United Nations
National Programmes of Action for
Environment
Programme
the Protection of the Coastal and
Marine Environment from Land-
Caribbean
Environment
based Sources of Pollution:
Programme
The Caribbean Experience
Regional
Coordinating
Unit
Prepared in cooperation with the
Global Programme of Action for the Protection
of the Marine Environment from Land-Based
CEP
Activities
Technical
Report 46
Caribbean Environment Programme
United Nations Environment Programme
National Programmes of Action for the
Protection of the Coastal and Marine
Environment from Land-based Sources of
Pollution:
The Caribbean Experience
Prepared in cooperation with the
Global Programme of Action for the Protection of the
Marine Environment from Land-Based Activities
CEP Technical Report No. 46
2006
Note:
This document was commissioned by UNEPCaribbean Environment
Programme from Dr. Asha Singh, under the Project `UNEP National
Programmes of Action to control pollution from land-based sources and
activities in the Wider Caribbean Region' with funding from the US Department
of State.
The designations employed and the presentation of material in this document do
not imply the expression of any opinion whatsoever on the part of UNEP
concerning the legal status of any country, territory or city or its authorities, or
concerning the delimitation of its frontiers or boundaries. The views expressed in
this document are those of the authors and do not necessarily reflect the views of
the United Nations Environment Programme.
© 2006 UNEP
Caribbean Environment Programme
14-20 Port Royal Street
Kingston, Jamaica
This document may be reproduced in whole or in part and in any form of
educational or non-proper services without special permission from the
copyright holder, provided acknowledgement of the source is made. UNEP
would appreciate receiving a copy of any publication that uses this document as
a source.
No use of this document may be made for resale or any other commercial
purpose whatsoever without prior permission in writing from the United Nations
Environment Programme.
For bibliography purposes, this document may be cited as:
UNEP: National Programmes of Action for the Protection of the Coastal and
Marine Environment from Land-based Sources of Pollution: The Caribbean
Experience. CEP Technical Report No. 46. UNEP Caribbean Environment
Programme, Kingston. 2006
TABLE OF CONTENTS
Contents
Page Number
1. INTRODUCTION
------------------------------------------------------------- 1
2.
MARINE POLLUTION ISSUES IN THE CARIBBEAN---------------- 4
2.1 Sewage and Nutrients.
------------------ ------------------------- 4
2.2
Solid Waste and Litter.
------------------------------------------- 4
2.3
Persistent Organic Pollutants ------------------------------------------- 4
2.4 Oil
(Hydrocarbons)
------------------------------------------- 5
2.5 Sediment
Mobilization ------------------------------------------- 5
3. THE
LBS
PROTOCOL ------------------------------------------- 6
3.1
Status of LBS Protocol
------------------------------------------- 9
4.
NPA DEVELOPMENT IN THE CARIBBEAN --------------------------- 10
5.
SYNERGIES BETWEEN NPAs AND LBS PROTOCOL -------------- 13
6.
NPAs: LESSONS LEARNT
------------------------------------------- 15
6.1
Initiating the NPA Process ------------------------------------------- 15
6.2
Awareness
------------------------------------------- 16
6.3
Commitment
------------------------------------------- 16
6.4
Goals
------------------------------------------- 17
6.5 Legal
Framework
------------------------------------------- 17
7.
NPAs: CHALLENGES EXPERIENCED ---------------------------------- 18
7.1 General
Challenges
--------- ---------------------------------- 18
7.2 Specific
Challenges
--------- ---------------------------------- 19
7.2.1 How to Identify and Assess the Problem?-------------------- 19
7.2.2 How to Set Management Objectives and
Select Pilot Projects? ------------------------------------------- 19
7.2.3 How to obtain Programme Support Elements and
National Endorsement?----------------------------------------- 20
8.
NPAs AS POLICY TOOLS FOR DEVELOPMENT--------------------- 21
8.1
Existing NPA Programmes --------- ---------------------------------- 21
8.2
NPA Handbook
--------- ---------------------------------- 22
8.3 Recommendations
from Open Regional Workshop
on National Programmes of Action (NPAs) --------- ---------------- 23
8.4
List of Contacts ---------------------------------------------------- 25
REFERENCES ---------
------------------------------------------------------------- 26
i
LIST OF FIGURES
Figure 1:
Map of the Wider Caribbean Region ----------------------------- 1
Figure 2:
Source Categories, Activities and Associated Pollutants of
Concern for the LBS Protocol
------------------------------- 7
Figure 3:
A Flexible and Cyclical NPA Framework -------------------------- 10
Figure 4:
The NPA Cycle adapted for the Caribbean
------------------ 15
LIST OF TABLES
Table 1:
Sewage Effluent Guidelines as stipulated in Annex III of
the LBS Protocol
--------------------------------------------------- 8
Table 2:
Highlights and Achievements of NPAs
------------------------- 12
ii
LIST OF ACRONYMS
CBOs
Community Based Organizations
EIA
Environmental Impact Assessment
GESAMP
Group of Experts on the Scientific Aspects of Marine
Environmental Pollution
GPA
Global Programme of Action for the Protection of the
Marine Environment from Land-based Activities
IMF
International Monetary Fund
IWCAM
Integrating Watershed and Coastal Area Management
LBS
Land Based Sources of Pollution
NEMS
National Environmental Management Strategy
NEP
National Environmental Policy
NOAA
National Oceanic and Atmospheric Administration
NPA
National Programme of Action for the Protection of the
Coastal and Marine Environment from Land-based Sources
of Pollution
NRCA
National Resources Conservation Authority
OECS
Organisation of Eastern Caribbean States
SIDS
Small Island Developing States
UNEP-CAR/RCU United Nations Environment Programme Caribbean
Regional Coordinating Unit
UNEP-ROLAC
United Nations Environment Programme Regional Office
for Latin America and the Caribbean
WCR
Wider Caribbean Region
WSSD
World Summit on Sustainable Development
iii
Chapter 1
INTRODUCTION
Background
The marine area of the Wider Caribbean encompasses the Caribbean Sea and the Gulf of
Mexico and extends as far north as Florida in the United States of America to as far south
and east as French Guiana on the North Coast of South America. This region includes
Florida, Central America and the many small island nations and territories of the insular
Caribbean (See Figure 1).
In many of these countries, land-based activities have been major causes of pollution of
the coastal and marine environment. This has contributed significantly to the continual
degradation of fragile and valuable marine ecosystems. These ecosystems include coral
reefs, mangroves and sea grass areas, which serve as the critical natural resource base for
the sustainable development of the region. They also harbour many species of reef fish,
1
molluscs, and crustaceans that are important to the tourism industry (diving, snorkelling)
and near-shore fisheries. Over the years, these resources have been negatively impacted
by human-induced land and marine-based activities, as well as climate variability and
natural and man-induced disasters (UNEP, 1994; GESAMP, 2001).
The need to control and/or reduce pollution of the coastal and marine environment of the
Caribbean Sea has propelled the development of a wide range of national, sub-regional
and regional responses and initiatives. One of the first such regional responses was the
development of the Protocol Concerning Pollution from Land-Based Sources and
Activities (LBS Protocol) in 1999. This was developed within the legal framework of the
1983 Convention for the Protection and Development of the Marine Environment of the
Wider Caribbean Region (Cartagena Convention).
The development and implementation of the LBS Protocol and more recently the
formulation of National Programmes of Action for the Protection of the Coastal and
Marine Environment from Land-based Sources of Pollution (NPAs) are being used to
assist countries of the region to respond in a more integrated manner to the increasing
threats to the marine environment from pollution. Whilst the NPA and the LBS Protocol
represent two policy tools, they are complementary and can be used to support the
mainstreaming of environmental management issues into national and regional
development frameworks.
The Caribbean Environment Programme (CEP) of UNEP has been working in
coordination with the UNEP Global Programme of Action (UNEP-GPA) towards the
development of NPAs in the Caribbean Region. A few Caribbean countries have begun
the process of developing NPAs to address issues of marine pollution from land-based
activities. UNEP continues to work with other countries that are interested in developing
similar programmes.
2
Objective
The aim of this report is to document the experiences that Caribbean countries have had
in the development of NPAs and similar strategy documents. This will serve as a
valuable guide for other countries interested in developing their NPAs by highlighting
likely challenges, barriers, and constraints but more importantly possible solutions.
3
Chapter 2
MARINE POLLUTION ISSUES IN THE CARIBBEAN
The major land based sources of pollution affecting the Caribbean include:
2.1 Sewage and Nutrients
Effluent including domestic, industrial, agro processing and urban drainage waters are
often discharged directly to the sea with minimal treatment (UNEP, 1994; UNEP, 1997;
GESAMP, 2001; UNEP, 2004). This threatens the integrity of marine ecosystems in the
region and poses a direct threat to human health. The continued lack of adequate
wastewater and sewage treatment facilities identified in earlier studies (Vlugman, 1992),
continues to be a major concern for the region.
2.2 Solid Waste and Litter
Solid waste including non-biodegradable man-made materials such as plastic (PET)
bottles and bags are a major concern. These materials are used in the soft drink and retail
industries and are particularly problematic for many islands and nearby marine areas. In
some countries, debris in coastal areas is increasing. Studies conducted by Corbin and
Singh (1993) found that in 1992 St Lucia recorded 1,100.2 items/km of coastline. In
2004, 195.2 items/km (Singh, 2005) of solid waste was found along selected coastline
areas. Some of these items, for example plastics, upon degradation can release heavy
metals like cadmium and mercury, which can harm important habitats.
2.3 Persistent Organic Pollutants
Agro-chemical pollution and subsequent eutrophication are believed to have harmful
impacts on the coastal areas of the Caribbean and are reported to be a serious risk
(UNEP, 1994). For example, in 1993, a large `fish kill' off the coast of Trinidad (Point
Lisas) was linked to harmful algal blooms (Institute of Marine Affairs, 2005). Studies
conducted in Jamaica's Kingston Harbour confirmed the presence of pesticide residue,
the result of non-point agricultural run-off into the marine environment (Mansingh and
Wilson, 1995).
4
2.4 Oil (Hydrocarbons)
Hydrocarbon pollution in the Caribbean is one of the most significant threats to its marine
biodiversity (UNEP, 1989). Maritime- and land-based activities are the major sources of
hydrocarbon pollution in the region, and the threats posed from oil spill incidence are
very high. Many countries are looking for appropriate measures for the disposal of used
oil on land.
2.5 Sediment Mobilization
Siltation of nearshore areas is a major problem facing the Caribbean Region. High levels
of sediment are deposited in bays via river systems which themselves have been degraded
due to poor land-use practices, such as tree cover removal in Haiti (Ministère de
l'Environnement, 2001). Deforestation along riverbanks and slopes, and uncontrolled
and/or poorly controlled construction in coastal areas are common occurrences (Singh,
2005). Pumice and silt from quarry operations in islands such as Grenada and Jamaica
have contributed to the smothering of nearby reefs, thereby causing major disturbances in
the habitats (Department of Economic Affairs, 2001; NRCA, 2001). Farming steep
gradients (for example coffee cultivation in Jamaica) also sends sediments to nearby
coastal areas (Singh, 2005).
5
Chapter 3
THE LBS PROTOCOL
The LBS Protocol is a legal instrument for the Wider Caribbean Region (WCR) to
control and reduce pollution of the coastal and marine environment from land-based
sources and activities. Recognizing the dependency of the WCR on its coastal and
marine resources which support two of the region's major economic activities tourism
and fisheries ,s implementation of the LBS Protocol will:
· Reduce Priority Pollutants by establishing effluent and emissions limitations
and/or best management practices for these pollutants; AND
· Promote Information Exchange by establishing mechanisms for cooperation in
monitoring, research and the exchange of scientific and technical information on
land-based sources.
Some of the critical aspects of the LBS Protocol are highlighted in Figure 2.
Domestic wastewater is the number one point source category for pollution of the marine
environment in the Wider Caribbean Region. Table 1 provides guidelines for the
discharges of effluent into different categories of coastal waters.
6
Figure 2: Source Categories, Activities and Associated Pollutants of Concern for the
LBS Protocol
LAND BASED SOURCES AND ACTIVITIES
· Domestic Waste
· Extractive industries
· Chemical industries
· Manufacture of liquor and beverages
· Oil refineries
· Food processing
· Sugar factories and distilleries
· Pulp and paper factories
· Agricultural sources (non point)
· Intensive animal rearing
Waste from these activities enters
the marine environment as
· Effluent (industrial and domestic)
· Solid Waste
· Agro-chemical Run-off
· Oils and Hydrocarbons
and may contain the following
primary pollutants
· Organhalogen compounds e.g. PCB, DDT, Dieldrin, hexachlorocyclohexanes
· Organophosphorous compounds e.g. Diazinon, Aspon
· Organotin compounds e.g. Tributlytin (TBT), Triphenyltin (TPhT)
· Heavy metals e.g. mercury (Hg), Lead (Pb), chromium (Cr)
·
Crude petroleum & hydrocarbons e.g. oil and natural gas
·
Used lubricating oils
·
Polycyclic aromatic hydrocarbons (PAHs) e.g. naphthalene, charcoal combustion
· Biocides & derivatives e.g. ethylene oxide, formaldehyde
· Pathogens e.g. bacteria, enteric pathogens
·
Cyanides and fluorides e.g. use for industrial purposes
·
Detergents e.g. soaps and personal hygiene products (PHPs)
·
Nitrogen & phosphorous compounds e.g. fertilizers
·
Garbage & other floatables e.g. PET bottles, household waste
7
Table 1: Sewage Effluent Guidelines as Stipulated in Annex III of the LBS Protocol
(Source: LBS Protocol)
CLASS I WATER
Area
Measured parameter
Discharge Limit
-areas of coral reefs, sea grass and
Total suspended solids
30 mg/l
mangroves
BOD5
30 mg/l
-critical breeding grounds, nurseries pH
5-10 pH units
-habitat areas designated under
Domestic and industrial waste (fats, 15 mg/l
SPAW
oil and grease)
- designated SPAW areas
Faecal coliform
200 mpn/100 ml
- recreational waters
E coli
126 org/100ml
Entercocci
35 org/100 ml
Floatables
Should not be visible
CLASS II WATER
Water in the Convention Area that Total suspended solids
150 mg/l
does not fall into a Class I water
BOD5
150 mg/l
pH
5-10 pH units
Domestic and industrial waste (fats, 50 mg/l
oil and grease)
Floatables
Should not be visible
8
3.1 STATUS OF LBS PROTOCOL AS AT DECEMBER 2005
COUNTRY
SIGNATORY TO RATIFY
RATIFIED DATE
& ACCEDE
COLUMBIA
02/10/2000
COSTA RICA
06/10/1999
DOMINICAN
03/08/1999
REPUBLIC
FRANCE
06/10/1999
(TERRITORIES)
NETHERLANDS
06/10/1999
(TERRITORIES)
USA (TERRTORIES)
06/10/1999
PANAMA
09/07/2003
TRINIDAD &
28/03/2003
TOBAGO
ANTIGUA &
BARBUDA
THE BAHAMAS
BARBADOS
BELIZE
CUBA
DOMINCA
GRENADA
GUATEMALA
GUYANA
HAITI
HONDURAS
JAMAICA
MEXICO
NICARAGUA
ST. KITTS & NEVIS
ST. LUCIA
ST. VINCENT &
GRENADINES
SURINAME
UNITED KINGDOM
(TERRITORIES)
VENEZUELA
The LBS Protocol requires nine instruments of ratification or accession before it enters
into force (becomes legally binding to signatories).
9
Chapter 4
NPA DEVELOPMENT IN THE CARIBBEAN
Background
UNEP-GPA in collaboration with UNEP-ROLAC and UNEP-CAR/RCU have identified
National Programmes of Action for the Prevention of Marine Pollution from Land-Based
Sources and Activities (NPAs) as possible frameworks through which pollution
prevention could be addressed in a comprehensive and integrated manner in individual
countries.
NPAs should not be viewed as a final prescriptive document; but rather as a combination
of processes that facilitate the implementation of a range of related regional and global
obligations. The objectives of NPAs may be covered by existing national and regional
strategies and action plans. The participatory process for their further development and
integration make them very effective management tools.
It is recommended to use a logical framework when designing the NPA Process so that
activities are not undertaken in an ad hoc manner. This will facilitate a continued
development of the programme over the medium- and long-term. Moreover, it makes the
NPA process more transparent and accessible to the many and diverse stakeholders and
end-users. A graphical representation of the logical NPA framework is shown in figure 3.
Figure 3: A flexible and cyclical NPA framework
1
Developing realistic NPA action
Step 1 Initial preparation
Step 2 Identification of problems, constraints & opportunities
5
2
Step 3 Formulating of realistic strategies and action
Towards successful NPA Implementation
4
3
Step 4 Kick-off national measures and on the ground activities
Step 5 Monitoring evaluation and revision
10
Countries embarking on the development of NPAs, should therefore streamline the
process into existing national frameworks, which will best support the country's
demographic, political, cultural, economic and social situations. This will enable the
NPA to be used and implemented effectively. While the approaches may vary from
country to country, the development and implementation of NPAs can further enhance
regional cooperation and integration while addressing specific national priorities and
needs in pollution prevention and control.
One example of a related sub-regional framework and policy that can mutually support
the development and implementation of NPAs in the Caribbean region is the Saint
George's Declaration of Principles for Environmental Sustainability developed by
the Organization of Eastern Caribbean Countries (OECS) and the associated Regional
Environmental Management Strategy (REMS) which is the supporting regional policy
document. The OECS countries have used the REMS as a basis for the development of
National Environmental Management Strategies (NEMS) in each of their member
countries. NEMS provide a mechanism for linking several existing national
environmental policies, strategies and action plans. They are also opportunities to
develop holistic long-term sustainable implementation strategies for environmental
management that take into account obligations of multilateral environmental agreements
while addressing national priorities and needs.
11
Table 2: Highlights and Achievements of NPAs
Major Events
Year Achievements
Comments
Global Recognition that land-based 1995 The Global Programme of Action for Protection of GPA requested governments to initiate Actions at
activities have significant impact on
the Marine Environment from Land Based national levels and forge regional cooperation to
the marine environment
Activities (GPA) developed
prevent degradation of marine areas from Land Based
Activities. These actions may be implemented through
the development of National Programmes of Action
(NPA)
Intergovernmental Meeting
2001 Montreal Declaration on the Protection of the The meeting put forward the GPA as a suitable means
formulated Declaration on Land
Marine Environment from Land-based Activities of improving international coastal and oceans
Based Sources of Pollution
developed which highlighted the causes and effects governance under ocean-related conventions,
of marine degradation from land-based sources of including strengthening the regional seas conventions
pollution. This Declaration was presented at the and protocols.
WSSD in 2002.
UNEP develops Handbook on the 2002 Guiding tool on the formulation of NPA to assist The Handbook is being applied in the Caribbean in
Development and Implementation of
policy makers in the implementation of the GPA conjunction with efforts to implement the objectives of
NPAs
finalized.
the Cartagena Convention and its Protocols,
particularly the LBS Protocol.
Caribbean Countries begin
2004 Four Pilot Caribbean countries agreed to develop Please refer to Table 3 for current status.
development of NPAs
NPAs (Some countries already have existing NPA-
like programmes). The countries were Barbados,
Jamaica, Saint Lucia, and Trinidad & Tobago.
UNEP strengthens Cooperation and 2004 NOAA and UNEPGPA signed a Memorandum of Currently NOAA is working with countries in the
Collaboration to facilitate NPA
Understanding to promote and support the Wider Caribbean Region to facilitate NPA
development and implementation
development of National Programmes of Action development
(NPAs) in the Wider Caribbean region.
Mauritius Strategy reflects
2005 Urges SIDS and international partners to fully Particular reference to clause 26 pg 8 of the Draft
importance of NPA development for
implement the GPA/NPA in order to address SIDS Mauritius Strategy for the further implementation of
addressing pollution from Land
vulnerability issues.
the Programme of Action for the Sustainable
Based Sources
Development of Small Island Developing States
(2005)
NPA is recognised as management 2005 OECS and UNEP CAR/RCU signed a MOU to UNEP-CAR/RCU under the AMEP Work Programme
tool for OECS countries of the
promote the implementation of NPAs in the is the lead agency in the region for supporting the
Caribbean
framework of the NEMS. In addition, a MOU was development of NPAs
signed to harmonise the activities and goals The first Regional NPA workshop for the Caribbean
pursuant to the Cartagena Convention.
was held in August, 2005
12
Chapter 5
SYNERGIES BETWEEN NPAs AND LBS PROTOCOL
While NPAs and the LBS Protocol have different legal frameworks, they can both
serve as important management tools. The NPA is an integrated national management
framework to prevent, reduce and control marine pollution from land-based sources
and activities while the LBS Protocol is a regional legal instrument which can support
the development and implementation of national policies and laws. In the Caribbean
context, these two tools can be applied in a complementary manner and NPAs or other
similar national strategies can be used to promote both the importance of the LBS
Protocol and its effective implementation. Some examples from the region include:
Costa Rica
1. Since the NPA is a voluntary instrument and is neither nationally nor
internationally binding, in contrast to, Multilateral Environmental Agreements
(MEAs), Conventions and Protocols, it is often easier to gain political
acceptance and support. This was the case for Costa Rica in their approval
for the development of an NPA. However, the NPA will be used as a tool to
generate greater commitment and support to the formal accession to the LBS
Protocol and its effective implementation.
Jamaica
2. The process for the development of NPAs can also generate national dialogue
on the various legal obligations for supporting agreements and protocols such
as the LBS Protocol. This can assist in providing decision-makers in the
region with information supporting the ratification/accession of the Protocol
and to create an enabling environment for effective implementation. This was
the case in the development of the NPA in Jamaica.
Trinidad & Tobago
3. Components of the NPA include identification of land-based activities
contributing to pollution of the marine environment, an evaluation of their
contribution, and recommendations for remedial and preventative measures to
reduce contamination. These activities are consistent with specific objectives
13
and obligations of the LBS Protocol. In Trinidad and Tobago, the activities
which were implemented within the framework of the NPA directly met
specific obligations of the LBS Protocol to which it has acceded.
14
Chapter 6
NPAs: LESSONS LEARNT
Figure 4: The NPA Cycle - adapted for the Caribbean
1. Initial Preparations and
Parliamentary Approval
7. Evaluate pilot projects
and Identify opportunities
for replication
2. Identify and Asses
sProblems
6. Implementation of Pilot
Project(s)
3. Establish Priorities
5. Identify, Evaluate and
Select Strategies for Pilot
Proj
4. Set management
objectives for Pilot
project(s)
6.1 Initiating the NPA Process
· An effective NPA requires "will" by all the stakeholders. Participating agencies
must be totally committed to all phases of the process. These phases include
formulation, implementation, monitoring and evaluation.
Columbia found that the formulation process was complicated because the
assigning of responsibilities in the process was a major challenge.
· Cooperation between civil society and private sector is very important in
engendering national ownership.
Costa Rica found that the involvement of all stakeholders from the earliest
stages of the NPA process together with support from partnerships
between NOAA, UNEP-CEP and GPA were key enabling features of their
NPA process.
15
· The NPA process should have a suitable organizational scheme, which must
include a management framework, financial support, and monitoring and
evaluation mechanisms.
· There must be a clear definition of the goals from the outset of the process in order
to ensure the success of preventing marine degradation.
There are several enabling factors, which will contribute to the success of the
development of an MPA. These include awareness, commitments, goals and legal
framework. Some of the specific country lessons are outlined below.
6.2 Awareness
· The NPA will not be effective without adequate awareness. This must be targeted
at all levels of society, including the private sector and political partners.
Columbia, embarked on public awareness at all levels, and found that this
was critical to the success of their NPA process.
Costa Rica, on the other hand had difficulty in embarking on the
development of a NPA due to an initial lack of awareness. There was
therefore an initial requirement to inform all stakeholders of the objectives
of and relationships between the GPA, the NPA, and LBS Protocol.
Saint Lucia conducted an educational and sensitization campaign, which
included:
· Working with CBO's to generate interest in issues
· Showing people how the LBS affects them on a daily basis
· Involving resource users in the process
· Developing a sense of stewardship
6.3 Commitment
· Joint co-operation at local, national and regional levels are vital for success.
Costa Rica created interdisciplinary and inter-institutional cooperation.
St Lucia has an advisory committee and a multi-agency working group for
Coastal Zone Management. This group is responsible for overseeing pilot,
project activities carried out as pat of their NPA process.
· Early government endorsement of the NPA can decrease the time lag and
hindrances of the process.
16
Trinidad and Tobago's NPA process began at the political level where the
government parliamentary members appointed a `select committee' to
oversee the process and endorse the NPA at the beginning at the cycle.
6.4 Goals
· The NPA must form part of the overall policy on environmental management in
the country. It must identify high-, medium-, and long-term projects, prioritise
them, and develop implementation plans including how these plans will be
financed.
6.5 Legal Framework
· Comprehensive national, institutional and legal frameworks are important
enabling tools for the development and implementation of a NPA Process. These
frameworks should be able to deal with existing priorities and problems, but be
flexible enough to respond to emerging national, regional and global imperatives.
· There is a further need for implementation, compliance and enforcement of
legislation and policies that deal with land-based sources of pollution. Principles
in the NPA should be included in environmental, resource management and
planning legislation and in environmental regulations such as provision for
Environmental Impact Assessments (EIAs).
17
Chapter 7
NPAs: CHALLENGES EXPERIENCED
This section summarizes the general and specific challenges, which can occur in the
development of NPAs. It does not take into account delays, which may arise from natural
or man-made disasters.
Countries embarking on the development of NPAs should be cognizant of these
challenges so that appropriate corrective measures can be taken early in the process.
7.1 General challenges
1. Technical and financial limitations are among the major hurdles in the
development of a NPA.
Technical limitations can be overcome through the development of
strategic partnerships at the national, regional and international levels.
The collaboration between NOAA, UNEP/GPA and UNEP-CAR/RCU is
one such example where assistance has been provided based on areas of
expertise.
2. Difficulties may be experienced in `bringing together' agencies and institutions
from various sectors both in terms of logistical constraints but also in reaching
consensus on priority issues.
3. Funding constraints exist at all stages of the NPA process. However it is a major
problem in the scoping phase, which occurs prior to the commencement of the
NPA. In this phase, an immense amount of work is required, for which dedicated
financing, especially for consultations, should be identified. In addition, the time
lag between project approval and disbursement of funds can be long.
E.g.1
St Lucia cited finance as a major constraint.
E.g.2
Colombia's NPA is supported by a national budgetary
allocation, environmental funds (management of treaties),
18
donor countries, polluters' tax and international creditors
such as IMF.
AND
E.g
3
Jamaica's NPA is supported by annual government
subventions given to public sector departments to finance
their operations.
4. The repositioning of the NPA and the LBS within the National Priorities of Action
is a challenge for some countries.
5. Availability and sharing of information is a challenge for many countries and in
some cases, the lack of inter-agency cooperation exacerbates the problem.
7.2 Specific Challenges
7.2.1 How to Identify and Assess the Problem?
· These challenges include:
Identifying the issues affecting the marine environment
Identifying the stakeholders and relevant agencies to participate in the
process
Initiating the process and getting commitment for the next phase
Obtaining Agreements from agencies
Getting access to accurate and updated scientific data and information
Making the link between environmental management and socio-economic
developmental priorities.
7.2.2 How to Set Management Objectives and Select Pilot Projects
· Selection of pilot projects may be difficult. In Trinidad and Tobago it proved
difficult to demonstrate short-term achievements for the pilot NPA project that
was originally selected. Therefore, geographic consideration and scale must be
given careful consideration in the selection of any pilot study. Some other issues
to be considered in the choice of pilot project include: resource availability,
replicability, severity of the problem, and stakeholder acceptance and support.
19
7.2.3 How to obtain Programme Support Elements and National Endorsement?
· Obtaining political support and endorsement for the development of NPAs can be
challenging. BUT, early political endorsement is critical to the process.
Experience from countries who have embarked on NPA development processes
illustrate the importance of ensuring adequate time for consultation and
mobilization of support at the community, technical and political levels.
E.g., In Trinidad the Cabinet-appointed Committee was very slow
in reaching consensus in the NPA process. Projected timelines for
NPA development must therefore be realistic and take into account
long bureaucratic processes.
20
Chapter 8
NPAs AS POLICY TOOLS FOR DEVELOPMENT
NPAs are very important tools for addressing marine degradation in an integrated and
holistic manner. The development and implementation of related national strategies as
well as the supporting frameworks provided by regional and international environmental
agreements can strengthen the national capacity to prevent, reduce and control pollution
from land-based sources and activities.
Effective integration of NPAs into existing national development planning policies and
frameworks will be critical in ensuring that the principles of sound environmental
management are mainstreamed at the national level.
8.1 Existing NPA Programmes
A NPA programme may or may not be referred to as a NPA. Other titles may well be
more appropriate, especially if the NPA is linked to existing integrated programmes or
sectoral policies such as sustainable development or poverty reduction strategies,
integrated health and environment programmes, or sectoral strategies on water quality,
marine protected areas, fisheries, agriculture or tourism. The important issue is not the
title, but rather the inclusion of concrete action to address harmful effects of land-based
activities on the coastal and marine environment.
Examples of countries with existing NPA programmes include:
· Saint Lucia
Saint Lucia's NPA Programme consists of the following:
Coastal Zone Management Policy: This is a guiding policy document for
NPA implementation in Saint Lucia.
National Environmental Policy: This document addresses the
maintenance and enhancement of biodiversity, natural productivity and the
21
environment for human health. It also seeks to address the fulfilment of
regional and international objectives.
· Barbados
Barbados' NPA Programme consists of the following:
Barbados Coastal Zone Management Programme
Barbados Legislation and the LBS Protocol
· Jamaica
Jamaica's NPA Programme consists of the following:
National Programme of Action
8.2 NPA
HANDBOOK
The NPA Handbook entitled `UNEP Handbook on the Development and Implementation
of a National Programme of Action for the Protection of the Marine Environment from
Land-based Activities', developed by the UNEP-GPA, has been revised based on the
experiences in the development and implementation of NPAs in the Caribbean and
elsewhere.
The new guide, entitled `Protecting Coastal and Marine Environments from Land-based
Activities A Guide for National Action', provides greater flexibility and guidance for
countries that are embarking on a NPA process.
22
8.3
Recommendations of the Open Regional Workshop on National Programmes
of Action (NPAs) from the Third Meeting of the Interim Scientific, Technical
and Advisory Committee (ISTAC) to the Protocol Concerning Pollution from
Land-based Sources and Activities in the Wider Caribbean Region (LBS)
(Mexico City, Mexico, 22 - 26 August 2005)
The workshop on National Programmes of Action for the Prevention of Marine Pollution
was convened to deliberate on the progress of the development and implementation of
National Programmes of Action for the Prevention of Marine Pollution from Land based
Sources (NPA) in the region. This forum allowed countries throughout the wider
Caribbean to share their individual experiences.
NPAs, by determining necessary priorities and implementation strategies, are recognised
as mechanisms for strengthening and facilitating the LBS Protocol. An NPA is envisioned
as a management plan to address prevention of marine pollution from land based sources.
It is a flexible instrument adapted to each country's reality. The goal of the NPA is to
assist the national or regional government, industry, and local communities in the
prioritization of economic and social development objectives.
It is recognised that in order for NPAs to be implemented, it is important that they be built
on realistic assumptions of capacities and resources that are available to the country, both
from domestic and international sources. It is further recognised that for NPA
development, all relevant stakeholders should be included in the process.
Barriers and Constraints
The presentations and subsequent discussions identified many lessons learnt, challenges,
constraints and barriers to the implementation of the NPAs. These include:
· Lack of adequate financial resources;
· Insufficient capacity both at the institutional and technical levels, which are required
for implementation;
23
· Lack of effective mechanisms for the decentralisation process (transfer of
responsibility). This process is often not accompanied by the provision of the
necessary supporting framework (legal, financial, enforcement and monitoring etc.),
which allows local governments to implement their responsibilities;
· Inadequate knowledge and ownership of marine environmental issues, which are
perceived to be barriers to the prioritisation of the NPAs.
Other issues mentioned were:
· Time constraints in the development process;
· Endorsement and ratification of the LBS Protocol;
· Empowerment of communities.
Recommendations
This workshop identified the following recommendations of action for consideration by
ISTAC.
· Urge countries to develop NPAs in order to facilitate and guide the implementation
of the LBS Protocol.
· Recommend, for implementation in the OECS countries, that the NPA process be
integrated into the existing NEMS in order to avoid duplication.
· Urge ISTAC to continue its efforts to strengthen capacity for the development and
implementation of LBS/NPA activities. In addition there should be increased
experience-sharing in the region, including methods/tools in order to strengthen
implementation of the LBS Protocol.
· Facilitate implementation of NPAs through clearly-defined short, medium and long-
term plans.
· Initiate activities on strengthening long-term sustainable financing (domestic
resource mobilisation and efficient leverage of international sources), activities on
socioeconomic/affordability constraints and strategic planning/sequencing of action.
· Develop, through ISTAC, a mechanism to assist countries in addressing barriers and
constraints to the development and implementation of NPAs.
· Increase focus on economic valuation and environmental health cost assessments.
24
· Increase awareness/initiatives on the benefits from LBS activities.
· Increase involvement of the academic community.
Other matters for consideration
· Harmonization of standards
· Creation of a clearinghouse at project level
· Donor meeting/dialog forum on marine/LBS
8.4
List of Contacts
Name
Title Organization
TEL/Fax/Email
Dr Leo Brewster
Director
Coastal Zone Management Tel.: (246) 228-5995/50/51 ext 246
BARBADOS
Unit
Fax: (246) 228-5956
Bay Street, St. Michael
Email: director@coastal.gov.bb
Barbados
Winsome Townsend Director-Strategic Planning,National Environment &
Tel: (876) 754-7560; 754-7540
JAMAICA
Policies, and Projects
Planning Agency
Fax: (876) 754-7594
Division
10 Caledonia Avenue
wtownsend@nepa.gov.jm
Kingston 5
Alma Jean
Coordinator-Coastal ZoneSustainable Development and Tel: (758) 468-4459
SAINT LUCIA
Management Unit (Ag)
Environment Section, Ministry Fax: (758) 453-0781
of Physical Development,
czmu@planning.gov.lc
Environment and Housing,
Greaham Louisy
Administrative Building, Box
709, Waterfront, Castries,
Saint Lucia
Donna Spencer
Chief Information Officer Inst. Of Marine Affairs
Tel: (868) 634-4291/4 ext. 419
TRINIDAD &
Hilltop Lane, Chaguaramas
Fax: (868) 634-2479
TOBAGO
P.O. Box 3160, Carenage
dspencer@ima.gov.tt
Ed Kruse
International AffairsU.S. Department of Commerce Tel: 301-713-3078 ext. 177
NOAA
Specialist
/ National Oceanic &
Fax: 301 713-4263
Atmospheric Administration / ed.kruse@noaa.gov
International Programs Office
National Ocean Service
1315 East West Highway
Silver Spring, Maryland 20910
Gonzalo A. Cid, Ph.D. Technical Advisor
U.S. Department of Commerce Tel: 301-713-3078 ext. 131
NOAA
/ National Oceanic &
Fax: 301-713-4263
Atmospheric Administration / gonzalo.cid@noaa.gov
International Programs Office
National Ocean Service
1315 East West Highway
Silver Spring, Maryland 20910
25
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