Final Project Report

Development of Demonstration National Plan of Action

re Addressing Land-based Sources of Marine Pollution

for

Saint Lucia

MOU Number: S-LMAQM-02-H-0053

May, 2006

Prepared by

Susanna Scott

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Table of Contents

Background 4 The Project 4

Goal and objectives 6 Establishment of a project steering committee 6 Approach 7 Components of the NPA 7

Participatory Approach to Policy Formulation 9

Coastal Zone Management Policy 9 Environment Policy 12 Land Policy 14 Water Policy 15

Public Awareness Through Participation And Training 17 Assessment of Needs Through a Consultative and Participatory Approach 23 Project Constraints 26 Lessons learnt 27 Way forward 28 Financial Statement 31 Appendices 32

Appendix I Memorandum of Understanding

Appendix II Lessons learnt during the development and implementation of the Coastal Zone Management Project (2001-3), Saint Lucia

Appendix III National Environment Policy and National

Environmental Management Strategy for Saint Lucia

Appendix IV A National Water Policy for Saint Lucia Appendix V Location maps Appendix VI Questionnaire Regarding the Perceptions of

Marine/Fresh Water Quality in the Mabouya Bay Region

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Appendix VII Laborie Residents Water Quality Awareness

Outreach Data Capture Form

Appendix VIII LabNews Newsletter Appendix IX Photos regarding Laborie training sessions:

water quality

Appendix X Brochure: Cartagena Convention & Protocol on Land-Based Sources of Marine Pollution

Appendix XI Water Body Classification Methods Appendix XII Water Body Classification Appendix XIII Power Point Presentation River and Coastal Water Quality

Exercise, Mabouya Valley

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Background

In the Caribbean, public health, food security, and economic and social benefits,

including cultural values and traditional livelihoods are dependent on the sustainable use

of coastal and marine resources. Healthy coastal and marine systems provide renewable

food supplies, fisheries, tourism, shipping and other economic opportunities. However,

the state of coastal and marine environments are mirrors of activities carried out on land,

and thus, poor land management practices and pollution degrade land based resources as

well as marine based resources. Pollutants such as agrochemicals, sedimentation, sewage

and solid waste, all of which prove to be detrimental to coastal and marine systems,

emanate from land based activities.

Notably, in comparison to large landmasses, the nature of small islands, like Saint Lucia,

makes it even more critical to recognise and address issues of unsustainable practices and

poor land management, and their influence on coastal and marine systems. This is so

because small islands are influenced by their environment and themselves affect the seas

around them in a much shorter period than large land masses, leaving little time for

settlement of sediments or dilution of other pollutants.

Being a small island State, Saint Lucia’s economy has historically depended, and

continues to depend on its coastal and marine resources. The rugged interior of the island

has led to a high demand for comparatively low lying coastal lands for commercial,

housing and infrastructural developments. Over the years, Saint Lucia has made many

efforts to sustainably utilise its limited coastal and marine resources, and has come to

recognise that these efforts would be futile without an integrated approach to

development. Consequently, the Government of Saint Lucia embarked on a process that

would facilitate sustainable development of its terrestrial, coastal and marine resources.

The Project

Cognisant of unsustainable use of the most important regional resource and the need to

address the rapid degradation, the Convention for the Protection and Development of the

Marine Environment of the Wider Caribbean Region (Cartagena Convention, 1983)

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evolved. It is the only region wide environmental treaty that protects critical marine and

coastal ecosystems, while promoting regional co-operation and sustainable development.

Saint Lucia ratified the Cartagena Convention in 1984. This Convention entered into

force in 1986. The Convention discusses issues such as pollution from ships, dumping,

land-based sources of pollution, sea-bed activities, airborne pollution, specifically

protected areas, cooperation between nations in case of emergencies, and environmental

impact assessments.

The Land-based Sources of Marine Pollution (LBSMP) Protocol, which is one of the

three ancillary instruments for attaining the aims of this Convention, was adopted on

October 6, 1999 in Aruba and contains 29 articles covering aspects such as General

Obligations, Monitoring and Assessment Programmes, Environmental Impact

Assessment, Transbounday Pollution, Institutional Mechanism and Ratification. The

Protocol also contains 4 Annexes that serve as appendages to this tool for the

management of LBSMP. The LBSMP Protocol forms the basis on which this study was

conducted.

The Assessment and Management of Environmental Pollution (AMEP) sub-programme

of the Caribbean Environment Programme is the focal point for coordinating Caribbean

Environmental Programme activities on marine pollution from land-based sources and

activities, including the LBSMP Protocol.

The LBSMP Protocol is a regional mechanism assisting the United Nations Member

States in the Wider Caribbean Region to meet the goals and obligations of two

international agreements: The United Nations Convention on the Law of the Sea

(UNCLOS) and the Global Plan of Action for the Protection of the Marine Environment

from Land-Based Activities (GPA). UNCLOS calls upon States to adopt laws and

regulations to prevent, reduce and control pollution of the marine environment from land-

based sources. The GPA highlights the need for action to reduce the pollutant load to the

seas from land-based sources and activities. Both of these instruments emphasize the

need to act at the regional level to address this problem.

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On 31st January 2003, Saint Lucia entered into a memorandum of understanding (MOU)

with the Regional Coordinating Unit of the Caribbean Environment Programme of the

United Nations Environment Programme (CAR/RCU). The aim of this MOU was to

develop a demonstration National Programme of Action (NPA) for Saint Lucia,

addressing land based sources of marine pollution. This MOU was concluded as part of

the CAR/RCU’s sub programme on the AMEP.

The detailed MOU is presented in Appendix I.

Goal and objectives

The overall goal of the project is to assist in the protection of the Caribbean marine

environment from pollution from land based sources and activities. More specifically,

the objectives of the project were to

develop mechanisms to address the issue of marine degradation from land based

sources and activities through the development of a demonstration NPA for Saint

Lucia.

disseminate the demonstration NPA and other information arising from the

project to all countries of the Wider Caribbean Region to be used as a case study

in the development of further NPAs throughout the region.

Establishment of a project steering committee

In January, 2003, the establishment of a project steering committee was discussed

between the project implementing agency (Sustainable Development and Environment

Section, Ministry of Physical Development, Environment and Housing (SDES,

MPDEH)) and the Coastal Zone Management Project Coordinator. It was decided that

the Coastal Zone Management Technical Working Group, which had been established to

oversee a two year Coastal Zone Management Project (CZMP), would also assist with

guiding the NPA process. However, The SDEU and the CZMP Coordinator would take

the lead role in moving this project forward.

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Approach

In accordance with the UNEP Handbook on Development of an NPA, the steering

committee recognised the need to develop a demonstration NPA that was inclusive of

concrete actions to address the harmful effects of land based activities on the marine

environment. Further, it was felt that the integrated nature of coastal zone management,

especially on a small island, would require a participatory approach to development of

the project and a collaborative approach to implementing it.

Components of the NPA

As recognised in the “Six Monthly Progress Report to the CAR/RCU”, the funding

provided under the project was insufficient to cover all activities listed in the MOU. In

fact it should be noted that these monies were never intended to be used to conduct a

comprehensive study, but rather to serve as seed funding. Therefore, to produce outputs

consistent with the aims and objectives of the project, the approach to be used would be

to encompass a few new activities within the demonstration NPA and include other

relevant activities that were either already planned or in progress under other

projects/programmes. As such, there was a need to determine which activities should

form part of the demonstration NPA, and what new areas needed to be addressed, if any.

Consequently, meetings of the steering committee and a broad based consultation were

held to

identify and assess problems affecting the health of coastal and marine

ecosystems and benefits being derived from these;

establish priorities on which to focus the demonstration NPA; and

set objectives for each priority area.

Notably, these discussions and decisions were centred around several studies, which in

themselves had identified and elaborated on issues affecting coastal and marine

ecosystems. These studies included:

Biodiversity Country Study Report for Saint Lucia (1998)

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Saint Lucia Country Paper on National Climate Change Issues: Towards the

Implementation of CPACC Component 4 – Formulation of a Policy Framework

for Integrated (Adaptation) Planning and Management (2001)

National Report on Integrating the Management of Watersheds and Coastal Areas

in Saint Lucia (2001)

Coastal Zone Management in Saint Lucia: Issues Paper (2002)

Status of the Environment Report (Draft)

National Land Policy: Green Paper (Draft)

Institutional, Policy and Legal Review (2002)

Discussions resulted in the selection of three components/areas for focus:

1. Demonstrating a participatory approach to policy formulation – Saint Lucia was

in the process of developing and/or promoting several relevant policies/plans and

it was agreed that some of these should form one component of the island’s

demonstration NPA. While this component served to demonstrate a participatory

approach to policy formulation, it was also aimed at establishing policy direction

on a comprehensive array of issues regarding land-based sources of marine

pollution. As such, the following policy areas were included for consideration:

coastal zone management;

land management;

management of freshwater resources; and

environmental management.

2. Creating public awareness through participation and training – During discussions

the need for extensive public awareness, education and sensitisation was

emphasised. In this regard, the importance of a National Environmental

Awareness Strategy was highlighted. However, three strategies were brought to

the fore for demonstration:

Working with the youth, building their capacity through education and

training;

Changing attitudes through awareness and education; and

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Targeting decision makers, as well as the general public, through effective

packaging and presentation of messages, regarding land based sources of

pollution.

3. Assessment of needs through a consultative and participatory approach – Impacts

of sewage on nearshore systems was highlighted as a major area of concern. As

such, an intended Sewage Needs Assessment Project, which was also a part of the

CAR/RCU’s sub programme on AMEP, formed a third component of the

demonstration NPA. This component served as a localised pilot project to

demonstrate how needs could be assessed through community involvement.

The subsequent sections detail the findings of the three project components.

1. Participatory Approach to Policy Formulation

Coastal Zone Management Policy

Background

Over the years, Saint Lucia had established numerous legislative instruments that address

various aspects of coastal zone management (CZM), and the responsibility for such

management has been shared by a number of governmental, non-governmental and

community-based bodies. However, there was no accompanying comprehensive,

coordinated institutional and legislative framework in Saint Lucia for CZM.

This lack of a comprehensive, coordinated and integrated approach to CZM in Saint

Lucia allowed the existing links among planning and management agencies to remain

mostly weak and ad hoc, and address only a narrow range of issues.

Saint Lucia had engaged in many relevant projects, several of which recognised the need

for the establishment of a Coastal Zone Management Unit (CZMU) to focus on CZM

related issues. However, none of these initiatives provided adequate guidance for the

establishment of such a Unit.

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Considering the merit in these past initiatives and recognising the need to concretise

institutional arrangements that would facilitate the sustainable development and

management of the island’s coastal zone, the CZMP was founded. The main objective of

this project was to develop an appropriate CZM policy framework for Saint Lucia,

inclusive of specific recommendations regarding institutional arrangements.

This policy was developed by way of broad based consultation and was formally adopted

by way of Cabinet Conclusion.

NPA Demonstration activity

The process used to prepare the national CZM policy involved broad based consultations

and studies, and notably, over 100 persons, representing 51 different institutions, made

contributions to this policy. As such, the steering committee felt that the process used to

develop this policy should be examined with an aim to highlighting lessons learnt and

developing possible guidelines to policy development and strategic planning, particularly

as these related to effective participation.

The outcome of this activity was a ‘lessons learnt’ case study that highlighted several

recommendations, including:

Lesson 1: A multi-agency working group is key to the success of a project that has broad

based implications and consequences. Such a working group lends support to the process

by providing a diversity of experiences and expertise.

Lesson 2: Awareness exercises before and/or during consultation are key in clarifying

perceived roles of agencies, placing everyone on a level playing field; this in turn

influences the relevance and applicability of recommendations that persons make during

consultations.

Lesson 3: Consultations held with individuals or small groups were very useful in

obtaining valuable input into the development of the CZM policy. Persons were able to

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schedule these at their convenience and the small group provided for more focused

discussion compared to large consultations. It also allows for the less outspoken

individuals to provide input without intimidation or shyness.

Lesson 4: When recommendations coming out of consultations are to be implemented at

the ground level, these should be publicized, and the consultative process used to derive

this end product should be highlighted. In this way, persons would be made to feel that

the contribution that they make during consultations are invaluable and leads to the

implementation of relevant actions. This would likely reduce the notion of consultations

being ‘talk shops’ and ‘no action’, and will also increase the willingness of persons to

participate.

Lesson 5: Consultations held with decision makers were key in addressing many concerns

before presentation to the Cabinet of Ministers. In addition, the fact that these

consultations were carried out by both the agency implementing the CZMP and the

agency proposed to house the CZMU, that is, a collaborative ministerial approach was

used, showed that there was support for the CZM framework among the key agencies.

This augured well for obtaining support from the decision makers.

Lesson 6: The assumption that everyone has read and understood information circulated

before consultations should not be made. The detailed working paper, while being

informative to the few who read the document, failed to be very useful to the overall

consultative process. As an alternative to a working paper, or rather, as a compliment to

it, the relevant information should be distributed in a more concise format and the

relevant information should also be highlighted at the beginning of each consultation

forum. Notably, the CZM flyer produced should have been one of the medium used for

informing persons to be consulted, rather than being used for general public awareness

activities.

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To date, this case study has been circulated to over 55 agencies (national and regional

governmental, non governmental and community based organisations). See Appendix 2

for the lessons learnt case study, CZM policy document and CZM issues paper.

Environment Policy

Background

Saint Lucia aspires to a form of development that meets the needs and aspirations of all

citizens and that is sustainable, equitable, harmonious, respectful of culture and identity,

and compatible with the legitimate claims and needs of other nations and societies. In

this search, the environment plays a central role, because it provides the natural resources

(e.g. the air, land, soils, waters, landscapes, ecosystems and species) that support

economic, social and cultural development activities. Development cannot be equitable

or sustainable without effective natural resource conservation and environmental

management.

The challenges of environmental management that are faced by a small island developing

nation such as Saint Lucia are many. Because of their small size and location, small

tropical islands are highly vulnerable to disasters, and to the negative impacts of

environmental change. From the early days of European colonisation, Saint Lucia’s

natural habitats have been radically transformed, giving way to the establishment of

plantations and human settlements, and to the importation of a wide range of plant and

animal species. Saint Lucia’s economy has been built almost entirely on the use of

natural resources, especially in agriculture and more recently in tourism. Today, in a

globalised world dominated by trade liberalisation, high and growing disparities and

inequities between rich and poor countries and regions, and security issues, the economic

and environmental sustainability of Saint Lucia is under threat.

Environmental policy is critical to national development. A nation’s environmental

policy, whether formal or informal, reflects its ability and commitment to manage and

sustain natural assets and to preserve and enhance the quality of human life. It also

defines, to a significant extent, the type of development that a country pursues, since it

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shapes the contours and the features of the economy; it is an expression of dominant

cultures and attitudes; and it reveals individual and collective relationships with nature,

with the past, the present and the future, as well as with other people, communities,

societies and nations. Environmental policy is a pillar of sustainable human

development.

NPA Demonstration Activity

In accordance with the terms of The St. George’s Declaration of Principles for

Environmental Sustainability in the Organisation of Eastern Caribbean States (OECS),

the Government of Saint Lucia, with support from the Environment and Sustainable

Development Unit (ESDU) of the OECS, embarked upon the formulation of a National

Environmental Policy (NEP) and National Environmental Management Strategy

(NEMS). This exercise was initiated in early October 2003, and was completed in

October 2004. It was carried out by the Ministry of Physical Development, Environment

and Housing, under the guidance of a Steering Committee comprising representatives of

key national governmental agencies involved in environmental management.

The National Environment Policy provides the broad framework for environmental

management in Saint Lucia, and establishes links with policies and programmes in all

relevant sectors of economic and social development. The National Environmental

Management Strategy aims to provide the specific directions and mechanisms for more

effective policy implementation and includes specific results expected and actions

necessary to realise the policy objectives. Notably this policy also speaks to the issue of

land-based sources of marine pollution.

This policy document benefited from the input of a large number of individuals and

agencies in government, private sector and civil society. It was also informed by the

various policy processes and instruments in the various sectors that are relevant to

environmental management. In 2005, the Cabinet of Ministers formally adopted this

policy.

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See Appendix 3 for the National Environment Policy and National Environmental

Management Strategy.

Land Policy

Background

Land, including both terrestrial and marine space, is one of the most important resources

in any country, it is a key to economic growth, and it plays a central role in national and

community development; the management of land is a critical and essential requirement

for sustainable development. Many of the issues that affect land development and

management ultimately impact on economic, financial and environmental sustainability

and on the country’s social development.

The patterns of land development in Saint Lucia, if allowed to continue, could lead to a

crisis of multiple proportions. Consequently, land markets will be inaccessible to the

majority of people, and there will be conflicts among uses and users of land, leading to

the conversion of prime agricultural lands to other uses. Such could result in the radical

transformation and loss of many landscapes and ecosystems, with unavoidable

consequences on food security, water supply, agriculture, fisheries, biological diversity

and environmental quality, industry and tourism development, social cohesion and

quality of life.

In the past three decades, the Government of Saint Lucia has put in place a wide range of

legal instruments and institutional arrangements aimed at addressing these issues, and it

has implemented a number of programmes designed to rationalise and optimise land use

and management in the country. These initiatives have had positive impacts and have

remedied many of the problems inherited from the country’s colonial history. Yet, current

and emerging land development and management issues in Saint Lucia remain pressing.

Consequently, there is the need for urgent decisions and actions to improve coordination

and effectiveness in land administration and to take advantage of the opportunities that

will ultimately reverse negative trends.

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To begin to address land issues, a Land Committee was established. Between March

2000 and February 2002, the Committee and its various sub-committees met on several

occasions, and a small number of discussion papers were produced. In March 2002, a

national workshop was convened where the results obtained were presented and

discussed. An outline of a draft paper on a land policy was developed. Following this

workshop, a number of consultations were held and studies were conducted, leading to

the preparation of the Green Paper on a National Land Policy (working document). This

Green Paper formed the basis for another aspect of the demonstration NPA.

NPA Demonstration activity

The Green Paper provided the basis for new round of consultations and development of a

National Land Policy: White Paper. The White Paper provides a formal statement of

policy objectives and directions. This draft White Paper, the outcome of the

demonstration activity, will be submitted to the Cabinet of Ministers for consideration. It

is envisaged that this document will be endorsed by the Cabinet of Ministers and then

considered and approved by Parliament, allowing it to provide the mandate and the basis

for a range of programmes, measures and actions aimed at improving and rationalising

land use and management in the country, including the review and formulation of specific

laws and regulations wherever necessary.

Water Policy

Background

Water is essential to national prosperity, environmental sustainability and quality of life.

It is a catalyst for economic development and a vehicle for empowerment and poverty

alleviation.

There is growing awareness of and concern for the issues and problems in the water

sector, which threaten economic, social and environmental well-being and demand

considerable sums for their resolution. Though the island currently has sufficient

freshwater to meet all demands, the resources are unevenly distributed in both time and

location.

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To address issues facing the water sector, the Government of Saint Lucia embarked on a

process aimed at producing a policy and strategy to guide the sustainable use and

development of the island’s freshwater resources. Interestingly, such a policy is a critical

aspect of CZM in Saint Lucia, especially given the fact that freshwater systems are often

the vehicle of much of the island’s land based marine pollution.

NPA Demonstration activity

The policy formulation process was driven by Government’s philosophy that there must

be joint ownership of the process of change. Consequently, the process was underpinned

by dialogue and consultation among the social partners, to generate awareness of the

major issues and challenges facing the Water Sector and to develop a coordinated

approach to overcoming the challenges and to achieve fundamental and sustainable water

resource use and development.

The Sustainable Development and Environment Unit and the then Coastal Zone

Management Project Coordinator, as well as other members of the NPA project steering

committee played an integral role in the development of this policy. Their role was in the

form of active participation in consultation exercises (including presentation of integrated

coastal zone management issues as they relate to watershed management and impacts on

coastal and marine systems) and review of the numerous working drafts of the policy.

The out come of this activity was a National Water Policy for Saint Lucia, which was

formally adopted by the Cabinet of Ministers in 2004. This policy not only enunciates

the government’s policy as it relates to the water sector and the island’s freshwater

resources, but also provides strategic actions to facilitate implementation of the policy,

including institutional arrangements to be implemented.

See Appendix 4 for National Water Policy of Saint Lucia.

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2. Public Awareness Through Participation And Training

It has long been recognised that knowledge is power and can change persons attitudes

and behaviours, facilitating effective management of resource use. Further, educated and

sensitised person are empowered and this can contribute positively to efforts aimed at

poverty alleviation and social development. Notably, numerous agencies conduct

relevant public awareness activities as part of their on going programmes. However, it

was recognised that there is a need for a National Environmental Awareness Strategy.

The following demonstration activities highlight three strategies that were used to foster

public and target audience awareness:

NPA Demonstration activities

Working with youth, building their capacity through education and training

Demonstration Area

The Mabouya Valley and village of Dennery are by definition, coastal and boarded

landward by a mountainous ridge. This region is located along the central east coast of

the island. See Appendix 5 for map.

The Mabouya and Dennery watershed area is a region where coastal resource

management is critical to sustainable human development. Even in the absence of large-

scale economic activity (such as tourism resorts and industrial plants), human settlements

and agricultural activities impact the coastal region.

The value of coastal resources remains critical, as they provide a range of social and

economic goods and services to local communities, and offer tremendous potential to

economic development and diversification.

It should, however, be noted that because the coastal zone is subject to a range of severe

environmental impacts from both terrestrial and marine sources, environmental

degradation, resource use conflicts and unsustainable forms of resource use are

threatening this valuable resource, with particular severe impacts on vulnerable local

communities.

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Objective

To educate and sensitise youth in this region through capacity building and training.

Tasks undertaken

Training of the area’s youth group in questionnaire layout and design, sampling

methods, pre testing, survey methods and interview techniques. This training was

carried out by the Government’s Department of Statistics.

Development of a questionnaire to obtain perceptions of community persons on

marine and freshwater quality in the Mabouya Valley area and Dennery (Appendix

6).

Administration of the questionnaire by the youth group in collaboration with the

Department of Statistics, noting that 507 persons were interviewed in the Mabouya

Valley and surrounding areas.

Training of the youth group in water sample collection methods.

Collection of water samples by the youth group in collaboration with the Caribbean

Environmental Health Institute.

Analysis of water samples.

Presentation of data/findings to the participating communities.

Outcome/outcome

Information on persons’ perceptions on marine and freshwater quality in the area,

providing a baseline to measure changes in perceptions over time.

Baseline data on water quality. Parameters sampled included pH, temperature,

bacteria (enterococci and faecal coliform) and pesticides (paraquat, diquat and

diuron).

Empowerment of the youth group through use of a participatory method.

Beneficiaries were empowered through the training received, and information

gathering techniques gained. However, the most enabling aspect was the

information gleaned through active participation in a process.

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Changing attitudes through awareness and education

Demonstration Area

Laborie village is a community of approximately 9000 people, located on the south-

western coast of Saint Lucia (see Appendix 5). Fishing and sea related activities form a

major part of the economic sector, and as more people become involved in these it is

becoming increasingly more urgent to address environmental and resource management

issues, including pollution from liquid and solid waste. The coastal area of the Laborie

Bay contains coral reefs, sea grass beds, beaches and small mangroves. Beaches are used

heavily for recreational purposes and by fishermen. The near shore reefs and surrounding

marine habitats support both trap and line fishing, and the harvesting of edible seaweeds,

white sea urchins (Tripneustes ventricosus) and conch (Strombus gigas). The main

sources of impact on these resources include nutrient (nitrates & phosphates) pollution,

primarily from domestic sources, and sedimentation. Biological diversity in the Laborie

Bay is critical to local development; therefore, human activity, especially land based,

must be managed to reduce impacts that threaten the resources upon which so many

economic activities are based.

Objective

A coastal water quality awareness campaign (WQAC) was designed and implemented for

this community. The WQAC sought to engage residents who might not attend

community meetings in discussions about water quality issues.

The overall objective of this activity was to share information about water quality issues

to facilitate attitude changes on the use of ravines and other watercourses as depositories

for sewage, and to improve water quality in the Laborie Bay by inciting behavioural

change through knowledge.

Tasks undertaken

Six young people from the community were identified and invited to participate in the

community outreach. The awareness campaign was described to them and their Kwéyòl

speaking capabilities observed. Of the six, only three felt comfortable enough with

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Kwéyòl to discuss water quality issues with residents. The three remaining youth were

furnished with water quality related information and topic lists. The three persons then

attended an orientation session at which their knowledge of water quality issues pertinent

to Laborie was tested (orally). They simulated discussions with households, and

demonstrated their ability to adequately share information with, and hold relevant

discussions with residents before being allowed to begin the awareness campaign.

Once the training exercise was completed, the following activities were undertaken:

Appropriate data capture sheets were developed (Appendix 7). These data

capture sheets aimed to obtain information on persons’ attitudes before and after

the awareness exercise and to determine if there was any positive change in their

way of thinking once they were made more aware of the issues.

Water quality issues were discussed with at least 300 households within Laborie

and data capture sheets filled out.

Waste disposal issues were discussed with at least 7 riverside garages in Laborie.

Two notice boards were installed at strategic points in Laborie and relevant water

quality information sheets were posted.

One issue of the Laborie Development Foundation’s Newsletter was dedicated to

water quality issues (Appendix 8).

Water test kit, supplies/consumables and other paraphernalia were purchased to

facilitate monitoring and testing of water quality in Laborie.

At least 6 residents were trained in testing water quality (faecal coliform bacteria)

in the Laborie Bay (Appendix 9).

Information gathered during the WQAC, including results obtained from water

quality monitoring, was shared with residents and disseminated to relevant

agencies and authorities.

Notably, information about the following water quality issues was discussed with

residents:

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Results of tests carried out by the Laborie Development Foundation in the Laborie

Bay (faecal coliform bacteria levels).

Land based sources of pollution and routes of pollution e.g. ravines and streams.

Sewage disposal and treatment within the community.

Department of Environmental Health’s specifications and descriptions of septic

tank and soak-a-ways construction and maintenance.

Alternative methods of treating sewage (private households).

Effects of sewage pollution on human health, coral reefs and other marine

resources.

Impacts of disposal of garage wastes – roadside and riverside garages were

targeted.

Possible sources of financial assistance through the Laborie Credit Union to assist

with securing appropriate toilet facilities in private homes.

Outcome/output

Based on the data captured during the outreach it was clearly evident that

residents placed little importance on ravines and seasonal streams as major

conduits of pollution for the Laborie Bay. Hence, this activity fostered

empowerment of the community through awareness and provision of options to

facilitate behavioural change.

Data on water quality. Note that water quality monitoring will be ongoing as part

of a collaborative effort among the Laborie Development Foundation, Department

of Fisheries and Ministry of Health.

Targeting decision makers, as well as the general public, through effective packaging

and presentation of messages, regarding land based sources of pollution.

Background

The Convention for the Protection and Development of the Marine Environment of the

Wider Caribbean Region (Cartagena Convention, 1983) was developed out of concern to

protect critical marine and coastal ecosystems in the Wider Caribbean, while promoting

regional cooperation and sustainable development. In 1984, Saint Lucia ratified the

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Cartagena Convention, which entered into force in 1986. To realise its aim of protecting

the marine environment and promoting sound development in the Wider Caribbean

Region, the Cartagena Convention was supplemented by three protocols, namely:

Protocol on Specially Protected Areas and Wildlife (SPAW)

Protocol Concerning Cooperation in Combating Oil Spills in the Wider Caribbean

Region

Protocol Concerning Marine Pollution from Land-based Sources and Activities

(LBSMP)

While Saint Lucia is party to the first two above-mentioned Protocols, it has not yet

acceded to the LBSMP Protocol. To begin to prepare to accede to this protocol, it was

determined that there was a need to sensitise decision-makers and the general public on

the issues relating to this protocol. As such, one aspect of the demonstration NPA was to

develop a simple tool to introduce the LBSMP Protocol to the target audience and

sensitise them on the various issues that this protocol seeks to address.

Objective

To design, produce and disseminate an appropriate tool that introduces the LBSMP

protocol and relating issues, in a simple manner, to decision-makers and the general

public, including schools.

Tasks Undertaken

A brochure was designed, presenting basic information on the Cartagena Protocol

and the LBSMP protocol (see Appendix 10). The brochure also highlighted

national issues as they relate to LBSMP.

The brochure was finalised, printed and distributed to numerous agencies,

including policy and management decision-makers within the various Ministries.

Ongoing distribution of brochures is taking place during relevant presentations to

interested groups, including schools. Presentations/lectures and discussions form

the ongoing public education, awareness and sensitisation programme of the

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Department of Fisheries and the Sustainable Development and Environment

Section.

Outcome/output

Brochure in circulation, informing on general aspects of the LBSMP protocol and

LBSMP issues in Saint Lucia. See Appendix 10 for brochure.

Although it was not quantified, it is believed that there has been some increase in

the awareness of persons on the issue of LBSMP and the relating protocol.

3. Assessment of Needs Through a Consultative and Participatory Approach

Demonstration Area

The southern town of Vieux Fort (see Appendix 5) has been earmarked for future

commercial, residential, tourism and industrial development. This town is home to

diverse coastal and marine systems that support fishing grounds and recreational areas

(for both locals and visitors). Notably, Vieux Fort is home to the island’s two largest

mangroves, each of which have been declared a Ramsar Site under the Ramsar

Convention on Wetlands of International Importance. The coastal area also comprises

extensive seagrass beds, coral reefs, offshore islands, beaches and coastal landscapes.

However, the existing systems for sewage treatment in the town of Vieux Fort are far

from adequate for meeting the increasing demand, and thus, this presents a threat to

coastal resources within the area.

Consequently, Saint Lucia’s pilot project under the AMEP project entitled, ‘Pilot Project

in Sewage Treatments Needs Assessments’ targeted the Vieux Fort area as a project site.

This project was seen to address a high priority issue (sewage treatment needs) and was

therefore selected as another activity to be included in the demonstration NPA. The

MOU regarding this project was signed in May, 2005 (MOU# QCL 2324-2288-2661-

2102).

Objectives

The objectives of this pilot project were to

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Evaluate the existing systems used for the collection and treatment of sewage in

Vieux Fort within the framework of the LBSMP through a comprehensive review

of existing information, legislation and additional water and effluent quality

analyses;

Identify and conduct a preliminary evaluation of wastewater treatment (low

operational and maintenance cost) and options for Vieux Fort;

Develop a methodology for designation of water, with Vieux Fort as the pilot

study area, as either Class I or Class II as defined in the LBSMP Protocol; and

Identify additional sources of funding and technical assistance to implement

identified solutions.

Tasks Undertaken

Background review and research – this literature review included multilateral

environmental agreements and regional environmental agreements of relevance to

marine pollution prevention and conservation of marine resources; national

regulatory framework and policies; and reports on studies pertinent to sewage and

waste management.

Classification of waters – secondary data was collected along with some primary

spatial data to contribute to the mapping process. The process of classifying

waters was undertaken in consultation with selected businesses and industries.

See Appendix 11 for details on water body classification methods used for this

study; limitations of the classification; and recommendations for replication of

water body classification.

Development of a sewage profile for Vieux Fort – this profile was developed

from data obtained from a number of relevant agencies. In addition, a water

quality sampling and monitoring programme was implemented.

Socio-economic assessment of Vieux Fort – A household survey was conducted

to obtain socio economic data.

Output

A report that presents an insight into issues such as:

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Sewage treatment and disposal problems that exist in Vieux Fort at the level of

the community and at the level of various relevant institutions and agencies.

Levels of awareness of the communities as it relates to sewage issues in the area.

Priority areas (not necessarily sewage related) perceived by the community for

urgent address by Government.

Water body classification for the project area (see Appendix 12).

In this light, this report details recommendations for sewage management in Vieux Fort.

The following summarise some of these recommendations:

Development of a social programme through a collaborative effort among

relevant agencies to assist less fortunate households in improving their excreta

disposal systems.

Promotion of the use of low nitrate and phosphate detergents and other cleaning

agents used. It is recommended that this promotion target local importers and

manufactures.

Development of a programme for the management of sewage from the industrial

sector and housing developments.

Construction of a municipal wastewater collection and conventional treatment

system for the town of Vieux Fort. Other options for suburban areas were also

recommended and include septic tanks with up flow filters, small bore sewerage

networks, soak-aways or leach fields, depending on the area.

Consideration be given to the construction of separate sewage treatment plants for

the airport and select industries.

Upgrading of some existing systems.

The next steps following this initiative would be to assess the recommendations with a

view to incorporating them, as necessary, into a comprehensive action plan for

implementation.

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Project Constraints

During the implementation of this project, a number of constraints were experienced.

These constraints are summarised below:

Arrangements for tracking and disbursements of funds at the national level were

deficient. Most noticeable was the inadequate communication between the

implementers of the project and the financial institution disbursing project funds at

the national level. This inadequate communication resulted in several months delay

in the implementation of the project when it became unclear as to whether or not

funds were available for spending.

Further, delays were caused by inadequate institutional arrangements. Due to the

nature of the project and the fact that, at the time, there was no coastal zone

management agency, it was unclear as to which agency would be better able to

coordinate and implement the project. Several agencies were proposed, but it was

ultimately decided that there would be joint responsibility of the project between the

Department of Fisheries (DOF), Ministry of Agriculture, Forestry and Fisheries, and

the SDES, MPDEH. The DOF was selected since it was in the process of

implementing the CZMP; while the SDES, MPDEH is responsible for environmental

matters, as well as being the focal point for the Cartagena Convention.

Once the new CZMU was later established within the SDES, MPDEH, this Unit was

then given the responsibility for this project. However, being a one-person Unit, the

CZMU had severe human resource constraints and these were amplified when this

person left for a period of nine months on training. While the Unit was re-staffed

with another person, constraints continued given that this person was academically

qualified, but not experienced in relevant matters.

Human resource constraints were also experienced during implementation of the

various components of the project, as one of the community based projects lost the

project coordinator to another employment opportunity. Delays related to this loss

were particularly apparent in the reporting phase, as the final project report for this

component of the NPA was obtained two months after the due date. Loss of project

personnel also has implications for the continuity of efforts commenced under the

NPA Project.

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The issue of data sensitivity also led to some delays in the project. Water quality

data, collected during initiatives aimed at community involvement, became a point of

contention when some authorities viewed such data as being too sensitive for release

to the public. After much discussion and time delays, this information was then

released for use in the planned community awareness activities Appendix 13.

Lessons learnt

While this demonstration NPA Project was in no way all encompassing of issues

pertaining to land based sources of pollution, it focussed on addressing LBSMP issues at

three different levels, namely through creation of

1. policy direction

2. awareness, and

3. solutions to high priority issues (sewage pollution).

During the project implementation, a number of general lessons were learnt:

Public awareness is a strategy commonly used by management and regulatory

agencies; however, public awareness efforts tend to be short term, reactionary and

non-participatory. The NPA process showed that incorporating training and

participation into public awareness activities provided for a deeper foundation for

attitude change.

Generally, policy statements provide direction for decision-making. However, these

statements tend to be broad and do not provide specific actions for implementation.

Given that Saint Lucia is generally constrained by insufficient finances and human

resources, and that much effort is put into the policy formulation, such policy should

be strategic in nature and action oriented. That is, the outputs of policy formulation

exercises should comprise a clear policy statement, as well as a strategy and action

plan. These plans should include specific actions to be carried out in the short,

medium and long term, and should clearly detail how these actions are to be

implemented. Actions should pertain to institutional arrangements, regulatory

frameworks, as well as monitoring and evaluation mechanisms, among others.

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It is frequently expected that issues, such as inadequate sewage treatment, should be

addressed by Government agencies. However, in addressing such high priority

issues, it would be prudent to establish systems that involve all interest groups.

Further, involvement should not just entail short-term arrangements, but include long

term planning with the role of each group/agency being clearly articulated. Given the

island’s limited finances, such an approach could be key to devising more innovative

ways of addressing pressing issues.

Way forward

At this time, Saint Lucia must continue to forge its way to success in dealing with issues

regarding land-based sources of marine pollution. In this regard, Saint Lucia should:

Continue to target two main audiences 1) the decision makers, even in the light of

Saint Lucia’s stated commitment to acceding to the LBSMP Protocol; and 2) the

general public, especially in the climate of changing political landscapes and external

forces.

Continue to enunciate policy on areas that have implications for land-based sources of

marine pollution, with a view to providing comprehensive policy in this regard.

Interestingly, policy on sustainable agriculture has recently been developed and

culminated with the formal adoption of the National Policy and Strategic Plan for the

Development of the Agriculture Sector by way of Cabinet Conclusion No. 234 of

2006. This policy speaks to agriculture in the context of appropriate land

management practices and integrated watershed management.

Establish appropriate institutional arrangements and build capacity for general

environmental management. Note that the NEP/NEMS addresses the issue of

appropriate institutional arrangements for effective environmental management and

presents an action framework achieving this, as well as building capacity for

environmental management. However, actions outlined in the NEP/NEMS in this

regard are yet to be implemented.

Keep issues of marine pollution high on the national priority list until this issue is

adequately addressed. Currently, several relevant activities are planned or underway,

which support the address of this high priority issue and these include:

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o Development of a Sustainable Land Management Project. The Global

Environment Facility has approved a Project Design Facility grant to enable

eight participating countries, including Saint Lucia, to build local and

regional capacity to support sustainable land management. Note that apart

from the land-based sources of marine pollution in the form of sewage,

sediment is a major pollutant afflicting nearshore resources in Saint Lucia.

This proposed project aims to develop national demonstration projects to test

various in situ approaches and methodologies for the sustenance of ecosystem

function though sustainable land management. As such, promotion of good

land management practices and continued development of land use policies

are key components of this project. Inherently, this project will auger well

for efforts aimed at addressing issues of sedimentation in the nearshore.

o A ten year Forest Management Plan (1992-2002) provided for protection of

forest resources. The main aim of this Plan was to protect and conserve the

natural resources for the protection of the environment and to obtain

maximum utilisation consistent with sustainable development and the welfare

of the communities. This Plan is currently being reviewed with a view to

taking into account more recently emerging issues, in addition to

incorporating newly formulated policies.

o The CZM Policy presented a framework for strategies and actions. This

framework has now been used as the base to draft a CZM Strategy and

Action Plan which is currently being finalised. The draft plan presents a

number of objectives under which are detailed strategies and actions for

implementation. The broad objectives outlined in the plan are as follows:

- To develop and/or implement appropriate institutional frameworks to

guide the management and development of Saint Lucia’s coastal zone.

- To develop pollution control and waste management mechanisms.

- To manage the use of coastal and marine resources.

- To establish appropriate decision support systems to facilitate strategic

interventions in coastal zone management.

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- To empower the local populace to allow them to actively participate in

management and decision making as these relate to coastal and marine

resources.

- To secure sufficient financial resources for the implementation of

effective integrated coastal zone management.

Given that one of Saint Lucia’s biggest constraints is finance, the country must

continue to device innovative means to enable

o continuance of environmental monitoring, in particular water quality;

o use of Geographic Information Systems (GIS) as a management tool;

o implementation of established policies; and

o monitoring and evaluation of management measures.

At present, it should be noted that Saint Lucia will be one of the two pilot countries under

Regional Project, on the Promotion of the Ratification of the LBSMP Protocol being

implemented by IMA LBS-RAC in Trinidad and Tobago. It is expected that this, along

with the numerous outputs/outcome from this demonstration NPA, and other related

efforts would lead to further strengthening of the institutional framework, in Saint Lucia,

for implementation of the Protocol.

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Financial Statement

It should be noted that while various components of this project were funded by several

different sources, this financial statement pertains only to the funding received under the

MOU entered into by the Government of Saint Lucia with the CAR/RCU in 2003 (MOU

Number: S-LMAQM-02-H-0053).

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APPENDIX I

Memorandum of Understanding

Re

Development of Demonstration National Plan of Action re

Addressing Land-based Sources of Marine Pollution

for

Saint Lucia

MOU Number: S-LMAQM-02-H-0053

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Appendix II

Lessons learnt during the development and implementation of the Coastal Zone Management Project (2001-3), Saint Lucia

33

Appendix III

National Environment Policy and National Environmental Management Strategy for Saint Lucia

34

Appendix IV

A National Water Policy for Saint Lucia

35

Appendix V

Location maps

36

Appendix VI

Questionnaire Regarding the Perceptions of Marine/Fresh Water Quality in the Mabouya Bay Region

37

Appendix VII

Laborie Residents Water Quality Awareness Outreach Data Capture Form

38

Appendix VIII

LabNews Newsletter

39

Appendix IX

Photos regarding Laborie training sessions: water quality

40

Appendix X

Brochure: Cartagena Convention & Protocol on Land-Based Sources of Marine Pollution

41

Appendix XI

Water Body Classification Methods

42

Appendix XII

Water Body Classification

43

Appendix XIII

Power Point Presentation River and Coastal Water Quality Exercise, Mabouya Valley

44