CEP Technical Report No. 36 1996

CEP Technical Report No. 36 1996: Status of Protected Area Systems in the Wider Caribbean Region
Country Profiles

IUCN MANAGEMENT CATEGORY	No. of Protected Areas (PAs)	PAs with Marine or Coastal Zones	Extension
Category I	0	0	0
Category II	3	3	6,628
Category III	0	0	0
Category IV	0	0	0
Category V	0	0	0
Categories VI-VIII	0	0	0
Biosphere Reserves	0	0	0
World Heritage Sites	0	0	0
Ramsar Sites	0	0	0
Total	3	3	6,628

The National Parks Act No. 11, 1984, as amended (No. 3, 1986), gives general powers to the relevant Minister to declare any area of land or water to be a national park, subject to affirmative resolution of the legislature, and provides for the creation of a statutory corporation called the National Parks Authority. The Act does not provide a definition of the term "national park" and does not make provision for the establishment of other categories of protected area. Only one site, Nelson's Dockyard National Park, has been created under the Act (CCA 1991). It has been recommended that the existing law be amended to make provision for additional categories of protected area to be established, particularly those that allow a more flexible approach to resource conservation and exploitation (CCA 1991).

Two areas were proclaimed under the provisions of the Public Parks Ordinance No 4, 1965. The first of these has been incorporated subsequently into Nelson's Dockyard National Park, whilst the latter is not protected in practice. Neither is referred to in the National Parks Act (CCA 1991).

The Marine Areas (Preservation and Enhancement) Act No. 5, 1972 gives the Minister of Agriculture, Land and Fisheries the authority to declare restricted marine areas in order to preserve and protect marine flora and fauna, natural beauty, or to promote recreation. Two such areas have been declared under the Act (SRO No. 47, 1973), one in the reefs off Antigua and the other off Barbuda. Regulations made under the Act (SRO No. 25, 1973) prohibit certain activities within such areas.

The Fisheries Act No. 14, 1983, which is consistent with the unified fisheries draft prepared by FAO for the Eastern Caribbean Commonwealth States, also provides for the declaration of areas of water and adjacent land as marine reserves to protect natural beauty, flora, fauna and habitats, to restore degraded areas, or to promote scientific study (Annex I). No marine reserves have been created under this Act (CCA 1991).

Deficiencies in existing forestry and wildlife policy, legislation and regulations are recognised as deterrents to proper management of forest resources. With the assistance of FAO, a draft national forestry and wildlife policy (McHenry and Gane 1988) and draft forestry and wildlife acts are being prepared. The institutional framework for the management of protected areas is also flawed, primarily because laws have been passed without sufficient consideration of staffing and budgetary requirements. Administrative responsibilities are also not clearly defined in the case of Barbuda (CCA 1991).

As early as 1979 a UNDP supported project sought to identify and develop a national park system for Antigua and Barbuda (Robinson 1979). Despite the recommendations of this project, the present protected area system does not provide adequate coverage of species, habitats and other environmental features. Four life zones are identified in Antigua according to ECNAMP (1980a); which are mangrove, cactus scrub, dry woodland, and moist forest. Much of the dry woodland that existed in the English Harbour and Falmouth areas prior to 1960 has been reduced to cactus scrub, however sufficient remains that both of these zones are fairly well covered in Nelson's Dockyard National Park. Moist forests are also well represented within the park.

ECNAMP (1980a) also highlighted the important marine and coastal habitats, but neither these nor the wildlife they support are adequately represented within protected areas. The north-east coastline of Antigua and adjacent off-shore cays are particularly important for their concentration of wetlands, mangrove habitats, coral reefs, seagrass beds and seabird nesting sites, yet these have not yet been afforded protected status. Similarly, there is no legal basis for protecting the biological diversity of Barbuda.

ECNAMP (1980a) has recommended areas for "special treatment" in both Antigua and Barbuda. The areas selected (ECNAMP 1980a, 1980b) indicate that for Antigua the volcanic south-west and southern sections and their nearshore and northern coastal and marine areas are vital for representation of ecosystems, species, and areas of outstanding recreational, historical and archaeological value. The Highlands of Barbuda and the extended marine habitats of its western and southern side are similarly important.

A number of proposals for additional protected areas are presented in CCA (1991). Currently, preparations for the creation of a marine protected area on the north east coast, North East Coast Management Area (NECMA). Its location is around Parham Harbour and has been started with the support of the Organisation of American States (OAS). Within this area there is provision for a more intensely managed Bird Island Marine reserve and Wildlife sanctuary .

Convention concerning the Protection of the World Cultural and Natural Heritage (World Heritage, 1972)

Convention for the Protection and Development of the Marine Environment of the Wider Caribbean Region (Cartagena Convention, 1983)

Caribbean Environment Programme (CEP, 1981) and its Specially Protected Areas & Wildlife Programme (SPAW, 1990)

Two different offices are involved with the protected areas system, the National Parks Authority (Ministry of External Affairs, Economic Development, Tourism and Energy) and the Fisheries Division (Ministry of Agriculture, Fisheries and Lands). The latter ministry is responsible for lands, forests, soil conservation, and marine areas. The Fisheries Division is responsible for implementation of both the Marine Areas and Fisheries acts, but lacks the staff and resources to manage effectively the protected areas for which it is responsible (CCA 1991).

The National Parks Authority is responsible for the implementation of the National Parks Act and for all matters associated with park management, including planning and management of funds generated by park activities (or donated for use in the parks). The Authority's overall function is to preserve, protect, manage and develop the natural, physical and ecological resources, and the historical and cultural heritage of Antigua and Barbuda. The Authority has a Board of Directors with seven members, and approximately a staff of 35, headed by a Parks Commissioner. An Advisory Committee of eight individuals is intended to facilitate community involvement in the affairs of the Authority. There is a weakness in the planning and research capabilities of the Authority, with those functions being taken up by Canadian International Development Agency (CIDA) consultants.

Local councils on Barbuda and Antigua have legal responsibility for forest reserves on the islands, while the Forestry Unit in Antigua provides a range of services in connection with forestry. Although short-staffed and lacking adequate funds this unit has produced a slope and soils map, which when combined with an ownership map provides information on priority government forest lands needing total protection, increased control over use, and rehabilitation (OECS 1986).

The Historical, Conservation and Environmental Commission was effectively established in 1989, as an advisory body to provide input and guidance for the management of the nation's natural and historical resources. There are no statutory provisions for the Commission and its terms of reference have yet to be promulgated or approved by Cabinet. However, it was actively involved in a recent environmental profile (CCA 1991).

Until recently, only one NGO has had an environmental agenda, namely the Historical and Archaeological Society of Antigua and Barbuda. Subsequently, the Environmental Awareness Group (EAG) was established in 1988 as an off-shoot with a stronger focus on environmental issues. One of the goals of EAG is to promote, by dialogue and example, appropriate sustainable life styles (IRF 1991). The Antigua and Barbuda Fisherman's Association is concerned with the destruction of mangroves and other areas that are important as fish habitats and nurseries.

Antigua is a hilly coral limestone island in the Lesser Antilles, attaining 402 m in the south-west, with a deeply indented coastline, fringed by reefs and shoals (UNEP/IUCN 1988). The reefs are often formed on submerged limestone terraces or platforms. Mangrove vegetation has developed in sheltered bays and inlets behind barriers of sand or coral debris. Due to habitat alteration and human disturbance, much of Antigua's remaining wildlife is limited to coastal areas and offshore islets and cays.

Barbuda is a low limestone island (38 m maximum elevation) with a markedly uniform coastline. It is one of the driest West Indian islands, with a mean annual rainfall of only 984 mm. To the north and west lies an area of lagoons and creeks separated by beach ridges and mangrove swamps. Codrington Lagoon is the largest such area, and extends southward for practically the entire length of the island. The lagoon is an important nursery ground for fish and lobster, and constitutes one of the largest remaining stands of relatively unspoiled mangroves in the Lesser Antilles (Scott and Carbonell 1986). In contrast to Antigua, Barbuda is largely forested and in a more natural state with extensive tracts of native dry forests. The low topography and minimal rainfall has led to soils that are poorly developed, with the result that only minor agricultural activities and settlements have developed.

The islands' original forest formations comprised mangroves, littoral woodland, cactus scrub, thorn woodland, deciduous woodland, semi-evergreen woodland, semi-evergreen seasonal forest and evergreen seasonal forest, corresponding to progressively higher elevations and greater rainfall. A study undertaken for the Organisation of American States in 1983 best described the vegetation of Antigua and Barbuda at that time.

The recurrent planting of sugar cane over several centuries, and the extensive area under cane production are considered to have destroyed, for all practical purposes, the evidence of natural vegetation. The introduction and rapid naturalisation of many plant species, which now dominate areas previously used for agriculture, have created pioneer ecosystems that are maintained by current land practices.

The principal vegetation types found today comprise forest, scrubland, savannah and grassland (Morello 1983). Current estimates of forest cover vary substantially over time, and according to the methods used. According to one study in 1983, 5,600 ha were considered to be under woodland cover and 10,000 ha under scrub vegetation, while another more recent estimate indicated some 9,600 ha under woodland (Wirtshafter et al 1987). A full description of the range of native habitats and species on both islands is provided by Miller et al (1989) and CCA (1991).

Antigua and Barbuda's three national parks all contain marine or coastal zones. The total protected areas coverage is 6,628 ha, 15% of the total land area (Annex II). Currently, only one area, Nelson's Dockyard National Park is actively managed. However, management is focused on regulating and supporting business activities within the park. The park's biological, historical, cultural and historical components are not properly protected, preserved or managed. The National Parks Authority received assistance from CIDA to establish Nelson's Dockyard National Park, particularly with respect to strengthening the institutional capability of the Authority. CIDA is due to fund the upgrading of the park's infrastructure during Phase II of the development activities (CCA 1991).

Two additional marine parks have been established under existing legislation, but activities are not controlled or regulated in any way (CCA 1991). The Parks Authority has little scientific expertise in natural resources management, and there is lack of co-ordination between protected area organisations (OECS 1986). Further, there is no firm policy decision has been made on the ultimate responsibility for managing protected areas in Barbuda. For example, it is not clear if the Barbuda Council would have legal responsibility in the event that proposed areas were established (CCA 1991). In addition, there is currently no adequate coastal zone management regime, and no agency has clear cut responsibility for wetlands (Jackson 1990).

No effective management capacity exists for Diamond & Palaster Reef Marine Reserves due to lack of institutional structure, personnel and funding for established areas. Impact include reef damage from anchoring, habitat destruction, species loss from souvenir collecting and over fishing, damage from recreation diving, coastal development as well as natural phenomena. Protected areas are not supported by local fishermen (van't Hof 1993)

During the past five years, a number of events have increased awareness of the need for strengthened and more environmentally sensitive planning and development policies. These include the destruction of mangroves for a large-scale hotel, marine recreation facilities and waste disposal; clearing of hillside and scrub for road construction; and uncontrolled and illegal beach sand mining and sewage disposal (CCA 1991).

Parks Commissioner, Antigua and Barbuda National Parks Authority, PO Box 1283, ENGLISH HARBOUR, Antigua (Tel: 809 460 1053; FAX: 809 460 1516)

Fisheries Department, Ministry of Agriculture, Fisheries and Lands, Government Headquarters, ST. JOHN'S, Antigua

Antigua-Barbuda Historical and Archaeological Society, Antigua-Barbuda Museum, PO Box 103, Long Street, ST. JOHN'S, Antigua (Tel: 809 462 1469).

Environmental Awareness Group, Antigua-Barbuda Museum, PO Box 103, Long Street, ST. JOHN'S, Antigua (Tel: 809 462 1469)

Historical Conservation and Environmental Commission, Ministry of Economic Development, Tourism, and Energy, Queen Elizabeth Highway, ST. JOHN'S, Antigua. Telephone: (809) 462-1014, (809) 462-0533 Fax: (809) 462-2836

CCA (1991) Antigua and Barbuda: country environmental profile. CCA/IRF/Environmental Awareness Group/USAID. 212 pp.

ECNAMP (1980a) Antigua preliminary data atlas. Eastern Caribbean Natural Area Management Programme. Caribbean Conservation Association and the School of Natural Resources of the University of Michigan. 18 pp.

ECNAMP (1980b) Barbuda preliminary data atlas. Eastern Caribbean Natural Area Management Programme. Caribbean Conservation Association and the School of Natural Resources of the University of Michigan. 18 pp.

IRF (1991) Directory of environmental NGOs in the Eastern Caribbean: A guide to non-governmental organisations supporting conservation and resource management programmes. Island Resources Foundation, St. Thomas, US Virgin Islands. 46 pp.

Jackson, I.L. (1990) Report on national workshop towards a strategy for integrating conservation and development in Antigua and Barbuda. 28-29 March 1996, OECS Conference Room, St. John's, Antigua. 21 pp.

McHenry, T. and Gane, M. (1988) Report to the Government of Antigua and Barbuda on forestry and wildlife policy and legislation. FAO, Rome. (Unseen)

Miller, G.A., Fujita, M.S. and Ford, L.B. (1989) Biological diversity and tropical forests assessment. Annex to RDO/C Action Plan, FY88-89. USAID/RDO/C, Bridgetown, Barbados. (Unseen)

Morello, J. (1983) Ecological diagnosis of Antigua and Barbuda. Organisation of American States, Department of Regional Development, Washington, D.C. (Unseen)

OECS (1986) Antigua and Barbuda, description of national legislation related to natural resources management (first stage analysis). Organisation of Eastern Caribbean States, Natural Resources Management Project. Castries. 16 pp.

Putney, A. and Renard, Y. (n.d.) Working to strengthen human capacity to manage living natural resources critical to development. Caribbean Natural Resources Institute, St. Croix, US Virgin Islands Vieux Fort, St. Lucia.

Robinson, A.H. (1979) Identification and development of a national park system in Antigua and Barbuda. United Nations Development Programme. 27 pp.

Scott, D.A. and Carbonell, M. (1986) Directory of Neotropical Wetlands. IUCN, Cambridge and IWRB, Slimbridge, UK. 684 pp.

UNEP/IUCN (1988) Coral Reefs of the World. Volume 1: Atlantic and Eastern Pacific. UNEP Regional Seas Directories and Bibliographies. IUCN, Gland, Switzerland and Cambridge, UK/UNEP, Nairobi Kenya. 373 pp.

Wirtshafter, R., Radke, R., and Gless, J. (1987) Development of geographic information system for Antigua. Final report. Natural resources assessment for agricultural development project. Department of Regional Development, Organisation of American States, Washington, DC.

ANNEX I: LEGAL INSTRUMENTS Definitions of protected area designations, as legislated, together with authorities responsible for their administration.

Title: Forestry Ordinance (Cap. 99)Date: 1941Brief description: not available

Administrative authority: Local CouncilDesignations:Forest Reserve Cutting, or felling any tree, clearing for cultivation, or burning wood or charcoal shall be prohibited except with a permit.Source: OECS (1986)Title: Fisheries Act No. 14Date: 1983Brief description: not available

Administrative authority: Fisheries DepartmentDesignations:Marine Reserve: All flora and fauna, including fish, are protected and taking, pollution, or construction without a permission is prohibited.Source: Original legislation

Title: National Park Act No.11Date: 1984 (amended 1986)Brief description: Concerning the creation of national parks. Establishes a National Parks Authority with its function to preserve, protect, manage and develop the natural physical and ecological resources and the historical and cultural heritage.Administrative authority: National Park AuthorityDesignation:National Park: Does not provide a definition for the term "national park" and makes no provision for other categories of protected areas.Source: CCA (1991)

Administrative authority: Fisheries DepartmentDesignation:Marine Park: No information

Name of Area	IUCN & National Mngmnt. Categories		Presence of Marine or Coastal Zones	Area ha	Year Established
Nelson's Dockyard	II	NP	YES	4,128	1984
Palaster Reef	II	NP	YES	500	1973
Salt Fish Tail Reef (Diamond Reef)	II	NP	YES	2,000	1973
SUBTOTAL	3		3	6,628