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RECOMMENDATION FOR A NATIONAL PARK
POLICY FOR ANTIGUA

by

Angela O. Braithwaite

A PLAN B PAPER

Submitted to

Michigan State University
in partial fulfillment of the requirements
for the degree of

MASTER OF URBAN PLANNING

School of Urban Planning
and Landscape Architecture

1982

 

4 '3'. n RY

. r."

TABLE OF CONTENTS

INTRODUCTION . . . . . . . . . . . . .

Objectives. . . . . . . . . . . . . . . .
Methodology . . . . . . . . . . . . . . .
Outline . . . . . . . . . . . . . . . . .

BACKGROUND INFORMATION . . . . . { . . . . . .
LEGISLATION AND POLICY . . . . . . . . . . . .

Existing Legislation. . . . . . . . . . .
Analysis of Existing Legislation. . . . .
Existing Government Policy. . . . . . .
The Need for New Legislation and Policy

THE NATIONAL PARK SYSTEM . . . . . . . . . . .

Rationale . . . . . . . . . . . . .
Purpose . . . . . . . . . . . . .
Statement of Policy . . . . . . . .
Objectives of National Park System. .
Criteria for Inclusion of Areas within the
National Park System Plan. . . . . . .
Categories of Protected Areas . . . . . .

METHODS OF CREATING UNITS OF THE NATIONAL PARK
MANAGING THE NATIONAL PARK SYSTEM . . . . . .

Protection of Resources . . .

Outdoor Recreation. . . . . .

Information, Interpretation an
Facilities and Services . .
Research. . . . . . . . . . .
Interagency Coordination. . .
Administrating Body . . . . .
Management Plans. . . . . . .
Establishment of Regulations and Penalties
Finance . . . . . . . . . . . . . . . . .

ducation

00009....

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SUMMRY O O I O O O O O O C O O O O O O O O O 0
CONCLUSION C O O O O O O O O O O O O O O O O O

BIBLIOGRAPHY O O O O O O O O O O O O C I O O O

SYSTEM.

PAGE

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INTRODUCTION

Antigua is a small country, approximately 108 square
miles, with finite natural resources, and a growing popula-
tion totalling 75,000 in 1980. The present land man ratio
is less than one person per acre. With future population
estimates,this figure is expected to be reduced further by
the next decade. Population growth together with rising
standard of living mean more people will use these resources
for holiday and recreation. In addition to the ever-growing
numbers of people using these resources, pressures of another
kind have arisen from the competing demands of other forms
of land-use such as agriculture, industry, water conservation,
and urban and tourist developments. Thus, the judicious
allocation of these limited natural resources will require
adroit planning by government. This planning has become
important in view of present rapid economic growth which has
created demands not only for limited resources but also for
new opportunities and services.

Existing legislation, although recognizing the need for
protection of natural areas, has been inadequate to carry
out the various environmental, social, economic and conserva-
tion objectives of the country. Similarly, existing policy

regarding the administration of the country's natural and

q
'5

‘.

cultural heritage has not been sufficiently defined to allow
for proper management. Destruction of natural and cultural
areas, increasing recreation demand, outdated legislation,
undefined executive responsibility and lack of management
guidelines are some of the factors which have indicated the
need for a new policy.

Therefore, the purpose of this paper will be to formulate
a national park policy which will provide a course of action
for the protection and management of the island's outstanding
natural and cultural areas. This suggested policy should
serve as the basis for the establishment of a National Park
System. In addition, it will encourage public understanding,
appreciation and enjoyment of the heritage in ways which will
leave it unimpaired for future generations.

The National Park Systems (NPS) will be divided into
six categories of management areas in order to provide ade-
quate protection to the variety of resources. The categories
will be named as follows: Scientific Reserves, National Parks,
National Landmarks, Scenic Landscapes, Historic and Cultural
Sites and Recreation Parks. The variety of protected areas
should be visualized as a spectrum, from those which require
fairly rigid protection such as fragile ecosystems, to those
which can be used for intense outdoor recreational activities

such as beaches.

C?

OBJECTIVES

 

The major objectives of the paper are:

1. To examine present legislation and policy of park
and recreation resources.

2. To propose recommendations for a national park

policy for Antigua.

The first objective will be accomplished by reviewing
the existing legislation and policy of Government pertaining
to park and recreation resources. The outcome of this review
will determine the adequacy of these measures to protect -
natural areas. The second objective is contingent on the
first. If natural areas are properly protected, then there
will be no need for a new policy. However, this has not been
the case as even a cursory observation will reveal. Natural
areas are being exploited due to the absence of stringent
government mandate. Ideally such a mandate should be ex-
pressed in law, thereby affording natural areas protection
and management. This objective will, therefore, be accom-
plished by reviewing model national park policies and then

formulating one to fit the Antiguan situation.

METHODOLOGY

 

Data required for this study were obtained from second-
ary sources. These sources provided the historical or back-
ground information and formed the theoretical base. The
study relied heavily on data obtained from government docu-

ments and published laws of Antigua. Information gained

o

from planning reports were also helpful in formulating this
policy. The format for this policy was adapted from "Manual
for National Parks Planning" prepared by the United Nations,
Food and Agriculture Organization and "Policy for the Estab-
lishment and Management of a National Park System in Trinidad
and Tobago" prepared by the Trinidad Forestry Division and the

Forestry Division of the Organization of American States.

OUTLINE

The paper will start with an overview of the island's
population, climate, and regional location which will be
followed by a synopsis of the state of the art in the protec-
tion of natural resources. Analyses of existing legislation
and policy will be done and a proposal for new legislation and
policy will be made. The paper will proceed to give a ration-
ale for the establishment of a National Park System and then
lead into the development of the NPS policy. In this section,
the purpose, objectives, system's plan, criteria for selecting
areas to be included in the system and the different categor-
ies of protected areas will be discussed. Following will be
a description on how units of the NPS will be created. Lastly,

directives on managing the system will be outlined.

C3

BACKGROUND INFORMATION

Antigua is located at 17.03° north latitude in the midst
of the Caribbean Sea and is one of the Eastern Caribbean
islands. Its regional location is shown on Map I. The
island is partly volcanic and partly coral, and is surrounded
by superb white sand beaches which are almost entirely reef—
protected. The average annual temperature ranges between
76 degrees Fahrenheit in January/February and 81 degrees
Fahrenheit in August/September (Macpherson: 1977).

The island's small size has made it very sensitive to
increases in population. The average population density was
694 persons per square mile in 1980. Thus, urbanization and
its concomitant problems have brought into sharp focus the
need for conservation and preservation of the island's natural
resources. During the Colonial era, the relatively flatness
of the island facilitated removal of the original forest cover
by the sugar planters. Present public and private development
activities have resulted in destruction of many of these re-
sources.

Government has been slow to protect these assets ade-
quately. Present measures to protect natural areas are pro-
vided through ordinances which call for the establishment of

public parks and marine environments. While these areas were

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being created, no effective measures for their ecological
protection, recreational and educational uses, or management
were provided. Although one area, Salt Fish Tail Reef Park,
was established under the Marine Areas Preservation and
Enhancement Act, no management policies were specified in
the Ordinance.

It is imperative that Government take immediate action
to develop a national policy if these unique natural and
cultural resources are to be protected for present and future
generations. Proposals for two national parks have been made
by the United Nations Physical Planning Unit and the Develop-

ment Control Authority. In addition, these bodies drafted a

model legislation entitled, 'The Protection of the Environment

Act, 1976'. This Act has the potential to provide a sound
legislative base for future park and recreation plans.

The creation of a national park system should be a
serious commitment, written into legislation and reversible
only under the most pressing circumstances and by due legal
process (Quigg: 1978). Therefore, the following section will
examine the existing legislation and policy which are related
to national parks, and then determine the changes needed to

safeguard natural areas in perpetuity.

LEGISLATION AND POLICY

EXISTING LEGISLATION

 

This section will review and analyze existing legisla-
tion and policy relevant to the protection of the environment.
Presently there is no legislation in Antigua which provides
the necessary mandate for the establishment and management
of national parks. However, some of the legislative acts
and ordinances address certain aspects of the administration
of public lands for conservation and protection. Those

concerned with these functions are:

The Public Park Ordinance, No. 4, 1965

 

This Ordinance makes provision for the establishment of
Public Parks. It deals with the preservation of natural
features such as flora and fauna; and the preservation of
buildings of architectural, historic or artistic interest
and the protection and augumentation of the amenities of such
buildings. Under the Ordinance,a Public Parks Commission is
created and is responsible for the preservation and enhance-
ment of natural beauty in designated Public Park areas; and
for encouraging the provision or improvement of facilities
for persons resorting to these areas to enjoy. Ample oppor-
tunities for the enjoyment of outdoor recreation is another

stipulation of the Ordinance.

14"»)

The Beach Protection Ordinance, No. 7, 1957

 

This Ordinance prohibits the removal of sand, stone,
shingle or gravel from any beach or seashore in the island
for building or construction purposes or for the purpose of
providing ballast for vessels, except where authorized by

the granting of a permit.

The Dumping at Sea Act, No. 29, 1975

 

The purpose<mfthis Act is to control dumping of substances
or articles from ships, aircraft, vehicle, hovercraft or marine
structure of equipment into the sea. The restrictions imposed
by this Act are twofold: to prevent marine pollution, so as
to protect coastal ecosystems; and to preserve and enhance

beach areas for recreational pursuits.

The Marine Areas Preservation and Enhancement Act, No. 5, 1972

 

This Act states that the Minister of Agriculture, Lands,
and Fisheries may by order published in the Gazette, designate
any section of the marine areas of Antigua as a restricted area
under certain conditions. An area may be declared restricted
when special steps are necessary to preserve and enhance nat-
ural beauty, to protect flora, fauna and wrecks found in the
area, to promote public enjoyment of the area, and to promote

scientific study and research.

Wild Birds Protection Ordinance,Chapter 115, No. 26, 1974
This Ordinance regulates the hunting of wild birds

throughout the State during specified time periods. The

-10-

Governor may extend or vary the prohibition time for killing,
wounding, taking, exposing, offering for sale and purchasing

of any wild bird, or for taking, removing, injuring or destroy-
ing the nest or eggs of any wild bird. Hunting of wild birds
is prohibited within the Potworks Dam and Oliver's Dam

vicinities.

Town and Countrerlanning Ordinance, 1948

 

Under this Ordinance provision is made for the prepara-
tion of Statutory Development Plans. In these plans, provi-
sion may be made for the following amenities:

1. Allocation of lands for:

a. Community parks
b. Protection of marine life

2. Preservation of buildings, caves, sites and objects
of architectural or historic interest.

3. Preservation or protection of forests, woods, trees,
shrubs, plants and flowers.

4. Prohibition, regulation and control of deposit or
disposal of waste materials and refuse, of sewage

disposal and of the pollution of streams, ponds,
gullies, reservoirs and the seashore.

Land Acquisition Ordinance, 1969

The Land Acquisition Ordinance is another legislation
which is related to the establishment and management of a
system of national parks. It authorizes the acquisition
of land for public purposes and outlines the procedures and

laws governing the acquisition.

-11-

ANALYSIS OF EXISTING LEGISLATION

 

While the present legislation provides for the estab-
lishment of marine areas, public parks and for the protection
of beaches, it has not articulated the management policies
necessary to assure the protection of the natural, cultural
and recreational resources required for areas within a na-
tional park system. This lack of managemental mandate has
resulted in the destruction of many of the island's unique
and outstanding resources.

In the case of public parks, uncontrolled animal grazing
and the cutting of trees for theknuufixmgof charcoal have
reduced the number of plant and animal species, and in some
instances, have accelerated soil erosion problems. The
Wild Birds Ordinance regulates only the hunting of wild birds.
No similar protection is extended to other wildlife. This
Ordinance does not make any provision for the establishment
of wildlife sanctuaries, without which it is difficult to
enforce the Ordinance. Also in areas where hunting is pro-
hibited, other activities such as tree plantations and quarry-
ing have tended to destroy the habitat upon which the wild-
life depend, and have inevitably jeopardized the wildlife's
welfare.

Together, the Beach Protection Ordinance and the Dumping
at Sea Act provide ample protection to coastal waters but do
not regulate the development of shorelines. Shorelines of
both inland and coastal waters are unique resources, therefore,

their management is of prime importance. Pressures on these

-12-

resources are increasing, and more so, as tourism replaces
agriculture as the mainstay of the economy. There are no
laws governing the dumping of waste into inland water bodies
and mangrove areas. Consequently, pollution has destroyed
some valuable water-oriented recreation opportunities and
could be fatal to wildlife species. As a sanitation measure
alone, the abatement of pollution is a necessity.

The Town and Country Planning Ordinance, while providing
the planning tools, is not intended for management purposes
and does not address this aspect, or specifically mention
national parks. Likewise, the Marine Areas Preservation and
Enhancement Act provides the legislative mandate for protec-
tion and recreational use, but does not provide the insti-
tutional structures necessary to effect the management of the

areas created.

EXISTING GOVERNMENT POLICY

 

Presently, there exists no formal government policy
which deals with the establishment and management of a system
of national parks. This absence may be attributable to the
fact that Antigua does not yet have a Comprehensive Develop-
ment Plan. Existing, however, is a Territorial Plan (Develop-
ment Plan for the State) which contains broad guidelines for
the use of lands and also highlights characteristics and
trends of particular importance to the future development

of the State (Antigua Physical Planning Department and United

-13-

Nations Physical Planning Unit: 1976). The Territorial

Plan is based on the physical characteristics of the island
and is the first step toward the formation of a comprehen-
sive and integrated land use policy. In the meantime, the
plan is used as a preliminary guide for the Development
Control Authority (central co-ordinating authority) in carry-
ing out its responsibilities particularly at the "short-term
planning” level.

Although the Territorial Plan has not detailed a national
policy for the establishment ofaanational park system, it
has set policies for the use of the land.. Some of these
policies are directed towards the goals and objectives of
Government in the areas of environment, conservation and
protection of natural resources, and have thus provided
the framework on which specific policies dealing with national
parks could be based.

Supplementary to the Territorial Plan is another document
entitled 'The Environment'. This report has highlighted the
need to preserve or protect certain vital environmental and
manmade assets having significance to the ecology and culture
of Antigua. In addition, the report provided comprehensive
planning with landuse guidelines for two 'Tourism Districts',
one in the St. John's/Dickerson Bay region, and the other in
the English Harbour/Falmouth area (Antigua Physical Planning
Department and United Nations Physical Planning Unit: 1976).

These areas contain the most outstanding natural and cultural

-14-

assets found on the island and have been recommended in the
Territorial Plan for special protection and development for
the benefit of tourism and national recreation. The report
also included a model legislation entitled, 'The Protection

of the Environment Act, 1976'. This Act is very comprehensive
and can provide the legal base for protective measures, with
special reference to buildings and sites of cultural interest
and National and Marine Parks. Enactment of this legislation
is still pending.

The Antiguan Government has been more aggressive in
formulating tourism policies. According to the 1980-1984
Socio-Economic Development Plan, the main goals of tourism
are: increase the number of tourists; generate employment;
develop linkages between tourism and other sectors of the
economy; utilize environmental and historical attractions to
maximize economic earnings. Unfortunately these goals are
not seen in the context of effective resource develOpment
which retains the aesthetic or amenity value of the landscape,
and/or which creates recreational opportunities.

The above conditions have clearly demonstrated the need
for new legislation and policy which will not only create

national parks, but also provide protection and management.

THE NEED FOR NEW LEGISLATION AND POLICY
Several factors have contributed to the need for a clearly

defined policy and legislative mandate to establish and manage

1!

-15-

a system of national parks. Among the more critical factors
are: the destruction of natural areas, increasing recreation
demand, outdated legislation, undefined executive responsibil-
ity and the lack of management guidelines.

The rapid rate of alteration and destruction of the
natural environment make it imperative for Government to
exercise greater effort to preserve what remains. By doing
this, a sound base for social and economic development will
be created. Growth in the industrial, residential, agricul-
tural, water resource, forestry, tourism, recreation and
other sectors is creating increasing demand on the remaining
natural areas. The impact of these uses is often incompatible
with the normal evolutionary processes of natural areas.
Technological advances have also augmented and accelerated
the rate of destruction of natural areas.

The dwindling diversity of habitats and natural condi—
tions is threatening the survival of many species of plants
and animals. In addition, the consequences of unsound land
management practices have resulted in flooding, erosion, silta-
tion and other undesirable social, economic and environmental
problems.

The shorter work week has resulted in a society with
more discretionary time and consequently more time for leisure
and recreation activities. Also increased education, personal
income and automobiles have caused a surge in demand for out-

door recreation (Outdoor Recreation Review Commission: 1968).

-16-

The growing population, with more leisure time and living
largely in cities, has not only brought about new challenges
for.the provision of outdoor recreation but a recognition

of the need to preserve Open spaces. Urbanization has gen-
erated an enormous demand for non-recreation as well as
recreation uses of land and water and should put a premium
on the more efficient use of land. Increased mobility has
greatly enlarged recreation opportunities by increasing the
accessibility of the outdoors.

Legislation,governing protected areas that have been
established,is not adequate to assure proper protection and
use of the country's outstanding natural and cultural heri-
tage. For example, quarrying and other unregulated practices
are allowed in some protected areas which often destroy re-
creational values, natural habitat and disrupt functioning
ecosystems. As yet no legislation exists that creates
national parks.

The management of public lands that could be considered
as part of the national park system is carried out by a
variety of agencies. In the absence of national policy and
legislation, each agency follows its own policies which are
often different in management objectives. The absence of
national policy and legislation has led to a situation where
no specific agency is legally or administratively responsible
for implementing and coordinating the country's policy in

the area of nature protection or providing and managing

4
‘ .
..r

-17-

areas offering diversity in outdoor recreation opportunities.

No system exists for classifying the different kinds of
protected areas necessary for the execution of the environ-
mental policies and objectives of Government. For example,
no uniform definition of the term national park has been
adopted by government. This has led to a wide difference in
characteristics and criteria for selection of areas that have
been suggested as national parks. Also management agencies
have no guidelines to enable them to carry out necessary plans
and programs.

The inadequacy of existing legislation and the absence
of policy relating to natural area have contributed to their
deterioration. In its 5-year Socio-Economic Development Plan,
Government listed the utilization of environmental and his-
toric attractions to maximize economic earnings as one of
its major goals. It seemed ironic for Government to rec0g-
nize the economic gains to be derived from these resources,
yet at the same time, failed to recognize their finite nature
or fragility. It will take political will, good management,
and finance to prevent deterioration of natural and cultural
resources. Furthermore, their full economic, recreation,
scientific and educational values will only be realized
when they are adequately protected. The following quote from
Philip Quigg supports this idea:

...land conservation, far from being in
conflict with development, is both sup-

portive and essential. Yet for success
in either conservation or development,

-18...

these benefits must be perceived by the
people affected and by those who make
decisions. However, important as it may
be to maintain ecological diversity, con-
serve genetic resources, and preserve
sample ecosystems in a natural state,
vital public and governmental support for
national parks and protected areas is un-
likely to be gained unless the full range
of possibilities is rec0gnized. The real
issue is the wise use of natural and cul-
tural resources. The purposes for which
land may be preserved are many, and conser-
vation is no longer an isolated movement
but a central factor in land-use planning
and economic development (1978).

The foregone discussion has indicated that the planning
of a system of national parks and protected areas must be
an integral part of the national planning process (Quigg:
1978; United Nations, Food and Agriculture Organization:
1976). Natural areas, like any other major development
activity, warrant effective and continuing protection. There-
fore, the first step in accomplishing this will be for Govern—
ment to formulate a National Park Policy which will be im-
plemented through a National Park System. The aim of this
System will be to ensure natural resources are adequately
protected, developed and managed.

The following section will discuss the reasons for
protecting natural areas through a NPS. More importantly,
it will outline a model policy to protect the environment
from excruciating pressures and thereby accomplish the main

objective of the paper.

"‘3

-19-

THE NATIONAL PARK SYSTEM

RATIONALE

 

Demographic and economic pressures have created public
awareness of and appreciation for the recreational value of
parks and reserves as open space, especially in cities
(Australian Academy of Science: 1968; Outdoor Recreation
Resources Review Commission: 1962). National parks are
important for scientific studies of a country's native flora
and fauna, and for the preservation of unique resources, in
general. In addition, national parks are important culturally
and economically. 'The above reasons have indicated the
necessity for a country to safeguard, in perpetuity, repre-
sentative samples of its many landscapes with their communi-
ties of native flora and fauna, and cultural assets (Australian
Academy of Science: 1968). The establishment of a NPS will
be essential to protect these resources in perpetuity. This
will require a greater determination on the part of Government
to express this in policy.

The Antiguan Government has been slow to protect these
resources adequately. The time is overdue for critical
evaluation to be made concerning the use of the island's
numerous natural and cultural resources and of the future

place that they can and should have in the nation's develop-

.f‘.‘

-20-

ment. There is now even greater urgency for this to be done
because of increasing pressures of various kinds. Pressures
have arisen from the ever-growing numbers of people desiring
outdoor recreation. Pressures of another kind have arisen
from competing demands of other forms of land-use such as
agriculture, forestry, mining, water conservation, and urban
and tourist developments. These justify the need to create
national parks for the preservation of natural and cultural
beauty and for the enjoyment of the people. However, care
should be taken to prevent areas set aside as national parks
from becoming isolated refuges for the preservation of the
landscapes and communities which they contain, and to prevent
their resumption for developmental purposes by government and
private enterprise (Quigg: 1978). Therefore, the best way to
create or establish national parks is by enactment rather than

by decree.

PURPOSE

The purpose of this suggested National Park Policy will
be to provide adefinite course of action for programs con-
cerned with the protection of the island's national heritage
and the provision of outdoor recreation activities. Ideally,
it will incorporate and integrate the intent of Government
policy in a number of related areas such as environment,
conservation, forestry, tourism and recreation. Further, it

will provide the basis for legislation necessary to protect

E"?

-21-

and regulate the use of the country's outstanding natural

heritage.

STATEMENT OF POLICY

 

It is recommended that the Antiguan government establish
a national park policy which will read as follows: to pro-
tect in perpetuity representative samples of the country's
natural heritage and to encourage public understanding,
appreciation and enjoyment of the heritage in ways which
leave it unimpaired for future generations (Outdoor Recreation
Resources Review Commission: 1968; Thelen and Faizool: 1980).
This policy will be implemented through the establishment
of a National Park System.

The National Park System will consist of terrestrial
and marine areas of exceptional value which will be preserved

for the country's inhabitants.

-22-

National Park Systems Objectives

 

Areas will be established within the National Park System
to meet one or more of the following objectives. A 1976
Publication of the Food and Agriculture Organization of the
United Nations listed these objectives as desirable for inclu-

sion in a system of national parks:

0 Preserve and interpret buildings and/or areas that
include sites and objects of historicalanuiarcheolog-
ical significance. These areas or sites will be
maintained in the context of the natural resources
and outdoor recreation opportunities surrounding them.

0 Maintain in a natural or near natural state areas
that constitute examples of the country's various
terrestrial and marine ecosystems, landscapes and
geological formations, in order to guarantee the
continuity of the evolutive processes, natural genetic
succession patterns and their existence for future
generations.

0 Provide and protect natural resources for healthful
and constructive outdoor recreation needed by the
countries citizens.

0 Protect, manage and improve the natural and cultural
landscapes of the country in order to maintain the
visual quality of the environment.

0 Stimulate national and international tourism potential
and consequent foreign exchange earnings.

0 Preserve genetic materials as elements of natural
communities, prevent the loss of any plant or animal
species and maintain natural diversity.

0 Protect and manage fish and wildlife resources for
their important role in environmental regulation,
sport and recreational activities and producers of
proteins.

0 Provide a variety of natural features for research,
formal and informal education and study and the moni-
toring of environmental factors.

-23-

. 0 Protect and improve watersheds and water courses to '
maintain high standards of quality, quantity and even
flow; control and prevention of erosion, sedimentation
and flooding; and protection of investments that depend
on water supply, such as reservoirs and irrigation pro-
jects.

Criteria for Inclusion of Areas Within the National Park System
Plan

 

Fundamental to the preparation of a plan for the National
Park System are the criteria used to determine what constitute
national natural and historical significance. Terrestrial or
marine areas will be selected for inclusion in the plan if they

represent one or more of the following:*

0 an ecosystem or complex of ecosystems or vegetative
associations illustrating important natural character-
istics of the country.

0 ecosystems illustrating the process of succession and
development towards an advanced successional or climax
state.

0 habitats supporting an endangered, vulnerable, rare or
important species of plants or animals.

0 areas which are functionally linked to important biolog-
ical, cultural or economic systems (nesting sites,
migratory routes, fish nursery grounds, estuaries,
critical watersheds, etc.).

o habitats supporting seasonal concentrations of animals
or providing critical functions in the life history of
a species.

0 outstanding unusual or unique geological formations or
features signficantly illustrating geological processes.

*Thelen and Faizool, 1980; Minnesota Metropolitan Council, 1974.

1"

-24-

. outstanding examples of the natural or cultural
scenic heritage of the country.

0 sites providing outstanding outdoor recreational
opportunities, the quality of which will be evaluated
on the basis of the natural resources and such factors
as access to population concentrations, carrying capa-
city and economic and social development programmes.

0 sites associated with events or the lives of persons
which have made a significant contribution to the
broad cultural, political,economic, military, or social
history of the country.

0 Archeological sites that provide further knowledge of

the historic and prehistoric cultures and patterns of
settlement.

Categories of Protected Areas

 

Any area or site which will be included in the NPS must
meet one or more of the above mentioned criteria. However, the
most effective management of the various unitg?Eequire the pro—
vision of a range of management options to activate the spec-
ific objectives. Within the two areas designated as NP are
the finest examples of natural,cultural and recreational assets
found on the island. Natural assets consist of natural areas
such as beaches, mangroves, swamps, scenic areas. Cultural
assets include buildings of architectural and/or historic in-
terest, archaeological sites and forts. Hotels, yacht clubs,
yacht anchorages, parks and sport fields are included in the
recreational assets category. It is recommended that the re-
creation resources of Antigua be protected in six types or

categories of protected areas. The purpose, criteria for se-

lection and management objectives of the various categories are

Category:

Purpose:

Criteria
for
Selection:

Management
Objectives:

Example:

Category:

Purpose:

Criteria
for
Selection:

Management
Objectives:

Example:

*Thelen and Faizool,

-25-

described as follows 3'‘

Natural Landmarks

 

To protect natural features of a unique
character such as cave systems and dis-
tinctive landmarks and to ensure these

features do not lose their unique char-
acteristics.

Size is determined by the specific feature
and the surrounding area necessary to
assure its protection. The feature should
be distinctive and in a natural or near
natural state. Generally, these are small
areas rather than ecosystems.

To provide public access for recreational
uses related to the characteristics of the
feature. Intense use is permitted if the
feature will not be damaged or the recrea-
tional enjoyment of persons will not be
hindered.

Devil's Bridge.

Scenic Landscapes

 

To protect scenic areas such as hilltOps
along highways, roads, trails, waterways,
and coastlines. Protection will also be
given to certain landscapes possessing
special aesthetic qualities which are the
results of the interaction of man and land.

The size of the area will depend upon the
topography and complexity of the land-
scape. The boundaries of these areas will
be set to include lands adjacent to each
side of the road, trail or waterway so as

to provide for the protection of the scenic
integrity and related resources and to pro-
vide for recreation and education activities.

To ensure the aesthetic quality of the
landscape is maintained for the enjoyment
of the people.

Fig Tree Hill Road.

1980; Minnesota Metropolitan Council, 1974.

Category:

Purpose:

Criteria:
for
Selection

Management
Objectives:

Examples:

Category:

Purpose:

Criteria
for
Selection:

Management
Objectives:

Example:

-26-

Scientific Reserves

 

To protect nature and natural processes

in an undisturbed state and to provide

areas for scientific research, environmental
monitoring and related educational uses
which do not disturb the ecosystems which
are protected.

Certain relatively fragile ecosystems or
natural features of importance to science.
The size is determined by the specific
purpose of the reserve and will be such
that the integrity of the ecosystems or
species will not be disturbed.

To assure minimal disturbance of natural
systems. Public use is strictly controlled
in sensitive areas, providing for research
and study under special conditions.

Falmouth Harbour Mangrove Swamp.

National Parks

 

To protect in perpetuity outstanding nat-
ural and scenic areas of national or inter—
national importance. The national park
should provide for recreational, educational
and scientific activities.

National parks are relatively large land
or water areas containing a complex of
ecosystems. They should include the most
outstanding natural or cultural resources
of the country, be under strict government
jurisdiction and conform to international
standards.

To protect a complex of natural and cul-
tural resources through a zoning system
which can ensure the provision of strict
protection in some areas, and intensive
recreational use in other areas without
disrupting the long range objective of
ensuring the area is available to present
and future generations.

Falmouth Harbour/English Harbour Area.

Category:

Purpose:

Criteria
for
Selection:

Management
Objectives:

Example:

Category:

Purpose:

Criteria
for
Selection:

Management
Objectives:

Example:

-27-

Historic and Cultural Sites

 

To preserve and interpret buildings and/
or areas that include sites and objects
of historical, archeological and paleon-
tologic significance. To maintain these
areas in the context of the natural re-
sources and outdoor recreation opportuni-
ties that surround them.

The location and distribution is prede-
termined by the geographic occurrence of
the historical resource to be preserved.
These areas should be selected on the
basis of their interpretive capabilities
and integrity. Each historic area should
contain enough land to preserve all the
significant cultural or prehistoric fea-
tures associated with the site and addi-
tional lands to complement the historic
use and provide for compatible outdoor
recreation activities.

To protect, maintain, and, where necessary,
restore the historic integrity of struc-
tures, sites, and objects significant to
the commemoration or illustration of the
historical story. Activity areas should
be managed to protect natural resources
and provide a physical base for compatible
activities.

Nelson's Dockyard.

Recreation Parks

 

To provide access to high quality recrea-
tion facilities based on natural resources.

The area will contain natural features which
provide opportunities for swimming, hiking,
picnicking and related resource based re-
creational activities. They will be located
to serve regional as well as national needs.

To protect the natural resources in order
to maximize public recreational Opportun1-
ties on a sustained basis.

Long Bay Public Park.

-23-

METHODS OF CREATING UNITS OF THE
NATIONAL PARK SYSTEM

The Governor will be vested with the power to proclaim
any terrestrial or marine area of the state as part of the
National Park System. The proclamation will be required to
state the management category of the area. That is, it must
state whether it is a national park, a scientific reserve or
one of the other categories previously defined. The agency,
the Development Control Authority, charged with the adminis-
tration of the NPS will be responsible for providing techni-
cal information, assessment, and recommendations concerning
areas proposed for inclusion within the System.

Areas established and managed as part of the NPS should
be owned by the state (Thelen and Faizool: 1980; Outdoor Re-
creation Resources Review Commission: 1962). Private land,
needed for inclusion within the System, may be obtained under
the Land Acquisition Ordinance which allows for the acquisi-
tion of lands for public purposes. When lands are included
within the Park System, powers of ownership should be trans-
ferred to the agency responsible for the management of the
area. Lands and waters once vested in the NPS may only be
removed by a special law calling for their total or partial

removal. Special law is also required to transfer areas from

-29-

one category of management to another (The Protection of
the Environment Act (Proposed), 1976).

In some cases, control of landuse on private lands adja—
cent to areas within the Park System may be necessary to
assure that activities on these are not detrimental to the
implementation of the objectives of the National Park System.
When such control is needed, action to attain the desired land
use will be taken under the Land Development Act, 1974.

Although areas of outstanding national significance should
be the property of the state, areas which are important but do
not warrant acquisition for inclusion within the National Park
System may be owned and managed by private non-private organi-
zations. In such cases, Government may provide financial and
technical assistance to these organizations if they are willing
to undertake the operation and protection of the area, and the
planned uses are deemed appropriate and would serve public
needs.

The analysis of existing legislation in Antigua revealed it is
not enough to mandate natural areas be created or protected.
Equally important to their survival is a set of policies describ-
ing how these resources should be managed. The following section
will outline policies essential to the management of a National

Park System.

-30-

MANAGING THE NATIONAL PARK SYSTEM

The National Park System will be managed to carry out a
variety of functions. The following will describe the poli-
cies relating to these primary management functions (Thelen

and Faizool, 1980; Bannon, 1976).

PROTECTION OF RESOURCES

 

The protection of both cultural and natural resources
was the impetus for the establishment of each unit within the
National Park System and will, therefore, be the primary
consideration of management. The various factors which could
threaten the perpetuation of the resources will be analyzed.
Then the most appropriate protection method, utilized in
light of the kind of area, its objectives and significance
and the fragility of the resource concerned, will be imple-
mented. Where appropriate, measures will be taken to enhance

degraded resources.

OUTDOOR RECREATION

 

The National Park System will be managed to provide
for a wide range of recreational opportunities. These oppor-
tunities will be appropriate to the individual unit and con-

sistent with the perpetuation of the natural and recreation

-31-

qualities of the area. Those recreational activities which
are dependent on or associated with the natural resource will
be encouraged. The National Park System is not intended to
provide for all of the recreational needs of the country
particularly those that could be met in areas lacking out-

standing natural resources.

INFORMATION, INTERPRETATION AND EDUCATION

 

The areas within the National Park System will be managed
to provide visitors with an understanding of the natural and
cultural resources. This will be done in a manner that will
enhance their enjoyment and appreciation of the area. Areas
within the System will be utilized for educational programs
particularly those involving the school. In addition, infor-
mation relative to the programs, activities, plans and recrea-
tional opportunities of the various areas will be widely
distributed to ensure the public is adequately informed of

available opportunities.

FACILITIES AND SERVICES

 

Facilities and services necessary and appropriate for
prOper public access, recreation and understanding of the
area will be provided. The kind, location, sizes and design
of the facilities will reflect the resources, type of area,
expected use and the cultural uniqueness of the country.

Prior to the development of facilities or infrastructure

-32-

within an area an environmental impact assessment will be
prepared to determine detrimental effects of such actions.
Certain facilities and services may be provided by the
Government or by concessions with private enterprise. The
kind of service and quality of maintenance of facilities will

be set by the agency responsible for management of the areas.

RESEARCH

Research and studies concerned with obtaining knowledge
and understanding of the System's phenomena will be encour-
aged. Emphasis will be given to undertaking research essen-
tial for management purposes. However, basic research which
will expand man's knowledge of the natural environment will
be permitted. The nature of the research, and how and where
it will be carried out, will vary with the type of area and
its management objectives. The type of research will also
be regulated to ensure the protection of the resources and the

safety and enjoyment of visitors.

INTERAGENCY COORDINATION

 

The agency responsible for the management of the National
Park System will ensure there is proper coordination between
the various agencies of Government and relevant non-profit
organizations.

Of significance are those agencies concerned with forestry,

fisheries, water resources, national physical planning, tourism,

-33-

cultural resources, agriculture, reclamation, quarrying,

sports, recreation, marine affairs and natural history re-
search. Where necessary, the agency may rely on expertise
available in other agencies to assist in implementation of

its programs.

ADMINISTRATING BODY

 

It is recommended that a Department of Parks, Beaches,
Wildlife and Historic sites be created within the Ministry
of Agriculture, Lands and Fisheries. This Department will
be delegated the responsibility for administration, manage-
ment, protection and development of the areas falling within
the National Park System.

The Department will be authorized to prepare, for approval
by the Minister, specific regulations, policies, plans, pro-
hibitions, standards and procedural rules governing the admin-
istration of the various units of the System. To carry out
these functions, the Department will be staffed with the
required personnel necessary to Operate the areas within the
National Park System. These functions will include protection
of natural and cultural resources, resource management,
visitor use, education, research, planning, development and

administration.

MANAGEMENT PLANS

 

A management plan will be prepared for each area within

the System to express specific policies and serve as a manage-

-34-

ment guide. These plans will establish the guidelines for the
protection, use, management and development of areas within
the National Park System. Each plan will detail the purpose
of the area, its values as regards to resources, the objectives
of management and human needs that should be met. It will pre-
sent a zoning scheme which will classify land and water accord-
ing to their need for protection and capability to accomodate
visitor use. The plan will provide a framework within which
subsequent management actions and detailed planning will take
place.

The management plan should be prepared by an interdis-
ciplinary team with input from other government agencies
which may affect or be affected by the management of the area.
Public involvement in plan development will also be encouraged.
Once the management plan has been adopted and approved any

changes to it must be approved by the Minister responsible.

ESTABLISHMENT OF REGULATIONS AND PENALTIES

 

Regulations governing the protection, management, and
use of areas within the National Park System will be estab-
lished. Penalties for infractions will also be set. These
regulations will be enforced by the agency and officers

responsible for the management and protection of the area.

FINANCE
The National Park System will be financed from funds

allocated to it by Government and through the use of special

-35-

development funds established for national parks. Fees may
be charged for special services or for access to the areas

to reflect the need to recover a certain portion of the costs
of Operation and maintenance, but will not be too high to
discourage use by any sector of the public.

The agency responsible for the administration of the
National Park System may accept gifts or donations when their
use will further the work of the program and benefit the
inhabitants of the country.

The above policies, if implemented in conjunction with
the creation Of a National Park System, will provide a solid

foundation for a viable National Park System.

-36-

S UMMARY

In recent years growing population pressures, industrial-
ization and the rapid depletion of both natural and cultural
resources have led to a critical situation. Agricultural
lands are being converted to other uses, land erosion is
becoming severe, and habitat loss is resulting in reduced
number of plant and animal species. In addition, environ-
ments of cultural, archeological and natural monuments, land-
scapes Of historic interest, and unusual geological formations
are being denuded. Thus natural areas which support outdoor
recreation activities are rapidly being lost.

To alleviate these problems, a National Park System to
protect and wisely manage these resources was recommended.

The main purpose of this paper was to prepare a National Park
POlicy. This policy will provide protection in perpetuity

for those areas of Antigua representing significant examples
of natural and cultural heritage, as well as, will encourage
public understanding, appreciation and enjoyment of the heri-
tage in ways which will leave it unimpaired for future gen-
erations. To ensure these areas are adequately protected

six categories Of management were recommended. These cate-
gories ranged from areas requiring a high degree of protection

of fragile ecosystems to beach areas which provide for inten-

-37-

sive outdoor recreational activities. The six categories
are: Scientific Reserves, National Parks, Natural Landmarks,
Scenic Landscapes, Historic and Cultural Sites and Recreation
Parks.

Lack of Government policy and inadequate legislation have
hampered the adequate protection Of these resources. A pro-
posal for new policy and legislation was made since these are
keystones for the establishment of a system of national parks.
The paper concluded with a description of policies relating

to the management of the National Park System.

-33_

CONCLUSION

The aim of this paper was to recommend a National Park
Policy which would serve as the basis for the establishment
of a National Park System. The planning of a NPS is an
elaborate process and,at the same time, a worthwhile venture.
To be successful, the planning of a NPS must be an integral
part of the national planning process. That is, the creation
of a NPS must have the written consent of Government expressed
in policy. Therefore, the study was basically a recommenda-
tion of policy for the protection of natural resources.

However, Antigua cannot afford, by either unwise action
or neglect, to lose or impair resources of outstanding nat-
ural, scenic, scientific, or historic importance. These must
be protected from misuse so that they can be passed on to
future generations as nearly in their original state as
possible. The damage being done to the environment is evi-
dent and one can only hope the protection of natural areas

will become more attractive politically.

-39-

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Antigua Government Printing Office. Laws of Antigua, 1976,
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. . Territorial Plan. St. John's: Government Printing
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Australian Academy of Science. National Parks and Reserves
in Australia, Canberra, 1968.

 

 

Bannon, Joseph J. Leisure Resources: Its Comprehensive
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1981.

 

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Department of Recreation and Municipal Park Administration.
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Driver, B.L. Elements of Outdoor Recreation Planning,
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Jubenville, Alan. Outdoor Recreation Management, Philadelphia:
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-40-

. Outdoor Recreation Planning. Philadelphia: W.B.
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1“
Lavery, Patrick (ed.). Recreational Geography, New York:
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Macpherson, John. Caribbean Lands: A Geography of the West
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Ministry Of Economic Development. 1980-1984 Socio-Economic
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Minnesota Metropolitan Council. Development Guide/Policy
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Outdoor Recreation Resources Review Committee. Outdoor
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Quigg, Philip W. Protecting National Areas: An Introduction
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Thelen, K.D. and Faizool, S. Policy for the Establishment
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. System of National Parks and Other Protected Areas
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