The consideration of temporal and geographic zoning to ensure protection of Sanctuary resources is mandated under Section 7 (a) (2) of the Florida Keys National Marine Sanctuary and Protection Act. Marine zoning is a management tool that has been used around the world to protect sensitive marine resources from overuse and to separate conflicting visitor uses. Marine zoning is being implemented in the Florida Keys National Marine Sanctuary to assist in the protection of the biological diversity of the marine environment in the Keys. In addition, marine zoning will disperse uses of the resources in such a way as to reduce user conflicts and lessen the concentrated impact to marine organisms on heavily used reefs. As a management tool, marine zoning allows the sanctuary to focus the majority of its management efforts on a small portion of the sanctuary while addressing water quality and habitat degradation in the broader unzoned portions of the area.

In addition to the Existing Management Areas in the Keys (national wildlife refuges, state parks, etc.), Wildlife Management Areas, Ecological Reserves, Sanctuary Preservation Areas, and Special-use Areas are established to ensure protection of Sanctuary resources. Each of these zone types is designed to reduce damage to resources and threats to environmental quality, while allowing uses that are compatible with resource protection. The zones will protect habitats and species by limiting consumptive and/or conflicting user activities, and allowing resources to evolve in a natural state, with minimum human influence. This plan outlines the process for establishing the zones. Prioritizing zone marking, marking zone boundaries, and managing zones are also each discussed.

The term Ecological Reserves replaces the term Replenishment Reserves in the FMP/EIS. NOAA has changed the name to reflect public concerns over the purpose of these areas, however, the objective and definition of this zone type remains the same. The main purpose of Ecological Reserves is to protect biodiversity by setting aside areas with minimal human disturbance. These zones will serve to protect and enhance the spawning, nursery or permanent resident areas of fish and other marine life. Hundreds of marine species are not protected by any form of management and the Ecological Reserves will provide protection and allow areas to return to their natural state. These areas will additionally protect the food and home of commercially and recreationally important species of marine life. The objective and definition of this zone type remains the same.

The five zone types which will be implemented in the Sanctuary are:

Wildlife Management Areas. These areas are established to minimize disturbance to especially sensitive wildlife populations and their habitats to ensure protection and preservation consistent with the Sanctuary designation and other applicable laws governing the protection and preservation of wildlife resources in the Sanctuary. Such areas would include bird nesting, resting, or feeding areas and turtle nesting beaches. Regulations governing access are designed to protect endangered or threatened species or their habitats, while providing opportunities for public use. Access restrictions include no-access buffer zones, no-motor zones, idle speed only/no wake zones, and closed zones. Twenty of the twenty-seven areas are under the management of the U.S. Fish and Wildlife Service and are contained in this plan as an integrated ecosystem management approach to resource protection. These areas are located within the Great White Heron, Key West, Key Deer, and Crocodile Lakes National Wildlife Refuges managed by the U.S. Fish and Wildlife Service.

Ecological Reserves. These areas are designed to encompass large, contiguous diverse habitats. They are intended to provide natural spawning, nursery, and permanent residence areas for the replenishment and genetic protection of marine life and to protect and preserve all habitats and species particularly those not protected by fishery management regulations. These reserves are intended to protect areas that represent the full range of diversity of resources and habitats found throughout the Sanctuary. The intent is to meet these objectives by limiting consumptive activities, while continuing to allow activities that are compatible with resource protection. This will provide the opportunity for these areas to evolve in a natural state, with a minimum of human influence. These zones will protect a limited number of areas that provide important habitat for sustaining natural resources such as fish and invertebrates.

The following is a list of criteria that was developed by the Sanctuary Advisory Council. These criteria were used to site the proposed Ecological Reserves in the DMP/EIS and were reconsidered along with public comment for this final plan.

• Consider areas of high habitat and species diversity representative of the Florida Keys marine ecosystem.
• Consider environmental and socio-economic impacts on other areas resulting from displacing existing uses.
• Consider long-term impacts from establishing ecological reserves in areas of critical economic value.
• Consider areas with good water quality.
• Consider socioeconomic impact on displaced user groups.
• Consider ownership of nearby waterfront property.
• Consider sufficient size to include range of habitats.
• Consider other areas within and adjacent to the Sanctuary with existing or proposed restrictions.
• Consider existing managed areas.

In addition to the aforementioned criteria, there are the statutory criteria under the FKNMSPA for protecting resources and facilitating multiple use, and under NEPA, for considering the environmental consequences including the socio-economic impacts.

Sanctuary Preservation Areas. These areas will focus on the protection of shallow, heavily used reefs where conflicts occur between user groups, and where concentrated visitor activity leads to resource degradation. They are designed to enhance the reproductive capabilities of renewable resources, protect areas critical for sustaining and protecting important marine species, and reduce user conflicts in high-use areas. This will be accomplished through a prohibition of consumptive activities within these areas. They have been chosen based on the status of important habitat, the ability of a particular area to sustain and protect the habitat, the level of visitor use, and the degree of conflict between consumptive and nonconsumptive users. The actual size and location of these zones have been determined by examination of user patterns, aerial photography, and groundtruthing of specific habitats.

The following is a list of criteria that was developed by the Sanctuary Advisory Council. These criteria were used to site the proposed Sanctuary Preservation Areas in the DMP/EIS and were reconsidered along with public comment for this final plan.

• Protect representative locations of the most rare habitats (i.e. reefs.)
• Consider long term impacts on areas of critical economic value.
• Protect areas that are buffered from poor water quality.
• Consider the accessibility of areas to fisherman and other user groups.
• Minimize conflicts.
• Provide geographic spread.
• Sufficient size to ensure viability.
• Research potential/control areas.

In addition to the aforementioned criteria, there are the statutory criteria under the FKNMSPA for protecting resources and facilitating multiple use, and under NEPA, for considering the environmental consequences including the socioeconomic impacts.

Existing Management Areas. This zone simply identifies areas that are managed by other agencies where restrictions already exist. These zones delineate the existing jurisdictional authority of other agencies (i.e., State parks, aquatic preserves, sanctuaries, and other restricted areas). Management of these areas within the Sanctuary may require additional regulations or restrictions to adequately protect resources. Any additional management measures will be developed and implemented in coordination with the agency having jurisdictional authority. Their function is not to establish another layer of bureaucracy, but to recognize established management areas and, at a minimum, to complement the existing management programs, ensuring cooperation and coordination with other agencies.

Special-use Areas. These zones are used to set aside areas for scientific research and educational purposes, restoration, monitoring, or to establish areas that confine or restrict activities such as commercial personal watercraft operations and establish live-aboard mooring fields. These areas will minimize impacts on sensitive habitats and reduce user conflicts. Special management programs (e.g., monitoring, research, special-use permits and restoration) can be conducted without impediment in these areas. They can be used to set aside areas for specific uses such as long-term research and monitoring and/or minimizing the adverse environmental effects of high-impact activities. These zones will be limited in their length of duration.

How the Plan is Organized. This action plan is organized in four sections: an introduction, description of strategies, a summary of implementation procedures, and a series of maps showing the various zones in the Sanctuary. The introduction summarizes the goals and objectives of the Zoning Program, and provides background information on planning efforts. The strategy description section groups activities by strategy, based on the five types of management zones. For each strategy and component activity, the priority level, funding availability, costs, and timing of implementation are summarized. The implementation section details how the strategies in the plan will be placed into action. The final section includes a map of each zone, and an accompanying description of the area.

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Background

Management Strategies. Each strategy has been assigned an estimated activity level for year 1 (high, medium, low, or none) that represents an estimate of the planned level of action that will occur in the first year after the Management Plan is adopted. In addition, the time required for implementation, costs of implementation, and available funding (Federal, State, local, and private) have been estimated for each strategy. The component activities in each strategy, and the institutions responsible for implementing these activities, have also been identified.

The strategies for the Management Plan, which includes the Zoning Action Plan and all other action plans combined, have been grouped into three priority levels, based on their relative importance or feasibility. A strategy's priority level is based on factors such as available funding, costs, personnel requirements, timing, levels of existing implementation, and existing legislative/regulatory authority. The high priority level includes the 16 most important strategies. The medium priority level contains 36 strategies that represent the next level of importance to the Sanctuary and will have some level of activity in year one. Low priority items contain the remaining strategies in the Management Plan. Those strategies planned for completion in or before year one do not have a priority level.

Zoning Strategies. The strategies delineating Ecological Reserves and Sanctuary Preservation Areas are considered priority level 1. The activities described for those strategies will have a high level of action in year 1 for the Western Sambo Ecological Reserve and a medium level of action for selected Sanctuary Preservation Areas. The Special-use Areas strategy is considered high priority level, and will also have a low level of action in year 1. Wildlife Management Areas and Existing Management Areas will both be established in year 1 and, accordingly, have not been assigned a priority level.

NOAA will be the primary funding source for all strategies, except for marking Wildlife Management Areas in national wildlife refuges. The marking of these zones may have to be implemented gradually as funds become available for installation of markers.

Five-year Zoning Plan Review. The Sanctuary's zoning program will be evaluated in the five-year update of the Management Plan, the effectiveness of the zones will be determined, and consideration will be given to modifying or eliminating zones at this time.

Relationship to Other Action Plans. This plan describes the process of prioritizing zones for marking, obtaining the information necessary to mark boundaries, and the method of marking these boundaries. The associated regulations are described in the Regulatory Action Plan. In addition, research and monitoring will be conducted within Sanctuary Preservation Areas, Ecological Reserves, and Special-use Areas to provide information for better management. This may result in zone modifications as part of the continuous management process. These activities are described in the Research and Monitoring Action Plan. Finally, the establishment of live-aboard mooring fields as Special-use Areas is described in the Water Quality Action Plan. This activity would establish designated mooring fields or anchorage areas in places with significant concentrations of live-aboard vessels.

Goals and Objectives

Sanctuary Goals. Zoning is critical to achieving the Sanctuary's primary goal of resource protection. Its purpose is to protect and preserve sensitive components of the ecosystem by regulating within the zoned areas, while facilitating activities compatible with resource protection. Zoning will ensure that areas of high ecological importance will evolve in a natural state, with minimal human influence. Zoning will also promote sustainable use of the Sanctuary resources, and will protect areas representing diverse Sanctuary habitats and areas important for maintaining natural resources (e.g., fishes, invertebrates, etc.) and ecosystem functions.

Sanctuary Objectives. To achieve these goals, the following objectives must be accomplished:

• reduce stresses from human activities by establishing areas that restrict access to especially sensitive wildlife populations and habitats;
• protect biological diversity and the quality of resources by protecting large, contiguous diverse habitats that are intended to provide natural spawning, nursery, and permanent residence areas for the replenishment and genetic protection of marine life and to protect and preserve all habitats and species;
• minimize conflicting uses;
• protect Sanctuary resources and separate conflicting uses by establishing a number of non-consumptive zones in areas that are experiencing conflict between consumptive and non-consumptive uses and in areas that are experiencing significant population or habitat declines;
• eliminate injury to critical/sensitive habitats;
• disperse concentrated harvests of marine organisms;
• prevent heavy concentrations of uses that degrade Sanctuary resources;
• provide undisturbed monitoring sites for research activities by setting areas aside for scientific research, monitoring, and restoration; and
• provide control sites to help determine the effects of human activities on resources.

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Description of Strategies

Zoning

This Final plan contains five strategies from Management Alternative III. The first zone type recognizes 27 Wildlife Management Areas. The second establishes one Ecological Reserve and commits NOAA to completing the establishment of a second within a two year time frame. The third establishes 18 Sanctuary Preservation Areas. The fourth identifies 21 Existing Management Areas, and the fifth designates four Special-use Areas.

Strategy Z.1: Wildlife Management Areas

This strategy establishes Wildlife Management Areas that restrict access to sensitive wildlife populations and habitats. Such areas include bird nesting, resting, or feeding areas, turtle nesting beaches, and other sensitive habitats. Restrictions prohibit use, modify the way areas are used or accessed, and specify time periods when use is prohibited. (Completed in Year 1)

This strategy includes 27 areas, 20 that are part of the Fish and Wildlife Service's (FWS) plan for managing backcountry portions of the Key West National Wildlife Refuge, Great White Heron National Wildlife Refuge, and Crocodile Lake Wildlife Refuge. The areas were established through a March 1993 agreement between the FWS and the Florida Department of Environmental Protection (FDEP). The FWS is currently marking the 20 areas with buoys and/or signs, and will administer these areas. NOAA, the FDEP, and Monroe County will be responsible for marking and managing the remaining seven areas. An additional WMA has been established in Eastern Lake Surprise (east of US 1) to manage vessel traffic in that area to protect the American Crocodile and West Indian manatees.

Activity 1-Prioritize Zone Marking. The boundaries of seven of the 27 areas will be identified and marked. Since not all zones can be marked concurrently, zone marking will be prioritized. The primary factors used to determine the order in which zones will be marked include season and proximity to human impacts. Boat-use survey data from the FDEP and The Nature Conservancy (TNC) will be used to determine use periods, and research requirements will also be considered.

• Implementation. NOAA will be the lead agency responsible for implementing this activity. The FWS, FDEP, National Audubon Society, and TNC will be consulted regarding species activities. The FDEP and TNC will be consulted for boat-use survey data.
• Schedule. This activity will be completed in year 1.

Activity 2-Determine Boundaries On-site. Accurate readings (NOAA and FWS sites) will be developed using aerial photography, global positioning system (GPS) receivers, and groundtruthing. Temporary markers will be placed at each corner of the sites to be identified and marked.

Existing Program Implementation. NOAA and the Sanctuary Advisory Council have preliminary boundaries for five of the seven zones (excluding Pelican Shoal and Crocodile Lake) on nautical charts.

• Implementation. NOAA will be the lead agency responsible for implementing this activity. The National Audubon Society and the Florida Game and Freshwater Fish Commission (FGFWFC) staff will provide secondary implementation support.
• Schedule. This activity will be completed in year 1.

Activity 3-Place Buoys/Signs Along Zone Boundaries. Boundary buoys and/or signs will be placed along the boundaries of each zone, based on Federal and State guidelines, and will show the restricted action for each site. The type of buoy or sign used will be determined by the substrate. The physical placement of the buoys/signs will require developing an agreement with the FDEP.

Existing Program Implementation. The FWS is currently locating signs and/or buoys at the 19 sites for which it will have primary responsibility.

• Implementation. NOAA will be the lead agency responsible for implementing this activity. The FWS, FDEP, FGFWFC, and U.S. Coast Guard (USCG) will assist in implementation.
• Schedule. This activity will be completed in year 1.

Activity 4-Establish Management Responsibilities. NOAA, the FGFWFC, the FDEP, and Monroe County will manage seven of the 27 sites. The remaining 20 sites (including Crocodile Lake) will be managed by the FWS. All the areas will be managed to protect sensitive wildlife populations and habitats.

• Implementation. NOAA, the FGFWFC, the FDEP, and Monroe County will have the lead responsibility for managing the seven sites not within the FWS program. Although the FWS will be responsible for managing and marking all other sites, NOAA will be responsible for marking the Crocodile Lake site.
• Schedule. This activity will be continuous.

The regulations for Wildlife Management Areas are included in the Regulatory Action Plan.

Strategy Z.2: Ecological Reserves

Ecological Reserves are Sanctuary zones that encompass areas of contiguous, diverse habitats, within which uses are subject to conditions and prohibitions, including public use restrictions. These areas are designed to minimize human influences, to provide natural spawning, nursery, and permanent residence areas for the replenishment and genetic protection of marine life, and also to protect and preserve natural assemblages of habitats and species within areas representing the full range of diversity of resources and habitats found throughout the Sanctuary. (Priority Level High, High Level of Action in Year 1, 12+ Months to Complete)

This Final Plan establishes one Ecological Reserve in the Western Sambo. It also commits NOAA to determining the boundaries and identifying the effective date for final regulations of a second Ecological Reserve in the Dry Tortugas within two years.

In the DMP/EIS, NOAA proposed boundaries for a Replenishment Reserve (Ecological Reserve) in the Dry Tortugas based on distribution of significant resources with an attempt to minimize or avoid impacts to users . Public comment identified serious adverse economic impact which would result from implementation of the no-take regulations within the proposed boundary. Consequently, NOAA did not establish final boundaries for the Dry Tortugas Replenishment Reserve (Ecological Reserve) in the final management plan and regulations. However, NOAA is committed to finalizing the Ecological Reserve at the Dry Tortugas. NOAA intends to undertake a process to determine the final boundary for the Dry Tortugas Ecological Reserve in coordination with the National Park Service and recommends the inclusion of portions of the Dry Tortugas National Park. To identify the final boundary, NOAA and the National Park Service will use the information gathered as part of the public review of the draft management plan and hold workshops with users, agency representatives, environmental organizations, and the public. Prior to making a final decision, NOAA and the National Park Service will publish the final boundary for public comment.

Activity 1-Determine Boundaries On-site. Accurate boundary readings will be developed using aerial photography, GPS receivers, and groundtruthing. Temporary markers will be placed along the boundaries of the reserve.

• Implementation. NOAA will be the lead agency responsible for implementing this activity.
• Schedule. This activity will have a high level of action in year 1. It will require 6+ months to complete.

Activity 2-Place Buoys Along Zone Boundaries. Boundary buoy placement will be based on Federal and State guidelines. Buoys will be placed in one-mile increments along zone boundaries, and will be visible for one mile. The type of anchor device used will be determined by the substrate where the buoy is placed.

• Implementation. NOAA will be the lead agency responsible for implementing this activity. The FDEP and USCG will provide secondary implementation assistance. The USCG must approve all buoys.
• Schedule. This activity will have a high level of action in year 1. It will require 6+ months to complete.

Activity 3-Establish Management Responsibilities. The Sanctuary Superintendent will oversee all aspects of zone management, and will be responsible for ensuring that the first two activities (determining zone boundaries and placing buoys) are implemented. NOAA will establish a process for selecting the boundary of the Dry Tortugas Ecological Reserve. Sanctuary Managers will ensure that the public is educated about the zones and their restrictions, that all research and monitoring efforts are consistent with the goals of the Sanctuary, and that all regulations related to the zones are enforced. The Superintendent will coordinate with the FDEP, FMFC, and Monroe County in managing the zones.

• Implementation. NOAA, the FMFC, the FDEP, and Monroe County will have the lead responsibility for managing the Replenishment Reserves.
• Schedule. This activity will have a high level of action in year 1. It will be continuous.

The research and monitoring components of this strategy are described in the Research and Monitoring Action Plan. The regulations for Ecological Reserves are included in the Regulatory Action Plan.

Strategy Z.3: Sanctuary Preservation Areas

Sanctuary Preservation Areas are Sanctuary zones that encompass discrete, biologically important areas, within which uses are subject to conditions and prohibitions, including public use restrictions, to avoid concentrations of uses that could result in significant declines in species populations or habitat, to reduce conflicts between uses, to protect areas that are critical for sustaining important marine species and habitats, or provide opportunities for scientific research. (Priority Level High, High Level of Action in Year 1, 18+ Months to Complete)

This strategy establishes 18 Sanctuary Preservation Areas (SPAs), totaling approximately 1,651ha. The largest will be the Carysfort/South Carysfort Reef, and the smallest will be Dry Rocks and Cheeca Rocks. The proposed Western Sambo SPA was eliminated from the Final Plan with the establishment of the Western Sambo Ecological Reserve which encompasses a cross-section of the coral reef community, ranging from the nearshore hardbottoms, seagrass communities, patch reefs, mid-channel reef, offshore patch reefs, and the fore reef habitat at Western Sambo Reef.

NOAA has allowed catch and release fishing by trolling in four SPAs: Conch Reef; Alligator Reef; Sombrero Key; and Sand Key. This action will allow the activity of catch and release fishing to be compared with other SPAs where it is not allowed. In addition, the taking of ballyhoo for bait by net will be allowed by permit in all SPAs.

Activity 1-Prioritize Zone Marking. The boundaries for all zones will be identified and marked. Since not all zones can be marked concurrently, marking must be prioritized. The primary factors that will be used to determine the order in which zones will be marked include the level of current use, season, and relative threats to resources (e.g., vessel groundings). Boat-use survey data from the FDEP and TNC aerial census will be used to determine use periods, and the availability of existing monitoring data will also be considered.

• Implementation. NOAA will be the lead agency responsible for implementing this activity.
• Schedule. This activity will have a high level of action in year 1. It will require 6+ months to complete.

Activity 2-Determine Boundaries On-site. Accurate boundary readings of all sites will be determined using aerial photography, GPS receivers, and groundtruthing. Temporary markers will be placed at the corner of each zone.

• Implementation. NOAA will be the lead agency responsible for implementing this activity.
• Schedule. This activity will have a high level of action in year 1. It will require 6+ months to complete.

Activity 3-Place Buoys Along Zone Boundaries. Boundary buoys will be placed at the corner of each zone based on Federal and State guidelines, with the type of anchoring device determined by the substrate where the buoy is placed. The buoys will be visible for a half-mile.

• Implementation. NOAA will be the lead agency responsible for implementing this activity. The FDEP and USCG will assist in implementing this activity.
• Schedule. This activity will have a high level of action in year 1. It will require 9 months to complete.

Activity 4-Establish Management Responsibilities. The Sanctuary Superintendent will oversee all aspects of zone management, and will be responsible for ensuring that the first three activities (prioritizing zone marking, determining boundaries, and placing buoys) are implemented. Sanctuary Managers will ensure that the public is educated about the zones and their restrictions, that all research and monitoring efforts are consistent with the goals of the Sanctuary, and that all related regulations are enforced. The Superintendent will coordinate with the FDEP, the FMFC, and Monroe County in managing the zones and will work with the Mooring Buoy working group to install mooring buoys in these areas.

• Implementation. NOAA, the FMFC, the FDEP, and Monroe County will have the lead responsibility for managing the zones.
• Schedule. This activity will have a medium level of action in year 1. It will be continuous.

The research and monitoring components of this strategy are described in the Research and Monitoring Action Plan. The regulations for Sanctuary Preservation Areas are included in the Regulatory Action Plan.

Strategy Z.4: Existing Management Areas

Existing Management Areas are resource management areas currently managed by other agencies and where regulations already exist. Proposed Sanctuary regulations will supplement these authorities for comprehensive protection of resources. Any additional management measures that may be developed and implemented will be in coordination with the agency having jurisdictional authority. (Completed in Year 1)

There are currently 21 Existing Management Areas within the Sanctuary. Fifteen are administered by the FDEP, four by the FWS, and two by NOAA.

Strategy Z.5: Special-use Areas

This strategy establishes zones to set aside areas for scientific research and educational purposes, restoration, monitoring, or to establish areas that confine or restrict activities such as personal watercraft operations and live-aboard mooring fields. These areas will minimize impacts on sensitive habitats and reduce user conflicts. Special management programs (e.g., monitoring, research, special-use permits and restoration) can be conducted without impediment to these areas. They can be used to set aside areas for specific uses such as long-term research and monitoring and/or minimizing the adverse environmental effects of high-impact activities.

(Priority Level Medium, Medium Level of Action in Year 1, 12+ Months to Complete, <50% Funding Available for Full Implementation)

This strategy initially establishes four zones designated for scientific research and monitoring. Those designated are Conch and Tennessee reefs in the Upper and Middle Keys, and Looe Key and Eastern Sambo in the Lower Keys.

The Eastern Sambo Research Only area replaces Pelican Shoals in the draft plan as a Research Only area. The Eastern Sambo was selected in order to provide a better research and monitoring site, while simultaneously lessening the public impact of limiting access to the reef around Pelican Shoals.

Activity 1-Prioritize Zone Marking. The boundaries of the four research-only zones will be identified and marked. Since not all zones can be marked concurrently, marking will be prioritized. The primary factors that will be used to determine the order in which the zones will be marked will include the level of current use, season, and relative threats to resources (e.g., vessel groundings). Boat-use survey data from the FDEP and TNC will be used to determine use periods, and the availability of existing monitoring data will also be considered.

Implementation. NOAA will be the lead agency responsible for implementing this activity.

Schedule. This activity will have a medium level of action in year 1. It will require 6+ months to complete.

Activity 2-Determine Boundaries On-site. Accurate boundary readings of all sites will be determined using aerial photography, GPS receivers, and groundtruthing. Temporary markers will be placed at the corner of each zone.

Implementation. NOAA will be the lead agency responsible for implementing this activity.

Schedule. This activity will have a low level of action in year 1. It will require 6+ months to complete.

Activity 3-Place Buoys Along Zone Boundaries. Boundary buoys will be placed at the corner of each zone based on Federal and State guidelines, with the type of anchoring device determined by the substrate where the buoy is placed. The buoys will be visible for a half-mile.

Implementation. NOAA will be the lead agency responsible for implementing this activity. The FDEP and USCG will assist in implementation.

Schedule. This activity will have a medium level of action in year 1. It will require 9 months to complete.

Activity 4-Determine High-Impact Activities or User-Conflicts. This activity will determine which activities will have a high impact on Sanctuary resources. It will also identify those activities that result in major user conflicts. Zones may be developed for these activities if appropriate.

Implementation. NOAA, the FDEP, and Monroe County will be jointly responsible for implementing this activity.

Schedule. This activity will have a low level of action in year 1. It will require 12 months to complete.

Activity 5-Determine Appropriate Zones for High Impact or User-Conflict Activities. Based on the information developed in activity 4, management zones may be developed for high-impact and user-conflict activities.

Implementation. NOAA, the FDEP, and Monroe County will be jointly responsible for implementing this activity.

Schedule. No action is planned for year 1. It will require 12 months to complete.

Activity 6-Determine Permitting Process. The process for issuing permits for Special-use Areas will be determined, and the procedures for reviewing and approving permit applications will be defined.

Implementation. NOAA, the FDEP, and Monroe County will be jointly responsible for implementing this activity.

Schedule. No action is planned for year 1. It will require 12 months to complete.

Activity 7-Establish Management Responsibilities. The Sanctuary Superintendent will oversee all aspects of zone management, and will be responsible for ensuring that activities 1 to 6 are implemented. Sanctuary Managers will ensure that the public is educated about the zones and their restrictions, that all research and monitoring efforts are consistent with the objectives of the strategy, and that all related regulations are enforced.

Implementation. NOAA, the FDEP, and Monroe County will be jointly responsible for implementing this activity.

Schedule. This activity will have a low level of action in year 1. It will be continuous.

The regulations for Special-use Areas are included in the Regulatory Action Plan. A component of this strategy is also included in the Water Quality Action Plan.

Implementation

This section explains how the strategies in the zoning plan will be implemented. The institutions responsible for each activity, and those agencies that will provide some assistance, are identified. Zoning strategies are also ranked to indicate their overall Sanctuary priority level. In addition, the planned level of activity in year 1, months to complete, funding availability, cost estimates, staff requirements, and geographic focus of each strategy and activity are provided.

Responsible Institutions. The Zoning Plan will be implemented by the coordinated efforts of Federal, State, and local agencies in cooperation with nonprofit institutions. NOAA has the lead responsibility for implementing the overall Program. The FDEP and the FMFC will provide primary support by managing several zones, and the FWS will be responsible for managing most Wildlife Management Areas. In addition, the FMFC, the USCG, Monroe County, and the National Audubon Society will help implement selected activities. Table 29 lists the participating institutions and their level of responsibility for implementing each activity.

Prioritization of Implementation. The Zoning Plan includes five strategies from Alternative III. The highest-ranking strategies are Ecological Reserves and Sanctuary Preservation Areas, which are included in the high priority level, based on their anticipated impact on Sanctuary resources. Wildlife Management Areas and Existing Management Areas are not included in a priority group, because they will be implemented completely or partially in year 1. The FWS has already established 20 Wildlife Management Areas in the Sanctuary. NOAA will be responsible for marking the remaining seven areas. The Special-use Area strategy is included in the high priority level.

Schedule. The Existing Management Areas and some Wildlife Management Areas strategies will be completed in year 1. The process of prioritizing and marking Sanctuary Preservation Areas and Ecological Reserves will begin in year 1, but marking will not be completed until after year 1. Zone management will be continuous, and an integral part of the Sanctuary management process. The Special-use Areas strategy will have only a medium level of action in year 1.

Cost. The estimated cost of implementing each strategy is given in Table 30. Based on the large number of buoys to be installed, Sanctuary Preservation Areas is expected to be the most costly strategy (it is included in the $10,000 to $99,000 category for capital and annual operations and maintenance costs). Approximately 80 buoys will be required to completely mark these zones. Because of the size of the Ecological Reserves, marking these areas will also be expensive. Assuming one buoy is installed every mile, about 10 buoys will be placed in this zone. Approximately 24 signs/markers will be placed in the Wildlife Management Areas. Each of these strategies is included in the $10,000 to $99,000 range for capital and annual operations and maintenance costs. Because the Special-use Areas strategy will evolve over time, the full cost of implementation is uncertain.

Geographic Focus. The activities in strategies only apply to their respective zones. Sanctuary Preservation Areas, reflecting their purpose of protecting heavily used reefs, are distributed on the Atlantic side of the Keys. The Western Sambo Ecological Reserve is located in the Lower Keys and a site will be in the Dry Tortugas. Wildlife Management Areas are concentrated in the backcountry, from Horseshoe Key to the Bay Keys, with a few in the Upper Keys. Existing Management Areas are distributed throughout the Sanctuary.

Staff. Overall, the Sanctuary Superintendent (NOAA) will have the lead responsibility for implementing all zoning strategies. However, a staff biologist and another staff member will be directly responsible for identifying and marking the zones. In addition, implementation will require the participation of personnel from various agencies and organizations, and private vendors will be contracted to assist in identifying and marking the various zones.

Contingency Plan for a Changing Budget. The level of funding for the Sanctuary Preservation Areas, Ecological Reserves, and Special-use Areas strategies is insufficient to fully implement these activities in year 1. Consequently, marking may be delayed or modified until funds are available.

Evaluating Program Effectiveness. NOAA will evaluate the effectiveness of the Zoning Program in its five-year update of the Management Plan. For example, research and monitoring on Ecological Reserves will be used to determine the degree to which the zones enhance biological diversity and increase the productivity of important marine life species. In order to accomplish this evaluation, NOAA will establish an interdisciplinary team including managers, scientists, affected users, and environmentalists. Also, because the Reserves will be used as control areas to help understand the impacts of water quality, pollution, and various human uses, their value in this capacity will be evaluated as well. Based on the results of these studies, NOAA will consider expanding, modifying, or eliminating Reserves. The success of the other zones will be evaluated at this time as well.

Zoning Maps

The maps in this section reflect the management zones for the Final management plan. The first map shows Ecological Reserves, Sanctuary Preservation Areas, Special-use Areas, and Wildlife Management Areas. Next, Existing Management Areas are shown on a single map. Following this are maps for each of the Ecological Reserves, Sanctuary Preservation Areas, and Special-use Areas. Finally, Wildlife Management Areas are mapped either individually or in groups, whichever best portrays the areas.