Resource Management Issues: Submerged Cultural Resources

USS Macon (ZRS-5) Airship 1933-1935, recovering two F9C -2 "Sparrowhawk" aircraft. Credit: U.S. Naval Historical Center/National Archives.	Curtiss F9C-2 "Sparrowhawk" fighter hanging from the trapeze of USS Macon (ZRS-5) during flight operations in 1933. Credit: U.S. Navy Historical Center/National Archives.

Submerged cultural resources include shipwrecks, aircraft, wharfs and dock sites, prehistoric archaeological sites, and associated artifacts. Hundreds of shipwrecks have occurred in the Monterey Bay National Marine Sanctuary (Sanctuary), and were a result of the significant maritime exploration and commerce which historically occurred in the region, coupled with a coastline dotted with shallow, rocky headlands, largely exposed to prevailing winds, storms, and fog. The sanctuary is responsible for the protection and management of historical and cultural resources within its boundary. Sanctuary stewardship responsibilities include a mandate to inventory sites, encourage research, provide public education, and oversee responsible visitor use.

Since 1975, when the first National Marine Sanctuary (Monitor) was designated, NOAA has been charged with the protection of historic shipwrecks and other submerged archaeological sites. NOAA's National Marine Sanctuary Program seeks to increase the public awareness of America's maritime heritage by conducting scientific research, monitoring, exploration, and educational programs.

Under the National Marine Sanctuaries Act, submerged cultural resources are protected within the Monterey Bay National Marine Sanctuary. The primary objective of this Act is to protect marine ecosystems, unique habitats (such as kelp forests), and sunken vessels of historical significance.

In addition, regulations specific to the Monterey Bay National Marine Sanctuary exist to protect submerged cultural resources in the Sanctuary.   The following activities, related to cultural resources, are prohibited and thus are unlawful for any person to conduct or to cause to be conducted:

1. Moving, removing or injuring, or attempting to move, remove or injure, a Sanctuary historical resource. This prohibition does not apply to moving, removing or injury resulting incidentally from kelp harvesting, aquaculture, or traditional fishing operations.
2. Possessing within the Sanctuary (regardless of where taken, moved or removed from), except as necessary for valid law enforcement purposes, any historical resource.
   

With the development of underwater technologies, that bring the public closer (virtually) to the marine environment, there is increasing interest in submerged cultural resources and maritime heritage.   The sanctuary and partners have compiled an inventory of sunken vessels and known losses within Sanctuary waters, drawing on a variety of existing information sources.   Some of these sunken vessels still contain oil, fuel or other hazardous materials on board, which can be released into the marine environment as the ship degrades, and can harm Sanctuary resources.

For example, in 2001, extensive tarball deposits along the Sanctuary's coastline were estimated to have killed up to 25,000 common murres, grebes, and cormorants. The source of these tarballs remained unknown for several months, but were ultimately tracked to the S.S. Jacob Luckenbach which sank off San Francisco in 1953 (currently located in the Gulf of the Farallones National Marine Sanctuary).   Subsequent investigative work matching the oil samples indicated this vessel was the likely source of a number of tarball and oiled bird incidents dating back to at least 1992.   The U.S. Coast Guard, California Department of Fish and Game, National Oceanic and Atmospheric Administration, and others collaborated to identify the extent of impacts and to identify means of removing the remaining oil.

On March 3, 2003, the Department of Commerce's National Oceanic and Atmospheric Administration (NOAA) broke ground at the site of NOAA's new Maritime Archaeology Center (MAC) at the Mariners' Museum in Newport News, Virginia.   The Center will house NOAA staff dedicated to assisting the National Marine Sanctuary Program in their efforts to manage and protect their maritime and cultural artifacts. The MAC will also provide assistance and consultation to other federal and state agencies on issues concerning submerged maritime and cultural artifacts and seek to develop new methods, tools, and partnerships for achieving program objectives. To learn more about NOAA's Maritime Heritage Program, click here.

Sanctuary staff collaborates with the Regional Maritime Heritage Program Coordinator during scientific research, monitoring, exploration, educational programs, and response events. Robert Schwemmer serves as the Regional Maritime Heritage Program Coordinator for all west coast sanctuaries (Channel Islands, Monterey Bay, Gulf of the Farallones, Cordell Bank, and Olympic Coast). 

Several projects have been developed to characterize maritime heritage and submerged cultural resources in the Monterey Bay National Marine Sanctuary region:

• Contributions to the Monterey Bay National Marine Sanctuary Site Characterization
  
• Recent history of the MBNMS region by Basil Douros
• Early Uses of the Resources by Anna Weinstein
  
• Monterey Bay National Marine Sanctuary Shipwreck Database. The website and database provide teachers and students with an online educational activity to learn more about important shipwrecks found within the Monterey Bay National Marine Sanctuary.
• MBNMS Submerged Cultural Resources Study: 2001 by Sheli O. Smith and Jack Hunter.   The study indicates 463 reported losses (vessels, aircraft) are located in Pacific waters directly within, or near the border of, the Monterey Bay National Marine Sanctuary.
• Reconnaissance dives aboard the submersible Delta to the Oil Tanker Montebello. In September 2003, sanctuary staff, the Regional Maritime Heritage Program Coordinator, and local agencies visited the Oil Tanker Montebello to conduct reconnaissance dives to monitor and characterize the condition of the vessel, and characterize the fish and invertebrate assemblages. To learn more about the history of the Montebello, click here.
• Submerged Maritime Heritage Resource: USS Macon.

Oil Tanker Montebello being launched on 24 January 1921 at Southwestern Shipbuilding Company in East San Pedro, CA. Credit: Unocal.	Oil Tanker Montebello propeller covered with white-plumed anemones (Metridium farcimen). Credit: Robert Schwemmer/NOAA.

The National Marine Sanctuary Program is currently updating the management plans for the Monterey Bay, Gulf of the Farallones, and Cordell Bank Sanctuaries. This includes a review of the resource protection, education and research programs, the program's resource and staffing needs, as well as the regulatory g oals and sanctuaries boundaries. The draft Maritime Heritage Action Plan developed by working group members and National Marine Sanctuary Program staff, provides a framework for a Maritime Heritage Resources Program. The sanctuary is working with the National Marine Sanctuary Program, west coast sanctuaries, and local agencies to more fully develop a Maritime Heritage program.

Channel Islands National Marine Sanctuary Maritime Heritage Program Monterey History & Art Association / Maritime Museum of Monterey California State Lands Commission U.S. Naval Historical Center