Florida Keys National Marine Sanctuary 

Annual Report 

July 1, 2003 – June 30, 2004 

 
 1

Introduction and Executive Summary 

On January 28, 1997, the Governor and Cabinet, sitting as the Board of Trustees of the Internal 

Improvement Trust Fund, approved the Florida Keys National Marine Sanctuary (FKNMS) 

management plan for implementation in state waters and adopted a resolution containing 

conditions for that approval. The annual submission of a report of the activities and conditions of 

the Sanctuary to the Board is one of those requirements. This is the seventh of those annual 

reports covering the period of July 1, 2003 through June 30, 2004. The following items describe 

the condition of the resources and the most significant Sanctuary activities during this period. 

Coral Reef Status: Coral reefs declined globally between 1996 and 1999 due to coral bleaching. 

Although mass bleaching has not occurred in the sanctuary since then, Indo-Pacific reefs in some 

areas experienced severe bleaching in 2000 and again in 2002. Recent media attention about this 

worldwide decline of corals has heightened awareness and concern for coral condition in the 

Sanctuary. Therefore, the U.S. Environmental Protection Agency (EPA) and the National 

Oceanic and Atmospheric Administration (NOAA) funded a coral reef monitoring program that 

the Florida Marine Research Institute implemented in 1996. Data from this project show a 38% 

decline in coral cover in the Sanctuary, and a reduction in coral species diversity at most sites 

between 1996 and 1999. Since 1999, coral cover has not declined significantly. However, coral 

cover does not seem to be increasing either, which could indicate a lack of resilience in the coral 

reefs in the Sanctuary. More types of coral diseases are present at more of the monitoring sites 

infecting more coral species; however, there was a decline in two diseases, “white disease” and 

“other disease” between 2002 and 2003. The major contributors to coral reef decline in the 

Florida Keys are degraded water quality, physical impacts and over-fishing. 

Seagrass Status: There has been no change in the overall abundance of seagrasses in the 

Sanctuary, but there was a reduction of seagrasses at 3 of 30 permanent monitoring stations 

during hurricanes in 1998 and 1999. Some of the nearshore monitoring sites showed an increase 

in macroalgae due to an increase in nutrient pollution. 

U.S. Navy Dredging Project Status: In late 2003, the U.S. Navy and U.S. Army Corps of 

Engineers started construction to establish a Homeland Security battleship training group in Key 

West. The project includes dredging of the Key West Main Ship Channel and Harbor, and repair 

of the Truman Mole Pier. Prior to the pier repairs, approximately 3,500 corals were harvested 

from the construction site for transplantation to restoration sites. This project was approximately 

20% complete in June 2004. In April 2004, the hopper dredge, Eagle I, caused impacts to coral 

resources at several locations outside of the permitted channel. Citations were issued for 

damages at four sites for violations of Sanctuary regulations. Additional citations and mitigation 

may be required following receipt of a pending report on the damages from an environmental 

consultant. A corrective action plan for the resource injuries is currently being established. 

Florida Keys Eco-Discovery Center Dedication: In February 2004, local, state, and national 

representatives joined Jim Connaughton, Chairman of the President’s Council on Environmental 

Quality, Congresswoman Ileana Rod-Lehtinen, and ocean explorer Jean-Michel Cousteau in a 

ground-breaking ceremony for the Florida Keys Eco-Discovery Center in Key West. The EcoDiscovery Center will be a world-class visitor center as part of the three-building Dr. Nancy 

Foster Keys Environmental Complex slated to open in 2006. The Eco-Discovery Center is a 
 2

cooperative effort of the FKNMS, the National Park Service, the U.S. Fish and Wildlife Service 

and the South Florida Water Management District. 

“No-Motor” Zones: In January 2004, Walt Stearns highlighted “no-motor” zones in the Florida 

Keys in Saltwater Fly Fishing Magazine with his article “Silencing the Jet Ski Buzz: No Motor 

Zones Enforce Tranquility on Some Florida Keys Flats: Now Anglers and Sanctuary Managers 

Suggest More of Them.” The article highlights a decrease in user conflicts between personal 

watercraft operators and flats fishermen in the FKNMS due to “no-motor” zones. As a result, he 

reports that the guides are recommending the establishment of additional “No-Motor” zones. 

Geodectic Marker Installation at Molasses Reef: The first underwater geodetic marker was 

placed on Molasses Reef in the FKNMS in June 2004. The geodetic marker and the associated 

highly visible surface buoy were installed at the site of the Wellwood grounding, which is now a 

coral restoration project. The marker will allow researchers and scientists to accurately calibrate 

their navigation systems to facilitate monitoring of the restoration project, and to remind boaters 

of the fragile nature of the coral reef system. 

Tortugas Mooring Plan Implementation: The Tortugas Ecological Reserve North mooring 

buoy field has been completed. Twelve surface mooring buoys are available for public use as 

well as 24 sub-surface buoys. 

No Discharge Zone: The state waters of the sanctuary were designated as a “No Discharge” 

zone in June 2002. An education and outreach initiative was launched in the spring of 2003 to 

publicize this designation, and to seek public compliance with the new provision that prohibits 

the discharge of sewage effluent and other pollutants from any watercraft. The public has been 

generally receptive to the new regulation, which is now being enforced. Thirty-one pump-out 

stations, including four mobile pump-out boats, are now available in the Florida Keys, thus 

facilitating compliance with the new regulation and resulting in cleaner sanctuary waters. 

Management Plan Status: The 1992 Congressional re-authorization of the National Marine 

Sanctuaries Act requires the review of sanctuary management plans every five years to monitor 

and evaluate the progress of the mission to protect the natural and cultural resources of national 

significance. The Board also mandated this review in a resolution on January 28, 1997. The fiveyear FKNMS management plan review process began in 2001with public scoping meetings 

throughout the Florida Keys. The revised management plan includes new action plans for 

Administration, and Damage Assessment and Restoration. The revised draft management plan is 

scheduled for availability to the Board and NOAA headquarters in the fall of 2004. 

Status of Action Plan Implementation 

Channel / Reef Marking: Interagency coordination among FKNMS, Monroe County Division 

of Marine Resources (DMR), the U.S. Coast Guard (USCG), the U.S. Fish and Wildlife Service 

(USFWS) and FDEP resulted in a plan to install new channel markers and 3 new lateral aides at 

Niles Channel, and enhance the marking of a seagrass flat adjacent to Whale Harbor Channel. 

Education and Outreach: Highlights in FY 03/04 include: a field trip for 40 teachers and 

students from underserved communities throughout the United States and the Territory of 
 3

American Samoa to provide a hands-on experiences for approximately 1,000 Kindergarten 

through high school students; the awarding of $6,000 in grant funding for teachers in Monroe 

County to develop environmental education projects; providing funding for the production and 

distribution of thousands of high-quality printed and audio-visual materials to more than 430 

businesses for dissemination to the public; and, working with the local dive and snorkel 

community on a new business-based program, Bluestar, which is a voluntary program that 

recognizes operators who demonstrate commitment to protecting the coral reef ecosystem. 

Waterways, an episodic television production, now has select episodes available for downloading 

and viewing from the FKNMS website http://floridakeys.noaa.gov. 

Enforcement: The Florida Fish and Wildlife Conservation Commission (FWC) Sanctuary 

Enforcement Team (SET) continues to excel in law enforcement efforts and proactive 

enforcement actions. The program and agency goals are being fulfilled through organizational 

changes, dedicated staff, improved communication, strong leadership and interpretive 

enforcement. Partnerships continue with other state and federal partners including DEP, NPS and 

NOAA Fisheries. The number of SET law enforcement personnel assigned to the FKNMS has 

remained at seventeen. The 82’ sanctuary patrol cutter Point Monroe was sold and will be 

replaced within twelve months with a 38’ catamaran-hull design vessel that is much faster and 

requires less crew to operate. Through the Cooperative Law Enforcement Exchange Training 

Program, FKNMS hosted law enforcement officers and rangers from Korea and China as well as 

Central and South American countries. 

Groundings: In FY 03/04 there were 466 reported vessel groundings within the FKNMS, a 

majority of which occurred in the upper Keys. This was a reduction from the 647 groundings of 

FY 02/03. 

Mooring Buoys: Over 750 mooring buoys, boundary buoys, and marker buoys are maintained in 

the FKNMS, with the majority in state waters. During FY 03/04 mooring buoys were available 

for public use approximately 97% of the time. The final 12 new mooring buoys for public use 

were installed in the Dry Tortugas Ecological Reserve. A program has been established to 

increase the mooring buoy load-handling capabilities and add larger buoys at 4 reefs designated 

for use by vessels greater than 65 feet in length due to the increased size of vessels using 

Sanctuary mooring buoys. Thirteen new buoys have been added at 8 reefs and three wreck sites. 

Sanctuary staff were hosted by the Columbian government to provide training for their staff and 

to install 30 mooring buoys in their coastal waters. 

Regulation: In FY 03/04, a total of 87 (up from 70 in FY02/03) no-cost, no-paperwork permits 

were issued for non-consumptive use of the Tortugas North section of the DTER. Over 210 

permits have been issued for bait fishing in FKNMS Sanctuary Preservation Areas (SPA). A 

pilot project to allow bait fishing by hair-hook (a highly selective gear type) in three Upper 

Region SPAs was initiated with considerable input from a community working group and the 

Sanctuary Advisory Council. Full implementation of this new permit type is expected in October 

2004. 

Sanctuary permits were issued for research, education, entrance by large ships into the ATBA, 

and other projects to allow environmentally compatible uses of Sanctuary resources as follows: 

two special use permits: one authorization for a restoration project; and, two permits to allow 

coral monitoring and emergency response related to the Navy Key West Harbor Dredging 
 4

Project. Consultation with federal and state agencies on dock and seawall projects, live rock 

aquaculture, and other resource issues continued. 

 

Research, Monitoring, and Water Quality: There are two major monitoring programs in the 

FKNMS: comprehensive, long-term monitoring conducted through the Water Quality Protection 

Program (WQPP); and, the Marine Zone Monitoring Program. Long-term water quality 

monitoring within the FKNMS has provided some important information including elevated 

levels of dissolved inorganic nitrogen in the nearshore waters and high concentrations of 

chlorophyll a, a measure of algal blooms, on the Southwest Florida Shelf. Temporal trends in 

water quality showed that most measures were consistent from year to year, sometimes with 

seasonal patterns. The exceptions were significant increases in total phosphorus concentrations 

and decreases in dissolved oxygen and total organic carbon throughout the region. 

The quantity of oral cover in the area designated as the FKNMS is 7.2%, which is unchanged 

from last year. Seagrass coverage is consistent with model predictions of nutrient-induced 

changes, although changes have not been observed in all regions of the Keys. The changes are 

not spatially consistent, suggesting that local factors are likely responsible. Results of the 

Marine Zone Monitoring Program indicate that some heavily exploited species have greater 

abundance and size in fully protected marine zones than those in other areas. 

Submerged Cultural Resources: Accomplishments for FY 03/04 include issuance of two 

Survey/Inventory Permits, one Research/Recovery Permit, and three Survey/Inventory Permit 

Amendments. Presently there are eight active Survey/Inventory Permits and five active 

Research/Recovery Permits. The Programmatic Agreement between NOAA, the Advisory 

Council on Historic Preservation and the State of Florida for Historical Resource Management in 

the FKNMS was reviewed and renewed and no significant changes were made. A Curatorial 

Services Agreement between the FKNMS and the Mel Fisher Maritime Heritage Society was 

signed for the federally owned Coffin’s Patch 1733 Archaeological Site Collection. The 

Submerged Resource Inventory (SRI) team, consisting of sanctuary volunteers, spent 366 hours 

in survey and inventory of submerged cultural resources within the sanctuary. In collaboration 

with the Historical Preservation Society, a four-and-one-half foot cannon was recovered from a 

site known as Bunn Cannon Patch near Carysfort Reef. The cannon is presently being conserved 

at the Mel Fisher Museum and plans are being made to house the cannon, along with an already 

fabricated gun carriage, at the Key Largo Chamber of Commerce facility. 

Volunteer: FKNMS volunteers supported over a dozen projects including research, stewardship, 

restoration, and environmental education. Volunteers dedicated to resource protection in the 

Florida Keys contributed 6,270 hours during calendar year 2003, a value of $107,781. FKNMS 

Sanctuary Advisory Council member Ken Nedimeyer received one of six nationwide NOAA 

Environmental Hero awards. The sanctuary formally assumed management of its own volunteer 

program. 

Damage Assessment and Restoration: Over 466 vessel groundings were reported in FY 03/04, 

and 86 of those resulted in a seagrass or coral enforcement action requiring injury assessment. 
 5

FKNMS staff, contractors, and volunteers conducted restoration at three coral injury locations 

and two seagrass injury sites. In FY 03/04 one special project was completed expeditiously 

using Ecosystem Management and Restoration Trust Fund (EMRTF) monies under authority 

delegated last year by the Board of Trustees. This project restored approximately 15m2

 of 

orphaned corals and coral framework in the Newfound Harbor SPA. 

Zoning: The marine zoning plan implemented in the sanctuary provides a common sense 

approach to protect sensitive resources while restricting commercial and recreational uses to the 

minimum extent necessary to protect the ecosystem. The results to date have shown that some 

heavily exploited, mobile species of fish have increased in population density and body size 

without any indication of adverse socio-economic impact. 

Administration: The revised draft management plan is scheduled for availability to the Board 

and NOAA headquarters in the fall of 2004. The Florida Keys Eco-Discovery Center, a planned 

world-class visitor center in Key West was dedicated in February 2004. In FY 03/04, six SAC 

meetings were held in the Florida Keys covering a range of topics including water quality 

improvement, wild mammal viewing protocol, various research topics, the Navy dredging 

project, and fisheries. The SAC also participated in four working groups including the Large 

Vessel Working Group, Ballyhoo Working Group, Reauthorization of the National Marine 

Sanctuaries Act Working Group, and Biscayne National Park Fisheries Management Plan 

Working Group. 
 6

Annual Status Report for the 

Florida Keys National Marine Sanctuary 

Review of Action Plans 2003-2004

Channel / Reef Marking

Ongoing management of waterways in the FKNMS requires maintaining a strong interagency 

effort to provide safe access to all multi-use areas of the Sanctuary while maintaining a waterway 

marking strategy that provides natural resource protection. Ongoing coordination between 

FKNMS, Monroe County Division of Marine Resources (DMR), the United States Coast Guard 

(USCG), the United States Fish and Wildlife Service (USFWS), and DEP has provided continual 

improvement in the strategies and outcomes of this action plan. 

In 1998, the DMR completed the Channel Marking Master Plan for the Florida Keys with the 

cooperation and contributions of partnering agencies. The plan was completed following seven 

years of growing concern of impacts to shallow-water resources from boating activities. In 

2003/2004, the DMR installed 3 new lateral aids in shallow water seagrass habitats consistent 

with the plan’s objectives of minimizing prop-damage from boating and improving navigation. 

An internal database is maintained of all newly installed, improved, and maintained markers, and 

a series of GIS maps is updated as necessary. Data from these records are used to identify needs 

for future marking and to update charts and public boating guides as necessary. At this time, the 

DMR considers the recommendations and objectives of the master plan to be complete, however 

the department and the FKNMS will continue to review navigational marking to ensure public 

safety and natural resource protection. (Strategy B.1 and B.4). 

Hurricane Georges caused extensive damage to Marker 24 on the east side of the Looe Key Reef 

in 1998. The marker was replaced in 2000, but the old damaged marker was not removed. In 

2003, the FKNMS with the help of the USCG will remove the storm-damaged marker which 

restss on the spur and groove formations in approximately 25 feet of water. The USCG utilized a 

team of NAVY divers to cut the damaged steel beams and burn rigging holes in preparation for 

removal. (Strategy B.4). 

Education and Outreach 

FKNMS educators met several times with local dive and snorkel businesses to develop Blue 

Star, a voluntary program that recognizes operators who demonstrate commitment to protecting 

the coral reef ecosystem. Many visitors to the Florida Keys are unaware of the sanctuary and the 

rules that affect activities. The goal of Blue Star is to ensure that visitors receive accurate 

information about the sanctuary and coral reef ecosystem, and that they are informed about how 

to protect the natural resources by using good diving and snorkeling practices. The sanctuary 

plans to launch Blue Star at the Diving Equipment & Marketing Association (DEMA) show in 

Houston in October 2004 with presentations and information for participants and media 

attending the show. The vision of the program is that visitors to the FKNMS will seek dive or 

snorkel operators with Blue Star designation. The sanctuary is working with local dive and 

snorkel businesses to determine the type of materials needed for the program. (Strategy E.4)

The FKNMS web site (http://floridakeys.noaa.gov) is continually updated with timely 

information, publications, press releases, regulations, information on research and monitoring 
 7

efforts within the sanctuary, and up-to-the-minute weather information. Through the website, 

members of the public are able to receive vast amounts of printed and graphic information, 

contact sanctuary staff with questions and information requests, and receive responses to their 

inquiries. The total number of “Unique Visitors” in calendar year 2003 was 118,666, or roughly 

26% over the 94,208 recorded in FY 2002. North America supplied the majority of visitors to the 

web site, followed by Europe, Oceania (including Australia, New Zealand, and the South Pacific 

islands), Asia, South America, and Africa. Outside the United States, Canada, the United 

Kingdom, Australia, Mexico, and the Netherlands supply the highest number of visitors to the 

FKNMS web site. (Strategy E.5)

NOAA’s Office of Ocean Exploration and the Girl Scouts of the USA sponsored a Florida Keys 

field experience for six teenage Girl Scouts who learned about the sanctuary, natural and cultural 

resources of the Florida Keys, and ocean exploration. Each scout is required to share with other 

scouts in their hometown what they learned during their experience. FKNMS staff provided 

classroom presentations and hosted snorkeling fieldtrips. (Strategy E.4)

For the fourth year in a row, the Sanctuary partnered with the National Geographic Society and 

the NMSP to sponsor a field experience for 40 teachers and students from underserved 

communities in the United States and Territory of American Samoa. Each teacher chose one 

outstanding student to accompany her/him on the trip. For many of the students and teachers, this 

was a once-in-a-lifetime trip. They learned about the FKNMS, coral reefs, water quality, 

invertebrate zoology and the maritime heritage of the Florida Keys. (Strategy E.4)

The Seagrass Outreach Partnership (SOP) continued its education and awareness efforts to 

address boating impacts on seagrass in the Florida Keys and throughout the State of Florida. In 

addition to a media campaign during Seagrass Awareness Month in March the partners 

developed a display for at five local festivals and events. A new series of posters was also 

developed and distributed throughout the community and added to the Seagrass Toolbox CD. 

Proclamations of “Seagrass Awareness Month” were secured from Monroe County, Key Colony 

Beach, Islamorada - Village of Islands, and the State of Florida - Governor Jeb Bush. (Strategy 

E.4)

Team OCEAN volunteers donated their time to promote safe and enjoyable public use of the 

marine environment of the FKNMS and to advocate protection of its natural resources. Trained 

volunteer teams using sanctuary owned vessels were stationed at heavily visited reef sites during 

peak recreational boating seasons. They educated and informed the public about the FKNMS, 

encouraged proper use of sanctuary resources and practiced basic safety precautions. Many 

groundings occur because boaters are unfamiliar with the need to navigate around reefs instead 

of approaching mooring buoys by motoring directly across the reef. Team OCEAN volunteers 

directly prevent groundings by being present, watching for errant boaters, and waving them off 

when they attempt to cross the shallow reef crest. (Strategy E.4) 

Team OCEAN staff distributes sanctuary materials, charts and brochures along with over 3,000 

brochures with the FWC fishing regulations and serve as liaison between the FKNMS and the 

business community at over 430 locations in South Miami-Dade and Monroe Counties. (Strategy 

E.4) 
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Area 

Volunteer 

Hours 

Days on the 

Water 

Contacts Made New trained 

Volunteers 

Upper Keys 375 55 940 12 

Lower Keys 568 72 505 15 

Total 943 127 1133 30 

Enhancement of existing school programs continued to be a high priority. In FY 03/04 the 

FKNMS provided classroom and on-water environmental education through a two-day program 

called Coral Reef Classroom. Monroe County students in grades 7-9 learned about the 

interrelated coral reef ecosystem, how to use basic water sampling equipment, and why good 

water quality is essential to a healthy coral reef. Over four thousand middle school students have 

participated in the program since 1991. This year, 463 students and 18 teachers experienced the 

complete program, which was made possible by trained community volunteers and chaperones. 

(Strategy E.4) 

Coral Reef Classroom – Interactive Education Experience

Year ‘91 ‘92 ‘95 ‘96 ‘97 ‘98 ‘99 ‘00 ‘01 ‘02 ‘03 ‘04 

Trips 12 8 16 21 16 18 15 15 14 15 15 18 

Students 419 201 345 429 384 438 378 357 363 398 361 463 

Volunteers 12 13 16 17 14 8 5 6 2 3 

Teachers 11 14 11 21 15 14 22 16 12 15 

Chaperones 11 24 31 32 16 22 37 34 32 48 

Other Volunteers 6 8 4 5 13 13 12 11 8 

Every year, the FKNMS works to enhance the resources of local teachers by providing them with 

grant opportunities and teacher workshops. In FY 03/04 the FKNMS awarded environmental 

educational grants totaling $6,000 to Monroe County teachers for eight different projects 

focusing on coral reefs, geology, historical perspectives of the Florida Keys, environmental 

ethics, public service announcements, endangered species, and more. (Strategy E.4) 

FKNMS sponsored a Community Lecture Series featuring lectures by FKNMS staff. The 

lectures were presented in all three geographic regions of the Keys. (Strategy E.4) 

Billy D. Causey Global Climate Change And Florida Keys 

Coral Reefs 

J. Harold Hudson and Anne McCarthy Big and Small We Mend Them All: Reef 

Restoration in the Florida Keys 

David Score and Nancy Diersing Diving Into History: Centuries of Shipwrecks 

FKNMS and partners Save-A-Turtle, National Key Deer Refuge, The Turtle Hospital, Florida 

Sea Grant, The University of Florida Extension Service, and the South Florida Water 

Management District hosted teacher workshops for 40 teachers in the fall and spring. (Strategy 

E.4) 

Teacher Workshop Partners 

FKNMS Seminar for Teachers 

(Fall) 

Florida Sea Grant, The University of Florida 

Extension Service, South Florida Water 
 9

Management District 

FKNMS Seminar for Teachers 

(Spring) 

Save-A-Turtle, National Key Deer Refuge, The 

Turtle Hospital 

FKNMS sponsored the Current Issues station at the South Florida Regional High School 

Envirothon held in Everglades National Park. Thirty teams of students from Miami-Dade and 

Monroe Counties participated in the annual event. This year’s subject was Natural Resource 

Management and the Urban Environment. (Strategy E.4)

The Monroe County Middle School Envirothon and was held at Crane Point Hammock in 

Marathon and sponsored by FKNMS and the Monroe County Environmental Education 

Advisory Council (MCEEAC). Nine teams competed in this hands-on educational field event 

that tests students’ knowledge about the Florida Keys environment. Emphasis is placed on 

teamwork and research initiative. (Strategy E.4) 

Education staff presented lectures, hands-on activities, slide shows, and served as interpreters on 

field trips in support of environmental education opportunities for adults to learn more about the 

Keys’ natural and cultural resources. (Strategy E.4)

Sanctuary staff represented FKNMS and DEP at festivals and trade shows to provide information 

about sanctuary resources. DEMA was held in Miami Beach and the Education Team took the 

lead in planning and staffing the sanctuary’s information booth that, along with other NOAA 

agencies, recorded over 2,000 visitors. Other festivals and events in FY 03/04 were: Miami 

International Boat Show, Earth Day at Bahia Honda State Park and Cheeca Lodge, USCG Safe 

Boating Day in Key West, Upper Keys Nautical Flea Market, Marathon Seafood Festival, Key 

West Nautical Flea Market and Boat Show, and Oceans Day in Tallahassee. (Strategy E.11)

Staff attended professional development classes, training, and conferences to expand their 

knowledge and skill. They have also contributed to and made presentations at local and regional 

training and conferences. (Strategy E.12)

The Florida Keys Birding and Wildlife Festival was held in October 2003 in Marathon. The 

event featured an environmental fair at the Museum at Crane Point Hammock and a series of 

educational programs and field trips about the unique Florida Keys wildlife and environment. A 

Children's Day event at Curry Hammock State Park attracted 350 third-grade students who 

enjoyed hands-on activities about birds, migration, adaptation and habitat needs. MCEEAC 

provided activity leaders and grant money to fund bus transportation for classes. Festival 

membership includes US Fish & Wildlife Service, FKNMS, The Nature Conservancy, National 

Audubon, Florida Audubon, Florida Keys Raptor Migration Project/Hawk Watch International, 

and MCEEAC. (Strategy E.11) 

Education and outreach products were updated and reproduced to provide information to the 

public about the sanctuary, its resources and the regulations. (Strategy E.1) 
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Quantity Printed Name of Product 

60,000 Monroe County Lobster Brochure 

60,000 Teall’s Upper Keys 

60,000 Teall’s Lower Keys 

15,000 Keeping Your Bottom Off The Bottom 

15,000 Yellow Buoy Card 

5,000 Sounding Lines, a quarterly newsletter 

Waterways, an episodic television program exploring the natural treasures of South Florida and 

the Florida Keys is produced through a cooperative effort between the FKNMS, Environmental 

Protection Agency, and Everglades National Park. Over 150 half-hour television episodes of 

have been produced, approximately 10 of those in 2003-2004. Filmed on location, each episode 

includes interviews with local environmental experts who explain the various projects currently 

underway to protect this unique ecosystem. 

Waterways, airs twice weekly in paid spots in Monroe County on Comcast Channel Nineteen, 

weekly on WLRN’s educational channel in northern Monroe, Dade, Broward, and south Palm 

Beach counties, and on fourteen government and educational access stations throughout the state. 

Five new public access stations have added the show since last year’s report: Lee County, the 

University of Central Florida, City of West Palm Beach, the City of Coral Springs and Polk 

County. Due to the show’s high quality and informative subject matter, Comcast often provides 

additional broadcasts of the show free of charge. Several Waterways episodes are also now 

available for viewing and download on the FKNMS website http://floridakeys.noaa.gov. 

Enforcement

The Florida Fish and Wildlife Conservation Commission (FWC) Sanctuary Enforcement Team 

(SET) continues to excel in law enforcement efforts and proactive enforcement actions. The 

program and agency goals are being fulfilled through organizational improvements, dedicated 

sworn staff, streamlined communication, strong leadership and interpretive enforcement. 

Partnerships continue with other state and federal partners including DEP, NPS and NOAA 

Fisheries. 

Per Strategy B.6 additional enforcement officers may be hired and this is recommended by the 

SET as a priority in upcoming years. The budget and the NOAA/FWC Memorandum of 

Agreement allow for future expansion of these positions and other needed SET non-sworn 

personnel. These additional needs were identified for the upcoming FY 04/05. 

The number of SET law enforcement personnel assigned to FKNMS has remained constant at 

seventeen. This includes one new captain who came into command in April 2004, three law 

enforcement lieutenants, one newly created law enforcement investigator (vacant as of July 1, 

2004), ten law enforcement officers (two are currently vacant – November 2004 FWC Academy 

graduates will fill these postions), one duty officer and one marine mechanic position that will be 

filled by a selective interview process after July 1, 2004. (Strategy B.6) 

The 82’ Sanctuary cutter Point Monroe was sold and will be replaced in approximately nine to 

twelve months with a 38’ catamaran-hull design vessel that is much faster and takes less crew to 

operate. This vessel will be assigned strictly to the Dry Tortugas Ecological Reserve (DTER). 
 11

One lieutenant and two crew members will be assigned to the vessel, although per FWC General 

Orders, a lieutenant is not required to run this vessel size class thus making the vessel more 

readily available for response. Currently, a 30’ Manta (a mono-hull vessel) has been converted 

for long-range patrol for the DTER. It is the vision of the SET management to have in place 

both the 30’ long-range Manta and the 38’ catamaran-hull working out of Key West, with 

separate crews for the DTER and Sanctuary Preservation Area (SPA) patrols. Presently, an 

Upper Region SET Squad and Lower Region SET Squad, each consisting of four officers and 

one supervisory lieutenant remain in place. (Strategy B.6) 

Communications improvements have continued with all SET officers now having Nextel phones. 

Nextel radio and cellular capabilities have proven to be a valuable tool in responding to 

groundings and other calls for service within the FKNMS. The dialogue between scientists, 

biologists, engineers and enforcement officials has continued to provide coordination needed for 

vessel groundings and other major/critical issues such as the Key West Harbor Dredging Project. 

(Strategy B.6) 

Per Strategy B.12 cross-deputization is ongoing in all avenues of law enforcement. Partnerships 

continue with other state and federal agencies including DEP, NPS and NOAA Fisheries. 

Discussion has been initiated with the National Park Service to develop an agreement for lodging 

arrangements for DTER enforcement officers on water patrol. In September 2003 sanctuary 

officers presented a class for DEP officers on fisheries identification and how to file cases 

through the federal system as civil violations for seagrass groundings and habitat destruction. It 

is the vision of the SET to continue cross-deputization of NPS and DEP officers so that they may 

enforce the FKNMS Act. 

In June 2004, using coral reef grant funding, NOAA Fisheries transported a 41’ vessel with sidescan sonar and video capabilities from Mississippi to work with the SET in locating illegal fish 

traps and/or structures on the seafloor and conduct mapping exercises in the Gulf of Mexico 

waters of the FKNMS. Fisheries acquired a huge amount of data and completed an array of 

functions and tasks with the assistance of a FKNMS officer. The United States Coast Guard 

(USCG) also continues to assist and routinely work with FKNMS officers and to independently 

enforce sanctuary rules and regulations. (Strategy B.12) 

Through the Cooperative Law Enforcement Exchange Training Program, FKNMS hosted law 

enforcement officers and rangers from Korea and China as well as from nations located in 

Central and South America. The SET provided training and courses about seagrass and coral 

damage assessment, vessel groundings, fisheries identification, GPS Navigation, plotting, 

biology of coral reefs, boating safety, and vessel stops. This unique international exchange of 

law enforcement officers has continued to strengthen since its inception in 2002. 

In FY 03/04 there were 466 (down from 647 in FY 02/03) reported vessel groundings within the 

FKNMS, the majority occurring the Upper Region of the Florida Keys. Of the 466 reported 

groundings, 86 resulted in natural resource injuries that required injury assessments by 

biologists, and 89 were turned over to the State Park and National Park law enforcement. The 

decrease in vessel groundings and activity in the FKNMS is most likely related to weather/wind 

restricting boating and diving activities as well as law enforcement water patrol for 

approximately 4 months. Within Monroe County, moderate to high winds and the resulting 

small craft advisories were persistent from February 2004 through early May 2004. 
 12

Sanctuary officers conducted over 11,000 hours of water patrol (and over 4,000 hours of 

overtime), 8,136 inspections of vessels coming into contact with 25,478 users aboard these 

vessels, and responded to 5,127 complaints from vessels including persons in need of assistance. 

Officers issued 722 boating safety warnings and 484 resource warnings. A total of 319 federal 

citations were issued for various violations, including101 for seagrass damage, eight for coral 

damage, 96 for fishing within a Sanctuary Preservation Area (SPA) and 40 for illegal 

spearfishing. Sixty-three citations were issued for miscellaneous violations such as littering, 

sponging and discharging oil pollutants. One citation was issued for violation of the Area To Be 

Avoided (ATBA) while ten were issued within the Dry Tortugas Ecological Reserve (DTER). 

Year 97 98 99 00 01 02 03 

Groundings 507 549 581 660 605 647 466 

Coral Enforcement Actions 16 21 21 22 6 24 8 

Sea Grass Enforcement Actions 18 32 108 159 122 115 78 

Federal Citations for FKNMS 

Violations 

69 129 168 213 280 407 319 

Warnings 625 401 298 2625 +2000 1284 1308 

Other State and Federal 

Violations 

 495 395 

FWC marked aircraft assisted the FKNMS greatly in locating illegal fishing vessels within the 

SPAs and DTER, logging over 130 hours of flying time used to locate, photograph, assess and 

take accurate coordinates of grounded vessels and persons in violation of the FKNMS Act. 

Marked aircraft have also supplemented and assisted the 30’ Manta in the prevention, detection 

or apprehension of violators within the DTER. Another contributing factor for the decrease in 

violations is the NPS ability to recognize violations and act upon them. This cooperative 

agreement in law enforcement is a continuing success and an important aspect of preservation of 

the FKNMS. 

Statistical information provided within this report was taken from three credible sources: 1) 

FWC CAD dispatch calculation of the number of arrests per officer, 2) ACTIVITYNET, a 

database maintained by FWC and 3) summary settlement information and federal citations. 

Mooring Buoys 

The Mooring Buoy Action Plan is an ongoing commitment that continues to expand and includes 

over 750 Sanctuary Preservation Area (SPA) boundary-buoys, mooring buoys, Wildlife 

Management Area (WMA) buoys and information or danger-warning spar buoys. These 

embedment-anchored buoys are mostly located in State of Florida waters and serve a multitude 

of functions, from preventing anchor damage to providing alternative diving and fishing sites 

away from popular reefs. 
 13

During FY 03/04 mooring buoys were available approximately 97% of the time, replacement 

occurring as necessary following wear due to excessive use or normal wear in a marine 

environment. It is estimated that over 1,000 inspection, maintenance, and installation SCUBA 

dives were made by staff to maintain this level of performance. 

The final 12 new mooring buoys for public use were installed in the Dry Tortugas Ecological 

Reserve (DTER) bringing the total number of usable buoys to 36 (12 surface buoys and 24 

subsurface buoys). The surface buoys in the DTER are rotated periodically among the 36 sites in 

the reserve. Thirteen new buoys were added to the mooring buoy program in the FKNMS across 

8 reef locations and 3 wrecks (Spiegel Grove, Cayman Salvor, Joe’s Tug). Three additional 

mooring pins were added at the Wellwood coral reef restoration site at Molasses Reef for the 

ceremonial placement of the first underwater geodetic marker, and to serve as back up for 

mooring anchors at this very popular dive location. 

 

A program has been established to increase mooring buoy system load-handling capabilities and 

add larger buoys at 4 different reefs designated for use by vessels > 65 feet, due to the increased 

size of vessels using FKNMS mooring buoys. New larger buoys are being installed at the 

corners of the Looe Key Existing Management Area for better management of this zone by 

enhanced visibility. 

The Columbian government and CORALINA (part of the Columbian National Environment 

System) hosted members of the FKNMS mooring buoy maintenance team to San Andres and 

Old Providence Islands, Columbia, to provide training for installation of a mooring buoy system. 

Over 30 buoys were installed in the two island archipelagos, part of a newly established marine 

protected area. 

Regulatory

The Dry Tortugas Ecological Reservce has been fully implemented for over two years. 

Regulations for this area include prohibited entry (unless in continuous transit with fishing gear 

stowed) in Tortugas South and non-consumptive use only in Tortugas North. During FY 03/04, a 

total of 87 no-cost, paperless access permits (up from 70 in FY 02/03) were issued for entrance 

to Tortugas North. 

Baitfish permits, which allow the harvest of specific baitfish species from the Sanctuary 

Preservation Areas (SPA) using a cast or lampara net, are issued in the FKNMS each calendar 

year and are renewed annually upon submission of a catch log. In calendar year 2004, 211 

baitfish permits have been issued to date. At the request of a local fishermen’s organization and 

with input from a community working group and the Sanctuary Advisory Council, a pilot project 

to allow bait fishing by hair-hook (a highly selective gear type) in three Upper Region SPAs was 

initiated. The required federal government approvals under the Paperwork Reduction Act for 

permit issuance were received in February and three permits of this type were issued to local 

captains in early April 2004. Full implementation of this new permit type is expected in October 

2004 with permits being valid for the period October 15 to April 15. 

General Sanctuary permits are issued to support several management goals including research, 

education, and facilitating multiple sanctuary uses. In FY 03/04, 67 permits and amendments 

were issued to support research and monitoring on sanctuary resources and qualities. These are 
 14

further described in the Research, Monitoring, and Water Quality section of this report. Five 

educational permits were issued, largely to assist FKNMS managers in “rescuing” corals that 

would otherwise be destroyed by the Navy Key West Harbor Dredging Project. Many 

institutions in receipt of corals and coral fragments from this area are working collaboratively 

with the sanctuary to return specimens to restoration sites in the future. Education permits also 

supported two university courses. Four permits and one amendment were issued for large 

research vessels to enter the ATBA that surrounds the Florida Keys and Dry Tortugas. One 

permit issued by the South Florida Water Management District (SFWMD) was authorized by the 

FKNMS for restoration of a seagrass bed near Duck Key. Two special use permits were also 

issued for eligible activities; one was a permit renewal to a commercial operator in Key Largo 

for the offshore dispersal of cremated human remains, and the other was to a movie production 

company for the filming of special effects in a major motion picture (Strategy B.11). 

Following the formation of a Personal Watercraft Working Group in February 2000 out of 

growing concerns regarding the operation of personal watercraft in Sanctuary waters, FKNMS 

began a process to establish a permit structure and to assist homeowners in obtaining regulatory 

shoreline markers addressing the 100 yard Idle Speed/No Wake regulation. The process was 

further improved with the issuance of an Army Corps of Engineers Nationwide Permit that 

expedited the approval of the regulatory markers under the FKNMS regulation 922.163 

(Strategies B.4 and B.17). 

In FY 03/04, four individuals contacted the FKNMS to inquire about the process of obtaining 

regulatory shoreline markers addressing the 100-yard Idle Speed/No Wake regulation and 

seventeen buoys and two signs were approved for installation. Of the markers approved in FY 

03/04 ten buoys and two signs have been installed, bringing the total to 59 shoreline marker 

buoys installed to date (Strategy B.4). 

In 2003, the FKNMS worked with the Village of Islamorada to assist in the process of marking 

the entire shoreline of the Village with 100 yard Idle Speed/No Wake regulatory markers 

delineating both residential and non-improved shorelines. Under current FKNMS Idle Speed / 

No Wake regulation, only residential shorelines are regulated. The Village of Islamorada 

enacted a new ORDINANCE NO. 03-10 to include non-improved shorelines as well as 

residential shorelines. 

U.S. Navy Dredging Project: In late 2003 the U.S. Navy and U.S. Army Corps of Engineers 

commenced efforts to facilitate the installation of a Homeland Security battleship training group 

in Key West. The two tiered project consisting of 1) dredging of the Key West Main Ship 

Channel and Harbor and 2) construction repairs to Truman Mole Pier has created a significant 

challenge for FKNMS and DEP staff due to the sensitive nature of the coral reef and seagrass 

resources, and the significance of such a large-scale project. The project is approximately 20% 

complete as of June 2004 and a corrective action plan for resource injuries is being finalized. 

In late 2003, construction repairs to Truman Mole Pier commenced. As a byproduct of the 

repairs to the pier, over 3,500 corals and coral fragments were rescued from projected 

construction impact areas. Over 450 (> 6 inches in diameter) of these corals were transplanted to 

reef restoration sites, grounding sites, Fort Zachary Taylor State Park and patch reefs off the 

FKNMS Lower Region. Another 250 corals (approx.) are presently slated for transplantation. 
 15

The remaining corals and fragments (< 6 inches in diameter) have been donated to coral nursery 

partners, aquariums or scientific research facilities. 

The dredging of the ship channel into Key West Harbor commenced in early spring 2004. 

Despite the year-and-a-half partnering effort in preparation for dredging, the hopper dredge 

Eagle I strayed outside the channel during the early stages of dredging operations in April 2004 

and caused impacts to coral resources at several locations along the channel's edge. Four of 

these injury areas have been cited by FKNMS regulatory actions; injury assessments and 

mitigation plans are pending. 

Throughout the ongoing project, agency staff from FKNMS, Florida Department of 

Environmental Protection (DEP), NOAA Fisheries and EPA reviewed multiple plans and 

provided resource protective measures including vessel captain and crew environmental 

awareness training, mitigation and monitoring plans to detect resource impacts, turbidity 

monitoring protocols with higher protective standards (15 NTUs), and quality assurance/quality 

control contingency programs. 

Research, Monitoring and Water Quality 

There are two major monitoring programs in the FKNMS: comprehensive, long-term 

monitoring conducted through the Water Quality Protection Program (WQPP) and the Marine 

Zone Monitoring Program. The WQPP has been funded by various sources including the EPA, 

NOAA, FDEP, Florida Department of Community Affairs (FDCA), SFWMD, Monroe 

County/Tourism Development Council, and Sanctuary Friends of the Florida Keys. The WQPP 

began in 1994 and consists of status-and-trends monitoring of three components: water quality, 

coral reefs and hard-bottom communities, and seagrasses. Sanctuary-wide status-and-trends 

monitoring is designed to detect large-scale ecosystem changes associated with local sources of 

pollution, as well as Everglades restoration and other regional-scale phenomena (Strategies 

W.20, W.33, W.5). 

 

Long-term water quality monitoring from March 1995 – September 2003 has generated an 

extensive set of data from 33 quarterly sampling events at 154 stations within the FKNMS 

including the Dry Tortugas National Park. This project has produced several important results. 

First, elevated levels of dissolved inorganic nitrogen, an important nutrient, have been 

documented in the nearshore zone of the Keys. This pattern was not seen in the Tortugas, leaving 

land-use as a primary focus of attention. Second, the highest concentrations of chlorophyll a, a 

measure of algal blooms, were measured on the Southwest Florida Shelf, with a strong declining 

gradient toward the Marquesas and Tortugas. This was due to higher concentrations of total 

phosphorus on the Shelf as a result of the southerly flow of water along the western coast of 

Florida. Third, temporal trends in water quality showed that most measures were consistent from 

year to year, sometimes with seasonal patterns. The exceptions were significant increases in total 

phosphorus concentrations and decreases in dissolved oxygen and total organic carbon 

throughout the region. It is important to keep in mind that trends may change, or even reverse, 

with additional data collection (Strategy W.20 and W29). 

The Coral Reef Evaluation and Monitoring Project data for 2003 shows the percent of stony 

corals in the Florida Keys at 7.2%. This is not significantly different from the last sampling year 

(7.4%). Sanctuary-wide, from 1996-2003, for a total of 105 stations, the number of stony coral 
 16

species declined at 76 (72%) stations, increased at 125 (14%) stations, and remained unchanged 

at 14 (13%) stations. A decline in the number of stony coral species was recorded in all habitat 

types surveyed. 

In 1996, coral disease was observed at only five stations Sanctuary-wide. By 2002, coral disease 

was observed at 102 stations. Incidences of stony coral disease were reported for 95 stations in 

2003. Specifically in 2003, white disease occurred at 72 stations, “other disease” was recorded 

at 89 stations, and Black Band Disease was recorded at seven stations. There were declines in 

two categories of disease between 2002 and 2003. (Strategy W.33). 

Data from the seagrass monitoring project indicate changes in seagrass communities that are 

consistent with model predictions of nutrient-induced changes of these systems. At several 

nearshore sites in the Florida Keys, there has been an increase in the relative abundance of 

macroalgae over the period 1995 - 2003 that is consistent with an increase in nutrient availability 

as shown in the nearshore water quality data mentioned above. In addition to these sites where 

relative abundance of primary producers has changed, there have been long-term shifts in the 

ratio of nitrogen to phosphorus in seagrass leaves that are consistent with increases in nutrient 

availability. These changes have not been observed in all regions of the Keys, suggesting that 

local-scale factors likely are responsible. There have been no spatially consistent patterns of 

change in the relative abundance of seagrass species throughout the FKNMS, though there have 

been large changes at some locations between 1996 and 2003. The seagrass bed that carpets 80% 

of the FKNMS is part of the largest documented contiguous seagrass bed on earth (Strategy 

W.33). 

Results of the Marine Zone Monitoring Program indicate that some heavy exploited species 

exhibited differences in abundance and size between fully protected marine zones (FPMZs) and 

reference sites. In 1997, there was little difference between the number of spiny lobsters in 

FPMZs and reference sites, but after six years of protection there were almost twice as many 

lobsters inside FPMZs as outside. Legal-sized lobsters were very abundant on the fore reef at the 

Western Sambo Ecological Reserve and Eastern Sambo Research-Only Area. Since 1999, 

abundance of legal-sized lobsters has always been greater in those FPMZs than in their 

respective reference areas. In general, mean lobster size was below the legal limit in FPMZs and 

reference areas in 1997. Since then, mean lobster size in FPMZs has been larger than legal size 

and comparatively larger than in reference areas. It appears that a residential population of spiny 

lobsters is becoming established within the Western Sambo Ecological Reserve. The expansion 

of lobster size range in this ecological reserve suggests that some of the lobsters remain there for 

an extended period. Habitat for all life stages of spiny lobsters is protected within the reserve. 

Once adults establish residence, the ecological reserve is sufficiently large to protect a portion of 

the population as it travels to foraging grounds and between winter dens and spring spawning 

habitat. Since no-take protection was initiated in 1997, significant density increases were 

observed for several exploited reef fish species in FPMZs compared to fished reference areas. 

Among exploited species, mean densities were higher in FPMZs for Gray Snapper, Black 

Grouper, and Yellowtail Snapper. In contrast, concordance was observed in changes in density 

between FPMZs and reference areas for Stoplight Parrotfish and Striped Parrotfish, two species 

not directly exploited (Strategy Z.2 and Z.3). 
 17

The Sanctuary staff hosted several tours and fact-finding missions for visitors from around the 

world, presented papers and posters at scientific workshops, and represented the FKNMS on 

committees and scientific working groups (Strategies W.29, W.33). 

The Sanctuary issued 60 permits and 7 permit amendments to support research in the Florida 

Keys from July 2003 through June 2004. Permit holders were largely university researchers, but 

also included government agencies, students, and private industry. Newly permitted projects and 

ongoing research focus on areas ranging from coral reef studies (disease and bleaching, 

community structure, reproductive success, and others), coral propagation and reef restoration, 

fisheries and invertebrate studies, marine mammal studies, seagrass monitoring, marine protected 

area design and effects of no-take management, nutrient dynamics, oceanography, and many 

others (Strategy B.11). 

In 2004, a request for proposals was published for the Special Studies research program in the 

Sanctuary to: 1) identify and document cause and affect linkages between specific pollutants, 

water quality problems, and ecological impacts; 2) improve understanding of Sanctuary 

ecosystems and develop predictive capabilities based on that understanding; and 3) develop 

monitoring and research tools to detect pollutants, provide early warning of widespread 

problems, and identify cause and effect relationships. 2004 priority topics were: 1) recruitment 

and survival of marine species; 2) decline in coral abundance, coverage, and species diversity; 3) 

distribution and abundance of pathogenic bacteria, viruses, and other pathogens; and 4) effects of 

management actions on abundance and distribution of marine organisms. 

Research projects were selected for funding beginning in October 2004 and include tracking of 

lobster movements in the Dry Tortugas Ecological Reserve, the impacts of mosquito spray 

pesticides on conch larval growth and development, and a pilot-scale project to look for 

endocrine disrupting compounds and other pharmaceuticals in nearshore waters. Funding for 

monitoring projects will be from EPA and NOAA. Funding for research will be from EPA 

($50K), SFWMS ($100K), and NOAA ($50K). (Strategies F.6, W.20, and W.33). 

The City of Key West and Monroe County continue to make important progress on clean water 

issues. The city is actively implementing replacement of leaking main and secondary sewer 

lines, and working toward stormwater improvements as part of a plan approved by the Water 

Quality Protection Program Steering Committee. Monroe County is slated to receive $4 M in 

appropriated funds from the State of Florida for wastewater improvements throughout the 

county. Additional funds have been authorized, but not yet appropriated from the federal 

government as well (Strategy W.4). 

The second year of the No Discharge Zone in State waters was a success. The No Discharge 

Zone was implemented in June 2002 in all state waters of the FKNMS at the request of Governor 

Bush. The purpose of the no discharge zone is to help protect and preserve water quality and the 

unique marine resources of the FKNMS from discharges from vessels. An education and 

outreach initiative was launched in spring of 2003, and the majority of the public at-large has 

been receptive of the new regulation. The initiative held one public workshop and another is 

presently scheduled. About 31 pump out stations are now available for use located throughout 

the Florida Keys, including four mobile pump-out boats and plans for a fifth. The county is also 

working with marinas and affiliated businesses in applying for Clean Vessel Act grants for more 

pump out services and sewage management. Enforcement of the no discharge zone is a 
 18

combined effort of State, federal, and local law enforcement officers. Monroe County and the 

City of Key West have also installed mooring buoys in some harborages that will help in the 

implementation of the pump-out requirements (Strategy B.7). 

Submerged Cultural Resources (SCR)

A Programmatic Agreement between NOAA, the Advisory Council on Historic Preservation, 

and the State of Florida for Historical Resource Management in the FKNMS, hereafter referred 

to as the Programmatic Agreement (PA), was executed on June 29, 1998. Section V.2. of the 

agreement provides for periodic reporting to the Advisory Council on Historic Preservation 

(ACHP). As the agreement was implemented over the five-year term, significant strides were 

made in the comprehensive management of SCRs within the Sanctuary. This report summarizes 

the key activities performed under the agreement and provides a general overview of newly 

discovered historic sites, as well as other issues related to historical resource management in the 

sanctuary. 

In keeping with the NMSA and FKNMSA mandate to facilitate multiple compatible uses of 

sanctuary resources, the PA has been renewed after a five-year execution period. This agreement 

provides for survey, inventory, research and recovery of submerged cultural resources within the 

FKNMS. Staff time includes review of permit requests, cataloging and dissemination of permit 

activity reports, development and maintenance of a permitting database to track SCR permit 

sites and activities, and evaluation of excavation techniques in relation to impacts on natural 

resources. No significant changes were made to the PA during the review and renewal period. 

In January 2004 the renewal of the Curatorial Services Agreement Between DOC, NOAA, NOS, 

NMSP, through the FKNMS and the Mel Fisher Maritime Heritage Society was signed for the 

federally owned COFFINS PATCH 1733 archaeological site collection. The agreement provides 

for the professional care, management and repository facilities and proper display or storage of 

the collection. The collection is currently on display at the Mel Fisher Maritime Museum in Key 

West. The museum was accredited by the American Association of Museums in January 2004, 

and attracts almost 200,000 visitors annually, making it the most attended history museum in the 

Southeast. 

In FY 03/04 FKNMS issued two Survey and Inventory (S/I) Permits, three S/I permit 

amendments, and one Research and Recovery (R/R) Permit. There are currently eight active S/I 

Permits and five active R/R Permits. 

In August 2003 a research plan supported by the FKNMS Upper Region was implemented to 

document the wreck of the 19th century side-wheel steamer Menemon Sanford. Under Sanctuary 

Permit FKNMS-2003-019 the Maritime Archaeological Research Initiative (MARI) was issued a 

Survey and Inventory Permit to map and document the Menemon Sanford shipwreck, located in 

the vicinity of Carysfort Reef. Wood samples were recovered for the purpose of anatomical 

identification that will provide valuable data regarding original construction of the vessel. A site 

plan will be generated, supplemented by photo and video documentation. The survey goals are 

to identify and assess the historical and cultural significance of the site as a possible nominee for 

the National Register of Historical Places. 
 19

In July 2003, the Maritime Archaeological and Historical Society (MAHS), in cooperation with 

the FKNMS, conducted an underwater archaeology field school at a shipwreck site located at 

Grecian Shoals and believed to be the lost American Bark Excelsior. The primary objective of 

the field school was to train volunteer SCUBA divers in submerged site mapping and 

documentation techniques. Students were taught how to use the trilateration survey method to 

create a scale drawing of the site and locate its principle features. The completed site drawing, 

archives and field research documents have been provided to the FKNMS. 

A four-and-one-half foot cannon, one of 13 cannons from a site known as the Bunn Cannon 

Patch at South Carysfort Reef off North Key Largo, was recovered in October 2003 under the 

FKNMS Manager’s Permit. The cannon may yield valuable clues about the ship that once 

carried it. The site has been extensively documented since 1993 and FKNMS consulted 

extensively with the State of Florida Division of Historical Resources and NMSP archeologists 

about recovery operations. The National Undersea Research Center assisted in the recovery with 

its research vessel Sabina. The Mel Fisher Maritime Heritage Museum is conserving the cannon, 

and the sanctuary is working with the Key Largo Chamber of Commerce to arrange for a 

permanent display.

Volunteer

People are an integral part of the Florida Keys ecosystem. Ultimately, protecting the FKNMS 

requires that local residents take responsibility and participate in its protection. Recognizing this, 

the State of Florida, NOAA and The Nature Conservancy (TNC) seize opportunities to work in 

partnership with individuals and communities in environmental problem solving. This strategy 

encourages a growing conservation ethic in the Florida Keys and results in solutions that benefit 

humans as well as the greater ecosystem. 

TNC has been FKNMS’s partner in volunteerism since 1992. Under their expert guidance, a 

Keys-wide volunteer program was developed that has provided over 170,000 volunteer hours (a 

$2.8 million dollar value) over the past twelve years. The sanctuary formally assumed 

management of its own volunteer program in spring 2004, and continued insurance coverage for 

volunteers (Workmans Comp) through NOAA. 

Volunteer activities supporting the FKNMS management plan include: Coral Reef Classroom 

and Team OCEAN (Strategy E.4), Submerged Cultural Resources Inventory (Strategy R.1), 

Adopt-A-Reef, and a FKNMS partnership with The Ocean Conservancy. Volunteers contribute 

greatly to protection of sanctuary resources through reef cleanups, assisting with slide libraries 

and providing support for office and marine services staff. Volunteers dedicated to resource 

protection in the Keys contributed 6,270 hours during calendar year 2003, a value of $107,781. 

Organization Project Volunteer Hours

Florida Fish and Wildlife 

Conservation Commission 

(FWCC) 

Queen Conch Restoration 

Program 

668.5 

The Nature Conservancy Florida Keys Watch 127 

The Nature Conservancy Green Sweep 359.5 

The Nature Conservancy Diadema Restoration Project 567.5 
 20

The Nature Conservancy Special Projects 165.5 

FKNMS Adopt-A-Reef 240 

FKNMS Coral Reef Classroom 190.5 

FKNMS Submerged Resources 

Inventory 

1104 

FKNMS Team O.C.E.A.N. 942.5 

FKNMS Special Projects 386 

FKNMS Reef Medics 361 

FKNMS Sanctuary Advisory Council 

members attendance at 

regular SAC meetings 

912 

FKNMS Sanctuary Advisory Council 

members attendance at 

Working Group meetings 

346 

TOTAL 6270 

The FKNMS Sanctuary Advisory Council members participated in six regular meetings and 

served on the following Working Groups: Large Vessel, Ballyhoo, Reauthorization of the 

National Marine Sanctuaries Act, and the Biscayne National Park Fisheries Management Plan. 

SAC member Ken Nedimyer received one of six nation-wide NOAA Environmental Hero 

awards.

Damage Assessment and Restoration 

Of 466 groundings in FKNMS in FY 03/04, 86 of those resulted in a seagrass or coral 

enforcement action requiring some form of injury assessment. FKNMS staff, contractors, and 

volunteers conducted restoration at three coral injury locations and two seagrass injury sites. In 

FY 03/04 one special project was completed expeditiously using Ecosystem Management and 

Restoration Trust Fund (EMRTF) monies under authority delegated last year by the Board of 

Trustees. This project restored approximately 15m2

 of orphaned corals and coral framework in 

the Newfound Harbor SPA. 

There were two instances of illegal dumping in state waters within the sanctuary that also 

required injury assessment. One of the illegal dumping cases required immediate removal of 

debris, which was funded by NOAA Damage Assessment and Restoration Revolving Fund 

monies. 

FY 03/04 was highlighted by sanctuary-wide coral rescue efforts. In cooperation with the U.S. 

Navy and U.S. Coast Guard, staff from the damage assessment and restoration program worked 

to remove over 3,500 coral colonies and fragments from the Truman Mole Pier. Several hundred 

of the coral colonies were transplanted to restoration sites in Looe Key SPA and Western 

Sambos Ecological Reserve. Another coral rescue effort at Looe Key saved approximately 50 

coral colonies from the beams of an old reef marker that was being scuttled. Sanctuary wide 

restoration efforts also included the stabilization of orphaned coral injuries at six sites in the 

Upper Region using federal grant money and assistance from sanctuary volunteers. 

The first underwater geodetic marker was placed on Molasses Reef in the FKNMS in June 2004. 

The geodetic marker and the associated highly visible surface buoy, were installed at the site of 
 21

the Wellwood coral restoration project. The marker will allow for researchers and scientists to 

accurately calibrate their navigation systems for monitoring of the restoration project, and 

remind boaters of the fragile nature of the coral reef system. 

Zoning

The marine zoning plan implemented in the sanctuary provides a common sense approach to 

protect sensitive resources, while restricting commercial and recreational uses only to the 

minimum extent necessary to protect the ecosystem. The results to date have shown that some 

heavily exploited, mobile species have increased in population density and body size without any 

indication of adverse socio-economic impact.

As discussed previously in the mooring buoy section, the FKNMS maintains, installs, and assists 

in establishing markers and buoys for the existing Wildlife Management Areas (WMA), 

Sanctuary Preservation Areas (SPA), Special-Use Areas (Research Only) and Ecological 

Reserves. In FY 03/04 the team maintained 120 WMA boundary buoys and 123 

SPA/ER/Special-use boundary buoys. It was discovered that the one of the boundary buoys 

delineating the Newfound Harbor Sanctuary Preservation Area (SPA) did not match the 

coordinates in the Federal Register for that location, and was protecting only 73% of the SPA. 

The buoy was moved to correct this oversight, which enhanced the protection of coral, seagrass, 

and hardbottom habitat. No new zones were established in FY 03/04. (Strategies Z.2, Z.3, Z.4 

and Z.5) 

In January 2004, contributing writer Walt Stearns highlighted no-motor zones in the Florida 

Keys in Saltwater Fly Fishing Magazine with his article “Silencing the Jet Ski Buzz: No Motor 

Zones Enforce Tranquility on Some Florida Keys Flats: Now Anglers and Sanctuary Managers 

Suggest More of Them.” The article highlights a decrease in user conflicts between personal 

watercraft users and flats fisherman on many flats in the FKNMS due to no-motor zones, and 

that guides are amenable to the idea of more in the Florida Keys. 

Administration 

The 1992 Congressional re-authorization of the National Marine Sanctuaries Act requires 

sanctuaries to review their management plans every five years to monitor and evaluate the 

progress of the mission to protect the natural and cultural resources of national significance. The 

Board also mandated this review in a resolution on January 28, 1997. The management plan 

review process began in 2001 with public scoping meetings held throughout the Florida Keys. 

The revised management plan includes new actions plans for Administration, and Damage 

Assessment and Restoration. The revised draft management plan is scheduled for availability to 

the Board and NOAA headquarters in the fall of 2004. 

In February 2004, local, state, and national representatives joined by President Bush’s 

environmental advisor Jim Connaughton, Congresswoman Ileana Rod-Lehtinen, and ocean 

explorer Jean-Michel Cousteau participated in a dedication of the Florida Keys Eco-Discovery 

Center in Key West. The Eco-Discovery Center will be a world-class visitor center facility, part 

of the three-building Dr. Nancy Foster Keys Environmental Complex slated to open in 2006. 

The Eco-Discovery Center is a cooperative effort of the FKNMS, the National Park Service, the 

U.S. Fish and Wildlife Service and the South Florida Water Management District. 
 22

The FKNMS Sanctuary Advisory Council (SAC) was established to provide advice to Sanctuary 

managers regarding management of the Florida Keys National Marine Sanctuary. The SAC 

consists of appointed members and include representatives of commercial and recreational user 

groups (i.e. commercial and recreational fishermen, the dive industry, and the boating industry), 

conservation and other public interest organizations, scientific and educational organizations, and 

members of the public interested in the protection and multiple use management of Sanctuary 

resources. In FY 03/04, 6 SAC meeting were held in the Florida Keys covering a range topics 

including water quality improvements, wild mammal viewing protocols, various research topics, 

the Navy dredging project, and fisheries issues. The SAC also participated in four working 

groups: Large Vessel Working Group, Ballyhoo Working Group, Reauthorization of the 

National Marine Sanctuaries Act Working Group, and Biscayne National Park Fisheries 

Management Plan Working Group. The SAC also hosted FWC commissioners and the National 

Marine Protected Areas Technical Advisory Committee to Sanctuary Friends of the Florida 

Keys-sponsored mixers, and attended a Volunteer Recognition reception hosted by The Nature 

Conservancy and attended by James L. Connaughton, Chairman of the President’s Council on 

Environmental Quality.