ReefKeeper International has worked with the Florida Keys National Marine Sanctuary ("FKNMS") since its inception to develop a marine reserve in the area of the Dry Tortugas. ReefKeeper International supports the establishment of a two-part Tortugas Ecological Reserve, with the taking of all marine life and anchoring prohibited within the reserve.
The Need For Action Located 70 miles west of Key West and over 140 miles from the mainland, the coral reefs in the Tortugas are isolated from land runoff, resulting in the cleanest, clearest waters in the Florida Keys. The marine resources of the Tortugas are the crown jewel of the FKNMS, with the highest coral coverage and the healthiest coral in the region, high biodiversity, high productivity and important spawning sites.
The Tortugas support a thriving seabird population, including the only roosting population of magnificent frigate birds in North America. Of great significance, the Tortugas are located at a crossroads of major ocean currents, which carry larvae of fish, lobster and other creatures downstream to replenish populations in the Florida Keys and beyond.
While the Tortugas are in relatively good condition, threats are on the increase. Fishing pressure has increased dramatically. Over 100 commercial fishing vessels and many recreational fishers work the ocean environment outside of the Dry Tortugas National Park. Divers converge on the area to view its breathtaking coral reefs. Visitor use at the Dry Tortugas National Park has doubled in the last three years, increasing to 84,000 visitors per year in 1999. The FKNMS has prohibited anchoring by freighters on the lush reefs of Tortugas Bank, but this practice still threatens other parts of the region. All of these factors have resulted in threats of depleted fish populations and habitat damage.
The Goals of the Ecological Reserve In its management plan developed in 1996, the FKNMS stated its intention to establish an Ecological Reserve in the area of the Dry Tortugas as part of the FKNMS zoning plan. The goal of the FKNMS zoning plan is to
"protect areas representing diverse Sanctuary habitats and areas important for maintaining natural resources (e.g. fishes, invertebrates) and ecosystem functions while facilitating activities compatible with resource protection" (zoning action plan, Final Environmental Impact Statement/Management Plan, Vol. I, pg. 255).
To meet this goal, the FKNMS outlined nine objectives that must be accomplished. Included in these objectives are the creation of non-consumptive zones and restricted access areas. For example, Objective 2 of the FKNMS zoning plan is to:
"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." (Ibid.)
The proposed Tortugas Ecological Reserve is consistent with the goal and objectives of the FKNMS zoning plan. As proposed, it will protect a wide range of habitats in two large sections, contribute larvae for the replenishment of resources outside of the reserve, protect biodiversity and ecological function, and allow for activities such as non-consumptive diving that are compatible with resource protection.
The Working Group In an initiative called Tortugas 2000, a 25-member working group representing commercial fishing, recreational angling, diving, conservation, science, citizens-at-large, and government agencies used the best available scientific and socioeconomic information to develop a boundary and regulatory proposal for the Tortugas Ecological Reserve. The proposed Tortugas Ecological Reserve is a product of consensus by twenty-five diverse representatives of every constituency concerned with the reserve. The Working Group was charged as follows:
"Using the best available information, the Tortugas 2000 Working Group will collaborate in seeking to reach agreement on a recommendation to the State of Florida and the Sanctuary Advisory Council regarding a preferred alternative for an ecological reserve in the Tortugas area. The Working Group will develop criteria for evaluating a range of alternatives regarding location, size, and regulations that are consistent with the objectives for 'Ecological Reserves' that were defined in the Florida Keys National Marine Sanctuary's Final Management Plan."
The Working Group then crafted a consensus vision that the Tortugas Ecological Reserve would:
The Working Group assigned six criteria and relative percent weight rankings for developing the reserve boundaries:
Based upon the objectives and criteria decided upon by the Working Group, the members then drafted boundary alternatives without any consideration of political jurisdictions. The Working Group balanced the needs of the resources along with the needs of the users so that no one user group bore an unfair burden, while at the same time protecting the most significant marine environments.
By unanimous consensus, a boundary recommendation was accepted by the entire Tortugas 2000 Working Group. This boundary recommendation is represented by Boundary Alternative III in the FKNMS Draft SEIS/SMP.
Also by unanimous consensus, the Working Group recommended that the removal of any marine organisms be prohibited within the Tortugas Ecological Reserve and that anchoring be prohibited to protect the fragile resources. This recommendation for regulations is represented by Regulatory Alternative C in the FKNMS Draft SEIS/SMP.
The Preferred Alternatives Boundary Alternative III conforms to the recommendation of the Working Group. Riley's Hump and important deep-water habitats would be included in Tortugas South. Tortugas North would include Sherwood Forest and a portion of Tortugas Bank. These boundaries represent the compromises made by the members of the Working Group and are supported by ReefKeeper International.
Regulatory Alternative C would make the Tortugas Ecological Reserve a no-take area, consistent with the goals of the reserve and the recommendation of the Working Group. This alternative would also prohibit anchoring in the reserve to protect the fragile coral reefs. Non-consumptive diving would be allowed within the boundaries of the reserve, allowing for continued use of the area by visitors without harming the resource. This alternative is supported by ReefKeeper International
Other Endorsements and Approvals In June 1999, the FKNMS Sanctuary Advisory Council unanimously approved the recommendation of the Working Group. The Gulf of Mexico Fishery Management Council (Gulf Council) has also given approval to fishery management plan amendments that prohibit fishing in the entire Tortugas South reserve and that portion of the Tortugas North reserve that lies within their jurisdiction. During its public comment process, the Gulf Council received over 3000 letters in support of the no-fishing restrictions in the Tortugas reserve.
As part of the FKNMS Draft SEIS/SMP public comment process, a letter endorsed by 55 groups representing over 3.8 million members that supports the recommendation of the Working Group has also been submitted
ReefKeeper International supports the Florida Keys National Marine Sanctuary's preferred Boundary Alternative III and the preferred Regulatory Alternative C as outlined in the Draft Supplemental Environmental Impact Statement/Draft Supplemental Management Plan ("Draft SEIS/SMP"). These alternatives are consistent with the recommendations of the Tortugas Working Group.