specimens sold in today's U.S. aquarium industry come from the marine environment, tropical fish are successfully raised in captivity and sold commercially as well (Moe, 1980). Raising fish in aquaria for commercial sale although not now economically competitive with harvesting in the natural environment could eventually be a viable alternative to tropical fish collecting at Looe Key. Unregulated tropical specimen collecting in the marine sanctuary would allow unlimited collecting of Looe Key reef species by commercial and amateur collectors as long as there is a market and fish and invertebrates to harvest. It appears that there is and continues to be considerable growth of the market for marine aquarium hobby products in recent years (Hess and Stevely, 1978). The economic take per year in Boundary Alternative #2 is estimated at $25,000 to $43,000 or $80,075 to $137,725 using regional multipliers. While this return is probably not great for any one collector, it does contribute limited economic benefit to the region. It is likely, however, that the harvest could be taken from adjacent areas with an equivalent minimal socio-economic impact. b. Restrict tropical specimen collecting (marine life fishing) to those with NOAA permits within all boundary alternatives and to non- chemical techniques. Restricting tropical specimen collecting to those individuals with permits will limit marine specimen collecting within the sanctuary to only those persons demonstrating a knowledge of tropical marine species and the most accepted and non-damaging techniques for harvesting tropical fishes and invertebrates. Requiring permits would not impose a significant 116 burden on those businesses now in the area, nor would it necessarily preclude others from becoming collectors. However, a permit and monitoring system will have to be established by OCZM that is suitable for processing and monitoring commercial permits. It is not likely that administration and enforcement of such a permit system for effective regulation of tropical specimen collecting could be developed. It would require the undertaking of extensive monitoring of fish stocks to determine when sufficient populations of the species existed and at what point and to what degree taking would be appropriate. Commercial permitees could not be monitored given existing resources, to assure that their actions would be consistent with the conditions of the permit. A permit system of this nature would require elaborate surveillance of collectors and specified check points for ingress and egress at the sanctuary. As an example, it would be virtually impossible to determine whether a permitee took only x specimens over a period of y months. The taking of important ecological species such as the neon goby and the depletion of naturally rare species so desirable to a marine sanctuary would continue although permitting the activity would allow monitoring of activity levels and control whenever necessary. Prohibiting the use of chemicals would limit collecting activities to the more experienced collector. Since the long term effects of the commonly used qui nal dine are not well documented this restriction will eliminate the potential for harm. c. Prohibit tropical specimen collecting (marine life fishing) within all boundary alternatives except for scientific and educational purposes with NOAA permits . PREFERRED ALTERNATIVE . This alternative would protect and enhance the tropical fish population at Looe Key, prevent the depletion of ecologically important species, add to the aesthetics of the sanctuary, and maintain and enhance the long term productivity of the Looe Key coral reef for future generations. The Key Largo Marine Sanctuary and the Biscayne National Monument do prohibit such taking thereby providing a precedent for such action. A prohibition on collecting (marine life fishing) would not require the construction of an administratively burdensome permit and monitoring system for commercial collecting. Instead, it would utilize the already existing system designed for issuing a limited number of permits for scientific and educational purposes, that has been established for the Key Largo Marine Sanctuary. 117 It appears that there are many suitable areas for tropical specimen collectors to catch tropical fish and invertebrates in Florida; including shallow inshore areas, inshore coral heads, mid-channel reefs (in the middle of Hawk's Channel), and the entire outer reef. This alter- native would cause limited economic loss to present commercial collectors. The total economic loss of revenue per year as estimated in the socio-economic analysis for Boundary Alternative #2, would be $25,000 to $43,000 or $80,075 to $137,729 using regional multipliers. At least some of this loss could be made up by collecting elsewhere. 118 C. Regulatory Alternatives for Spearfishing 1. Status quo: Unregulated spearfishing under all boundary options . Commercial spearfishing is no longer feasible because of diminished populations of large specimens, according to the Looe Key Reef Resource Inventory (1978). Individual spearfishing has continued by sport fishermen and local residents who prefer this method of catching edible fish. Although there are no public statistics on the number of spearfishermen at Looe Key, the Looe Key Inventory has stated that spear- fishing activity is widespread in this area. In Florida, the total catch of spearfishermen is much less than line fishermen due to environmental conditions (Davis, 1980). Spear- fishino is more limited by depth, visibility and seasonal temperatures. A study of recreational boating in Dade County (Austin et. al ., 1977) has indicated that in Dade County the average daily catch of spearfish- ermen was not much different from line fishermen in the same areas. However, total spearfishing activity and grouper catch was much less than that of line fishermen in all areas during all seasons except on the south reef in summer. Approximately 58.8 percent of the spearfishermen in the Dade County study used rubberpowered, trigger-activitated guns, 16.5% used Hawaiian slings and 24.7% used both. A small number used pneumatic or springpowered guns or pole guns. Sixty percent were free diving (snorkel only) and 28.4 % used SCUBA equipment when spearfishing. Of all spearfish- ing in Dade County, none was recorded deeper than 80 feet and 71.5 % was conducted between 11 and 30 feet. Species sought were limited; groupers (35.8%), hogfish (32.4%) and snapper (8.9%). Preference for snapper was misleading; however, since many spearfishermen regard hogfish as snapper. It appears that spearfishing at Looe Key will, but not in comparison to commercial and recreational line fishing, reduce significantly large predators and other fish species impor- tant to the continued health of the reef system. Spearfishing, however, quickly makes grouper and snapper very wary of divers, too wary in fact, to be observed by most nonspearfishermen who lack experienced observation skills (Davis, 1980, DEIS comments). The Looe Key Resource Inventory (1978) stated that "... the practice of spear- fishing, even when not many fish are taken, creates wariness in the hunted species and effectively causes them to move out of the area." The authors contrast the current situation at Looe Key Reef, where larger groupers are quite rare and exhibit wariness of divers, to that in the Key Largo Marine Sanctuary, where these fish are relatively abundant and can be approached closely. 119 There are no existing spearfishing controls and the final scope of the Coral and Coral Reef Resources FMP special management measures are unpredictable. The plan has not been through the EIS public review process and will not likely be implemented until January 1981. The Plan proposes to prohibit spearfishing within the core trapezoid of the 1 nm sq HAPC. 2. Restrict spearfishing within the sanctuary to pole spears and Hawaiian slings under all boundary alternatives . Restricting spearfishing to certain weapons would tend to re- strict this type of fishing to the more experienced divers and snorkel ers and eliminate the use of rubber-powered arbaletes, pneumatic and spring- loaded guns and other types of weapons often used by novice divers. In addition, it would tend to reduce both the physical damage to the reefs caused by inexperienced spearfishermen and the chances of human injury. This would probably have minimal economic impact on dive and charter boat captains since only an estimated 15 percent of the Looe Key divers now spearfish (personal communication, Davidson, 1979). This alternative would not eliminate the wariness and removal of certain species from the reef, nor would it prevent experienced spearfish- ermen from contributing to the reduction of stocks of important commercial fish species and key ecological species on the reef system. This option would be difficult to enforce. 3. Prohibit spearfishing and possession of spearfishing equipment within the 5 sq nmi (Boundary Alternative #2 and #3) PREFERRE D ALTERNATIVE. A primary impact for this alternative is to enhance the quality of resource recreational experiences by divers, snorkel ers and observers. This prohibition, will also benefit the ecological system by preventing the continued disturbance and removal of territorial reef predators and would promote the return of larger grouper, snapper and other predators to the reef or perhaps, in time, lead to fish becoming less wary. In addition, it would remove the human injury potential, the inadvertent killing of non- edible tropical reef fish species found within the sanctuary and physical damage to the coral from divers in pursuit of fish. All of the above would help ensure high quality recreational experiences by divers and snorklers. Although local residents and visitors will no longer have the opportunity to spearfish in the Looe Key 5 mile area, there are many other areas suitable for spearfishing. The oceanic side of the Florida Keys is a desirable area for spearfishing with a submarine bank that varies in width from more than three to nearly seven nautical miles along the length of the Keys. Most of this bank lies in water depths less than 30 feet. The shallow inshore area is not attractive to spearfishermen due to the small number of fish to be found there. However, the many patches of corals scattered along the seaward edge are favorite fishing grounds for spearfishermen (Murdock, 1957). It will not discriminate against novice spearfishermen and will conform with the more enforceable regulation at the Key Largo Marine Sanctuary which prohibits the use of spear guns, slings, harpoons or other kinds of weapons potentially harmful to human safety, fish and wildlife, and the reef structure. 120 D. Alternatives Regulating Tampering with, Damage to and Removal of Submerged Historical and Cultural Resources within the Sanctuary. 1. Status quo: Unrestricted activities regarding submerged historical and cultural resources in all boundary alternatives . The Bureau of Land Management of the Department of the Interior is preparing a Submerged Cultural Resource Plan to identify shipwreck sites between Key West and Cape Hatteras out to 200 miles. A Looe Key American Shoals survey is being conducted by the Newfound Harbor Marine Institute. However, there are no Federal laws at the present time regulating salvage and recovery operations in the high seas. The status quo would allow the continued unregulated investigation and removal of submerged artifacts and could also lead to the tampering and removal of important historical and cultural resources within the sanctuary. These recovery operations can result in damage to those coral communities which have attached themselves to the submerged artifacts. Under a recent court decision, the Antiquities Act which provides that the Department of the Interior may designate and protect certain historically important sites does not authorize such action in relation to antiquities located on the OCS. In addition, neither the Abandoned Property Act nor the National Historic Preservation Act offer protection for valuable marine artifacts. The marine sanctuary program is the only vehicle for designation and preservation of such resources. 2. Prohibit tampering with, damage to and removal of historical and cultural resources in all boundary alternatives except with a NQAA permit for scientific and educational purposes. PREFERRED ALTERNATIVE . This alternative would prohibit tampering with, damage to and removal of historical and cultural resources and still allow continued exploration and investigation with minimal damage to coral reef resources. Shipwrecks of interest in and adjacent to the area could be explored and artifacts recovered under a NOAA permit which would be based on the educational and research value of the proposed actions. This alternative, however, would not completely preclude reef damage and other disruptions to the marine resources from salvage and recovery operations. Under this alternative, NOAA could cooperate and assist the Bureau of Land Management in the preparation of the Submerged Cultural Resource Plan which includes the Looe Key Reef area. Historical resources could also eventually be placed on the National Register of the National Historic Preservation Act once the nomination has been made and the resource selected. 121 3. Prohibit tampering with, damage to and removal of historical and cultural resources within 5 sq nm (Boundary Alternatives #2 and #3). This regulation would protect the HMS Looe and other submerged shipwrecks of cultural and historical significance from tampering and removal. It would completely protect coral reef assemblages from further damage from such operations. It appears that there is little salvage and or other disturbing activity in the area at the present time. Therefore this regulation would not impact ongoing salvage and recovery operations, but it would prevent possible research and educational benefits. 122 E. Alternatives for Regulating Discharges 1. Status quo : Rely on existing authorities to control discharges in all boundary alternatives. Federal regulation of sewage wastes from marine sanitation devices, effective January 31, 1980, does not extend beyond territorial (State) waters. The disposal of dredge materials and toxic and hazardous substances are regulated by the Clean Water Act (CWA) and Title II, Ocean Dumping of the Marine Protection Research and Sanctuaries Act; EPA has the authority to develop criteria for dredge disposal and the disposal of toxic and hazardous materials and for the selection of dump sites for dredge disposal in ocean waters. Therefore, vessels are allowed to discharge trash, litter, solid wastes, and sewage. This alternative would not prevent the discharge from vessels of trash, litter, solid waste, or untreated sewage directly into the proposed sanctuary. The status quo would rely on the authority of the CWA, Title II and corresponding regulations. 2. Prohibit the discharge of all substances in all boundary alternatives. This regulation would prohibit any discharge within the sanc- tuary. Discharge of litter, trash, solid waste and sewage from vessels would be prohibited. A prohibition on the discharging of vessel cooling waters would prevent motorized vessels from entering the sanctuary. Prohibiting the discharge of fish parts and chumming materials would inconvenience fishermen and curtail otherwise allowed fishing activities. 3. Prohibit the discharge of substances except cooling waters from vessels, fish or parts, chumming materials and discharges from marine sanitation devices (MSD) within 5 sq nm (Boundary alternatives n and #3). PREFERRED ALTERNATIVE . This alternative would prohibit littering and discharge of solid waste from vessels. It would prohibit the discharge of raw, untreated sewage into the sanctuary. However, it would allow fishermen to discharge fish or parts and use chumming materials. By not restricting the discharge of cooling waters, this alternative would allow the use of motorized vessels. The large number of people using Looe Key has lead to a high incidence of litter and trash being discharged overboard. The proposed regulation prohibiting discharging and littering will help maintain the area's overall recreational and aesthetic appeal. It would help to prevent floating or submerged waste debris such as plastic and metal objects discarded from users at Looe Key. 123 The proposed regulation would prevent the discharge of untreated sewage from vessels allowing discharges from a MSD only. This regulation is consistent with current Coast Guard regulation. The Coast Guard regulations prohibit the discharge of untreated wastes within the territorial sea for public health reasons - the presence of swimmers and relatively shallow water. Because the site of the proposed sanctuary is heavily used for water contact activities such as swimming and diving and portions have relatively shallow water depths, only the discharge from MSDs is allowed. Impacts of the regulation will be minor. Sanctuary users will have to retain trash for disposal at proper facilities. Vessel operators will have to utilize their MSD or holding tanks and will be unable to empty the latter. The Environmental Protection Agency, Marine Activities Office (responsible for developing the regulations), and the U.S. Coast Guard, Office of Marine Environment and Systems, Branch Enforcement (responsible for implementing the regulations), have informed NOAA that there are no existing studies on the effects of MSD chemicals on corals. These agencies believe that MSD discharges will not negatively impact the health of the reef. If the sanctuary is designated, NOAA will monitor closely the effects of the discharges. 124 F. Alternatives Regulating Anchoring 1. Status Quo: Unrestricted anchoring within the three boundary options* At the present time, there are no Federal laws regulating the location or type of anchoring in the Looe Key area. Branching coral growth forms such as elkhorn ( Acropora palmata ) and staghorn ( Acropora cervicornis ) in the Fore Reef system are especially susceptible to anchor damage. Fortunately, however, these species appear to have the greatest potential for regeneration. Recovery of other damaged coral, however, is slow since, as discussed in Chapter Three, growth rates of coral in the Florida Reef Tract are about one-half that of the Central Caribbean. The draft Coral and Coral Reef Resources FMP (CNA 1979) states, within this context, that: "coral growth rates are so slow in most species that recovery rates after harvest, human impact or natural stress are far slower than observed in most resources". Moreover, as has been pointed out by Antonius (1975 and 1977), even slight mechanical injury to large stony corals can initiate a series of events manifesting in widespread pathology or even death of an entire colony. Evidence of anchor damage to stony corals and octocorals is widespread within surveyed areas of the proposed sanctuary boundaries. Broken pieces of elkhorn and staghorn coral are easily visible in the Fore Reef and Reef Flat zones where the water is shallow and the more spectacular coral is found. Entire octocorals can be observed lying on the bottom, obviously ripped from their substrate. Much of this damage was fresh during observations in 1976 and 1977 and its occurrence and distribution is likely a result of a combination of anchor damage, wave damage and other natural factors. Numerous observations have been made of boat anchors lying in living coral and of anchor ropes and chains chafing corals. Comparable information on cond- itions in the Deep Ridge and Deep Reef zones is not available because the depth of water makes these areas less accessible. However, it can be reasonably assumed that the coral and benthic organisms have suffered some damage from boats anchoring in deeper water. Recreational and commercial boat anchoring damage observed at the Looe Key coral reef has been found in other reefs. Damage to the benthos and living coral in the Flower Garden and 28 Fathom Banks has resulted from improper anchoring practices. Sand anchors, properly located in the rubble and sand grooves between the coral spurs, or in deeper sandy bottom seaward of the major coral formations, create the least disturbance. Methods of anchoring in reef areas are discussed in the Draft Coral and Coral Reef Resources FMP. This report cites a number of specific anchoring problems which can cause damage to corals; anchor fluke span, length of chain relative to water depth, and anchor placement. 125 The Draft Coral and Coral Reef Resources FMP further states: "... that the amount of damage is proportional to the level of use in an area, the method of anchoring, the size of the anchor used, and the composition of the biotic community." The draft FMP goes on to cite accounts from several areas which emphasize the relationship of user levels to anchor damage. It would be reasonable to assume, for the Looe Key Reef, that, in the absence of anchoring regulations, this same relationship would hold. The number of boats presently anchoring in this small area is already quite high and the stress is apparent. Anchor impacts on the Looe Key Fore Reef coral community are projected to become more widespread in the absence of regulation. Unregulated anchoring would give unlimited choice of anchor sites to recreational and commercial boats. Visitors could dive close by their boats. Physical damage to coral would continue unabated. 2. Prohibit anchoring on coral on Fore Reef (delineated as the core trapazoid in the Coral Reef FMP (Figure 8) and encourage anchoring in sand areas elsewhere. PREFERRED ALTERNATIVE. This alternative would help protect the Fore Reef coral assemblages from snagging, breaking, or other anchor damage. Anchor abrasion of corals is common in the Fore Reef zone of Looe Key. It is here that anchor chains and lines, primarily from the smaller draft boats anchored in the sand bottom between the coral spurs, chafe the adjacent corals. Raising anchors snagged on the coral spurs also has resulted in significant damage. As the popularity of Looe Key and its accessibility becomes more widely known, anchor damage can be expected to occur more frequently. Indiscriminate anchoring with its potential for damage in a coral reef sanctuary, is incompatible with the purposes for which these areas are considered for designation. 126 The Fore Reef is frequented by divers because of the spectacular nature of the coral formations and the size and diversity of reef fish populations. In order to gain access to this area, most boats anchor directly in this zone, which is no deeper than nine meters or in the Reef Flat nearest the Fore Reef. By prohibiting anchoring on coral in this area and encouraging sand anchoring in adjacent areas, anchor damage to the Fore Reef can be substantially reduced, The Reef Flat offers suitable protection from high waves because of its location behind the reef crest. The bottom consists primarily of sand, coral fragments, seagrass, macro-algae and occasional colonies of living coral. As a result, this area can withstand much greater anchoring pressure than the Fore Reef Zone with its well developed coral structure. Because of the substrate and protected location of the Reef Flat, small sand anchors, e.g. Danforth, are capable of holding all but the largest boats with a shallow enough draft to enter this zone. Divers and snorkel ers entering the water can swim through this shallow (less than two meters) area and pass through one of the surge channels of the reef crest and dive on the Fore Reef. Only in rough weather is passage through the reef crest somewhat hazardous. The area seaward of the Fore Reef is less protected but convenient to the Fore Reef and would also be suitable as an anchoring area. With adequate enforcement and management at the sanctuary site, boats can be directed to sandy areas, suitable for anchoring adjacent to the Fore Reef. This alternative might inconvenience recreational and commercial hook and line fishing in the area of the Fore Reef. Fishermen would have to spend additional effort to insure sand anchoring within this small core area. Enforcement of this regulation will entail frequent site inspections and the development of an educational program to advise users on anchoring procedures. This regulation would serve as an interim measure until information is gathered to allow evaluation of alternative measures. Research and assessment of the feasibility and possible design of or appropriate mooring system for Looe Key will provide a basis for management decisions which will better insure maximum opportunities for both public use and resource protection. If the sanctuary is designated, such a study will be designed as a part of the management plan. 3. Placement of a mooring buoy system or systems in strategic areas of the Fore Reef zone in all boundary options. This would enable divers, particularly SCUBA divers, with heavy equipment, to dive safely near their boats and it would provide safe access to the Fore Reef for novice divers. Biscayne National Monument has an optional mooring buoy system which not only guides visitors to certain coral reef areas but offers them the opportunity to tie up to a buoy to prevent anchor damage. 127 A mooring system would have to be stable enough to secure large dive and charter boats in moderately rough seas and designed in a manner to prevent collisions between the moored vessels. This would result in destruction of portions of the sea floor but could reduce anchor damage substantially to the reef. Observations in Biscayne Monument have noted some concentrated damage to adjacent coral areas, as in the case of designated anchoring zones. If the marine sanctuary is not adequately patrolled, this type of regulation could cause conflicts among users. Although not prohibitively expensive, mooring systems are costly and their purchase and installation would have to be budgeted by Sanctuary management. The relatively small Fore Reef area may not be large enough to place enough buoys to accommodate the number of potential boats and buoy placement itself could be damaging to the coral . Periodic relocation of the anchoring zone of buoys to allow impacted areas to recover could also be used to minimize the concentration of damage in localized areas. This approach however has not been successful at the Buck Island National Monument in the Virgin Islands. Park Service officials indicate that rotating buoy location is not viable there. Coral growth is too slow to make reasonable rotating times feasible. 4. Require the use of sand-anchors under all options. Grapple hooks and other non-sand-bearing anchors are particularly damaging to coral. Prohibition of grapple-type anchors is a consideration because of the damage from such anchors used by divers in the Looe Key area. A change to sand anchor would encourage anchoring in sand areas only but would not solve all anchor associated problems. There is also some doubt if this is a workable regulation due to the type of enforcement it would require. 128 LIST OF PREPARERS Many persons participated in the preparation of this document. A portion of the environmental analysis was performed under contract by Sager Gardiner Wilcox, 6723 Whittier Ave., McLean, Va. 22101. major Sager Gardiner Wilcox Evelyn S. Wilcox William P. Gardiner Dr. Martha Sager Dr. Arnfried Anton i us Dr. Arthur Weiner Richard N. Sharood James A. Cato Phillip Webre Project Manager Environmental Specialist Ecologist Marine Biologist Marine Biologist Attorney Fisheries Economist Economist Office of Coastal Zone Management Dallas Miner Dr. Nancy Foster Edward Lindelof Annie Hillary John Milholland Director Deputy Director Gulf and Caribbean Project Officer Program Analyst Attorney 129 LIST OF AGENCIES, ORGANIZATIONS, AND PERSONS RECEIVING COPIES OF THE LOOE KEY FEIS Federal Agencies Advisory Council on Historic Preservation Department of Agriculture Department of Commerce Department of Defense Department of Energy Department of Health and Human Services Department of Housing and Urban Development Department of the Interior Department of Justice Department of Labor Department of Transportation Environmental Protection Agency Federal Energy Regulatory Commission General Services Administration Marine Mammal Commission Nuclear Regulatory Commission State, Regional and Local Government Flori Florida Department of Natural Resources Flori da Department of Environmental Regulation da Department of State Florida Game and Fresh Water Fish Commission Florida Office of the Governor Gulf of Mexico Fishery Management Council Monroe County Board of County Commissioners South Atlantic Fishery Management Council Elected Officials Hon. Dante B. Fascell National and Local Interest Groups Active Divers Association Broward County Audubon Society Camp Wesumkee Center for Environmental Education Central Florida Pleasure Divers Dade Marion Institute Defenders of Wildlife Environmental Law Society Everglades Protection Association Florida Audubon Society Florida Keys Fishing Guides Association Florida Reef Foundation 131 Foundation for Pride Friends of the Lower St. Johns Islamorada Charter Boat Association Izaak Walton League, Mangrove Chapter Izaak Walton League, Cypress Chapter Key Biscayne Anglers Lake Region Audubon Society Layton Kiwanis Club Marathon Guides Association Marine Mammal Foundation Marine Wilderness Society Marine Wildlife Foundation National Association of Retired Federal Employees National Audubon Society National Fisheries Institute New York Zoological Society Norine Rouse Scuba Club Periwinkle Alliance Royal Palm Audubon Society Sarasota County Sportsmen's Club Save the Bay Sierra Club, Florida Chapter Sierra Club, Miami Tropical Anglers Club Tropical Audubon Society Underwater Society of America Upper Keys Citizens Association Volusia Flager Sierra Group Individuals Karen Achor Mr. & Mrs. J.S. Baker Mary Bruce Walter S. Boardman James A. Bohnsack CM. Buckman Fiona R. Bruns Charles A. Buckel Josephine K. Carter James M. Critaker Paul P. Daley Capt. Ed Davidson J. Connor Davis Alfred R. Dixon Wil liam A. Dun son Henry A. Feddern Mr. & Mrs. Ron Galuba Robert N. Ginsburg Dorothy A. Harte Lynn Houaman Melvin P. House Anita & Ferdinand Hurricks Nan B. Keefer 132 Hand & Grace Kendal 1 Curtis R. Kruer John R. Maiolo Robert F. Merrick Wil liam R. Meyers Gary Milano William T. Mills John C. Noyes J.L, Pinckney Jr. Frank S. Potts Wil liam Ruetel Marcy Schiff John J. Schoendorf Susie Schultz Larry Verdi er William M. Warner Lee Wood 133 BIBLIOGRAPHY General Armitt, AT. 1979. Personal communication. State Vice Pres. Organized Fishermen of Florida (OFF). Austin, C. Bruce, Robert Brugger, J. Conner Davis and Linda Seifert. March 1977. Recreational Boating in Dade County 1975-1976. Prepared for Sea Grant. Ballard, W. R. 1979. Personal communication. Director Lower Keys Chapter of OFF. Brown, Col., Assistant Chief, Florida Marine Patrol, Tallahassee. 1979. Personal communication. Carr, Chuck 1979. Florida Audubon Society. Causey, Bill, Feb. 1, 1980. Personal communication, Florida Marine Davis, Gary E. 1977. Effects of recreational harvest on a spiny lobster, Panulirus argus population. Bulletin of Marine Science, Vol. 27 No. 2. Davis, Gary E. 1976. National Park Service Spiny Lobster Fishery Research in Florida. Key West, Florida. Davis, Gary E. 1977. Anchor Damage to a Coral Reef on the Coast of Florida. Davis, J. Connor, 1980. Personal communication, Marine Biologist. Dennis, Cdr. Sam. 1979. Personal communication. Commander Group U.S. Coast Guard Key West, Key West, Florida. Feddern, Henry, February 8, 1980. Personal communication, Florida Marine Assoication. Florida Administrative Code. 1979. Rules 17-3, 17-4 and 17-6. Florida Conservation Foundation. 1978. ENFO Newsletter. Florida Division of State Planning. 1974. Final report and recom- mendations for the proposed Florida Keys area of critical State concern. Florida Bureau of Land and Water Management, Tallahassee, Florida. Florida Sea Grant College. 1978. Environmental Impact Statement and Fishery Management Plan for Reef Fish Resources of the Gulf of Mexico. 135 Florida Department of Environmental Regulation. 1979. Coastal Management Issue Scoping Paper. Florida Department of Environmental Regulation. 1978. Florida Coastal Management Program Appendix. Prepared for the 1978 Florida Legislature. Florida Department of Natural Resources Coastal Coordinating Council. 1974. Florida Keys Coastal Zone Management Study. Gil Ian, Jack. 1979. Personal Communication Superintendant Onsite Manager Key Largo Coral Reef Sanctuary. Hess, Deb and John Stevely, 1979 The Aquarium Reef Fish Collecting Industry Monroe County, Florida Marine Resource Inventory Monroe County Marine Advisory Program. Florida Cooperative Extension Service. John Pennekamp Coral Reef State Park. 1979. Marine Sanctuary Management Workshop. Looe Key Reef. Public meeting concerning the proposed designation of the Looe Key Reef as a National Marine Sanctuary. Big Pine Key, Florida. January 17, 1978. Memorandum from Terry Leitzell, Director of National Marine Fisheries Services to Marine Wilderness Society. Sept. 20, 1979. Request to have Pillar Coral listed as an Endangered Species. Memorandum of Understanding, Gulf Fishery Management Council and Office of Coastal Zone Management. May 24, 1979. Moe, Martin, February 8, 1980. Personal Communication. Florida Marine Life Association. Monroe County Planning Department. 1978. Monroe County Coastal Zone Protection and Conservation Element. Murdock, James. 1957. A Survey of Spearfishing in the Florida Keys. Proceedings of the Gulf and Caribbean Fisheries Institute Annual Meeting. Murray, Thomas. 1979. Personal Communication, Florida Cooperative Extension Service. National Marine Fisheries Service. 1980. Draft Environmental Impact Statement for the Spiny Lobster Fishery Management Plan. Prepared for the Gulf of Mexico Fishery Management Council and the South Atlantic Fishery Management Council. St. Petersburg, Florida. National Park Service. 1979. A Review of Fishery Management Options and Proposed Rules for Everglades National Park. 136 O'Kane, Lt. Kevin. 1979. Comparison between Looe Key Reef and Coral Reef State Park and Key Largo Coral Reef Marine Sanctuary. Peterson M. L. 1955. The last cruise of the H.M.S. Looe Smithsonian Misc. Coll., 131 (2), 74 pp. Russell, Lt. Cdr. Dave. 1979. Personal communications. Assistant Chief, Intelligence and Law Enforcement Branch, 7th Coast Guard District, Miami, Florida. Samsome, Gerry. 1979. Personal communication. Executive Director, OFF Shinn, Eugene A. 1979. Collecting Biologic and Geologic Specimens in South Florida. Atlantic Reef Committee. Information Circular. Stevenson, David K. 1977. Proceedings Gulf and Caribbean Fishery Institute and Conference on small-scale fisheries in the Caribbean, pp. 95-112. Stone, Alexander. 1979. Letter to Sanctuary Programs Office re wire mesh fish traps. President, Marine Wilderness Society. Taylor, Ronald J. and McMichael, Robert B. , " The first quarterly report on the wire trap fishery in the Florida Keys based on observations during November 1979 - January 1980". Florida Department of Natural Resources, February, 1980. Thomas, Richard. 1979. Personal communication, commercial fisherman. Tilmant, Jim. 1979 Personal communication, Research Biologist, Biscayne Monument. Tingley, Ralph. 1979. Personal communication. Chief, Florida Marine Patrol, Florida Keys. University of Florida Center for Governmental Responsibility, Holland Law Center. 1976. Prepared for Florida Department of Natural Resources, Division of Resource Management, Bureau of Coastal Zone Planning. 137 Scientjfjc Literature Antonius, A. 1972. Occurrence and distribution of stony corals (Anthozoa and Hydrozoa) in the vicinity of Santa Marta, Colombia. Mitt. Inst. Colombo-Aleman Invest. Cient., 6: 89-103. Anton ius, A. 1974. Final report of the coral reef group of the Florida Keys project for the project year 1973. Harbor Branch Foundation, Fort Pierce, Florida. 201 pp. Antonius, A. and G. Griffin. 1974. Turbidity and coral reef health in waters of Pennekamp Park, upper Florida Keys. Florida Scientist, 37: 15. Antonius, A. 1975. Health problems of the Florida coral reefs. Florida Scientists, 38: 21. Antonius, A. 1977. Coral mortality in reefs: a problem for science and management. Proc. Third Internat. Coral Reef Symp., Univ. Miami, 2: 618-623. Antonius et al. 1978. Looe Key Reef Resource Inventory Bayer, F.M. 1961. The shallow-water Octocorallia of the West Indian region. Martinus Nijoff, The Hague, Netherlands, 101 fig., 28 pi., 373 pp. Bohlke, J.E. and C.C.G. Chaplin. 1970. Fishes of the Bahamas and adjacent tropical waters. Livingston Publishing Comp., Wynnewood, Pennsylvania. 36 pi., xxiii + 771 pp. Chaplin, C.C.G. 1972. Fishwatchers guide to West Atlantic coral reefs. Livingston Publishing Compl, Wynnewood, Pennsylvania 23 pi . , 64 pp. Cottam, G. and J. T. Curtis. 1956. The use of distance measure in phytosociological sampling. Ecology, 37: 451-460. deLaubenfels, M.W. 1953. A guide to the sponges of Eastern North America. Publ. Mar. Lab. Univ. Miami, Univ. Miami Press. 32 pp. Florida Coastal Coordinating Council. 1974. Florida Keys Coastal Zone Management Study. Florida Department of Natural Resources, Tallahassee, Florida. Geister, J. 1977. The influence of wave exposure on the ecological zonation of Caribbean coral reefs. Proc. Third Internat. Coral Reef Symp., Univ. Miami, I: 23-29. 138 Ginsburg, Robert N. 1974. Florida Reef Types. Proceeding Florida Keys Coral Reef Workshop. U. of Miami Ginsburg, R. N. and E. A. Shinn. 1964. Distribution of the reef- building community in Florida and the Bahamas. Bull, Am. Assoc. Petrol. Geol., 66: 310-318. Glynn, P.W. 1977. Coral growth in upwelling and non-upwelling areas off the Pacific coast of Panama. Journ. of Marine Research, 35: 567-585. Goodson, G. 1976. Fishes of the Atlantic coast. Marquest Color- guide Books, Pal os Verdes Estates, California, v + 203 pp. Goreau, T.F. 1959. The coral reefs of Jamaca: I. Species composition and zonation. Ecology, 40: 67-90. Goreau, T. F. and J. W. Wells. 1967. The shallow water Scleractinia of Jamaica: revised list of species and their vertical distribution range. Bull. Mar. Sci., 17: 442-453. Greenberg, I. 1977. Guide to corals and fishes of Florida, the Bahamas, and the Caribbean. Seahawk Press, Miami, Florida. 64 pp. Hoffmeister, J. E. 1974. Land from the Sea. Univ. Miami Press, Coral Gables, Florida. 143 pp. Hoffmeister, J. E. , J. I. Jones, D. R. Moore, and H. G. Multer. 1964. Living and fossil reef types of southern Florida. Geol. Soc. Am. Conv., Nov. 1964. 2 pi., 28 pp. Hoffmeister, J. E. and H. G. Multer. 1968. Geology and origin of the Florida Keys. Geol. Soc. America Bull., 79: 845-852. Jones, J. A. 1977. Morphology and development of Southern Florida partch reefs. Proc Third Internat. Coral Reef Symp. , Univ. Miami, 2: 231-235. Kaufmann, L. 1977. The three spot damselfish: effects on benthic biota of Caribbean coral reefs. Proc. Third Internat. Coral Reef Symp., Univ. Miami, 1: 559-564. Kissling, D. L. 1975. Coral reefs in the lower Florida Keys: a preliminary report. In: Carbonate Rock Environments, ed. H. G. Multer, Farleigh Dickinson Univ., Madison New Jersy. pp. 102 E-K. Longley, W. H. and S. F. Hildebrand. 1941. Systematic catalogye of the fishes of Tortugas, Florida. Pap. Tort. Lab., Carnegie Inst. Wash., 34, 34 pi., 331 pp. Loya, Y. 1972. Community structure and species diversity of hermatypic coral at Eilat, Red Sea. Mar. Biol., 13: 100-12 139 Loya, Y. and L. B. Slobodkln. 1971. The coral reef of Eilat (Gulf of Eilat, Red Sea). Symp. Zoo I. Soc. Lond., 28: 117-139. Macintyre, G. I.I and 0. H. Pllkey. 1969. Tropical coral reefs: tolerance of low temperatures on the North Carol Ina continental shelf. Science, 166" 374-375. Marszalek, D.S., G. Babashoff, M.R. Noel, and D.R. Worley. 1977. Reef distribution in South Florida. Proc. Third. Internar. Coral Reef Symp., Univ. Miami, 2: 223-229. Mayor, A. G. 1914. The effects of temperature upon tropical marine animals. Publ. Carnegie Inst. Wash., 183: 1-24. Mayor, A. G. 1916. The lower temperatures at which reef-corals loose their ability to capture food. Carnegie Inst. Wash., Year-Book, 14, 212. National Park Service. 1977. Draft master plan. Draft environmental statement. U. S. Department of the Interior, Washington, D. C, Odum, Eugene P. Fundamentals of Ecology Third Edition, p. 51. Ogden, J. C. and J. C. Zieman. 1977. Ecological aspects of coral reef - seagrass beds contacts in the Caribbean. Proc. Third Internat. Coral Reef Symp., Univ. Miami, I: 377-382. Plelou, E. C. 1966. The measurement of species diversity in different types of biological collections. J. Theor. Biol., 13: 145-163 Porter, J. W. 1972. Ecology and species diversity of coral reefs on opposite sides of the Isthmus of Panama. Bull, Biol. Soc. Wash., 2: 89-116. Randall, J. E. 1968. Caribbean reef fishes. T.F.H. Publications,. Hong Kong. 324 fig., 318 pp. Shlnn, E.A. 1963. Spur and groove formation on the Florida Reef Tract. Jour. Sed. Pet., 33 (2): 291-303. Shinn, E.A. 1966. Coral growth-rate, an environmental indicator. Jour. Paleo., 40 (2): 233-240. Stark, W.A. 1968. A list of the fishes of Alligator Reef, Florida, with comments on the nature of the Florida reef fish fauna. Univ. Miami, Inst. Mar. Sci., 890, 28 pp. 140 Stark, W.A. and W.P. Davis. 1967. Night habits of fishes of Alligator Reef, Florida. Ichthyologica, 38 (4): 313-356, 25 fig. Stoddart, D.R. 1963. Effects of hurricane Hattie on the British Honduras reefs and cays, October 30-31, 1961. Atoll Res. Bull., 95: 1-142. Stoddart, D.R. 1969. Distribution of corals in reefs. Proc. Symp. Corals and Coral Reefs, Mandapan, India, pp. 71-80. Vaughan, T.W. 1918. The temperature of the Florida Reef Tract. Pap. Tort. Lab., Carnegie Inst. Wash., 9: 319-339. Vaughan, T.W. and J.W. Wells. 1943. Revision of the suborders, families, and genera of the Scleractinia. Spec. Papers Geol. Soc. Amer. , New York, 44: 1-363. Voss, G.L. 1973. Sickness and death in Florida's coral reefs. Nat. Hist., 82 (7): 40-47. Wells, J.W. 1973. New and old scleractinian corals from Jamaica. Bull. Mar. Sco. , 23(1): 16-58. Wiedenmayer, F. 1977. Shallow water sponges of the western Bahamas. Birkenhauser Verlag, Basel and Struttgart. 180 fig. , 43 pi . , 336 pp. 141 Economic Analysis Bell, Frederick W. 1979. Recreational versus commercial fishing in Florida: An economic impact analysis. Black, Crow and Eidsness, Inc. 1976. Engineering and Financial Report for the Florida Keys Aqueduct Authority. Black, Crow and Eidsness, Inc., Gainesville, Florida. Cato, James C. 1979. Economic impact estimates concerning commercial fishing in Florida. Florida Cooperative Extension Service, Marine Advisory Program, Cooperative Extension Service, Marine Advisory Program, Gainesville, Florida. Cato, James C. , R. Allan Morris and Fred J. Prochaska. 1978. Production costs and earnings by boat size: Florida Spanish Mackerel Fishery. Florida Cooperative Extension Service, Marine Advisory Program, Gainesville, Florida. Cato, James C. and Fred Prochaska. 1978. Socio-economic assessment of fishery management in Everglades National Park. U.S. National Park Service, South florida Research Center, Everglades National Park. Center for Natural Areas. 1979. Fishery Management Plan for Coral and Coral Reef Resources, center for Natural Areas, Washington, D.C. Florida Department of Administraton. 1979. Analysis of Florida Keys Economic Sec- tors with Regard to Areas of Critical State Concern Designation. Florida Bureau of Land and Water Management. Florida Department of Commerce. 1977. Monroe County Economic Data. Bureau of Economic Analysis. Florida Department of Natural Resources. 1978. Tabulation of Daily Visitors. Bahia Honda Recreation Area. Florida Statistical Abstract. 1978. University of Florida Press, Gainesville, Florida. Goreau, Thomas F., Nora I. Goreau and Thomas T. Goreau. 1979. Corals and Coral Reefs. Scientific American, Vol. 24, No. 2. Korin, Basil P. 1975. Statistical Concepts for the Social Sciences. Winthrop Publishers, Cambridge, Md. Krutilla, John V. and A.C. Fisher. 1975. The Economics of Natural Environments: Studies in the Valuation of Commodity and Amenity Resources. Johns Hopkins University Press, Baltimore, Md. 142 Mathis, Kary, James C. Cato, Robert L. Degner, Paul D. Landrum and Fred J. Prochaska. 1979. Commercial Fishing activity and Facility Needs in Florida: Dade and Monroe Counties. Florida Agricultural Market Market Research Center, University of Florida, Gainesville, Florida. Monroe County Statistics. June, 1979. Monroe County Planning Department, Key West, Florida. Morris, R. Allan, Fred J. Prochaska, and James C. Cato. 1977. An Economic Analysis of King Mackerel Production by Hook and Line on the Florida Atlantic Coast. Florida Cooperative Extension Service, Marine Advisory Program, Gainesville, Florida. Morris, R. Allan and Fred Prochaska. 1979. Economic Impact of the Processing and Marketing of Commercial Florida Marine Landings. Marine Advisory Program, Gainesville, Florida. Prochaska, Fred J. 1978. Theoretical and Empirical Consideration for Estimating Capacity and capacity Utilization in Commercial Fisheries. American Journal of Agricultural Economics. Prochaska, Fred J. and J.R. Baarda. 1975. Florida Fisheries Management Programs: Their development, administration, and current status. University of Florida, Gainesville, Florida. Prochaska, Fred J. and Joel S. Williams. 1978. An Economic Analysis of Spiny Lobster Production by Individual Firms at Optimum Stock Levels. Southern Journal of Economics. Prochaska, Fred J. and Joel S. Williams. 1976. Economic Analysis of Cost and Returns in the Spiny Lobster Fishery by Boat and Vessel Size. Florida Cooperative Extension Service, Marine Advisory Program, Gainesville, Florida. Prochaska, Fred J. and R. Allan Morris. 1978. Primary Economic Impact of the Florida Commercial Fishing Sector. Institute of Food and Agricultural Sciences, University of Florida, Gainesville, Florida. Skin Diver Magazine. 1979. 1979 Reader Survey. Petersen Publishing Co., Los Angeles, California. Snell, Ernie. 1979. Personal communication. National Marine Fisheries, Miami, Florida. Tilmant, James, Danny Peters and Renate Skinner. 1979. Biscayne National Monument Fisheries Monitoring Program. Second Quarter Report. U.S. National Park Service, Biscayne National Monument, Homestead, Florida. 143 U.S. Department of Commerce, Bureau of Economic Analysis, Regional Economic Analysic Division. 1977. Industry - Specific Gross Output Multiplier for BEA Economic Areas. Government Printing Office, Washington, D. C. U.S. National Park Service, Biscayne National Monument. 1979. Average number of people per boat for each recreational activity for the whole period of record. Homestead, Florida. Williams, Joel S. and Fred J. Prochaska. 1976. The Florida Spiny Lobster Fishery: Landings, Prices and Resource Productivity. Florida Sea Grant Program, Gainesville, Florida. 144 APPENDIX A DRAFT DESIGNATION DOCUMENT DESIGNATION OF THE LOOE KEY MARINE SANCTUARY APPENDIX A DRAFT DESIGNATION DOCUMENT DESIGNATION OF THE LOOE KEY MARINE SANCTUARY Preamble Under the authority of the Marine Protection, Research and Sanctuaries Act of 1972, P.L. 92-532, (the Act) the waters at Looe Key are hereby desig- nated a Marine Sanctuary for the purposes of preserving and protecting this valuable and fragile ecological and recreational resource and of stimulating research activities and public awareness of its value and vulnerability. Article 1. Effect of Designation Within the area designated as the Looe Key Marine Sanctuary (the Sanctuary), described in Article 2, the Act authorizes the promulgation of such regulations as are reasonable and necessary to protect the values of the Sanctuary. Article 4 of the Designation lists those activities which may require regulation but the listing of any activity does not by itself prohibit or restrict it. Restrictions or prohibitions may be accomplished only through regulation and additional activities may be regulated only by amending Article 4. Article 2. Description of the Area The Sanctuary consists of a 5.32 square nautical mile (sq nm) area of the waters located off the coast of Florida 6.7 nm (12.5 km) southwest of Big Pine Key in the lower Florida Keys. The precise boundaries are as follows: Latitude and Longitude are furnished to .001 of a second. LATITUDE LONGITUDE PT NO / // / // 2-1 24 31 37 2-2 24 33 34 2-3 24 34 09 2-4 24 32 12 Article 3. Characteri 81 26 00 81 26 00 81 23 00 81 23 00 it Particular Value The sanctuary area is a valuable diverse and biologically productive living coral reef community in the Florida Reef Tract, including an array of tropical fish species and a well defined classic "spur and groove" reef system. The site also provides feeding, spawning, and nursery areas valuable for commercial fisheries. The Sanctuary will provide recreational experiences, A-l scientific research opportunities and generally will have special value as an ecological, recreational, esthetic and educational resource. Article 4. Scope of Regulation Section 1. Activities Subject to Regulation , In order to protect the distinctive values of the sanctuary, the following activities may be regulated within the Sanctuary to the extent necessary to ensure the protection and pres- ervation of its marine features and the ecological, recreational, and esthetic value of the area: a. Collecting and damaging coral b. Tropical specimen collecting c. Vessel operations d. Spearfishing e. Wire fish trap fishing f. Lobster potting g. Bottom trawling and specimen dredging h. Discharging or depositing any substance or object i. Dredging or alteration of or construction on the seabed j. Removing or otherwise harming cultural or historic resources Section 2. Consistency with International Law . The regulations governing the activities listed in Section 1 of this Article will apply to foreign flag vessels and persons not citizens of the United States only to the extent consistent with recognized principles of international law including treaties and international agreements to which the United States is a party. Section 3. Emergency Regulations . Where essential to prevent immediate, serious and irreversible damage to the ecosystem of the area t activities other than those listed in Section 1 may be regulated within the limits of the Act on an emergency basis for an interim period not to exceed 120 days, during which an appropriate amendment of this Article would be proposed in accordance with the procedures specified in Article 6. Article 5. Relation to Other Regulatory Programs Section 1. Fishing . The regulation of fishing is not authorized under Article 4 except with respect to the removal or damage of coral (paragraph (a)), the removal of tropical fish and invertebrates, (paragraph (b), and the use of certain techniques including paragraphs #(d)-(g) . In addition, fishing vessels may be regulated with respect to discharges (paragraph (h)) and anchoring (paragraph (c)). All regulatory programs pertaining to fishing, including particularly Fishery Management D lans promulgated under the Fishery Conservation and Management Act of 1976, 16 U.S.C 1801 et. seq . shall remain in effect and all permits, licenses and other authorizations issued pursuant thereto shall be valid within the Sanctuary unless authorizing any activity prohibited by regulation implementing Article 4. Section 2. Defense Activities . The regulation of those activities listed in Article 4 shall not prohibit any activity conducted by the Department of Defense that is essential for national defense 0" because of emergency. Such activities shall be conducted consistently with all regulations to the maximum extent practicable. A-2 Section 3. Other Programs . All applicable regulatory programs shall remain in effect and all permits, licenses and other authorizations issued pursuant thereto shall be valid within the Sanctuary unless authorizing any activity prohibited by any regulation implementing Article 4. The Sanctuary regulations shall set forth any necessary certification procedures. Article 6. Alterations to this Designation This Designation can be altered only in accordance with the same proce- dures by which it has been made, including public hearings, consultation with interested Federal and State agencies and the appropriate Regional Fishery Management Councils and approval by the President of the United States. DRAFT REGULATIONS PART 937 - THE LOOE KEY MARINE SANCTUARY REGULATIONS 937.1 Authority 937.2 Purpose 937.3 Boundaries 937.4 Definitions 937.5 Allowed Activities 937.6 Prohibited Activities 937.7 Penalties for Commission of Prohibited Acts 937.8 Certification of Other Permits 937.9 Appeals of Administrative Action 937.1 Authority The sanctuary has been designated by the Secretary of Commerce pursuant to the authority of section 302(a) of Title III of the Marine Protection, Research and Sanctuaries Act of 1972, 16 U.S.C. 1431-1434 (the Act). The following regulations are issued pursuant to the authorities of sections 302(f), 302(g) and 303 of the Act. 937.2 Purpose The purpose of designating the Sanctuary is to protect and preserve the coral reef ecosystem and other natural resources of the waters at Looe Key and to ensure the continued availability of the area for public educational purposes and as a commercial, ecological, research and recreational resource. This area supports a particularly rich and diverse marine biota. The area is easily accessible to the lower Florida Keys and is widely used by boaters, charter boat operators, dive boats, recreational divers and fishermen* Consequently, both present and potential levels of use may result in harm to Looe Key in the absence of long term planning, research, monitoring and adequate protect! on . 937.3 Boundaries The Sanctuary consists of an area of 5.32 square nautical miles of high sea waters off the coast of lower Florida Keys, 6»7 nautical miles (12.5 km) southwest of Big Pine Key. The area includes the waters overlaying a section of the submerged Florida Reef tract at Looe Key. The precise boundaries are: A-3 Latitude and Longitude are furnished to .001 of a second. LATITUDE / // 24 31 24 33 24 34 24 32 37 34 09 12 LONGITUDE / // 81 26 00 81 26 00 81 23 00 81 23 00 PT NO 2-1 2-2 2-3 2-4 937.4 Definitions a. "Administrator" means the Administrator of the National Oceanic and Atmospheric Administration. b. "Assistant Administrator" means the Assistant Administrator for Coastal Zone Management, National Oceanic and Atmospheric Administration. c. "Person" means any private individual, partnership, corporation, or other entity; or any officer, employee, agent, department, agency or instrumen- tality of the Federal government, or any State or local unit of the government. d. "Tropical fish" means fish and invertebrates of minimal sport and food value, usually brightly colored, often used for aquaria purposes and which live in a close interrelationship with the coral. e. "The Reef" means the area of the well defined "spur and groove" coral reef as delineated by Loran readings 1, 2, 3, 4 as follows: 1. NW 7980-W-13973.7, 7980-Y-43532.7 2. SW 7980-W-l 3975.4, 7980-Y-43532.4 3. NE 7980-W-13975.0, 7980-Y-43530.1 4. SE 7980-W-l 3975.4, 7980-Y-43527.7 937.5 Allowed Activities All activities except those specifically prohibited by section 937.6 may be carried on in the Sanctuary subject to all prohibitions, restrictions and conditions imposed by any other authority. 937.6 Activities Prohibited Without a Permit a. Unless permitted by the Assistant Administrator in accordance with section 937.8, or as may be necessary for the national defense, in accordance with Article 5, section 2 of the Designation, or to respond to an emergency threatening life, property or the environment, the following activities are prohibited within the Sanctuary. All prohibitions must be applied consistently with international law. A-4 (1 ) Removing or damaging distinctive natural features (a) No person shall break, cut or similarly damage or take any coral or marine invertebrate except as a result of anchoring outside the Fore Reef as allowed under subsection 2(a) of this section. Divers are prohibited from handling coral or standing on coral formations. (b) No person shall take except incidentally to allowed fishing activities, any tropical fish or marine invertebrate. (c) There shall be a rebuttable presumption that any items listed in this .paragraph found in the possession of a person within the Sanctuary have been collected or removed from within the Sanctuary. (2) Operation of watercraft All v/atercraft shall be operated in accordance with Federal rules and regulations that would apply if there were no sanctuary. The following con- straints also shall be imposed. (a) No person shall place any anchor on coral within the Fore Reef of the Sanctuary nor allow any chain or rope to enter the Fore Reef in a way that injures any coral. When anchoring dive boats, the first diver down shall inspect the anchor to ensure that it is placed off the corals and will not shift in such a way as to damage corals. No further diving is permitted until the anchor is placed in accordance with these requirements. (b) Watercraft must use mooring buoys, stations or anchoring areas when such facilities and areas have been designated and are available. (c) Watercraft shall not be operated in such a manner as to strike or otherwise cause damage to the natural features of the Sanctuary. (d) All watercraft from which diving operations are being conducted shall fly in a conspicuous manner, the red and white "divers down" flag. (3) Using Harmful Fishing Methods (a) No person shall use or place wire fish traps within the sanctuary. (b) No person shall place lobster traps within the Fore Reef area of the sanctuary. (c) No person shall use pole spears, Hawaiian slings, rubber-powered arbalets, pneumatic and spring loaded guns or similar devices known as spearguns within the sanctuary. (4) Removing or damaging distinctive historical or cultural resources No person shall remove, damage or tamper with any historical or cultural resource, including cargo, pertaining to submerged wrecks. A- 5 (5) Discharges No person shall deposit or discharge any materials or substances of any kind except: (a) Fish or parts and chumming materials (b) Cooling water from vessels (c) Effluents from marine sanitation devices (6) Markers (a) No person shall mark, deface or damage in any way or displace remove or tamper with any signs, notices, or placards, whether temporary or permanent, or with any monuments, stakes, posts or other boundary markers installed by the managers or markers placed for the purpose of lobster pot fishing. (b) All activities currently carried out by the Department of Defense within the Sanctuary are essential for the national defense and, therefore, not subject to these prohibitions. The exemption of additional activities having significant impacts shall be determined in consultation between the Assistant Administrator and the Department of Defense. (c) The prohibitions in this section are not based on any claim of territoriality and will be applied to foreign persons and vessels only in accordance with principles of international law, including treaties, conventions and other international agreements to which the United States is signatory. 937.7 Penalties for Commission of Prohibited Acts Section 303 of the Act authorizes the assessment of a civil penalty of not more than $50,000 against any person subject to the jurisdiction of the United States for each violation of any regulation issued pursuant to the Act, and further authorizes a proceeding in rem against any vessel used in violation of any such regulation. Procedures are outlined in Subpart D of Part 922 (15 CFR Part 922) of this chapter. Subpart D is applicable to any instance of a violation of these regulations. 937.8 Permit Procedures and Criteria (a) Any person in possession of a valid permit issued by the Assistant Administrator in accordance with this section may conduct any activity in the sanctuary specifically prohibited under section 937.6 provided that any permit allowing the damaging, taking or removal of coral, tropical marine specimen collecting (marine life fishing), or historical or cultural resources shall be granted only if the activity involved furthers educational or scientific pur- poses or is related to salvage or recovery operations. (b) Permit applications shall be addressed to the Assistant Administrator for Coastal Zone Management, ATTN: Sanctuary Programs Office, National Oceanic and Atmospheric Administration, 3300 Whitehaven Street, N.W., Washington, D.C. C. 20235. An application shall include a description of all activities A-6 proposed, the equipment, methods, and personnel (particularly describing relevant experience) involved, and a timetable for completion of the proposed activity. Copies of all other required licenses or permits shall be attached. (c) In considering whether to grant a permit the Assistant Administrator shall evaluate such matters as (1) the general professional and financial responsibility of the applicant; (2) the appropriateness of the methods envisioned to the purpose(s) of the activity; (3) the extent to which the conduct of any permitted activity may diminish or enhance the value of the Sanctuary as a source of recreation, educational or scientific information; (4) the end value of the activity and (5) such other matters as deemed appropriate. (d) In considering any application submitted pursuant to this Section, the Assistant Administrator shall seek the view of the Fishery Management Councils and may seek and consider the views of any person or entity, within or outside of the Federal Government, and may hold a public hearing, as deemed appropriate. (e) The Assistant Administrator, may, in his or her discretion grant a permit which has been applied for pursuant to this Section, in whole or in part, and subject to such condition(s) as deemed appropriate. The Assistant Administrator or a designated representative may observe any permitted activity and/or require the submission of one or more reports of the status or progress of such activity. Any information obtained shall be made available to the public. (f) The permit granted under paragraph (e) may not be transferred. (g) The Assistant Administrator may amend, suspend or revoke a permit granted pursuant to this Section, in whole or in part, temporarily or indefinitely, if the permit holder (the Holder) has acted in violation of the terms of the permit or of the applicable regulations. Any such action shall be set forth in writing to the Holder, and shall set forth the reason(s) for the action taken. The Holder may appeal the action as provided for in 937.10. 93 7. 9. Certi fiction of Other Permits All permits, licenses and other authorizations issued pursuant to any other authority are hereby certified and shall remain valid if they do not authorize any activity prohibited by section 937.6. Any interested person may request that the Assistant Administrator offer an opinion on whether an activity is prohibited by these regulations. 935.10. Appeals for Administrative Action (a) Any interested person (the Appellant) may appeal the granting, denial, or conditioning of any permit under section 937.8 to the Administrator of NOAA. In order to be considered by the Administrator, such appeal shall be in writing, shall state the action(s) appealed and the reason(s) therefore and must be submitted within 30 days of the action(s) by the Assistant Administrator. The Appellant may request an informal hearing on the appeal. (b) Upon receipt of an appeal authorized by .this Section, the Administrator shall notify the permit applicant, if other than the Appellant, and may request such additional information and in such form as will allow action upon the appeal. Upon receipt of sufficient information, the Administrator shall decide the appeal A- 7 in accordance with the criteria set in 937.8(c) as appropriate, based upon information relative to the application on file at OCZM and any additional information, the summary record kept of any hearing and the Hearing Officer's recommended decision, if any, as provided in paragraph (c) and such other con- siderations as deemed appropriate. The Administrator shall notify all interested persons of the decision, and the reason(s) therefore, in writing, normally within 30 days of the receipt of sufficient information, unless additional time is needed for hearing. (c) If a hearing is requested or if the Administrator determines one is appropriate, the Administrator may grant an informal hearing before a Hearing Officer designated for that purpose after first giving notice of the time, place, and subject matter of the hearing in the Federal Register. Such hearing shall normally be held no later than 30 days following publication of the notice in the Federal Register unless the Hearing Officer extends the time for reasons deemed equitable. The Appellant, the Applicant (if different) and, at the discretion of the Hearing Officer, other interested persons, may appear personally or by counsel at the hearing and submit such material and present such arguments as determined appropriate by the Hearing Officer. Within 30 days of the last day of the hearing, the Hearing Officer shall recommend in writing a decision to the Administrator. (d) The Administrator may adopt the Hearing Officer's recommended decision, in whole or in part, or may reject or modify it. In any event, the Administrator shall notify interested persons of the decision, and reason(s) therefore in writing within 30 days of receipt of the recommended decision of the Hearing Officer. The Administrator's action shall constitute final action for the Agency for the purposes of the Administrative Procedure Act. (e) Any time limit prescribed in this Section may be extended for a period not to exceed 30 days by the Administrator for good cause, either upon his or her own motion or upon written request from the Appellant or Applicant stating the reason(s) therefore. SCALE: 1" = 3000 ' 1" = .49 nmi 1" = .91km 8I°24'W 24°28'N FIGURE 6-7. Location of the Looe Key HAPC, as measured onto the contours of NOAA National Ocean Survey Chart 11445. Square measures 1.852km (1 nmi) on each side with a center at the asterisk. The LORAM-C readings for the four points of the trapezoid are listed below. 1 NW 7980-W-13973.7, 7930-Y-43532.7 2 SW 7980-W-13973.4, 7980-Y-43532.4 3 NE 7980-W-13975.0, 7980-Y-43530.1 4 SE 7980-W-13975.4, 7980-Y-43527.7 A-9 APPENDIX B SITE ANALYSIS RESEARCH METHODS APPENDIX B SITE ANALYSIS RESEARCH METHODS Next to the ecological complexity of a coral reef, its size poses the most difficult problem for research. Since coral reefs are usually much too large to be quantitatively assessed as a whole, a statistically significant number of samples has to be selected for analysis. This number has to be high enough to be truly representative for the entire reef, but small enough to remain manageable. In order to achieve this goal, a variety of field methods have been developed by the scientific community. Diverse as they are, they can easily be divided into two groups, one working with sample-plots, the other with plotless lines. The latest synopsis of sample-plot techniques (Stoddart, 1969) lists over a dozen different methods. They all have in common the establish- ment of fixed-area, permanent sample plots, inside of which all components can be measured, mapped, photographed, etc., and the life-history of their sessile organisms monitored over long periods of time. Dating back to the beginning of this century, these methods have proved useful scientifically, but also extremely time-consuming in terms of fieldwork man-hours. In terrestrial phytosociology, it was finally discovered (Cottam and Curtis, 1956) that sampling along plotless transect lines yields no less valuable data, but saves up to 90% of working time. This discovery was later adopted by some coral reef ecologists, working on similar problems, but constantly hampered by the inherent expense of underwater work. Plotless line techniques have been used successfully for purely scientific purposes by several authors (e.g. Loya and Slobodkin, 1971; Loya , 1972; Porter, 1972). For the somewhat different goals of coral reef resource management, plotless line techniques were recently adapted by Antonius (Antonius, 1974). Using these modified plotless line techniques, sample points are recorded in evenly spaced intervals technique), as opposed to measur- ing continuously under the transect line. Because of underwater operating constraints, and the need to analyze large reef areas with transects in the order of magnitude of kilometers, sample point intervals of one meter were chosen for the Looe Key Reef Resource Inventory (Florida Reef Foundation, 1978), the baseline study used in the Looe Key Affected Environment site analysis. The Looe Key Resource Inventory, used in the EIA, was directed towards identifying the main components of the reef ecosystem in terms of biomass, area coverage, and importance. In the field, this strategy was manifested in an attempt to accurately sight- identify dominant reef components. B-l Snorkel ing and SCUBA diving techniques were used to visually assess fish populations at Looe Key. Dives were aimed at covering all four reef zones as thoroughly as possible without creating any disturbance. All species were recorded and their relative abundance noted by direct observation. At the onset of this study, it was decided that fish-collecting techniques in any form would not be used to establish the check list or to confirm the identities of any questionable species. For the scope of this study, the possible deleterious effects of rotenone use (i.e. poisoning the fish in a given area for collection and identification) outweighed the advantages of positive identification of questionable species. Only direct observa- tions or photodocumentation were used to identify the fish. Spawning activity was noted by actual observed spawning or by the presence of demersal egg nests. Coral - fish interactions were photographed and routinely monitored with particular emphasis placed on the damsel fishes (family Pomacentridae) and their selected coral species habitat. The different reef zones were analyzed as to the important species present and comparisons made with similar reefs in the Key Largo Marine Sanctuary. Night dives were conducted to account for the cryptic nocturnal species that may not be seen during the day. Collecting and laboratory identifying techniques for all species were minimized, thereby curtailing negative impacts on the reef system and allowing the project to proceed within its specific time and funding constraints. Thus, species identifications of some algae, infrequently observed sponges, octocorals difficult to identify in the field (e.g. genus Eunicia), rare scleractinians (e.g. genus Agaricia), a number of small molluscs, as well as some difficult to observe fishes, have to be considered preliminary at the present stage. More extensive collecting and laboratory work in the future would be highly desirable from a scientific point of view. However, since all the species in question probably comprise less than one percent of Looe Key Reef in terms of biomass and organic cover, they should not be considered especially important for purposes of resource management. B-2 Appendix B SYSTEMATIC LIST OF SPECIES Thallophyta Chlorophyta (Green Algae) Phaeophyta (Brown Algae) Bryopsis pennata v. leprieurii Caulerpa racemosa v. macrophysa Caulerpa vickersia Caulerpa cupressoides Caulerpa sertularoides f . farlowii Halimeda" opuntia Halimeda opuntia f . mi nor Halimeda incrassata Halimeda monile Halimeda tuna Halimeda discoides Penicillus capitatus Penicillus lamourouxii Rhipocephalus oblongus Rhipocephalus phoenix f . brevifolius Udotea flabellum Udotea sublittoralis Udotea conglutinata Cladophora fuliginosa Anadyomene stellata ~ Valonia ventricosa Valonia macrophysa Acetabularia crenulata Dasycladus vermicularis Cladophoropsis macromeres Cladophoropsis membranacea Batophora oerstedii Neomersis annulata Dictyosphaeria cavernosa Stypopodium zonale Dictyota dichotoma B-3 Piety ota bartay resii Dictyota divaricata Padina sanctae-crucis Sargassum polyceratium Rhodophyta (Red Algae) Li agora ceranoides Li agora pedicel! ata Peysonellia spp . Melobesia membranaces Goniolithon spp » Lithothamnium incertum Lithothamnium spp . Amphiroa fragilissima Amphiroa rigida v. antillana Ce rami urn spp . Spyridia filamentosa Spyridia aculeata v. hypneoides Chondria cnicophylla Digenia simplex Lithophyllum spp . Laurencia intricata Laurenci a obtusa Laurencia coral lopsis Laurencia papil losa Wrangelia sp . Polysiphonia spp . Spermatophyta Angiospermae - Halophyta (Sea Grasses) Syringodium fili forme (Manatee Grass) Thalassia testudinum (Turtle Grass) Porif era (Sponges) Calcisponges Leucetta floridana B-4 Demosponges - Keratosa Haplosclerina Oligoceras hemorrhages Ianthella ardis Ircinia fascicularis (Stjnker Sponge) Ircinia campana (Vase Sponge) Ircinia strobilina (Cake Sponge) Dysidea etheria "(Heavenly Sponge) Aplysilla su If urea Verongia fistularis (Candle Sponge) Verongia longissima (Branching Candle Sponge) Hippospongia lachne (Sheepswool Sponge) Spongia obliqua (Cuban Reef Sponge) Dasychalina cyathina (Vase Sponge) Neopetrosia longleyi (Sprawling Sponge) Xestospongia muta (Barrel Sponge) Haliclona rubens (Red Sponge) Haliclona viridis (Green Sponge) Hal iclona variabil is Haliclona" permollis Haliclona" subtriangularis Callyspongia vanalis (Tube Sponge) Callyspongia "pTicifera (Tube Sponge) Iotrochota birotulata (Purple Bleeding Sponge) Fibulia "nolitangere (Do-not-touch-me Sponge) Poecilosclerina Halichondria melandocia Adocia neens " Tedania ignis (Fire Sponge) Lissodendoryx isodictyal is Xytopsues griseus Age! as sparsus B-5 Hadromerina Epipolasida Choristida Carnosa Coelenterata Aulospongus schoenus Mycale angulosa Homaxinella rudis Higginsia strigilata Cliona caribboea Cliona lampa [Boring Sponge) Spheciospongia vesparia (Loggerhead Sponge) Tethya diploderma (Golf Ball Sponge) Cinachyra cavernosa Geodia gibberosa (White Sponge) Chondrilla nucula (Chicken Liver Sponge) Hydrozoa - Athecata - Milleporina (Hydrocorals) Millepora alcicornis ) Millepora complanata ) (Fire Coral) Millepora squarrosa ) B-6 Anthozoa - Hexacorallia Actiniaria (Sea Anemones) Actinia bermudensis Condylactis gigantea Bunodosoma cavernata Phymantis crucifer Lebrunia danae Bartholomea annulata Calliactis tricolor Stoichactis helianthus Zoantharia (Mat Anemones) Zoanthus sociatu s Zoanthus pulchellus Palythoa mammillosa Corallimorpharia (False Corals) Ricordia florida Rhodactis sanctithomae Scleractinia (Reef Corals) Stephanocenia intersepta (Blushing Star Coral ) Madracis decactis (Cactus Coral) Madracis mirabil is ) (Pencil Corals) Madracis asperula ) Acropora pa!mata ~(E1khorn Coral) Acropora eery i corn is (Staghorn Coral ) Acropora pro! if era (Fused Staghorn Coral ) Agaricia agaricites f_. agaricites jf. danai f. carinata 7. purpurea f. humilis (Leaf Corals) B-7 Agaricia tenuifolia Agaricia undata Agaricia lamarcki Agaricia" grahamae" Agaricia fragilis Helioseris cucullata Siderastrea siderea Siderastrea radians Porites astreoides Porites porites Porites divaricata Porites furcata Favia fragum (Leaf Corals) (Sancer Corals) (Star Corals) (Mustard Hill oral) (Finger Corals) (Golfball Coral) Diploria clivosa Diploria labyrinthiformis (Brain Corals) Diploria strigosa Manicina areolata Colpophyll ia natans Montastraea annularis Montastraea cavernosa Solenastrea hyades Solenastrea bournoni Oculina diffusa Oculina varicosa Meandrina meandrites Dichocoenia stokesi Dichocoenia stellaris Dendrogyra cyl indru s Mussa angulosa Scolymia lacera Isophyllia sinuosa (Rose Coral ) (Brain Coral) (Star Corals) (Ivory Bush Corals) (Brain Coral ) (Star Corals) (Pillar Coral) (Flower Coral ) (Di sc Coral ) (Cactus Coral ) Isophyllastrea rigida (Rough Star Coral) Mycetophyllia lamarcki ana Mycetophyllia danaana Mycetophyllia ferox (Fungus Corals) Mycetophyllia aliciae B-8 Octocorall ia Eusmilia fastigiata Sphenotrochus auritus Tubastrea aurea (Flower Coral ) Scleraxonia (Octocorals) Rriareum asbestinum (Corky Sea Fingers) Iciligorgia schrammi (Deepwater Sea Fan) Erythropodium caribaeorum Holaxonia Plexaura homomalla Plexaura flexuosa Plexaura wagenaari Eunicea asperula Euni Euni Euni Euni cea fusca cea mammosa Eunicea succinea Eunicea laciniata cea tourneforti (Sea Whips) cea calyculata Muriceopsis flavida Plexaurella dichotoma Plexaurella nutans Plexaurella grisea Plexaurella fusifera Muricea muricata Muricea atlantica Muricea elongata Pseudopterogorgi a bipinnata Pseudopterogorgia acerosa ' (Sea Feathers) Pseudopterogorgia americana Gorgonia vental ina (Sea Fan) Pterogorgia citrina Pterogorgia anceps (Triangular Sea Band) Pterogorgia guadeTupensis (Flat Sea Band) Ell i sell a barbadensis [Sea Wire) Annelida Polychaeta Amphinomidae Hermodice carunculata (Fire or Bristleworm) Sabell idae B-9 Arthropoda Crustacea - Decapoda Sabella melanostigma (Banded Feather Duster) Serpulidae Spirobranchus giganteus (Horned Feather Worm) Pomatostegus stellatus (Star Feather Worm) Stenopodidea Stenopus hispidus (Banded Coral Shrimp) Caridea Periclimenes petersoni Periclimenes yucatanicus (Cleaning Shrimp) Astacidea Palinurus argus (Spiny Lobster) Palinuru? guttatus (Spotted Crawfish) Anomura Ranilia muricata Brachyura (Crabs) Callapa gallus (Yellow Box Crab) Portunus spinimanus (Spiny-Handed Portunus) Carpi lius coral! inus (Coral Crab) Gyptoxanthus erosus (Eroded Reef Crab) Leptodius floridanus (Florida Leptodius) Percnon gibbesi (Spray Crab) Stenorhynchus seticornis (Arrow Crab) Mithrax verrucosus (Granulated Spider Crab) Mithrax hispidus Mithrax sculptus (Spider Crab) B-10 Stomatopoda Pitho anisodan Macrocoeloma trispinosum Squill idae Pseudosquilla ciliata (False Mantis Shrimp) Mollusca Amphineura - Chitonida Gastropoda - Prosobranchia - Chaetopleura apiculata (Bee Chiton) Isnochiton floridanus (Slender Chiton) Archaeogastropoda (Sea Snails) Hemitonia octoradiata (Eight-Ribbed Limpet) Diodora listen' Diodora cayenensis Diodora dyson i Diodora minuta Diodora jaumei (Keyhole Limpets) Lucapi Lucapi Lucapi Lucapi nella limatula na suffusa na sowerbii na philippiana Lucapina aegis Limula frenulata (Keyhold Limpets) Limula pycnonema Fissure! la barbadensis Fissurella angustata Acmaea pustulata (Spotted Limpet) Tegula lividomaculata Tegula hotessieriana Cafliostoma javanicum (Top Shells) Calliostoma jubibum Turbo canal iculatus (Channeled Turban) Astraea caelata Astraea tuber (Star Shells) B-ll Astrae phoebia Astrae tecta Rissoina b rye re a Rissoina cancellata (Risso Shells) Caecum floridanum Caecum pulchellum (Caecum Shells) Cerithium biminiense Cerithium guinaicum (Horn Shells) Seila adanisT (Screw Shel 1 ) Tri Tri Tri phora turris-thomae phora nigrocincta phora pulchella (Tri phora Shells) Tri phora decorata Epitonium lame11"osum (Wentletrap) Cheilea "equestris (False Limpet) Crepidula plana (Slipper Shell) Strombus gigas (Queen Conch) Strombus pugilis (Fighting Conch) Strombus raninus (Hawk Wing Conch) ' """ (Erata Shell) Erata maugeriae Trivia pediculus Trivia quadripunctata Trivia suffusa (Trivia Shells) Cyprea zebra Cyprea cinerea Cyprea spurca Cyprea cervus (Cowries) Cyphoma gibbosum Cyphoma macgintyi (Flamingo Tongue) Polyneces lacteus (Moon Shell) Morum oniscus (Wood Louse) Phal ium granulatum (Scotch Bonnet) Cassis madagascariensis (Helmit Shell) Cypraecassis testiculus (Baby Bonnet) Charonia variegata (Trumpet Shell) Cymat i urn nicobaricum Cymat i urn pi lea re ""(Triton) Cymat ium" vespaceum B-12 Opisthobranchia Pelecypoda Bursa thomae (Frog Shell) Tonna maculosa (Tun Shell) Neogastropoda Morula nodulosa Favartia cellulosa Favartia al veata Thais deltoidea (Rock Shell) Coral! iophi la abbreviata Coral! iophi la caribaea (Coral Snail) Col umbel! a mercatoria Co! umbel la rusticoides (Dove Shells) Nassarinar monilifera Bailya pava Bailya intricata (Baily Shells) Engi na turbinella Pisania pusio Pisania auritula (Pisa Shells) Pisania tincta Latirus infundibulum Leucozonia nassa ""("Latirus Shells) Vasum muricatum (Vase Shell) Jaspidella jaspidea (Dwarf Olive) Mitra nodulosa "TMiter Shells) Mitra albocincta Pusia gemmata Marginella aureacincta Marginella lavalleeana (Marginella) Conus regiu s Conus mus Conus jaspideus (Cone Shells) Conus juliae Daphnella lymeiformis (Turret Shell) Tectibranchia Acteocina candei Pleurobranchus aerolatus (Sea Slug) Sacoglossa Tridachia crispata (Sea Slug) Filibranchia (Sea Shells) B-13 Cephalopoda Area imbricata Barbatia Candida Barbatia cancel! aria (Ark Shells) Acropsis adamsi Anadara notabilis Modiolus americanus Brachiodontes exustus Lioberus castaneus nigra (Mussels) Lithophaga bisulcata Lithophaga aristata Isogonomon radiatus Pinctada radiata (Oysters) Atrina rigida [Pen Shell) Chlamys sent is Chlamys imbricata (Scallops) Plicatula spondyloidea (Cat's Paw) Lima scabra Lima pellucida (File Shells) Eulamellibranchia Lucina pectinatus (Jamaica Lucine) Codakia orbicularis (White Lucine) Chama congregata Chama sinosa (Jewel Box Shells) Chama florida Pseudochama radians Trachycardium isocardia (Prickly Cockle) Chi one intapurpurea [Mottled Chione) Tellina laevigata Arcopagia fausta (Tel 1 i n Shells) Corbula swiftiana (Basket Clam) Octopoda Octopus briareus (Common Reef Octopus) Octopus vulgaris (Common Octupus) Teuthoidea Sepioteuthis sepioidea (Reef Squid) B-14 Echinodermata Echinoidea (Sea Urchins) Eucidaris tribuloides (Slate-pencil Urchin) Diadema ant ill arum (Long-spined Urchin) " Lytechinus variegatus (Variegated Urchin) Tripneustes ventricosus (Sea Egg) Echinometra lucunter (Rock-bori ng Urchin) Echinometra viridis (Green Rock-boring Urchin) Clypeaster rosaceus (Brown Sea Biscuit) Clypeaster subdepressus (Sand Dollar) Encope michelini (Notched Sand Dollar) Echinoneus cyclostomus (Reef Echinonens) Meoma ventricosa (West Indian Sea BiscuiT) Plagiobrissus grandis (Long-spined Sea Biscuit) Asteroidea (Starfish) Oreaster reticularis (Cushion Star) Ophidi aster guildingi (Guil ding's Star) Echinaster sentus (Thorny Starfish) Ophiuroidea (Brittle Stars) Ophiomyxa flaccida (Slimy Brittle Star) Astrophyton muricatum (Basket Starfish) Ophiothrix oerstedii (Oersted's Brittle StaT) Ophiocoma echinata (Spiny Ophiocoma) Ophiocoma riisei (Common Ophiocoma) Ophiocoma wendti (Red Brittle Star) Ophioderma appressum (Harlequin B-15 Brittle Star) Ophioderma brevispinum (Short-spined Brittle Star) Ophiolepis elegans (Elegant Brittle Star) Holothuroidea (Sea Cucumbers) Holothuria floridana (Florida Sea Cucumber) Actinopyga agassizi (Agassiz' Sea Cucumber) Euapta lappa (Sticky- skinned Sea Cucumber) Chordata Vertebrata Pisces Tunicata - Ascidiacea Didemnumcandium (White Sponge Tunicate) Clavelina pi eta (Painted Tunicate) Ascidia nigra (Black Tunicate) Bothryllus planus (Flat Tunicate) Amaroucium stellatum (Starred Tunicate) Polycarpa obtecta (Incrusted Tunicate) ' Chondrichthyes Ginglymostoma cirratum Carcharhinus leucas Carcharhinus obscurus Sphyrna makarran (Great Hammerhead) Dasyatis americana (Southern Stingray) Urolophus jamaicensis (Yellow-Spotted Stingray) " Aeobatus narinari Osteichthyes B-16 Megalops atlantica (Tarpon) Harengula humeral is (Red-Ear Sardine) Harengula pensacolae Sardinella anchovia Synodus foetens Synodus intermedius (Sand Diver) Enchelycore nigricans (Viper Moray) Enchelycore sp . Gymnothorax funebris (Green Moray) Gymnothorax moringa (Spotted Moray) Gymnothorax vicinus (Purplemouth Moray) Muraena miliaris (Goldentail Moray) Strong! ure notata Tylosurus crocodilus (Houndfish) Hemiramphus balaa Hemiramphus bras i liens is (Ballyhoo) Hyperhamphus unifasciatus Aulostomus maculatus [Trumpet fish) Fistularia tabacaria (Cornetfish) Micrognathus crinigerus Micrognathus crinitus Adioryx vexillarius (Dusky Squirrel - fish) Holocentrus ascensionis Holocentrus rufus (Squirrel fish) Myri prist is jacobus (Blackbar Soldi erf ish) Centropomus unidecimalis (Snook) Cephalopholis fulva (Coney) Pi plectrum formosum Epinephelus adscensionis (Rock Hind) Epinephelus guttatus (Red Hind) Epinephelus morio (Red Grouper) Epinephelus striatus (Nassau Grouper) Hypoplectrus gemma Hypoplectrus puella (Barred Helmet) Hypoplectrus unicolor (Butter Helmet) Mycteroperca bonaci (Black Grouper) Mycteroperca micro! eps is (Gag) Mycteroperca phenax (Scamp) Mycteroperca tigris Mycteroperca venenosa (Yellowfin) Petrometopon cruentatum (Graysby) Serranus tabacarius (Tobacco Fish) B-17 Serranus tigrinus (Harlequin Bass) Rypticus saponaceus (Soapfish[ Rypticus subbifrenatus Ambiycirrhitus pinos (Red Spotted Hawkfish) Lutjanus analis (Mutton Snapper) Lutjanus apodus (Schoolmaster) Lutjanus griseus (Gray Snapper) Lutjanus jocu (Dog Snapper) Lutjanus mahogoni (Mahogany) Lutjanus synagris (Lane) Ocyurus chrysurus (Yellowfish Snapper) Pri acanthus cruentatus (Glasseye) Apogon binotatus (Barred Cardinalfish) Apogon maculatus (Flamefish) Apogon planifrons Apogon townsendi Astrapogon punticulatus Malacanthus plumieri (Sand Tilefish) Cranax bartholomaei Cranax fusus Cranax hippos Cranax latu s Cranax ruber Elagatis bipinnulatus Seriola dumerili (Greater Amberjack) Trachinotus falcatus (Permit) Eucinostomus argenteus Gerres cinereus (Yellowfish Mojarra) Anisotremus surinamensis (Black Margate) Anisotrems virginicus (Porkfish) Haemulon album (Margate) Haemulon aurolineatum (Tomtate) Haemulon carbonari urn (Caesar Grunt) Haemulon chrysargyreum Haemulon flavoli neat urn (French Grunt) Haemulon macrostomum (Spanish Grunt) Haemulon melanurum TCottonwick) Haemulon parrai Haemulon plumieri (White Grunt) Haemulon sclurus ~(Bluestriped Grunt) Haemulon striatum Equetus acuminatus (Cubbyu) Equetus punctatus (Spotted Drum) B-18 Odontoscion dentex (Reef Croaker) Mull oid ichthys martinicus (Yellow Goatfish) Pseudupeneus maculatus (Spotted Goatfish) Calamus bajonada (Jolthead Porgy) Calamus calamus (Saucereye Porgy) Calamus nodosus (Knobbed Porgy) Calamus proridens (Littlehead) Pempheris schomburgki (Copper Sweeper) Kyphosis incisor (Yellow Chub) Kyphosis sectatrix (Bermuda Chub) Chaetodipterus faber (Spadefish) Chaetodon capi stratus (Foureye Butterflyfish) Chaetodon ocellatus (Spotfin Butter- flyfish) Chaetodon sedentatius (Reef Butterfly- fish) Chaetodon striatus (Banded Butterfly- TTsh] Holocanthus ciliaris (Queen Angel fish) Holocanthus isabelita (Blue Angelfish) Holocanthus tricolor (Rock Beauty) Pomacanthus arcuatus (Gray Angelfish) Pomacanthus paru (French Angelfish) Abudefduf saxatilis (Sergeant Major) Chromis cyanea (Blue Chromis) Chromis insolatus Chromi s multilineata (Yellow-Edge Chromis)" Chromis scotti Eupomacentrus Eupomacentrus Gregory Eupomacentrus mel 1 i s Eupomacentrus Damsel fish) Eupomacentrus planifrons Damselfish) Eupomacentrus variabiTis Damselfish) Microspathodon chrysurus Damselfish) fuscus (Dusky Damselfish) leucostictus (Beau parti tus (Bicolor (Yellow (Cocoa (Yellowtail Bodianus pulchellus (Spotfin Hogfish) Bodianus rufus (Spanish Hogfish) B-19 Clepticus parrai (Creole Wrasse) Doratonotus megalepis Halicoeres bivittatus (Slippery DTck) Halichoeres cyanocephalus Halichoeres garnoti (Yellowhead Wrasse) Halichoeres maculi pinna (Clown Wrasse) Halichoeres pictus Halichoeres radiatus (Pudding Wife) Hemipteronotus martini censis Hemipteronotus novacula Hemipteronotus splendens (Green Razorfish) Lachnolaimus maximum (Hogfish) Thalassoma bifasciatum (Bluehead) Nicholsina usta Scarus coelestinus (Midnight Parrotfish) Scarus coeruleus (Blue Parrotfish) Scarus croi censis Scarus guacamaia Scarus taeniopterus (Princess Parrotfish) Scarus vetula (Queen Parrotfish) Sparisoma aurofrenatum (Redband Par rot fish"] - Sparisoma chrysopterum (Redtail Parrot- fish) Sparisoma radians Sparisoma viride (Stoplight Parrot- fish) Acanthurus bahianus (Ocean Surgeon) Acanthurus chirurgus (Doctorfish) Acanthurus coeruleus (Blue Tang) Scomberomorus ca valla Scomberomorus maculatus Scomberomorus regal is TCero Mackerel ) Barbulifer ceuthoecus Coryphopterus eidolon Coryphoterus glaucofraenum Coryphopterus Ti pernes Coryphopterus personatus Coryphoterus punctipectorphorus Elactinus oceanops B-20 Gramannia macrodon Lythrypnus phorellus Lythrypnus spilus Scorpaena plumieri Qpistognathus aurifrons (Yellowhead Jawfish) Qpistognathus whitehursti Acanthemblemaria aspera Enneanectes pectoral is Labrisomus kal isherae Malacoctenus macropus Paraclinus fasciatus Entomacrodus text il us Ophioblennius atlanticus (Redlip Blenny) Sphyraena barracuda (Great Barracuda) Echeneis naucrates Alutera schoepfi (Orange Filefish) Alutera scripta (Scrawled Filefish) Balistes capriscus (Gray Triggerfish) Cantherines pullTfi" Canthi dermis sufflamen (Ocean Trigger- TTshl Acanthostracion quadricornis (Scrawled Cowfish) Lactophrys bicaudalis (Spotted Trunk- fish) Lactophrys triqueter (Smooth Trunkfish) Canthi gaster rostata (Sharpnose Puffejr) Diodon holocanthus (Spiny Puffer) Diodon hystrix (Porcu pi nef i s h ) B-21 APPENDIX C LOOE KEY ONSITE SURVEY APPENDIX C LOQE KEY ONSITE SURVEY A. Methodology In order to assess the costs and benefits of the various regulatory and boundary alternatives considered in the DEIS to the major user groups at Looe Key, the following steps were taken to: (1) identify the major user groups, including commercial fishermen, commercial recreational businesses, tropical fish collectors and individual recreational snorkelers, divers, fishermen and others who use the Looe Key coral reef area, (2) review the literature to determine the characteristics of these groups and the likely extent of their activity at Looe Key, (3) measure the annual income directly generated by the users of Looe Key through the use of onsite surveys, (4) measure the indirect effects of the income generated by activity through regional multipliers, (5) examine the existing and predicted socio-economic circumstances of the Lower Keys, and (6) evaluate the results of the surveys and the onsite information in an overall economic and demographic context. All income and catch information from commercial fishermen and income from commercial recreational businesses of Looe Key were only available at the County or Standard Metropolitan Statistical Area level. To obtain a more accurate socio-economic picture of the Looe Key area, it was necessary to go beyond published sources and conduct on onsite survey. Using published literature on the user groups and the expertise of Fisheries Economists from the University of Florida, interview schedules were designed for each of the major user groups, with the exception of the individual recreational users who were too numerous and scattered to interview and count. Local organizations and key individuals were contacted in an effort to locate as many of the actual users as possible. Finally, to get a broad picture of the stream of expenditures of such diverse, and diffuse user groups, regional multipliers were used, in accordance with the U.S. Department of Commerce, Bureau of Economic Analysis methodology. The recreational value of the reef was determined by estimating the volume (people) of reef use from information provided by the Survey, and the fair market cost of such activity. These estimates were checked against other data sources and found to be consistent. Although not often used, this method of valuation of recreational activities is well established (Krutilla, 1975). Personal interviews were conducted in mid-October with users most likely to be affected by the designation of Looe Key as a marine sanctuary. C-l The survey interview schedules were distributed to commercial fishermen, commercial and recreational enterprises, fish houses and tropical specimen collectors who could be expected, judging from other studies and surveys, to depend on Looe Key for part of their livelihood. Commercial fishermen and businesses which provide recreational services, such as dive boat shops and marinas, were the main businesses surveyed. Twenty-five interview schedules dealing with their 1978 catch, were completed by commercial fishing businesses. This number represents 2.6 percent of fishermen/ boats in Monroe County estimated to be commercially active in 1977-1978 (see Mathis et al , 1979 p. 15), and represented an important portion of those active in the area under consideration. One major tropical specimen collector and one fish house responded, as well as two out of six dive shops and charter boats, one marina and a boat rental and camping gear business. The interview schedules were designed to obtain (1) a representative sample from which to derive information on the total population user group in the Looe Key area, (2) information on businesses' total income generated by the Looe Key area, (3) information on other potential sources of income to users, such as fishing or recreational diving areas other than the area directly around Looe Key reef. The sample was derived from meetings arranged with fishing representatives (members of the Organ- ized Fishermen of Florida and marine agents), interviews with members of the community, and the assistance of a local citizen with research and academic experience who was familiar with the fishing industry. The Looe Key reef itself was part of a 5.32 square mile area in the survey that contained representative zones of the Looe Key ecological system and coincided with the intermediate size boundary option for the proposed sanctuary (Boundary Option #2). While proposed sanctuary boundary alternatives range from 1 square mile (#1) to 10 square miles (#3), this intermediate size provided a good basis for analysis. The year 1978 was selected as the sample year. Although new fishermen and dive shops have entered the area since then, county and State data are only available for 1978. Thus, to provide a statistical check, 1978 was used. B. Looe Key Reef Area Sample Survey Results 1. Commercial Fishermen. Twenty-five commercial fishermen (boats) in the vicinity of Looe Key were surveyed, living between SevenMile Bridge in the north and Saddlebunch Keys in the south. The major keys included in the survey were Bahia Honda Key, Big Pine Key Summerland Key, Cudjoe and Ramrod Keys. A previous survey by the University of Florida in 1978 indicated that 48 percent of Monroe County fishermen lived within one mile of their fishing ports and roughly 64 percent lived within three miles. (Boat and fisherman travel information, Mathis et al , 1978, p. 19). C-2 It was expected that the most active fishermen in Looe Key were those closest to it. Using average marine travel data (Mathis et al , 1979) as a base, it was decided that an area with a 15 mile radius would be adequate to obtain an statistical sample for measuring total commercial fish catch value at Looe Key. In the course of the survey, the choice of the sample survey area seemed validated. At the fringes of the area t some commercial fishermen, dive shops and others reported little or no activity connected with Looe Key. The twenty-five fishermen in the sample survey all owned their own boats, averaging 33 feet in length. The average fisherman had spent 10.32 years in the business and had been fishing in the Looe Key 5 nmi zone for 7.6 years. They employed a total of 36 crew (34 non-family). The average weekly wage for these crewmen was $195.95 per week and they worked an average of 41.5 weeks per year. Total yearly payroll, not including family members, was $276,499,56 or $8,132,34 per employee, which was lower than the county average for private non-farm wage earners. Fish catches vary seasonally in the Looe Key area. From February to late July, before the start of the lobster season, the fishermen depended mostly on yellowtail, mangrove and mutton snapper, and grouper. In the fall and early winter, they caught mainly lobster with little reported snapper or mackerel. Spanish, cero and king mackerel began to plan a major role in the catch in December and continued to March. The most productive fishing areas reported were those between and includ- ing Looe Key Reef and Big Pine Shoal, the area surrounding American Shoal areas in Hawk Channel off Sugar Loaf Key and Cudjoe Key. Most of the boats fished for more than one species, using a combination of methods, such as hook and line part of the year and trapping during the lobster season. Trapping for lobster, crab and fish amounted to 57.7 percent, 24.9 percent used hook and line, and 17.4 used nets. (Table 2) Based on survey tabulations, commercial fishermen did not all depend on Boundary Option #2 exclusively. Of the 597,356 lbs. caught in the total area in and around Looe Key, 167,970 lbs. were landed in the 5 mile area encompassing Looe Key. Most boats seem to fish the Looe Key 5 nmi zone only part of the time, since the desired species migrate both seasonally in and adjacent to Looe Key and throughout the entire reef tract. (Table 1 ) This sample of 25 boats is roughly one-fourth of the estimated boats (100) that could be affected by the Looe Key Sanctuary proposal, according to the consensus of leading fishermen in the area. In order to obtain the total estimated catch value of the Looe Key area, it was necessary to get an average income per boat from the sample survey and multiply it by the total estimated 100 commercial fishing boats. C-3 UJ _J CO. o X I— I Q ■ZL UJ O- D_ r— LO o lo Lf) O O O CO to CM LO o CO «^" CO if) Lf) VO =*fc ■(-> LO «?r cn r— CM Lf) CO LO 00 *■-**. o A #. *i #»#»#»** M ro C 00 ►— r»- CO to «3- co «^- «s- LO n O XJ r-» t— r— r— CO Lf) cn •i- i/> c C\J CM •M •.- 3 «d- aw o i- o >>o_ cu ^— 1 CL >> ro Cl >> J- C fO to ro i. ro c S~ CU -a to CO (S> CL C 00 o CL =3 en (N- ©C ro o c >, •P"" s- C CO. -r- CU ro CU CU CO r— ■o > oo s_ £ > CL S- CU CU C S- O) CU o ac a) l xj ro 3 •r- +J O s- fO Cl CU i- _i •t- _J oo C_> oo jd ^ cn C 4-> 3 -^ a> < oo » O) JD ro r— ■ c CO +J jt r— ■(-> Q. o i- CU ro 3 S- ro +-> O 3 to _i O >- s: SOS O r— o 00 •fa 00 ^> o o o O c O >> rO o LO CO CO Lf) CM O) r<«. 4-> o cn ro O Lf) 1— LD CM CTl f0 o #1 0i A #1 A * •\ a c r— 00 cn CO Lf) <«o 00 r— r-^ <'-- LO ^~ r— 1— CM CM LO 00 r— oo "O en c C 3 •r- O -a o_ c fO 1 -J S- ro CU CM 4-> Cl =*fc ro Q. >> Q ro ro s_ c C 1_ CU o >, CO CJ Cl •r- CU Cl ■M > r— OS ro a. s- •1— s- C O 3 ro CU CU CO 1— oo oo J- £ > Cl 1- CU >>*-- O) a> o Cl C CU S- S- •r— +j O J- ro Cl CU L. _1 ro U 00 X! r— cn Cp 3^ CU < ■D Ol -O ro ^- E CO 4-> O U -C 1— C Ol o 1_ QJ ro 3 i- (O +j O =5 CO —1 C_3 >- 2! S O S C t— o CO OO , LO O to LO O O O O LO •^ ro cm o CO iDCftO«t LO LO oo +-> lo <3- CM cm r--. 1** Lf) 00 ro >)^ o a •>> •t *,*>*!* n a f— 00 r— LO cn LO cvj ro O ro LO r-> ro -o ro CO ro ro vx3 00 O) c c oo LO > c +■> fO ro i- fO «D c S_ cu _1 Q CO CD Cl Cl rO >> f"— oC ro Oi CU •f" i- C $_ > ro CU CU CO r— < u oo s> | > Cl S- CU =3 CU CU Cl C CU i- r— CO •r- ■M O 1. ro O Cl CU 1_ _l ro «. — O 00 JD r— cn C +J 3 Jic CU < 4-> CU JD ro r— c CO 4J O O J= t— O a. o S- CU ro 3 t- ro ^-> O r- CO -J o >- s: saso 1— C-4 Thus, using average 1978 Monroe County dockside prices, computed by the National Marine Fihseries Service, the reported 1978 catch in Boundary Option #2 was 28% and worth $755,690 or $7,556.90 or $7,556.90/ per boat/per year. Based on information on total landings (100%) in the area, boats could be expected to earn approximately $27,000, average annual income. (Table 2) (Table 3) Of the $755,690 earned in Boundary Option #2, 61.7 percent came from lobster trapping, 14.5 percent from wire fish trapping, 17.7 percent from hook and line fishing, 5.6 percent from netting and 5 percent from trapping stone crab. These fishermen, however, do more than just sell fish. They buy food, gasoline, supplies for their boats. Their activities generate other activities. The income generation process is usually called the multiplier process. Each initial increase in income (in this case, sales of fish) will magnify itself throughout the economy and the final increase will be a number of times greater than the initial increase. The gross output regional multiplier for forestry and fish products in the Miami Economic Area of the Bureau of Economic Analysis is 1.914. (BEA, Regional Economic Analysis Division, USDC, 1977). No forestry occurs in this region so this multiplier should be fairly accurate for fishing. This regional multiplier indicates the "regional" impact of the sales of fish. The impact after the fish have been moved from the area for distribution, etc., is not counted. The total economic impact of the fish at final sale will be greater than 1.914. However, not all this impact is felt in the area of catch, thus the regional multiplier should be appropriate. Using the economic value of the commercial fishing in Boundary Option #2, the economic effect of the fishing effort there, using the regional multiplier is $1,445,390. b. Commercial Recreational and Educational Businesses The interview schedules to gather information about this group went largely unanswered because of the low response rate, only revenue from the commercial dive boat operations in the commercial business catagory were calculated in the economic study. Revenue from dive charter boats was estimated from the onsite survey to be $250,000 and appears to be the major income, outside of commercial fishing in the Looe Key area. Other income producing businesses were not accounted for in the Survey, such as marinas and fishing lodges rent boats and equipment. 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CO CO > o s_ en co c o cu >- s- cu Cl CU 3 J>£ O O S- ro C-9 ro O CU o o a> c >> -i-> i— •i- ra ^-« •^ +J u cu ra «+- to •r~ T3 JC C +J ro ro s: >> +j • •r- CO > •i- a; 4-> »— U £1 ro ro 1— en c X •r— "i— ^: "o to c •r- cu «+- Cc a. r- < ro ■i- "O U C cu J- ra en CU ra E r- Cc E ro o . * o a. +-> X • • a> 0) i— o s_ cu 3 QJ o CO CO r— CM Analysis of Fishing Methods in the Looe Key Area Based on Sample Survey Number % Number of fishing boats Fish for lobsters only Fish for lobsters & crabs Fish for crabs Fish only Fishermen using hook & line Fishermen using wire traps Fishermen using nets Fish for both lobster & fish Fishermen who use only nets 25 100 4 16 23 92 10 40 2 8 16 64 7 28 3 12 18 72 Appendix C Table 5 C-10 The divers chartering boats also stay in hotels, motels, visit restaurants, and purchase air and other equipment. These economic multi- plier effects were counted by using a regional service sector multiplier. The multiplier selected for these commercial dive boats was 3.203 (BEA 1977, p. 44). Thus, their total economic value for purposes of analysis was estimated at $800,750. Almost all of this income is derived from the 5 square mile or Boundary Option #2. The Newfound Harbor Marine Institute on Big Pine Key, a non-profit organization offering one of the most comprehensive marine education opportuni- ties in. the Florida Keys, focuses upon the nearby Looe Key coral reef and other coral assemblages in the general vicinity, for year round teaching. Seacamp, a part of the Institute, offers a variety of educational programs to students in the 4th grade through graduate school in college. Between 5,000 and 6,000 persons participate in the 3 to 30 day programs each year. The analysis did not attempt to count income generated to the area from marinas, fishing lodges or educational organizations due to the lack of sufficient information. c. Tropical Specimen Collectors Tropical fish collectors who catch and sell the brightly colored reef fishes of the coral reef for home aquaria and research purposes are one small user group at Looe Key. While areas of extensive coral growth, such as Looe Key, are not generally suitable as collecting areas because of the many hiding places afforded by the reef, interview schedules and information provided by persons familiar with the tropical fish industry indicated that there was a limited amount of collecting occurring at Looe Key. Estimates, based on these sources, of the total value of tropical fish collected yearly in the area, ranges from $200,000 to 250,000. Of these figures, roughly $25,400 to $31,750 worth is collected in Boundary Option #2. The regional multiplier effect would increase these estimates to between $582,000 and $782,500 in the entire area. The Boundary Option #2 generated income would lie between $74,000 and $92,500. d. Private Recreational Users Most sources interviewed agreed that the largest user group of the reef combines skin and SCUBA divers and recreational fishermen. It is in the measurement of this group's contributed economic value to the reef that the greatest number of assumptions have to be made and the most qualifiers have to be placed on any figure. Commercial recreational questionnaires estimated that average daily private boat visits to the proposed Looe Key 4.9 nmi sanctuary ranged between a low of 11 and a high of 23. (Each of these is a weighted C-ll The activity of the 9,694 to 19,061 divers in Boundary Option #2 was worth between $159,951 and $314,506 in 1978. These divers, however, do not merely dive, they stay in hotels and motels, rent boats, buy air and other equipment. The multiplier of the relevant sector selected this region was 2.203 (see BEA, 1977, p. 44). The private recreational diving activity in Looe Key was thus considered to be generating between $352,371 and $692,856 for the region in 1978. It was assumed from personal interviews and Survey information that the recreational fishermen and others would occupy one-third of the boats. This means that 1,188 to 2,336 boats would be visiting Looe Key, carrying recreational fishermen, sightseers and others. The figure of $40 per boat, the average rental price, was selected to place a value on the non-quanti- fiable activity of recreational fishing, sightseeing, and other related activities. Recreational non-diving at Looe Key, therefore, was estimated to be between $47,520 and $93,440. The multiplier effect of this activity would raise the total value of the activity to (BEA, 1977, p. 44) the region to between 104,686 and 205,848. The estimated value to the community and region of the private recrea- tional uses of Looe Key lies thus between $457,057 and $898,704. Combining the 7,500 commercially transported divers with an average of 15,000 divers using their own transportation and adding an estimated 5,500 students from Newfound Harbor Institute, the total drive/snorkler load for 1978 would have been 28,000 individuals. C-12 APPENDIX D FLORIDA STATE LAWS AND EXISTING STATE AND FEDERAL MARINE RESERVES, PARKS AND SANCTUARIES Appendix D FLORIDA STATE LAWS AND EXISTING STATE AND FEDERAL MARINE RESERVES, PARKS AND SANCTUARIES A. Florida State Laws Florida State laws which regulates human activities similar to activities found in Looe Key Waters. Legal Authority: Chapter 370, Florida State Code Enforcement Authority: DNR Division of Law Enforcement (Table Dl) Chapter 370. Saltwater Fisheries and Conservation. 370.114 Taking of marine corals and sea fans regulated; penalties. 1. It is unlawful for any person, as defined in s. 1.01: a. To take, attempt to take, or otherwise destroy, or to sell or attempt to sell, any sea fan of the species Gorgonia flabellum or of the species Gorgonia ventalina or any hard or stony coral ( Scleractinia ) or any fire coral ( Millepora ); or b. To possess any fresh, uncleaned, or uncured sea fan of the species Gorgonia flabellum or of the species Gorgonia ventalina or any fresh, uncleaned, or uncured hard or stony coral (Scleractinia) or any fresh, uncleaned, or uncured fire coral ( Millepora ). unless it can be probed by certified invoice that the sea fan or coral was imported from a foreign country or unless it can be proven that the sea fan or coral was lawfully taken before July 1, 1976. 2. This section shall not apply to any sea fan or coral taken for scientific or educational purposes when the taking is approved and permitted by the department. 3. It is unlawful to take coral from, or possess it in the John Pennekamp Coral Reef State Park. The provisions of s. 592.17 shall be in addition to the provisions of this subsection. 4. A person who violates any provision of this section is guilty of a misdemeanor of the second degree, punishable as provided in s. 775.082 or s. 775.083. The U. S. Coast Guard and the Florida Marine Patrol have verbal agree- ments to notify one another of possible State/Federal violations of the taking of coral in iState/Federal waters. The State law, outside of the John Pennekamp Park, is considered by some law enforcement personnel and administrators as largely unenforce- able because "fresh, uncleaned, or uncured sea fan, hard or stony coral D-l cr o CO 4_ •i— O rC > O) E m 5 u S- o O) •4-> fO +-> o CD -(-> C C T- 0J 4-> E ra O) i— U 0J S- S_ C ra fO ^-v S_ CO =3 O) re S_ CZ QJ 4- O cz o u ru o 00 •r— 4- CU CJ i_ 13 O CO r- as. _Q CO CL re cd -cz cd +J CO CD 4- JCT O -|_> C CD +-> -o o fa r3 CD -o ai UJ i_ CO CO CD a; > u t_ S- CD 13 CO o CU CO j_ CU a. ca u r— •1 — fa -4-> J_ fO Z3 Z2 +J CT fa «=c ^ _cr 4- co o •i— r— 4J -Q cr fa LU S- fa O CL+J OJ Q -o a; fO N ■a ■f— •I — S- j_ o o .cr CO •r- 4- > O Q +-> a> cz u OJ i_ E Z3 a> o CD co fO QJ cr ai fO S CO •r- 4- > O co cd O) CJ e i_ •r— zs t. o ro co s: ai cc co ■o co cd cr ra CO -CT r— 'r— ra co r— r* fO i_ +-> -o CO CO CO -4-> ra 10 "O cr ■ S- -^ fO fa CO -o cu ta co o S- QJ ai fa cr 4- CD i— c 4- fa i_ t. • o Z3 O l_ az Q_ fO fO cu CJ o a> ^ QJ +-> CO e E .cr r— cr cr co fa 4- o -O ■o +J -Q fa o CO -M o ■a •i- zs CT -r- •r— sz •1 — CD CO cz +j co fO 2 CO ■^ -1-^ c Z3 fa •i — cr fa s_ a; fO _i C T3 co co o i_ 0J CD -C ai •r- OJ ■a ^ Q_ QJ i_ ■a 4-> i_ "D 4- E cr s- CO -CT cj ,— . Z3 cr cd s ra o CD 4-> QJ •r- >-> CQ fO Q O >— 2 C£ O i_ 2 -Q o 4- +j ra +-> co a. o > s +-> c c 1 ra C o >^ c OJ QJ c c QJ CO •r— JD o xr i- c c O CO o E j^ -!-> +-> •1— QJ 1 o o o •r— J*£ •r— OJ s- fO -a . c -M i_ •i — ai •1— •1— +-> 4_ -i-> cd fa QJ ■— QJ g Z3 CL -M s_ +J CO fa fa fO fa Cl t_ QJ +j u E r— ■o ra • •1 — 4- CD D_ > cr U ^ ra CL a> o =3 OJ c > E > o i_ t_ fa ' — QJ -l-> o X CJ E CO fa s_ ra • 1— O TD "O > S- o c o J- C 4- c i_ -C CD c: 4- • i — 13 •1 — o i- Q_ fO o fa fO +J o fD O 00 CL+-> CJ Q. Q QJ ra CO co QJ QJ CJ c ra o o * i- +-> c cz 4-> C O O CD ra aj •!— •!— cz > £ +J +-> •>— t- oj cj ra i- QJ CD CD i — ra CO ra +J Z3 E C O CD ra s- -r- ra i- O +J E 0J s- cz s- CD Cl CD O ro CD ra ST T3 QJ U i- Z3 O CO CD >-> CO 4- ra CD QJ +-> CZ QJ E a> o u cz +J CO •!- fO O -r- QJ ^- S_ (J O QJ CD c cr ro QJ aj .cr co cz J- -r- CJ -r- ra Z3 cj CD 4- E CD CO I Z3 ro QJ CO O QJ C CO ro QJ CJ +-> QJ ro CD "O • O cr c oo jn o ra aj CD • Cl 1 CO > T3 CO CO cz _cz cr •i— CZ CZ O CO OJ cz +-> CO ra o 4- cr •!- CJ o ro QJ • r— O 4- •1— 1— 1- CJ CD+-) fl r— CO -M •i — CZ ro CD 00 +J r— 4- co > •i- S- CJ CD cr CD > O -i- t_ CO +-> cr co qj cr r- CZ QJ cr co ra C "O •i — Q • 1 — CO QJ •>- Z3 QJ -r- +-> E CJ CD CO O CO ra x> •n- QJ co •i- QJ o < _l S- i — i r- S- jQ D-3 or fire coral" can be quickly killed and bleached on board a boat, with the use of a bleaching agent, before a patrolman can inspect the boat. The regulation for the John Pennekamp Coral Reef State Park, however, which simply states "It is unlawful to take coral from, or possess it", appears the most effective for enforcement purposes. Penalty: Criminal Fine: $35.65 The fine of $35.65, set at the present time by a Circuit Court Judge in the Florida Keys, for a misdemeanor of the second degree (prescribed in the statute), is considered by most as little deterrent in the taking of coral from State waters. Regulations: The Division of Law Enforcement of the Florida DNR has not, as yet, adopted any regulations to accompany the statute, 370.114, on the taking of marine corals and sea fans. Other applicable state regulations: 370.071 Fishermen and equipment; regulation 370.10 Crustacea, marine animals, fish regulations; general provisions 370.101 Saltwater fish; regulations 370.11 Fish; regulation 370.113 Queen conchs of the species Stombus gigas ; regulation 370.12 Marine Animals 370.13 Stone crabs 370.14 Crawfish 370.17 Sponges; regulation 370.172 Spearfishing definition; limitations Penalty Spearfishing is prohibited within the boundaries of John Pennekamp Coral Reef State Park, and the salt waters in Monroe County known as the Upper Keys from the Dade/Monroe County line to and including Long Key. The DNR also has the power to establish restricted areas when safety hazards exist or when needs are determined by biological findings. 370.072 State Endangered and threatened species Threatened and endangered species and their habitat, Monroe County, from inventory of rare & endangered biota of Florida, Florida Audubon & Florida Defenders of the Environment. D-4 Endangered Species as defined by the Florida Audubon Society and the Florida Defenders of the Environment Invertebrates found within the proposed sanctuary: Elkhorn Coral Acropora palmata Staghorn Coral A. Cervicornis Staghorn Coral A. pro! if era Pillar Coral Dendrogyra cylindrus Large Flower Coral Mussa angulosa Lettuce Coral Agaricia agari cites Flower Coral Eusmil ia fastigiata Starlet Coral Siderastrea siderea Brain Coral Diploria clivosa Brain Coral D. labryinthiformis Small Star Coral Montastraea annularis Large Star Coral M. cavernosa Brain Coral Meandrina meandrites Atlantic Green Turtle Chelonia Mydas mydas Outer Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment Reef Environment All habitats Species whose habitat are found within the proposed sanctuary: Atlantic Green Turtle Chelonia Mydas mydas All habitats Atlantic Hawksbill Turtle Eretmochelys imbricata imbricata Primary reef habitats Atlantic Ridley Turtle Lepidocheyls kempi All habitats All violations of the above State laws, with the exception of 370.12 Marine Animals (a first degree offense) are criminal offenses; misdemeanors of the second degree, with punishment prescribed by a Circuit Judge in Monroe County. Enforcement Agency: Florida Marine Patrol Chapter 258. State Parks and Preserves. 258.41 This provision permits the setting aside of State-owned submerged lands of exceptional biological, aesthetic and scientific value as aquatic preserves. Two of the thirty-one State aquatic preserves were established in Monroe County. One of these, the Coupon Bight Aquatic Preserve is located directly adjacent to the sanctuary off Big Pine Key. This Preserve, included in the State Coastal Management Program as a Geographic Area of Particular Concern, is a shallow semi-enclosed bay of unique biologic and scientific valued. D-5 B. Existing Federal and State Marine Parks and the Key Largo Marine Sanctuary in the Florida Keys and Their Existing Regulations 1. Everglades National Park at the tip of the Sourth Florida Peninsula (Department of Interior's National Park Service) Everglades National Park includes a part of Florida Bay. Five regulations have been proposed in 1979 to: Close additional areas of Florida Bay to all public entry to protect crocodile nesting critical habitat. Restrict recreational shellfish harvest (blue crab traps, stone crab traps and spiny lobster). Establish bag limits for fish species. Assimilate State of Florida statutes for commercial stone crabbi ng. Eliminate commercial fishing by December 31, 1985, within the waters of the park. Permits for all activities except hook-and-line fishing in the Everglades National Park are required and reviewed by the South Florida Research Center, NPS, Homestead, Florida, who also review permits for the Fort Jefferson National Monument, Dry Tortugas. 2. Fort Jefferson National Monument, Dry Tortugas (Department of the Interior's National Park Service) Located 110 km (65 miles) west of Key West, Florida, Fort Jefferson National Monument which was established to protect Ft. Jefferson but also manages 100,000 acres of coral reefs within park boundaries. The taking or disturbing of any species of coral, shells, shellfish, sponges, sea anemones or other forms of marine life is prohibited with the exception of the recreational catch of spiny lobster ( Panulirus argus ) and conch ( Strombus gigas ) which is limited to 2/person/day. Commercial fishing is limited to 40 percent of the monument. The use or possession of spears, gigs, or other forms of spearfishing is prohibited at all times. 3. Biscay ne National Park in the Northernmost Florida Keys (Department of the Interior's National Park Service) Biscayne National Park is primarily an underwater park. The "park" is actually a monument, as designated by Congress, with rules slightly D-6 different from a National Park Service park. To establish Biscayne National Monument, the State of Florida and the Federal government agreed that fishing be allowed to continue in accordance with State laws unless it was determined to be detrimental to the purposes for which the "park" was established. If so determined, it should be further regulated following consultation with the State. The enabling legislation reads, as follows: Sec. 4 "The Secretary of the Interior shall preserve and administer the Biscayne National Monument in accordance with the pro- visions of the Act of August 25, 1916 (39 Stat.535;16 U.S.C. 1-4), as amended and supplemented. The waters within the Biscayne National Monument shall continue to be open to fishing in conformity with the laws of the State of Florida except as the Secretary, after consultation with appropriate officials of said State, designates species for which, areas and times within which, and methods by which fishing is prohibited, limited or otherwise regulated in the interest of sound conservation or in order to achieve the purposes for which the national monument is established." Commercial fishing and lobster-trapping are legal, as is sports fishing, both by hook and line and by spear. Conch and lobster may also be taken by divers, provided they are caught by hand or by hand-held net when in season and provided legal limits are not exceeded. Tropical fish collec- tion is not legal. Under the laws and regulations of the Park, identical to State laws, the Superintendent of the Park grants permits. Four patrol boats survey the area (20' - 28') manned by four Park Rangers with law enforcement authority. The Florida Marine Patrol enforces in State waters. Total park acreage is 104,000. At the present time, the Park management is conducting an extensive fisheries management information program. Fishermen are interviewed in the field out to the 60 ft. contour. Major species caught by commercial fishermen are snapper, grouper, hogfish, grunts, dolphin and sailfish. No fish traps are permitted. Some permits are granted for stone crab and crawfish fishing. Aliens and non-residents must have fishing licenses. Sportfishing must only be for edible fish. The Park management is also currently experimenting with the use of mooring buoys which mark an area for visitors and offer them an opportunity to tie up to a buoy rather than anchoring in an area D-7 which might damage the coral reef. The location of the moorings and educational material about certain unique reefs are discussed in a booklet prepared and distributed by the Biscayne Park staff. The Biscayne National Park is adjacent to a spiny lobster sanctuary. 4. Bahia Honda State Park in the lower Florida Keys The Bahia Honda State Park, managed by the Florida State DNR, Division of Recreation and Parks, is located on Bahia Honda Key adjacent to the proposed Looe Key Sanctuary. The park offers overnight camping facili- ties; two marinas; one for campers and one leased by a concessionaire; and swimming, picnicking facilities. The marinas are approximately 30 minutes running time by boat from the Looe Key Reef area. Staff for the park includes 17 staff and 14 rangers, most without law enforcement authority whose responsibilities include search and rescue operations in waters immediately adjacent to the park. The Bahia Honda State Park personnel emphasize the protection of State resources by interpretation of the law to those who use the park rather than by enforcement. 5. John Pennekamp Coral Reef State Park and U.S. Key Largo Coral Reef Marine Sanctuary in the upper Florida Keys (State Department of Natural Resources' Division of Recreation and Parks and Department of Commerce's Office of Coastal Zone Management under NOAA) The John Pennekamp Coral Reef State Park and U. S. Key Largo Coral Reef Marine Sanctuary are actually two preserves, consisting of an area extending out three miles from shore and administered by the State of Florida (Department of Natural Resources, Division of Recreaton and Parks) and a Federally operated sanctuary beginning at the end of State jurisdiction and extending seaward, also administered by the DNR, Division of Recreation and Parks. Named after the late John Pennekamp, the combined area of both parks was originally a State Park. The John Pennekamp Park was created in 1961 to protect coral and to prevent spearfishing and tropical fish collection. The State did not limit commercial fishing and lobstering in the State Park. In 1975, when the Supreme Court ruled State jusisdic- tion could only extend three miles, the most luxuriant reefs, which lie between four and six miles offshore, were without State protection. At D-8 that time, the State of Florida nominated the offshore waters for Marine Sanctuary status to insure continued protection of the resources. The Key Largo Coral Reef Marine Sanctuary was designated by NOAA in December, 1975, as prescribed in the Marine Protection, Research and Sanctuaries Act of 1972. At the time, the existing State regulations were adopted for the Federal waters seaward of the John Pennekamp Coral Reef State Park and are still in force today. Through a joint management agreement with the State of Florida and managed by the State, the U.S. Key Largo Coral Reef Marine Sanctuary is patrolled by State and Park Rangers and the U.S. Coast Guard. Collection or possession of coral, dead or alive, and sand or any other organism, dead or alive, (other than fish or lobster), can cost up to $5,000. If coral or other materials or organisms mentioned above are collected outside of John Pennekamp Coral Reef State Park and U.S. Key Largo Coral Reef Marine Sanctuary, they cannot be transported into these areas without danger of the person possessing them being fined. This is also true of Biscayne National Monument. The management and enforcement of the Key Largo Coral Reef Marine Sanctuary, is of particular interest to the Looe Key proposal. Although the area is larger, L& the upper Keys, and immediately adjacent to an established State marine park, its ecologinal system and the human impacts occurring daily in the sanctuary are very similiar to the area known as Looe Key. a. Memorandum of Agreement At present, there is a memorandum of agreement between N0AA/0CZM and the State DNR, Division of Recreation and Parks, which provides: o State on-site management in accordance with the rules and regulations promulgated by OCZM. o State administered regulation. Proposed regulations revising existing interim - final regulations are being considered at the present time. o At question appears to be how much should the regulations resemble State regulations in the interest of consistency and how much should they be a reflection of the objectives of the Marine Protection Research Sanctuaries Act. o State evaluation of all permits. D-9 o State enforcement of the Sanctuary regulations through a cooperative effort with the U. S. Coast Guard. The State reviews all citations issued by the USCG and sends a report of the violation and recommendations to the NOAA/General Counsel, St. Petersburg, Florida. o State submissions of semi-annual reports to NOAA and submission of recommendatons for more effective management. b. U.S. Coast Guard Enforcement Agreement Patrol of the sanctuary is accomplished jointly by the Florida Marine Patrol and U.S. Coast Guard personnel. Enforcement authority for State Park rangers is limited to John Pennekamp Coral Reef State Park and does not include Key Largo Coral Reef Marine Sanctuary. Persons found to be in violation of NOAA regulations are notified at the scene by the issuance of a Coast Guard Report of Boarding (CG Form 4100) . Evidence is seized by USCG personnel and appropriate statements taken. NOAA paid the salaries of two Coast Guard personnel assigned to Key Largo in 1978. In 1979, the Coast Guard continued its allotment of personnel to the sanctuary but refused payment, since enforcement was part of their ongoing responsibility. c. Law Enforcement Procedures Once all officials and the violator have been notified and the State park service has evaluated the information, the NOAA General Counsel draws a Notice of Violation, specifying the precise violation involved, and the proposed penalty (which may be negotiated). The BLM coral regulations have rarely been used since these regulations provide for criminal penalties involving arrest and appearance before a Federal Magistrate. d. Enforcement Results in Key Largo There were six Notices of Violation issued in 1977, fifty-nine in 1978 and twenty-three in 1979. The average proposed penalty for the three ye3ir period was $86.73, the average compromise penalty agreed upon by the violators was $60.92. D-10 APPENDIX E NOAA RESPONSES TO COMMENTS RECEIVED ON THE PROPOSED LOOE KEY MARINE SANCTUARY DEIS GENERIC RESPONSE #1 - SUPPORT FOR THE LOOE KEY PROPOSAL Thank you for your comments. NOAA concurs with the view that Looe Key is a valuable and important resource and that Looe Key is a national resource of high ecological value. NOAA also concurs that marine sanctuary designation offers an effective mechanism to protect and conserve this portion of the Florida reef system for the benefit of future generations. E-l GENERIC RESPONSE #2 Several reviewers voiced the opinion that adequate protection will be afforded Looe Key by the Fishery Management Council pursuant to the Fishery Conservation and Management Act (FCMA) and that sanctuary desig- nation would, therefore, be duplicative and unneccesary. Although the FCMA provides environmental protection, its principal focus is the management of selected commercial and recreational fisheries. Conservation efforts under this statute are by necessity directed toward individual species rather than ecosystems. Accordingly, both in general and in the case of Looe Key the two programs are complementary, not duplicative. In accordance with the FCMA, the Regional Fishery Management Councils (FMC) develop Fishery Management Plans (FMP), that are implemented by the Department of Commerce. These FMP's provide for protection of selected fishery resources but in general do not focus on site-specific ecosystem management. FMP's do not necessarily consider elements of the ecosystem which are not harvested nor do they address the entire range of threats to which an area like Looe Key can be subject. Title III of the Marine Protection Research and Sanctuaries Act, on the other hand, authorizes conservation of special or threatened ecosystems per se . Because of the differing focuses of the two statutes the efforts of the FMP's and the Marine Sanctuaries Program should, through cooperative efforts, complement each other. In particular, major differences between the Councils' joint Coral and Coral Reef Resources FMP and the NOAA Looe Key marine sanctuary proposal include: (a) the size of the specific area to be protected; (b) the range of organisms toward which management attention is directed; and (c) the emphasis on comprehensive management planning, including interpretive programs and design and implementation of long-term site specific research. First, with regard to size, the Habitat Area of Particular Concern (HAPC) proposed in the draft Coral and Coral Reef Resources FMP includes a one sq nm area which will allow the protection of the actual spur and groove system from physical damage. However, the long-term biological productivity of a system is by no means assured by such protection efforts and NOAA believes that the FMP proposed protection of a 1 sq nm area will not provide that assurance. Comprehensive management emphasis on monitoring, visitor uses, research and public education aimed at assessing the effectiveness of protective measures and health of the total system will form the basis for ensuring future viability of this section of the reef tract. For a discussion of the rationale for the proposed sanctuary 5 sq nm boundary, please see Generic Response #3 and Chapter IV (Environmental Consequences of the Proposed Action). It should, however, be noted that knowledgable scientists have questioned the likelihood that even the sanctuary program with its emphasis on the latter facets of management can effectively protect this section of the reef tract (Generic Response #2). The basis for this concern is the small size of the proposed sanctuary. In the marine environment adequate E-2 buffer zones replace the fences used in traditional land management techniques. This approach requires a greater area to protect a given resource than would normally be necessary on land. NOAA believes, however, that after analyses of potential impacts on the total human environment, 5 sq nm represents a reasonable buffer beyond that provided through the HAPC. This in combination with the management oriented facets of the sanctuary program will complement the efforts of the Councils to protect coral species in the fishery conservation zone. Second, the Council's FMP limits the definition of coral reef resources to the actual coral structure. This leaves the majority of invertebrates and lower vertebrates without specific protection. The productivity of coral reefs, equalled only by that of tropical rain forests, is a result of the organisms forming the reef structure (algal biomass may be three times greater than that of the corals); and light, oxygen and efficient nutrient recycling as a result of the innumerable non-coral reef organisms. It is this entire specialized ecosystem that is the focus of sanctuary integrated research, education and regulation over the long-term. In conclusion, the major differences between the proposed management measures for the HAPC and the final proposed marine sanctuary regulations are focused on the emphasis placed on comprehensive management, monitoring, research and public education by the sanctuary program which is lacking in the HAPC proposal and which complements the Councils' FMP efforts. A comparison of the two programs was forwarded by the GMFMC and an updated version is presented below. E-3 LOOE KEY PROPOSALS Marine Sanctuary General Area : Five square nautical miles includes portions of the Patch Reefs, a Reef Flat, Fore Reef, Deep Reef, and Deep Ridge. "Special Management Area": Trapezoid, Coral Collection : None permitted in general area; regulations also prohibit damage to coral which would include standing, breaking, etc. Tropical Marine Specimens : Collection of all tropical specimens, including invertebrates, prohibited throughout area, except by permit for scientific and educational purposes. Spearfishing : area. Prohibited in general Fixed Gear : General area: prohibit wire fish traps. Trapezoid area: prohibit wire fish traps and lobster traps. Anchoring : trapezoid. Prohibited on coral in Historical and Cultural Resources : Removal, damaging, tampering prohibited. Toxic Materials : Prohibits all discharges except vessel cooling water, fish parts, chumming materials and effluents from marine sanitation devices. Explosives : Not specifically addressed; however, this would be included under the prohibition of damage to coral. Coral FMP General Area : One nautical mile square. Contains Fore Reef and Reef Flat, "Special Management Area" : Trapezoid. Coral Collection : None permitted in the general area and no contact with coral permitted in trapezoid area. Tropical Marine Specimens : Collection of marine tropical fishes prohibited in trapezoid area. Spearfishing : Prohibited in trapezoid area. Fixed Gear : General area: prohibit fish traps within 100-foot contour (Reef Fish FMP). Trapezoid area: fixed fishing gear prohibited. Anchoring: Prohibited in trapezoid. Historical and Cultural Resources : Not applicable. Toxic Materials : Prohibits toxic chemicals in taking fish and other marine organisms in coral areas; other discharges not addressed. Explosives : Prohibited over live coral bottoms when causing coral damage, E-4 GENERIC RESPONSE #3 During review of the DEIS and at the public hearings two issues were raised focused on 1) the basis for selection of Looe Key as a sanctuary proposal and 2) the size of the proposal area. With regard to the first issue, certain reviewers stated that in their opinion Looe Key is not a unique area and there- fore sanctuary designation is not justified. The uniqueness of the Looe Key area is indeed not measured in terms of new and different species assemblages. It is true that the species found on Looe Key are also found all along the Florida Reef tract. The special nature of Looe Key is measured, instead, in terms of the spectacular beauty of the spur and groove system, the value of this small area to local biological productivity (see commercial fishing statistics) and the ease of accessibility to the user public. Looe Key is located only 6.7 nm offshore and can be easily located in a relatively short period of time. The shallow water portions of the reef in combination with the deeper areas make it attractive to both novice and highly experienced swimmers, snorklers and divers. Public charter boat operations, dive boats, recreational divers and fishermen, a major non-profit organization (the Newfound Harbor Marine Institute) and established commercial fishermen utilize the reef. The area is currently experiencing intensive public use which based on population and tourist projections is expected to increase. All of these factors taken together contribute to the special nature of Looe Key. While it is true that it is not the only beautiful section of the reef tract and that it is but one of the several shelf margin reefs in the lower keys, NOAA believes that, without question, the combination of factors discussed above qualify Looe Key for sanctuary status and that given user pressures, this small section of the reef tract must be comprehensively managed if its long-term viability is to be assured. The proposed 5 sq nm boundary was criticized during the review both as being too large and as being much too small. It was felt by several commentors that the proposed 1 sq nm HAPC presents an appropriate size for a sanctuary. Protection of an area of this size will provide for prohibitions of physical damage to the Fore Reef and associated organisms. It will not likely provide an adequate area for assuring biological integrity of the system. In the marine environment protection of any core area (Fore Reef) requires identification and protection of even large areas (buffers) where essential processes for the stability of the core take place. NOAA does not believe that 1 sq nm offers a reasonable buffer to assure long-term productivity of the Looe Key reef system. The 5 sq nm sanctuary proposal has also been criticized as being too small and vulnerable to outside harmful activities to warrant designation. It is true that marine systems cannot be managed by reliance upon traditional land manage- ment techniques. Essential differences between marine and terrestrial environ- ments include the size of the ecosystems, the mobility of marine organisms and the three dimensional nature of the hydrosphere, sink, and downstream affects. Because of these characteristics, setting aside limited marine areas such as Looe Key contributes to protection of the large system. Locating these small candidates for protection involves consideration of their location, number, size and linkages. Ideally, management would be able to identify the linkages, protect them and thereby protect the region as a whole while we continue to use and enjoy it. E-5 Though Looe Key alone represents a small segment of the reef system, it is possible that by focusing intensive management on smaller discrete units such as Bi scayne Bay National Park, Key Largo National Marine Sanctuary, John Pennekamp State Park, Fort Jefferson National Park, and Looe Key we can protect enough of the reef tract linkages to insure protection of the entire system. In addition, these discrete protected areas are tied together by the broader conservation measures afforded under the Management Councils' Coral and Coral Reef Resources Fishery Management Plan. In the near future other FMP's will be implemented for fisheries under the jurisdiction of the South Atlantic Council. All of these entities, together with heightened awareness of the need for close cooperative management strategies, should provide an increased level of protection. In conclusion, after assessing the potential impacts of larger Looe Key sanctuary boundaries, NOAA continues to propose the 5 sq nm alternative. In a purely biological sense, a sanctuary covering the whole of the Florida Keys might be more desirable; however, the Looe Key proposal offers a workable proposal which will contribute to protection of the integrity of the entire reef tract and at the same time minimize economic impacts to area residents. E-6 GENERIC RESPONSE #4 The preferred alternative (Alternative b) proposed in the DEIS would have required that NOAA establish a permitting system and develop criteria specifying under what conditions commercial collecting permits would be granted. It would also have required the undertaking of extensive monitoring of fish stocks to determine when adequate population levels of target species existed and at what point and to what degree taking would be appropriate. A number of reviewers opposed collection on ecological or philosophical grounds. In response to concerns and arguments presented in the DEIS review, NOAA has reconsidered the preferred alternative for tropical specimen collecting and now proposes instead to prohibit collection of such specimens except by permit for scientific and educational purposes. Several reviewers felt that administration and enforcement of a permit system for effective regulation of commercial tropical specimen collecting could not be developed. Subsequent consultations with existing commercial permitting authorities emphasized the difficulties involved. It is not likely that permittees could be monitored to assure that their actions would be consistent with the conditions of the permit without an elaborate sur- veillance system with specified check points for ingress and egress at the sanctuary boundaries. As an example, it would be virtually impossible to determine whether a permittee took only 100 neon gobies over the period of two months. Establishment of a limited permitting system to allow taking of tropical specimens for research and scientific purposes could be accomplished without administrative and enforcement difficulties. It is anticipated that most research within the sanctuary would be non-consumptive (i.e., observational) and would not require a permit. Limiting the taking of specimens to research and educational purposes only will result in significantly fewer permits than would a system which included commercial taking. Furthermore, the Office of Coastal Zone Management has already developed an administrative process currently employed for the Key Largo Marine Sanctuary that is designed to handle limited permits for these purposes. There are many available easily accessible and suitable areas for tropical specimen collectors to capture tropical fish and invertebrates in south Florida; including shallow inshore areas, inshore coral heads, mid-channel reefs (in the middle of Hawk's Channel), and the entire outer reef. Prohibiting collecting in the Looe Key area would cause limited economic loss to present commercial collectors. When the accessibility of alternative sites, the small size of the proposed sanctuary, and the minimal economic impact, however, are weighed against the administrative cost and burden of establishing a commercial permitting system, commercial permitting does not appear justifiable. From a conservation standpoint, a sanctuary prohibition would protect and enhance the tropical specimen populations at Looe Key, help prevent the depletion of ecologically important species, add to the aesthetics of the sanctuary, and help maintain and enhance the long term E-7 productivity of the Looe Key coral reef for future generations. In addition, the majority of those reviewers who commented on this issue did not support the permitting system for commercial collecting. For these reasons NOAA proposes to prohibit all tropical specimen collecting except by permit for scientific and educational purposes. The proposed regulation, however, does not necessarily exclude all commercial collection. For example, permits could be given for collecting for sale to public aquaria. It is unlikely however that there will be as many applications for this type of permit as there would be for full scale commercial collecting. Section 938.8 of the proposed regulations details the criteria the Assistant Administrator must consider in granting a permit; (1) the general professional and financial responsibility of the applicant, (2) the appropriateness of the methods envisioned to the purpose(s) of the activity, (3) the extent to which the conduct of any permitted activity may diminish or enhance the value of the Sanctuary, (4) the end value of the activity (i.e., if the intended activity is (a) for research related to the resources of the Sanctuary, or (b) to further the educational value of the Sanctuary), and (5) other matters as deemed appropriate. Each permit application will be judged on individual merit. In conclusion, NOAA believes that this regulation will protect the resource, and allow collecting that is consistent with sanctuary goals and limited enough in scope that monitoring and enforcement can be conducted adequately. 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