RP239 Attachment 1: Process Framework for Mitigating Potential Livelihood Impacts Project Summary. The objective of the OECS Parks and Protected Area and Associated Livelihoods Project is to contribute to the conservation of biodiversity of global importance in the OECS region by removing barriers to effective management of protected areas and to increase the involvement of civil society and private sector in the planning, management and sustainable use of these areas. No Physical Displacement. During project implementation there will be no involuntary physical displacement or resettlement of persons from the selected protected areas being supported under the project. Potential Impacts on Livelihoods. Overall the project is expected to improve livelihood opportunities throughout the project areas in particular by identifying and supporting sustainable livelihood subprojects for low-income neighboring communities, and by local involvement in PA management as well as expected additional or improved opportunities from park management and nature-related tourism. However, some livelihood activities could potentially be impacted due, for example, to the limiting of fishing areas through zoning, limiting fish catches or restricting certain fishing and agricultural practices in sensitive areas. It should be noted that some restrictions curTently exist in the proposed areas but are not regularly enforced because of capacity issues. This Process Framework outlines the criteria and procedures that the project will follow to ensure that eligible, affected persons are assisted in their efforts to restore or improve their livelihoods in a manner that maintains the environmental integrity of the proposed PAs. These criteria and procedures would be detailed in the Management Plans to be developed for the PAs. In all such cases, the project would address the livelihood issues of affected populations in a manner which is fair, just, and in accordance with local laws, as well as consistent with the World Bank's Safeguard Policies on Involuntary Resettlement (OP 4.12) and Natural Habitats (OP 4.04). Targeting. The project activities for mitigating potential nonphysical displacement would target local low- income communities that neighbor and use natural resources in the PAs that have been selected ,for project support. Protected Area Establishment and Management. During project preparation considerable efforts went into biophysical and participatory social assessments of the three pre-selected PAs. Through a collaborative process the following issues were evaluated: (i) geographic and habitat classification; (ii) the conservation status of marine and estuarine flora and fauna and their ecological relationships with the physical enviromuent; (iii) history and development of the proposed protected area; (iv) current human use and development; (v) the extent to which ecosystems and species of conservation concern can survive under existing levels of human use and disturbance, and (vi) potential land tenure or use rights issues. New sites to be developed under the project will also undergo biophysical and social assessments prior to being selected for project support. 18 The project -ipproach is that local commitment and participation is vital to the SuLce>.,tLIl indicated implementation of PAs. The three site specific social assessments already carried out broad local support for establishing the pre-selected PAs with a concomitant interest in local involvement and improving livelihoods that are environmentally sustainable. Component 2, Protected Areas and Associated Livelihood Opportunities, would uses of PA finance a series of activities that would permit a thorough understanding of hunian strategies, plan resources, identify any specific adverse effects on livelihoods, develop n,il; ;ti-,r In addition, and implement alternative livelihood activities, and address any identified conflicts. of the the project would support the active involvement of local communities in the formulation protected area management plans as described below. The process for area declaration and zoning will include the following elements: may . A review of pertinent biophysical/social data including any management plans that opportunities and limitations within the protected area sites as well exist in order to identify as the need to collect any additional data which would be undertaken at each site during project year one and two; help * Formulation of an action plan with local communities at each PA site that would in relation to the protected area that the project may define the types of local activities livelihood support, including, among others, opportunities for support for new or alternative with project objectives), technical assistance, training opportunities subprojects (compatible and involvement in possible PA co-management plans, where relevant; be During project year one additional analysis of potential.livelihood limitations would carried out to identify specific impacts on resource users such as fisherman and agriculturists of who may be impacted through project activities. This process would involve an analysis existing practices, proposed project activities, conflicts and potential remedial actions; proposed * Broad stakeholder participation and public consultation, to develop and review permitted uses would be the guiding principle for all area boundaries, zoning schemes and planning; developed Physical demarcation of proposed protected areas as well as all zoning would be stakeholder participation. This would be part in a participatory manner through broad based management plans. Stakeholders would include of the process of preparing the proposed and relevant government agencies, NGOs, resource users, local community members landowners. Notices for meetings would be announced and proposed areas and zoning demarcations would be published. by the * Mitigation measures in cases where livelihoods have clearly been compromised Sustainable Livelihood subcomponent and project, these would be linked to the Project's of new or alternative livelihoods that would focus primarily on assistance in the development Alternatives could include: (i) training improve the econornic condition of affected people. (ii) and employment opportunities such as tour guiding, park ranger and warden patrol; techniques, pesticide use, as well as product training for agriculturists to improve planting or development and marketing; and (iii) subprojects such as sustainable sea moss harvesting sustainable charcoal production, among others. the PA *Enforcement of new restrictions as a result of zoning would be the responsibility of Manager, the relevant government agencies and/or the co-management committees which may be established to oversee the proposed areas. No new restrictions that can be demonstrated to restrict legitimate livelihood activities would be enforced until mitigation measures have been developed and mechanisms for their implementation exist. 19 An analysis of potential conflicts based on current and past resource use patterns whether legal or not; the project would build upon lessons learned at the Soufriere Marine Management Area for conflict resolution. Conflict resolution will be addressed through a thorough assessment that would include an identification of the nature of the conflicts and the stakeholders involved. Stakeholders would be afforded the opportunity to participate in the resolution of conflicts. Irii-l.;li.:!Ii_c!.itin 1' Project implementation will be carried out under the direction of the OECS-ESDU with guidance from the Policy Steering Committee. On the ground activities may be carried out by a variety of implementing agencies including government agencies working in the area, subcontractors, NGOs, community groups or consultants, with the National Technical Advisory Committees playing an advisory role. The Site Implementing Entities would have direct responsibility of idc!t![i', uk! conflict issues in the field and scheduling resolution activities. All incidents would be carefully documented following a protocol established by the OECS-ESDU. This would facilitate monitoring and evaluation while providing a level of project accountability. Monitorinn and evaluation - The monitoring and evaluation of the Process Framework implementation would-be included as part of the overall Project M & E activities and the results will be made available for all stakeholders. In addition, beneficiary assessments will be undertaken yearly beginning in year two by the OECS-ESDU Field Officer and included in the material presented during review nissions. 2020 Attachment 2: Cultural Property The three pre-selected proiecicd areas to be supported under the project include several historical sites and one includes small archeological findings. FutLre sites to be supported may also be found to include cultLrally important or historical or archeological sites. The management plans to be developed for all protected areas under the project would include regulations and procedures for the appropriate protection and preservation of these cultLral properties consistent with World Bank Operational Policy Note 11.03, CultLral Property. 21 Social Assessment and Public Participation 4 (with Process Framework and Cultural Property Attachments) OECS Protected Areas and Associated Livelihoods Project Introduction The development objective of the project is to contribute to the economic development of six of the nine Small Island Developing States (SIDS) in the Organization of Eastern Caribbean States (OECS)5 region through: (i) the strengthening of existing and creation of new protected areas (PAs); and (ii) providing environmentally sustainable economic opportunities for communities living in the surrounding areas. This will be accomplished by: (i) improving the relevant legal, policy and institutional arrangements (collectively termed institutional framework) in the participating OECS countries; (ii) establishing or strengthening a number of pilot PAs including providirg support for the development of sustainable livelihoods for communities living in proximity to these sites; and (iii) improving institutional capacity to manage PAs in the region. The principal project outcomes will be: (i) common, updated and comprehensive institutional frameworks supporting national systems of protected areas; (ii) establishment of new or strengthening of existing pilot PAs; (iii) development and enhancement of environmentally compatible economic opportunities in communities nei-ghlbcrin- ilie prop-osedPAs; and (iv) on and protected area increased public awareness of the importance ofbi:)didi er iry co,n,rex.:uii In.lagc ine rit in the sustainable economic development of SIDS. The global objective of the project is to contribute to the conservation of biodiversity of global importance in the OECS region by removing barriers to the effective management of PAs, and to increase the involvement of civil society and the private sector in the planning, management and sustainable use of these areas. The end-goal of the program is to create an integrated system of protected areas among the OECS Member States which will protect and conserve ecologically- sustainable, representative samples of the region's rich biodiversity endowment, while creating sustainable livelihoods for communities in and around these protected areas. In order to ensure that the prospective commrunities in and around the targeted sites benefit meaningfully from this project intervention, a social assessment was undertaken during project preparation. The objectives of the social assessment with respect to the three pre-selected PA sites6 were to: (i) carry out a stakeholder analysis; (ii) carry out consultations with stakeholders; (iii) describe baseline socio-economic conditions with an emphasis on natural resource use issues; (iv) evaluate social criteria for site pre-selection; and (v) identify key issues for the human communities (both opportunities and potential conflicts or problems) to contribute to site specific action plans to be developed under the project. Social criteria for site pre-selection included: (a) degree of local support for the PA; (b) relatively well-defined land tenure and use or access rights; (c) ensure no physical resettlement; (d) socio-cultural values of the proposed site; and (e) educational value of proposed site (see Amnex 11 PA Selection Criteria and Site Profiles for more detail). The other objectives of the social assessment were to: (i) define the steps for carrying out social assessments during project implementation for other PAs to be de, eloped under the project; (ii) define participatory processes during project implementation; (iii) provide insights for the design of the sustainable Livelihoods sub-component; and (iv) formulate a Process Framework 4 This annex summarizes the complete social assessment report which is available in the project files. 5 The six OECS States included in the project are: St.Kitts and Nevis, Antiguta and Barbuda, the Commonwealth of Dominica, St.Lucia, St.Vincent and the Grenadines, and Grenada. OECS States not included in the project are: The British Virgin Islands, Montserrat, and Anguilla. 6 Pre-selected PA sites include (I) Point Sable, St. Lucia, (2) Tobago Cays, St. Vincent and the Grenadines; and (3) North Sound Islands, Antigua and Barbuda. 8 for the project for potential nonphysical displacement (see Attachment 1). The project will not involve or affect indigenous people, and will not cause involuntary resettlement. Regional Context The OECS is a grouping of nine states of the Eastem Caribbean established in 1981 of which six are included in the project: St. Kitts and Nevis, Antigua and Barbuda, the Commonwealth of Dominica, St. Lucia, St. Vincent and the Grenadines, and Grenada. The economies of the region7 (witlh the exception of Montserrat and Anguilla) have been experiencing downward trends during the 1990s characterized by ainual growth rates averaging 4.5 percent. The vulnerability of the OECS economies is characterized by issues such as: the decline in agriculture and agricultural exports, changes in commodity agreements for agricultural exports, problems in atta i iini greater diversification in OECS exports, transportation problems, and human resource development. The economies of the sub-region are in transition and there are specia-l challenges posed by liberalization and current trading arrangements. Unemployment is a major challenge facing the OECS countries. Although the importance of agriculture since 1996 has steadily declined, the sector remains-a significant employer (23 .percent) in the Windward Islands. The OECS economies have been restructured away from 8 agriculture and manufacturing towards the provision of services. Tourism is of great importance throughout the region (contributing between a third to a half of GDP in most of the OECS countries). It is a priority sector targeted for further development throughout the region often with significant reliance and effects on natural resoturces. Poverty levels in the OECS persist at unacceptably high rates coupled with on-going structural inequalities in the areas of education, health, and employment opportunities. The Gini Coefficients for the sub-region indicate a significant level of inequality ranging from .044 in St. Kitts-Nevis to a high of .056 in St. Vincent and the Grenadines .9 In addition to the above structural issues, the small size of the Eastern Caribbean Islands and their related ecosystems create substantial risks for local habitats and the species they feed and shelter. The biological resources of the region are under great-pressure from a diversity of development- related activities. The lack of integrated planning mechanisms in the region has been identified as a major cause for the "one-sided" approach to national development. This lack of connectivity betveen economy and environment, the ecological fragility of the islands, and the vulnerability to natural hazards require the OECS states to maximize sustainable development initiatives and investment opportunities in order to maintain their natural resource base. Another issue is that of inadequate legislatiotincovering conservation and the dispersed institutional aild administrative arrangements for coordinating environmental initiatives. The present project represents a significant first step in fostering a number of critical common elements, which over time could evolve into an integrated regional system. These include: (i) promoting the development of a common or similar institutional framework governing protected 7 Based on information from the 2000 OESC Human Development Report. According to the Eastern Caribbean Central Bank (ECCB) Annual Statistical Digest 2001, for the period 2001, the sectoral composition of the Gross Domestic product were as follows: the Windward islands recorded 11.9% (agricultLre), 20.3% ( trade), 17% (government), 10.1% (construction), and 7.3% (manufacturing); in comparison, the Leeward islands recorded 3.4% (agriculture), 11.3% (trade), 20.7% (govemment), 16.6% (construction), and 4.5% imanufacturing). The Gini coefficient is a measure of the degree of concentration or conversely, equality of a variable. The coefficient ranges between zero where there is no concentration (i.e., perfect equality) and one where there is total concentration (perfect inequality). 9 areas, (ii) the strengthening of institutions with shared'mandates, and (iii) supporting regional training and public awareness of the importance of conserving the region's biodiversity. The programmatic approach has the additional advantage of providing the goal, context and roadmap leading to goal achievement that will guide interventions over the next 15 years. Stakeholder Participation Participation durinz project preparation The original project proposal deVeloped by the St. Lucia National Trust (May 2002) focused only on St. Lucia and was developed through a series of consultations over three years involving local and national St. Lucian stakeholders. In October 2002, the project was refornulated to become a regional project and it was considered vital that the regionalized project required a similar consultative process to collectively determine the objectives, elements and outputs, to secure broader buy-in and ownership, and to obtain important baseline information to help define project components. During a workshop on the regional project held in November 2002, a comprehensive matrix of critical stakeholders representing local, national and regional protected area interests was developed which served to guide subsequent consultations. These included among others, for example: (i) regional and international agencies such as the OECS Secretariat, the Caribbean Environmental Health Institute (CEHI), United Nations Environment Program- Regional Coordination Unit (UNEP-RCU) and the Caribbean Conservation Association (CCA); (ii) national Ministers and relevant a-2enciesin each of the countries; NGOs; and (iii) site-specific. constituencies such as fishennen, farmers, dive operators, tour operators, local associations and others. A series of workshops, meetings, consultations and field visits was carTied out from November 2002 through October 2003. These consultations contributed to the current design of the project as well as the selection of the first three target PAs as well as raising awareness among stakeholders of the multiplicity of issues surrounding areas of critical biodiversity on the islands. The stakeholder groupings and the general populace in the region concur on the need to protect these areas and discussions with them revealed a willingness to conipl\ .itih new management systems. Local interviews and consultations revealed strong concems with natural resource preservation, controlling pollution and other destructive practices, and interest in improving livelihoods, further detailed in the site specific assessments. A broad regional stakeholder workshop to solicit feedback on the project design was scheduled in November 2003 as a means of ensuring that PMS inputs are consolidated into the project document, and that consensus on national considerations, project elements and provisions was secured. Participation during project implementation Participatory processes have been thoroughly integrated into the project design. Some of the methods that will be used by the project include stakeholder analysis and social assessments to be cairied out to prepare new PA sites to be developed under the project; development of local action plans for each PA to help determine local priorities for activities that might be eligible for financing under the project that could include among others, opportunities for support for alternative livelihood subprojects, technical assistance, training opportunities and involvement in PA co-management plans. The project's Component 2. Protected Areas and Associated Altemative Livelihood Opportunities, includes a subcomponent to facilitate and finance sustainable livelihood subprojects with communities living in and around the targeted PAs. It is anticipated that this 10 subcomponent would be supported by the existing OECS Small Project Facility (SPF). A project specific operational manual detailing application criteria and procedures has been developed. In addition, other subcomponents of Component 2 would finance the social assessments for new sites preparation, preparation and implementation of management plans, and periodic stakeholder workshops. In addition, Component 3, Capacity Buildina for Conservation Plannina and Manaaement will include a stubcomponent for technical assistance and training opportunities in support of development for future sustainable livelihood activities. When new sites are being prepared under Component 2, the following processes, in the sequence identified below, will be employed. Step one would be to identify stakeholders and carry out a participatory social assessment focusing primarily, on the communities that potentially might be affected by the establishment of the protected area with the goal of assessing the social criteria for site selection and identifying stakeholder concerns. Step two would be to develop action plans in consultation with stakeholders that would clarify potential benefits and,methods by which the local communities might be involved in project attivities, preliminary identification and prioritization of potential alternative livelihood subprojects,. and clarification of institutional and organizational arrangements. These actions plans would also provide input for anrdLUide local involvement in the development of the PA management plans.... Participatory monitoring and evaluation will be used at the project level in Components 1 and 3, and at the site level in Component 2 to undertake assessments of project activities, policy interventions and institutional arrangements. Site Specific Social Assessments Site specific social assessments were cairied out for: (i)-proposed North Sound Islands National Park (Antigua and Barbuda); (ii) the proposed Point Sable National Park (St. Lucia); and (iii) the 0 Tobago Cays National Marine Reserve (St. Vincent and the Grenadines).' These are summarized below.. Site specific social assessment for North Sound Islands National Park (proposed). Antia a and Barbuda Introduction and site description. Antigua and Barbuda is located in the middle of the Leeward island chain in the Eastern Caribbean. The islands are the largest of the English speaking 2 2 Leeward Islands, encompassing 280 km and 161 kin , respectively. The proposed site is the 3,100 ha North Sound Island National Park (NSINP) and consists of six uninhabited islands: Great Bird Island, Little Bird Island, Redhead Island, Rabbit's Island, Great Exchange Island and Little Exchange Island. Together they comprise some of Antigua's most pristine natural resources: a cluster of limestone islands and the surrounding coastal and marine ISThe St. Lucia site social assessment was carried out by The Nature Conservancy in collaboration with the Point Sable Park Steering Committee, the St. Lucia National Trust Southem Office and communities. The Tobago Cays National Marine Reserve (St. Vincent and the Grenadines) and the proposed North Sound Islands National Park (Antigua and Barbuda) social assessments were carried out by OECS-ESDU in collaboration with the Tobago Cays Management Park Board and the Environmental Awareness Group respectively, and communities. Methods included secondary data review, interviews and consultations with a broad spectrum of stakeholders including govemment agencies, local organizations and community members. 11 ecosystems including mangroves, coral reefs, sea grass beds, rocky shores, sandy beaches, coastal 2 vegetation and dry scrubland vegetation. The total area covers 30 mi northeast of the mainland of Antigua and is refuge to many species of rare and unique endemic flora and fauna (some of which no longer exist on the mainland). For example, several traditionally used medicinal plants that have become rare on the mainland are still abundant on the islands. The area also contains artifacts from the Arawak indigenous people from the pre-colonial era. The marine ecosystem of the area provide nurseries for fish, couch, lobster and other species. The great beauty and protected reefs of the proposed site make it a prime tourist destination. Several of the offshore islands boast pristine and underdeveloped white sand beaches which are appreciated greatly by both tourist and local recreational users. Through the NGO Environmental Awareness Group (EAG); and the Antiguan Racer Conservation Project (ARCP) much work in the North Sound has been done with regard to protecting the endangered racer snake, conservation of indigenous flora and fauna and public awareness. As a consequence of this work, the ARCP has graduLallyevolved into a broader Offshore Island Conservation Programme (OICP). The goal of.the. OICP is to conserve indigenous and globally significant populations of flora and fauna of the offshore islands, and to promote the sustainable use of the resources. In September 1999, EAG held a workshop for tour operators to increase awareness of the tour operators for conservation and management. In August 2000, another workshop was held for recreational users of the area. Baseline social conditions. The six offshore islands of the proposed NSIPA are uninhabited but are widely used to support tourism, and tourist-related activities, fisheries and local recreational activities. The communities on mainland Antigua within a few kilometers of the PA are the most intensive users. These are Seatons, Parham, Willikies, and Glanvilles with a total population of about 2,000 persons. Key features of natural resource use include diving, anchorage, fishing (mainly recreational), bathing, swimming, snorkeling, picnics, and day tours. Local institutions include one NGO (EAG) and three churches. Among human pressures on the environment, current fishing practices are placing too much pressure on near-shores stocks. Anchoring by tour operators and "ghost"fish traps are taking a toll on the coral reefs. Recreational activities on island beaches are another major source of environmental stress. It is estimated that the area receives over 20,000 visitors per year including local recreational tourists. With respect to land tenure, the Govemment owns the six islands proposed for iiiclusion in the PA. Other offshore islands are mostly privately owned hence will not be included within the PA until ownership transfer will be negotiated. Local stakeholder issues. Local stakeholders consulted included a broad cross-section of stakeholders ranging from representatives of the National Parks Authority, Fisheries and Forestiy Divisions to fishermen, tour operators, recreational users and the private sector, among others. The social assessment clearly identified a high level of interest and commitment to the proposed PA. The main concems highlighted included need to: (i) protect the reefs from damage (such as from anchors, divers, snorkelers and fish pots); (ii) implement a protected area (including, among others, demarcation buoys, new signage, employment of a park warden, better law enforcement and establishing user fees); (iii) control illegal types of fishing (though fishing groLnds are mostly outside the proposed park); and (iv) improve management of solid and liquid wastes. There were 12 also interests expressed in alternative livelihood options, specialized training, and recreational uses. Lessons learned. The environmental organizations working here have recognized the importance of community involvement and have supported public awareness efforts. As a result, there appeared to be strong interest in further establishment of a protected area. There are clear needs for an updated management plan, institutional strengthening of the National Parks authority, and greater involvement of local populations and NGOs in PA management. Site specific social assessment for Point Sable National Park (proposed). St. Lucia Introduction and Site Description. St. Lucia is a small island economy with a population of approximately 159,000, and a growth rate of 1.6 per cent. The majority of the population is concentrated in the capital city of Castries and in the northern towns and villages of the island. The island's economy is based on a few agricultural products for export but is also undergoing a structural transformation to services as the main growth sector with tourism playing an increasingly important role. The proposed 250 hectare Pointe Sable National Park is located on the southeast coast of St. Lucia. The PA spans four coastal ecosystem types: coral reefs, mangroves-(including the largest remaining stand of coastal mangrove forest in St. Lucia),,sea grass beds; offshore islands and a- sandbank; a representative sample of-tropical Caribbean island coastal ecosystems in a relatively intact state. St. Lucia's largest mangrove and longest fringing coral reef are found in this area. An overall management strategy would amalgamate several existing protected areas including five marine reserves, several nature reserves, the recently declared RAMSAR site at the Mankote r,n-rr, e. historic sites and a national landmark-with other as yet undeclared natural and historic sites into onemanagement umit, the Pointe Sable Protected Area. Baseline Social Conditions. The populations that are or would be potentially affected by the proposed protected area reside around the inland and coastline communities of the Eastern and Southern areas of the town of Vieux-Fort. Permanent human population within the PA,is negligible. A total of seven communities with a combined population of about 14,000 people constitute this area including: Belle Vue,. Beausejour, Moule-A-Chique, Retraite, Pierrot, CacoaNVige.The communities have access to schools, hospitals and health centers and a significant number of households already have piped water. While these communities are located outside the limits of the proposed protected area, natural resource uses are many and competing including timber harvesting for charcoal production, fishing, crab hLunting,sea moss cultivation, community based tourism, agricultural production, and recreational activities. The major natural resource users in the region are: charcoal producers; fishermen (some of whom are involved in crab hunting and sea egg harvesting); sea moss farmers in the Savaine Bay area; watersports users (scuba divers/snorklers); livestock farmners;and restaurateurs. The ANiank:ote Mangrove with four distinct types of mangroves, covers an area of approximnately 63 acres and it is the largest area of mangroves on the island. In the early 1980s, there was an effort made to protect the area by giving the community a stake in managing and protecting the resources within the mangroves and the community-based Aupicon Charcoal and Agricultural Producers Group (ACAPG) was established which produces charcoal on a sustainable basis. 13 The Savannes Bay is highly utilized for fishing and to a lesser extent for sea moss production. In , according to statistical data for the Department of Fisheries (DOF), there were 362 licensed '1"2' fishermen, and five sea moss cultivators in the Vieux-Fort area. The economy of the region is primarily agricultural, and the area is considered to be one of the largest fishing communities on the island, with expanding service and tourism sectors. However, during the social assessment process, it was noted that in the Vieux-Fort area, tourism has not been able to attract the scale of investments needed for the sector to be an integral component of the southern region's economic base. Some surrounding communities have spearheaded eco-tourism efforts with incipient infrastructure development (bird watching tower and trails) and guLided tours in the community in order to supplement their incomes. Visitation to these eco-tourism sites, while minimal at the present time, would likely increase significantly after designation as a protected area, promotion of the tourism product,- and as nature based tourism opportunities are developed under the project. The govemment's policy is to create and strengthen economic opportunities at the local level heritage tourism. The Point Sable protected area proposal would help reduce pressure on .l irouoih other areas such as reef dive sites and, also increase local community revenues by providing recreational altematives in new areas. The majority of the land in the area is tenured under the Government of St. Lucia (GOSL), but vested in the statutory bodies of the St. Lucia Air and Sea Port Authority and The National Development Corporation (NDC). The NDC has ownership over most of the land within the park. Over the years, the Pointe Sable Beach has been opened to conservation groups and many developmental 'agencies have initiated sustainable activities within the area. It. is anticipated that legally binding agreements such as land trust arrangements or conservation lease agreements will be negotiated as part of project implementation. The National Trust, Departnent of Planning, Department of Forest and Lands, and the National Conservation Authority together have the legal authority and power to deal adequately with the various techniques and instruments for land use conservation. Local Stakeholder Issues. Local stakeholders consulted included community representatives and pertinent government agencies (e.g. Forestry Department, Fisheries Department and others).'The main local concerns highlighted by the social assessment in relation to the proposed protected area included interests in ensuring local involvement in co-management of the proposed protected area; protecting the mangroves; ensuring livelihoods from charcoal production, sea moss -cultivation and fishing; and promoting recreational uses in the area and eco-tourism. There appears to be a high level of local support for the proposed PA. Other concerns included ambiguities about land tenure status in some areas, dumping of garbage and waste in rivers, mangroves and the sea; and use of agrochemicals. The assessment noted some distrust of government information on environmental issues and that some farmers' land management practices were based on erroneous assumptions such as that land clearing increases fertility. Lessons Learned. The previous experience of the establishment of the Aupicon. Charcoal and Agricultural Producers Group (ACAPG) in the Mankote mangroves is highly instructive for the current project. Lessons learned include the importance of strong involvement of national resource management agencies, in this case the DOF. Second, DOF granted exclusive rights to the ACAPG to harvest'in the mangrove. This improved the morale of the group and also provided a mandate for protecting the mangrove from outside harvesters. The other lesson learned from the Mankote experience is that of local participation. It is noteworthy that when the need for protecting the mangrove was first recognized, there was no organized local stakeholder group to 14 work with, yet the proposal to foirmally involve the economic and socially marginalized charcoal producers was controversial, and was largely based on three considerations: (i) their knowledge of the ecology of the mangrove was extensive and would be necessary for developing strategies for protection and regeneration, (ii) their stake in the protection of the mangrove was too large to be -ignored, and (iii) the failure to involve them could have resulted in their active resistance to the project. This experience therefore suggests that in attempting to involve local organizations in managing mangroves or other harvested resources, consideration should be given to (i) the nature of their interests in the area's management, (ii) tangible potential benefits as balanced against costs, (iii) the likelihood of the organization being able to participate over an extended timeframe, and (iv) attention to technical assistance and other support the local organization may require. A second case in the south of St. Lucia that provides lessons for participatory management involves the work carried out by the DOF in sea urchin management. According to the DOF, after a period of closure brought about by excessive harvesting of sea urchins, a new participatory system of sea urchin management was adopted in order to curb previous overexploitation of this resource. This new system involved the issuing of harvest permits to persons-who complete a number of requirements and who also agree to harvest under conditions specified by the department (e.g. assisting in the annumalpre-harvest monitoring and assessment of the sea urchin resource; participating in meetings to assess previous. harvests; etc.). What has occ-rred is the involvement of licensed harvesters in surveillance of the harvest area and demonstrates that (i) such involvement of a user group can play an important role in ensuring sustainable exploitation; (ii) this-system of co-management will work under conditions where the user community has sole access, proximity to the resource, and where the resource is sufficiently small to be managed by the group; and (iii) such approaches require joint negotiations -and development-of a system with the involvement of all relevant parties. Site specific social assessment for Tobago Cays National Marine Reserve, St. Vincent and the Grenadines Introduction and Site Description. St. Vincent and the Grenadines is a small Eastem Caribbean 2 island state consisting of 30 inlets and Cays, which have a total land area of 345 kmn . The island of St. Vincent has 84 km of coastline and a central mountainous terrain (rising to an elevation of 1234m at its highest peak, La Soufriere Volcano) running north-south with numerous valleys that drain into the narrow coastal belt. The Grenadines consist of Bequia, Mustique, Canouan, Mayreau, Union Island, Palm Island, Mayreau, Petit St. Vincent and the Tobago Cays. The Grenadines are mutch snzillcr and less rugged than St. Vincent, with white sandy beaches due to coral-reef deposition. The population of St. Vincent and the Grenadines is approximately 115,460 people, with more than 90 percent located on St. Vincent; 27.7 percent live in the capital of Kingstown and its environs. St. Vincent and the Grenadines is heavily dependent on agriculture which continues to employ over 40 % of the workforce. The 2002 agriculture census showed 6,871 persons in root crop and banana cultivation. The overall area of the Tobago Cays Marine Park is rectangular in shape with a total area of 1,400 ha. The marine area includes the Tobago Cays, five small uninhabited islands (Petit Rameau, Petit Bateau, Jamesby, Baradal and Petit Tabac), that enclose a sand bottom lagoon and the island of Mayreau. A 1995 survey indicates that some 14,000 yacht people, 25,000 charter-boat day trippers and 10,000 cruise-ship passengers visit the Tobago Cays each year. The Government of St. Vincent and the Grenadines (GOSVG) began the process of establishing the Tobago Cays National Marine Reserve (TCNMR) in the 1980s designating the initial area and working on planning with the OAS. In the 1990s, the French provided technical cooperation for 15 the marine park, a board was established, regulations promulgated and a manager hired. In 1998, the first management plan of the park was developed. In 1999 the GOSVG finalized the purchase of the area from a private party who sold on condition that the area would remain a park. The area's management plan was revised in 2000 and is not yet approved. Although considerable groundwork has already been done - including extensive community consultations and public awareness campaigns - to date the steps taken to protect, conserve and improve the natural resources of the Tobago Cays remain more on paper than in effect. In addition, much of the currently unapproved management plan remains unimplemented. Baseline social conditions. The Southem Grenadines where the PA is located are small unique islands where all communities - plant, animal and human - are limited and ecologically fragile. According to the 1991 census, only about 2.7 percent of the country's population lives in the southern islands, approximately 3,000 persons (of which the labor force is about 1,300 persons). The unemployment rate is about 20 percent. Sixty-eight per cent. of the population resides on Union island which is the administrative center and the conduit for daily excursions to the Tobago Cays, Mayreau, and Palm Island. The tourism industry is the main source of income and white sandy beaches, coral reefs, sheltered waters, yachting and day excursions characterize its tourism product. Approximately 14 percent of the. labor force are directly employed in tourism and about 2 percent work indirectly as vendors, and craftsmen. The remainder of the labor force are involved in small-scale subsistence agriculture (mainly pigeon peas, sweet potatoes, com and some livestock) and fishing, with others involved in construction. As early as 1980, the fishing industry had begun to experience difficulties for reasons such as the decline in fish catch (most of the fish were sedentary), limited fishing technology, and inadequate market intelligence. Consequently, most fishermen complement their incomes usually in tourism related activities. Direct natural resource users of the PA include fishermen who-dive for lobsters and conch and indirect users are primarily ship peddlers or boat boys (who sell fruits, vegetables and seafood and other commodities to the yachtsmen and also act as agents for grocery shops on Union Island and Mayreau). Other indirect users are local craftspeople, souvenir and-t-shirt-peddlers and itinerant hair-braiders. There are also expatriate resource users and these include: yacht operators of which some 3,000 anchor in the lagoon annlually; day-charters which are organized and operated mainly by foreign nationals to Palm Island, Mayreau and the Tobago Cays; and cruise ships. The socio-cultural patterns of the Southern Grenadines are similar to the wider OECS region. The family structuLreis matrifocal related in part to male migration to other parts of the region and North America. The levels of support for many families are precarious and dependent on limited economic opportunities and shifting conjugal alliances. Southern Grenadines are mainly of African descent with a very small but economically powerful white population. Expatriates own most of the high-end hotels. Social stratification in the region, especially in small rural communities, is complex and entails more than wealth as color, education, reputation and respectability, and tastes are factored in. Major social inlstitutions include the Tobago Cays NMR Board, Tourist Board, lending institutions, NGOs (such as Union Island Association for Ecological Protection (UIAP), Union Island Eco-tourism Movement (UIEM), Roots Connection Culture Club, Lions Club of Union) as well as churches. Local stakeholder issues. Local stakeholders consulted included a broad cross-section of inhabitants and users from representatives of the Mayreau Environmental Development Board and TCNMR Park Board to yacht owners and dive operators to fishermen and boat taxi operators, 16 among others. The main local concerns highlighted by the social assessment in relation to the proposed protected area included: (i) interests in protecting and regulating the Cays and its reefs as well interest in demarcation, zoning, user fees, and education and training on the ecological and economic values of the natural resources; (ii) eaming livelihoods from the use of the Cays (e.g., vendoring; and enhancing the water taxi - boat boy - business) and reducing conflicts between yachts and taxis and between taxis; (iii) conducting day-tours to the Cays; (iv) reducing illegal fishing by locals and visitors (such as spear fishing or off-season); (v) managing liquid wastes and garbage; and (vi) recreational uses. There are also concerns expressed about boat overcrowding and boat safety (including theft). Lessons learned. The barriers to the effective management of the Tobago Cays over the past 15 years were created by the absence of a system to ensure accountability at the various levels of management. The development of three management plans that were not implemented signals deficiencies within the Tobago Cays Board to ensure effective execution of recommendations. In addition, the absence of empowerment to enforce Board decisions, the disconnection between Board decisions and their implementation, and insufficient involvement of all stakeholders in the decision-making and implementation process contributed to the lack of progress to date. The expressed opinion of many stakeholders was that new endeavors should build upon previous initiatives, yet should be more effective, particularly in terms of building stakeholder ownership, accountability, and conflict resolution processes. In recognition of the aforementioned difficulties encountered in past efforts, and to ensure success, this project will incorporate the following lessons: (i) the importance of a proper management system with broad stakeholder support, involvement, and accountability; (ii) the need for an on-site manager; -(iii) a framework to ensure timely execution of recommendations (cited as problematic in the past); and (iv) the need for an extensive public awareness campaign to distinguish the project from previous efforts. 17