Consensus building in the Caribbean

credit: Kate Brown, University of East Anglia, UK

Sun, sea and sand may be the attraction for 20 million tourists visiting the Caribbean each year but what effect is this having on the natural resources? More tourism means greater income for many in the islands but it also results in greater pollution and land and coastal degradation. Many local people, particularly in the smaller islands, are dependent on coastal resources, the mangroves and reef fisheries, which are increasingly vulnerable to the expansion of hotels and associated leisure activities. And yet, despite the seemingly conflicting demands of different sectors of these island communities, effective methods have been developed in Tobago to bring about successful co-management of the Buccoo Reef Marine Park. In addition, the techniques developed with the local institutions are being used elsewhere in the islands of Trinidad and Tobago where conflicting interests have arisen.

Tactical techniques

The Buccoo Reef Marine Park, an area of mangrove lagoons and a large coral reef, is situated off the most densely populated area of the island. As Tobago's most popular attraction, the area is central to the tourist trade but many are also dependent on the same natural resources for their livelihoods. In 1995, a management plan for the Park was developed but insufficient consideration was given to the views of those most affected by this plan and consequently it was not well received. This led to many difficulties concerning the enforcement of regulations and the integration of local and national needs. It was generally perceived that if a strategy for implementing sustainable use of coastal resources was to succeed, then it was vital that all those dependent on the development of the area were consulted and allowed a voice in the decision-making process.

credit: K Brown, UEA

With increasing evidence to show that greater involvement of local communities is more likely to result in long-term positive outcomes, a project funded by the DFID Natural Resources Systems Programme was initiated to analyze the conflicts and trade-offs between different uses and users of the protected marine areas. With the support and guidance of researchers from the UK University of East Anglia, a series of meetings was organized to allow interested parties the opportunity to discuss their priorities for development. The team used a number of techniques and developed an approach called 'Trade-off Analysis'. As a result, although many were in favour of economic growth, the overwhelming consensus was for maintaining the health of the complex eco-system upon which they all depended.

Maintaining the flow of information and establishing trust has been key to this consensus building process. Participatory approaches are generally known to be empowering for local people but, at the same time, government departments can feel that the techniques are confrontational or threatening. In working with regulatory agencies, such as the Department for Environment and Planning, the Institute of Marine Affairs and the Tobago House of Assembly, experience has shown that it was vital that all important contributors were included in the discussions and were not alienated during the process. And, despite concerns that it would be difficult to resolve conflicts between different users, each group is prepared to take responsibility for helping to solve immediate problems and to work together towards a common purpose.

Successful sustainability?

Consequently, an on-going forum, the Buccoo Reef Stakeholder Group, has been established in partnership with the Tobago House of Assembly to develop and sustain the co-management strategy for the Marine Park. This forum is now known throughout the island. Similar techniques are being adopted and adapted in developing Trinidad and Tobago's protected area system, for example at Nariva Swamp a wetland area on the east coast of Trinidad, which is to be designated a national park. Lessons for the rest of the Caribbean have also been drawn out of the project and are being promoted through the Caribbean Natural Resources Institute (CANARI) which is using Trade-off Analysis in training workshops on natural resource management. In addition, CANARI is hosting a regional seminar in Tobago in January 2001 for senior regional managers to provide a forum exchange experiences in techniques and policy issues involved in participatory natural resource management. A manual on Trade-off Analysis, produced by the project, will be used at the seminar and be made available regionally. Interest has already been shown for its use in other ecosystems and regions when it was recently presented at an International Coral Reefs Symposium - and not just in the developing world. One instance is the application of Trade-off Analysis that is currently being used for forest resources management in Canada.

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