Case Studies - Florida Keys National Marine Sanctuary
History of Preservation Efforts
Managing the National Marine
Sanctuary
Ongoing Resource Management
Issues
References
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Few marine environments in the United States compare to the
Florida Keys in natural beauty and resource diversity. An
island chain on the southern tip of the Florida peninsula,
the Keys are surrounded by the Atlantic Ocean to the south,
and Florida Bay and the Gulf of Mexico to the north. They
stretch 202 miles (356 km) to the south and west, ending 90
miles north of Cuba. On the ocean side, adjacent to the island
chain, lies North America’s only living coral barrier
reef. This reef system is the most extensive living coral
reef in the U.S. and is the third largest barrier reef in
the world (FKNMS, 2001). It is part of
a productive marine ecosystem that includes patch and bank
reefs, seagrass meadows, soft and hard bottom communities,
and coastal mangroves. This matrix of interconnected habitats
supports one of the most biologically diverse assemblages
of marine life in North America (DOC,
1996).
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The reef
system in the Florida Keys is the third largest barrier
reef in the world. It is part of a productive marine ecosystem,
made up of a matrix of interconnected habitats, which
support one of the most biologically diverse assemblages
of marine life in North America. Shown here are brain
coral and a sea fan. (Source: National Marine Sanctuary
Photographer: Stephen Cook)
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History of Preservation
Efforts
The Florida Keys have been a popular destination for explorers,
scientists and tourists for centuries. However, their popularity
has led to pollution of the marine ecosystem and overuse of
resources. Signs of anthropogenic degradation in the Keys
became apparent several decades ago. Corals were being damaged
and water quality was suffering. Many began to recognize that
the Keys’ environment and resources were fragile and
needed protection before they were damaged beyond repair (FKNMS,
2001).
In 1957, a group of conservationists and scientists met to
discuss the state of the coral reefs and other marine resources
in the Keys. This conference resulted in the creation of the
nation’s first underwater park in 1960—the John
Pennekamp Coral Reef State Park (DOC,
1996). Despite the establishment of this park, pollution,
over-harvesting of resources, physical impacts, and other
conflicts continued to plague the Keys. Additional management
efforts were initiated when the public began to call for more
protection. Thus, the Key Largo National Marine Sanctuary,
which is adjacent to Pennekamp Park, was established in 1975,
and the Looe Key National Marine Sanctuary was established
in 1981 (DOC, 1996). Though these
two marine sanctuaries encompassed only a small fraction of
the Keys’ marine environment, they represented an important
step in protection for the region.
Yet, threats to the coral reef ecosystem continued. Proposed
oil drilling in the mid- to late 1980s and reports of deteriorating
water quality throughout the region surfaced as scientists
were assessing rates of coral bleaching, seagrass die-offs,
declines in reef fish populations and the spread of coral
diseases (DOC, 1996). The final insult
came in the fall of 1989 when three large ships ran aground
on the coral reef within an 18-day period, destroying critical
reef habitat. The cumulative impacts of these events prompted
U.S. Rep. Dante Fascell and U.S. Sen. Bob Graham to introduce
bills in November 1989, calling for more protection of the
area. Congress passed the bi-partisan bill with little resistance,
and on Nov. 16, 1990, President George Bush signed the Florida
Keys National Marine Sanctuary and Protection Act into law
(DOC, 1996). The act designated approximately
2,800 square nautical miles of state and federal waters in
the Keys as the Florida Keys National Marine Sanctuary.
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Three
species of seagrass are prominent in the Keys: turtle
grass—the most extensive—manatee grass and shoal
grass. (Source:Florida Keys National Marine Sanctuary)
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Managing the National
Marine Sanctuary
Following the sanctuary designation, representatives of the
newly formed Sanctuary Advisory Council, members of the public,
and federal, state, and local agency officials worked to assemble
a management plan for the sanctuary (Barley,
1993). Important issues addressed in the management plan
came from several sources, including technical workshops,
public meetings and surveys, and Sanctuary Advisory Council
members.
During the six years it took to complete the management plan,
participants encountered both support and opposition from
the Florida Keys community. Those who opposed the sanctuary
feared excessive regulations, economic losses, and possible
displacement of traditional users and uses (Suman,
1999). The community was interested in improving water
quality, but it also was concerned about possible restrictions
placed on boating activities, commercial and recreational
fishing, recreational use of cultural and historical resources,
and general land use (DOC, 1996).
Because the management design process included unprecedented
public involvement, it was developed with all of these concerns
in mind.
After conducting a thorough analysis of five different management
alternatives and seeking extensive public comment, the preferred
(and current) management plan was selected because it most
closely met the resource protection goals of the National
Marine Sanctuary Act and the Florida Keys National Marine
Sanctuary and Protection Act. Yet, it still allowed public
use of the sanctuary. It also recognized the role of federal,
state and local management authorities in meeting sanctuary
objectives (DOC, 1996).
One innovative component of the sanctuary management plan
is the combination of sanctuary-wide regulations with a system
of marine zoning. Approximately 6 percent of the sanctuary
is set aside as fully protected zones known as ecological
reserves, sanctuary preservation areas and special use areas.
Stringent restrictions on harvesting marine life and harming
natural resources govern these zones to ensure their long-term
survival. Twenty-four fully protected zones exist within the
sanctuary. They protect critical habitat, preserve species
diversity and relieve pressure from some coral reef areas.
In 2001, the Tortugas Ecological Reserve was established to
complete the sanctuary zoning scheme outlined in the management
plan. This new reserve helps protect fish stocks in the Tortugas,
ensuring the stability of commercial and recreational fisheries.
Vessel discharges and anchoring activities are restricted
in this zone to protect water quality and habitat. Scientists
hope that the reserve’s geographical isolation will help
them distinguish between natural and human-caused changes
to the coral reef environment (DOC, 2000).
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The swath
of a boat propeller is clearly visible in this Florida
Keys seagrass bed. (Source:Harold Hudson, Florida Keys
National Marine Sanctuary)
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The sanctuary also includes 27 wildlife management
areas that protect sensitive wildlife habitats by restricting
public access. Finally, the sanctuary encompasses 20 existing
management areas, which are managed by other agencies. Such
areas include national parks, national wildlife refuges, state
parks and aquatic preserves. In the remaining unzoned portions
of the sanctuary, management activities focus on improving
water quality and protecting habitat (FKNMS,
2001).
The sanctuary also enforces specific regulations that protect
and preserve ecological, recreational, research, educational,
historical and aesthetic resources, and aim to minimize conflicts
among users. These regulations pertain to boating, fishing,
submerged land use, submerged cultural resource use and recreational
activities. The sanctuary implements several techniques to
ensure that these regulations are followed. For example, frequently
used channels, no-wake areas and shallow reefs are marked
with highly visible buoys that warn boaters of critical areas
and help them avoid groundings, propeller damage, or other
injury to corals, seagrasses and the seabed. The buoys help
to reduce boat wakes in sensitive habitats, areas vulnerable
to erosion, and high-density areas like marinas.
In addition, the sanctuary employs mooring buoys in areas
of high recreational use. Instead of dropping anchors that
can potentially damage reefs or the seabed, boats can tie
up to these buoys to let passengers snorkel or SCUBA dive
(DOC, 1996). Techniques for managing
water quality include establishing no-discharge zones—areas
where vessels are not allowed to discharge wastes—and
establishing mobile pump-out services that remove wastewater
from vessels located outside of marina facilities (DOC,
1996).
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Mooring
buoys are important management devices to protect coral
reefs from the damaging impacts of boat anchors. (Source:Laura
Urian, Florida Keys National Marine Sanctuary)
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The sanctuary relies on an extensive education
program to ensure protection of the Keys’ resources.
Education and outreach efforts are aimed primarily at tourists,
recreational users, residents and students. Education campaigns
focus primarily on managing boating, fishing, SCUBA diving
and snorkeling because these activities have the potential
to seriously damage coral and seagrasses if they are conducted
carelessly.
Finally, research and monitoring activities are critical components
of the sanctuary’s primary goal of resource protection.
Research and monitoring activities have helped scientists
establish baseline information for various components of the
ecosystem. Using this information, scientists can study cause
and effect linkages and direct research to determine the reasons
for reef decline. Among other studies, scientists are conducting
a zone monitoring program, which tracks and compares ecological
changes inside and outside of the fully protected zones. They
also are monitoring the health status and trends of corals,
seagrasses and water quality under the Water Quality Protection
Program (FKNMS, 2001).
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Ongoing Resource Management Issues
Despite active management, the sanctuary continues to face
declines of healthy coral. Rates of coral disease and bleaching
are increasing, and algae is increasingly invading seagrass
beds and coral reefs. Overfishing, reduced freshwater inflow
from Florida Bay, inadequate wastewater and stormwater management,
damage to coral from careless boaters and divers, and occasional
large ship groundings all continue to challenge managers (FKNMS,
2001).
The future of sanctuary management will depend on the outcome
of a five-year management plan review, which currently is
underway and scheduled for completion by July 2002. The five-year
review will allow managers to adjust the management plan as
needed and possibly eliminate management strategies that are
no longer relevant.
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Repairing
coral damage in the Florida Keys. (Source:Florida Keys
National Marine Sanctuary)
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References
Barley, G. 1993. The Florida Keys Example
From An Activist Citizen’s Point of View. Oceanus. 36(3).
Florida Keys National Marine Sanctuary
(FKNMS). 2001. The Florida Keys National Marine Sanctuary's
Web site. www.fknms.nos.noaa.gov.
National Marine Sanctuaries (NMS). 2001.
The National Marine Sanctuary Program’s Web site. www.sanctuaries.nos.noaa.gov.
Suman, D., M. Shivlani and J. Milon. 1999.
Perceptions and Attitudes Regarding
Marine Reserves: A Comparison of Stakeholder Groups in the
Florida Keys National Marine Sanctuary. Ocean & Coastal
Management: 42.
U.S. Department of Commerce (DOC).
1996. Strategy for Stewardship: Florida Keys National Marine
Sanctuary Final Management Plan/Environmental Impact Statement.
3 volumes.
U.S. Department of Commerce (DOC).
2000. Strategy for Stewardship: Tortugas
Ecological Reserve Final Supplemental Environmental Impact
Statement/Final Supplemental Management Plan. 310 pp.
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