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1 University of Nebraska - Lincoln DigitalCommons@University of Nebraska - Lincoln U.S. National Park Service Publications and Papers National Park Service 2013 Development of a collaborative science plan to evaluate the conservation efficacy of a no-fishing, no-anchor marine reserve in Dry Tortugas National Park, Florida, USA David E. Hallac South Florida Natural Resources Center, David_Hallac@nps.gov John H. Hunt Fish and Wildlife Research Institute Douglas Morrison South Florida Natural Resources Center Alice Clarke South Florida Natural Resources Center Tracy A. Ziegler South Florida Natural Resources Center See next page for additional authors Follow this and additional works at: Hallac, David E.; Hunt, John H.; Morrison, Douglas; Clarke, Alice; Ziegler, Tracy A.; Sharp, William C.; and Johnson, Robert, "Development of a collaborative science plan to evaluate the conservation efficacy of a no-fishing, no-anchor marine reserve in Dry Tortugas National Park, Florida, USA" (2013). U.S. National Park Service Publications and Papers This Article is brought to you for free and open access by the National Park Service at DigitalCommons@University of Nebraska - Lincoln. It has been accepted for inclusion in U.S. National Park Service Publications and Papers by an authorized administrator of DigitalCommons@University of Nebraska - Lincoln.

2 Authors David E. Hallac, John H. Hunt, Douglas Morrison, Alice Clarke, Tracy A. Ziegler, William C. Sharp, and Robert Johnson This article is available at of Nebraska - Lincoln:

3 Fisheries Research 144 (2013) Contents lists available at SciVerse ScienceDirect Fisheries Research jo u r n al homep age: Development of a collaborative science plan to evaluate the conservation efficacy of a no-fishing, no-anchor marine reserve in Dry Tortugas National Park, Florida, USA David E. Hallac a,, John H. Hunt b, Douglas Morrison a, Alice Clarke a, Tracy A. Ziegler a, William C. Sharp c, Robert Johnson a a South Florida Natural Resources Center, Everglades and Dry Tortugas National Park, SR 9336, Homestead, FL 33034, USA b Fish and Wildlife Research Institute, Florida Fish and Wildlife Conservation Commission, Marathon, FL 33050, USA c Division of Marine Fisheries Management, Florida Fish and Wildlife Conservation Commission, Tallahassee, FL 32399, USA a r t i c l e i n f o Article history: Received 13 March 2012 Received in revised form 4 August 2012 Accepted 6 September 2012 Keywords: Connectivity Marine reserve Florida Keys Fisheries conservation a b s t r a c t The Dry Tortugas Research Natural Area (RNA), a 158-km 2 no-fishing, no-anchor marine reserve, was implemented in 2007 in Dry Tortugas National Park (DRTO), Florida to minimize the effects of human activities on marine resources and to enhance the productivity and sustainability of fish populations. The process of establishing the RNA resulted in the development of a Memorandum of Understanding (MOU) between the State of Florida and the National Park Service (NPS). The MOU constitutes a roadmap for the roles and responsibilities for a state and federal partnership, collaborative preparation of a research and monitoring plan, and reporting on the progress implementing the plan and preliminary findings. A science plan was developed in conjunction with marine and fisheries scientists from multiple agencies and non-government organizations to: (1) quantify changes in the abundance and size-structure of exploited fish species within the RNA relative to adjacent areas; (2) monitor the immigration and emigration of targeted species; (3) monitor changes in species composition and catch rates of exploited fish species throughout the surrounding region; (4) evaluate the effects on marine benthic biological communities; (5) assess reproductive potential of exploited fish species by evaluating egg production and larval dispersal; and (6) implement social science studies to evaluate visitor experiences. For each topic, performance measures, essential and supplemental activities, and general study recommendations were developed. The plan supported interagency marine resource managers in the structured implementation of a science program by communicating to the public a suite of performance measures and essential and supplementary studies designed to document changes in fisheries resources. Development of collaborative marine science programs are useful for leveraging resources, engaging the public and agency decision-makers, and long-term planning to ensure that research and monitoring data are available for sustainable adaptive management of marine reserves. Published by Elsevier B.V. 1. Introduction Renowned for its coral reefs and wide diversity and abundance of fish, Dry Tortugas National Park (DRTO) lies at the western end of the Florida Keys along the Straits of Florida (Fig. 1). First established as Fort Jefferson National Monument in 1935, the site was reauthorized in 1992 as Dry Tortugas National Park. Congress established the park to preserve and protect for the education, inspiration, and enjoyment of present and future generations nationally Corresponding author. Present address: Yellowstone Center for Resources, P.O. Box 168, Yellowstone National Park, WY 82190, USA. Tel.: address: David Hallac@nps.gov (D.E. Hallac). significant natural, historic, scenic, marine, and scientific values in south Florida. The enabling legislation stipulates that the park must be managed in a manner to protect, among other values, a pristine subtropical marine ecosystem, including an intact coral reef community and also incorporated the prohibition of commercial fishing in In 1974, following research demonstrating a reduction in spiny lobster abundance and fecundity caused by recreational harvest within DRTO (Bertelsen and Cox, 2001; Davis, 1974), spear fishing and the harvest of all spiny lobster species were prohibited. Observations of increased visitation and use of all DRTO marine resources made during the 1990s and documented during an interagency, marine spatial planning effort called the Tortugas 2000 Working Group process, contributed to the decision to establish /$ see front matter. Published by Elsevier B.V.

4 16 D.E. Hallac et al. / Fisheries Research 144 (2013) Fig. 1. Dry Tortugas National Park, including the Research Natural Area and the Florida Keys National Marine Sanctuary s Tortugas Ecological Reserves North and South. a no-fishing, no-anchor marine reserve called the Research Natural Area (RNA) in 2001 (Brock and Culhane, 2004; U.S. Department of Commerce, 2000). The RNA was planned as a 158-km 2 marine reserve comprising approximately 50% of the park and was designed to restore ecological integrity and capacity for selfrenewal by minimizing the effects of human activities (Fig. 1). It complements protection afforded by the adjacent Tortugas North and South Ecological Reserves (TNER and TSER) of the Florida Keys National Marine Sanctuary established by the National Oceanic and Atmospheric Administration and the State of Florida; consequently, it contributes to a region-wide effort to conserve marine resources. However, the implementation of the RNA was delayed until issues between the federal government and the State of Florida related to the ownership of the submerged lands within DRTO were resolved. In 2005, the Governor of the State of Florida and the Secretary of the U.S. Department of the Interior signed a management agreement for the submerged lands within DRTO (Dry Tortugas National Park, 2006), thereby resolving the submerged lands dispute. The resolution of this issue was key to the success of RNA implementation because it paved the way for establishing the appropriate regulatory partnership between the NPS and the Florida Fish and Wildlife Conservation Commission (FWC). In 2006, the FWC concurred with the NPS plan to establish the RNA with the stipulation that the NPS and the FWC establish a Memorandum of Understanding (MOU) to facilitate collaboration between the two agencies to evaluate the performance of the RNA (South Florida Natural Resources Center and Florida Fish and Wildlife Conservation Commission, 2007). The MOU stipulated that a detailed monitoring and research plan be developed based on several RNA performance areas and include a review and summary of past and existing work in DRTO relevant to the RNA, as well as a schedule of deliverables for reporting. In accordance with the direction provided by the MOU, the NPS and FWC developed a science plan designed to guide a program to evaluate the conservation efficacy of the RNA through the implementation of performance measures, essential and supplementary activities, and proposed studies. Herein, we detail the joint process that developed the science plan, summarize the various elements of the plan, and discuss the advantages of building strong inter-agency partnerships to leverage resources, engage the public and agency decision-makers, and enable long-term planning to ensure that research and monitoring data are available for sustainable adaptive management of the marine reserve. 2. Materials and methods 2.1. Initial science planning activities As a joint effort between a state and federal agency, lead scientists from each agency were appointed to build a collaborative relationship, promote understanding among agencies, provide a consistent effort to develop and implement research and

5 D.E. Hallac et al. / Fisheries Research 144 (2013) monitoring, and report on program accomplishments. To ensure that science plan activities undertaken would be those best suited to address the marine conservation objectives of the RNA, the NPS and FWC conducted two facilitated science coordination meetings. The first meeting was held to obtain recommendations from state and federal agency marine fisheries scientists on February 12 and 13, 2007, in Homestead, Florida. Marine scientists participated from agencies including: Florida Fish and Wildlife Conservation Commission; Florida Department of Environmental Protection; Dry Tortugas National Park; NPS South Florida and Caribbean Inventory and Monitoring Network; NPS Water Resources Division; National Oceanographic and Atmospheric Administration (NOAA) Fisheries; NOAA National Marine Sanctuary Program; NOAA National Ocean Service; and U.S. Geological Survey. Facilitators assisted in the development of consensus-based recommendations for performance measures and for essential and supplementary science activities, along with detailed plans for study. Essential activities were deemed as necessary to report on conservation efficacy associated with the MOU topics, while supplementary activities may provide additional information to further understanding of the RNA performance topic Stakeholder review and input The NPS and FWC subsequently prepared a draft science plan and distributed it to agency scientists, representatives of important conservation and fishing organizations, and members of the public for a 30-day review period. To provide additional opportunities for comment and input on the science plan, a public meeting was held in Key Largo, Florida, on May 3, The meeting provided an opportunity to comment on all aspects of the plan. Key NPS and FWC staff and facilitators held topic-specific breakout sessions that were attended by interested members of the public and marine scientists. During these sessions, in-depth discussions were encouraged on proposed elements in the science plan and additional recommendations were noted and considered for inclusion in the final plan. The meeting was attended by approximately 75 agency scientists, representatives of non-governmental organizations, and interested citizens. Table 1 Dry Tortugas National Park Research Natural Area performance topics and measures. Performance topic Performance measures 1. Quantify changes in the abundance and size-structure of exploited fish species within the RNA relative to adjacent areas. 2. Monitor the immigration and emigration of targeted species in the RNA. 3. Monitor changes in species composition and catch rates of exploited fish species throughout the surrounding region. 4. Evaluate the effects of RNA implementation on marine benthic biological communities. 5. Assess reproductive potential of exploited fish species by evaluating egg production and larval dispersal. 6. Incorporate social sciences into the research and monitoring program. Abundances, sizes, occurrence frequency, and estimates of fisheries stock assessment parameters for groupers, snappers, and grunts inside and outside the RNA. Abundances of reference (non-fishery) reef fishes, e.g., Family: Scaridae. Net emigration of select species from the snapper grouper complex from the RNA to adjacent fished areas inside and outside DRTO. Catch per unit effort (CPUE), including released fish, harvest per unit effort, estimated total catch and harvest, and population size-structure of targeted reef fishery species, especially grouper and snapper species, throughout the Tortugas region. Damage to and loss of stony and soft corals species, seagrass, benthic community structure, abundance of functional groups, measures of grazing pressure, coral recruitment, spawning, and disease; and measures of primary productivity. Measurements of fecundity and larval production of reef sportfish and movement of reef sportfish from the RNA to spawning aggregation sites. RNA export of targeted reef fishery species, primarily larval groupers and snappers, throughout the Tortugas and Florida Keys. Fishing activity, SCUBA and snorkeling activity monitored as the total number of SCUBA divers and snorkelers and duration in water for each designated dive site and reference site, number of boats anchoring by location, visitor satisfaction, economic impacts of the RNA on businesses operating within the park, and law enforcement activity and regulatory compliance rates (number and percentage of violations by user permit type) Incorporating stakeholder input and development of the final science plan Approximately 100 unique comments were received during the public meeting and public comment period. Each comment was responded to individually, and the entire suite of comments and responses was included in the final science plan. Consistent with the MOU, the plan developed a 3- and 5-year reporting schedule to provide publicly available information on the progress implementing the science plan. A final plan was released to the public in the spring of Results For each of the six RNA performance topics identified in the MOU, relevant performance measures were developed (Table 1). Essential and supplemental activities were identified, and a general proposal for study was made (South Florida Natural Resources Center and Florida Fish and Wildlife Conservation Commission, 2007). A summary of the recommended studies, as defined in the science plan, and their justification is below Abundance and size-structure of exploited fish species within the RNA relative to adjacent areas A major goal of no-fishing marine reserves is to produce increases in the abundance, size-structure, and productivity of target fishery species within the reserve, and numerous scientific studies have demonstrated that marine reserves achieve this goal (Halpern, 2003; Lubchenco et al., 2003; National Academy of Sciences, 2001). Coral reef fish monitoring, using a reef visual census (RVC) to collect abundance, size, and occurrence frequency data, had been conducted for several years prior to RNA implementation (Ault et al., 2002, 2006, 2007). Performance measures and studies were developed to test the hypothesis that implementation of the RNA will enhance reef fish populations within the protected area. A study to continue an annual RVC using a stratified random sampling design inside and outside the RNA using two strata (RNA and non-rna zone) and a Stationary Diver Circular Plot (SDCP) technique (Bohnsack and Bannerot, 1986; Brandt et al., 2009) was recommended. Additionally, the plan recommends the deployment of fish traps and hook-and-line gears to collect additional information on selected species to evaluate changes in relative abundance and size-structure. The use of baited fish traps and baited hook-andline gears, implemented using the same stratified random design, would complement RVC monitoring by providing additional data

6 18 D.E. Hallac et al. / Fisheries Research 144 (2013) from which abundance, frequency of occurrence, and size-structure of selected species can be compared because the actual length of each individual will be measured and not estimated (as in the RVC). Recommendations for supplemental activities included a visual survey of fishes in seagrass communities and seasonal coral reef visual surveys inside and outside the RNA. Reef fish species, especially juveniles, found in seagrass beds may be an early indicator of RNA success. Seasonal fish monitoring on reefs should be considered in summer, fall, winter, and spring to better understand if temporal differences occur between zones Immigration and emigration of targeted species in the RNA The spillover effect is an intended conservation benefit of nofishing marine reserves. Specifically, management actions may increase the abundance and size-structure of targeted fishery species in areas adjacent to the reserve due to net emigration from the reserve. These effects have been observed in many nofishing reserves (Galal et al., 2002; McClanahan and Mangi, 2000; Roberts et al., 2001; Russ et al., 2003, 2004). The primary study recommended for this topic was a sonic tagging study to monitor broad-scale immigration/emigration or flux of selected species from the RNA to fished areas throughout the DRTO region, with a focus on evaluating diel patterns of habitat use and identifying core utilization areas (home range). The study area will encompass the Florida Shelf of the DRTO region and consist of open fished areas and regulated marine protected areas, including the RNA, TSER, and TNER. A fish tagging project was also recommended to track broader scale fish movements throughout the region and over time, as well as to monitor fish survival within DRTO. This approach provides an opportunity for and relies on outreach to the recreational fishing community for reporting of recaptured tagged fish through reports made by recreational anglers to the FWC Fish and Wildlife Research Institute tag return hotline. Outreach information publicizing the tagging program should be distributed throughout the Florida Keys and DRTO. For supplemental information, the sonic tagging study could be expanded by strategically locating receivers along corridors that may lead to spawning aggregation sites, such as Riley s Hump (Burton et al., 2005) Changes in species composition and catch rates of exploited fish species throughout the surrounding region Although fisheries-independent studies are useful, there is also value in understanding the benefits of marine reserves through a direct analysis of recreational and commercial fisheries-dependent catch data. Studies indicate that marine reserves have enhanced adjacent fisheries, as measured by greater fish biomass, greater catch, increased catch rate, and reduced fishing effort (Galal et al., 2002; McClanahan and Mangi, 2000; Roberts et al., 2001; Russ et al., 2003, 2004). The primary study recommended for this topic was a traditional creel census project to collect DRTO recreational fishing activity data from private boat anglers using fixed intercept interviews conducted at Garden Key, the most popular visitor destination in the park, and from roving on-water interviews. Data recorded should include fished species composition with an emphasis on grouper, snapper, and grunt species, area fished, fish kept and released by species and zone, fish length by species, fishing effort, species preference, and angler residence. These data should be analyzed in conjunction with log books from professional charter and guide boat operations in DRTO that are required to obtain annual permits and provide monthly reports of the catch and effort for each fishing trip. To better understand regional trends, recreational charter boat data in the Florida Keys/Gulf Coast could be gathered through the Cooperative Gulf Charter Boat Survey Research Program administered in the southeast Gulf Region by the State of Florida and the Gulf States Marine Fishery Commission, along with data from the National Marine Fisheries Service s Marine Recreational Fishery Statistics Survey. Supplemental data could be obtained through a DRTO visitor use permit system that would require all anglers to report fishing activity data. Anglers could be provided with survey forms when obtaining their permits and would be required to return completed surveys either in person, by U.S. mail, or via the internet. If permit system data collection technique could not be implemented, then an aerial survey, such as one utilized in Everglades National Park, could be considered (Ault et al., 2008) Effects of RNA implementation on marine benthic biological communities RNA implementation may have a variety of direct and indirect effects on marine benthic habitats, including coral reef and seagrass communities. Prohibiting anchoring in the RNA should greatly reduce or eliminate any anchor damage to coral reef, other hard bottom, and seagrass communities. However, because the RNA is a no-anchor zone, diving is concentrated at designated dive sites associated with mooring buoys. The intensity of diving activity at these sites could cause direct damage to corals. Assessments from around the world have found that heavy diving activity, generally greater than divers per year per site, on coral reefs results in damage (Harriott et al., 1997; Hawkins et al., 1999; Rouphael and Inglis, 2002; Zakai and Chadwick-Furman, 2002). In addition, anchor damage to corals could increase at prime fishing and diving sites adjacent to the RNA, if fishing and diving activity is effectively displaced to these sites. To study the effects on corals of SCUBA and snorkeling use at RNA designated (mooring buoy) dive sites, the plan recommends monitoring of damage and loss of Acropora spp. and other vulnerable species annually at all dive sites using a replicated Before-After-Control-Impact (BACI) sampling design (Green, 1979) to measure and compare changes at dive sites and equivalent reference reef sites with no or little diving activity. Supplementary data could be collected through annual benthic monitoring at randomly selected coral reef and seagrass sites inside and outside (reference sites) the RNA to observe potential decreases in anchor damage to seagrass and coral reefs park-wide. Fishing boats commonly anchor along the boundary of many no-fishing zones. The intensity of fishing and dive boat anchoring adjacent to the RNA might become great enough at some locations to impact coral reef benthic communities. Fishing and diving activities may increase here because this reef is prime reef fish habitat adjacent to the RNA, is a prime dive site that will not be limited by mooring buoy availability, and is the reef closest to Garden Key. The potential for recreational use-caused coral damage here could be greater than that at any dive site within the RNA; therefore, coral damage studies should be focused in this area and incorporate reference sites. Overfishing of large carnivorous fishes can have indirect effects on the abundances of non-target species, benthic community structure, and food web dynamics through the trophic cascade (Dulvy et al., 2004; Mumby et al., 2006; Pauly et al., 1998; Sala et al., 2004). The consequences of these trophic shifts can cause fundamental changes in marine ecosystem structure and function. Establishing no-fishing marine reserves should help restore more natural benthic community structure and ecological processes (Mumby et al., 2006). Consequently, the science plan recommended an investigation of the trophic cascade effects on RNA coral reef community structure and ecological processes resulting from the removal of fishing activities. Baseline conditions should be established by collecting annual data on the key ecological attributes, including benthic community structure, abundance of functional groups,

7 D.E. Hallac et al. / Fisheries Research 144 (2013) measures of grazing pressure, coral recruitment, spawning, and disease, and measures of primary productivity at sites representative of the major reef benthic community types within the RNA and corresponding reference sites outside the RNA Reproductive potential of exploited fish species via egg production and larval dispersal The Tortugas region is an important spawning area for groupers and snappers, and several spawning aggregation sites have been identified (Lindeman et al., 2000, 2001; Burton et al., 2005). Mutton snapper spawning aggregations increased in a no-fishing area within the TSER after its establishment (Burton et al., 2005). The science plan recommends that sonic tags and an array of receivers be used to evaluate movements of selected species from the RNA and the TSER to spawning aggregation sites using fish captured and tagged at Riley s Hump, a reef promontory within the TSER and a documented spawning area for numerous reef fish species. Additionally, characterizing reef sportfish fecundity for one or two species, representative of the snapper grouper complex, would be valuable to understand the potential increase in productivity that may occur through prohibiting fishing. These studies should collect biological samples to compare the effects of fishing pressure and/or protection on the age-structure, size-at-age, sex ratio, and reproductive condition of selected species. Marine reserves have been shown to enhance populations regionally through greater larval production and export due to increased fecundity of organisms within reserves (Lubchenco et al., 2003). Protecting populations of reef sportfish may result in larger, more fecund fish. Productivity of these fishes may help replenish sportfish populations regionally via larval transport. Drifter studies simulating larval transport have found that reef fishery species larvae spawned in the Tortugas could be viably dispersed as far as Cape Canaveral on the Atlantic coast and Tampa Bay on the Gulf coast (Burke et al., 2003; Domeier, 2004; Lee et al., 1994; Lee and Williams, 1999). Drifter studies conducted in 1999 and 2000 indicated that a snapper spawning aggregation site on Riley s Hump in the TSER is a recruitment source for a broad expanse of southeast Florida, including the entire Florida Keys (Domeier, 2004). Research and monitoring activities should test this broadscale spillover effect hypothesis using the RNA. The deployment of drifters within the RNA can help to determine the fate of larvae from commercially, recreationally, and ecologically important species of finfish and invertebrates to potentially indicate if the RNA is acting as a source of recruits to the Florida Keys and/or the rest of Florida. A study to release drifters should be implemented at sites based on the identification of spawning aggregations and known species-specific spawning periods. Drifter studies should be combined with a comprehensive review of simulation models, datasets, and biological information on spawning behaviors in the Tortugas, with an emphasis on providing recommendations for novel modeling approaches. Supplemental activities could include modeling efforts to explore larval transport and connectivity around south Florida. Some scientists suggested that fish could be identified in areas far from DRTO through use of a genetic marker to identify genetic differences between individuals, possibly by chemical- or radiation-induced chromosome damage or by insertion of a particular gene sequence into lab-reared females should be considered (e.g., Saville et al., 2002) Social sciences Given that key components of the National Park Service mission are to provide for public enjoyment of the natural and cultural resources held within national parks, and to provide educational opportunities, studies that further understanding of the effect of the RNA on the visitor experience are important. Le and Littlejohn (2003) asked DRTO visitors about the importance of protecting natural resources; however, there were no specific questions about RNA implementation. It is expected that the quality of the visitor experience will be enhanced by RNA implementation, and a first step in understanding the social science landscape at DRTO is to characterize visitor activities. DRTO private boat recreational fishing activity data and charter boat recreational fishing activity data are available for small time periods, and few data exist on the number of SCUBA divers using the park. Recreational boat and diver use data should be collected through the DRTO permit system. All recreational diving and fishing activity in the park should require a permit, which will help managers track the total number of SCUBA divers and snorkelers and duration in water by location. To understand visitor use experiences and perceptions regarding the RNA, an evaluation of RNA visitor use experience and satisfaction should be implemented through a survey to determine how the RNA affects visitor use throughout the park and determine how experiences change over time. Surveys should attempt to obtain a general socio-demographic profile of boaters, anglers, divers, and snorkelers. Measurements of the efficacy of visitor contact with environmental education or interpretation programs via brochures, site bulletins, public service announcements, marine radio, visitor contact, and visitor centers should be considered. A socioeconomic study should be considered to evaluate the economic effects of RNA implementation on private businesses operating in the park. Ultimately, all recommended performance measure topics support stewardship goals to understand the conservation benefits associated with a no-fishing and no-anchoring zone within DRTO (Fig. 2). 4. Discussion Many no-fishing marine reserves have been established recently, but few have established comprehensive, collaborative science plans to study their conservation efficacy upon implementation. Marine resource management programs that develop robust long-term monitoring plans, such as those in the Channel Islands, have been successful (Davis, 1989). Development of the RNA science plan occurred in a timely manner and resulted in a strategic program as called for by Brock and Culhane (2004). DRTO was an appropriate place to implement a RNA science program; other wellconstructed studies previously demonstrated conservation efficacy of no-fishing regulations for non-finfish species, such as the spiny lobster (Panulirus argus) (Bertelsen and Matthews, 2001). The planning process yielded many benefits that may be transferable to other resource management and science planning strategies. The establishment of essential and supplemental study recommendations helps managers prioritize science activities that are most important to evaluating zone performance. The selection of program managers by DRTO and the FWC early in the development of the planning process was central to its success. Fisheries and marine management agencies should place great emphasis on dedicating the time for key personnel to manage such programs, as a lack of leadership has been identified as a key factor in the failure of numerous fisheries adaptive environmental assessment and management programs (Walters, 2007). Dedicated science program managers can develop positive, collaborative relationships between their respective agencies and potential partners to compete jointly for grant funding, leverage agency resources to makeup shortfalls, and communicate among a diverse group of stakeholders. These science managers should also prioritize the research topics required to be conducted immediately in order to maximize the ability to respond to the highest-priority issues

8 20 D.E. Hallac et al. / Fisheries Research 144 (2013) Fig. 2. Dry Tortugas National Park Research Natural Area science plan topics, potential impacts, and stewardship actions. Arrows display the interconnectedness of topics and associated activities. identified by agency resource managers. A substantial level of leadership and teamwork is necessary given the high cost of conducting science, especially in remote sites such as DRTO, where long-term housing and other logistical support do not exist. A research program specifically designed to characterize the connectivity of the marine reserve within the context of the region and nearby reserves is useful in the consideration of adaptive management. Although the DRTO RNA did not develop an adaptive monitoring and assessment plan per se, information gained helps to determine if the reserve is meeting a number of hypothesized conservation functions, and to identify areas that may be contributing to conservation value, elucidate ecological connectivity between reserves, and evaluate the efficacy of regulatory and education efforts. Many adaptive actions are possible when a comprehensive marine reserve research and monitoring plan is in place (Davis et al., 1994). For example, monitoring potential effects on corals from diving activity at DRTO designated dive sites will inform management decisions to expand, limit, rotate, or discontinue diving activity at popular dive locations. Farmer and Ault (2011) have recently observed movements of exploited fish between the DRTO RNA and the immediately adjacent protected area Tortugas North Ecological Reserve. Given the emphasis on tagging studies formulated to advance understanding of movements within DRTO and nearby marine protected areas, managers should focus on characterizing migration corridors. Understanding population connectivity, spawning migratory movements, reproductive potential, and spillover in the DRTO region is critical to the assessment of the effectiveness of existing Tortugas no-fishing zones and the consideration of future adaptive adjustments. Stakeholder-driven processes for establishing indicators to monitor collaboratively managed lands have been identified and these processes may aid in the development of management solutions for natural resource conflicts (Muñoz-Erickson et al., 2010). The need for efficacy monitoring for effective adaptive management of marine reserves has been identified (e.g., Sale et al., 2005); however, we were not able to find existing models for development of collaborative science plans to monitor the conservation efficacy of marine reserves. We recommend programmatic science planning as a valuable tool for agencies to use in formulating long-term, sustainable monitoring programs around limited budgets. Publically vetted, formal planning processes provide transparency and allow stakeholders to engage in the process to develop a program of study to better understand conservation values of new regulations that they sometimes do not initially support. Well-developed plans can serve as a research and monitoring communication tool for mid-level managers to communicate science needs to upper-level managers and to facilitate priority-setting exercises with other agencies. Managers should not underestimate the importance of making investments in the development of science plans, including the packaging and marketing of plans in ways that are visually engaging and allow the core components and goals of the plan to be easily understood by policymakers. Marine managers can also use science plans as a research and monitoring prospectus to communicate priority science needs to potential researchers and funding agencies.

9 D.E. Hallac et al. / Fisheries Research 144 (2013) The DRTO RNA is part of the United States National System of Marine Protected areas, a system that heralds the use of marine protected areas for protection of both cultural and natural resources (National Oceanographic and Atmospheric Administration, 2008). However, the MOU for the RNA did not specifically describe a performance topic associated with monitoring of submerged cultural resources, such as the numerous shipwrecks scattered throughout the park. While the historical importance of submerged cultural resources in DRTO and the value of the RNA in preserving these resources are clear, the RNA MOU and subsequent science plan should have specifically described performance topics and measures to gauge the preservation efficacy of the RNA. DRTO and the FWC adapted reporting to incorporate monitoring programs dedicated to submerged cultural resources; however, in retrospect, we recommend that future programs incorporate cultural resource monitoring from the onset. Impacts associated with visitor activities, such as fishing and anchoring, are not the only stressors likely to affect tropical marine ecosystems now and in the future. Impacts of non-native marine organisms, such as the lionfish (Pterois volitans), have the potential to confound monitoring results in DRTO, especially those results related to recruitment of reef fish species. Nearby coral reef ecosystems, such as those in the Bahamas, have been colonized by very high densities of lionfish, and the potential for adverse impacts to reef fish recruitment has been demonstrated (Albins and Hixon, 2008). Climate change and associated impacts may also confound research and monitoring results. However, the DRTO RNA, considering its remote location, is an ideal site at which to study the impacts of climate change absent most other anthropogenic stressors, such as overharvest of reef fish and invertebrates and land-based sources of pollution. Additionally, the management of an intact reef ecosystem should contribute to the region s overall resilience. The National Park Service has implemented a long-term ecological monitoring program to understand the status and trends of important resources in hundreds of parks (Fancy et al., 2009); however, in many cases, the development of more specific monitoring plans, e.g., to address discreet management actions, such as the implementation of the RNA, will be required. Yet, even these specific plans may not represent all aspects of data needs for ecosystem management. For instance, while anchoring has caused extensive destruction of corals, such as Acropora cervicornis, at DRTO (Davis, 1977), RNA establishment does not directly address the root causes of coral decline. A substantial decrease in stony corals has occurred over the last 30 years, especially among the major reef forming Acropora spp., now formally listed under the Endangered Species Act. The loss of stony corals has been due mostly to disease, bleaching, hypothermic events, and hurricanes (Davis, 1982). Other resource protection strategies should be considered to address coral loss. The public review process indicated a desire to develop quantitative targets for each performance measure; however, performance measure targets could only be established as directional and qualitative. Principal investigators that develop more detailed sampling designs should consider use of statistical techniques, such as power analysis, to develop sound quantitative targets, but in many cases development of quantitative targets will only be possible after baseline data are obtained and natural variability characterized. The first few years of study will help establish baseline variability in performance measures, which are vital to the ultimate development of quantitative targets. Managing expectations is important in the visioning and communication of monitoring plans to policymakers and the public. Selig and Bruno (2010) reviewed the efficacy of marine reserves worldwide, and their results suggest that marine reserves take several years to become effective at conserving coral cover; thus, as elsewhere, clearly managing expectations will be important for the DRTO RNA. In the Florida Keys region, a rapid response to the removal of fishing was observed for spiny lobster within the Western Sambo Ecological Reserve (WSER) where spiny lobster abundance and size structure increased relative to adjacent fished areas within a few years (Cox and Hunt, 2005). WSER is located in an area where the surrounding fishing pressure is intense. DRTO has not experienced the intensity and breadth of fishing pressure as have other places in the tropical western Atlantic. Therefore, one would not expect as rapid or perhaps extensive increases in fish productivity parameters or trophic cascade response to RNA implementation as in other locales. Fisheries responses have been observed in a relatively short period after no-fishing zones were implemented in New Zealand, but these responses were a function of immigration into the reserve rather than productivity from inside the new reserve (Denny et al., 2004). Immigration and emigration studies, informed by an array of sonic receivers and sonically tagged fish, will assist in clarifying similar results, if observed at DRTO. Science planning should attempt to set forward appropriate expectations to help stakeholders recognize that ecosystems take time to respond to management actions. The developers of the RNA science plan have recommended a variety of metrics that will help evaluate benefits both in short and long timeframes. Natural variability in sea temperature, weather events such as hurricanes, and other factors can affect monitoring metrics and thereby have the potential to complicate RNA assessment. The purpose of summarizing work in the three- and five-year assessment reports is to document baseline ecosystem conditions and demonstrate to the public that the collaborating agencies are capable of putting a robust program into place, not necessarily to demonstrate the effects of the RNA. Three- and five-year assessment reports, as part of the continuing communication effort with stakeholders, were recently compiled and presented to the public and they show encouraging signs that the marine reserve is meeting performance expectations (Hallac and Hunt, 2010; Ziegler and Hunt, 2012). The full benefit of the RNA to the Tortugas region will likely only be measurable in the long-term. The DRTO RNA Science Plan provides a framework for a sustainable and collaborative program of monitoring and research that will leave implementing agencies well-poised for future management. Acknowledgments Alejandro Acosta, Luiz Barbieri, Michael Feeley, Brian Keller, Tom Schmidt, Ted Switzer, and William Teehan contributed to the development of the Science Plan. We thank Andrea Atkinson and Matt Patterson of the NPS South Florida and Caribbean Inventory and Monitoring Network for facilitating the initial science planning workshop. 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