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PILOTING THE INTEGRATION OF COASTAL ZONE MANAGEMENT AND CLIMATE CHANGE ADAPTATION IN TOBAGO (TT-T1034) (COASTAL MANAGEMENT SPECIALIST) TO DEVELOP THE CORE ELEMENTS OF A FRAMEWORK FOR IMPLEMENTATION OF THE INTEGRATED COASTAL ZONE MANAGEMENT POLICY IN TOBAGO June 2015 Final Report on the Core Elements of a Framework for Implementation of the National Integrated Coastal Zone Management Policy in Tobago Prepared by Jonathan McCue Englishmans Bay, Tobago west coast (taken by J McCue May 2013) Pigeon Point beach (taken by J McCue May 2013) Marine habitats, Buccoo Reef (taken by J McCue 2013) Page ii TABLE OF CONTENTS SECTION 1 – INTRODUCTION ..................................................................................................................... 1 1.1 Purpose of the Report 1 1.2 Rationale for an ICZM Policy for Tobago 1 1.3 Purpose of an ICZM Policy for Tobago 2 SECTION 2 – INSTITUTIONAL ARRANGEMENTS AND STAKEHOLDER VIEWS ON ICZM “CORE ELEMENTS” FOR TOBAGO .............................................................................................................................................. 3 2.1 Organisational Structure 3 2.1.1 Overview .............................................................................................................................................................. 3 2.1.2 Division of Agriculture, Marine Affairs, Marketing & the Environment ..................................................... 3 2.1.3 The Division of Tourism and Transportation.................................................................................................... 4 2.2 Relevant Powers 4 2.3 Key Issues of Relevance to ICZM Policy Development in Tobago 5 2.3.1 Workshop Discussion Point 1: Linking ICZM with Supporting Strategic Planning Programmes in Tobago 5 2.3.2 Workshop Discussion Point 2: Institutional Arrangements and Capacity Building for ICZM ................. 6 2.3.3 Workshop Discussion Point 3: Geographic Extent of an ICZM Policy Framework.................................. 7 2.3.4 Workshop Discussion Point 4: Sustainable Development Planning ..........................................................12 SECTION 3 – CORE ELEMENTS OF THE ICMSP POLICY FRAMEWORK....................................................... 14 3.1 Recommended ICMSP Core Elements 14 3.2 Translating “Core Elements” into a Policy Framework for ICMSP 14 3.2.1 Stepped Tasks to achieve the ICMSP Policy Framework...........................................................................14 3.2.3 “Policy Directives” for the ICMSP Policy Framework .....................................................................................17 3.3 Recommended Supporting Guidance 26 3.3.1 Operations and Training Manual (Staff Development) .............................................................................26 3.3.2 Coastal Development Guidance ....................................................................................................................27 3.4 Structure of the proposed ICZM Unit 30 SECTION 4: CONCLUSION ......................................................................................................................... 33 REFERENCES .............................................................................................................................................. 35 APPENDIX A: ICZM WORKSHOP FINDINGS AND OUTCOMES ................................................................. 37 LIST OF INVITEES 37 APPENDIX B: ASSESSMENT OF PROJECT REPORT ACTIONS AND RECOMMENDATIONS ....................... 49 B.1 Overview 49 B2 Report A: Economics of Climate Adaptation in Trinidad and Tobago (IADB 2014) 49 B3 Report B: ICZM Situational Gap Analysis 52 B4 Report C: Public Awareness and Dissemination Programme 54 B5 Report D: Vulnerability Assessment for South West Tobago 55 B6 Report E: Climate Change Adaptation Response Plan (CCARP) for Tobago 58 B7 Report F: Coastal Ecosystem-based Adaptation (EbA) Guidelines 60 B8 Report G: Mainstreaming Climate Change Considerations into ICZM for Tobago 62 Page iii APPENDIX C: PROPOSED ICMSP OUTPUT FORMAT ................................................................................. 65 APPENDIX D: INSTITUTIONAL CASE STUDIES ........................................................................................... 68 D1: ICMSP – Institutional Delivery Case Studies 68 D2: Institutional Findings 72 Page iv Executive Summary Jonathan McCue was contracted by the Institute of Marine Affairs (IMA) to undertake a consultancy entitled “Core elements of a framework for implementation of the Integrated Coastal Zone Management Policy in Tobago”. This represents a key component of the larger IDB funded project entitled “Piloting the Integration of Coastal Zone Management and Climate Change Adaptation in Tobago (TT-T1034)”. This report presents a focus on the “Core Elements of a Framework for Implementation of the National Integrated Coastal Zone Management Policy in Tobago”. The “Core Elements” are presented to assist the THA with future planning in the coastal zone (including sustainable coastal protection and climate change adaptation approaches). The report’s content is based on a combination of the findings/actions required from all appropriate technical studies produced for the project TT-T1034, adaptation measures identified under the IDB funded study on “Understanding the Economics of Climate Adaptation (TT-T1033) and which are relevant in the Tobago context, stakeholder consultation commentary (Workshop held on 26 May 2015) and international consultant views and comments (see Appendices A and B for details). A specific section (Section 2) is included to present the findings of a rapid institutional assessment of the Tobago House of Assembly (THA) focusing specifically on their capacity to deliver coastal planning, economics, project financing and coastal protection. Section 3 then outlines the way forward with regard to what should be the core elements of a future ICZM Policy Framework and how these could be formed into a series of ICZM Policy Directives for Tobago. The review of all Technical Cooperation documents produced for Project TT-1034 and TT-T1033 produced 26 Recommendations from the 8 separate reports reviewed (see Appendix B). These recommendations demonstrate a strong policy related structure which fit neatly with the Strategic Objectives set out within the THA’s Comprehensive Economic Development Plan (CEDP) (2013-2017 – Kairi 2012). From the stakeholder Workshop event (26 May 2015), the top ten Project (TT-1034 and TT-T1033) recommendations or “actions” that require focused attention are: 1. A1) Pursue the formal preparation and acceptance of a National Building Code (TTA1); 2. A3) Mangrove Restoration in Tobago (TTA18); 3. A4) Coral Reef Restoration and Protection in Tobago (TTA19); 4. B2) Effective Institutional Arrangements for ICZM Planning and CC Adaptation; 5. B3) Establish a Policy Framework for ICZM and CC Adaptation; 6. C3) Introduce a Variety of Educational “tools” to convey ICZM outcomes; 7. D1) Initiate New Data Collection programmes; 8. E1 and E2 (combined) - Build the case for natural coastal protection AND Bring coastal ecosystems into mainstream decision making processes; 9. E3) Incorporate proven management interventions; 10. E5) Formalize Monitoring and Evaluation procedures. (NB: numbering sequence is taken from the Reports reviewed in Appendix B): Page v From the above list (plus an assessment of those recommendations that did not score within the stakeholders top ten, this consultancy concludes that 9 new “Policy Directive” titles should be adopted to reflect the above actions and recommendations. These “Policy Directives” (or “Core Elements” of an ICZM Policy) complement very well with the 12 Policy Objectives already set out for the Draft National T&T ICZM Policy Framework (ICZM Steering Committee, 2014). These Policy Directives are therefore entitled: • Policy Directive 1 - Standards and Procedures; • Policy Directive 2 – Improving Economic Potential (Transport and Commerce); • Policy Directive 3 – Conservation of Heritage, Food Security and Biodiversity; • Policy Directive 4 – Working with Dynamic Coasts and Ecosystems; • Policy Directive 5 – Climate and Disaster Resilient Livelihoods; • Policy Directive 6 – Focus, Integration and Co-ordination; • Policy Directive 7 – Community Participation and Co-management; • Policy Directive 8 – Knowledge and Understanding; • Policy Directive 9 – Financial Sustainability. Regarding future implementation, it is proposed that a Multi-Sectoral Committee on ICZM (an “ICZM Unit”) within the Office of the Chief Secretary be initiated that would coordinate effort amongst the different departments and divisions. The Office of the Chief Secretary together with the Planning Division should initially spearhead the initiative. This would then lead to a subsequent stand alone “ICZM Unit” that becomes fully responsible for implementing the ICZM Policy. The ICZM Unit would need to be properly structured with appropriately trained staffs and with suitable equipment that is dedicated to the effective functioning/servicing of ICZM Policy delivery in Tobago. Staffs shall include trained expert with skills in coastal engineering, marine biology, economists and ecology and project management. Legislation/ regulations may have to be adopted to enable the ICZM Unit to approve and manage all current and future coastal development and planning initiatives being proposed within a legally defined Coastal Management Area (CMA) for Tobago. Regarding the spatial extend of a future Policy for Tobago, it is concluded that the term “Integrated Coastal and Marine Spatial Planning (ICMSP)” is considered to better reflect the “Zones” of influence (T1 and T2 plus S1 for nearshore marine areas) as set out in the Draft National T&T ICZM Policy Framework (ICZM Steering Committee, 2014). New “guidance manuals” are also proposed for development to help deliver the coastal policy framework (e.g.: the Coastal Development Guide and the Environmental Policy Guideline Manual) within the CMA. Finally, it is recommended (and as based on international best practice on ICMSP from other small island states) that the future reporting process needs to have a series of Volumes prepared. The ICMSP process for Tobago is therefore proposed to comprise of 3 main Volumes. This should initially commence with the production of a new overarching policy framework to help frame the way forward for ICMSP (Volume 1). It can then be supported by the production of two separate coastal and marine planning documents (Volumes 2 and 3). This is structured in more detail within Appendix C. NB: This report (contracted Deliverable 4) represents an adapted summary version of a more detailed report produced as contracted Deliverable 2 – “Draft Core Elements Report”. The project Workshop event was then implemented to present the draft reports “Core Elements” of a future ICZM Policy Framework. Page vi SECTION 1 – INTRODUCTION 1.1 Purpose of the Report The objective of this consultancy (circa 1 calendar month in duration) is to develop the core elements of a framework for implementation of the Integrated Coastal Zone Management Policy that can be utilized by the Tobago House of Assembly (THA) in their development planning and operations as it relates to integrated coastal zone management (ICZM) and climate change adaptation (CCA) in Tobago. The purpose of this report is to develop further a draft document (Deliverable 2) produced for this consultancy and to incorporate any feedback/inputs received during a project specific workshop held in Tobago on 26 May 2015 (see Appendix A for workshop outcomes) into an updated final report on the core elements of an ICZM policy framework for future implementation. The intention of this report is therefore to present to the policy / decision makers in Tobago a very clear and concise report on the Core Elements to Implement an ICZM Policy in Tobago. (NB: The key findings of the draft Deliverable 2 report are reflected within this report however, the reader should refer to that report for more specific details). 1.2 Rationale for an ICZM Policy for Tobago Tobago is at an early stage of planning for the protection of its coastal areas. The initiative to move in this direction has come as a result of the recognition of severe degradation of coastal ecosystems and coastal development pressures. The degradation of specific ecosystems is obvious in many ways. Key drivers of this degradation are, as is the case with other small islands developing states (SIDS), global climate change and an ever-increasing coastal population. In Tobago, however, further stresses on a potentially sustainable coastal zone are associated with the following: Limited technical capacity for coastal zone management, Fragmented data and information collection for sound decision-making, Insufficient clarity with respect to coastal and marine processes, and A lack of widespread targeted public education and awareness that helps to control individual actions and behaviour in coastal areas. With respect to institutional arrangements for tackling these technical issues, a number of gaps exist, and in cases where institutional arrangements do exist, and work in a specific area of ICZM is ongoing, usually it is site- and issue-specific and is not done in the context of comprehensive and integrated coastal management. Nevertheless, compared to other small island developing states, many areas of the Tobagonian coastline and its ecosystems still remain healthy and vibrant. As a consequence, there are opportunities for sustainable economic development in the coastal zone, but the information needed to optimize uses and ecosystem conservation, maintain resource health and well-being, as well as to ensure consistent economic returns from coastal sectors is not readily available. A proposed ICZM Policy should help to provide a framework to guide the use of the coastal zone in a way that contributes to maximising national physical protection and social and economic development benefits. Page 1 1.3 Purpose of an ICZM Policy for Tobago The main purposes of an ICZM Policy for Tobago shall be to: establish a vision and principles to guide the future development of the coast with respect to climate resilient development, disaster and climate proofed land use planning, management of coastal resources and ecosystems and environmental protection; guide the future form and development of the coastal area and advise the public, communities, businesses and government using proven best practice examples from neighbouring countries/regions; provide guidelines for public and private works and actions that impact on the social, environmental, economic and physical well-being of the residents of coastal communities around Tobago. foster the socio-economic, environmental and physical well-being of coastal communities. Page 2 SECTION 2 – INSTITUTIONAL ARRANGEMENTS AND STAKEHOLDER VIEWS ON ICZM “CORE ELEMENTS” FOR TOBAGO 2.1 Organisational Structure 2.1.1 Overview After 1980, the Tobago House of Assembly (THA) was formed into seven divisions, each representing a developmental concern. Today, the THA comprises two main arms, the Legislative Arm and the Executive Arm, and 10 divisions – nine with particular remits plus the Office of the Chief Secretary, which oversees the others. The THA was created by Act 37 of 1980 for “making better provision for the administration of Tobago and for matters therein.” The Legislative arm (Assembly Legislature) is where all members of the Assembly meet in plenary and/or in select committees to make policy decisions for the operations of the Assembly. These functions are supported by the Assembly Legislature Secretariat and headed by the Presiding Officer. The Clerk of the Assembly is responsible for the efficient discharge of functions of the business of the Assembly. The Executive arm of the Assembly is headed by the Chief Secretary in his capacity as leader of the Executive Council. The Council has individual and collective responsibility for carrying out the tasks of the Assembly through its divisions. Each division is led by a secretary, with an administrator serving as the accounting officer responsible for producing the desired results of the division. The Chief Administrator is the most senior public officer in the administration and is attached to the Office of the Chief Secretary. Currently the 10 Divisions are: Office of the Chief Secretary; Agriculture, Marine Affairs, Marketing & the Environment; Community Development & Culture; Education, Youth Affairs & Sport; Finance & Enterprise Development; Health & Social Services; Infrastructure & Public Utilities; Planning & Development Settlements & Labour; Tourism & Transportation. 2.1.2 Division of Agriculture, Marine Affairs, Marketing & the Environment The Divisions of most relevance to future ICZM delivery in Tobago are the Agriculture, Marine Affairs, Marketing & the Environment Division and the Planning and Development Division. The former Division is responsible for the sustainable management of Tobago’s marine resources from the coastline to a distance of 6 nautical miles off shore. The Division then is further subdivided into the Department of Natural Resource and Environment (DNRE), Fisheries and Aquaculture, and the Marine Area Units. The Fisheries and Aquaculture Unit is responsible for the development and Page 3 management of the fishing industry in Tobago. Its duties involve resolving conflicts in the fishing industry, training fishers, processors, vendors, and other stakeholders in the industry, in new equipment and techniques in fishing and fish marketing and safety measures and monitoring the fish resources surrounding the island. The Marine Areas Unit has responsibility for the marine and coastal resources around Tobago. Some of the duties include developing an integrated coastal zone management plan that would involve methods of including the community members in the management of the marine resources and researching ways and means of reducing pollution and the degradation of the reefs, mangroves, and seagrass beds. Additional staff training in both Departments to help deliver climate resilient ICZM is however needed and is proposed in Section 3.4. 2.1.3 The Division of Tourism and Transportation This Division spans a multiplicity of activities. Tourism and Transportation is charged with the responsibility of establishing, standardizing and sustaining the island’s tourism product in a manner consistent with the repositioning strategy for Tobago as a tourist destination. The Division ensures that there is an adequate supply of Air and Sea transportation to satisfy the needs of both residents and visitors to Tobago. 2.2 Relevant Powers The THA has 33 areas of responsibility. Those of direct relevance to the delivery of a future ICZM Policy are presented below: State Lands; Land and marine parks; Museums, archives, historical sites and historical buildings; Tourism; Sports; Culture and the Arts; Community Development; Co-operatives; Agriculture; Fisheries; Food Production; Forestry Town and Country Planning; Infrastructure, including air and sea transportation, wharves and airports, public utilities and flood defences; Highway and Roads; The environment; Page 4 Licensing; Statistics and Information; Housing. 2.3 Key Issues of Relevance to ICZM Policy Development in Tobago 2.3.1 Workshop Discussion Point 1: Linking ICZM with Supporting Strategic Planning Programmes in Tobago The Central Government and the THA continue to focus their efforts on improving the quality of life of citizens and investing in social and economic infrastructure of the island economy. The Public Sector Investment Programme (PSIP) continues to be the principal instrument that Government uses to achieve its objectives within the context of national stated policies. The 2014-2016 PSIP is based principally on the Medium Term Policy Framework (MTPF) 2011-2014 and contains projects and programmes that are aligned to both the MTPF 2011-2014 and the National Performance Framework 2012-2015. Interestingly, these strategic priorities are: Crime and Law and Order; Agriculture and Food Security; Health Care Services and Hospitals; Economic Growth, Job Creation, Competitiveness and Innovation; Poverty Reduction and Human Capital Development. The 2014 Tobago PSIP in particular is also informed by Tobago’s Comprehensive Economic Development Plan (CEDP) 2013-2017, which has as its overall goal “to transform and diversify the Tobago economy such that it is better able to adjust to rapid changes in the national and international economies by producing products and services in which it can retain a competitive edge” and which is based on eight strategic priorities: Branding Tobago: Clean, Green, Safe and Serene; Good Governance and Institutional Reform; Business Development and Entrepreneurship; Human Capital Development; Social Development and Resilience; Physical Infrastructure and Utilities Development; Enhanced Safety and Security; Environmental Sustainability. The updated CEDP document now identifies a vision that includes “sustainable management of its natural resources through the establishment and implementation of standards, systems and regulations to ensure sustainable use and protection of the environment”, which importantly is now entirely compatible with the objectives of mainstreaming of EbA into ICZM for CCA. Indeed this is encompassed within the CEDP goal to “strengthen environmental capacity and performance, Page 5 consistent with a resilient Tobago that is Clean Green Safe and Serene and meets the standards of a green Tobago economy.” As identified above, the key strategic priority (from the CEDP 2013-2017) of relevance to ICZM in Tobago is Strategic Priority Area (10) which identifies 4 outcomes, namely: 1) Environment and climate change mainstreamed into Tobago development framework. 2) The physical planning and development control framework for Tobago strengthened. 3) Solid waste management system effectively integrated and Tobago’s capacity strengthened in managing solid waste and reducing environmental and health hazards and risks associated with hazardous wastes, persistent organic pollutants (POPs) and plastics in the domestic, commercial and industrial streams. 4) Tobago’s communities, households and residents better prepared for disasters (including in the planning, response and recovery) FIGURE 2.1: CEDP (2013-2017) STRATEGIC PRIORITY AREA (10) This key discussion point was raised at the 26 May 2015 Workshop event with key Tobagonian stakeholders including the THA (see Appendix A). It was raised that the CEDP (as an adopted formal strategy document for Tobago) represents an important policy “vehicle” to take forward ICZM in Tobago and creates the “signposts” needed for the ICZM policy framework. The majority of stakeholders present agreed that the CEDP is produced to enable a clear separate ICZM Policy Framework to then be subsequently produced (that embraces both CCA and EbA needs). For it to be implementable, it must, however, be participatory in its nature with a strong co-management component inculcated within it. 2.3.2 Workshop Discussion Point 2: Institutional Arrangements and Capacity Building for ICZM As stated in Section 2.2 above, the THA, coupled with the Tobago Emergency Management Agency (TEMA) amongst others, have a mandate to coordinate, support, and advocate sustainable, efficient, and effective service delivery in Tobago. They are therefore both important institutions to support cross-sectoral (and synergy with Trinidad) delivery by public institutions and in partnership with civil society and private sector institutions. This sub-national level is critical to help offer the comparable advantage of being more closely attuned to having better knowledge of the development needs of local Tobagonian communities and local stakeholders. This level of implementation is therefore widely recognised as the most direct and effective area for development interventions and also as the most appropriate level for planning and implementing climate change adaptation measures. Despite the fact that the T&T constitution guarantees the existence of the THA, there are certain policy directions and targets for Tobago that lie within the responsibility of the central government (including tourism policy but also this is possible for an ICZM Policy) as well as the size of budgetary allocations for the island, which it may be argued will and has influenced the pace of coastal development. These arrangements influence the pace to take forward the development of Tobago’s coastal management agenda. Page 6 It was raised by stakeholders (Appendix A) that, the THA is deemed the most appropriate lead body to lead the development of an ICZM Policy in Tobago and to ensure that stakeholders, and in general Tobagonians, benefit from its intended outcomes. The THA’s role is critical to take this forward in addition to seeking ways to help facilitate stakeholder views. Horizontal consultation between Departments on ICZM related issues, at present, appears no more than adequate at best. Consequently, significant improvements regarding consultation and engagement (within THA and to other key stakeholders) are therefore needed as there often remains confusion over departmental responsibilities and capacity resource challenges. The Workshop event (26 May 2015) clearly agreed that there is a need to transform current approaches to decision making into a more strategic “science based” management approach in a similar way to that being adopted in Barbados (Coastal Risk Management Programme – CRMP). To this end, a significant training and capacity building phase is needed on key topics. This included ICZM related topics such as: Coastal development guidance (linked to development control measures along the shoreline); Environmental policy regulation and compliance (e.g.: coastal pollution or waste disposal etc – see Section 3); Financing ICZM – how to involve the finance /private sector and how to establish private /public partnerships to deliver ICZM; Stakeholder engagement and education strategies – how to raise interest in coastal risk matters within Tobago? The Workshop event also proposed that it may be appropriate for THA to initiate a multi-sectoral Committee on ICZM (an “ICZM Unit”) within the Chief Secretary's Office (with support from other Departments of THA such as Planning and DAMME) to coordinate and spearhead all efforts amongst the different departments and divisions) The “ICZM Unit” would be fully responsible for implementing the ICZM Policy. The ICZM Unit would need to be properly structured with appropriately trained staffs and with suitable equipment that is dedicated to the effective functioning/servicing of ICZM Policy delivery in Tobago. Details of this structure are proposed in Section 3.4. Legislation/ regulations may have to be enacted to enable the ICZM Unit to approve all current and future coastal development planning and proposals within a legally defined Coastal Management Area (CMA) for Tobago (see Section 2.3.3 below). 2.3.3 Workshop Discussion Point 3: Geographic Extent of an ICZM Policy Framework The coastal zone of Trinidad and Tobago (T&T), as defined in the Draft ICZM Policy Framework for T&T (ICZM Steering Committee, 2014), covers all areas of sea extending to the limit of the Exclusive Economic Zone (EEZ) and includes the shoreline and coastal lands, which are inland areas above the high water mark that influence the quality or composition of coastal waters, or are influenced in some way by their proximity to coastal waters. The Draft ICZM Policy Framework for T&T has divided the area into 4 separate “zones” as follows: a) Terrestrial (Figure 2.2) Zone T1- Immediate and direct impact area. This zone (T1) shall be the delineated on the seaward side as the line of low-water at mean low-water spring tides and on the landward side as the five meter contour. The 5 m contour represents the limit of immediate and direct impact of sea level rise and storm surges. Page 7 b) Terrestrial Zone T2- Area of influence. This zone (T2) shall be the area contained between the 5 m contour and the 90 m contour. This area and Zone T1 contains most of the urban, industrial and agricultural areas of the country and influences the marine and coastal areas through direct and indirect impacts. c) Sea (Figure 2.3) Zone S1 – Immediate and direct impact area (3 nautical miles) This zone (S1) shall be delineated on the landward side from the low-water at mean low-water spring tides and shall extend to a distance of three nautical miles offshore parallel with the mean high water mark, consistent with the outer limit defined for the coastal nearshore in the Water Pollution Rules, 2001. d) Sea Zone S2- Territorial Sea This zone (S2) shall extend outward from the three nautical mile seaward boundary of zone S1 to the outer limits of the territorial sea, not exceeding 12 nautical miles from the archipelagic baselines described in section 6 of the Archipelagic Waters and Exclusive Economic Zone Act, 1986. FIGURE 2.2 MAP SHOWING TERRESTRIAL BOUNDARIES OF COASTAL ZONE OF TRINIDAD AND TOBAGO (FROM IMA 2014) Page 8 FIGURE 2.3 MAP SHOWING SEA WARD BOUNDARY OF COASTAL ZONE FOR TRINIDAD AND TOBAGO (TAKEN FROM ICZM STEERING COMMITTEE (2014)) FIGURE 2.4: MAP SHOWING TERRESTRIAL BOUNDARIES OF COASTAL ZONE IN SOUTHWEST TOBAGO (TAKEN FROM ICZM STEERING COMMITTEE (2014)) Page 9 FIGURE 2.5 MAP SHOWING TERRESTRIAL BOUNDARIES OF COASTAL ZONE IN NORTHEAST TOBAGO (TAKEN FROM ICZM STEERING COMMITTEE (2014)) In a similar way to that outlined in Figure 2.2 to 2.5 for the whole of T&T, it is proposed that the THA consider taking forward the whole issue of coastal and marine management under the new proposed banner of “Integrated Coastal and Marine Spatial Planning” (ICMSP). This is an adaptation of Integrated Coastal Zone Management (ICZM) by creating a larger geographic remit that covers both a defined Coastal Management Area (CMA – or collectively Zones T1 and T2) as well as immediate impact marine space (Zone S1) plus marine space out to the T&T Exclusive Economic Zone (EEZ – or Zone S2). It is also a process that goes beyond the traditional ways of planning and managing activities on an individual basis. NB: the term ICMSP is proposed as a possible replacement term for “ICZM” in Tobago. This is a term used by the International Consultant for the purposes of this report and was raised for discussion at the Workshop scheduled for 26 May 2015. There is therefore a need to ensure that all coastal and marine issues are encapsulated within any future policy framework to be taken forward for Tobago. To this end, it is proposed that THA consider that any future work should have a broad policy framework remit. The international consultant proposes that this may be re-defined as ICMSP through with priority attention being given to activities within a defined CMA and more offshore (marine) issues following on at a later date. Considering both coastal and marine together is deemed important, though it is realised that to implement this broader area within policy may take more time to achieve and so, focusing on land based coastal issues should be the first priority (with marine issues at a later date possibly in conjunction with the Draft ICZM Policy Framework for Trinidad and Tobago (ICZM Steering Committee 2014). ICMSP is a recommended way that THA can achieve both its economic and social goals alongside its aspirations of sustainable and environmentally sensitive development (mirroring the approach set out clearly within the CEDP 2013-2017). ICMSP shall (if undertaken correctly) provide Tobago, Page 10 for the first time, a framework that facilitates integrated strategic and holistic planning in relation to all activities within its coastal and marine areas in order to: • Provide greater certainty about where and how future economic, social and national important infrastructural developments shall take place; • Avoid and resolve planning disputes, thus helping to “fast track” important decision making and thus helping economic development and diversification; • Help safeguard important marine biodiversity, community settlements and the Tobagonian culture and identity as an “island” nation. Potential benefits of ICMSP with regard to economic activity include: • Facilitating sector growth; • Optimizing the use of the sea; and • Reducing costs. These benefits arise through: • Strategic planning; • Conflict resolution; • Sustainable resource use; • Provision of development of space; • Promoting appropriate uses; • Supporting the environmental economy; • Improving stakeholder involvement; • Information efficiency; and • Regulatory efficiency. ICMSP helps also to examine the cumulative and in-combination impacts that many different industry sectors have on seas and coasts. It does this by presenting an overview of all human activities and developments in a defined “area”. This key discussion point was raised at the 26 May 2015 Workshop event with key Tobagonian stakeholders including the THA (see Appendix A). It was raised that ICMSP could (for Tobago) provide the framework that facilitates ICZM (for a defined CMA such as Zones T1 and T2 as defined by the National T&T ICZM Policy Framework (ICZM Steering Committee, 2014) whilst also setting strategic and holistic planning rules for all activities within marine areas. This process thereby helps to ensure that: • Future coastal and marine developments (and uses) in Tobago are considered across existing policies and regimes. • There is connectivity between the various authorities responsible for individual coastal and marine activities. It was agreed by the majority of stakeholders that the concept of ICMSP is relevant for the THA to consider when preparing the policy framework for Tobago and that the CMA “zones” identified Page 11 have relevance to the situation in Tobago using the output of the Coastal Vulnerability index work completed by Halcrow in 2014 (IDB 2014b, c). 2.3.4 Workshop Discussion Point 4: Sustainable Development Planning Within the PSIP, the sum of $0.5 million was utilised in 2013 for the commencement of the development of the Tobago Spatial Development Strategy (TSDS) by the THA. Conceptually, the TSDS seeks to further support the land development policy issues and prescriptions as outlined in the National Spatial Development Strategy (NSDS) which was completed by the Ministry of Planning and Sustainable Development, after extensive consultations with all stakeholders. While the NSDS provides the overarching framework that will spatially represent the socio-cultural, economic and environmental development priorities for both T&T, the strategies and policies of the TSDS, aim to articulate the Assembly’s vision for sustainable development for Tobago. The TSDS certainly should be the pivotal framework document to help take forward ICMSP on the island. The environment as an economic asset is a new concept in economic accounting within THA. It is also a key component of the development strategy for Tobago as outlined in the CEDP 2013-2017 and is closely aligned to the areas of Branding Tobago as Clean, Green, Safe and Serene, and to Environmental Sustainability. Apart from the sea defence work conducted at Petit Trou in 2013, a number of other coastal related initiatives continued to be rolled out including the following: • Improvements to Reefs at Buccoo and Speyside; • Ecological Monitoring Reef Check; • Oil Spill Contingency and Pollution Management; • Watershed Management Pilot Project. To this end, and to help deliver the requirements of the PSIP, the following tasks need to be completed: • Comprehensive assessment of available baseline marine related data to support an integrated planning process: • Use participatory processes and techniques to set clear ICMSP objectives and associated core principles that are accepted by all national and local stakeholders: • Agreement on setting a planning and management framework for all Tobagonian coastal and marine waters: and • Establish workable procedures and standards to help support the future implementation of the ICMSP (to include institutional arrangements, clear advice for marine regulation enforcement, future research programmes and marine data management frameworks etc). Figure 2.6 outlines an approach which may be embraced by THA, to enable lessons to be learnt and new information to be gathered over time. Page 12 FIGURE 2.6: ICMSP PROCEDURAL “PHASES” RECOMMENDED FOR TOBAGO To ensure successful completion of Stages 1 and 2 (Figure 2.6), the following “rules” need to be embraced by THA: • Raise Awareness – of the value, vulnerability and importance of coastal and marine resources; • Co-operation – amongst different sectors to achieve common objectives; • Coordination – to develop policies, standards and arrangements to measure performance; • Integration – implement and monitor policies to ensure objectives are being met. Each of these rules needs to be included within any future ICMSP Policy Framework for Tobago to ensure that any proposed local actions are both practical today and sustainable for the future. International donor funds (e.g. IDB) now need to be sought to help achieve this and to lead into delivery of Stages 3 and 4. Page 13 SECTION 3 – CORE ELEMENTS OF THE ICMSP POLICY FRAMEWORK 3.1 Recommended ICMSP Core Elements This consultancy has embarked on some preliminary consultation with THA to determine a workable approach (see Workshop findings in Appendix A). The following “Core Elements” have been established which should now be considered within the design of any future ICMSP related Policy Framework for Tobago: a) Need to consider both coastal and marine issues as opposed to spending effort on just one of these “areas” (Core Element 1 – “Spatial Planning”); b) Future implementation of any policy in these areas will only work if the local community are engaged and contributing to the policy delivery and action plan (Core Element 2 – “Engagement and Education”). c) Consistency at a national level is needed to reflect and complement the ICZM policy objectives set nationally (ICZM Steering Committee, 2014) (Core Element 3 – “Integration and Coordination”). 3.2 Translating “Core Elements” into a Policy Framework for ICMSP 3.2.1 Stepped Tasks to achieve the ICMSP Policy Framework In order to implement the above Core Elements, the following key tasks are recommended to be followed by THA when creating a new ICMSP policy document. a) Task 1: Issue Identification and Vision Setting: this has already been undertaken as part of this and previous consultancies as outlined in Section 2 of this report. This has not been set within the National T&T ICZM Policy Framework and so may prove to be a useful exercise for Tobago (THA) to agree upon. Table 3.1 outlines a possible draft Vision Statement for initial consultation. a) Task 2: Objective and Principle Setting: this has partly been undertaken as part of the consultancy though would benefit from broader consultation with local island and national stakeholders to gather a clear consensus (i.e.: extra work required. Objectives are addressed in Section 3.2.2. The most appropriate draft guiding principles, are presented as follows: Principle 1: Sustainability of the Coastal Management Area, to be achieved through effective coastal zone management, heightened environmental awareness, and community stewardship. Principle 2: Application of the Precautionary Principle in the management of the coast and marine areas. The precautionary principle holds that, faced with the threat of serious or irreversible damage, lack of scientific certainty should not constitute a reason for not taking action to protect coastal resources and ecosystems. Principle 3: Good Governance and Enforcement, reflecting transparency in management (governance), participation (community governance) and regulatory enforcement to avoid user conflicts and to improve the understanding of the value of Tobago’s coast. Principle 4: Equity as manifested by transparency and fairness in decision making and provision of access to island coastal and marine resources. b) Task 3: Options Appraisal: it is recommended that a Working Group be convened on this issue. This consultant is recommending that THA should undertake research and evaluation of these options. c) Task 4: Public Consultation: this has partly been undertaken though broader consultation with local island and national stakeholders is recommended to help gather a clear consensus (i.e.: extra work required); d) Task 5: Analysis of Policy Options: this has not been undertaken due to time constraints on the consultancy. The proposed policy directives set out below need to be more fully analysed (i.e.: extra work required). e) Task 6: Consultation on Findings; this has briefly been raised at the 26 May 2015 Workshop event. The proposed policy directives set out needs to be more fully consulted upon (i.e.: extra work required). f) Task 7: Making Policy Official: this stage cannot be completed until stages c, d and e have been completed. At a practical level the ICMSP Policy Framework (Volume 1 – see Appendix C) seeks to set the criteria and goals for the Coastal and Marine Plans (Volumes 2 and 3 respectively – see Appendix C) that address key issues and challenges faced by Tobago in its future planning and development of the coastal and marine space, namely: A lack of centralised coastal and marine planning; Fragmented regulatory powers for authority tasked with managing activities within the coastal and marine environment; Technical knowledge deficiencies and the need for ICMSP related training; Coastal ownership and the need to improve public access to the shoreline; Need for the management of multiple conflicting activities. 3.2.2 Setting Draft Strategic Objectives A set of draft ICMSP Policy framework strategic objectives for Tobago, are presented below. These are designed for future review and consultation. Two draft strategic objectives have been formulated that take into consideration the “Core Elements” of an ICZM Policy as agreed by stakeholders and presented in Section 3.1: Strategic Objective 1 “Sustainable use of the Coastal Management Area (CMA) and offshore by implementing policies which maintain and, where possible, enhance environmental quality and safety standards while enabling economic development” (SUSTAINABILITY): Strategic Objective 2 “An effective legal, institutional and administrative structure in line with best international practices to implement integrated coastal and marine spatial planning” (EFFECTIVE FRAMEWORK FOR IMPLEMENTATION). These two Strategic Objectives have been designed to complement and reflect the current CEDP 2013-2017 policy document which is of relevance to the THAs strategic vision for the island. This therefore includes aspirations for the economy and society whilst providing guidelines for Tobago to offer its citizens even better livelihood security standards as a result of increased employment in a safe and secure living environment. Together they provide the strategic objectives for the delivery of ICMSP in Tobago. Page 15 STRATEGIC OBJECTIVE 1 – SUSTAINABILITY “Sustainable use of the Coastal Management Area (CMA) and offshore by implementing policies which maintain and, where possible, enhance environmental quality and safety standards while enabling economic development” This strategic objective is set to ensure the future sustainable use of coastal resources in Tobago that fall within the defined Coastal Management Area (CMA) and offshore (Zones T1 and T2 on land and Zone S1 offshore). It is designed to embrace a “science based” approach to taking forward coastal risk management planning in a similar way to that being adapted by the CZMU in Barbados. This is an approach which seeks to benefit the present island population whilst at the same time maintaining the potential to meet the needs and aspirations of future generations. An essential component is to ensure that environmental issues are viewed alongside social and economic needs. Achieving sustainability is no easy task, however, a number of techniques are available to guide those charged with its implementation: The precautionary principle which was advocated and supported in the Rio Declaration of the 1992 Earth Summit; The polluter pays principle, an incentive to reduce environmental impacts; and The idea of environmental limits, whereby the environment's capacity to absorb impacts are not viewed as infinite. Specific draft ICMSP policy “directives” that need to be implemented to achieve the overall objective of sustainability for the Tobagonian coastal environment are set out in Table 4.1. STRATEGIC OBJECTIVE 2 – EFFECTIVE FRAMEWORK FOR IMPLEMENTATION “An effective legal, institutional and administrative structure in line with best international practices to implement ICMSP” There are two main components to successful coastal management programmes. The first is the design of a “blueprint” for future actions (to be developed for Tobago). The second is an effective institutional framework to enable the effective implementation of coastal risk management in Tobago (i.e.: appropriate capacity building and training). The GoTT lies at the centre of this framework with a number of departments and Ministries (including THA) having responsibilities to support or to deliver the services, advice and information necessary for successful ICMSP. In addition, the local representatives/members have responsibility to ensure that its citizens comply with any recommendations that the ICMSP Policy proposes. Specific draft ICMSP policy “directives” that need to be implemented to achieve the overall objective of sustainability for Tobago’s coastal and marine environment are set out in Table 3.1 which also outlines the relationship between the draft Vision, Objectives and Coastal Policies for Tobago. From a national perspective, a Draft ICZM Policy for T&T already exists (ICZM Steering Committee, 2014). This policy is designed to help facilitate an integrated approach to coastal zone management aimed at maintaining and where necessary, enhancing, the functional integrity of the coastal resource systems while enabling sustainable economic development through rational decision-making and planning. In pursuing this policy, it shall be the responsibility of all government agencies, including Municipal Corporations and other State entities, to instil public awareness about the dangers of the degradation of environmental conditions in the country's coastal zones and encourage active Page 16 participation of the people in all undertakings to conserve and enhance the country's coastal zones. Management and development decisions will be taken coherently across sectors The following 12 Policy Objectives are taken from Section 6 of the 2014 Draft ICZM Policy Framework for T&T (see also Table 3.2). To promote a dedicated, cooperative, coordinated and integrated approach to coastal zone planning and management To design and manage developments in the coastal zone to be in harmony with the aesthetic, environmental, and cultural attributes of the islands To alleviate poverty in the coastal zone through pro-active development initiatives that generate sustainable livelihood options To plan and manage development in the coastal zone so as to avoid increasing the incidence and severity of natural hazards and to avoid exposure of people, property and economic activities to significant risk from dynamic coastal process and impacts from climate change (e.g. coastal flooding); To conduct planning and management activities in the coastal zone in a manner that promotes learning through continuous research, monitoring, review and adaptation To ensure continual meaningful public participation and to promote partnerships between the State (national and local government), the private sector and civil society in order to foster co-responsibility in coastal management To promote public awareness and build capacity amongst coastal zone managers and other stakeholders to ensure more effective coastal zone planning and management; To maintain the diversity, health and productivity of coastal and marine processes and ecosystems for the benefit of current and future generations To rehabilitate damaged or degraded coastal ecosystems and habitats, and establish and effectively manage a system of coastal zone protected areas To promote and enhance pollution control and waste management activities to ensure that they have minimal adverse impact on human health, and on coastal ecosystems and their ability to support beneficial human uses; Fulfil international and trans-boundary responsibilities as it relates to coastal zone management. 3.2.3 “Policy Directives” for the ICMSP Policy Framework Whilst the National ICZM Policy Objectives for T&T cover all aspects of a successful ICZM Policy, there is the opportunity to streamline the number of policy objectives and their wordings used and make this slightly separate (yet totally complementary) for the Tobago situation. To this end, a series of nine (9) “Policy Directives” are proposed specifically for Tobago to help deliver the two proposed Policy Objectives set. These 9 Policy Directives can be interpreted as the “strategies” that are put forward in the National ICZM Policy Framework (ICZM Steering Committee, 2014). Page 17 They are designed to remain strategic in nature, yet relevant to the specific issues of Tobago. It is proposed that each Policy Directive will contain a clear statement of intent and a series of measurable targets to help monitor ICMSP progress over agreed timescales. (NB: for each Policy Directive, human capacity development and training will be required to ensure long term sustainability). Policy Directive 1 - Standards and Procedures; Policy Directive 2 – Improving Economic Potential (Transport and Commerce); Policy Directive 3 – Conservation of Heritage, Food Security and Biodiversity; Policy Directive 4 – Working with Dynamic Coasts and Ecosystems; Policy Directive 5 – Climate and Disaster Resilient Livelihoods; Policy Directive 6 – Focus, Integration and Co-ordination; Policy Directive 7 – Community Participation and Co-management; Policy Directive 8 – Knowledge and Understanding (Scientific Research); Policy Directive 9 – Financial Sustainability. Each of the above Policy Directives will need to be elaborated on in more detail within the Draft ICZM Policy Framework. For this consultancy, Table 3.1 sets out the draft Vision, Policy Objectives and the above ICMSP Policy Directives for Tobago. Initial discussion of these at the 26 May Workshop event generated initial support with regards to their over-arching headings. The table also sets out a series of draft “targets” for each Policy Directive that maybe developed further (through consultation with key stakeholders) to define what is expected out of any future ICMSP Policy for Tobago. Table 3.2 is prepared to set out a cross comparison of the 12 ICZM Policy Objectives defined for T&T and the 9 Policy Directives drafted for possible adoption in Tobago. Table 3.3 outlines the shortlisted recommendations and actions as defined with the Technical Cooperation documents produced for Projects TT-1034 and TT-T1033 which has produced 26 Recommendations from 8 separate reports reviewed (see Appendix B). The top ten recommendations or “actions” that Tobagonian stakeholders feel require focused attention are listed below (NB: numbering sequence is taken from the Reports reviewed in Appendix B): 1. A1) Pursue the formal preparation and acceptance of a National Building Code (TTA1); 2. A3) Mangrove Restoration in Tobago (TTA18); 3. A4) Coral Reef Restoration and Protection in Tobago (TTA19); 4. B2) Effective Institutional Arrangements for ICZM Planning and CC Adaptation; 5. B3) Establish a Policy Framework for ICZM and CC Adaptation; 6. C3) Introduce a Variety of Educational “tools” to convey ICZM outcomes; 7. D1) Initiate New Data Collection programmes; Page 18 8. E1 and E2 (combined) - Build the case for natural coastal protection AND bring coastal ecosystems into mainstream decision making processes; 9. E3) Incorporate proven management interventions; 10. E5) Formalize Monitoring and Evaluation procedures. The above recommendations (selected by the Workshop stakeholders) have a strong policy related structure to them and fit neatly with the Strategic Objectives set out within the THAs CEDP (20132017). Page 19 TABLE 3.1: DRAFT VISION, POLICY OBJECTIVES AND POLICY DIRECTIVES FOR TOBAGO DRAFT VISION FOR TOBAGO “A coastal and marine environment that is resilient to future natural and man induced change, that exploits the uniqueness of Tobago, which is safe, valued and appreciated as a place to live, work and relax; a place where development and use of resources will be sustainable, and where the natural environment is protected and enhanced to keep its essential place in Tobagonian heritage.” DRAFT POLICY OBJECTIVES DRAFT ICMSP POLICY DIRECTIVES FOR TOBAGO “Sustainable use of the Coastal Management Area (CMA) and offshore by implementing policies which maintain and, where possible, enhance environmental quality and safety standards while enabling economic development” Policy Directive 1: Standards and Procedures - Apply standards and procedures to avoid degradation of the environment and to reduce the risk of long term or irreversible effects upon it. (SUSTAINABILITY) DRAFT TARGETS 1A) No inappropriate and/or unsustainable development in the defined CMA; 1B) Establish workable and implementable standards and procedures are established to ensure ICMSP principles are adopted by decision makers and society in general Improve enforcement of existing legislation that addresses the coastal and marine environment through increased inspection and stronger regulatory management processes. Policy Directive 2: Improving Economic Potential (Transport and Commerce) - To seek improvements to transport, infrastructure and commerce in Tobago whilst ensuring compatibility between economic activity and environmental interests." 2A) Maintain the islands road and sea transport networks to ensure livelihood security is protected and is designed in a way that future proofs the transport network through compliance to the ICMSP process Policy Directive 3: Conservation of Heritage, Food Security and Biodiversity - To conserve, enhance and where possible restore character and quality of the coastal and marine environment. 3A) All future development applications to conform to ICMSP policies and procedures. 2B) Provide alternative materials (to beach sand) for road maintenance or construction use 3B) All existing and new regulation and enforcement procedures (set by THA or ICZM Unit) to support protection and enhancement of environmental quality in Tobagos’ CMA. 3C) No inappropriate and/or unsustainable development in the CMA. 3D) Ensure that management decisions are better informed by new and regularly updated scientific information. Policy Directive 4: Working with Dynamic Coasts and Ecosystems - To allow the coast to function as naturally as possible and to ensure that the dynamic nature of the coastal and marine environment is recognised in management decisions. 4A) All future development applications to conform to ICMSP policies and procedures. 4B) All existing and new regulation and enforcement procedures (set by THA or ICZM Unit) to support protection and enhancement of environmental quality in Tobago’s CMA. 4C) No inappropriate and/or unsustainable development in the CMA. 4D) Ensure that management decisions are better informed by new and regularly updated scientific information Policy Directive 5: Climate and Disaster Resilient Livelihoods - To ensure all livelihood activities are resilient to climate and disaster risks. 5A) Conformity to ICMSP plans, policies and procedures, including that all reclamation & dredging is in conformity with relevant Plans. 5B) Improved enforcement of existing legislation and regulations to support protection and enhancement of environmental quality. 5C) No approval to inappropriate and/or unsustainable development in the CMA and offshore areas. 5D) Ensure that climate and disaster planning decisions are better informed by new and regularly updated scientific information “An effective legal, institutional and administrative structure in line with best international practices to implement integrated coastal and marine spatial planning” Policy Directive 6: Focus, Integration and Coordination - To provide a focus for ICMSP in Tobago and to provide effective links with other parts of the public and private sector to create more consistency and respond more effectively to management issues. 6A) Improved governance coordination is accepted by THA and key bodies on environmental matters (EFFECTIVE FRAMEWORK FOR IMPLEMENTATION) Policy Directive 7: Community Participation and Comanagement - To raise awareness and actively encourage community participation in all stages of the ICMSP process. 7A) Ensure gender and disability issues are considered on all planning decisions made by THA (ICZM Unit) Updates to the CEDP (2013-2017) take into consideration environmental management and sustainable development of the coast 7B) ICZM Unit prepares specific coastal actions for Tobago by beginning of 2016. 7C) Introduce specific environmental management, climate change and disaster risk “topics” into the school curriculum for Tobagonian schools Policy Directive 8: Knowledge and Understanding (Research) - To promote research, education, training and participation across all governmental levels on matters linked to the coast and marine environment. The collection and management of data related to coastal processes and ecosystems, therefore, is a critical aspect of this Coastal Zone Management Policy. 8A). To acquire, through appropriate research and data collection, a full understanding of the natural processes at work in the coastal zone, including parameters such as beach and sediment dynamics; sand transport processes and sources; wave, current and wind circulation patterns; and changes in sea level. 8B). To ensure that there is accurate and up-to-date, science-based information on the state of all ecosystems in the coastal zone of Tobago as well as information on shoreline bathymetry and beach profiles. 8C). To contribute to the effective management and sustainable use of coastal ecosystems, while ensuring that they can continue to perform ecosystem functions that are critical for sustaining livelihoods and protecting the coastal zone. 8D). To facilitate optimal conditions for ecosystem restoration, rehabilitation and recovery including the monitoring and management of nearshore water quality. 8E). To ensure consistency with the policies guiding the management of Marine Protected Areas. Policy Directive 9: Financial Sustainability - To secure adequate financial resources to sustain successful ICMSP in Tobago and to use these resources effectively. 9A) Conformity to ICMSP policies and procedures for all new future development 9B) Adopt a range of financing instruments to help fund future interventions. TABLE 3.2 IS PREPARED TO SHOW THE CROSS COMPARISON BETWEEN THE EXISTING DRAFT ICZM POLICY OBJECTIVES SET OUT WITHIN THE T&T POLICY FRAMEWORK (IMA 2014) WITH THE NEW “POLICY DIRECTIVES” THAT ARE NOW PROPOSED TO BE ADOPTED WITH SPECIFIC REFERENCE TO TOBAGO. IT DEMONSTRATES THAT A STREAMLINING OF POLICY TITLES (AS POLICY DIRECTIVES) IS POSSIBLE FOR TOBAGO TO ENABLE IT TO DEFINE ITS OWN SPECIFIC IDENTITY YET BE COMPLEMENTARY TO THE NATIONAL ICZM POLICY FRAMEWORK (ICZM STEERING COMMITTEE, 2014). Page 21 TABLE 3.2 CROSS COMPARISON OF THE 12 ICZM POLICY OBJECTIVES DEFINED FOR T&T AND THE 9 POLICY DIRECTIVES DRAFTED FOR POSSIBLE ADOPTION IN TOBAGO 2014 Draft ICZM Policy Framework for T&T 1) To promote a dedicated, cooperative, coordinated and integrated approach to coastal zone planning and management 2) To design and manage developments in the coastal zone to be in harmony with the aesthetic, environmental, and cultural attributes of the islands 3) To alleviate poverty in the coastal zone through proactive development initiatives that generate sustainable livelihood options 4) To plan and manage development in the coastal zone so as to avoid increasing the incidence and severity of natural hazards and to avoid exposure of people, property and economic activities to significant risk from dynamic coastal process and impacts from climate change (e.g. coastal flooding); 5) To conduct planning and management activities in the coastal zone in a manner that promotes learning through continuous research, monitoring, Policy Directive 1: Standards and Procedures Policy Directive 2: : Improving Economic Potential (Transport and Commerce) Policy Directive 3: Conservation of Heritage, Food Security and Biodiversity Policy Directive 4: Working with Dynamic Coasts and Ecosystems Policy Directive 5: Climate and Disaster Resilient Livelihoods Policy Directive 6 : Focus, Integration and Co-ordination Policy Directive 7 : Community Participation and Comanagement Policy Directive 8: Knowledge and Understanding Policy Directive 9: Financial Sustainability Page 22 review and adaptation 6) To ensure continual meaningful public participation and to promote partnerships between the State (national and local government), the private sector and civil society in order to foster coresponsibility in coastal management 7) To promote public awareness and build capacity amongst coastal zone managers and other stakeholders to ensure more effective coastal zone planning and management; 8) To maintain the diversity, health and productivity of coastal and marine processes and ecosystems for the benefit of current and future generations 9) To rehabilitate damaged or degraded coastal ecosystems and habitats, and establish and effectively manage a system of coastal zone protected areas 10) To promote and enhance pollution control and waste management activities to ensure that they have minimal adverse impact on human health, and on coastal ecosystems and their ability to support beneficial human uses; 11) Fulfil international and trans-boundary responsibilities as it relates Page 23 to coastal zone management. THE FOLLOWING TABLE 3.3 IS DESIGNED TO ADOPT THE NEWLY PROPOSED POLICY DIRECTIVES HIGHLIGHTED IN TABLE 3.2 ABOVE AND CROSS CHECK ALL THE “RECOMMENDATIONS” FROM THE TECHNICAL ASSISTANCE PROJECTS HIGHLIGHTED IN SECTION 2 OF THIS REPORT. THE TABLE DEMONSTRATED SHOWS THERE IS A GOOD FIT AND SPREAD OF RECOMMENDATIONS AGAINST THE DRAFT 9 POLICY DIRECTIVES PROPOSED. Page 24 TABLE 3.3: ASSESSMENT OF TECHNICAL COOPERATION PROJECT RECOMMENDATIONS AGAINST PROPOSED NEW ICMSP POLICY DIRECTIVES Policy Directive 1: Standards and Procedures Policy Directive 2: Improving Economic Potential (Transport and Commerce) Policy Directive 3: Conservation of Heritage, Food Security and Biodiversity Policy Directive 4 – Working with Dynamic Coasts and Ecosystems Policy Directive 5: Climate and Disaster Resilient Livelihoods Policy Directive 6 – Focus, Integration and Coordination Policy Directive 7 – Community Participation and Comanagement Policy Directive 8: Knowledge and Understanding Policy Directive 9: Financial Sustainability A1) Pursue the formal preparation and acceptance of a National Building Code (TTA1) A3) Mangrove Restoration in Tobago (TTA18) A4) Coral Reef Restoration and Protection in Tobago (TTA19) B2) Effective Institutional Arrangements for ICZM Planning and CC Adaptation B3) Establish a Policy Framework for ICZM and CC Adaptation C3) Introduce a Variety of Educational “tools” to convey ICZM outcomes D1) Initiate New Data Collection programmes E1) Build the case for natural coastal protection AND E2) Bring coastal ecosystems into mainstream decision making processes E3) Incorporate proven management interventions E5) Formalise Monitoring and Evaluation Procedures Page 25 3.3 Recommended Supporting Guidance 3.3.1 Operations and Training Manual (Staff Development) It is recommended that consideration be given (for Tobago and at a national level) towards producing a clear and transparent draft Operations Manual for the effective implementation of ICMSPC in Trinidad and Tobago. This needs to set out the process for mainstreaming the principles and Policy Directives into current working practices. The work on Mainstreaming Climate Change has set out a clear path for this approach which can be elaborated upon in more detail to address coastal risk management in more detail (IDB, 2014 f). The staff training requirements associated with this can also be more clearly defined. At this juncture, it is recommended that individual packages of institutional strengthening needs are prepared for key stakeholder sectors and entities in Tobago (including planning and sustainable development, housing, and environment, public utilities, finance; social development, local government and community development, information and education; agriculture; health; energy; public utilities; telecommunications; and works and drainage etc). Based on the above and using the guidelines for proposals outlined in the GORTT’s Public Sector Transformation Program (PSTP) financed by the Inter-American Development Bank, a project proposal for institutional strengthening of the national ICZM approach is needed for implementation. The proposal should include deliverables, responsible parties, budget; and a monitoring and evaluation system to measure the results of implementation. 3.3.2 Coastal Research Plan A formal “science based” research plan should be formalised to take forward a risk based approach to ICZM delivery. The Research Plan should not be defined as a “wish list”, but should be aligned with the key recommendations for additional work as set out in the project reports (summarised within the actions set out in Appendix B). The indicative research tasks that need to be included within such a research plan (for Tobago) are set out below for consideration: The coastal area of Tobago should be remapped to capture the changes due to beach erosion, reclamation of lands, forest cover and various coastal processes over the years. The remapping should include all valuable ecosystems and other natural assets in the coastal zone, with an overlay of economic and social activities. Establish programmes for monitoring coastal ecosystems, the impacts of extreme events, the effects of human activities as well as all eco- and hard engineering solutions implemented for shoreline stabilisation. Develop a phased programme to progressively study, monitor and compile a database on the natural dynamics (wave, currents, water circulation, sea level rise, wind etc.) at work along Tobago’s coasts. This should be based on the work of Halcrow (IDB, 2014b) plus other studied categorisation of coastal areas based on exposure, vulnerability and associated risks, including risks from natural processes (sea level rise, storm surge etc.) as well as human-induced risks (beach sand mining, quarrying, pollution etc). Conduct a study of sediment budgets and transport that are the sources of sand on beaches as well as offshore sand sources, and analyse their relationship to changes in beach profiles. Map showing the bathymetry of the shorelines off Tobago. Develop and implement a system to consistently monitor the impacts of extreme events such as hurricanes, storm surge, and prolonged sea swells, thereby identifying the most vulnerable areas. The information gathered should be used to categorise coastal areas in terms of their vulnerability and inform the types of strategies and coastal defences needed to protect these areas. Establish a mechanism for involving local communities and interest groups in monitoring coastal ecosystems, including provision for training in ecosystem monitoring and management. Facilitate access to the information gathered from the foregoing activities, ensure the conversion of the data into information that can be used to manage the ecosystems, and provide coastal science education to CZM personnel in order to make optimal use of the information for decision making for the orderly and sustainable use and development of the coast. Develop and implement strategies to identify and manage or eradicate invasive species such as the lion fish (Pterois spp.). Implement a system for routinely monitoring coastal water quality, including inputs of pollutants from both marine and land-based sources. 3.3.2 Coastal Development Guidance With specific reference to Policy Directive 1 (Standards and Procedures), it is recommended that guidance is prepared in the form of an island specific Coastal Development Guideline, an Environmental Policy Guidance (EPG) Manual etc), a new national Planning Manual (see below) and “climate proofing” updates to existing Building and Roads Codes (plus adoption of a new building standard to marine structures). These documents (when produced) need to be incorporated into existing or revised legislation which may (for example) clearly specify that inappropriate development should not be permitted in the CMA if it does not conform to the standards and guidelines on land use, physical development, and environmental management contained within them. It is therefore recommended that effort is made to produce a bespoke set of guidelines, rules and policies for the management of development within the CMA. In Tobago, this means both developments that currently exist or are planned on the landward side of the coast. The guidance will enable regulators and government to ensure that new coastal developments are designed in an appropriate sustainable manner and that they are consistent with policies, laws and regulations. It will help to reduce the possibility of new developments having adverse effects on the coastal environment and other users of the coast and marine area. It also will provide consistency and transparency for decision makers and enables them to support their decisions with auditable evidence (assuming a monitoring system is established for the ICMSP process being recommended for Tobago). The guidelines will need to address the current and future different coastal characteristics found (or to be found – such as piloting renewable energy from ocean currents or wind energy etc) around Tobago (see Figure 3.1) and will consider the setting of appropriate “rules” or “standards” for coastal development within the CMA boundaries. It will also provide technical and practical advisory guidance on how to protect access to and along the coast and how to provide sustainable protection for existing developments in areas that may be at risk from change at the coast caused by sea level rise and climate change. It also needs to consider development seaward of the coast and to help identify a final line of reclamation limit beyond which reclamation from the existing shoreline should not take place. Page 27 FIGURE 3.1: PROPOSED COASTAL BEHAVIOUR UNITS FOR TOBAGO (PILOT SW COASTAL AREA ONLY). The outcome of the guideline will be to establish a set of development controls for the CMA. It also needs to be written in partnership with all Departments (under the management of the newly proposed “ICZM Unit”) as well as the specific responsibilities being placed on developers. Future policies within the CMA need to help advice on the following: Setback – the distance behind (landward) the current coastline before any new development should occur. This must reflect the CVI findings to take into account sea level rise and storm surge inundation risk (IDB, 2014b). Reclamation line and limits – defining where new development seaward of the existing coastline should or should not take place (possibly as a consequence of THA pursing a new offshore renewable energy policy etc). The Guidance shall also provide clear advice on how to complete a climate change risk assessment as part of existing environmental regulations or EIA procedures. This should include identification and modelling of water flow paths (for example). Development that could be considered vulnerable to flooding because of the nature Page 28 of the users (e.g. young people, older people, people with illnesses / injuries) or because the services they provide are considered vital to health and safety (e.g. fire service, police facilities, etc.) should not be located in areas at risk (IDB, 2014b). 3.3.3 Environmental Policy Guidance (EPG) Manual This EPG manual shall take forward the already produced Ecosystem Based Adaptation Guide for Tobago (IDB, 2014e and f) and seek to provide wide-ranging guidance on how environmental best practice can be included into the design of new development both within the CMA and further offshore (marine planning area). The guidance shall provide advice not just on environmental (or ecosystem based adaptation factors EbA), but others such as safety/security, resources, heritage, hydrodynamics and other physical constraints, that must be considered for development to be balanced, sustainable and thus in the long term interests of present and future generations of Tobagonians. Advice on regulatory actions, mitigation, data collection and environmental monitoring will also be provided. The outcome is a manual that assists strengthening links between environmental mitigation (including EbA) and sustainable planning decision making. The EPG manual shall also present general targets that need to be applied to all types of development in the coastal and marine area and outline clear indicator to help monitor performance. Once the above two guidance documents are created, it will be very important to raise the awareness of these potential developers, regulators and other people to allow them to understand the rationale behind the guidance and to buy in to the approach. Education, participation and communication will be key future activities that THA (and GoTT) shall need to undertake following completion of any future ICZM Plan project. Figure 3.2 is designed to help conceptualise the cross sectional ICMSP proposed planning framework and what plan or guidance report applies to which part of Tobago. Page 29 Tobago reef edge Tobago EEZ limits? Marine Zone Low Water Mark Near-shore Zone “Coastline” as mapped by Lands and Survey Intertidal Zone CMA inland boundary (+5m to +90m contour) Terrestrial Zone Coastal and Marine Management Area Integrated Coastal and Marine Spatial Planning Framework Limits (ICMSP) Marine Area Coastal Management Area (CMA) Volume 3 - Integrated Plan for areas beyond the Coastal Management Area (Marine Spatial Plan). Volume 2 – Integrated Plan for the Coastal Management Area (CMA) Environmental Policy Guidance (EPG) (including the Tobago EbA Guide) Coastal Development Guidance CEDP Tobago Land Use Policy (20132017) FIGURE 3.2: GEOGRAPHIC DEFINITIONS OF THE VARIOUS ICMSP PLANS, ZONES AND GUIDANCE REPORTS. Page 30 3.4 Structure of the proposed ICZM Unit Appendix D presents a range of possible institutional arrangements that have been adopted around the world in order to set up ICZM. The Appendix excludes the type of competencies that would be needed within such a unit. Using the Barbados CZMU “model” as an example, it demonstrates the likely staffing needs for such a unit. The CZMU comprises three technical sections, namely the Coastal Resource Management section, the Engineering section and the Marine Research section. Within in each of these sections there are dynamic individuals of high calibre who undertake the various assigned tasks with a sense of responsibility and diligence. This includes a range of trained experts, including coastal engineers, physical scientists (including coastal geologists), marine ecologist, coastal planners, regulators and disaster/ risk managers etc. The qualifications for the technical staff are listed below: Coastal Resource Management Section Position Indicative Qualifications Coastal Planner B. A. Geography; M. Sc. City and Regional Planning Legal Advisor Law Degree Environmental Economist B.A. Economics. Natural Resource Management; M. Phil Biology Research Officers B. Sc. Marine Biology; Dip. Natural Resource Management; M. Phil Biology Outreach Community Advisor B.Ed Geography or Community Development; Community experience advisors. Engineering Section Position Indicative Qualifications Coastal Engineers B. Sc. Civil Engineering; M. Sc. Coastal Engineering Hydrographer Advanced Diploma Hydrographic Surveying Draughtsman and Chainsmen Associate Degree; Building and Civil Engineering Marine Research Section Position Indicative Qualifications Marine Biologists B. Sc. Marine Biology; M. Phil Water Quality Analyst B. Sc. Marine Biology; M. Sc. Marine Environmental Protection Field Inspector AGRRA Certification; First Aid Certification; Small Boat & Engine Maintenance; Maritime Law; Coxwain Certification; Radio Communications Certification Page 31 The structure of the proposed ICZM Unit will require a detailed assessment in institutions which has not been carried out for this consultancy. The recommendation made in Section 3.1 for the creation of individual packages of institutional strengthening needs is seen as a priority action from this point onwards. It is likely that the structure of the ICZM Unit shall then be more easily deduced. Appendix D is, however, included to help outline the possible options based on some interesting global examples being adopted. Page 32 SECTION 4: CONCLUSION The following represents the key findings, observations and outcomes from this rapid consultancy exercise including the recent Workshop event held on 26 May 2015. The generic “Core Elements” of any future Policy Framework should consider and include the following aspects: Core Element 1 – Spatial Planning - Need to consider both coastal and marine issues together as opposed to spending effort on just one of these areas; Core Element 2 – Engagement and Education - Future implementation of any policy in these areas will only work if the local communities are engaged and contributing to the policy delivery and action plan; Core Element 3 – Integration and Coordination - Consistency at a national level is needed to reflect and complement the ICZM policy objectives set nationally (ICZM Steering Committee, 2014 2014). A review of all Technical Cooperation documents produced for Projects TT-1034 and TT-T1033 has produced 26 Recommendations from 8 separate reports reviewed (see Appendix B). These recommendations have a strong policy related structure to them and fit neatly with the Strategic Objectives set out within the THAs CEDP (2013-2017). The top ten recommendations or “actions” that Tobagonian stakeholders feel require focused attention are listed below with those Core Elements of relevance (listed above) included for reference. (NB: numbering sequence to the left is taken from the Reports reviewed in Appendix B): 1. A1) Pursue the formal preparation and acceptance of a National Building Code (TTA1); (Core Element 3) 2. A3) Mangrove Restoration in Tobago (TTA18); (Core Element 1,2,3) 3. A4) Coral Reef Restoration and Protection in Tobago (TTA19); (Core Element 1,2,3) 4. B2) Effective Institutional Arrangements for ICZM Planning and CC Adaptation; (Core Element 2,3) 5. B3) Establish a Policy Framework for ICZM and CC Adaptation; (Core Element 1,2,3) 6. C3) Introduce a Variety of Educational “tools” to convey ICZM outcomes; (Core Element 2) 7. D1) Initiate New Data Collection programmes; (Core Element 1,2,3) 8. E1 and E2 (combined) - Build the case for natural coastal protection AND Bring coastal ecosystems into mainstream decision making processes; (Core Element 1,2,3) 9. E3) Incorporate proven management interventions; (Core Element 3) 10. E5) Formalise Monitoring and Evaluation procedures. (Core Element 3) From the above list (results of which are taken from Appendix A), this consultancy also concludes that in terms of “Core Elements” for an ICZM Framework, Tobago, 9 new “Policy Directives” should be adopted to reflect above actions and recommendations and help with its implementation. These “Policy Directives” (or “Core Elements” of an ICZM Policy) complement very well with the 12 Policy Objectives already set out for the National T&T ICZM Policy Framework (ICZM Steering Committee, 2014). These Policy Directives are therefore entitled: Policy Directive 1 - Standards and Procedures; Page 33 Policy Directive 2 – Improving Economic Potential (Transport and Commerce); Policy Directive 3 – Conservation of Heritage, Food Security and Biodiversity; Policy Directive 4 – Working with Dynamic Coasts and Ecosystems; Policy Directive 5 – Climate and Disaster Resilient Livelihoods; Policy Directive 6 – Focus, Integration and Co-ordination; Policy Directive 7 – Community Participation and Co-management; Policy Directive 8 – Knowledge and Understanding; Policy Directive 9 – Financial Sustainability. Regarding future implementation, it is proposed that a Multi-Sectoral Committee on ICZM (an “ICZM Unit”) within the Office of the Chief Secretary (with support from other Departments of THA such as Planning and DAMME)be initiated that would coordinate and spearhead all efforts amongst the different departments and divisions). This would then lead to a subsequent stand alone “ICZM Unit” that becomes fully responsible for implementing the ICZM Policy. The ICZM Unit would need to be properly structured with appropriately trained staffs and with suitable equipment that is dedicated to the effective functioning/servicing of ICZM Policy delivery in Tobago. There may need to be legislation / regulation set up to enable the ICZM Unit to enable suitable consenting or all current and future coastal development planning and proposals being proposed within a legally defined Coastal Management Area (CMA) for Tobago. Regarding the spatial extend of a future Policy for Tobago, it is also concluded that the term “Integrated Coastal and Marine Spatial Planning (ICMSP)” is considered to better reflect the “Zones” of influence (T1 and T2 plus S1 for nearshore marine areas) as set out in the National T&T ICZM Policy Framework (ICZM Steering Committee, 2014 ). This issue would be addressed under Policy Directives 1 and 6. Building on the Core Element 1 recommendation, it is also concluded that the term “Integrated Coastal and Marine Spatial Planning (ICMSP)” is considered to better reflect the “Zones” of influence (T1 and T2 plus S1 for nearshore marine areas) as set out in the National T&T ICZM Policy Framework (ICZM Steering Committee, 2014 ). The recommended series of new “guidance manuals”, to help deliver the coastal policy framework (e.g.: the Coastal Development Guide and the EPG Manual), are just two proposed new planning documents that need to be prepared to help achieve this. It is important that whilst this EPG Manual has to be produced through the EMA (with support from the IMA) and tailored for relevance to Tobago, over time, and following updates, (and when new information on the marine environment is available) the Manual should be adopted and referenced within existing or revised legislation, so that a common understanding of the ICMSP process (which should ultimately be embedded within new physical planning laws for T&T) is achieved. All relevant parties shall subsequently be aware of this EPG Manual and made cognisant of its purpose. Finally, it is recommended (and as based on international best practice on ICMSP from other small island states) that the future reporting process needs to have a series of Volumes prepared. The ICMSP process for Tobago is therefore proposed to comprise of 3 main Volumes. This should initially commence with the production of a new overarching policy framework to help frame the way forward for ICMSP (Volume 1). It can then be supported by the production of two separate coastal and marine planning documents (Volumes 2 and 3). This is structured in more detail within Appendix C. Page 34 REFERENCES Burke. L. M., Greenhalgh, S., Prager, D. and Cooper, E. (2008) Coastal Capital - Economic Valuation of Coral Reefs in Tobago. World Resources Institute. Coral Cay Conservation (2011)” Tobago Coastal Ecosystems Mapping Project” – Final Report: Results of Community and Scientific Work, April 2007 – June 2011. Government of the Republic of Trinidad and Tobago, 2011. National Climate Change Policy. Inter-American Development Bank (IDB) (2013) “Gap Analysis for Piloting the integration of Coastal Zone Management and Climate Change Adaptation in South West Tobago”. Prepared for Institute of Marine Affairs as part of an IDB Technical Cooperation IDB (2014a), “Piloting the Integration of Coastal Zone Management and Climate Change Adaptation in Southwest Tobago, Public Awareness and Dissemination Programme Desk Review of Similar or Complementary Awareness Assessments / Awareness Raising Projects - January 2014. Washington, DC, United States: Inter-American Development Bank. License (CC-IGO BY-NC-ND 3.0 IGO). IDB (2014b), “Piloting the Integration of Coastal Zone Management and Climate Change Adaptation in Tobago - Vulnerability and Risk Assessment Final Report”. Washington, DC, United States: InterAmerican Development Bank. License (CC-IGO BY-NC-ND 3.0 IGO). IDB (2014c), “Piloting the Integration of Coastal Zone Management and Climate Change Adaptation in Tobago - Vulnerability and Risk Assessment Workplan”. Washington, DC, United States: Inter-American Development Bank. License (CC-IGO BY-NC-ND 3.0 IGO) IDB (2014d) Understanding the Economics of Climate Adaptation for Trinidad and Tobago (IDB PROJECT #: TT-T1033). IDB (2014e) “Design and Implementation of a Coastal Ecosystem based Climate Change Adaptation Plan and Guidelines for incorporating an Ecosystem Based Approach (EbA) to Adaptation into a National Integrated Coastal Zone Management Policy”. Work Plan and Methodology Washington, DC, United States: Inter-American Development Bank. License (CC-IGO BY-NC-ND 3.0 IGO). IDB (2014f) “Design and Implementation of a Coastal Ecosystem based Climate Change Adaptation Plan and Guidelines for incorporating an Ecosystem Based Approach (EbA) to Adaptation into a National Integrated Coastal Zone Management Policy. Mainstreaming Climate Change into ICZM Washington, DC, United States: Inter-American Development Bank. License (CC-IGO BY-NC-ND 3.0 IGO). ICZM Steering Committee (2014) “Report on Pre-policy Consultations – ICZM Policy Framework Trinidad and Tobago ICZM Steering Committee (2014) ICZM Policy Framework Trinidad and Tobago. Kairi Consultants Limited (2012). Comprehensive Economic Development Plan, 2013-2017. O’Brien-Delpesh, C. 1997. Effects and Implications of Beach Sand Mining in Tobago. Proceedings of the UNESCO/IOC/UPR/SGCP Workshop on “Integrated Framework for the Management of Beach Resources in the Smaller Caribbean Islands”, pp. 77-86. Page 35 Trinidad and Tobago Ministry of Planning and Development, Central Statistical Office. 2013. First Compendium of Environmental Statistics. Trinidad and Tobago. 2007. Chapter 9, Coastal Areas. Trinidad and Tobago Institute of Marine Affairs (IMA), 2013, A Guide to the Beaches and Bays of Trinidad and Tobago. 2013. Second Edition. Page 36 APPENDIX A: ICZM WORKSHOP FINDINGS AND OUTCOMES LIST OF INVITEES “Climate Change Adaptation and Coastal Zone Management in Tobago” Le Grand Courlan Spa Resort, Tobago; Tuesday 26th May, 2015, 9:00 a.m – 4:00 p.m. The Honourable Orville London; Chief Secretary; Tobago House of Assembly; Administrative Complex; Calder Hall TOBAGO [email protected] Tel.: 639-2696 Attended Assemblyman Godwin Adams; Secretary of Agriculture, Marine Affairs and the Environment; Tam Building; Glen Road; Scarborough TOBAGO [email protected] Tel.: 635-0188 (Lystra Kerr) / 639 – 2570 REP: Mr. Reyon John Attended Ms. Wendy Austin; Secretary / Tobago Hotel and Tourism Association; Environment Tobago; #11 Cuyler Street; Scarborough TOBAGO [email protected] Tel.: 660-7467, 660-7462 Attended Assemblyman Handel Beckles; Assistant Secretary of Infrastructure and Public Utilities; Old Government Farm Road; Shaw Park; Scarborough TOBAGO [email protected] [email protected] Tel.: 639-3126/1287 ext. 4006 Did not attend Mr. Ken Biscombe; Environment Tobago; #11 Cuyler Street; Scarborough TOBAGO [email protected] Tel.: 660-7467, 660-7462 Did not attend Mr. Oscar Braithwaite; Administrator; Division of Tourism and Transportation; 12 Sangster's Hill; Scarborough TOBAGO [email protected] [email protected] Tel.: 660 – 7057 (Ms. Jerry – Assistant) 639-2125, 639-0509 Attended Mr. Linford Beckles; Director; Division of Natural Resources and Environment (DNRE); Tam Building; Glen Road; Scarborough TOBAGO [email protected] [email protected] Tel.: 639-2273 REPS: Mr. Howard Robin and Mr. Richard Hinds Attended Dr. Ellis Burris; Permanent Secretary; Ministry of Tobago Development; Administration Building; Jerningham; Street; Scarborough TOBAGO [email protected] Tel.: 639 – 3507 (Ms. Sharon Melville, Assistant) 639-2657, 639-3502 Did not attend Assemblyman Tracy Davidson-Celestine; Deputy Chief Secretary and Secretary of Tourism and Transportation 12 Sangster's Hill; Scarborough TOBAGO [email protected] Tel.: 660 – 7057 (Mr. Oscar Braithwaite) 639-5126 REP: Mr. Oscar Braithwaite, Administrator Ms. Renee Gift; Environment Tobago; #11 Cuyler Street; Scarborough Page 38 TOBAGO [email protected] Tel.: 660-7467, 660-7462 Did not attend Ms. Claudia Groome-Duke; Secretary of Health and Social Services; Tam Building; Lot No. 2 Glen Road; Scarborough TOBAGO [email protected] [email protected] Tel.: 635-1751 Did not attend Ms. Diane Hadad; Chairman; Tobago Chamber of Commerce; 2nd Floor, ANSA McAL Building; Milford Road; Scarborough TOBAGO [email protected] Tel.: 639-2669 / 2273 REP: Mr. David Wong attended Mr. Darren Henry; Environment Tobago; #11 Cuyler Street; Scarborough TOBAGO [email protected] Tel.: 660-7467, 660-7462 Did not attend Councillor Deon Isaac; Secretary of Settlements and Labour; Department of Settlements; Bobtail Building; Smithfield; Milford Road; Scarborough TOBAGO [email protected] Tel.: 660-7473 Did not attend Assemblyman Joel Jack; Secretary of Finance, Enterprise Development, Consumer Affairs and Cooperatives Victor E. Bruce Financial Complex; 14-16 Wilson Road; Scarborough TOBAGO Page 39 [email protected] Tel.: 635-1203 REPS: Mr. Carlos Hazel (Junior Consultant) and Ms. Giselle Small (PPP Coordinator) attended Mr. Christopher James; Chief Executive Officer; Tobago Hotel and Tourism Association; P.O. Box 295; Scarborough, TOBAGO [email protected] Tel.: 639-9543 Did not attend Mr. Gerard Mac Farlane; Director; Buccoo Reef Trust; Cowie’s Building; Carnbee Junction; Carnbee TOBAGO [email protected] [email protected] Tel.: 635-2000, 660-8250 Did not attend Councillor Gary Melville; Secretary of Infrastructure and Public Utilities; Old Government Farm Road; Shaw Park; Scarborough TOBAGO [email protected] Tel.: 639-3126/1287 Did not attend Mr. Garth Ottley; Director (Ag.); Department of Marine Resources and Fisheries; Tobago House of Assembly; Tam Building; Glen Road TOBAGO [email protected] [email protected] Tel.: 639-4446 (o) / 639 – 4354; Cell: 471-1029; Cell: 760-5694 Did not attend Ms. Wendy Guy-Hernandez; Administrator; Division of Planning and Development; Janis Solomon Building; Orange Hill Road; Scarborough TOBAGO Page 40 [email protected] [email protected] (683 – 1992) ; Tel.: 639-3265; 639-5373 Attended Mr. Umslopagaas Job; Administrator; Division of Agriculture, Marine Affairs, Marketing and the Environment Tam Building; Glen Road; Scarborough TOBAGO [email protected] Tel.: 639-2234 ext. 3507, 3508 Did not attend Mr. Raye Sandy; Chief Administrator in the office of the Chief Secretary; Administrative Complex; Calder Hall TOBAGO [email protected] Tel.: 660-7511 Letter forwarded to Agriculture, Marine Affairs and the Environment Ms. Cherryl-Ann Solomon; Administrator; Division of Settlements and Labour; CLICO Building; Rockley Vale; Scarborough TOBAGO [email protected] Tel.: 639-3559 REP: Ms. Marisa Gordon-Thornhill attended Assemblyman Hayden Spencer; Assistant Secretary of Agriculture, Marine Affairs and the Environment; Tam Building; Glen Road; Scarborough TOBAGO [email protected] Tel.: 635-1383 Did not attend Mr. Allan Stewart; Director; Tobago Emergency Management Agency; Fairfield Complex; Bacolet Street; Scarborough TOBAGO [email protected] Tel.: 660-7657 Page 41 REP: Ms. Melaura Agbeko attended Mr. Paul Thomas; Administrator; Division of Finance and Enterprise Development; Victor E. Bruce Financial Complex; 14-16 Wilson Road; Scarborough TOBAGO [email protected] Tel.: 660-7533 REPS: Mr. Carlos Hazel (Junior Consultant) and Ms. Giselle Small (PPP Coordinator) attended Ms. Patricia Turpin; President; Environment Tobago; #11 Cuyler Street; Scarborough TOBAGO [email protected] [email protected] Tel.: 660-7467, 660-7462 Attended Mr. Aljoscha Wothke; Environmental Research Institute Charlotteville (ERIC); Northside Road; Campbleton; Charlotteville TOBAGO [email protected] Tel.: 788-3550 Attended IDB PERSONNEL Mr. Gerard Alleng Climate Change Sr. Specialist Mr. Dale James Operations Senior Associate Ms. Sarah Valero-Freitag PRESENTERS Dr. Lorna V. Inniss Director (Ag) Coastal Zone Management Unit, Barbados Ms. Charmaine O’Brien-Delpesh Lecturer; Coastal Engineering and Management; The University of the West Indies Professor John Agard; Department of Life Sciences; The University of the West Indies Dr. Rahanna Juman; Principal Research Officer; Biodiversity and Ecology; Institute of Marine Affairs MEDIA Page 42 Mr. Earl Manmohan; Media Consultant; Office of the Chief Secretary; Information Division, Tobago Ms. Giada Mayenda; Tobago Channel 5. Page 43 The following table represents an amalgamation of all the views of the Workshop attendees to Handout 1 (list of all preferred Project Recommendations and Actions” coupled with which stakeholders need to be involved in its implementation and finally, the challenges/opportunities that face the implementation of that recommended action. (NB: the stakeholder views on Handout 2 are presented within Section 2 of the main report). Project Recommendations and Actions Top 10 (place a “x”) Stakeholders to be Involved to Implement Challenges to address and Opportunities to develop in order to implement effectively TC No./Grant No. ATN/OC-L3321-TT A1) Pursue the formal preparation and acceptance of a National Building Code (TTA1) A2) Programme of Beach nourishment in Tobago (TTA12) A3) Mangrove Restoration in Tobago (TTA18) XXXXXXXXXXXX XXXXX XXXXXXXXX Town and Country Planning Challenge 1: Enforcement Architecture Association and Building Inspectors Challenge 2: Insurance Division of Planning and Development Challenge 3: Political buy-in Tourism Fire and Health Services (HSS) WASA IMA and EMA TEMA Bureau of Standards Housing IMA and EMA Challenge 1: Finance needed to implement Division of Agriculture Marine Affairs and Marketing Challenge 2: Capacity and training is lacking Schools; DEYAS Challenge 3: Lack of data Developers including THA Donor Organizations Env Tobago EMA Challenge 1: Environmental conditions/ suitability to facilitate this process. IMA Challenge 2: Easier to maintain than replant Division of Agriculture Marine Affairs and Marketing Challenge 3: Finance needed to implement Challenge 4: Capacity and training is lacking Challenge 5: How to retrofit existing improper infrastructure and development Opportunity1: Education of the population. Opportunity2: Incentivise career paths and promote career fairs etc. A4) Coral Reef Restoration and Protection in Tobago (TTA19) B1) Incorporating ICZM and CC Adaptation into a Legal Framework XXXXXXXXXXX XXXXX Schools; DEYAS Challenge 4: Capacity and training is lacking Developers including THA Challenge 5: Lack of data Donor Organizations Opportunity1: Division of Agriculture, Education and CEPEP can be utilized to plant mangroves. DNRE EMA and IMA Challenge 1: Environmental conditions/ suitability to facilitate this process. Fisheries Challenge 2: Finance and insurance needed to properly implement Tour Operators Challenge 3: Capacity and training is lacking Private dive associations DNRE Marine /Environmental NGOs DNRE Opportunity2: Education in schools Challenge 4: Lack of data Opportunity1: Fisheries and Education Challenge 1: Legal process can be prohibitive and enforcement issues are the greatest challenge. Opportunity1: Try to amalgamative legal items as opposed to separating them out (ie: consolidate and amalgamate) B2) Effective Institutional Arrangements for ICZM Planning and CC Adaptation XXXXXXXX B3) Establish a Policy Framework for ICZM and CC Adaptation XXXXXXXXXXX Opportunity 1: need to introduce institutional mechanism that help to share responsibilities between agencies Opportunity 2: Introduce a new “ICZM Unit” under the responsibility of the Chief Secretaries Office as the overarching coordination unit. Government Challenge 1: Lack of expertise in the area and training is subsequently needed Civil Society Opportunity 1: Collaboration with those who have been able to make some head way eg: Barbados CZMU and donor organisations Meteorological Office Planning Depts Finance and Legal Depts OCS Donor organisations Page 45 C1) Avoid consultation “fatigue” wherever possible X C2) Develop consultation programmes in the future that move the ICZM topic forward X C3) Introduce a Variety of Educational “tools” to convey ICZM outcomes XXXXXXXXXXX D1) Initiate New Data Collection programmes (Met-ocean data) Opportunity 1: Target student courses to gear them towards filling capacity needs (eg: coastal engineering and oceanographic services). Opportunity 2: need to realise the “nexus” between different sectors (eg: agriculture and water/ water and tourism etc XXXXXXX DNRE DAYAS NGOs Civil Society Media (ICT) Schools Deemed a “Core element” in its own right Opportunity1: need targeted educational programmes that are needs related and help to focus /create targeted capacity building programmes accordingly. Opportunity 2: packaging of new social media techniques. Opportunity 3: Use existing “tools” that other sectors already use and “piggy back ICZM onto those. Opportunity 4: Incentivise career paths clear career guidance in CCA/ICZM related topics. Actions proposed in Section 3.4. D2) Initiate New Data Collection programmes (Physical Environment data) D3) Initiate New Data Collection programmes (Receptors) D4) Initiate Improved Quality Assurance checking D5) Initiate New Research Studies D6) Update the CVI (weighting/screening and addition of natural ecosystems and other Page 46 climate/hazard variables) E1) Build the case for natural coastal protection E2) Bring coastal ecosystems into mainstream decision making processes E3) Incorporate proven management interventions XXXXXXXX XXXXXXXXXXXXX XXXXXXXX EMA and IMA Challenge 1: Convincing both policy makers and those who are charged with implementation Tourism Industry Challenge 2: Need to determine if policy would be implemented by Govt. Private Sector Opportunity 1: Introduce tools for ICZM awareness Government(THA) (multi-disciplined Committee) Civil Society and those affected Civil Society Challenge 1: Participation Government Organizations (multi-disciplined Committee) Challenge 2: Implementation Private Sector Media Tertiary Education (UWI) External Technical Advisors through IMA Media Challenge 1: Participation All Divisions of THA (Office of Chief Secretary) Challenge 2: Creating a message that is easily understood Civil Society Opportunity 1: The use of the social media to get the information in the public domain Multi-disciplined Committee Barbados CZMU Opportunity 1: Civil Society could be part of the process Opportunity 2: Strong selling point for engagement (impact) Opportunity 2: link to the recurrent programme “CAPE” which outlines a list of priority areas/career guidance. This programme should be “apolitical” and roll over regardless of any change in government. Opportunity 3: Work experience job swaps with Barbados CZMU. Opportunity 4: Integration with CEDP. E4) Financing options to Sustain the CCARP XXXX E5) Formalise Monitoring and Evaluation Procedures XXXXXXXX Opportunity 1: Pursue the Tobago Financial Aid programme Civil Society Government Organizations (multi-disciplined Page 47 Committee) Private Sector Meteorology Dept TEMA Planning F1) Adopt a simple glossary of terms and keep the message simple F2) Adopt a simple EbA “screening” process to assess which climate change adaptation responses need employing G1) Adopt Mainstreaming Good Practice XXXX G2) Improve Governance Mechanisms XXXX G3) Introduce a Variety of Climate Finance Models Page 48 APPENDIX B: ASSESSMENT OF PROJECT REPORT ACTIONS AND RECOMMENDATIONS B.1 Overview The following documents have been analyzed with specific focus on presenting the key findings from the technical studies completed under this Technical Cooperation1, as well as those arising from the recently completed IDB funded study on the Economics of Climate Adaptation in Trinidad and Tobago (2014). The key findings and recommended actions of each document are now reviewed and are presented as separate sub sections within this Section: Report A: Economics of Climate Adaptation in Trinidad and Tobago (IDB, 2014d); Report B: ICZM Situational Gap Analysis (IDB, 2013); Report C: Public Awareness and Distribution Programme (IDB, 2014a); Report D: Coastal Vulnerability Assessment (IDB b, 2014); Report E: Climate Change Adaptation Response Plan (CCARP) (IDB, 2014f); Report F: Design and Implementation of a Coastal Ecosystem Based (EBA) (IDB, 2014e); Report G: Mainstreaming Climate Change Considerations into ICZM for Tobago (IDB 2014f). For each report, where appropriate, separate tables have been produced to address both “gaps and observations” and “recommendations” presented in each respective report. Findings are then compiled and “mapped” against a series of draft core elements (or draft “Coastal Policy Directives”) for consultation at a workshop event, scheduled for 26 May 2015. Agreement on these core elements shall then be put forward for consideration within a new ICZM Policy Framework for Tobago. NB: Some of the above reports have provided actions and recommendations that cover both Trinidad and Tobago (T&T) whilst others are specifically focused on Tobago only. As the focus of this consultancy is to prepare the core elements of an ICZM Policy for Tobago only, and hence, where appropriate, attention in placed on recommendations that are of relevance specifically for Tobago. B2 Report A: Economics of Climate Adaptation in Trinidad and Tobago (IADB 2014) Report A Overview In this report, the potential hazards due to climate change are presented, the economic effects of climate change in Trinidad and Tobago are calculated, the actions to mitigate the losses caused by climate change are proposed, and their economic costs and benefits are analysed (NB: all monetary values presented in the report are in current US Dollars). The report states generically that in terms of climate hazards, Trinidad and Tobago will, presumably, undergo higher tropical storm (TS) frequency and the effects derived from them: coastal flooding, wind and rainfall. Additionally, T&T will likely experience sea level rise and more frequent and intense droughts. Since the Namely the Gap Analysis, Coastal Vulnerability Assessment and Design and Implementation of a Coastal Ecosystem Based (EBA) Climate Change Adaptation Plan and Guidelines. 1 effects of climate change and, particularly, the hazards observed for T&T affect different sectors, the actions identified are designed to deal with this factor, as stated in the prioritization stage. When possible, actions were designed in order to obtain a widespread impact. The report concludes that the impacts of climate change are most likely to affect the coastal zone of Tobago in the following ways: Sea level rise will lead to increased inundation, increased erosion, loss of wetlands, loss of ecosystems, and displacement of coastal communities. High temperature will result in loss of coral reefs and reduction in fish stock. Report A Gaps and Observations Figure 2.1 below, outlines specific adaptation actions for Tobago. Figure 2.1: Specific Possible Actions of relevance to the Coastal Zone in Tobago When organized by sector, the measures for “Coastal Zones” (as a specific “theme”) and the measures for Human Settlements have relatively high benefits. Coastal Zone measures average a benefit equivalent to 0.426% of GDP and Human Settlements measures average a benefit equivalent to 0.618% of GDP. That being said, these two groups of measures also have the largest costs. Coastal Zone measures average cost is equivalent to 0.586% of GDP and Human Settlements measures average cost is equivalent to 1.854% of GDP. Report A Recommendations The report stresses that “No regret” strategies are those in which the project can be justified in economic terms, even without climate change, however its benefits increase even more with climate change. With specific reference to the actions outlined in Figure 2.1, the National Building Code (TTA 1) falls into the category of High Impact and “No Regret”. Mangrove Restoration in Tobago (TTA 18) falls into the category Page 50 of Low Impact and “No Regret”. Beach Nourishment in Tobago (TTA 12) falls into the category of Low Regret whereas Coral Reef Protection and Restoration in Tobago (TTA 19) falls into the category of “Potential High Regret”. Consequently, it may be concluded that actions TTA1, TTA12 and TTA18 may be pursued as effective actions as part of a future ICZM Policy and Management Plan process (see below). RECOMMENDATION (REPORT A) TITLE COMMENTARY A1) Pursue the formal preparation and acceptance of a National Building Code (TTA1) The objective of this intervention is to develop and implement a code that establishes the building specifications needed in Trinidad and Tobago in order to provide new constructions that are resilient to tropical storms, floods, earthquakes, landslides and rainfall. Even if there was a Draft for a Small Building Code, in Trinidad and Tobago, currently, there is not a legal framework regarding building codes. Additionally, once the National Building Code is finished, it would need to be passed into a law. Otherwise, the objectives expected with the building code would not be met; when not mandatory, building codes are rarely put into effect. A2) Programme of Beach nourishment in Tobago (TTA12) The objective of this intervention is to replenish beach areas with sand in order to avoid the beach erosion caused by the sea level rise and storms. The beach nourishment would take place in three different areas: Buccoo Bay (5 km), Store Bay (6.65km) and Little Rockley Bay (2.5km). These three areas are the most vulnerable to beach land erosion in Tobago. The development of the project would be divided into ten annual phases, carrying out progressively the nourishment of the selected areas. More detailed local information needs to be provided. Furthermore, for every selected area, the coastal dynamics would need to be assessed to define the sand nourishment areas, the regeneration phases, the beach stability, and so on. An additional assessment on the adequate sediment to be used will need to be done. Additionally, the sand stocks or the possibilities or using imported sand would need to be analysed. It would be necessary to develop a Coastal Zone Development Plan, with welldefined actions, which would need to be implemented, if necessary, developing a strict legal framework to ensure that the objectives are fulfilled. A3) Mangrove Tobago (TTA18) The objective of this intervention is to maintain and where necessary rehabilitate and plant mangrove forests that are able to attenuate wind and swell waves in order to improve resilience against coastal erosion and infrastructure losses. Many of the measures regarding coastal management, including the restoration of mangroves (described here) and the protection of coral reefs (TTA 19), will have improved results if jointly implemented. These measures should therefore be looked at holistically and strategically when deciding which activities to implement, ensuring that possible mutual and reenforcing benefits are captured. For the mangrove restoration to work, it is necessary to ensure that there is no water pollution and that the ecosystem is able to restore itself. Therefore, the selected areas need to be analysed first to find out whether restoration is viable or not. Otherwise, other coastal strips more suitable to the sites would need to be analysed. Restoration in The technique proposed for the mangrove restoration is hydrologic restoration, rather than planting. Hydrologic restoration consists of connecting impounded mangroves to normal tidal influence. Instead of planting mangroves, the efforts would be focusing on restoring the previous state of the coastal areas, restoring the tidal schemes previous to the human influence. That way, if the environmental conditions are adequate, mangroves are restored without the need of planting, but rather just by the natural diffusion process which takes place due to the coastal tides. The development of the action would focus at first on achieving natural restoration. Mangrove Restoration in Tobago is slightly complicated in terms of legal capacity for several reasons. The State has control of the land below the high water mark which includes most mangrove areas. The Buccoo Reef Marine Park is managed by the Marine Resource and Fisheries while all other wetlands including mangroves are managed by the Department of Natural Resource and Environment. A4) Coral Reef Restoration and Protection in Tobago (TTA19) The objective of this intervention is to develop a social awareness program to sensitize the local community, fisherfolk, and tourists about sustainable coral reef management. A project called the Speyside Marine Area Community-based Management Project involving the Tobago House of Assembly, UNDP, GEF small grants program, Buccoo Reef Trust, and Coral Cay Conservation worked to promote awareness about coral reef protection in the Speyside marine area within the local community from 2008 to 2009 was proven to be relatively successful in promoting CBOs dedicated to the protection of Speyside and providing education on marine life. Learnings from this project should be considered in the development of this project, and Community Based Organizations that came from this project, including the Speyside Eco-Marine Park Rangers (SEMPR) Page 51 should be consulted for their experience and knowledge. In rehabilitating coral reefs in Tobago, there is the urgent need to address the land-based sources of pollution, which is critical to the conservation of the reefs. Coral reef protection occurs in the southern Tobago, specifically BRMP, and the Coral reefs around Rockley Bay. The Department of Marine Resources and Fisheries has a staff of Reef Patrol Officers who are in charge of patrolling the marine park at Buccoo; however, it has not been successful at deterring illegal practices. This measure will aid this department by increasing the local community´s participation in coral reef protection. Local people will be offered the opportunity to help raise awareness among their community, fisherfolk, and tourists by being part of a voluntary group of eco-awareness raisers, or eco-monitors in southern Tobago. The “mapping” of the above recommendations against proposed “Policy Directives” is presented in Section 4. B3 Report B: ICZM Situational Gap Analysis Report B Overview A very comprehensive Situational Analysis was produced in November 2013 by a consultant hired by the IMA under the IDB funded technical cooperation project TT-T1034 entitled “Gap Analysis for Piloting ICZM and Climate Change Adaptation in Southwest Tobago”. The work involves a review of the legislative, policy, institutional and capacity arrangements related to coastal zone management and climate change at the national level. It also covers technical areas that specifically may be related or relevant to Tobago. The work includes an assessment of current data gaps with respect to coastal and marine ecosystems, their health, economic uses, and risks. It also assesses current accessibility to data in relation to Tobago. The key findings of relevance are presented below (taken from Ramlogan 2013) (NB: for exact details, the reader should refer to the actual report as this is not replicated in this report). Report B Gaps and Observations The following gaps and observations were put forward by the consultancy to cover SW Tobago. Legal Gaps/Observations Commentary Absence of Specific Legislation There is an absence of specific legislation, save and except the Environmental Management (EM) Act, dealing with adaptation to climate change. There is no such framework legislation in Trinidad and Tobago. Absence of Specific Policies While it is acknowledged that many policies touch and relate to aspects of an ICZM plan, there is no comprehensive or specific policy that seeks to integrate components of the myriad policies. Furthermore, there is almost a total absence of a policy dealing with specific aspects of CC adaptation; even the NCCP fails to provide specific guidelines on CC adaptation. In situations where a policy names several organisations with responsibility to implement, the absence of specific provisions on ICZM and CC adaptation can translate into non-action. Lack of Specificity in Policies The policies reviewed showed a tendency towards the statement of generalisations and an absence of specificity as to how general objectives or aims would be achieved. Therefore, there is little in existing policies that can point to exactly how the policies are to be used as part of an ICZM plan or for CC adaptation as it relates to the coast. While it is felt that sufficient laws exist in Trinidad and Tobago to deal with coastal areas, an additional dimension to the perception of the adequacy of laws lies in the making of regulations or the use of existing legal norms to create more effective legal powers in the fight for better management of coastal areas. It is accurate to say that most of the laws are worded in a general manner, with the intent being the passage of regulations to provide for specificity. This method of passing legislation can be used successfully to update laws and stipulate new standards, as may be required by changing modern conditions. Unfortunately, it would seem that there is a reluctance to use such regulatory powers and this has resulted in some laws being largely unenforceable. Multiplicity of Legislation Dealing There are several pieces of legislation that affect coastal areas in Trinidad and Tobago. For example, there are twenty pieces of legislation that can potentially deal with coastal ecosystems issues. This Page 52 with Coastal Areas state of affairs unfortunately does not always result in better management but rather in “law gazing”. This term refers to situations where different entities responsible for different laws each look to the other to take action with the result being legal paralysis. Limited Right of Private Action An important weapon in the general protection of the environment in many developed countries is the right to bring private actions in environmental matters. The exception can be found in the EM Act where section 69 creates a right in private persons to initiate legal action with respect to the breach of an environmental requirement. Thus, the EM Act is unique in that it permits private persons to seek to stop unauthorized acts unlike other laws where no such authority is given. Direct private party actions can be used to facilitate enforcement of statutory measures for implementation of an ICZM plan. Temporary Designation Emergency Areas of A useful legislative tool for the protection of coastal areas is that of temporary protection orders (TPO). TPOs can be used to preserve the status quo of a coastal area while steps are taken to investigate the suitability of longer term measures or to facilitate taking emergency actions to protect coastal areas. This type of power is not present in existing legislation in Trinidad and Tobago. Institutional Gaps/Observations Commentary Insufficient Resources and Financial) (Human The most debilitating problem confronting state entities with responsibility for aspects of coastal zone management is the lack of access to sufficient resources, the most important being financial resources. The problem of inadequate financial resources can be correctly interpreted as being the root of all difficulties with human, mechanical, technical and research resources. Access to a national tax-based fund, called the Green Fund, can be hard for accessing financial resources needed for some aspects of coastal zone management, such as ecosystems protection and management. The Green Fund was established in 2004 by the Miscellaneous Taxes Act Ch. 75:01. According to Section 64, “The purpose of the fund is to financially assist organisations and community groups that are engaged in activities related to the remediation, reforestation and conservation of the environment”. Multiplicity of Governmental Entities with Responsibility for Aspects of Coastal Zone Management The second most critical factor confronting enforcement agencies in Trinidad and Tobago is the sheer number of enforcement agencies. This creates problems associated with multiple agencies, such as overlapping jurisdiction, the independence syndrome, and a lack of proper co-ordination of the work of enforcement agencies. Theoretically, overlapping jurisdiction should not prove problematic in itself as it should afford greater scope for coastal zone management; however, the result has not always been satisfactory. What has emerged is an informal rationalisation of activities that has not managed to serve the interest of the environment. Another problem associated with multiple agencies can be described as the independence syndrome. This is reflected in an overly aggressive sense of independence exuded by some agencies. The Forests Act gives jurisdiction over forest matters in Trinidad and Tobago to the Forestry Division. However, Section 21(2)(b) of the Tobago House of Assembly Act Ch. 25:03 gives the THA authority over forestry matters in Tobago. To avoid conflict, the Forestry Division has, in the main, ceded control to the THA. The result is what is perceived to be some reluctance on the part of the THA to seek advice from the Forestry Division, in spite of having very few resources to deal with forest matters. By far the most significant problem caused by the multitude of enforcement agencies and overlapping jurisdictions is the lack of co-ordination. Effective coastal management should follow certain synergistic patterns and efficient co-ordination is vital in the battle to protect coastal resources and communities. This co-ordination is even more important in the case of a country like Trinidad and Tobago where resources for activities such as coastal zone management tend to be in rather short supply. Limited Public Programmes Education Another institutional impediment to the proper management of coastal areas is the presence of little or no public awareness of the importance of coastal areas to the society. Public education programs are often limited and sporadic and have generally failed to transform attitudes in Trinidad and Tobago towards coastal areas. There has however been a few public education programme by both government (Department of Natural Resources and the Environment, IMA) and non-governmental entities (Environmental Tobago, Save our Sea Turtles, Buccoo Reef Trust) on the environment, not specifically ICZM. The effectiveness of these programmes has never been really assessed. There is an obvious need for programmes that education the decision makers. Report B Recommendations Page 53 The following “Recommendations” were put forward by the consultancy to cover both Trinidad and Tobago. Slight updates are now presented in the Commentary column to ensure this focus reflects the required situation in Tobago only. RECOMMENDATION (REPORT B) TITLE COMMENTARY B1) Incorporating ICZM and CC Adaptation into a Legal Framework One option here is to initiate a single comprehensive piece of legislation, following in the footsteps of Barbados. This would see enactment of a single comprehensive piece of legislation, covering all aspects of an ICZM plan. An easier second approach would be to amend existing and proposed legislation to ensure proper incorporation of the different elements of an ICZM plan for Trinidad and Tobago. B2) Effective Institutional Arrangements for ICZM Planning and CC Adaptation There is need to vest in a single institution the statutory authority and jurisdiction to ensure that all other institutions charged with legislative authority over ICZM elements perform their statutory duties. With respect to Tobago, the institutional responsibility for the Tobago component of implementation of an ICZM plan for Trinidad and Tobago should reside completely with the relevant division / department of the THA. The institution with responsibility for CC adaptation strategies should be the EMA, if it is agreed that the EM Act should be used as the basis for providing the statutory power for the implementation of such policies. With respect to disasters, this can be done in conjunction with the THA and TEMA (with oversight and direction as appropriate from IMA and ODPM in Trinidad). B3) Establish a Policy Framework for ICZM and CC Adaptation B4 Such a policy is now needed to address all relevant aspects of a future ICZM plan and would mandate the multiple institutions to properly perform their individual roles. This policy for Tobago should be mirrored by a similar National ICZM Policy which is already drafted for Trinidad and Tobago (ICZM Steering Committee, 2014) and, therefore, should have compliance by the THA. Additionally, the policy should set out the legal roadmap to be followed in amending the different pieces of legislation required for the implementation of an ICZM plan. The policy should further mandate the TEMA to specifically address the disaster component of an ICZM plan for Tobago. The ICZM Policy must address CC adaptation strategies for the coastal areas of and direct the relevant institution in the development and implementation of such CC adaptation strategies. Report C: Public Awareness and Dissemination Programme Report C Overview Eco Project Ltd (2014) embarked on a “Public Awareness and Dissemination Programme”. This consultancy involved the design and implementation of a public awareness program on coastal zone management and climate change adaptation for local communities in Southwest Tobago. It included a desk review on projects and was designed specifically to assess, analyse and develop strategies to address gaps in key stakeholders’ current levels of awareness of one or more of the following: • the current state of the coastal zone and the impact of human activities on the marine and coastal ecosystems in S.W. Tobago; • the actual and anticipated impacts of climate change on the coastal zone in S.W. Tobago and on the livelihoods that depend on the marine and coastal ecosystems; • actual and potential strategies for building resilience and adapting to climate change in S.W. Tobago. Report C Recommendations The following “Recommendations” were put forward by the consultancy to cover SW Tobago. Page 54 RECOMMENDATION (REPORT C) TITLE COMMENTARY C1) Avoid consultation “fatigue” wherever possible One of the key findings of the consultancy is that there is a high risk of “consultation fatigue” amongst stakeholders unless future activities are designed to tell people “something new”. C2) Develop consultation programmes in the future that move the ICZM topic forward There is good consensus amongst local stakeholders of the surrounding issues for ICZM. The focus of future ICZM activity (involving stakeholders) should therefore be more on acknowledging/validating existing knowledge and then, identifying strategies designed to influence attitude and practice, including possibly increasing the capacity of non-governmental actors to influence policy through advocacy. C3) Introduce a Variety of Educational “tools” to convey ICZM outcomes It is likely that several of the existing educational and visualisation tools, and particularly the P3D model and some of the videos, could be leveraged into any future ICZM policy. B5 Report D: Vulnerability Assessment for South West Tobago Report D Overview This consultancy (Halcrow 2014) focused on the development of climate-related hazard vulnerability and risk assessments of the coastal zone area of Southwest Tobago based on climate variability (existing climatic events) and climate change scenarios. Halcrow was commissioned in 2014 to produce a Vulnerability and Risk Assessment report to help the delivery of the future ICZM Policy for Southwest Tobago. That work did not collect/create new data and the pilot study proceeded using the ‘best available’ data and manually filling any remaining gaps. The Halcrow report describes in some detail the climate change predictions calculated for Southwest Tobago. This work fed into the production of clear maps outlining the outcomes of the Coastal Vulnerability index (CVI) which is critical to review before any ICZM policy can be set. The assessment is applied to better understand the risk of climate change to the region so that educated decisions can be applied at policy and planning levels. Importantly the focus of this study, and consequently this report, is on the development, testing and refinement of the risk assessment and CVI methodologies, rather than on discussion of the specific outcome implications for SW Tobago. A critical consideration in the definition of the methodology adopted was to define a consistent repeatable process that can be readily applied in a larger scale follow on project (and potentially in other locations). In order to achieve this, the approach employed a GIS based ‘model’ to generate the risk and CVI outputs based on a framework that applies the user-defined input data specific to both the forcing mechanism and the environmental description within the coastal zone. Report D Gaps and Observations The following gaps and observations were put forward by the consultancy to cover SW Tobago. CVI Related Gaps/Observations Commentary Lack of Data (availability) A key gap from the pilot study is the relative lack of transparency of data existence/availability. Ahead of any future ICZM or CVI analysis it is recommended that relevant Trinidad and Tobago government agencies co-ordinate to identify existing available datasets, and define meta-data related to source, resolution, date and format. Inclusion of Natural Assets Consideration of natural environment assets (habitats and species) was outside the scope of the pilot study however it is clear that the many environmental assets of SW Tobago (and indeed the wider Caribbean) are potentially highly vulnerable to the effects of future climate change. In particular, the Page 55 delicate marine habitats of coral reefs, etc. may be especially vulnerable. As such, it is recommended that consideration be given to extending this pilot analysis to consider the incorporation of environmental assets. Report D Recommendations The following Recommendations were put forward by the consultancy to cover SW Tobago. RECOMMENDATION (REPORT D) TITLE D1) Initiate New Data Collection programmes (Met-ocean data) COMMENTARY The approach developed through this pilot study has set out to be consistent and repeatable to demonstrate its versatility and applicability in other areas. The defined approach is deliberately a simple, transparent mechanism to represent risk, avoiding the need for complex ‘black box’ analyses, to ensure the results are readily understood by the range of stakeholders of integrated coastal zone management. In order to achieve this outcome it is vital that subjectivity is kept to a minimum and the analyses are objective, based on defined inputs. However, a key lesson from the pilot study has been that consistent, complete datasets are not available for many of the key features required to be defined for the full CVI analyses. The key data gaps and recommendations for filling them ahead of full CVI implementation elsewhere are presented. These datasets will be required to be collected, validated and quality checked to inform future application of the risk assessment and CVI in Trinidad and Tobago. Tide data – this should continue to be collected and validated at locations around Trinidad and Tobago. Tidal data is being collected at Scarborough and Charlotteville on Tobago. This essentially provides data at each 'end' of the island. The project recommends that the deployment of an additional tidal gauge on the north west side of SW Tobago could offer an improved understanding of tidal variations between here and Scarborough. This could potentially be located in Mount Irvine Bay. Existing and future data is required to be collated to provide a long time series of tidal data. The data, existing and future, should be collated into a single format and time series and quality checked appropriately, in order to develop a greatly improved dataset in the future. Review and collate any existing available wave data. Consider deployment of wave buoy to collect continuous wave data. Real time reporting can also provide for operational use by ports, marine facilities, coastal construction performance, environmental applications, etc. Recommend that data recorders are sited to capture conditions along the various coastal orientations in SW Tobago. There are essentially 4 orientations present (working clockwise): Scarborough to the Petit Trou. Lagoon area is SE facing; the south facing to Crown Point; E facing to Pigeon Point; then NW facing to Plymouth. As such, deployment of 4 met-ocean devises to capture multiple data, each cited centrally along these sections of coast would provide a good overall understanding of conditions to inform and validate future coastal modelling. D2) Initiate New Data Collection Programmes (Physical Environment data) Bathymetry - Build on the existing available bathymetry survey for Buccoo Reef area, to provide a better representation of the nearshore of Trinidad and Tobago. Recommend undertaking cross-shore profiles to fill gaps between existing surveys areas and to collect bathymetric LiDAR as a mechanism to capture improved data. Topography - LiDAR data has been collected for Trinidad & Tobago. This data should be processed and quality assured to provide a ‘bare earth’ digital terrain model for Trinidad and Tobago. Develop the terrain data at highest resolution possible as GIS packages can sample from the data to develop grids at scales appropriate to analyse. Beach Profiles - Continue to monitor beach locations as part of the ongoing IMA programme. Extend the beach profile survey programme to include: • twice yearly surveys (winter and summer profiles) to capture typical performance • pre- and post-storm surveys as appropriate to capture extreme event performance • surveys extending landward to end of active profile and seaward to below MLLW • surveys every 1 km alongshore Ensure collected profiles are quality checked and stored in a Geodatabase with previous profiles. Ensure collected profiles are quality checked and stored in a Geodatabase with previous profiles. Page 56 Future beach profile collection should also extend past wading depth to depth of closure, in order to describe nearshore behaviour. Coastal Protection Structures - Develop complete mapping of the location of coast protection and flood defence structures. Include details such as structure form, height, design standard of protection and condition. A status report on the 'structural integrity' of these engineering works should be carried out with some agreed regularity, e.g. every year, every two years or some interval that the IMA may wish to determine. This would essentially provide a basis for mandating the owner of the structure (whether the Crown or an individual) to undertake any necessary maintenance that may be required. Aerial Photography - Collection of continuous aerial imagery, at lower low water, would enable checking of all other terrestrial datasets, including intertidal characteristics. D3) Initiate New Data Collection programmes (Receptors) Property Data - Update existing building datasets to include all properties, with addition of type/use classification. Check against recent aerial imagery (plus field verification) to ensure complete coverage and accuracy. Infrastructure Data - Develop complete mapping of all infrastructure classes, including water, transportation, telecommunication and energy related infrastructure, both linear and area assets. Include details such as road classes, etc. Create GIS layers with full feature attribution. Agricultural Land and other open spaces - Develop comprehensive GIS mapping of agricultural areas and other open space type land uses, including data layer attribution. D4) Initiate Improved Quality Assurance Checking Quality Assurance will be a key element of the proposed data collection tasks. It is vital that collected data is downloaded and checked soon after its capture. Ongoing, regular, review of data will ensure errors are identified and corrected. This improves the data value for future analysis and also ensures that and errors in the collection process are quickly identified and can be rectified. Appropriate data management processes should be put in place by agencies responsible for data collection. D5) Initiate New Research Studies D5a) Storm Surge Analysis – given the limitations in available wave and water level data for the study area, development of future extreme water levels has very high levels of uncertainty. Once improved observed wave and tidal data is available, it is recommended that this be used to validate a longer time series of hindcast wave/tidal data as the basis for development of extreme water levels around Trinidad and Tobago. This output could inform the full IZCM process and be used by multiple agencies in the planning, design and operation of marine and coastal infrastructure. Section 3.3 discusses the water levels used in this analysis. The accuracy and reliability of storm surge modelling is greatly enhanced with the use of high resolution bathymetry. Therefore, recommendations made above to build on the existing bathymetry survey and to collect bathymetric LiDAR will therefore also help to reduce uncertainty and increase reliability of future storm surge modelling. D5b) Coastal Erosion Analysis – study to consider the best approach to develop long term erosion projections considering the complexities of coastal areas fronted by reefs and how to integrate existing coast protection structures into the analyses. This is needed because there has been much discussion of the Bruun Rule (a modified version of which has been used here), in the academic literature. This has included recommendations for further variations/modification to improve its potential for application, such as integrating alongshore considerations (Rosati, et al, 2013), general critiques of its applicability to calculate shoreline retreat under rising sea levels (Cooper and Pilkey, 2004) and new applications, such as the Probabilistic Coastal Recession (PCR) Model, have been put forward as alternative approaches (Ranasinghe et al, 2012). The proposed study would provide an opportunity to consider different approaches, such as the PCR Model, to assessing long term coastal erosion under rising sea levels for Tobago. D6) Update the CVI (weighting/screening and addition of natural ecosystems and other climate/hazard variables) Given the importance of the marine and coastal environment of Trinidad and Tobago, this addition would be considered to provide a more comprehensive representation of the potential impacts of climate change to the islands. Inclusion of Natural Assets (coral reef and wetland ecosystems) must therefore be included in future revisions/updates of the CVI methodology. Incorporation of other hazards that may be affected by climate change, such as temperature and rainfall. While it is certain that sea level rise and storm surges will be the greatest single impact of climate change for Trinidad and Tobago, the addition of other climate change variables would provide for a more comprehensive impacts analysis. The benefits of this addition would need to be balanced against the additional analysis and uncertainties that these further variables would generate. Finally, it is important to consider further screening and/or weighting of the receptor data to reflect ‘scale’ of potential impacts. The property dataset supplied for this analysis had many relatively small ‘building’ polygons for which there were no attribute details. With better resolved data in future it Page 57 may be appropriate to apply additional filters and/or weights to the receptor data to account for the relative level of impact to some of these smaller assets. B6 Report E: Climate Change Adaptation Response Plan (CCARP) for Tobago Report E Overview A Climate Change Adaptation Response Plan (CCARP) was produced and tested as a Pilot for South West Tobago, to help mainstream sustainable intervention measures, policies and actions for the future at a national level for Tobago (McCue 2014a). The draft CCARP presents a set of Adaptation Response Options for coastal ecosystems (including those to be set for south west Tobago) that seek to inculcate EbA approaches and principles. These are: 1. Adaptation Response A: Maintain/restore wetlands and mangrove ecosystems; 2. Adaptation Response B: Maintain sediment transport; 3. Adaptation Response C: Preserve coastal land/development (including infrastructure); 4. Adaptation Response D: Maintain shorelines utilizing “soft” measures; 5. Adaptation Response E: Maintain shorelines utilizing “hard” measures; 6. Adaptation Response F: Preserve Habitat for Vulnerable Species; 7. Adaptation Response G: Maintain water quality. Report E Gaps and Observations For the CCARP to operate effectively there are ten “implementation risks” that are presented that need to be addressed carefully for southwest Tobago as follows: CCARP Gaps/Observations Related Commentary Absence of adequate administrative and institutional capacity All adaptation measures come with administrative and institutional challenges. For example, when a measure requires regulatory decisions or when it must be implemented through agencies that share jurisdictions and responsibilities, difficulties can arise. Implementation may reveal jurisdictional gaps. In such cases, it cannot be assumed that there will be effective coordination and communication between the players. Absence of a legal framework and enforcement. Judicial systems may not support rigorous enforcement of some measures such as zoning and setbacks. Lack of personnel capacity Many personnel in both government and private organizations are not well versed in climate change issues. Often, they also do not understand how they could contribute to climate change adaptation. Lack of appreciation of the cost of “doing nothing” Often, at the point when agreement to move forward with coastal adaptation is being sought there has not yet been a determination of the costs of implementing those measures. Nor has there been a projection of the costs of doing nothing. This lack of cost information makes it difficult to reach agreement on moving forward. Absence of sustainable financing Even the simplest of measures requires funding and effort to first put it into action and then to maintain it. Absence Many adaptation measures are “no-regret” measures. In other words, there are net benefits, including some positive externalities. These can create new opportunities. On the other hand, adaptation of planning for Page 58 externalities measures may also generate unplanned-for negative external effects in the short term. Absence of a scientific basis for policy and monitoring Sustained, long-term implementation requires scientific credibility. What is needed is good, comprehensive, science-based information that includes long-term trends Absence of a participatory process Nearly all the adaptation responses are best selected, developed, and implemented with active stakeholder involvement. Absence appropriate measures. Measures need to be appropriate for the area and its issue(s). They must also be effective i.e., they must achieve their intended goals of and technically effective Prepare for the unexpected In preparing for climate change, one needs to keep in mind the possibility of non-linear, abrupt changes or step functions which can alter the state of a coastal ecosystem quickly once a threshold has been reached. These uncertain but high consequence events (such as alteration of oceanic currents) need to be acknowledged and social resilience to cope with such changes developed as a consequence Report E Recommendations A more coherent and holistic utilization of natural coastal protection within the framework of climate adaptation is needed for Tobago. The CCARP provides some interim information on approaches /steps that could be used as a precursor to developing site specific and relevant coastal adaptation options for southwest Tobago. The following Recommendations were put forward by the consultancy to cover SW Tobago. RECOMMENDATION (REPORT E) TITLE COMMENTARY E1) Build the case for natural coastal protection E2) Bring coastal ecosystems into mainstream decision making processes 1. Advance coastal protection science - Understanding of ecosystem based coastal protection is advancing rapidly, but there is a continuing need to build on this research, synthesize existing literature and build better models. Such models must incorporate the complexity of natural environmental variation, including the influence of both the abiotic and ecosystem variables. THA need to clearly understand how much protection a given ecosystem will provide to the communities and infrastructure that lie behind it. 2. Quantify ecosystem services in addition to coastal protection - Natural systems provide a host of additional benefits alongside coastal protection e fisheries and recreation being key amongst those. Understanding and quantifying this full suite of benefits will help to “make the case” for maintaining and managing coastal ecosystems. Economic analyses comparing hard (or “grey”) and green infrastructure should account for long-term maintenance and potential co-benefits/losses of ecosystem services. These analyses should be simple and accessible to all levels of decision makers, and relevant to decisions that engineers and planners have to make. Non-monetary values should also be examined, including considerations of food security, livelihoods, vulnerability and culture. Often, ecosystems are considered only within the limits of environmental planning and decision-making. In order to account for the full potential of these systems to protect coastlines, and to maximize their ability to support human communities, one must avoid compartmentalization between sectors, and find ways of integrating these considerations into mainstream development planning processes. Specific recommended tasks are: 1. Consider ecosystems in vulnerability assessments of coastal communities; 2. Develop scenarios and tools that model complex combined risks; 3. Build decision support systems to help communities visualize impacts of and solutions for coastal adaptation Page 59 4. Engage stakeholders 5. Enact policies to ensure environmental integrity E3) Incorporate proven management interventions Many proven management tools, if applied in the context of adaptation planning, can be put into place quickly to bolster and maintain coastal protection. Marine Protected Areas (MPAs) aim to protect habitats and biota in situ, and thus can serve to protect the structural components of habitats critical for coastal protection purposes. MPAs are less effective at controlling ex situ and climate change impacts, but even here there is some evidence of increased resilience of corals, with more rapid recovery in MPAs following climate disturbance. Improving the design and management of MPAs and MPA networks for increasing the resilience of coastal communities and maintenance of natural coastal protection services in Tobago is urgently needed. E4) Financing options to Sustain the CCARP There will be a renewed need to consider new approaches and partnerships to help finance the long term delivery of risk resilient ICZM in Tobago. An essential requirement for ICZM is financial sustainability to help fund capital improvements on the coast and to operate and maintain them effectively. One key aspect of ICZM for Tobago‘s southwest coast is ensuring public access and “windows to the sea”. As ICZM in most countries is primarily a Government function, its “running costs” are funded by general tax revenues and there now a need, where possible, to incorporate private sector or partnership based resource taxes, levies, user charges and joint ventures. Developers and landowners of coastal access sites need to be “incentivised” to initiate a framework to help “climate proof” their assets and the shoreline frontage they lease which should help to make more resilient and improve coastal edge treatments and enable public access to the waterfront, providing recreational opportunities and protecting biodiversity and natural features of the coastal foreshore. One interesting model that has been adopted in the Middle East (Tobago) for large waterfront developments (adopted by the Government) is the use of Technical Interface Agreements (TIAs) as an attempt to manage the complexities arising from large scale Private Sector Master Plan investment projects (Atkins 2011). To help implement TIAs, Tobago enacted legislative decrees to help provide a viable means of procuring public infrastructure as part of large infrastructure projects as a PublicPrivate Partnership (PPP). A combination of TIA and PPP could be utilised to develop Tobago specific Waterfront Access Agreements (WAA) in the future. These could form part of the planning contributions legal agreement between the THA and the private developer. This would effectively be a ‘no-cost’ option for the THA as the developer would stand the cost and maintenance of the coastal development. Whilst the scale of likely interventions in Tobago is different to Tobago, a key feature of the TIA is that it manages the development of mixed private and public infrastructure within a masterplan area and this could be extended to include the nature and access features of the waterfront. Globally, with regard to ICZM, there are hardly any examples of PPP’s being delivered effectively. There are nevertheless significant benefits for GoTT by setting up partnerships (among several organisations, ministries, stakeholders) with regards to partitioning risk as well as financial support on ICZM issues. The domestic sectors within T&T (i.e. the government and private sector) bear most of the responsibility through self-financing or borrowing. Part of the risk may, however, be transferred to domestic and international insurers (within an agreed partnership “model” with the private sector) or possibly as part of future addendums to major contracts, or set as “conditions” within existing (or new) marine permits for developments. New tools such as Environmental Performance Bonds, as part of the permitting regime for developers, may complement traditional approaches by covering the highest layers of environmental risk. These instruments allow the government and domestic private sector to transfer risk. E5) Formalise Monitoring and Evaluation Procedures Evaluation is a formal or informal process of reviewing and analysing a project to determine whether it is effective. Because most climate change effects occur over time, and adaption measures show results over years, it is difficult to do a meaningful evaluation after just a brief period. However, planning for evaluation should begin immediately, and some measures may be evaluated for early effectiveness soon after implementation. The “mapping” of the above recommendations against proposed “Policy Directives” is presented in Section 4. B7 Report F: Coastal Ecosystem-based Adaptation (EbA) Guidelines Report F Overview A number of separate initiatives embraced this aspect of the TC as follows: ENHANCEMENT OF A LONG-TERM WATER QUALITY MONITORING PROGRAM Page 60 This monitoring program was started to help provide new data to identify and analyze the stressors from land based sources of pollution including nitrate, nitrite, ammonia, dissolved inorganic nitrogen, soluble reactive phosphates, chlorophyll A, total dissolved solid, total suspended solids, total organic carbon and faecal coliform) as well as climate change related stressors -water temperature and acidity. INSTALLATION OF A CORAL REEFS EARLY WARNING SYSTEMS (CREWS) ON BUCCOO REEF The CREWS contains a set of meteorological and air-based sensors which measure air temperature, wind speed and direction, barometric pressure, photosynthetically available radiation (PAR) and ultraviolet radiation (UVR). In addition there is a suite of oceanographic sensors which measure salinity, sea temperature, PAR and UVR. General guidelines for incorporating an ecosystem based approach to adaptation into a national ICZM Policy. A Coastal EBA Guidance Document was produced by McCue (2014b). This activity produced guidelines that incorporate climate change adaptation into an Integrated Coastal Zone Management Policy, including identification of best management practices for adapting coastal economic activities to risk. The report outlines a series of guidelines for the incorporation of an EbA into an ICZM Policy for T&T. It outlines the approach being taken to prepare the Guidelines for EbA and their inclusion within future ICZM policies and planning. It also identifies how climate resilience can (and should) be included into the design of EbA approaches at a national planning level and on the ground interventions. It then provides clarity on how to apply EbA principles into ICZM policy framework for T&T. The body of the report (Section 3) presents a logical stepped approach to help decision makers to incorporate EbA principles into ICZM and CCA decision making. It also identifies a series of “Courses of Action” that make the EbA principles more meaningful and digestible for all stakeholders (national decision makers to local community leaders etc.). This is then used to focus specifically on Southwest Tobago using the outcomes of recent work (e.g.: Halcrow 2014) to identify a series of Coastal Behaviour Units (CBUs) which then are assessed against future climate predictions and social vulnerability understanding to help identify the most appropriate Adaptation Responses (identified within the Climate Change Adaptation Response Plan for each CBU (taking into consideration EbA as appropriate). This Guidance concludes that a simple approach towards linking EbA principles with ICZM Policy Objectives is needed. This has been achieved by recommending a screening process that asks 5 simple EbA related questions that relate directly to the internationally accepted Convention of Biological Diversity EbA Principles. The guide also concludes that every effort is made to make the intended outcome clear for all stakeholders. The risk of “losing” stakeholders in the process, due to a lack of clarity of ultimate message is very high in T&T if this simple message is not adhered to. Report F Gaps and Observations No specific new gaps were presented in the report. The observations made have already been reflected in CCARP report. Report F Recommendations The following Recommendations were put forward by the consultancy to cover SW Tobago. RECOMMENDATION (REPORT F) TITLE F1) Adopt a simple glossary of terms and keep the message COMMENTARY The key recommendation for the delivery of EbA as part of an ICZM Policy for Tobago is that whatever principle, approach or concept is to be pursued, that every effort is made to make the Page 61 simple intended outcome clear for all stakeholders. The risk of “losing” stakeholders in the process, due to a lack of clarity of ultimate message is very high in T&T if this simple message is not adhered to. F2) Adopt a simple EbA “screening” process to assess which climate change adaptation responses need employing A screening process is recommended that asks 5 simple EbA related questions which relate directly to the internationally accepted Convention of Biological Diversity EbA Principles. The outcome of this process is that EbA principles have been used to demonstrate which adaptation responses are the most appropriate to employ and implement. B8 Report G: Mainstreaming Climate Change Considerations into ICZM for Tobago Report G Overview This report (McCue 2014c) focuses specifically on introducing a clear methodology for mainstreaming climate change adaptation into ICZM for T&T, taking into consideration recent strategic work completed (IADB 2013) for Government of Trinidad and Tobago on mainstreaming climate change into development planning for T&T. Report G Gaps and Observations The following gaps and observations were put forward by the consultancy to cover SW Tobago. CC Mainstreaming Gaps/Observations Institutional Leadership “Championing” Delivery Related and Commentary Experience has shown that finding the right person, a champion who has both gravitas and respect from government and the wider audience, to lead the above approach often results in greater traction and impact. In addition to this, designing how the mainstreaming into ICZM approach will be presented, who presents, the right audience, publicity around the study, etc., are all contributing factors to how well mainstreaming programmes will be taken up by the T&T government. International evidence has shown that often strong leadership drives mainstreaming and getting this leadership at the right hierarchical level to drive change is critical. Need for Financing Mechanisms Financing for climate change is a complex but serious issue for promoting mainstreaming of climate change into the governance, planning and management of coastal zones. Mainstreaming for adaptation to climate change does not come at no cost, revenues are required to establish the interagency linkages and to demonstrate the requirement and efficacy of adaptive measures. Funding has been widely held to be a limiting factor, but Benson et al (2014) state that because mainstreaming is effectively a lobbying exercise backed by evidence and analysis, it is an inexpensive and much can be achieved with relatively modest amounts of money. Often once governments realise the value of mainstreaming, it becomes part and parcel of government’s own work and hence can become a zeroexternal cost. Need for Clear Implementation Strategies The Tobago House of Assembly (THA) coupled with the Tobago Emergency Management Agency (TEMA) amongst others, have a mandate to coordinate, support, and advocate sustainable, efficient, and effective service delivery in Tobago. They are therefore important institutions to support crosssectoral (and synergy with Trinidad) delivery by public institutions and in partnership with civil society and private sector institutions. This sub-national level is critical to help offer the comparable advantage of being more closely attuned to having better knowledge of the development needs of local Tobagonian communities and local stakeholders. This level of government and implementation is therefore widely recognised as the most direct and effective area for development interventions and also as the most appropriate level for planning and implementing climate change adaptation measures. Need for effective Monitoring and Evaluation Systems to be in place. A results framework is needed for ICZM delivery in T&T that details the intended outcomes, outputs, and corresponding indicators for monitoring and reporting on the progress of ICZM and CCA. Key outcomes likely to be expected include enabling conditions, policies, instruments, capacity, and behaviours that support the integration of CCA into ICZM action plans, principally at central and local government levels, but also within private sector and civil society institutions. Consequently, ICZM Page 62 progress must reflect an assessment of progress and achievements against enabling conditions and fostering institutional demand rather than aiming to assess ICZM in relation to climate change adaptation or EbA delivery on the ground, which are both a product of many different actors and factors. Quantifying the level of contribution (and corresponding attribution) that an enabling ICZM programme has had on measurable impacts such as a reduction in flood risk and an improved coral reef or mangrove habitat health is, at the moment, complicated to measure. One way the ICZM process tries to address this challenge is through establishing climate change specific indicators in national coastal monitoring systems; however, it remains a challenge to periodically collect information against the indicators by the national governments. Need to apply a climate “lens” on any local livelihood security intervention. A key challenge for ICZM delivery in T&T is being able to establish a clear link between interventions in areas such as coastal resource management and integrated water resource management and their impact on coastal livelihood security and risk reduction. It is recommended that to take steps forward towards addressing this challenge is firstly, during sectoral policy formulation and planning, that a climate “lens” is applied to avoid maladaptation and from this, to identify potential opportunities resulting from climate change. Secondly, during the planning stage, interventions could include specific adaptation activities. Thirdly, during resource allocation, programme screening can be used to assess whether project proposals should include climate change risks. Report G Recommendations The following Recommendations were put forward by the consultancy to cover SW Tobago. RECOMMENDATION (REPORT G) TITLE G1) Adopt Mainstreaming Good Practice COMMENTARY It is, first and foremost, of urgency to stress that any mainstreaming approach must be able to sit comfortably within the structure of the CEDP 2013-2017. In particular, the goals and outcomes already defined for Priority Action 10 (Environmental Sustainability). This can be best achieved by following the 6 stepped methodological approach defined in Section 3 of this report, and where possible, to proposed the adoption of good practice (local to international). Good practices for successful mainstreaming implementation that have proven effective in coastal management worldwide include the following: • Use pilot projects to test how various policy measures might contribute to societal benefits; then use the results of these pilots to inform the broader audience that will be essential to getting adaptation measures adopted and implemented more widely. • Move the debate from one focused on “principles” and instead narrow the issues to focus more on individuals who are being asked to modify their use of the coast. Then focus on a common search for desired societal outcomes, e.g., healthy coastal ecosystems that support livelihoods etc. • Build confidence by firstly, addressing a simple issue; this sets the stage for then tackling issues that are more controversial or less clearly defined. • Conduct directed scientific research (i.e.: update the existing Halcrow vulnerability assessment to include social and ecological vulnerabilities) that adopts stakeholder concerns as real, and tests their hypotheses about the source of problems and their solutions. • Encourage a focus on interests and common threats, rather than on particular measures that might foster a hardening of views. • Demonstrate fairness by creating broad ICZM policies that do not single out particular groups, and do not deprive individuals of their constitutional rights (e.g. private property rights). • Encourage stakeholders to recommend and help test their own approaches and practices, possibly accompanied by a promise not to impose formal regulations on the sector as a result of the outcome of those tests. • Engage a full range of stakeholders in assessing vulnerability, selecting the course of action, and assisting in the process of mainstreaming. All important governing institutions and stakeholder groups need to be involved or informed of what is happening so that they can identify with the process and become active partners in implementation Page 63 G2) Improve Mechanisms Governance A key area which marks out any climate change mainstreaming programme as different from other projects (or programmes) is that mainstreaming specifically targets non-environment ministries. One of the key successes of mainstreaming is that it should stimulate the T&T government’s own demand for environmental mainstreaming rather than offering to carry this out through an external project. By using economic and financial data presented in the language of planners and economists, this evidences how good ICZM can meet the wider development goals of government. These planners and policymakers then demand services from line ministries such as the Ministry of Environment and Water Resources which links back to a challenge outlined above, bringing ministries into the mainstreaming process. Generating the T&T government’s own demand for working in a more coordinated manner is a more effective and sustainable way to bring ministries (such as the Ministry of Environment and Water Resources) into mainstreaming processes. It is recommended therefore that improved economics (and the understanding thereof) is used to better understand and communicate ICZM related challenges. These include cost-benefit studies, expenditure reviews, and quantifying the value of natural and social capital. This marks an important shift away from relying on general arguments for sustainability or inclusive policy approaches. Instead, ministries should be able to quantify the costs and the benefits of different climate change adaptation investment choices (on the coast) in a “currency” that the whole government understands. This recommended “economic lens” (along with other analyses methods such as multi criteria analysis – MCA)) is anticipated to help the T&T government to convince decision makers and their electorate of the necessity for change. T&T now need to attempt to quantify the economic value of their own coastal and marine resources, following the recent guidance set out in the IDB (2013) report (Project TT-T1033 “Understanding the Economics of Climate Change Adaptation” and also the “Waite, R., et al. (2014). Coastal Capital: Ecosystem Valuation for Decision Making in the Caribbean document. This approach also reflects the CEDP (2013-2017) Priority Action 2 “Good Governance and Institutional Reform”. G3) Introduce a Variety of Climate Finance Models The establishment of a range of sustainable financing mechanisms within T&T is a prerequisite for the long term viability and success of ICZM in the country. This is because different types of financing requirements are generally essential for different aspects of coastal and marine planning. It is concluded that the key financing mechanisms to help collect private sector contributions to assist ICZM delivery should be: Waterfront Access Agreements; Environmental Performance Bonds; Climate Bonds Each of these financing mechanisms will require more detailed feasibility assessments, financial contribution details and legal assessments of how each financing modality can be introduced into future developer contract terms and conditions still required attention. This approach also reflects the CEDP (2013-2017) Priority Action 3 “Business Development and Entrepreneurship”. Page 64 APPENDIX C: PROPOSED ICMSP OUTPUT FORMAT It is recommended (and as based on international best practice on ICMSP from other small island states that the reporting process needs to have a series of Volumes prepared. The ICMSP process for Tobago is therefore proposed to comprise of 3 main Volumes. This should initially commence with the production of a new overarching policy framework to help frame the way forward for ICMSP (Volume 1). It can then be supported by the production of two separate coastal and marine planning documents (Volumes 2 and 3): • Volume 1 - Integrated Coastal and Marine Spatial Policy Framework (ICMSP) for Tobago; (NB: this document shall be designed to represent the geographic coverage from the inland limit of the Coastal Management Area seawards to the limit of the EEZ); It shall describe THA Policy and institutional framework for ICMSP covering Tobago). Details shall be provided within the ICMSP framework such as who needs to take ownership of specific issues and when actions need to be taken (and by whom). • Volume 2 - Integrated Plan for the Coastal Management Area (CMA) for Tobago. This is a plan for all areas contained within the defined Coastal Management Area – referred to as the “CMA”. This Volume shall be comprised of a series of “Sub-Volumes” to cover different Coastal Management Units (CMUs) as defined in Figure 4.2. Volume 2 shall describe detailed recommendations tailored to conditions along the different Coastal Management Units (CMUs) assigned along the Tobagonian coast (series of Sub-Volumes). These Sub-Volumes shall clearly outline all relevant local administrative structures and procedures, statutory requirements and guideline actions to help deliver the appropriate development, conservation and management practices that are needed within the defined CMA within the CMU. Each Sub-Volume shall set out what needs to be done, advice on how it should be done, and indicate how organisations and individuals can and should play their part. The structure of Sub-Volumes shall be very similar. • Volume 3 - Integrated Plan for areas beyond the Coastal Management Area (Marine Spatial Plan) for Tobago. This is a plan for all marine waters seaward of the offshore boundary limit set for the CMA – i.e.: deeper than the -20m bathymetric contour or seaward of the reef flat. These 3 documents (and any new legislative regulation that may need to follow) shall represent the foundations for the future sustainable use of the Tobagonian coastal and marine environment. They shall demonstrate how best to ensure improved scientific understanding, communication, community involvement and cooperation are all achieved in an integrated manner to support a more robust and future-proof planning process in Tobago. NB: For Tobago, the priority attention for THA should be placed on preparing Volumes 1 and 2. Figure 4.1 outlines the indicative Sub-Volumes areas that represent the detailed action plans as part of Volume 2. It is proposed that for simplicity, the Sub-Volumes should be the Caribbean Coast and the Atlantic Coast (similar to that adopted in Barbados). Page 65 FIGURE 4.1: IDENIFICATION OF DIFFERENT COASTAL MANAGEMETN UNITS AND HENCE “SUB-VOLUMES” OF ICMSP VOLUME 2 (CARIBBEAN AND ATLANTIC COASTS). Page 66 Volume 3 - Integrated Plan for areas beyond the Coastal Management Area (Marine Spatial Plan) for Tobago. The momentum for future ICMSP delivery must be demonstrated through the creation of clear actions (initiated with evidence of THA support), commitment and improved auditability of stakeholder actions. It is important to stress that realising the tangible benefits of the ICMSP process is ultimately the responsibility of GoTT and THA. However, with the correct institutional structures, capacity, desire and commitment, there is no reason why ICMSP cannot become main-stream in the coming years. Page 67 APPENDIX D: INSTITUTIONAL CASE STUDIES D1: ICMSP – Institutional Delivery Case Studies The situation reported within this Appendix is not unique to the Caribbean but is shared with many other countries and regions from around the world who are currently seeking to design and implement a process of ICMSP. It is important to recognise that the implementation of ICMSP is in its infancy and there are no examples from other island states. In practice, this means there are no ‘off-the-shelf’ models that can be offered to Tobago for implementation, but there are a range of studies that can be used to suggest a way forward. Coastal and Marine spatial planning (MSP) is a process of analysing and allocating parts of threedimensional marine spaces (or ecosystems) to specific uses or objectives, to achieve ecological, economic, and social objectives that are usually specified through a political process. MSP is a process that is: ecosystembased (balancing ecological, economic, and social goals and objectives toward sustainable development); integrated across economic sectors and among governmental agencies; place-based or area-based; adaptive (capable of learning from experience); strategic and anticipatory (focused on the long-term); and participatory, with stakeholders actively in the process. Despite ICMSP being a relatively new approach, many potential economic and ecological benefits have been identified including: Economic Benefits: Creation of greater certainty to the private sector when it plans new investments, often with a 30year lifetime; Identification of compatible uses within the same area for development; Reduction of conflicts among incompatible uses and between uses and nature; Streamlined permitting process; and Promotion of the efficient use of resources and space. Ecological Benefits Identification of areas of biological or ecological importance; Incorporation of biodiversity objectives at the heart of marine spatial planning and management; Allocation of space for biodiversity and nature conservation; Provision of a planning context for a network of marine protected areas; and Reduction of cumulative impacts of human uses on marine ecosystems. Social Benefits Improved opportunities for community and citizen participation; Page 68 Identification of impacts of decisions on the allocation of ocean space for certain use (or non-use) for onshore communities and economies; Identification and improved protection of cultural heritage; and Identification and preservation of social and spiritual values related to ocean use. From the International examples available, this report has focused on three “model” countries that appear to possess approaches and plans that address the range of issues and situation of Trinidad and Tobago. These are taken from the United Kingdom, United States and Syria (see Boxes 2 – 4). Other examples of ICMSP that are available from the International arena (see http://www.unesco-iocmarinesp.be/msp_references) are principally focused on environmental conservation and it is important for considering for Tobago that, although the environment is important, there is a strong focus on ICMSP that also includes economic and social issues. The Appendix also focusses explicitly on examples that demonstrate elements of a public process of analyzing and allocating the spatial and temporal distribution of human activities in marine areas to achieve ecological, economic, and social objectives that usually have been specified through a political process. Characteristics of marine spatial planning include ecosystem-based, area-based, integrated, adaptive, strategic and participatory. Despite the many cultural and institutional differences that exist between the three countries, they all share a number of common challenges. In summary, none possess an overall framework for planning marine use. Instead, there is an ad hoc sectoral approach to consenting of marine activities, involving different pieces of legislation, using different scales and means of mapping, and all managed by different authorities. By reducing conflict and bureaucracy, economic development and the environment can both benefit to the mutual advantage of both, and industries can benefit from clear guidance on where they can develop sustainably. It is the only way to examine the cumulative and in-combination impacts the many different maritime industry sectors have on coastal and marine space, by presenting an overview of all human activities and developments in an area. Page 69 Boxes A 6.1 to A 6.3 summarise the institutional structure that has been established in each “model” country reviewed. Box A 6.1. Institutional structure to deliver ICMSP in the UK In the UK, the Marine Management Organisation (MMO) has been established (April 2010) to make a significant contribution to sustainable development in the marine area and to promote the UK government’s vision for clean, healthy, safe, productive and biologically diverse oceans and seas. The MMO is an executive non-departmental public body (NDPB) established and given powers under the Marine and Coastal Access Act 2009 that brings together key marine decision-making powers and delivery mechanisms. As a NDPB, it is established by statute to carry out administrative, commercial, executive or regulatory functions on behalf of the Government using its own staff and with its own budget. It provides specialist advice to Ministers and other groups and has a national remit. The MMO now incorporates the existing work of the Marine and Fisheries Agency (MFA) as well as having a role in marine-related powers and specific functions previously associated with the Department of Energy and Climate Change (DECC) and the Department for Transport (DfT). The establishment of the MMO as a cross-government delivery partner marks a fundamental shift in planning, regulating and licensing activities in the marine area, with the emphasis on sustainable development. The specific responsibilities include: Implementing a new marine planning system designed to integrate the social requirements, economic potential and environmental imperatives of UK seas. Implementing a new marine licensing regime that is easier for everyone to use with clearer, simpler and quicker licensing decisions. Managing the UK fishing fleet capacity and UK fisheries quotas. Working with Natural England and the Joint Nature Conservation Committee (JNCC) to create and manage a network of marine protected areas (marine conservation zones and European marine sites) designed to preserve vulnerable habitats and species in UK marine waters. Responding to marine emergencies alongside other agencies. Developing an internationally recognised centre of excellence for marine information that supports the MMO’s decision-making process. Page 70 Box A 6.2. Institutional structure to deliver ICMSP in the US The National Ocean Council (NCO) is a dual Principal and Deputy level committee. Membership of the NOC initially includes the following: The Secretaries of: State, Defence, the Interior, Agriculture, Health and Human Services, Commerce, Labour, Transportation, Energy, and Homeland Security The Attorney General The Administrators of: the Environmental Protection Agency (EPA) and the National Aeronautics and Space Administration (NASA) The Chairs of: The Council on Environmental Quality (CEQ), the Federal Energy Regulatory Commission (FERC), and the Joint Chiefs of Staff The Directors of: the Office of Management and Budget (OMB), National Intelligence, the Office of Science and Technology Policy (OSTP), the National Science Foundation (NSF) The Assistants to: the President for National Security Affairs, Homeland Security and Counterterrorism, Domestic Policy, Economic Policy, and Energy and Climate Change An employee of the United States designated by the Vice President The Under Secretary of Commerce for Oceans and Atmosphere (NOAA Administrator) The NCO operates through a number of Committees: Steering Committee: the key forum for ensuring integration and coordination on priority areas within the NOC. Ocean Resource Management Interagency Policy Committee which functions as the ocean resource management body of the NOC, with an emphasis on ensuring the inter-agency implementation of the National Policy, national priority objectives, and other priorities defined or approved by the NOC. Ocean Science and Technology Interagency Policy Committee (OST-IPC) that functions as the ocean science and technology body of the NOC, with an emphasis on ensuring the inter-agency implementation of the National Policy, national priority objectives, and other priorities for science and technology objectives. Governance Coordinating Committee which consists of 18 members from states, federally-recognized tribes, and local governments. The responsibilities include: Support sustainable, safe, secure, efficient, and productive uses of the ocean and coasts; Provide for and maintain public access to the ocean and coasts; Promote compatibility among uses and reduce user conflicts and environmental impacts; Improve the rigour, coherence, and consistency of decision-making and regulatory processes; Increase certainty and predictability in planning for and implementing new investments for ocean, coastal, and Great Lakes uses; and Enhance inter-agency, intergovernmental, and international communication and collaboration. Page 71 Box A 6.3. Institutional structure to deliver ICMSP in Syria Syria has established a high level Inter-Ministerial Committee (IMC), a statutory authority to oversee the development of its coastal zone. The IMC has high-level representatives of ministries and departments with responsibilities for the management, and protection of the coastal zone, including environment, local administration, development planning, spatial planning, urban development, health, water management, agriculture, fisheries, industry, transportation, tourism, maritime authority and economy. The IMC also includes agencies to support, facilitate and deliver ICMSP. The composition of the IMC includes: The Environment (president of the committee); The Governors of the two coastal governorates in the country, Lattakia and Tartous, High level representatives (at least deputy minsters) of major ministries with a direct interest in the coastal zone; The general directors of environment and water resources institutions at central and local level; Members of the People’s Council from the coastal governorates, and Prominent personalities and experts. The main task of the IMC is to ensure that the vision, policy, strategy, and NAP intended to apply Integrated Coastal Zone Management (ICZM) approach and rules to the Syrian coastal zone are supported and eventually committed to by the government and the public. D2: Institutional Findings Key features common to the three “model” country examples are: They seek to provide an integrating mechanism within the existing Government structure, i.e. they do not advocate a sweeping re-organisation of Government. They recognise the importance of environmental quality to support sustainability and economic development. They recognise the need for good data management and decision-making support. They address the need to reconcile the demands of working in a complex political environment with the current and future challenges arising from economic and social pressures as well as ‘natural’ changes such as climate change. Page 72 They also recognise the need for public and private sector participation and support (through issues such as public access) to the planning process and its implementation. The Institutional structures designed for these three “model” countries therefore appear to provide some remedies to the principle institutional failings identified for Tobago so far as ICMSP is concerned. These fall into 5 key findings: Finding 1: There are few functional links for cooperation or collaborative working between Government agencies. This includes the absence of leadership for coastal and marine management or agreement on responsibilities and jurisdictional boundaries between agencies. The result of this is there is no National Leadership or structure for delivering ICMSP and there is limited policy connectivity within the GoTT. Finding 2: There is little cooperation, collaboration or partnership between Government and the private sector despite the huge economic and resource demands and opportunities of development and growth. The result of this is missed opportunity from development projects to benefit the wider Tobagonian society. Finding 3: There is little cooperation, collaboration or partnership between Government and the public (society) on coastal/marine matters (including NGOs). The result of this is a disenfranchised general public who feel unable to contribute to sustainable development of Tobago’s coastal and marine space. Finding 4: Accessing information and data is ineffective and not common between all users. The result of this is that available information and knowledge cannot properly inform any decision making process. Finding 5: A lack of stewardship (entrusting people and organisations with a responsibility to care for their social, economic and natural environment) of the coastal and marine space by all parties who protect narrow self-interests. The result of this is that there is ineffectual planning, regulation, enforcement or management of the coastal and marine space and resources of Tobago. Page 73