FLORIDA

Florida’S

FLORIDA’S Coral Reef Management CORAL REEF MANAGEMENT PRIORITIES Priorities 2010-2015 I

FLORIDA’S CORAL REEF MANAGEMENT PRIORITIES

The State of Florida and NOAA Coral Reef Conservation Program. 2010. Florida’s Coral Reef Management Priorities: 2010- 2015. Silver Spring, MD: NOAA.

The NOAA Coral Reef Conservation Program would like to thank all those involved in the process to identify and publish the coral reef management priorities for Florida. The commitment, time and effort invested in this process is greatly appreciated. These priorities will play an important role in defining NOAA’s partnership with the jurisdiction to work towards coral reef conservation. Special thanks to Zhe Liu for graphic design and Lauren Chhay for photo support.

Cover Photo Credit: Kenneth Banks CONTENTS

2 INTRODUCTION

4 SECTION ONE: SCOPE, DEVELOPMENT AND PRIORITIZATION PROCESS

8 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

22 SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES

SECTION FOUR: STRATEGIC PRIORITIES NOT CAPTURED IN 30 THE PRIORITY FRAMEWORK

32 APPENDIX ONE: PRIORITY SETTING PROCESS PARTICIPANTS

34 APPENDIX TWO: CONTEXT

36 APPENDIX THREE: PRELIMINARY IDENTIFICATION OF CAPACITY GAPS Florida’S Coral Reef Management BIBLIOGRAPHY OF CORAL REEF MANAGEMENT AND CONSERVATION 38 DOCUMENTS FOR FLORIDA BY AGENCY Priorities

1 INTRODUCTION

The purpose of this Coral Reef Management Priorities document is to articulate a set of strategic coral reef management priorities developed in consensus by the coral reef managers in Florida. NOAA will use this document in conjunction with its 2010–2015 Coral Reef Conservation Program National Goals and Objectives (available at www.coralreef.noaa.gov) to direct its investment in activities in each jurisdiction through grants, cooperative agreements and internal funding. NOAA will also make the document available to other potential funders (NGOs, federal partners, etc.) and encourage leveraging and new or expanded partnerships to build common coral reef conservation goals.

The work presented here is being facilitated This priority setting process stems from an by the NOAA Coral Reef Conservation external review of NOAA CRCP conducted Program (NOAA CRCP) as part of an ongoing in 2007 to independently assess how effort to develop place-based, local coral reef effectively the program has met its goals. management priorities in each of the seven The review included recommendations for U.S. state and territorial coral reef jurisdictions future improvements. In response to the (American Samoa, Commonwealth of the review, NOAA CRCP developed a “Roadmap Northern Mariana Islands, Florida, Hawaii, for the Future,” laying out new principles and Guam, Puerto Rico and the U.S. Virgin Islands) priorities. A key part of this new Roadmap and conduct capacity assessments to identify includes developing management priorities the support needed to accomplish those for each and all of the coral reef jurisdictions priorities. The first step in this effort has and conducting capacity assessments to been to work with the core group of coral achieve these priorities. NOAA CRCP is reef managers (local, place-based) in each providing support to the jurisdictions to jurisdiction to articulate a set of strategic coordinate with the broader management coral reef management priorities. The second, community in each place to determine these and next, step will be to complete a capacity strategic goals and objectives for each state needs assessment that helps each state and and territory. territory realize these priorities.

2 This Priority Setting document is divided into the following sections: 1 2 Scope, Development and Strategic Coral Reef Management Prioritization Process: This section Priorities: This section presents the details the process by which the Priority entire framework of goals and objectives Goals and Objectives were reached, developed and agreed upon by the core including the preparation for the group. In this section, the Priority Goals workshop, work done at the workshop, and Objectives are highlighted. These and post-workshop refining. are the top priorities for management action as agreed upon by the core managers group. 3 Linkages to NOAA’s National Goals Strategic Priorities4 Not Captured in and Objectives: This section describes the Priority Framework: This section how the local jurisdiction management lists other goal areas from individual priorities align with NOAA CRCP’s participating core managers and the priorities and direction forward. agencies they represent that are not already reflected in the identified priorities. Many of these issues are of significant importance to specific geographic areas, but may not be Florida’S relevant to the entire Florida Reef

Tract and Ecosystem. Coral Reef Management

Priorities

3 SECTION ONE: SCOPE, DEVELOPMENT AND PRIORITIZATION PROCESS

This document captures the final set from various management bodies and of priorities agreed upon by the core geographic locations. Appendix Two managers group at the priority setting presents a summary of the Situation workshop. The core managers group Analysis’ findings. The Situation Analysis is defined as the “place based” coral was distributed to the other managers reef managers who have the direct and advisors listed in Appendix 1 for responsibility for managing the coral reef comments. ecosystem in a particular geographic location. The managers and those who The Situation Analysis was augmented were asked to participate in the initial by a series of interviews that captured analysis and review of this document are managers’ working perceptions of listed in Appendix One. The Florida Coral management goals as they are stated in Reef Tract and Ecosystem spans the full management documents. Taken together, range of reef habitats and associated reef this information formed the basis for the resources from the Dry Tortugas to Stuart, workshop discussions by offering an initial including the backcountry Gulfside of the set of goal areas to consider. Keys (see Figure 1). In preparation for the workshop, During the interviews with the core coral previously identified goals and objectives reef managers and management advisors were taken from current management in Florida, facilitators noted and identified documents and presented in a Situation challenges to and current deficiencies in Analysis. The Situation Analysis is a achieving stated goals and objectives, preparatory document that summarizes: noting specific capacity gaps that likely coral reef threats, condition and trends; will need attention. This information key management issues; and key will serve as the starting point for the agencies’ management goals ahead of capacity assessment, to be completed meetings and interviews. Its primary in the following year. It is summarized in purpose is to compile and consolidate Appendix Three. available management documents

4 Fig. 1: Map of Florida Reef Tract and Ecosystem (B. Walker, National Coral Reef Institute, 2009).

Workshop participants worked from the In a workshop, the core group developed Situation Analysis to create a comprehensive specific and time-bound goals and objectives set of goals and objectives for four priority to address each of these need areas. areas. These were agreed upon by the Participants were asked to develop goals and core group as need areas that were most objectives for the entire Florida Reef Tract and important to the successful management and Ecosystem, rather than for each workshop conservation of the Florida Reef Tract and participant’s local managed area. Issues, plans Florida’S Ecosystem. They are: and programs specific to a smaller geographic area within the Florida Reef Tract and ■■ Integrated Reef Management. Coral Reef Management Ecosystem are represented in Section Four. ■■ Impacts of Climate Change. ■■ Land-Based Sources of Pollution. For the purpose of this exercise, the following definitions were used: ■■ Fishing, Diving and Other Uses. Priorities

5 SECTION ONE: SCOPE, DEVELOPMENT AND PRIORITIZATION PROCESS

Goals are defined as the highest-level result This document presents (1) the the jurisdiction seeks to achieve (e.g., stable, comprehensive set of goals and objectives sustainable coral reef ecosystems) in the next based on existing local action strategies five to seven years. (LAS) and other management plans, revised by the core group, and (2) a subset of Objectives are defined as the environmental, Priority Goals and Objectives within that social and institutional outcomes the larger list. The core group identified the jurisdiction must achieve to reach the end Priority Goals and Objectives as those goal. Objectives are generally actionable that require immediate attention over within a three- to five-year time frame. the short term (3–5 years). These Priority Goals and Objectives will help guide NOAA The initial set of goals and objectives was CRCP funding allocations for management developed by the workshop participants in a activities. The CRCP understands and respects face-to-face workshop. The goals were then the flexibility required by coral reef managers prioritized through an online vote after the in implementing complex conservation and meeting. Each workshop participant was management programs. Should our partners allotted eight votes to distribute among seek funding for projects related to off- sixteen goals, thus enabling them to weight priority issues (either in the comprehensive goals as they saw fit. By near unanimous framework of goals and objectives in this consensus, the eight priority goals document or a new emerging issue not represented in Section Two were determined reflected in this document) it will need to be to be top priority coral reef conservation and fully explained why the requested funding management goals for the state of Florida. is most appropriate for the off-priority work versus efforts to address the priority threats Objectives for all goals were drafted at the identified through this process. workshop. Similar to the goals, the objectives listed in Section Two were determined by The Priority Goals and Objectives are an online vote. Once the priority goals were highlighted in green/bold and green/italic determined, the objectives falling under font, respectively. The attendees selected the new priority goals were voted upon to the priorities through an online vote that determine top priority objectives. Voting was occurred after the workshop. conducted on a goal-by-goal basis in order to The top eight priority goals as identified by ensure that each priority goal had definition the workshop participants are: and representation on the objective level. ■■ Manage the Florida Reef Tract and Ecosystem using an ecosystem- A draft of the final document was distributed based approach, including zoning/ to advisors and science advisors listed in marine spatial planning and other Appendix One for comments. After the appropriate tools. comments were incorporated into the document, it was distributed again to the ■■ Build political will and public support core-working group for final consensus. Two to establish the governing policies facilitated phone calls were conducted with and administrative structure needed members of the core group to finalize the to make reef conservation a priority language, to confirm the priorities and to for Florida. address any remaining concerns. ■■ Reduce pollutant loading to south Florida coastal waters.

6 Left Image: Florida coral reef managers at the Florida Priority Setting Workshop (L to R: Steve Blair of Miami-Dade County Department of Environmental Resources Management, Brian Keller of NOAA Florida Keys National Marine Sanctuary, and Sid Leve of John U. Lloyd State Park) . Right Image: Coral reef managers develop goals and objectives during the workshop (L-R; Dan Szopinski of John U. Lloyd State Park, Dave Hallac of Dry Tortugas and Everglades National Parks, Erin McDevitt of the Florida Fish and Wildlife Conservation Commission, Mark Amaral (facilitator) of Lighthouse Consulting Group, and Jamie Monty, Florida Department Environmental Protection-Coral Reef Conservation Program). Photo Credits: Dana Wusinich-Mendez, NOAA CRCP

■■ Restore and preserve coastal ■■ Reduce physical marine benthic estuarine habitats that aid in naturally impacts from recreational and improving water quality and support commercial fishing gear and marine the life histories of coral reef biota. debris. ■■ Educate the public and elected ■■ Improve the efficacy of law officials on the need to maintain enforcement activities. coral reef habitats and coastal water quality. This includes opportunities for economic development in tourism and recreation. ■■ Develop and implement conservation Florida’S programs to increase the size, abundance and protection, as

appropriate, of coral reef species (both Coral Reef Management fish and invertebrates), including targeted species critical to reef health and ecological function, such as game species and organisms collected for aquaria. Priorities

7 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

This section presents the entire framework of A. INTEGRATED REEF goals and objectives developed and agreed MANAGEMENT upon by the core managers group during this process. In this section, the Priority Goals GOAL A1: Manage the Florida Reef and Objectives are highlighted in green/bold Tract and Ecosystem using an and green/italic font, respectively. These are ecosystem-based approach, including the top priorities for management action as zoning/marine spatial planning and agreed upon by the core managers group. other appropriate tools. These priority goals and objectives will guide funding allocations for management Objectives activities. Off-priority goals and objectives are shown in plain text. 1. Create a Florida Reef Management Council within three years to oversee Not all goals or need areas identified through a coordinated ecosystem-based this initiative—either through the Situation management approach for the entire Analysis or the workshop—rose to the level Florida Reef Tract and Ecosystem of being a priority for all managers or are (spanning the full range of reef encompassed in the needs of the entire habitats and associated reef resources jurisdiction. Those that were not captured from the Dry Tortugas to Stuart, below are presented in Section Four of including the backcountry Gulfside of this document. Many of these issues are of the Keys). significant importance to specific geographic areas, but may not be relevant to the entire ▪ Include representation from local, Florida Reef Tract and Ecosystem. state and federal agencies that have management decision-making authority (possible council models: South Florida Ecosystem Restoration

8 Diver gliding over staghorn coral (Acropora cervicornis) thicket off of Broward County, Florida. Photo Credit: Karen Lane

Task Force, Great Barrier Reef representatives; draw lessons gained Marine Park Authority, Fisheries during the development of the Management Councils, U.S. Coral Florida Oceans and Coastal Council.) Reef Task Force). ▪ Provide direction (resolutions, ▪ Develop a memorandum of position statements) to managing understanding (MOU) among agencies to achieve overall goal management agencies to identify of managing Florida Reef Tract purpose, respective roles and and Ecosystem as a single, holistic authorities. ecosystem, and work toward developing a comprehensive ▪ Request the Florida legislature Florida Reef Tract and Ecosystem formalize the council through Management Plan. The legislature enabling legislation and appropriate

should carefully consider how to Florida’S administrative frameworks to vest the council with authority establish and authorize the council sufficient to maximize the council’s to direct the management of the effectiveness. Coral Reef Management Florida Reef Tract and Ecosystem. (Possible model: Florida Coordinating 2. Develop and implement a Council on Mosquito Control comprehensive zoning plan for the established by statute, has local, entire Florida Reef Tract and Ecosystem

state, federal and stakeholder and implement through placed-based Priorities

9 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

entities and management plans within 4. Enhance law enforcement capacity of three to five years. the managing agencies within three to five years. ▪ Develop an education and outreach plan for developing and ▪ Reach out to law enforcement implementing a comprehensive personnel to gain buy-in and refine zoning plan. needs and goals within three years.

▪ Define zoning alternatives within ▪ MOU to share resources, staff, three years. equipment, etc., and cross-deputize managing agencies’ law enforcement ▪ Implement zoning plan. officers (e.g., park rangers, county sheriffs, refuge officers, marine ▪ Take into consideration relevant patrol, etc.) so all can enforce policies on marine spatial planning applicable local, state and federal developed by the U.S. Ocean Policy laws within three years. Task Force and any relevant state policies. ▪ Provide additional enforcement authority as well as rules and (One purpose of a comprehensive regulations to effectively implement zoning plan is to provide consistent existing laws and policies within five signage and materials, i.e., maps years. and brochures across jurisdictional boundaries, to enhance public ▪ Provide additional support (funding, knowledge and understanding of hiring authorities) within five years. opportunities and use restrictions along entire reef tract.) GOAL A2: Build political will and public support to establish the governing 3. Establish a regulatory coordination policies and administrative structure committee under the Florida Reef needed to make reef conservation a Tract and Ecosystem Management priority for Florida. Council within three to five years.

▪ Determine whether there is a need Objectives for a new streamlined clearinghouse- 1. Implement a broad marketing style process for local, state and campaign to brand the Florida Reef federal permit review, compliance Tract and Ecosystem within three to and enforcement to enhance five years. coordination and consistency, or how existing processes might be retooled ▪ Conduct a comprehensive economic to achieve the same results. analysis to develop market and non- market value of the coral reef tract ▪ Promote sustainable coastal and ecosystem. development to minimize impacts to the Florida Reef Tract and Ecosystem. ▪ Develop a marketing plan with expertise of an advertising agency ▪ Use independent experts to review within two years. regulatory projects and decisions.

10 Indo-Pacific red lionfish and orange cup coral are invasive species in Florida’s waters. Photo Credits: Left Image: Andrew David, NOAA/ NMFS/SEFSC Panama City; Lance Horn, UNCW/NURC - Phantom II ROV operator, Right Image: Mohammed Al Momany

a Create consistent messaging to GOAL A3: Improve understanding of share in various venues across status and linkages of human activities the entire Florida Reef Tract and to the condition and trends of the Ecosystem. Florida Reef Tract and Ecosystem.

b Emphasize socioeconomic Objectives benefits of coral reef conservation. 1. Create a full inventory of status, trends c Find a spokesperson to represent and threats to coral reef resources the Florida Reef Tract and across the entire Florida Reef Tract Ecosystem. and Ecosystem within five years.

▪ Launch marketing efforts within three ▪ Implement outcomes of the Atlantic/ years. Caribbean Coral Reef Ecosystem Integrated Observing System a Inform and educate recreational Workshop (May 2009).

reef users. Florida’S ▪ Include permitted projects from the b Inform and educate the general last 15 years to gauge cumulative public. Coral Reef Management impacts. c Inform and educate policymakers ▪ Identify information gaps. and regulators. ▪ Develop and maintain a user-friendly

database that includes existing Priorities regulations and statutes that apply.

11 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

2. Update socioeconomic information ▪ Coordinate allocation of restoration (e.g., catalog uses and user groups, funds to affected parties and perceptions, demographics, etc.) and managing agencies. expand to cover entire Florida Reef Tract and Ecosystem within two years. ▪ Study needs for statutory authority to affect streamlined legal response 3. Fill information gaps and update and distribution of collected funds, inventory accordingly (ongoing). and propose legislative changes if necessary. 4. Raise awareness about the impacts of exotic species, particularly the invasive 3. Create consistent standards and best Indo-Pacific red lionfish and orange management practices for primary cup coral, on reef health. restoration and compensatory mitigation projects across the entire GOAL A4: Improve coordinated Florida Reef Tract and Ecosystem to be emergency response to disturbance implemented by responsible parties events and restoration of reef injuries within one year. (e.g., vessel groundings, invasive species outbreaks, algal blooms, ▪ Examples: bleaching, disease outbreaks, hurricane a Draft Environmental Impact damage, etc.). Statement for Biscayne National Park’s Fisheries Management Objectives Plan. 1. Create and sustain an emergency b Coral nurseries. response team to take action anywhere along the reef tract within three years c Damage Assessment and (model after Florida Reef Resilience Restoration Action Plan, FKNMS Program’s [FRRP’s] Disturbance Revised Management Plan. Response Monitoring [DRM]).

▪ Identify existing personnel for B. IMPACTS OF CLIMATE CHANGE an initial Florida Reef Tract and Ecosystem-wide ad hoc team within GOAL B1: Develop or improve climate- one year. change projections applicable to the Florida Reef Tract and Ecosystem Develop a response manual using ▪ within seven to nine years. existing protocols (e.g., FDEP-CRCP/ SEFCRI, FKNMS, FRRP DRM) within Objectives two years. 1. Develop climate-change models ▪ Train additional personnel, including at spatial and temporal scales law enforcement, within three years. relevant to the Florida Reef Tract and Ecosystem (that are coupled to 2. Create a cross-agency legal team to broader-scale climate-change models) coordinate settlement and restoration to describe and project modifications activities among multiple agencies in temperature (surface and bottom), within one year. salinity, pH and other ocean acidification parameters.

12 Recreational vessel grounded at Grecian Rocks off of Key Largo. Photo Credit: NOAA/FKNMS

▪ Develop scope of work (three to Objectives six months) and RFP (three to six months) to evaluate specifications 1. Utilize a coupled physical/chemical, for scaling resolution and parameters ecosystem and socioeconomic model for regional climate-change model (based on Florida Reef Tract and (one year for deliverable). Ecosystem climate-change model) to understand system-wide responses to ▪ Determine data availability and climate change. conduct gap and suitability analysis (six to nine months) and ▪ Develop scope of work (three to gather additional data to address six months) and RFP (three to six deficiencies (one to two years). months) to evaluate specifications and parameters, data availability and ▪ Develop regional-scale model based data suitability analysis for coupled on recommendations of scoping model (one year for deliverable). RFP coupled/linked to broader-scale climate-change models (three to five ▪ Gather additional data to address years). deficiencies (one to two years). Florida’S Develop coupled model based on

▪ Coral Reef Management GOAL B2: Conduct a climate-change recommendations of scoping RFP risk and vulnerability assessment coupled/linked to broader-scale and develop a dissemination and coupled models if they exist (three to communication strategy within seven five years). years (depending on concurrence with

GOAL B1). Priorities

13 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

2. Compile and translate climate- and modeling information on change forecasts and projections into a regional and global scale, products that are relevant and usable including evaluations of efficacy of for improved Florida Reef Tract and management actions. Ecosystem management, decision- making and public awareness Goal B3: Focus Florida Reef Tract and (starting within six months and Ecosystem climate-change-related ongoing). management actions and responses.

▪ Gather and synthesize existing Objectives information to put into format that addresses present and existing 1. Develop a multi-agency/university/ climate-change resource issues entity, multidisciplinary group or focused toward: committee to compile, assess and evaluate climate-change-related a Resource managers and decision- information for south Florida (Martin makers. to Monroe County). Information from the review would direct efforts of b General public. regional climate-change predictions, Note: Utilize public media and risk and vulnerability assessments private agency and NGO outreach and management actions for programs to raise awareness. regional marine natural resources (with consideration of impacts to the ▪ Synthesize and translate output from “built” community, cultural resource regional-response model to assist and economy). ecosystem management decision- making (dependent on output of ▪ Compile and synthesize existing coupled model, i.e., eight to ten years information on climate-change from start of program). effects for the south Florida region; identify information/projection gaps ▪ Recommend and implement for areas and resources in the Florida modifications to regulatory Reef Tract and Ecosystem region, processes relevant to coastal and which will serve to provide input inshore impacts associated with and guidance for climate-change climate change and sea-level rise. prediction efforts.

3. Utilize outputs of Objectives 1 and ▪ Formulate a regionally based 2 and other available regional and approach to remediate, ameliorate global information to develop a risk and/or mitigate effects of climate and vulnerability assessment for the change on the natural marine Florida Reef Tract and Ecosystem. resources.

▪ Assessment to be conducted with ▪ Formulate a comprehensive “Road existing data and information (one to Map” to develop and integrate two years). regional climate-change prediction, risk and vulnerability assessments ▪ Periodic updates (three to five and potential responses. years) incorporating new scientific

14 Left Image: Coral bleaching is one impact of climate change on Florida’s reefs. While typically associated with warmer than normal water temperatures, it can also happen when temperatures drop below their normal range, as happened in early 2010. Photo Credit: Brenda Altmerier Right Image: In 2008, NOAA conducted climate change and coral bleaching training in the Florida Keys; a tool to help local reef managers address the effects of climate change. Photo Credit: Mark Eakin, NOAA CRCP

▪ Apply results of regional response Hypothesis) while attempting to models to identify coastal tease out climate-change stressors as construction methodologies and much as possible. coastal wetlands restoration activities that are likely to preserve coral 3. Identify areas of perceived resilience resources from the consequences of (i.e., high coral cover and abundance) climate change. and areas of high vulnerability (which may or may not contain high 2. Increase knowledge and coral cover/abundance) within the understanding of resilience processes Florida Reef Tract and Ecosystem and distribution of “resilient” areas: and provide additional protection to those areas via appropriate marine ▪ Conduct surveys and monitor for zoning and reduction of existing correlative relationships between stressors (e.g., land-based sources of perceived resilient areas and present pollution, beach nourishment, etc.). and antecedent conditions (ongoing Florida’S and expand existing surveys and 4. Implement recommendations from monitoring within one year). the risk and vulnerability assessment

(three to five years). Coral Reef Management ▪ Direct research toward evaluating organism/community tolerance 5. Ensure there is a process to evaluate of and response to multiple the effectiveness of management environmental stressors (i.e., better activities toward issues identified by understanding of synergistic effects; the risk and vulnerability assessment. testing of Adaptive Bleaching Priorities

15 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

6. Ensure coordination and compatibility herbicides on the Florida Reef Tract of jurisdictional activities and and Ecosystem to inform management approaches to mitigate impacts of actions, policy decisions and outreach. climate change. 3. Design and implement a long-term, ▪ Develop and establish Florida Reef spatially robust water-quality- Tract and Ecosystem Council as monitoring program for the southeast coordinating entity. Florida coastal waters in order to determine sources of pollution and C. LAND-BASED SOURCES OF prioritize reduction efforts as well as to indicate successes of current pollutant POLLUTION reduction efforts.

GOAL C1. Reduce pollutant loading to 4 . Eliminate the use of septic tanks south Florida coastal waters. by providing sanitary sewer infrastructure in order to reduce Objectives nutrient and pharmaceutical product loading to groundwater. 1. Minimize the impacts of reduced water quality associated with 5. Assess pollution loading (monitoring controlled freshwater deliveries at the watershed, estuaries and near- and coastal construction activities shore oceanic reef areas) and identify on coastal, estuarine and lagoonal pollution reduction strategies. habitats (i.e., seagrass, oyster, mangrove, hardbottom and coral reef ▪ Integrate pollution loading communities). Irregularly timed, high assessment with the Restoration volume releases of fresh water into the Coordination and Verification marine and estuarine coastal systems (RECOVER) arm of the can carry excessive nutrient and Comprehensive Everglades pollutant loads and are detrimental to Restoration Plan (CERP), EPA’s coastal habitats and biota. National Pollutant Discharge ▪ Modify the timing, process of delivery Elimination System (NPDES), Total and water quality of storm and flood Maximum Daily Load (TMDL), control releases to minimize nutrient Integrated Ocean Observing and contaminant loading as well System (IOOS), Florida Area Coastal as the rate and magnitude of water Environment Program (FACE) and quality changes in receiving waters. other ongoing related programs. ▪ Minimize water quality degradation ▪ Where gaps exist within existing associated with coastal construction loading assessments (e.g., numeric activities. nutrient criteria for coral reefs), build additional loading models— 2 . Assess the impacts of the pollutants including dynamic physical and known to affect corals and coral reef biological interactions—that can be systems (concentration, interactive/ used to answer specific management synergistic effects of pollutants and questions and water quality issues physicochemical characters), including across the Florida Reef Tract and fresh water, nutrients, sedimentation, Ecosystem specific to land-based turbidity, heavy metals, pesticides and sources of pollution.

16 Left Image: Aerial image of blackwater from the St. Lucie River flowing onto coral reefs in St. Lucie Inlet Preserve State Park. Photo Credit: Jim David, St. Lucie County Mosquito Control Right Image: Sediment covers coral at a popular dive site in Palm Beach. Photo Credit: Steve Spring/ Marine Photobank

▪ Understand the connection between 7. Engage the South Florida Water land-based sources of pollution Management District and Army and algae/cyanobacteria blooms in Corps of Engineers at a high level to order to reduce sources of causative consider impacts of all flood control nutrients. activities on coastal resources (i.e., coral reef and associated estuarine 6 . Coordinate the various coral reef resources). monitoring programs in the region to maximize efficiency and determine GOAL C2. Restore and preserve coastal the effects of pollutant reduction estuarine habitats that aid in naturally efforts. improving water quality and support the life histories of coral reef biota. ▪ The integrated biological monitoring program shall include examining Objectives physical environmental factors, water quality and biological parameters to 1. Focus existing land acquisition Florida’S aid in determining causal factors in programs such as Florida Forever

biota changes. on acquiring properties aimed at Coral Reef Management preserving and restoring coastal and ▪ Biological monitoring shall include wetland habitats to benefit coral reefs. investigations at the molecular, cellular, organismal and community 2. Provide incentives through the level to identify stresses to the coral regulatory process for restoring and reefs before irreversible impacts to preserving wetlands associated with Priorities the communities are manifested. the coastal watershed.

17 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

3. Facilitate and encourage the public and elected officials on partnerships to access and the need to consider the impacts of coordinate restoration program coastal construction. grants and other related funds. GOAL C4. Regulatory policy shall use 4. Protect living shorelines and coastal water quality impacts to reefs implement a program to help as one of the bases for review. maintain their ecological value and to contain runoff from uplands in areas Objectives where natural wetland buffers have been eliminated through coastal 1. Within three years, conduct research construction activities. regarding thresholds of effects for common and uncommon reef biota GOAL C3. Educate the public and (e.g., hard corals) with respect to elected officials on the need to maintain key known pollutants in and ex situ coral reef habitats and coastal water to provide a basis for coastal water quality. This includes opportunities for quality standards. economic development in tourism and recreation. 2. Improve tools and guidance for assessing cumulative and indirect Objectives impacts on reef-system water quality. This includes possibly requiring 1. Develop an education program scientifically based programs that for elected officials to impress the monitor permitted activities to need for the activities defined in this determine effectiveness and/or document and the environmental and impacts. socioeconomic value of southeast Florida’s coral reefs and associated 3. Build capacity and develop habitats. Emphasis shall be placed on interagency procedures and the watershed concept and need for protocols within coral reef environmentally suitable flood-control management agencies along the measures. Florida Reef Tract and Ecosystem to effectively participate in planning- 2 . Use monitoring data to assess review and permitting processes for effectiveness of abatement measures development, coastal construction that can be easily and effectively and water-management projects and communicated through outreach and initiatives. education. 4. Improve consistency and level of 3 . Develop an education and outreach enforcement of current rules and strategy that identifies the target regulations. audience, based on abatement measures and mechanisms for 5. Develop and implement new delivering to them the information legislation to reduce the quantities required for wide-scale adoption. and impacts of land-based sources of pollution entering the coastal 4. Establish appropriate coastal environment. construction guidelines and educate

18 Educating the public and elected officials about the importance of maintaining coral reef habitats and coastal water quality is a priority in Florida. Outreach is also a means of educating the public about fishing, diving, and boating regulations as well as influencing behavior change in relation to boating and diving practices that impact reefs. Photo Credits: Left Image: Christopher Boykin, FDEP CRCP Right Image: NOAA/FKNMS

D. FISHING, DIVING AND OTHER to run population connectivity models USES for coral reef dependent species. 2. Identify larval sources, spawning areas GOAL D1: Develop and implement and aggregations. Understand sources conservation programs to increase of coral and reef fish larvae so that the size, abundance and protection, these can be conserved for necessary as appropriate, of coral reef species regeneration and restoration. (both fish and invertebrates), including targeted species critical to reef health 3. Support and enhance current efforts and ecological function, such as, to update existing stock assessments, but not limited to, game species and eventually developing appropriate organisms collected for aquaria. criteria to guide harvest regulations (i.e., Maximum Sustainable Yield, Objectives Optimal Sustainable Yield). This would include zoning strategies and the Florida’S 1. Fill monitoring and assessment gaps, potential use of no-take marine areas including fisheries-dependent and as well as appropriate legislation to Coral Reef Management independent monitoring, to further affect those zoning strategies and understand the effects on other trophic regulations. levels. This would include assessing the sustainable limits and impacts of all 4. Synthesize existing fish population fishers, including the “curio” trade and data to identify information gaps recreational and commercial aquarium and direct needs for additional Priorities collectors. Obtain enough information monitoring.

19 SECTION TWO: STRATEGIC CORAL REEF MANAGEMENT PRIORITIES

5. Develop strategy to formalize GOAL D3: Improve the efficacy of law coordination among fisheries enforcement activities. management and regulatory agencies. Objectives

GOAL D2: Reduce physical marine 1. Obtain additional resources (e.g., staff, benthic impacts from recreational equipment, statutory authority). and commercial activities and marine 2. Implement regular interagency law debris. enforcement coordination activities (e.g., cross-deputization, review/ Objectives updating of law enforcement 1. Reduce benthic habitat impacts by authorities/capacity, etc.). implementing, among other actions, 3. Improve education and outreach appropriate marine zoning (i.e., programs as they pertain to fishing/ the potential use of no-take zones, diving/boating regulations. no-anchor zones, no-motor zones, mooring buoy systems) and by ▪ Example: Expand Biscayne National providing education and enforcement Park’s Fisheries Awareness Program in sensitive, unique or highly to the rest of the Florida Reef Tract productive habitat areas. and Ecosystem.

2. Reduce misuse of recreational and 4. Through interagency coordination commercial fishing gear by: efforts, establish regional consistency standards and communication efforts ▪ Establishing gear-restrictive zones in for fisheries, diving and boating areas with sensitive benthic resources. regulations (e.g., central Web site, ▪ Requiring education programs standard format for brochures, etc.). regarding natural resources to obtain 5. Develop a Florida Reef Tract and commercial and recreational fishing Ecosystem law enforcement training license. program specific to reef-related ▪ Enforcing existing standards for illegal regulations and resources for all gear. agencies.

▪ Reviewing and establishing BMPs for GOAL D4: Reduce physical marine commercial activities. benthic impacts from recreational and commercial diving and boating. ▪ Reviewing rules and guidelines for activities on or around coral reefs. Objectives

3. Develop a centrally located 1. Reduce benthic habitat impacts by volunteer-based marine-debris implementing, among other actions, reporting and removal program. the potential use of no-take zones, no-anchor zones, no-motor zones, mooring buoy systems, education, etc.

20 Left Image: One way to reduce impacts to benthic habitats is to implement marine zoning, including installation of mooring buoys, such as this buoy in Broward County. Photo Credit: Broward County Environmental Protection Department Right Image: Enhancing law enforcement capacity and efficacy are also goals for Florida; increased marine patrols may be part of a solution developed for the region. Photo Credit: Lt. Dave Bingham, FL Fish and Wildlife Conservation Commission

2. Develop new educational programs 2. Implement required monitoring to inform the public and change procedures and reporting for water boating and diving practices that quality and potential benthic impacts impact reefs. in and around aquaculture facilities.

3. Implement a statewide licensing/ 3. Implement existing and, as necessary, permit system for boating and/or develop new emergency procedures using coral-reef resources. for escapees and natural disasters (e.g., hurricanes, disease outbreaks, 4. Expand the Florida Keys’ “Blue Star” exotic species recapture, etc.). recognition program for dive shops and operators to the rest of the 4. Implement requirements for Florida Reef Tract and Ecosystem. sustainable feed operations and (Note: Include education component waste removal, and limit potential for regarding exotic species and proper genetic impacts. reporting methods.) 5. Consider the effectiveness of Florida’S GOAL D5: Review existing and propagation programs to restore the establish new guidelines to minimize resource. Coral Reef Management aquaculture impacts on coral reefs.

Objectives

1. Develop appropriate siting criteria that include appropriate buffers Priorities between natural areas.

21 SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES

Table 1 shows how Florida’s Priority Goals and Objectives correlate to the NOAA CRCP National Goals and Objectives for coral reef conservation. Table 1 was developed after the Florida Coral Reef Management Priority Setting Process was complete to explicitly identify potential partnerships between the managers in Florida and NOAA CRCP. Addressing both local jurisdictional priorities and national goals and objectives will increase efficiency and leveraging of the resources available for coral reef conservation. NOAA CRCP will use this table to inform future investments in coral reef conservation in Florida.

22 Table 1. Correlations of Florida’s Priority Goals and Objectives to NOAA’s National Goals and Objectives

NOAA’s National Goals and Florida’s Priority Goals and Explanation of Correlation Objectives for Coral Reef Objectives (as needed) Conservation

GOAL A1: MANAGE THE FLORIDA REEF TRACT AND ECOSYSTEM USING AN ECOSYSTEM-BASED APPROACH, INCLUDING ZONING/ MARINE SPATIAL PLANNING AND OTHER APPROPRIATE TOOLS.

Objective 1: Create a Florida Reef Management Council within three years to oversee a coordinated ecosystem-based management approach for the entire Florida Reef Tract and Ecosystem (spanning None None the full range of reef habitats and associated reef resources from the Dry Tortugas to Stuart, including the backcountry Gulf-side of the Keys).

Fishing Impacts Goal 2 Support effective implementation and management of marine protected areas1(MPAs) and ecological networks2 of Florida’s reef managers have MPAs that protect key coral reef ecosystem prioritized the development of components and functions. a comprehensive marine zoning Objective 2: Develop and plan for Florida’s reef tract. While Fishing Impacts Objective 2.1: Identify, implement a comprehensive the National Fishing Impacts Goal characterize and rank priority areas for zoning plan for entire Florida 2 relates to MPAs, this is only one protection within each jurisdiction, including Reef Tract and Ecosystem and potential result of a marine zoning (but not limited to): implement through placed-based system. However, to support the entities and management plans National Fishing Impacts Goal 2 in • spawning sites, nursery habitats or other within three to five years. Florida, the CRCP will inherently areas critical to particular life-history need to support and work through stages. the marine zoning processes within

• biodiversity hotspots. Florida’S the state. • areas with greatest resilience or potential for restoring resilience. Coral Reef Management • areas facing the greatest threats.

1 Marine Protected Area (MPA): An area of the marine environment that has been designated by law or regulation to provide lasting

protection for part or all of the resources therein Priorities

2 Ecological Network: A set of MPAs that are connected through ecological processes and that share complementary purposes and synergistic protections.

23 SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES

NOAA’s National Goals and Explanation of Florida’s Priority Goals Objectives for Coral Reef Correlation and Objectives Conservation (as needed)

GOAL A1: MANAGE THE FLORIDA REEF TRACT AND ECOSYSTEM USING AN ECOSYSTEM-BASED APPROACH, INCLUDING ZONING/ MARINE SPATIAL PLANNING AND OTHER APPROPRIATE TOOLS.

Fishing Impacts Objective 2.2: Synthesize research on the performance of MPAs that protect key coral reef ecosystem components and functions.

Fishing Impacts Objective 2.3: Using outputs of Objective 2.1 and 2.2, appropriate models and socioeconomic considerations, identify MPAs that require increased protections or improved management, and areas to be considered for siting of new MPAs that protect key coral reef ecosystem components and functions.

One type of information Objective 2 (continued from Fishing Impacts Objective 2.4: Work with relevant that will be considered in previous page): Develop and agencies, offices and communities to create, the development of the implement a comprehensive implement and improve the management of MPAs comprehensive zoning plan is zoning plan for entire Florida that protect key coral reef ecosystem components the data being produced by the Reef Tract and Ecosystem and and functions. Florida Reef Resilience Program implement through placed-based surveys, which identify resilient entities and management plans Fishing Impacts Objective 2.5: Conduct biological reef areas along the entire Florida within three to five years. and socioeconomic research and monitoring to Reef Tract and Ecosystem. assess the performance of MPAs with respect to protection and restoration of key coral reef ecosystem components and functions.

Climate Change Objective 2.4: Promote conservation of coral reef ecosystems through identification of areas that are potentially resilient to climate change and vulnerable areas where actions are likely to increase resilience. Encourage and promote management actions necessary to avoid or minimize impacts and spread the risk due to climate change and ocean acidification.

Table 1 continued

24 NOAA’s National Goals and Explanation of Florida’s Priority Goals Objectives for Coral Reef Correlation and Objectives Conservation (as needed)

GOAL A2: BUILD POLITICAL WILL AND PUBLIC SUPPORT TO ESTABLISH THE GOVERNING POLICIES AND ADMINISTRATIVE STRUCTURE NEEDED TO MAKE REEF CONSERVATION A PRIORITY FOR FLORIDA.

Fishing Impact Objective 4.3: Develop targeted, locally relevant outreach and communication The objective A2.1 is more strategies to increase community understanding specific than the National and support for regulations to protect key coral Objectives; however, there reef ecosystem species/functional groups and is a correlation between Objective 1: Implement a broad expanded use of marine protected areas. Florida’s objective and the two marketing campaign to brand the National Objectives shown as Florida Reef Tract and Ecosystem LBSP Impacts Objective 3.5: Increase public each of them addresses the within three to five years. and political awareness and understanding of need for increased public and the ecological and socioeconomic impacts of political awareness to change land-based pollution on coral reef resources behavior in support of coral reef to promote better stewardship and informed conservation. decisions regarding activities in watersheds that may adversely impact coral reef ecosystems.

GOAL C1. REDUCE POLLUTANT LOADING TO SOUTH FLORIDA COASTAL WATERS.

In Southern Florida, the intracoastal waterways and Objective 1: Minimize the associated canals handle large impacts of reduced water quality portions of stormwater. This associated with controlled water management, as opposed freshwater deliveries and coastal to sediment and nutrient runoff construction activities on LBSP Impacts Objective 1.3: Implement from a watershed, is a source of coastal, estuarine and lagoonal watershed management plans and relevant great influence on coastal and habitats (i.e., seagrass, oyster, Local Action Strategies (LAS) within priority coral coral reef water quality. While mangrove, hardbottom and coral reef ecosystems and associated watersheds to not worded as a watershed, the reef communities). Irregularly improve water quality and enhance coral reef principle behind FL objective timed, high volume releases ecosystem resilience. Where needed, develop C1.1 is to reduce pollutant of fresh water into the marine (or update) watershed management plans that loading to key coral reef systems and estuarine coastal systems incorporate coral reef protection measures. from the land area of influence. can carry excessive nutrient In this case, fresh water is and pollutant loads and are

considered to be a pollutant. Florida’S detrimental to coastal habitats Also, the entire four-county area and biota. from Martin to Miami-Dade is Coral Reef Management considered one large watershed.

Table 1 continued Priorities

25 SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES

NOAA’s National Goals and Explanation of Florida’s Priority Goals Objectives for Coral Reef Correlation and Objectives Conservation (as needed)

GOAL C1. REDUCE POLLUTANT LOADING TO SOUTH FLORIDA COASTAL WATERS.

The National Objective states the Objective 2: Assess the impacts need to fill strategic science gaps, of the pollutants known to affect which suggests that prioritization corals and coral reef systems among science needs should (concentration, interactive/ take place. A strategic science synergistic effects of pollutants LBSP Impacts Objective 1.4: Promote an gap in Florida is the identification and physicochemical characters), integrated effort to fill strategic science gaps that of the levels of impact of including freshwater, nutrients, directly inform management decisions related to various known pollutants sedimentation, turbidity, planning and implementation activities in priority on the Florida Reef Tract and heavy metals, pesticides and coral reef ecosystems and associated watersheds. Ecosystem. This information will herbicides on the Florida Reef enable the development and Tract and Ecosystem to inform implementation of management management actions, policy actions that address the main decisions and outreach. sources of pollution most severely impacting Florida’s coral reefs.

LBSP Impacts Objective 3.1: Ensure that coral reef jurisdictions have adequate resources and Objective 3: Design and No explanation needed for capacity to develop and implement management implement a long-term, spatially correlation with LBSP Impacts plans, assess water quality and coral reef robust water-quality-monitoring Objective 3.1 ecosystem condition, enforce regulations and program for the southeast evaluate performance. Florida coastal waters in order to The Florida Priority Objective determine sources of pollution discusses the need to monitor for LBSP Impacts Objective 1.5: Determine the and prioritize reduction efforts, efficacy of management actions, efficacy of management activities through as well as indicate successes which correlates to LBSP Impacts coordinated baseline and performance of current pollutant reduction Objective 1.5. monitoring to assess progress and adapt efforts. management actions as needed.

Table 1 continued

26 NOAA’s National Goals and Explanation of Florida’s Priority Goals Objectives for Coral Reef Correlation and Objectives Conservation (as needed)

GOAL C2. RESTORE AND PRESERVE COASTAL ESTUARINE HABITATS THAT AID IN NATURALLY IMPROVING WATER QUALITY AND SUPPORT THE LIFE HISTORIES OF CORAL REEF BIOTA.

Objective 1: Focus existing land LBSP Impacts Objective 1.2: Identify and prioritize acquisition programs such as coastal and upland areas for preservation, Florida Forever on acquiring protection and restoration based on the coral properties aimed at preserving reef ecosystems and associated watershed areas No explanation needed. and restoring coastal and identified in Objective 1.1. wetland habitats to benefit coral reefs.

The National Objective identifies LBSP Impacts Objective 3.4: Ensure that the the need for a regulatory Objective 2: Provide incentives necessary and consistent regulatory and framework that supports through the regulatory process programmatic framework exists and is enforced watershed management and FL’s for restoring and preserving to implement watershed management strategies objective identifies how their wetlands associated with the necessary to protect coral ecosystems. regulatory framework should be coastal watershed. changed to support watershed protection for the benefit of reefs.

GOAL C3. EDUCATE THE PUBLIC AND ELECTED OFFICIALS ON THE NEED TO MAINTAIN CORAL REEF HABITATS AND COASTAL WATER QUALITY. THIS INCLUDES OPPORTUNITIES FOR ECONOMIC DEVELOPMENT IN TOURISM AND RECREATION.

Objective 1: Develop an education program for elected officials to impress the need for the activities LBSP Impacts Objective 3.5: Increase public defined in this document as and political awareness and understanding of well as the environmental the ecological and socioeconomic impacts of and socioeconomic value land-based pollution on coral reef resources No explanation needed.

of southeast Florida’s coral to promote better stewardship and informed Florida’S reefs and associated habitats. decisions regarding activities in watersheds that Emphasis shall be placed on the may adversely impact coral reef ecosystems. Coral Reef Management watershed concept and need for environmentally suitable flood- control measures.

Table 1 continued Priorities

27 SECTION THREE: LINKAGES TO NOAA’S NATIONAL GOALS AND OBJECTIVES

NOAA’s National Goals and Explanation of Florida’s Priority Goals Objectives for Coral Reef Correlation and Objectives Conservation (as needed)

GOAL C3. EDUCATE THE PUBLIC AND ELECTED OFFICIALS ON THE NEED TO MAINTAIN CORAL REEF HABITATS AND COASTAL WATER QUALITY. THIS INCLUDES OPPORTUNITIES FOR ECONOMIC DEVELOPMENT IN TOURISM AND RECREATION.

Objective 2: Use monitoring LBSP Impacts Objective 1.5: Determine the efficacy data to assess effectiveness of management activities through coordinated of abatement measures that baseline and performance monitoring to assess can be easily and effectively progress and adapt management actions as No explanation needed. communicated through outreach needed. and education.

Objective 3: Develop an LBSP Impacts Objective 3.5: Increase public and education and outreach strategy political awareness and understanding of the that identifies the target ecological and socioeconomic impacts of land- audience, based on abatement based pollution on coral reef resources to promote No explanation needed. measures and mechanisms better stewardship and informed decisions for delivering to them the regarding activities in watersheds that may information required for wide- adversely impact coral reef ecosystems. scale adoption.

GOAL D1: DEVELOP AND IMPLEMENT CONSERVATION PROGRAMS TO INCREASE THE SIZE, ABUNDANCE AND PROTECTION, AS APPROPRIATE, OF CORAL REEF SPECIES (BOTH FISH AND INVERTEBRATES), INCLUDING TARGETED SPECIES CRITICAL TO REEF HEALTH AND ECOLOGICAL FUNCTION, SUCH AS, BUT NOT LIMITED TO, GAME SPECIES AND ORGANISMS COLLECTED FOR AQUARIA

Objective 1: Fill monitoring and Fishing Impacts Objective 1.4: Obtain necessary assessment gaps, including information on fishing effort in U.S. coral reef fisheries-dependent and ecosystems by measuring fishing intensity, fishing independent monitoring, to mortality, frequency, area coverage, community further understand the effects on dependence, etc., to inform management other trophic levels. This would No explanation needed. Again, activities. include assessing the sustainable FL is somewhat more specific, but limits and impacts of all fishers, they are talking about the same Fishing Impacts Objective 1.6: Conduct applied including the “curio” trade and kinds of data. biological, social and economic research and recreational and commercial monitoring to evaluate effectiveness of coral reef aquarium collectors. Obtain ecosystem management actions on key species or enough information to run groups. population connectivity models for coral reef dependent species.

Table 1 continued

28 NOAA’s National Goals and Explanation of Florida’s Priority Goals and Objectives for Coral Reef Correlation Objectives Conservation (as needed)

GOAL D1: DEVELOP AND IMPLEMENT CONSERVATION PROGRAMS TO INCREASE THE SIZE, ABUNDANCE AND PROTECTION, AS APPROPRIATE, OF CORAL REEF SPECIES (BOTH FISH AND INVERTEBRATES), INCLUDING TARGETED SPECIES CRITICAL TO REEF HEALTH AND ECOLOGICAL FUNCTION, SUCH AS, BUT NOT LIMITED TO, GAME SPECIES AND ORGANISMS COLLECTED FOR AQUARIA

Objective 3: Support and enhance current efforts to update existing stock assessments, eventually developing appropriate criteria to guide harvest Fishing Impacts Objective 1.3: Obtain No explanation needed. Again, regulations (i.e., Maximum Sustainable essential life history and ecological FL is somewhat more specific, Yield, Optimal Sustainable Yield). This information on key species or functional but they are talking about the would include zoning strategies and the groups to support management actions. same kinds of data. potential use of no-take marine areas, as well as appropriate legislation to affect those zoning strategies and regulations.

GOAL D2: REDUCE PHYSICAL MARINE BENTHIC IMPACTS FROM RECREATIONAL AND COMMERCIAL ACTIVITIES AND MARINE DEBRIS.

Objective 1: Reduce benthic habitat The correlation above of FL impacts by implementing, among other Objective A1.2 to the National actions, appropriate marine zoning Fishing Impacts Goal 2 previously (i.e., the potential use of no-take zones, addresses how NOAA may no-anchor zones, no-motor zones, None support Florida’s efforts in mooring buoy systems) and by providing marine zoning. To the extent education and enforcement in sensitive, that those efforts also reduce unique or highly productive habitat benthic habitat impacts, it is areas. considered a welcomed benefit.

Objective 2: Reduce misuse of None recreational and commercial fishing gear.

GOAL D3: IMPROVE THE EFFICACY OF LAW ENFORCEMENT ACTIVITIES.

Fishing Impacts Objective 3.2: Strengthen Objective 1: Obtain additional resources local agency and community capacity Florida’S (e.g., staff, equipment, statutory for effective and consistent enforcement No explanation needed. authority). of regulations or behaviors that reduce impacts of fishing on coral reef ecosystems. Coral Reef Management

Objective 2: Implement regular Fishing Impacts Objective 3.2: Strengthen interagency law enforcement local agency and community capacity coordination activities (e.g., cross- for effective and consistent enforcement No explanation needed. deputization, review/updating of law of regulations or behaviors that reduce Priorities enforcement authorities/capacity, etc.) impacts of fishing on coral reef ecosystems.

Table 1 continued 29 SECTION FOUR: STRATEGIC PRIORITIES NOT CAPTURED IN THE FRAMEWORK

Other priorities identified through this necessity of response to immigrant landings. initiative and individual manager’s priorities These include medical response needs and for his/her area of authority may not rise to human services as well as possible response to the level of being a priority for all managers small-vessel impacts to coral reefs. or be encompassed in the needs of the entire jurisdiction. As such, the following section Deep-Sea Coral: Better understanding of deep- incorporates other high priorities mentioned by sea and mesophotic corals is an emerging topic individual participating managers that did not not addressed in management documents, but get captured in the Priority Goals and Objectives. touched upon in many interviews. This requires identifying deep-water coral areas as well as From the pre-workshop interviews and literature monitoring and researching to understand analysis, the following topics were raised but the human impacts on these ecosystems. This were not captured in the goals and objectives applies to the Coral-Habitat Area of Particular developed in the workshop. These are not Concern (East Florida lithoherms, Miami-Terrace agency-specific goals, but topical areas and and Escarpment, Portuales Terrace). issues. Backcountry Management: The backcountry Storm Damage: Because of its location, the Dry region along the Gulfside of the Florida Keys Tortugas has sustained significantly greater harbors important shallow-water (0–20 foot damages to the coral reefs and park facilities due contour) coral reef resources, including hard- to hurricanes and tropical storms. While other bottom habitats with sponges and soft corals, state and national parks indicate expansion patch reefs and discrete coral heads. This region of park facilities, in a similar time frame, Dry has received less attention relative to the main Tortugas National Park indicates the need to coral reef tract on the Atlantic, but needs to be rebuild. considered in the context of the entire coral reef ecosystem for inventory, monitoring, research Cuban Immigration Response: Dry Tortugas and conservation strategies. National Park is the only park to indicate the

30 Placed-Based Management Plans: In addition ■■ Florida Keys National Marine to this statewide priority setting document, Sanctuary, “Final Revised Management there are place-based management and Plan” (December 2007). strategic plans—either being implemented ■■ Biscayne National Park, “Biscayne or developed—of the various management National Park General Management entities that collectively direct management Plan” (1983). of the Florida Reef Tract and Ecosystem. These ongoing and developing plans of the ■■ Biscayne National Park, “Biscayne individual management bodies within Florida National Park General Management are of equal importance on the local scale and Plan” (in progress). their priorities may not be represented in this ■■ Biscayne National Park, “Mooring Buoy document. These plans include: and Marker Plan” (in progress); “Fishery ■■ SE Florida/ FDEP-CRCP, “Southeast Management Plan” (in progress); “Coral Florida Coral Reef Initiative: A Local Reef Restoration Programmatic Plan” Action Strategy” (2004). (in progress). ■■ SE Florida/ FDEP-CRCP, “Florida ■■ Biscayne National Park, Dry Tortugas Department of Environmental National Park, Virgin Islands National Protection Coral Reef Conservation Park, Buck Island National Park, Program 2011–2015 Strategic Plan” (in “South Florida and Caribbean Exotic preparation). Vegetation Management Plan” (in progress). ■■ St. Lucie Inlet Preserve State Park, “St. Lucie Inlet Preserve State Park Unit ■■ Dry Tortugas/Everglades National Management Plan” (Approved 2002). Park, “Everglades National Park and Dry Tortugas National Park ■ John U Lloyd Beach State Park, ■ Superintendant’s Annual Report” “Approved Management Plan: John U. DRAFT (2006). Lloyd Beach State Park” (2001). ■■ Dry Tortugas/Everglades National Park, ■ John U Lloyd Beach State Park, ■ Newsletters to the Public including “Approved Management Plan: John U. draft alternative plans for new Lloyd Beach State Park” (2004). Management Plan for implementation ■■ John Pennekamp Coral Reef State Park, 2011. “John Pennekamp Coral Reef State ■■ Lower Florida Keys/USFWS, Park: Approved Management Plan” “Comprehensive Conservation Plan (2004). and Environmental Assessment” (2009). ■■ Florida FWC, “2008–2009 Programs of ■■ Lower Florida Keys/USFWS & the FWC.” State of Florida, “USFWS & State of Florida’S ■■ Florida FWC, “Dry Tortugas National Florida Management Agreement Park General Management Plan” for Submerged Lands within the (2004–2005). Boundaries of the Key West and Great Coral Reef Management White Heron National Wildlife Refuges” ■■ Florida FWC, “Florida’s Wildlife Legacy (1992). Initiative. Florida’s Comprehensive Wildlife Conservation Strategy” (2005). ■■ “Lignumvitae Key Submerged Lands Restoration Plan” (2003). Priorities

31 APPENDIX ONE: PRIORITY SETTING PROCESS PARTICIPANTS

Core Group: place-based managers of specific area of Florida Reef ractT and Ecosystem.

Each member of this group was invited to attend the workshop, to partake in an interview prior to the workshop and to participate in document revisions.

Elsa Alvear, NPS–Biscayne National Park Ken Banks, Broward County Jeff Beal, FWC–Martin County Steve Blair, Miami Dade County Chantal Collier, FDEP–CRCP Kent Edwards, FDEP–FKNMS John Griner, FDEP–St. Lucie Inlet Preserve State Park Dave Hallac, NPS–Dry Tortugas and Everglades National Parks Brian Keller, NOAA–FKNMS Sid Leve, FDEP–John U. Lloyd State Park Mark Lewis, NPS–Biscayne National Park Erin McDevitt, FWC–Palm Beach County Jamie Monty, FDEP–CRCP Anne Morkill, USFWS–Florida Keys National Wildlife Refuges Complex Sean Morton, NOAA–FKNMS Janet Phipps, Palm Beach County Pat Quinn, Broward County Dan Szopinski, FDEP–John U. Lloyd State Park Sarah Thanner, Miami Dade County Joanna Walczak, FDEP–CRCP Pat Wells, FDEP- John Pennekamp Coral Reef State Park

Advisors: managers of jurisdictions and populations impacting Florida coral reefs.

Each member of this group was invited to an interview prior to the workshop and to participate in document revisions.

Myra Brouwer, South Atlantic FMC Jeff Rester, South Atlantic FMC

32 Billy Causey, NOAA–Office of National Marine Sanctuaries Miles Croom, NOAA NMFS–Habitat Conservation SERO Kathy Fitzpatrick, Martin County Brian Hostetter, NOAA NMFS–Restoration Center Rich Jones, Monroe County Jocelyn Karazsia, NOAA NMFS–Habitat Conservation Joe Kimmell, NOAA NMFS–Sustainable Fisheries Audra Livergood, NOAA NMFS–Protected Resources Jennifer Moore, NOAA NMFS–Protected Resources Mark Robson, Florida FWC Carrie Simmons, Gulf of Mexico FMC

Science Advisors: members of the scientific community with expertise in various aspects of coral reef ecosystems.

Each member of this group was invited to review documents and offer revisions.

Jerry Ault, University of Miami RSMAS Chris Bergh, The Nature Conservancy Jim Bohnsack, NOAA NMFS–SE Fisheries Science Center Joe Boyer, Florida International University Dick Dodge, NCRI Jim Forquean, Florida International University Dave Gilliam, NCRI Brian Keller, Office of National Marine Sanctuaries Margaret Miller, NOAA NMFS–SE Fisheries Science Center Matt Patterson, National Parks Service John Lamkin, NOAA NMFS–SE Fisheries Science Center Claire Paris, University of Miami, RSMAS Joe Serafy, NOAA NMFS–SE Fisheries Science Center Rob van Woesik, Florida Institute of Technology Brian Walker, NCRI Jenny Wheaton, Florida Fish and Wildlife Commission

Legal, Regulatory and Enforcement Advisors: representatives of state and federal government agencies with expertise in legal and enforcement issues.

Each member of this group was invited to review documents and offer revisions. Florida’S

Kelly Samek, FDEP–Office of General Council

Vladimir Kosmynin, FDEP–Beaches and Coastal systems Coral Reef Management Jennifer Smith, FDEP–Environmental Resource Permitting Captain Denise Warrick, FWC–Law Enforcement Lt. Dave Bingham, FWC–Law Enforcement Lisa Gregg, FWC Lt. Paul Steiner, USCG–Sector Miami, Waterways Management Priorities

33 APPENDIX TWO: CONTEXT

The Situation Analysis is a preparatory document Water Quality, as discussed in Florida’s existing that summarizes coral reef threats, condition and coral reef management and strategic work plans, trends; key management issues; and key agencies’ refers to nutrient loads and turbidity caused management goals. As an initial step in the by stormwater runoff, sewage impacts due to priority setting process, the Situation Analysis was inadequate stormwater and wastewater treatment used ahead of meetings and interviews to provide infrastructure and poorly mitigated and increased a reference point and boundary for priority setting coastal development. In addition, emerging data discussions with place-based coral reef managers suggests toxins, pharmaceuticals, endocrine in Florida. disrupters and pH may impact water quality and coral condition. Due to massive changes The documents that make up the basis of this as a result of the Comprehensive Everglades analysis were identified during interviews with Restoration Plan (CERP), there is potential for this core group of coral reef managers and other ecosystem-scale changes in freshwater movement managers and advisors in Florida and via a desk and delivery to the coastal system. This issue area review of existing management plans from overlaps with land-based sources of pollution as those agencies that are responsible for, or affect, described below. Florida’s coral resource management. The coral reef managers interviewed for this study were Education and Outreach is a universal and identified by the NOAA CRCP team with input vital management priority with the intent to from the U.S. Coral Reef Task Force (USCRTF) educate residents and resource users about the point of contact in Florida and included NOAA importance of, threats to, and impacts of humans National Marine Fisheries Service (NMFS), Florida on the coral reef ecosystem. Department of Environmental Protection Coral Reef Conservation Program (FDEP–CRCP), National Restoring and Maintaining the Functional Park Service (NPS), U.S. Fish and Wildlife Service Integrity of Natural Habitats is a universal theme. (USFWS), Florida Park Service (FPS), Florida Keys Some plans mention this goal in the context of National Marine Sanctuary (FKNMS), Regional maintaining tourism, while others refer to this Fishery Management Councils and Florida goal in the context of maintaining the ecological Fish and Wildlife Conservation Commission integrity of the ecosystem as a priority. Conflict (FWC)—from the Dry Tortugas to Martin County. may arise as one management body works to It highlights areas with common goals across increase access while another works to manage various geographic jurisdictions and management current access in an ecologically sustainable bodies. manner. Research and monitoring priorities are often included in this area, as management bodies The Situation Analysis identified the following need to understand the status and trends of the issue areas—which reflect both specific threats reef, the impacts of actions on ecosystems and the as well as tools to mitigate threats—as those success of mitigation and restoration. that were most commonly referred to in the documents reviewed. These results are listed in no particular order.

34 Mooring, Marking and Mitigating Vessel Impacts describes a universal concern for anchoring and grounding impacts on ecosystems. Most plans reference a need for better marking and increased mooring buoys in order to decrease anchor damage and vessel groundings.

Enforcement of waste disposal, coastal development and boating and fishing regulations is a key component to all plans as well, with nearly all documents referencing a need to coordinate on-the-ground and in-the-water enforcement bodies and more careful and complete permit and adjacent land-development plan reviews.

The following issue areas were mentioned in Florida’s plans less frequently but still played a pronounced role in documents reviewed. These results are listed in no particular order. Pillar corals in the Florida Keys National Marine Sanctuary. Photo Credit: William F. Precht, Florida Keys National Marine Sanctuary Zoning is mentioned in many existing plans and refers to the need to designate specific areas for specific activities and contains recommendations for general calls for area-wide zoning schemes. This includes a mix of marine protected areas, Climate Change is touched upon lightly by anchoring/no-anchoring areas, multi-use areas, several of the more current documents. Although no-take marine reserves, etc. detailed management actions are rarely listed, it is noted as an important topic in marine resource Land-Based Sources of Pollution pertains to conservation and management. Effects of climate pollutants or sediment from terrestrial sources change that impact coral reefs include ocean that degrade water quality or have a direct impact acidification, sea level rise, increased ocean on reef health. This broad topic is either directly or temperatures and hurricanes (e.g., wave damage, indirectly addressed in the documents’ goals and storm surge, marine debris). recommendations; Water Quality, defined above, is a subset of this category. Direct Physical Impacts of Human Usage include coastal construction such as dredging, beach Fishing is another broad category that captures renourishment and land-side activities that the priorities and goals related to the impacts of modify coastal systems’ physical, hydrologic and Florida’S fishing—both recreationally and commercially— biological processes, which affect coral reefs. on reef systems, including overexploitation, This also includes recreational and user activities bycatch and physical impacts to coral reef habitat on or around reef areas, such as diving and Coral Reef Management from gear. This integrates with Restoring and associated impacts, and overlaps with many of Maintaining the Functional Integrity of Natural the management priorities listed above. Habitats listed above. Priorities

35 APPENDIX THREE: PRELIMINARY IDENTIFICATION OF CAPACITY GAPS

During the interviews with the core coral reef Constituencies managers in Florida, facilitators worked to understand the working relationship between Premise: managers and management documents. Facilitators noted and identified challenges to and To achieve success, a core of well-informed current deficiencies in achieving stated goals and and supportive constituencies comprised of objectives, noting specific capacity gaps that likely stakeholders in both the private sector and will need attention. government agencies must actively support the program. The Coastal Resources Center at the University of Rhode Island developed and applied common Measures: tools for comparative assessments of coastal 1. The user groups who are affected by your ecosystem governance. This approach involves program understand and support the three categories, phrased as key statements, for goals, strategies and targets. enabling conditions that allow an initiative to successfully execute a sustained plan of action 2. There is public support for your program. designed to influence the course of events in an 3. The institutions that assist in ecosystem. implementing your program, or the institutions that are affected by the plan, The three categories are: constituencies, understand and support it. commitment and capacity. Each manager was asked to rate a series of statements on a scale of Results: one (strongly disagree) to five (strongly agree) under each of these categories. The statements The results indicate the respondents believe are meant to test a premise for each of the there is a core of informed and supportive enabling conditions as defined below. constituencies, both individual stakeholders and institutions, for their particular program. This baseline will also identify the immediate Comments taken during this portion of the survey capacity gaps that are directly related to indicate there is a wide range of constituencies implementing this strategic approach. These affected by coral reef management and gaps will be explored further, and a capacity conservation. Ensuring that all are well informed assessment will be developed in phase II of this and supportive is a daunting task. Programs effort, beginning in fiscal year 2011. have, therefore, focused on key user groups and institutions that are organized and have an easily accessible focal point. As an example, the Southeast Florida Coral Reef Initiative (SEFCRI) Local Action Strategy (LAS) document indicates

36 there is an understanding of the threats to and responsible for the program to implement its needs of the southeast Florida reef system. Various policies and plan of action. constituencies, including state, local and federal agencies as well as non-agency stakeholders, have Measures: contributed to creating local action strategies, 1. Your program possesses the human goals and objectives. resources to implement its plan of action. 2. Your program possesses the institutional Commitment resources (equipment, materials, etc.) to implement its plan of action. Premise: 3. There are internal or external barriers to To achieve success, it is necessary that successfully implement plan of action. the delegated authorities have expressed What are these? commitment to the policies of a program and to the allocation of financial resources required for Results: long-term program implementation. The results indicate that of the three categories Measures: being measured, sufficient capacity within the institutions responsible for the program was the 1. The appropriate level of government has weakest of the enabling conditions. Capacity in formally approved the plan of action. this instance includes human as well as physical 2. The government provided the program resources (equipment, materials, etc.), though the with the authorities it needs to lack of human resources was the most significant successfully implement its plan of action. factor. Nearly all management and strategic work 3. Sufficient financial resources have been plans indicate a need to hire more personnel. committed to fully implement the program over the long-term. This initial assessment suggests that while there is general enabling support for coral reef Results: management and conservation programs in Florida, participants in the interview noted specific The results indicate that most respondents’ plans capacity gaps that will need to be addressed to have generally been approved by the appropriate fulfill the goals and objectives of existing and levels of government—which is an important future plans. Funding, materials and personnel requisite for successful implementation—but top the existing list of capacity gaps, as does a lack or have marginal delegated authorities thorough understanding amongst the public to implement their specific plan of action. of the impacts of its actions on coral habitats, Respondents did not believe that the necessary and the need for appropriate and adequate financial resources required for long-term program governance structure and administrative implementation have been committed to their frameworks to enable meaningful coral reef Florida’S particular programs. Several of the plans reviewed conservation.

include objectives to obtain funding for projects. Coral Reef Management This initial assessment will be followed by a Capacity more detailed assessment and analysis that will focus on capacity gaps in relation to the specific Premise: management goals and objectives that are finalized by the priority setting process. To achieve success, it is necessary for sufficient Priorities capacity be present within the institutions

37 BIBLIOGRAPHY OF CORAL REEF MANAGEMENT AND CONSERVATION DOCUMENTS FOR FLORIDA BY AGENCY

Florida Department of Environmental Florida Fish and Wildlife Conservation Protection (FDEP) Commission (FWC)

Biscayne Bay Aquatic Preserve Card Sound. Florida FWC. Coral Reef, a chapter of the Wildlife Management Plan DRAFT (1991). Legacy Initiative.

Coupon Bight Aquatic Preserve. Management Plan Florida FWC Division of Marine Fisheries (1992). Management/Fish and Wildlife Research Institute. Dry Tortugas National Park General Management FDEP CRCP/SEFCRI, Maritime Industry and Coastal Plan (2005). Construction Impacts Focus Area Project of the Southeast Florida Coral Reef Initiative. Rapid Florida FWC Fish and Wildlife Research Institute. Response and Restoration for Coral Reef Injuries in Dry Tortugas National Park Long Term Monitoring Southeast Florida: Guidelines and Recommendations and Assessment Project Annual Report (2005–2006). (June 2007). National Oceanic and Atmospheric FL DEP, Division of Recreation and Parks. Approved Administration (NOAA) Management Plan: John Pennekamp Coral Reef State Park (2004). NOAA, National Marine Sanctuaries Program. Florida Keys National Marine Sanctuary Draft FDEP, Division of Recreation and Parks. Approved Revised Management Plan (2005). Management Plan: John U. Lloyd Beach State Park (2001). NOAA. State of the Coral Reef Ecosystem: The Florida Keys. FDEP, Division of Recreation and Parks. St. Lucie Inlet Preserve State Park Unit Management Plan NOAA. State of the Coral Reef Ecosystem: Southeast (approved 2002). Florida.

FDEP/FWC/NOAA et al. Southeast Florida Coral Reef National Park Service (NPS) Initiative: A Local Action Strategy (2004). NPS. Everglades National Park and Dry Tortugas Manoj Shivlani. Florida Department of National Park Superintendant’s Annual Report Environmental Protection (DEP) Coral Reef Needs DRAFT (2006). Assessment Study (April 27, 2006).

38 A grouper in the Florida Keys National Marine Sanctuary; finding large predators like grouper in Florida’s reef ecosystems is more rare than in the past. Photo Credit: Dave Burdick

Fisheries Management Councils (FMC) U.S. Fish and Wildlife Service (USFWS)

Gulf FMC. Coral Fishery Management Plan (FMP) as FWS. Comprehensive Conservation Plan for the amended. Lower Florida Keys National Wildlife Refuges DRAFT (2008). SAFMC. The Fishery Management Plan for Coral, Coral Reefs and Live/Hard Bottom Habitat of the FWS. Management Agreement for Submerged South Atlantic Region. Lands Within Boundaries of the Key West and Great White Heron National Wildlife Refuges SAFMC. Policies for the Protection and Restoration (1992). of Essential Fish Habitats from Beach Dredging and Filling and Large-Scale Coastal Engineering (2003). http://www.safmc.net/Portals/0/HabitatPolicies/ BeachPolicy.pdf

Joint Agency Documents Florida’S

NPS/FDEP. Management Agreement for Certain Coral Reef Management Submerged Lands in Monroe County, Florida, located within Dry Tortugas National Park (2005).

Reef Resilience Conference 2008: Resilience Strategies. Florida Reef Resilience Program. http:// www.frrp.org/ Priorities

39 40 To access this report online or for more information, visit: http://coralreef.noaa.gov/aboutcrcp/strategy/reprioritization/managementpriorities/ Florida’S Coral Reef Management Priorities

41 To access this report online or for more information, visit: http://coralreef.noaa.gov/aboutcrcp/strategy/reprioritization/managementpriorities/

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