Physical development master plan for the Commonwealth of the Northern Mariana Islands

[From the U.S. Government Printing Office, www.gpo.gov]

PHYSICAL DEVELOPMENT MASTER PLAN
for the
COMMONWEALTH OF THE NORTHERN MARIANA ISLANDS

Volume 11
SAI PAN

HN
49
C6
P59
1978
v. 2
Prepared for
OFFICE OF
TRANSITION STUDIES AND PLANNING

Prepared by
PACIFIC PLANNING AND DESIGN CONSULTANTS
Chalan Kanoa, Saipan Tamuning, Guam

January 1978

U . S . DEPARTMENT OF COMMERCE NOAk
COASTAL SERVICES CENTER
2234 SOUTH HOBSON AVENUE
CHARLESTON , SC 29405-2413

PHYSICAL DEVELOPMENT MASTER PLAN

FOR THE

COMMONWEALTH OF THE NORTHERN MARIANA ISLANDS

Volume 11

SAIPAN

Prepared for
Office of Transition Studies and Planning
Government of the Northern Mariana Islands

Property of CSC Library

by
Pacific Planning and Design Consultants
Chalan Kanoa, Saipan Tamuning, Guam

January 1978

4@ ca

FOREWORD

The following paragraphs highlight the Physical Development
Master Plan for Saipau. The format follows the outline of the
text and will readily assist those readers interested in locating
specific areas of interest. The Plan as developed herein focuses
on the next seven years, 1978 to 1985. Within subsequent chap-
ters planning for the period beyond 1985 is included within the
text of the Plan Elements.

POPULATION: The present Saipan population, estimated at
19,000 BY 1985 14,000 in 1978, is projected to exceed 19,000 by
1985 - the end of the current plan period. The
Micronesian segment is the largest component,
comprising 83% of the present total, and esti-
mated to comprise 79% of the 1985 total.

The non-Micronesian segment of the permanent
population has increased from 8% to 15% since
1967, and is expected to reach 20% by 1985. The
growth of this segment will be considerably
volatile, due to its relationship to overall
economic and political factors.

ECONOMY Tourism and agriculture will remain the signi-
ficant economic sectors in the future develop-
ment of the Commonwealth. Tourism, although
volatile, is expected to increase such that by
1985 as many as 1800 persons will visit the
Island on an average day. This number of visi-
tors would constitute nine percent (9%) of the
total population and comprises an important
segment which must be planned for.

Subsistence farming will continue as a way of
life; however, funds will be allocated to expand

iii

commercial agricultural production. Development
of beef cattle grazing lands, expansion of
irrigated croplands at Kagman, and the construc-
tion of agriculture support facilities including
a Plant Pathology and Entomology Laboratory, a
Feed Mill, further irrigation improvements, and
the purchase of additional heavy equipment to
encourage greater agricultural production are
proposed.

LAND USE PLAN The existing inventory of urban development
directly affects future growth. Continued
expansion of the urbanized west coast at Garapan,
Tanapag, and San Jose will permit incremental
growth along the present infrastructure.

The land use plan allocates land for orderly
growth and. development during the present plan
period 1978 to 1985 and beyond. In conjunction
with capital improvement projects, the land use
plan provides a framework for the management of
change and future growth.

SAN ANTONIO Growth is basically limited to areas to the east
and southeast. A 315-unit village homestead
site with an internal neighborhood commercial
center is proposed for As Perdido (Kobler Field).
Resort-related land uses include the White Sands
Hotel and the possibility of a golf course to be
developed, at Agingan.

CHALAN KANOA, Little additional population growth is planned
SUSUPE, for this area. Emphasis is placed on correcting
SAN JOSE existing problems such as replacement of sub-
standard housing. Changes to the road pattern

include upgrading and realignment of Texas Road.
Redevelopment of Chalan Kanoa will include a
commercial center in the central plaza. The
present Civic Center complex in Susupe is anti-
cipated to expand and take on added dimension
with the completion of the Nauru Building and the
renovation of the Joeten shopping center.

GARAPAN The Garapan area is a desirable location for new
residential growth. The plan proposes concentra-
tion of residential growth around the proposed
junior high school. A commercial center is pro-
posed just north of the junior high school site.
The area surrounding this commercial center is
proposed for multiple-family apartments. The
American Memorial Park will be a central recrea-
tion area for all of Saipan. The resort-tourist
area at Micro Beach will expand in size and
importance. The new hospital will be located in
Garapan, most likely along Navy Hill Road. The
proposed upgrading of the port and dock facilities
and the industrial park should result in an
improved employment base for Garapan and all of
Saipan.

TANAPAG Significant growth is provided south of the
existing village, for development under the
Village Homestead Program. The area will contain
a small commercial center and lands for public
facilities. Agriculture use should continue on
the public lands lying east of West Coast High-
way to facilitate their conversion to industrial
lands in the future.

SAN ROQUE Expansion of San Roque will depend on the improve-
ment of water and sewer lines and the establish-
ment of a major resort development in the Marpi

area. Development of a new homestead site north
of the existing village will occur; however, it
is not anticipated during the present plan
period.

MARPI Public grazing lands are proposed at Banadera and
I Madog. Hotel, recreation facilities, and a
championship golf course are proposed adjacent to
West Coast Highway in lower Marpi. Agricultural
homesteads are proposed for Kalabera Plateau
(east of East Coast Highway), along the Burma
Road, and adjacent to Marpi Resort complex at

Matansa.

KAGMAN Proposed uses in the Kagman area include expan-
sion of the Agricultural Station, expansion of
the public croplands, location of a sanitary
landfill, proposed correctional facilities,
expansion of the existing housing area, and
Kagman Wilderness Park.

LAND USE ZONES In order to implement the land use plan, seven
major land use zones have been designated. Each
is discussed below.

Conservation One-third of Saipan's total land area is in the
Conservation Zone, which includes park and
recreation areas, wilderness areas, unique vege-
tative areas, and historic and archaeological
sites. Commonwealth Parks have been proposed at
Mt. Tagpochau and Marpi. Other Commonwealth
Parks outside the urban area include Tank Beach,
Marine Beach, Paupau Beach, Wing Beach, and
Ladder Beach. Kagman and Naftan Parks are iden-
tified as wilderness areas. Unique vegetative
areas include Lake Susupe, a forest of indigenous

trees north of Wallace Highway between Beach
Road and West Coast Highway, and the Mangrove
stand adjacent to the industrial park. Historic
and archaeological sites include the Japanese
Hospital, the Japanese Jail, Sugar King Monument,
and the 'Latte' Sites at Laulau and Obyan
Beaches.

Agriculture Two agricultural zones are proposed. Lanos:in
the Agricultural 1 (Cultivation) Zone includes
those in Kagman and east of the former Kobler
Field runway, and should remain in public owner-
ship to insure a future capability for crop
production. Extensive portions of the island are
in the Agricultural 2 (Grazing and Subsistence
Farming) Zone.

Residential Rural Residential zones are proposed between
Sugar King Park in Garapan and Quarter-Master
Road in Oleai, for lands west of Lake Susupe; and
the entire eastern hillside from Wallace Highway
to As Perdido.

The One- and Two-Family Residential Zone is
proposed for existing village areas, future
subdivision lands, and village homestead area.

Multiple Family Residential Zones are proposed
for the Chalan Kanoa-Susupe-San Jose urban center
and the Garapan area, where infrastructure and
public facilities are adequate. Multi-family
Residential Zones may also be developed as part
of planned developments and urban renewal proj-

ects.

Commercial The Light Commercial zone is provided in all new
subdivisions, government or private, which will
eventually have more than 50 units. This zone

vii

has also been designated in Chalan Kanoa at the
existing location of the Post Office and Munici-
pal Buildings, in San Antonio adjacent to Beach
Road, and at the Susupe Civic Center complex.
Two areas are! also designated in Garapan: one
east of Beach Road across from the resort area;
and the second adjacent to West Coast Highway on
government land below Navy Hill Housing. A com-
mercial area is also proposed along the access
road to the Airport.

Heavy Commercial Zones are proposed at the Indus-
trial Park and an area in San Jose bordered by
Wallace Highway, Beach Road, and West Coast
Highway.

Resort The plan provides for Hotel-Resort Zones at
Marpi, Micro Beach, Susupe, and San Antonio.

Industrial Industrial Zones have been designated for the
Lower Base Industrial Park in Tanapag and the
Saipan International Airport at Isley Field.

Public Lands reserved for the development and delivery
Facilities of essential public services are designated in
the Public Facilities Zone. These activities
include government operations, health care, edu-
cation, recreation, public safety, and housing.

CIVIC CENTER It is proposed that the Civic Center and the lands
adjacent to the existing facilities be reserved
to ultimately accommodate all government offices,
including -those of the legislative and executive
branches. As part of the Civic Center Complex,
the Marianas High School will be expanded enhanc-
ing possibilities for joint use of facilities
such as the library, auditorium, gymnasium, and
recreational fields.

viii

HEALTH A new hospital is proposed in Garapan, to replace
the present facility. Relocation of the Public
Health Center from Chalan Kanoa to Susupe or
Garapan is also anticipated.

EDUCATION Aside from the expansion of the Marianas High
School within the Civic Center, a new junior high
school is proposed for Garapan. The new junior
high school in Garapan will be complete with 25
to 30 classrooms, an auditorium-gymnasium, a
library, recreational facilities, and an admin-
istration building. Construction of the facility
will alleviate classroom shortages for junior and
senior high school students and provide interim
relief from overcrowding in the elementary
schools, while expansion of these schools are
being completed.

RECREATION Wherever school recreation facilities can be
jointly used for community needs, they will be
planned for such uses. Other recreation facili-
ties include the American Memorial Park, beach
parks and historic sites, a Tennis Center in the
Civic Center complex.

The American Memorial Park (between Micro Beach
and Tanapag Harbor) will be the principal park
for the Commonwealth and will have active recrea-
tional fields, passive park grounds, and a
marina.

PUBLIC SAFETY A new fire sub-station in Garapan and a correc-
tional facility'in the Kagman Area are proposed
during the plan period. Renovations of the
existing facilities within the Civic Center are
accommodated in the expansion plans.

PUBLIC UTILITIES The Public utility Plan Elements include sections
on Water, Power, Sewerage, Solid Waste, and
Drainage.

WATER operational priorities require that resources be
P
directed toward problems:of supply and water
quality; excessive consumption and line losses;
inadequate pressure; and finally expansion of
storage. The plan provides for metering of all
customers, development of additional wells and
improvement of existing ones, location of high
level and parabasal water in limestone including
the expansion of the system into Chacha Kagman
area, improving or reconstructing existing distri-
bution systems and transmission lines.

SANITARY SEWER Areas planned to accommodate high densities must
have adequate public sewerage. Rural areas should
not be developed beyond their ability to support
private septic systems.

The plan recommends a decentralized system; sepa-
rate treatment and disposal facilities for both
the Southern area and the Central Highland (North-
ern) area. Southern Coast system improvements
include the expansion of the treatment facility
to 2.0 mgd capacity and possibly secondary treat-
ment, a new high level interceptor sewer line and
pump station along "Texas" Road, and an inter-
ceptor line for the proposed 'As Perdido' new

town area.

Improvements to the Northern system include
phasing out the existing treatment facility and
outfall in Garapan and construction of a new
2.0 mgd secondary treatment facility and 20-inch
outfall within Tanapag.

POWER The plan recommends significant improvements to
the power supply and distribution system. Con-
struction of a new power generation plant of
between 20 and 25 meg watts is proposed for the
Industrial Park. Expansion of the primary dis-
tribution system, to include dual circuitry and
hardening, is also recommended.

SOLID WASTE Several actions are recommended to realize a
safe and effective Solid Waste Management Prog-
ram. They include: establishment of a weekly
collection system; identification of a new land-
fill site and the phasing out of the existing
landfill in Garapan; prohibiting of all uncon-
trolled burning of solid waste; and discontinued
use of 55-gallon refuse containers.

DRAINAGE Most drainage problems occur on the western
coastal plain, where development has interfered
with natural drainage patterns. Principal prob-
lem areas have been identified, analyzed, and
corrective action specified at: San Roque Village;
Cross-Island Road at Tanapag; Lower Base Indus-
trial Park and flood susceptible areas in
Garapan; Wallace Highway at Oleai; and Chalan
Kanoa at Lake Susupe.

TRANSPORTATION Plan Elements include Airports, Harbors, and the
Existing Highway System.

AIRPORT Airport improvements are recommended for naviga-
tion aids (lighting and instrumentation), ground
operations (apron expansion, partial parallel
taxiway, and runway exits), safety equipment
(fire trucks and expansion to the crash/fire

rescue building), and support facilities (air
cargo/maintenance buildings, general aviation
fuel storage, and control tower).

HARBORS Adequate harbors and dock facilities are vital
to the overall economic growth of the Northern
Mariana Islands, since most consumer goods and
construction materials are transported via this
mode.

At least 1,000 feet of deep water berths and
600 feet of medium depth berths are required for
the commercial port. Charlie Dock is scheduled
for minimal repairs initially, in order to pre-
clude disruption of operations. A new facility
at Baker Wharf is recommended.

The Fishing Base in Garapan is recommended for
expansion into a fishing center for subsistence
and small-scale commercial fishing operations.
Improvements will include stabilization, improve-
ment to the existing wharf, dredging, launching
dock, building, boat anchorage area, and a secure
boat storage area.

ROADS Although the existing road network on Saipan is
relatively well-developed, its physical condi-
tion can generally be considered as worn out with
pavement and sub-base failures evident elsewhere.
Furthermore, Beach Road and certain other major
highways now experience heavy traffic congestion
during peak travel hours. An ambitious, exten-
sive highway development program will be required
to keep pace with, as well as support, the needs
of the evolving Saipan economy.

xii

The program herein proposed will focus on the
reconstruction of existing highways and the con-
struction of new highways where only coral base
roads now exist.

Improvements include the reconstruction of West
Coast Highway and improvements to Texas Road
southward to As Perdido Road. As Perdido Road
will be upgraded, as will Wallace Highway, Micro
.Beach Road, and portions of Beach Road.

xiii

TABLE OF CONTENTS
PAGE

FOREWORD . . . . . . . . . . . . . . . . . . . . . iii

TABLE OF CONTENTS . . . . . . . . . . . . . . . . xv

List of Plates . . . . . . . . . . . . . . . . xxiii
List of Tables . . . . . . . . . . . . . . . . xxv

BACKGROUND CHAPTER

GOALS AND OBJECTIVES . . . . . . . . . . . . . . .

NATURAL SETTING FOR PLANNING . . . . . . . . . . . 2
Geography . . . . . . . . . . . . . . . . . . . 2
Geology . . . . . . . . . . . . . . . . . . . . 2
Topography . . . . . . . . . . . . . . . . . . 4
Soils . . . . . . . . . . . . . . . . . . . . . 7
Climate . . . . . . . . . . . . . . . . . . . . 8
Groundwater Resources . . . . . . . . . . . . . 10
Flora . . . . . . . . . . . . . . . . . . . . . 13
Fauna . . . . . . . . . . . . . . . . . . . . . 15

SOCIO-DEMOGRAPHIC CONSIDERATIONS . . . . . . . . . 18
Historic . . . . . . . . . . . . . . . . . . . 18
Population . . . . . . . . . . . . . . . . . . 23
Micronesian . . . . . . . . . . . . . . . . . 23
Non-Micronesian . . . . . . . . . . . . . . . 26
Tourists . . . . . . . . . . . . . . . . . . . 27
Existing Development Patterns . . . . . . . . . 28

LAND MANAGEMENT FACTORS . . . . . . . . . . . . . 32
Changing Institutional Framework . . . . . . . 32
Private Holdings . . . . . . . . . . . . . . * 32
The Homestead Program . . . . . . . . . . . . . 35
Public Land Corporation . . . . . . . . . . . . 36

ENVIRONMENTAL CONSTRAINTS . . . . . . . . . . . . 38
Existing Development . . . . 38
Environmental Protection 38

LAND USE CHAPTER

PURPOSE AND OBJECTIVES . . . . . . . . . . . . . . 43

PROPOSED LAND USES . . . . . . . . . . . . . . . . 45

San Antonio . . * * , * * * * * , * , * * * * , 45
Chalan Kanoa -Susupe - San Jose . . . . . . . 47

Tables of Contents
Continued -
PAGE

Chalan Kanoa Urban Development . . . . . . . 48
Garapan . . . . . . . . . . . . . . . . . . . . 50
Tanapag . . . . . . . . . . . . . 0 . . . . . . 53
San Roque . . . . . . . . . . . . . . . . . . . 54
San Vicente . . . . . . . . . . . . . . . . . . 54
Marpi Area Land Use . . . . . . . . . . . . . . 55
Marpi Public Grazing Lands . . . . . . . . . 55
Marpi Resort . . . . . . . . . . . . . . . . 55
Marpi Park - - * 56
Agricultural Home;tead* Area; 56
Marpi Village Homestead Site . . . . . . . . 57
Kagman Area Land Use . . . . . . . . . . . . . 57
Agricultural Station . . . . . . . . . . . . 58
Kagman Residential Area . . . . . . . . . . 58
Public Facilities . . . . . . . . . . . . . 58
Other Uses . . . . . . . . . . . . . . . . . 59

PROPOSED ZONES . . . . . . . . . . . . . 0 . . . . 60
Conservation . . . . . . . . . . . . . . . . . 60
Parks and Recreation Areas ... . . . . . . . 61
Wilderness Areas . . . . . . . . . . . . . . 62
Natural Preservation Areas - t;s. : : 0 . . 62
Historic and Archaeological Si . . . 63
Agriculture . . . . . . . . . . . . . . . . . . 64
Residential . . . . . . . . . . . . . . . . . . 65
Rural Residential . . . . . . . . . . . . . 66
One and Two Family Residential . . . . . . . 66
Multiple Family Residential . . . . . . . . 67
Commercial . . . . . . . . . . . . . . . . . . 67
Commercial "Light . . . . . . . . . . . . . . 68
Commercial "Heavy," . . . . . . . . . . . . . 70
Hotel-Resort . . . . . . . . . . . . . . . . . 70
Industrial . . . . . . . . . . . . . . . . . . 72
Lower Base Industrial Park . . . . . . . . . 72
Airport Industrial . . . . . . . . . .. . . . 73
Public Facilities . . . . . . . . . . . . . . . 73
Civic Center . . . . . . . . . . . . . . . . 74
Health Facilities . . . . . . . . . . . . . 74
Education Facilities - * * 74
Parks and Recreation Facili@_* 75
ies
Public safety . . . . . . . . . . . . . . . 75
Other Public Facilities . . . . . . . . . . 76

PUBLIC FACILITIES CHAPTER

INTRODUCTION . . . . . . . . . . . . . . . . . . . 77

CIVIC CENTER . . . . . . . . . . . . . . . . . . . 81
High School Improvements . . . . . . . . . . . 82

xvi

Table of Contents
Continued -
PAGE

HEALTH FACILITIES . . . . . . . . . . . . . . . . 86
Existing Conditions . . . . . . . . . . . . . . 86
Dr. Torres Hospital 86
Dispensaries . . . . 87
Public Health Center . . . . . . . . . . . . 87
Planning Factors . . . . . . . . . . . . . . . 87
Hospital occupancy and Outpatient Usage 87
Recommendations * * * * I * * * 89
Hospital Size and Location . . 89
Navy Hill . . . . . . . . . . . . . . . . . 90
Public Health Facilities . . . . . . . . . . 90
Dispensaries . . . . . . . . . . . . . . . . 91
Capital Improvements Program . . . . . . . . 91

EDUCATION FACILITIES . . . . . . . . . . . . . . . 95
Existing Conditions . . . . . . . . . . . . . . 95
Physical Plant Size . . . . . . . . . . . . 95
Classroom Conditions . . . . . . . . . . . . 97
Planning Factors . . . . . . . . . . . . . . . 98
Policies Affecting Physical Plant 98
Population Growth and School Population 99
Classroom Requirements . . . . . . . . . . . 99
Capital Facility Recommendations . . . . . . . 101
Elementary Schools . . . . . . . . . . . . . 101
Junior High School . . . . . . . . . . . . . 102
High School . . . . . . . . . . . . . . . . 102
Community College . . . . . . . . . . . . . 105
Land Use Planning Implications . . . . . . . 105
Conclusion . . . . . . . . . . . . . . . . . 106

PARKS AND RECREATION . . . . . . . . . . . . . . . 109
Existing Conditions . . . . . . . . 109
Recommendations . . . . . 115
Recreational Facility S@an*dard*s' 116
Playlots (Mini Parks) . . . . . . . . . . . 116
Neighborhood Playgrounds . . . . . . . . . . 117
Area Centers - Community Playgrounds . . . . 117
Island Center . . . . . . . . . . . . . . . 117
American Memorial Park . . . . . . . . . . . 118
Marpi Park . . . . . . . . . . . . . . . . . 121
Wilderness Parks . . . . . . . . . . . . . . 121
Municipal Parks and General Parks . . . . . 121
Golf Course Development . . . . . . . . . . 122
Financial Allocations . . . . . . . . . . . 125

xvii

Tables of Contents
Continued -
PAGE

PUBLIC SAFETY . . . . . . . . . . . . . . . . . . 128
Existing Conditions . . . . . . . . . . . . . . 128
Planning Factors . . . . . . . . . . . . . . . 129
Recommendations . . . . . . . . . . . . . . . . 130
Civic Center Jail . . . . . . . . . . . . . 131
NMI Medium Security Corrections Facility - - 131
Youth Corrections Facility . . . . . . . . . 131
Saipan Fire Equipment . . . . . . . . . . . 132
Garapan Fire Sub-Station . . . . . . . . . . 132

HOUSING PROGRAM . . . . . . . . . . . . . . . . . . 133
Existing Conditions . . . . . . . . . . . . . . 133
Homestead Housing Program . . . . . . . . . 134
House Plans . . . . 135
House Plan Cost E;tirriates 141
Site Development and Subdivision Plan . . . . . 145
Construction Costs for Site Development- - - 146
Housing Projects by Private Enterprises . . . . 147

LOWER BASE INDUSTRIAL PARK . . . . . . . . . . . . 150
Existing Conditions . . . . . . . . . . . . . . 150
Roads . . . . . . . . . . . . . . . . . . . 150
Water and Power . . . . . . . . . . . . . . 151
Wastewater . . . . . . . . . . . . . . . . . 151
Drainage . . . . . . . . . . . . . . . . . . 151
Planning Factors . . . . . . . . . . . . . . . 152
Land Use . . . . . . . . . . . . . . . . . . 152
Recommended Improvements . . . . . . . . . . 155
Drainage - o o . . . . 156
Roads . . . . . . . . 156
Water o . . . . . . o . . . 157
Sewer . . . . . . . 157
Power . . . . . 158
Security o 158
Improvements Beyond the Short Range Plan o - 159
Funding Scheme - o - o - - o - - - - - o o o 159

CAPITOL HILL C014PLEX o o - o - o - - - - o - o o - 162
Plan Alternatives - - o o - - - o - - - o o o - 162
Property Exchange Program . o o . . o o . . 163
Government Assisted Housing for Low
Income People . . o . . . . . . . . . . o 163
Privately Managed Housing Development . 163
Development of a High.-Quality Resort . 164
Disposition of Office Buildings . . . . 164
Outright Sale of the Property . . . . . . . 165
Recommendations . . . o . o o . . o o . . . 165

Xviii

Tables of Contents
Continued -

PAGE

AGRICULTURAL FACILITIES . . . . . . . . . . . . . 166
Recommended Improvements . . . . . . . . . . . 166
Plant Pathology & Entomology Laboratory . . 166
Irrigation Reservoir Project . . . . . . . . 166
Beef Cattle Grazing Lots . . . . . . . . . . 167
Other Improvements . . . . . . . . . . . . . 168
Agricultural Homesteading Areas . . . . . . . 170

PUBLIC UTILITIES CHAPTER

WATER . . . . . . . . . o o . . . . 173
Existing Conditions . . . . . . 173
South Sub-System . . . . 173
Capitol Hill Sub-System . . . . . . . 175
Navy Hill Sub-System . o o . o . . 175
Central Coastal Sub-System . . . o . . 175
Kagman Sub-System . . . . . . . . . . 176
Planning Factors . . o o . . . o o 176
Line Losses and Excessive Consumption . . . 176
Provision of Adequate Pressure . o * * i * o 179
Provision of Adequate Fire Flow Protection . 183
Improve Water Quality . . . . . . . . . . . 183
Recommended Improvements . o o . o . . . o 184
Distribution System . . . . . . . . . . . . 185
Metering . . . . . . . . . . . . . . . o . . 185
Resource Development . . . . . . . . . . . 186
Education Program . . . 186
Water Treatment 187
Hydraulic Analyses o . . . . . . . 187
Manpower . . . o o o . . . . . . 187
Summary of Costs . o o 187

SANITARY SEWERAGE o . o o . 189
Existing Conditions . . . . o . . . . . . . 189
Southern Coastal Syster, o o . . . . . . . . 190
Central Highlands and Coastal System
(Northern System) . . . 193
Individual Septic Tanks/Cesspools o . 193
Planning Factors . . o . o . . . o . . . . 194
Land Use Pattern . . . o . . . . . . . 194
Planning Objectives . . . . o . . . 194
Projected Flows . . - o . . . . . . o . . . 195
Regional versus Sub-Regional System . . . o 195
Recommended Improvements . . . . . . . 196
Southern Coastal System . o- . . . . . 196
Central Highlands - Coastal (Northern)
System . o . . . . . . o o o . 197
Capital Costs . . . . 198

xix

Tables of Contents
Continued -
PAGE

POWER . . . . . . . . . . . . . . . . . . . . . . 201
Existing Conditions . . . . . . . . . . . . . . 201
Management/Operation . . . . . . . . . . . . 201
Power Generation . . . . . . . . . . . . . . 201
Power Distribution . . . . . . . . . . . . . 205
Planning Factors . . . . . . . . . . . . . . . 206
Load Growth . . . . . . . . . . . . . . . . 206
Alternate Generator Configuration . . . . . 208
Fuel Type . . . . . . . . . . . . . . . . . 211
Power Plant Location . . . . . . . . . . . . 212
Hardening . . . . . . . . . . . . . . . . . 212
Conservation . . . . . . . . . . . . . . . . 212
Capital Improvement Recommendations . . . . . . 213
Beyond the Planning Horizon . . . . . . . . 213

SOLID WASTE . . . . . . . . . . . . . . . . . . . 216
Existing Conditions . . . . . . . . . . . . . . 216
Composition of Waste . . . . . . . . . . . . 216
Storage and Collection Practices . . . . . . 219
Disposal Practices . . . . . . . . . . . . . 219
Planning Factors . . . . . . . . . . . . . . . 220
Waste Generation . . . . . . . . . . . . . . 220
Collection Alternatives . . . . . . . . . . 222
Disposal Alternatives . . . . . . . . . . . 222
Storage Practices . . . . . . . . . . . . . 226
Resource Recovery . . . . . . . . . . . . . 226
Plan Recommendations . . . . . . . . . . . . . 227
Collection and Storage . . . . . . . . . . . 228
Disposal . . . . . . . . . . . . . . . . . . 229
Costs of Improvements . . . . . . . . . . . 231

DRAINAGE . . . . . . . . . . . . . . . . . . . . . 232
Existing Conditions and Planning Factors . . . 232
San Roque Village . . . . . . . . . . . . . 235
Cross-Island Road at Tanapag . . . . . . . . 235
Lower Base Industrial Complex at Tanapag . . 236
Garapan/Puntan Muchot . . . . . . . . . . . 236
Wallace Highway at Oleai . . . . . . . . . . 237
Chalan Kanoa/Lake Susu-e . . . . . . . . . . 238
.P
Capital Improvement Recommendations . . . . . . 238
General . . . . . . . . . . . . . . . . . . 238
San Roque . . . . . . . . . . . . . . . . . 239
Cross Island Road at Tanapag - - . . . . . 240
Lower Base Industrial Complex at ;anapag/Garapan
and Puntan Muchot . . . . . . . . . . . . 241
Wallace Highway at Oleai . . ... . . . . . . 242
Chalan Kanoa/Lake Susu-e . . . . . . . . . . 243
P

Tables of Contents
Continued -
PAGE

TRANSPORTATION CHAPTER

AIR TRANSPORTATION . . . . . . . . . . . . . . . . . . . . 247
Existing Conditions . . . . . . . . . . . . . . . . . . 247
Trust Territory Airport System Plan . . . . . . . . 247
Airport Layout Plans . . . . . . . . . . . . . . . . 247
Planning Factors . . . . . . . . . . . . . . . . . . . 247
Changing Route Structure . . . . . . . . . . . . . . 248
Larger Aircraft . . . . . . . . . . . . . . . . . . 249
Air Taxi Service . . . . . . . . . . . . . . . . . . 249
Air Traffic Forecasts . . . . . . . . . . . . . . . 250
Airport Development Needs . . . . . . . . . . . . . . . 252
Airport Development Costs . . . . . . . . . . . . . 253

HARBOR . . . . . . . . . . . . . . . . . . . . . . . . . . 256
Existing Conditions . . . . . . . . . . . . . . . . . . 257
Sea Transport . . . . . . . . . . . . . . . . . . . 257
Physical Facilities - Saipan Harbor and Charlie Dock 258
Anchorages . . . . . . . . . . . . . . . . . . . 258
Navigation Aids . . . . . . . . . . . . . . . . . 259
Charlie Dock (Pier C) . . . . . . . . . . . . . . 259
Small Boat Facilities . . . . . . . . . . . . . . . 260
Planning Factors . . . . . . . . . . . . . . . . . . . 260
Port Calls and Wharf Requirements . . . . . . . . . 262
Transshipment . . . . . .. . . . . . . . 262
Inter-Island Sea Transport . . . . . . . 264
Fisheries and Recreational Boating . . . . 265
Commercial Fishing Port . . . . . . . . . . . . . . 266
Present Maritime Fleet . . . . . . . . . . . . . . . 266
Future Maritime Fleet . . . . . . . . . . . . . . . 268
Port and Harbor Development Program . . . . . . . . . . 269
Future Harbor Development, Federal Cooperation . . . 269
Commercial Port . . . . . . . . . . . . . . . . . . 270
Baker Wharf . . . . . . . . . . . . . . . . . . . . 273
Container Yard . . . . . . 0 0 . 0 . . . . . . . 274
Charlie Dock Renovation . . . . . . . . . . . . . . 274
Garapan Wharf . . . . . . . . . . . . . . . . . . . 277
Recreational Facilities . . . . . . . . . . . . . 0 277
Summary Costs . . . . . . . . . . . 0 . . . . . . . 279

HIGHWAY TRANSPORTATION . . . . . . . . . . . . . . . . . . 281
Existing Conditions . . . . . . . . . . . . . . . . . . 281
Previous Authority for Administering Improvements . 281
Previous Planning and Road Improvement Efforts . 282

xxi

Tables of Contents
Continued -
PAGE

Planning Factors . . . . . . . . . . . . . . . . 283
Road Classification . . . . . . . . . . . . . 283
Vehicle Registration . . . . . . . . . . . . 285
General Traffic Conditions . . . . . . . . . 285
Traffic Volume and Analysis . . . . . . . . . 289
Highway Development Alternatives . . . . . . 291
Highway Development Costs . . . . . . . . . . 292
Highway Transportation Program Development . - . 293
Recommended Program Implementation Strategy - 293
The Short Range Plan Phase 1 . . . . . . . 299
The Long Range Plan Phases 2 and 3 . 302

xxii

LIST OF PLATES

PLATE NUMBER TITLE PAGE

1 vicinity map 3

2 Geomorphic Divisions 5

3 Saipan Population Projections
1967 - 1985 25

4 Land Tenure 33

5 Environmental Constraints 39

6 Land Use Map In Pocket

7 Kobler Area - Land Use In Pocket

8 Garapan Area - Land Use In Pocket

9 Marpi Area - Land Use In Pocket

10 Kagman Area - Land Use In Pocket

11 Public Facilities 79

12 Civic Center - Masterplan 83

13 Schematic Development Plan
Garapan Junior High School 103

14 Schematic Plan for a Gym/
Cafetorium 107

15 Existing Recreation Facilities ill

16 American Memorial Park 119

17 Recreation & Historic Sites 123

18 Schematic Plan - Housing 137

19 Schematic Plan - Housing 139

20 Lower Base Industrial Park 153

21 Saipan Water System 177

22 Saipan Sewerage Master Plan 191

23 Saipan Power Generation &
Distribution (Ultimate Plan) 203

xxiii

LIST OF PLATES

PLATE NUMBER TITLE PAGE

24 Solid Waste - Potential Land Fill 225

25 Proposed Drainage Improvements 233

26 Saipan Harbor & Dock Facilities 261

27 Commercial Port 271

28 Highway Improvement Program 287

29 Road Cross Sections 295

xxiv

LIST OF TABLES

Table Number Title Page

1 Saipan Population 1967 - 1985 24

2 Out-patient Usage 88

3 Schedule for Health Facility
Improvements 92

4 Health Services: Projected Capital
Improvements Program Expenditures,
FY 1978-85 93

5 Saipan Schools and Facilities 96

6 Saipan School Enrollment by Grade
Group 100

7 Classroom Requirements 100

8 Recreational Facilities 113

9 Historic Sites 114

10 Northern Mariana Islands Projects
for Recreation and Community Events 126

11 Education and Recreational
Facilities 127

12 Projected Housing Construction for
Saipan 135

13 Housing Cost Estimates 142

14 Schedule of Industrial Park Infra-
structure Improvements 160

15 Proposed Agricultural Improvements 169

16 Saipan Island Water System 174

17 Saipan Water Requirements,
1985 and Ultimate 180

xxv

List of Tables (continued)

Table Number Title Pacre

18 1985 Water Requirements by
General Village Areas 181

19 Estimated Reservoir Requirements 182

20 Fire Requirements 182

21 Saipan Water S-stem: Capital
Y
Improvement Schedule 188

22 Cost Summary of Proposed Treatment
Facilities for Saipan by Areas 199

23 Costs of Saipan Sewage System 200

24 Saipan Power Generation Capability 202

25 Saipan Power Demand 1977-1985
For Probable Major Construction 207

26 Saipan System Growth Through 1985 209

27 Alternate Plant Requirements 210

28 Estimated Capital Improvement
Costs (in 1977 Dollars) 215

29 Composition of Residential Solid
Waste in Saipan 218

30 Projected Quantity of Refuse
Generated 221

31 Population and. Dwelling unit
Distribution 223

32 Equipment Requirement 230

33 Summary of.,Air Traffic Forecasts
Saipan International Airport,
1980 - 1995 251

34 Saipan Airport. Development Costs 254

xxvi

List of Tables (continued)

Table Number Title Page

35 Analysis of the District Public
Works Department Log on Port
Calls at Saipan Harbor During 1976 263

36 Estimate of Small Fishing Craft - NMI 265

37 Vessels Calling at Saipan Port 267

38 Estimated Cost for Construction of
Baker Wharf 275

39 Estimated Cost for Renovation of
Charlie Dock 276

40 Estimated Cost for Garapan Fishing
Wharf 278

41 Cost Estimates of Marine Facilities
for Saipan: Short and Long Term 280

42 Past CIP Appropriations for NMI Roads 284

43 Saipan As-Built Roadway System 284

44 Vehicle Registration for Saipan,
Mariana Islands 286

45 Highway Program Development Costs 294

46 Recommended Goals and objectives 297

47 Highway Development Program
Functions/Responsibilities 300

48 Proposed Saipan Highway Improvement
Projects - Short Range Plan 303

xxvii

BACKGROUND

GOALS AND OBJECTIVES

NATURAL SETTING FOR PLANNING

SOCIO-DEMOGRAPHIC SETTING

LAND MANAGEMENT FACTORS

ENVIRONMENTAL CONSTRAINTS

GOALS AND OBJECTIVES

Basic guidelines directing the development of the Saipan
Physical Master Plan have been provided by the Office of
Transition Studies and Planning. These guidelines are as
follows:

Evolve a viable Physical Development Master Plan for
Saipan to provide an adequate framework for accommo-
dating the socioeconomic and political changes facing
island residents.

Recognize natural environmental constraints such as
slopes, soils, and water in the location and develop-
ment of growth areas and preserve to the maximum extent
possible the scenic and natural character of the island.

Provide for the orderly growth of the Saipan community
by coordinating urban growth and economic development
with the timely provision of roads, utilities, harbors
and other Capital Improvement Projects.

Prepare a Capital Improvements Program for the next seven
years based upon the physical development master plan for
the island of Saipan.

To promote and provide for the increasing economic inde-
pendence of the Northern Mariana Islands.

NATURAL SETTING FOR PLANNING

GEOGRAPHY

The Mariana Islands including Guam constitute a chain of 17
islands (three of which form the island of Maug) which extends
about 440 miles along a north-south axis. Total land area of
the Marianas chain is 399.11 square miles. Saipan, the second
largest of the chain, is approximately 46.6 square miles (See
Plate 1).

Saipan is located in the Western Pacific Ocean at about 1500
121 North Latitude and 1450 371 East Longitude. The nearest
islands are Tinian and Agiguan, three (3) and twenty (20)
miles to the south southwest, respectively. G@am, the largest
island in the Marianas, lies about 120 miles south-southwest
of Saipan. The larger continental groups of Japan, Ryukyus,
Philippines and New Guinea, range north to south from 1,000
to 1,500 miles from Saipan in a western arc.

GEOLOGY

The Marianas are located along peaks of a submerged volcanic
mountain range, lifted upward by tectonic forces resulting
from the subsidence of the Pacific Basin. The slight curva-
ture of the arc, as well as the geomorphology of the islands,
indicate that geologically, the Mariana Islands are youthful,
probably dating from the Eocene Period.

Geologically, the islands fall into two regions, a younger
chain of small purely volcanic islands extending from Anata-
han to the north, and an older, more complex group consisting
of Saipan and the islands to the south. The northern islands
retain their initial volcanic form. Guguan, Pagan Agrihan,
Asuncion, and Farralon de Pajaros in this group are either

400, **41,

6 Farallon de Pajeros

Moug Islands 4

Asuncion Island

Agrihon

Pagan

. Alamogon

a Guguan

oSorigon

Anatohon co

a Farallon de Medinillo

?SAIPAN

Tinion
'Aguijon.

Rota
oftme moo 4000

Guam

SAIPAN ISLAND
PHYSICAL DEVELOPMENT MASTER PLAN
VICINITY MAP

January 1978
Pacific Planning and Design Consultants
Saipan - commorwmith at the Northern Mariana islands

active volcanoes at present or have been so within the past 72
years. Saipan and the southern islands are volcanic in base,
coral-capped, and evidence more prolonged evolution. Barrier
reefs tend to develop on the more gentle western slopes, while
reefs closely fringe the shores on the east. The eastern
coastlines are generally rocky and cliffbound and are charac-
terized by wave-cut notches, sea caves, abrasion benches, and
detached segments of the former shore.

TOPOGRAPHY

Saipan is about 13 miles long, averages about four (4) miles
wide and has a total land area of 46.6 square miles (29,811
acres). Despite its relatively small size, it is considered
to be more complex geomorphically than neighboring islands.
Plate 2 indicates the principal geomorphic divisions.

The dominant topographic feature is an axial upland area ex-
tending through the northern three-fourths of Saipan. It
consists of northern and southern terraced limestone uplands
with a maximum elevation of 1,555 feet at Mount Tagpochau, a
little south of center of the island and 835 feet in the
Matuis area at the north end. There are low saddles through
the highlands providing access from one side of the island to
the other.

The northern, eastern and southern coastlines of the island
essentially exhibit moderate to steep cliffs and slopes, all
with varying heights. Occasionally these features are inter-
rupted by coral sand beaches.

The island has three distinct topographic regions generally
delineated by terraced plateaus. These regions are found at
the northern tip of the island (at Kagman Peninsula); and on
the southern plateau(extending between Agingan Point and Naftan
ridge). These terraces are bounded by high limestone cliffs
locally interspersed With volcanic materials.

Puntan Sabaneta

AXIAL UPLANDS

LOW LIMESTONE PLATFORMS

LOW TERRACED BENCHES

DONNI CLAY HILLS BELT
Bahia
SOUTH-EASTERN COASTAL FAULT RIDGES Fanunchuluyan

WESTERN COASTAL PLAIN

Puntan Muchot

Puntan Kagman

Puntan
Agingan

SAIPAN ISLAND
Puntan Nattan PHYSICAL DEVELOPMENT MASTER PLAN
N GEOMORPHIC DIVISIONS

January 1978
0 2krn
Pacific Planning and Design Consultants
Saipan -Commonwealth of the Northern Mariana Islands

The southern two-thirds of Saipan's western coast are low-
lands adjacent to the lagoon. They form a narrow belt of
sand from San Roque in the north to Agingan in the south.
There is only one lake on Saipan. Lake Susupe is located
inland from Susupe Village and contains brackish water
surrounded by marshlands.

Saipan has either barrier or fringing reefs along most seg-
ments of its coast. Fringing reefs, as the name implies,
fringe the coast and pass laterally in toward shore with
little or no significant underwater relief, although micro-
relief may vary considerably.

The serene beaches along Saipan's western coast are protec-
ted by the barrier reef. The barrier reef runs nearly
parallel to the western shoreline for over 90% of Saipan's
length. The barrier reef is elongate and continuous for
most of its length, although there are holes, grooves,
channels, and separations at various places. Some of the
separations are large enough for smallcraft transit.

The largest gap in the reef occurs .4est of Tanapag Harbor
and is used for ingress and egress by commercial ships. The
width of the lagoon it creates varies from less than 100
meters to over 3,000 meters. Its widest point is opposite
the commercial dock area in Tanapag Harbor. To the north
and south the reef gradually moves shoreward.

The water depth in the lagoon is variable. In many areas it
is possible to wade across the reef flat during a medium
tide. In other regions, smallow coral heads present a
hazard to small boat operation during extreme low tides.
The Tanapag Harbor area'ranges from 20 to 50 feet (6 to
15 meters) in depth and is able to accommodate small to
medium sized tankers and freighters.

The small island of Managaha lies offshore from the commercial
dock area and adjacent to the barrier reef. With its sandy
beaches and lush vegetation, it is a popular spot for picnic-
king and skin diving.

SOILS

Three major soil groups exist on Saipan: soils on limestone;
soils on volcanic rocks, and soils on elevated beach deposits.
Limestone underlies approximately 83 percent of the island.
Volcanic rocks and elevated beach deposits occupy about ten
(10) and seven (7) percent respectively.

Eighty percent of the island is covered by soils generally less
than 30 inches deep. It is generally felt that the shallow
soils result from continuous erosion which appears to be occur-
ring at about the same rate that the soils are being formed.

The four major soils developed on Limestone include Dandan,
Saipan Chacha, Chinen and Rough Stoney Land. Each is dis-
cussed below.

The "Dandan" is a clay loam and is the most productive soil on
Saipan. It is non-stony to stony in consistency. It is found
on level to slightly sloping land in the northern and southern
sectors of the island, as well as on the eastern peninsula
(Kagman).

The "Saipan Chacha" is found throughout the island. This soil
is a deep, fine-textured clay and difficult to work when wet.

The "Chinen" soils are usually found from the gently sloping
to steeply sloping lands and are of a stony, shallow nature.

The "rough stony lands" occupy the steep mountain areas and
the rocky coastal sections. These lands are not suited for
any kind of cultivation.

Land classification as identified in the earlier soils reports
indicates that less than 1300 acres of land are considered
fair for overall agricultural use. Over half the land area of
Saipan is considered unsuited for intensive agricultural use
and consists of very steep,, very shallow or rocky lands as
well as construction areas and marshlands.

CLIMATE

The climate of the Marianas is tropical marine, reflectng the
nearness of the equator and the influence of warm surrounding
waters. Wind and rainfall are the most variable elements;
humidity, temperature and pressure remain fairly constant
throughout the years.

Climatically the year falls into two seasons with very little
temperature variation but pronounced rainfall differences.
Average temperature for Saipan is 27.50c. (81.50F). The
annual range is about 2.20c. (40F) with a diurnal range
between 5.00 and 5.60C. (9100F). Extreme minimum tempera-
tures of 20.OOC (680F) have been recorded at Garapan; the
extreme maximum, recorded at the same station, is 31.60C.
(890F). These stations were located in lowland, west coast
locations.

The period of heaviest rainfall occurs from July through
October. The ratio between the driest and wettest months of
the year is approximately I to 5. Annual rainfall extremes
recorded at Garapan ranged from 115.1 inches to 59.8 inches
over a nineteen year period averaging approximately 83 inches
annually. Relative humidity averages 83%.

The outstanding characteristic of the wind regime on Saipan
is the trade winds. Average annual wind velocity is 10.5
mph. Trade winds are pronounced and persistent during the
period from January through May when the winds blow from north-
east and east-northeast more than 90% of the time. Wind direc-
tions are far more variable during the period from July through

October.

Two principal kinds of storms contribute markedly to the clima-
tic character of Saipan: small-scale storms, consisting of
thunderstorms and squalls, and large systems of tropical storms
and typhoons. The small-scale disturbances may dominate an area
of only a few square miles. Larger cyclonic storm systems may
dominate an area as large as 300,000 square miles and may per-
sist for a week or more.

Tropical storms are closed predsure systems about which the air
moves counter-clockwise in the northern hemisphere with wind
speeds of 33-65 knots (38-74.9 mph). Typhoons are similar to
tropical storms but are accompanied by winds of 65 knots or
greater. Major tropical cyclonic disturbances of these kinds
occur on Saipan. Although they have occurred in all months
of the year, they are far more frequent during the rainy sea-

son.

In the past 15 years, two major typhoons have passed close
enough to Saipan to cause major destruction. In 1968, Typhoon
Jean's 160+ knot winds caused major damage on Saipan, Tinian
and Rota. On May 21, 1976, Supertyphoon Pamela passed directly
over Guam with winds in excess of 200 knots. Saipan experienced
estimated wind velocities in the range of 100-130 knots during
Supertyphoon Pamela.

GROUNDWATER RESOURCES

Approximately 73 billion gallons of rain falls on Saipan in
an average year. Were the rainfall uniformly distributed over
time, which it is not, this would amount to about 200 million
gallons per day. The groundwater is of critical importance to
Saipan as it is the major supply of potable water for the is-
land's residents. At present, the public water system on Sai-
pan is served by 14 drilled wells, (five additional wells
will be added in the near future); two infiltration galleries;
and two flowing springs. Present water production on Saipan
is between 1.6 and 2.5 million gallons daily.

Saipan is a high island made of the fossil remains of ancient
reefs and lagoons that grew on an eroded volcanic terrain.
Only about ten (10) percent of the island is mapped as volcanic
substrate; the water infiltrates vertically to aquifers from
which it slowly drains to the sea. The limestone terrain cover-
ing 90 percent of Saipan is so open to vertical infiltration of
rain water that overland drainage is negligible. Only on the ex-
posed volcanics in the Talofofo district has a surface drainage
pattern evolved. Stream flow there is small, however, because
of the limited drainage areas of the watersheds.

The fresh groundwater of Saipan commonly has been classified
as either basal, which occurs in the form of a thin lens of
fresh water floating on sea water in buoyant equilibrium near
sea level, or high level, which saturates aquifers having re-
latively impermeable bottoms lying above sea level. A third
type, transitional between the first two may occur, although
it has not yet been discovered. it is called parabasal because
it is hydraulically continuous with basal water but rests on
an impermeable bottom that rises above sea level.

The principal basal water regions of Saipan that are currently
being exploited are the Kobler-Isley Field portion of the is-
land; Dandan, just to the north of the airfields; and the Ra-
pugau district west of Capitol Hill. The salinity of pumped
water ranges from about 200 mg/l chloride to more than 1000
mg/l, depending on source, pump rate, and time of year. The
biggest producer is Maui Shaft 1, an infiltration gallery cons-
tructed by the U.S. Military at the end of the Second World

War.

The Kobler Field - Isley Field - Dandan well fields are pre-
sently producing about 1.22 million gallons daily. There are
eight producing wells and the Maui Shaft 1, which together are
presently pumping 850 gallons per minute.

The other major source of basal water is the Rapugau well field
which is presently producing about 0.40 million gallons daily
from three wells and a second Maui Shaft. The potential of
this region to supply additional water of low salinity is good
and further exploration is justified.

The basal water of the Chacha district (Kagman) is barely ex-
ploited by one well supplying local domestic needs (Kagman
Housing) and Pne well satisfying irrigation requirements. The
reqion could yield a substantial quantity of low to moderate
salinity basal, and perhaps parabasal water, but it is distant
from the transmission lines of the distribution system and
therefore its resources remain undeveloped.

In favorable situations where the volcanic basement lies above
sea level, it behaves as an aquiclude above which groundwater
accumulates in limestone aquifers. This is known as high level
groundwater.

The most important high level groundwater resource on Saipan
is found at Agag, located on the east flank of Ogso Tagpochau.
The aguifer is composed of Tagpochau limestone that filled a
pre-existing valley on the volcanic surface. The Agag wells
produce approximately 400 gpm (.57 mgd) of low salinity water
at a steady rate even during the dry season. This field is the
keystone of the northern water distribution system. Without
the substantial volume of its excellent water, the supply at
Capitol Hill and the west coast would be far less palatable
than it now is.

Donni Spring is high level water that flows from either a lime-
stone or limestone-volcanic sediment lying on a less permeable
layer of rock. Three 250 gpm pumps are installed at the spring
but a yearly average flow of only about 210 gpm is available
and withdrawn. The three pumps are used simultaneously only
during peak flow periods in the wet season. Once the dry sea-
son sets in, spring flow decays quickly to about 350 gpm (0.5
mgd) and then drops slowly thereafter to about 35 gpm by the
end of the dry season. As measured by the USGS, maximum flow
has been 1.75 mgd, the minimum .01 mgd, and the average .35
mgd.

The water from Donni Spring has quality characteristics nearly
identical to the Agag supply. Several other springs also drain
from the east slope of Tagpochau but are too small to develop.

Additional sources of high level water in limestone aquifers
could be expected to lie between Agag and San Vicente. Veri-
fication will require an exploratory drilling program, but the
excellent water quality justifies the effort. Should new
sources of exploitable water be discovered, a transmission
main would be required to move the water south to Isley or
north to the Agag booster.

only one source of high level water from volcanic rock now
contributes to the supply system. Tanapag Springs averages
about 40 gpm, the dry season flow dropping to about 30 gpm
and the wet season rising to about 100 gpm. Tanapag Springs
drains a permeable artesian aquifer in volcanic rock, but
throughout most of the volcanic area groundwater is unconfined
and water tables lie high above sea level. Volcanic aquifers
typically show extremely low permeability, though exceptions
such as Tanapag are not infrequent. Groundwater in volcanic
formations is an untapped resource, chiefly because expected
yields of individual wells would be small and occasionally neg-
ligible.

FLORA

The vegetation of Saipan has been so disturbed by human occupa-
tion, encompassing aboriginal Chamorros, domination and altera-
tion by four successive foreign cultures and destruction during
World War II, that the vegetal pattern is neither simple nor
stable and is now in a state of rapid change. In all probability
the greater part of the island was originally forested, mostly
with the typical mixed forest found on limestone in the Marianas.
A little of the mixed forest remains near the top of Ogso Tagpo-
chau, on and around the base of Laderan Banedero, and on cliffs
along Kagman.

Relatively few plant species are unique to the Mariana Islands
or Saipan proper. The basic flora of Saipan was probably ori-
ginally introduced by overwater means, or, possibly by airborne
transport during major tropical cyclonic disturbances (typhoons)
which periodically ravage the Caroline and Mariana Islands.
Hitch-hikers on, or in birds, bats and insects, or 'drifters'
associated with floating logs or debris are also likely modes
of introduction.

Introductions by aboriginal man were also significant. Present
vegetation includes at least 30 species of crop plants which
are in all probability of pre-European aboriginal introduction.
Among the latter are the familiar bamboo (Bambusa vulgaris),
banana (Musa sapientum), breadfruit (Artocarpus communis),
mango (Mangifera indica) and sugarcane (Saccharum officinarum).

A large number of crop plants and ornamentals were also intro-
duced from Mexico, central or South American by way of the
early Spanish galleons. A @major route was from Acapulco to
Guam (Tinian, Saipan and Rota), and on to Manila. The long
Spanish period ensured that many crops, ornamentals and weeds
were introduced both from the New World and from the Philippines.

During Japanese tenure in the Mariana Islands, all of the level
land on Saipan was put into sugarcane. There is no record of
what original vegetation existed before, though some of it must
have been mixed forest, either primary or secondary. Since the
island at one time supported a large Chamorro population, pro-
bably most of the forest on level land was secondary growth on
abandoned fields and dwelling sites.

Such growth was probably dominated by Hibiscus and Melochia,
with blankets of Operculina ventricosa. Sugar growing was not
resumed after the war, and the cane fields have been gradually
invaded by different woody plants, forming uneven mixed thickets
with the cane persisting in many places.

Much of the land previously in sugarcane has become infested
with pure stands of Tangan-Tangan (Leucaena leucocephala).
This species grows quickly, and is very difficult to eliminate.

Many areas of level sloping ground have been covered, either
since the war or during Japanese times, by pure or mixed stands
of Formosan Koa (Acacia confusa), and others by ironwood

(Casuarina equisetifolia). The first was said to have been
planted by the Japanese for charcoal. Both of these species
are similar to tangan-tangan in that they tend to exclude
undergrowth.

Parts of the coastal plain are planted with various garden and
field crops. Some of the marshy places are used to culture
taro and related plants. Others, including the area east of
Lake Susupe, are covered by brakes of marsh grass (Phragmites
karka). Parts of the latter, at least, were previously in rice.
Rice cultivation was practiced by the ancient Chamorros and car-
ried on by the Japanese wherever the land was suitable.

The volcanic areas and part of the hills around Fanunchuluyan
Bay, and the slopes east of Tagpochau, are mostly covered by
sword-grass (Miscanthus floridulus) and associated species.
On undisturbed areas of this type this coarse tall grass is
dominant, but tends to be invaded by Casuarina.

On the west coast, Casuarina is conspicuous, but most of the
strand forest has been destroyed. At Tanapag is a tiny man-
grove swamp containing Bruguiera conjugata, Thespesia populnea,
Hibiscus tiliaceus, Hernandia sonora, and Acrostichum aureum.

FAUNA

Terrestrial fauna is limited in the Mariana Islands. The only
native mammals are two species of bats. one of these, the
'fanihil or fruit bat (Pteropus mariannus) is a popular local
delicacy. The fruit bat nests in trees during the day, and at
dusk flies over well established routes to feed on papaya,
guave, soursop and sweetsop. Unrestricted hunting and reduc-
tion in its habitat have almost eliminated the fruit bat on
Saipan.

The second mammal, Emballonura semi-caudata, is a small insect-
ivourous cave-dwelling bat found throughout the Marianas.

The Marianas Deer, Rusa marianna, is an introduced species
originally brought to Saipan and Rota from the Philippines
between 1771 and 1774. Heavy hunting pressure has brought
it to near extinction on Saipan.

Rats and mice were inadvertently introduced by early ship
visits. The common Norway rat (Rattus norvegicus) and mice
(Mus musculus) have long been. pests. Two other rats may also
be present on Saipan; the Roof rat (Rattus rasttus) and the
Polynesian rat (Rattus exulans). The Oriental musk shrew
(Suncus murimus), accidently introduced to Guam in the early
1950's, has since spread to Saipan (Owen, 1974).

Feral (wild) dogs and cats are also found on most of the is-
lands, the latter often constituting a problem by preying on
chickens.

The monitor lizard, (Varanus indicus), is the largest terres-
trial reptile in the Mariana Islands, occasionally reaching
lengths of up to six feet. The blue-tailed skink (Emoia
caruleocaude), the golden-brown ground skink, New World cha-
meleons, and several species of geckos constitute the remainder
of the known lizard fauna.

Typhlops braminus is the only terrestrial snake in the Marianas.
It is a small, blind, non-poisonous burrowing snake which re-
sembles an earthworm. The West-Indian or Marine toad, (Bufo
marinus) was introduced by the Japanese to control slugs and
insects and is found in large numbers on Saipan, Tinian and Rota.

Today, no fewer than 191 kinds of birds, belonging to 41 fami-
lies and 103 genera are known to occur in Micronesia. The
avian fauna of the Mariana Islands is influenced by the Japa-
nese-Marianan flyway. From breeding grounds in Asia, the
Aleutians and Alaska, certain migratory birds (especially water-
fowl) follow the Asiatic coast or adjacent island chains to the
Japanese Archipelago. From Japan, some birds fly through the
Bonin and Volcano Islands to the Marianas and to points to the

southeast.

The Golden Honey-eater (Cleptornis marchei) is a species endemic
to the islands of Saipan and Agiguan. Four other species, in-
cluding Rufours fronted fantail (Rhipidura rufifrons), Bridled
White-eye (Zosterops consEicillata), Marianas Duck (Anas ous-
taleti) and Rock Pigeon (Columba livia) are endemic to the is-
lands of Saipan and Tinian.

The Marianas Duck is one of the very rare birds of the world
and is declining in its range which once extended from Guarn to
Saipan. This nondescript patterned duck is and probably al-
ways has been rare in the Mariana Islands, since it is restricted
to freshwater marshes and swamps, neither of which are extensive
in the Marianas. Its last stronghold is believed to be Lake
Susupe on Saipan and Lake Hagoi on Tinian. On July 10, 1977
the U.S. Fish and Wildlife Service, Department of the Interior,
officially declared the Marianas Duck to be an endangered spe-
cies under the U.S. Endangered Species Act. Continued hunting
pressure and destruction of its marshland habitat by draining
or filling could easily force the duck into extinction.

The Nightingale Reed Warbler (Acrocephalus luscinia) is believed
to be endangered throughout its range which includes the southern
Mariana Islands. It is now extinct on Guam. This species is
restricted to cane thickets and adjacent areas in and near fresh
and brackish water marshes. The Lake Susupe area could there-
fore provide suitable habitat for this species as well.

SOCIO-DEMOGRAPHIC CONSIDERATIONS

HISTORIC

The Mariana Islands were first sighted by Magellan on blarch 6,
1521. There is some question as to the actual island he dis-
covered first. Some sources say Guam, others say Tinian or
Saipan.

The first missionaries named the islands Mariana in honor of
Queen Maria Anna, widow of King Philip of Spain and patroness
of the first missionaries. The Spanish soon established Guam
as a provision port for treasure-laden galleons sailing bet-
ween Mexico and Manila.

In 1565, Legazpi formally proclaimed the Mariana Islands a
Spanish territory. But the islands had no gold or other trea-
sure and Spain made no immediate attempt to colonize them. She
did, however, bring Christianity to the Marianas. A mission led
by Padre Luis de San Vitores landed on Guam in 1668. It housed
the first Spaniards to live in the islands and administer Spa-
nish rule.

The indigenous Chamorros did not see eye to eye with the Spanish
nor did they easily become converts to Christianity. Likewise
the missionaries opposed much of the local culture. The result
was an armed revolt in which many Chamorros and priests were
killed. The Spaniards then moved the Chamorros from the other
islands of the Marianas to Guam. This left the islands north
of Guam uninhabited except for a few people on Rota who survived
by hiding in caves.

The most significant event during the Spanish conquest of the
Marianas was the near obliteration of the Chamorro culture and
Chamorro people. It is estimated that there were up to 100,000
Chamorros living in the Marianas in 1668. A Spanish census 42

years later listed only 3,500 Chamorros, three pIercent of the
original population. The decline of the Chamorro race was
checked to some degree by Mixed marriages between Chamorro
women and Spanish, Mexican and Filipino men.

From 1816 on, the Chamorros began migrating from Guam back to
the other islands of the Mariana group. The history of the
Saipan Chamorros, as relevant to our present study, may be
said to have begun in 1818 when the first Chamorro settlement
was reestablished on the island, more than a hundred years after
their ancestors had been deported to Guam.

These settlers were a different people from the "unenlightened
savages" of San Vitores' day. They were a mixed race with a
culture and tradition that was more colonial-Spanish than abo-
riginal. They were devout Catholics, and their lives and
training had been centered around the Church for over two hund-
red years. They had lost their skill as navigators and boat-
builders during the period when they were confined on Guam, but
on the other hand, they had advanced as agriculturalists.

The Chamorros, then, at the beginning of the nineteenth century
were already an "acculturated" people. During the two hundred
years of Spanish occupation the islands, being poor and unpro-
ductive, attracted little attention from the outside world.
Customs and thought patterns, established in the early days,
underwent little modification. Though the old matrilineal
clan system was replaced, under Spanish influence, by a patri-
lineal one with strong father authority, the ties of the
extended family still persisted. Very little trade had deve-
loped. Most Chamorros, including the town dwellers, owned
land and grew their own food, supplementing the farm products
by inshore fishing.

Carolinians came to the Marianas in several waves of migration
between 1815 and 1869. The first to arrive were a group of
about two hundred who established themselves on Saipan in 1815.
Saipan was at this time uninhabited, and the Spanish authori-
ties encouraged the settlement of Carolinians, who were skilled
canoe-builders and navigators and could supply much-needed in-
ter-island transportation. Another wave, about a thousand
strong, came in 1865 and settled on Guam, Saipan and Pagan.

After their arrival in the Marianas, the Carolinians did not
intermingle with the Chamorros, but lived in separate communi-
ties, preserving their own language and continuing in their
own customs and ways of life. When the Chamorros began to re-
settle Saipan, about two years after the establishment of the
Carolinian colony, they founded different villages and the
Carolinians had little contact with them. At the time of the
United States occupation only Tanapag, a small northern commu-
nity, had both Chamorro and Carolinian residents.

The culture that the Carolinians brought with them was apparently
not dissimilar to that of the pre-Spanish Chamorros, but there
were some differences. Their society was organized in matri-
lineal clans, but, unlike ancient Chamorros, women held a sub-
servient position. Land was held by clans, not by individuals.

This culture was preserved in its essence by the Carolinians
of Saipan until very recent times. Clan ownership of land was
supplanted by individual ownership, since the Spanish issued
land-grants to individuals. Spanish and later German census-
takers attempted to impose a patrilineal pattern, at least as
far as family names were concerned.

In 1898, after the Spanish-American War, Guam came under the
control of the United States whereas the remaining Northern
Islands of the Marianas became a colony of Imperial Germany.

This division of political administration for the Mariana
islands was to have far reaching consequences upon their
economic development.

The Marianas were too distant and her resources were too
limited to arouse much interest in Germany. But, the Germans
did not neglect the islands totally, imposing health measures,
establishing public schools, extending the road network and
organizing an agricultural program, based chiefly on copra.
However, the German period of occupancy was too short to
leave much imprint on either the people or the landscape.

Japan dominated trade in the Northern Marianas even during
the German tenure. By the end of the German period, Japanese
trading incursions had resulted in their comprising the lar-
gest component of the foreign population on the islands.

With the advent of World War I the islands were taken by the
Japanese without a struggle, and for the first time since
their discovery, they became easily accessible to a ruling

power.

The Japanese interest, though at first military and strategic,
soon focussed on colonial expansion and on the use of the is-
lands as permanent settlements for their surplus population.
Within ten or fifteen years the natives found themselves trans-
formed from the chief element in the population to a small and
unimportant minority. By 1930, there were between twenty and
twenty-one thousand Japanese on Saipan.

This tremendous increase in population was accompanied by a
complete change in the island economy. The Japanese, early
in their tenure, instituted the production of sugar on a large
scale. The island was transformed into a vast sugar-cane
plantation and large sugar refineries and factories for by-
products were constructed. Native property rights were res-
pected, but all land not owned by individuals at the time of

the Japanese occupation became inaccessible to them. The
Saipanese labor force was too small to handle the development.
So the Japanese brought in Korean, Okinawan and Japanese
mechanics, engineers, and farmers.

The Japanese influence grew deeper with the establishment of
schools where attedance was: mandatory. Japanese language and
philosophies were taught. The principal village, Garapan,

became a boom town.

For nearly thirty years, the natives continued as a minority
community in the midst of an alien civilization. Then on
June 15, 1944, United States forces, after several days of
aerial bombardment, invaded Saipan. The island and its inha-
bitants suffered extensive damages. Until early 1946, the
local populace was kept isolated in temporary shelters cen-
tered in Chalan Kanoa. Then, after repatriation of the Japa-
nese civilian prisoners, the local populace was allowed free
circulation, and were gradually able to regain those parts of
the island not occupied by U.S. forces. By 1947 the local
populace was experiencing economic recovery. Every family
had a house in Chalan Kanoa or in one of the nearby farm vil-
lages. All had access to farm lands. All had some means of
livelihood and some were rapidly accumulating wealth.

However, their world was changed. Their pre-war homes were
gone, and they were established in an unfamiliar part of the
island. Although land had been allotted to them, it was in
most cases on a temporary basis only, since the establishment
of claims to pre-war holdings was a slow and complicated pro-
cess. Long accustomed to submitting to authoritarian govern-
ment, democratic practices and responsibilities were rapidly
thrust upon them. Although inexperienced in financial matters,
they were encouraged to undertake business enterprise. It was
necessary for them to learn a new language in order to communi-
cate with their conq uerors, -and for the third time within fifty
years, to adapt as best they could to a new set of cultural
values.

On July 1, 1962, the military administration was turned over
to the Department of the Interior. The occasion saw the
termination of nearly a decade of naval administration, the
beginning of a civilian administration, and the establishment
of the Mariana Islands District.

POPULATION

Saipan's population trends are indicated on Table 1 and de-
tailed on Plate 3. Three components of the population have
been selected for analysis: Micronesian residents, including
the large dominant Chamorro population and the smaller, ethni-
cally separate Carolinian minority; non-Micronesian including
U.S. expatriates and alien labor; and tourists. These com-
ponents were selected because their behavior can be reasonably
associated with separable phenomena.

The present permanent population of 14,000 is projected to
exceed 19,000 by the end of the current plan period. Data for
1976 was obtained from a study conducted by Peace Corps per-
sonnel. Data for 1973 was obtained from the 1973 population
census of the Trust Territory. The data for 1978 and 1985
was derived from population studies conducted by Robert R.
Nathan Associates during preparation of the Socioeconomic
Development Plan.

Micronesian

The Micronesian segment is the largest component of population,
comprising approximately 83% of the present total. It is also
the most stable with respect to projections. The net rate of
increase for this segment has declined from the 5% annually
between 1967 and 19731 and is projected at 3% during the plan
period. This trend is consistent with a declining birth rate
accompanying rising living standards. Of particular interest
is the declining proportion of this segment to total island

TABLE 1

MARIANA ISLANDS POPULATION 1967 1985

Population 1967 1973 1978
Segment Population Population Population

Micronesian: 8,294 (92%) 10,895 (87%) 12,651 (84%)

Non-Micronesian: 741 (8%) 1,620 (13%) 2,323 (15%)

Tourists: N.A.* N.A.* (_%) 704**

TOTAL: 9,035 (100%) 12,515 (100%) 15,678 (100%)

Source: 1968, Peace 1973 Robert R.
Corps Study TTPI Nathan &
Census Associates'
Socio-Eco-
nomic Plan

*N.A.: Not Available
**Denotes daily average of tourist population.

SAIPAN POPULATION PROJECTIONS

1967-1985

25,000 -

.21,099
20,000- TOURISTS 19,314

15,678
15,000 00 0o 00 .0 .0 .040 . JpAs 15,314
12,515

10,000- 0,294

MICRONESIANS
5,000-

1967 1973 1976 1995

SAIPAN ISLAND
PHYSICAL DEVELOPMENT MASTER PLAN

POPULATION PROJECTIONS

January 197
Pacific Planning and Design Consultant:
Saipan - Commmm"alth of the Northern Mariana Is

population. This proportion has declined from 92% in 1967
to 87% in 1973. The proportion is expected to be 84% in
1978, and is projected to drop to 78% by 1985.

Non-Micronesian

The non-Micronesian segment has shown a steady increase in
its proportion of the total population, from 8% (1967), to
13% (1973). It is expected to increase to 15% by 1978, and
to 20% by 1985.

The behavior of this population segment will be considerably
more volatile than that of the Micronesian segment. Primarily
due to its relationship with overall political and economic

factors.

on the Political side, termination of the Trust Territory status
willresult in the removal of the headquarter from Saipan. For
planning purposes, it has been assumed that this move will occur
by the end of FY 1981, the target date for termination of the
U.S. Trusteeship in Micronesia.

During the tenure of the Trust Territory Government, operation
of the headquarters provided a steady and a high level of govern-
ment expenditures. Local wage earners, both Micronesian and
non-Micronesian, benefitted from operations as did business
enterprises in Saipan's private sector. Termination of the
trusteeship and its concomitant governmental operations will
result in changes in the non-Micronesian segment of the popula-
tion.

On the growth side, considerable construction activity is
expected during the plan period. The shortage of managerial
and craft skills will necessitate importing these skills,
even though the socioeconomic Plan recommends the establish-
ment of a balanced labor program so that greater numbers of

local residents benefit from increased economic activities.
Furthermore, the ability of Saipan to attract industries is
still uncertain, so only-modest growth in manufacturing acti-
vity (requiring some non-Micronesian skills) is anticiT)ated.

There are several potentially significant factors, the rami-
fications of which cannot at this time be predicted, but
which require constant surveillance. The proposals for
military facilities on Tinian, a petroleum storage facility
at Maug, and geothermal energy development on Pagan could
each significantly alter the population projections for Saipan
and the Northern Mariana Islands.

Tourists

Tourism represents an important source of outside revenue which
generates employment in related economic sectors and generally
stimulates the local economy as a whole. Most, if not all, of
the employment in the visitor industry will be filled by local
residents. Tourist-related enterprises, such as restaurants,
travel agencies, sightseeing buses, sport fishing, car rentals,
and souvenir shops are supported by tourist expenditures. Addi-
tionaly, nearly all wholesale and retail enterprises are affected
by the expenditures of workers employed in the tourist-related
enterprises.

The tourist industry, however, is also volatile. Economic
downturns, especially in Japan could cause tourism to fall
far short of projections. Likewise, unanticipated econo-
mic booms would raise the number of visitors beyond the pro-
jected level.

The proportion of this segment to total population is ex-
pected to rise to 9% by 1985, which would be approximately
1,800 visitors on an average day. It should be noted that
population data on the tourist segment was unavailable for
1967 and 1973.

EXISTING DEVELOPMENT PATTERNS

Under Japanese rule thirty-five years ago, Saipan had a
populaion of over 45,000 persons, with less than 10 per-
cent being natives. Most of' the island was under cultiva-
tion and a narrow gauge railroad virtually encircled Saipan.

At that time Saipan was essentially an agricultural colony
for Japan with over 18,000 acres of sugar cane fields. The
population was centered along the west coast with Garapan
as the principal city.

Saipan was heavily damaged in 1944 when allied forces seized
the island from Japan. The Japanese agricultural fields
were destroyed and replaced, within a year, by a huge American
military complex of warehouses, airfields, military encamp-
ments, and ammunition storage areas. Today most of this is
gone although many remnants of the war period are still pro-
minent. Two major airfields, one having been converted to
the Saipan International Air-port, still dominate the landscape
in the Kobler-Isley Area at the South end of the island.
Various roads, concrete foundations, bunkers, and war ordi-
nance are still present.

Today most of Saipan's 46 square miles is relatively unused.
The landscape is dominated by tangan-tangan trees (seeded by
the U.S. Military), flame trees and various other exotic vege-
tation. old coconut plantations are still common on the
sloping hillsides and urbanization dominates Saipan's west
coast. An eleven mile area of development, with several iden-
tifiable villages, contains the bulk of the population.

The southern urbanized area, including the village of San
Antonio, Chalan Kanoa, Susupe, and San Jose, contains two
thirds of the native population and about 60 percent of the
island's total population, or about 8,000 people. The housing
in this area is some of the oldest on Saipan and is largely

substandard, thus not likely to withstand a typhoon. The
southern area contains the Northern Mariana Islands govern-
ment offices, the Saipan Municipal government office, all
major shopping attractions, and the islands two high schools
- one public and one private.

The central part of the west coast urbanized area includes
the village of Garapan, the island's only port and dock
facilities, and the only concentration of industrial related
land uses. The Garapan area is presently experiencing more
rapid growth than any other village on Saipan. Garapan
Estates, and the two Sugar King developments will more than
double the village's present population. The Garapan area
should benefit greatly from proposed capital improvements
since it is now the site of a dock in disrepair, an open
dump that must soon be closed, a power plant in need of
replacement and numbers of disjointed industrial uses.

Garapan is also the site of the islands' two largest and
most modern hotels and some of the lagoon's nicest beaches.
To some extent the populations at Navy Hill and Capital Hill
rely on Garapan for provision of needed services.

The area north of Garapan contains two smaller villages,
Tanapag and San Roque, with a combined population of about
1,500 or 12% of the islands population. Growth in this area
is not occurring as rapidly as elsewhere perhaps due partly
to the lack of urban services but more significantly due to
the village culture. However, as pressures for land increase
and as additional uses are permitted in the Marpi area, growth
in Tanapag and San Roque can be expected.

Aside from the west coast developed area, the only other major
population centers are located at Capital Hill consisting of
about 600 persons, Navy Hill, with about 200 persons, and the
Village of San Vicente a few miles north of the airport, with
about 650 persons.

The present situation in Saipan regarding commercial develop-
ment is what one might expect. given a total lack of land use
controls. That is, commercial development is randomly scat-
tered along the island's major traffic route, Beach Road.
Unfortunately, Beach Road also traverses along one of the is-
lands most scenic features, the west coast lagoon. Without
careful planning of land development along this route, it can
be expected that most of the aesthetic value of Beach Road will

soon be lost.

Existing conditions in Saipan's residential areas also pre-
sent major challenges for future planning and development.
Less than one thousand of OVer 2,500 houses in Saipan are of
standard construction, i.e., able to withstand the force of
typhoon level winds. Even in newly opened village homestead
areas, substandard houses are now being constructed due to
the lack of a'building code and enforcement procedures.

Present industrial uses in Saipan are limited to scattered
quarries, construction material manufacturing, and port area
industrial uses. One feature of this plan is the proposed
site plan for a viable industrial park at the existing Tanapag
site.

Outside the urbanized centers just discussed are vast open
space areas. The Marpi Area on the northern tip of Saipan
is virtually 100 percent public land, and today is largely
overgrown with tangan-tangan., Some of Saipan's most scenic
sites including Suicide Cliff, Banzai Cliff, the Grotto and
Bird Island are located in Marpi.

The Kagman Peninsula on the east side of Saipan is also public
land. This region contains Saipan'smost valuable agricultural
lands. Two large tracts here are presently used as communica-
tion sites. A substantial portion of Kagman is presently under
year to year leases for grazing purposes.

The Kobler-Isley Area, formerly a military retention area,
forms the third major expanse of public land. Present and
future uses of this area are somewhat limited by Saipan Inter-
national Airport, which occupies a central site in this tract.
Present uses include the lease of large areas for grazing.
Potential future uses include airport related industry, re-
creation, grazing, and possibly residential uses on the peri-
phery.

The south-central area of Saipan contains the island's only
lake, Lake Susupe, and a surrounding wetland. Good agricul-
tural land is also located in the Dandan-Fina Sisu valley
stretching from Wallace Highway, southward to Kobler Airfield.

The central part of Saipan including the western and eastern
flanks of Mt. Tagpochau and its related ridges are largely
undeveloped. These areas are presently a mixture of public
and private lands.

LAND MANAGEMENT FACTORS

CHANGING INSTITUTIONAL FRAMEWORK

Historical changes from Spanish, to German, to Japanese, and
finally to American land law systems have created an extremely
complex and often contradictory set of land records. Many con-
flicts and much confusion regarding property ownership remain
to this day. Some title claims are still being made based an
instruments dating back to Spanish rule. Land and land owner-
ship occupy an important place in the culture and value systems
of the people of NMI. Land ownership is closely tied with
family solidarity and a sense of group responsibility and par-
ticipation. It is often considered a solemn duty to retain
land within the family, especially among those of Carolinian
heritage. People are reluctant to sell land, and the desire
to own land has resulted in a relatively high market valuation
of land, probably much higher than any capitalization of future
income.

On the other hand, some segments of the Chamorro populace are
generally tending to view land as an economic commodity, to
buy and sell in the market place for monetary gain. Private
ownership facilitates rapid turnover of property.

PRIVATE HOLDINGS

Under German and Japanese regimes, the government took over
all land not enclosed and cultivated. This practice prevented
the accumulation of large private estates. Today, most of the
14,000 acres privately owned. in the NMI are on Saipan. Plate
4 illustrates the location of public and private lands. The
Marpi, Kagman, and Kobler-Isley areas are virtually 100% public
lands. Of the remaining areas of the island, approximately 70-
75% are in private ownership. Taking Saipan as a whole, appro-
ximately 40-45% is now in private ownership.

BAHIA FANUNCHULUVAN,

PUNTAN SA
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BANETA

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44i_
San ue 1Y.

PUBLIC

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PRIVATE

PRIVATE-VILLAGE V
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Garapan
PUMITAN MucHau- I&

1 2 3km

THE HOMESTEAD PROGRAM

Trust Territory law has permitted natives of the Northern
Marianas to settle on undeveloped public land and obtain title
to the land through development. The "Homesteading Program"
as it is known has been very popular in the NMI, at least with
the citizens receiving land. The popularity of this program
will probably ensure its continuance under the new Commonwealth
government.

The benefits of a homestead program are appealing. When citi-
zens without land or homes are able to secure unimproved pub-
lic land which becomes the basis of a home or subsistence
farm, then both the citizens and the public benefit. The land
owners then control a valuable asset that permits them to
enter the credit market and have access to the monetary system
and technology to improve their productivity. The owner can
then build a better home and establish greater family security.

The Village Homestead program appears to be effectively achiev-
ing these goals. The requirement that the land be used and a
house constructed within the three year period appears to have
greatly aided the process, however, even this program has
failed when government has been unable to provide infrastruc-
ture facilities necessary for development.

There seems to be serious question with the success of the
Agricultural Homestead program. There has been a failure
to enforce the requirement that the homestead be agricultur-
ally developed in three year period. Too often the lack of
strict development requirements and their enforcement has
encouraged some homesteaders to hold the land for subdivision
or speculation rather than for a permanent home and farm for
a family.

As the Homestead Programs continue it will become increasingly
important that government officials be aware of the many pub-
lic costs of this program. The first and most obvious cost is
the transfer of public land to private ownership.

As public land becomes scarce it becomes more valuable. Land
on Saipan now has a great market value and the transfer of
this land to the private sector represents the transfer of
major public assets. Thus the transfer of too much land
would create a public burden due to a shortage of natural
resources, public parks, recreation areas, and possibly the
loss of the intrinsic scenic value of the island. However,
determining the cutoff point for the transfer of public land
to private ownership will not. be an easy matter.

Based on the relative successes of the Village and Agricul-
tural Homestead programs, it would be in the best interests
of the island resources to significantly curtail the latter
program. Provision of housing areas should occur through
adherence to a well-formulated land use plan, which would
preclude residential subdivisions from springing forth in
land intended for agricultural homesteading or prior to the
provision of essential services such as water, power, sewer

and roads.

PUBLIC LAND CORPORATION

The Commonwealth Constitution provides the potential to move
the land management process in a positive direction. Although
the Constitution is not specific in delineating the functions
of the Public Land Corporation (PLC), it is clear that the
homesteading program will continue in some form. One factor
which should improve the program and discourage speculation
is the Constitutional requirement that land be held for ten
(10) years prior to resale.

The requirement that the PLC develop a Master Plan clearly
defining proposed uses for public land constitutes a de facto
land use control. Since the PLC also has the authority to pur-
chase other lands as well as to lease and homestead its own,
the influence of the PLC will extend beyond public land.

The PLC could use this authority to coordinate some development
activity by releasing areas appropriate for private development
while acquiring public control over other areas desirable for
public purposes such as schools or medical facilities.

Deliberate coordination between the PLC and other governmental
planning/development agencies would result in establishment
of a viable land use control process.

ENVIRONMENTAL CONSTRAINTS

Planning for appropriate land uses on Saipan must reflect
several constraints. Providing for areas to accommodate
expected growth must be balanced against the need to protect,
preserve, and enhance all existing resources. It is this
unique balance between growth and constraints which will
define the proposed Saipan Land Use Plan. Plate 5 summari-
zes the major environmental constraints upon future land
development.

EXISTING DEVELOPMENT

The existing inventory of urban development directly affects
future growth. The roads, water and sewerage infrastructure
represent both a capital and social investment which should
be utilized, especially for accommodating gradual, incremental
growth. The distribution of existing development has already
been discussed. Continued expansion of the urbanized
west coast at Garapan, Tanapag, and San Jose will permit
incremental growth compatible with present or proposed
infrastructure, and reduce social turmoil inherent in
growth of totally new areas.

Existing development can also create limits to further deve-
lopment. Development along -the west coast has already used
a considerable amount of developable land, which is now scarce.
As discussed below, some west coast lands are environmentally
sensitive and therefore inappropriate for development. Further-
more, land uses proposed for the Kobler-Isley areas must con-
sider existing and future airport uses and the associated noise
impacts.

ENVIRONMENTAL PROTECTION

Natural constraints to development include land slopes, soil
characteristics, water resources, wetlands, beaches, and
scenic areas.

-Z @L U

Ijj

U-7
P

fill

EXCESSIVE SLOPES, generally in excess of 20%

i o - o -o -o o o - -@o -o

VALUABLE AGRICULTURAL SOILS

rommmmmi WELL FIELD LOCATIONS. existing and proposed (P)

. . . . . . . . . . . .
............ 8 UNIQUE VEGETATIVE AREAS

1 M.

2 3 kin

Large areas of Saipan have very rugged topography, whose
slopes are too steep to support development of any type.
Other areas of moderate slope are characterized by pockets
of limestone sinkholes, which preclude economical develop-

ment.

Saipan relies on groundwater resources for its domestic and
irrigation needs. Replenishment of these resources - both
high level aquifers and the basal lens resting on salt water -
must be accomplished by percolation of rain water and storm
flows back into the ground at areas which must be kept
pollution free. Neither excess surface drainage nor conta-
mination of the groundwater must be permitted.

Waste of the water taken from the ground must also be curtailed.
Analysis found later in this study indicates that up to half of
the domestic supply either escapes through leaking distribution
lines or is wasted at the faucet.

Long-range planning forecasts indicate an eventual population
of 35,000 to 45,000. At a population of 35,000, approximately
5.8 million gallons of water would be required daily. Ordi-
nary and innovative techniques should be able to intercept
the required flow. However, present waste of resources must
be curtailed, and planning for additional facilities and
appreciation for the eventual scarcity of finite water resource
must be given high priority during this and subsequent planning
horizons.

Lake Susupe and its surrounding wetland which is the habitat
for the rare and endangered bird, the Marianas Duck is a
valuable natural resource. It also acts as a unique stopping
place along the flyway of Asian migratory birds. The lake
and the surrounding wetland should be preserved in its present
state, protected from encroachment.

Several scenic areas demand special consideration to'insure
their protection. These include the west coast lagoon and its
reef which must be assured protection from urban related
pollution,,which can cause damage to water related recreation
uses. Other scenic areas include beaches, coastal vistas,
unique natural valleys, Ogso Tagpochau and some of its flank-
ing ridges. These areas contribute significantly towards
Saipan's identity as a beautiful tropical paradise. Both
tourists and residents alike deserve to continue the enjoyment
and benefits accruing from preservation of nature's beauty.

LAND USE

PURPOSE AND OBJECTIVES

PROPOSED LAND USES

PROPOSED ZONES

PURPOSE AND OBJECTIVES

The Land Use Plan for Saipan allocates land for the orderly
growth and development of the island during the next seven
years. The plan establishes residential densities, provides
for needed commercial and industrial activities, hotels and
resorts. Lands necessary for public facilities are also iden-
tified and included within the plan. The land use plan in
conjunction with the provision of capital improvement projects
provides a framework for the management of change and future
growth.

The Land Use Plan is sensitive to environmental constraints
and the availability of resources. Of necessity the plan res-
pects the traditional lifestyle of the local citizens, their
desire to own property, have decent housing and to actively
shape the future of Saipan through individual choice of style
and expression. Principal objectives which were pursued in
the plan include:

� To recognize and respect the traditional lifestyle of the
Northern Marianas people, including the desire to own and
occupy land.

� To recognize natural environmental constraints such as water,
topography, and soils in the dimensioning and location of
future growth and to preserve and conserve land with valuable
ecological characteristics, recreation uses, or scenic appeals.

� To preserve community identities through the provision of
neighborhood/community commercial centers near to existing
residential areas.

� To encourage redevelopment and new development patterns which
enhance living conditions by clustering compatible uses
(eg. schools, residential and neighborhood/community commer-
cial) and separating conflicting uses (industry and residen-
tial).

� To use public lands to encourage growth in desirable areas
through the location of commercial nodes and urban home-
steads near where additional development of private lands
should take place.

� To encourage agriculture as a viable economic use of suit-

able land.

� To provide for or allocate suitable.and sufficient sites for
residential, business and industrial needs to meet anticipated
growth.

� To maximize public ownership and access to beaches and estua-
rine lands to insure their preservation, conservation or
greatest public use and to provide adequate areas for public
parks and recreation facilities.

� To coordinate urban growth with the availability and growth
of public services including water, power, transportation
facilities and sewer.

� To provide adequate areas for public facilities necessary for
the orderly growth of Saipan.

PROPOSED LAND USES

The proposed land use pattern for Saipan is depicted in Plate 6
(See Plates in Pocket). A discussion of the various community
development proposals follows, beginning with San Antonio in
the South.

SAN ANTONIO

The village of San Antonio lies on the southwest corner of
Saipan. The 1976 village population was about 1500, and the
village boundaries can generally be described as being the
Coast Guard Loran Station on the south, Hopwood Junior High
School on the north, and the lagoon on the west. The eastern
boundary is not as well defined, as scattered development
extends to the boundary of former military retention lands at
Kobler Field.

Potential growth of this village is basically limited to areas
to the east or southeast. Minor growth could occur on the open
space area adjacent to Hopwood Junior High School.

The major land use proposals for this area are illustrated on
Plate 7 (See Plates in Pocket). These are based largely on the
premise that public lands should be utilized in creating an
urban homestead development with an internal neighborhood
commercial center which should encourage private residential
development in a desirable location. In this case, the objec-
tive is to initially develop a 100-acre site for approximately
315 village homesteads. Included within the site is a 5 to
10 acre commercial site and additional lands for an elementary
school and other commercial activities.

With well fields located nearby and the sewage treatment plant
at Agingan Point, the provision of urban services to both the
village homestead site on Kobler Access Road and the privately-
owned lands between Kobler and Beach Roads would be relatively

easy. Rigid control of subdivision and development on both
public and private lands would be necessary to ensure that
the provision of urban services and easements keeps pace with
growth.

The triangular piece of privately owned property between Beach
Road, As Perdido, and Kobler Access Road would be zoned for
residential use. A gradual transition from the agricultural
use now dominating the area to a residential density of up to
six units per acre should be permitted as demand dictates. if
the area is zoned for residential use the landowners who wish
to maintain agricultural or open space areas should not be pena-
lized by future tax policies which might force conversion to

urban residential uses.

Although projected growth during the 1978-85 plan period cer-
tainly would not require it, ultimate growth might see the
Kobler Village Homestead area extending from As Perdido Road
to Beach Road along the east side of Kobler Road. The As
Perdido Road should be upgraded and paved to provide better
access to Chalan Kanoa, the western shoreline and the Isley
Field airport.

A potentially important factor in the community development
proposal for San Antonio is improved resort-related land
uses in the area. It is assumed that the White Sands Hotel
will soon open and provide some employment for local residents.
It is also proposed that a new 18 hole golf course be cons-
tructed along the cliff eastward of Agingan Point. The site
has beautiful vistas towards Tinian, suitable topography,
and is sufficiently close to the sewage treatment plant to
be irrigated with secondary treatment waste-water. This would
represent an ideal use for this noise-impacted area. However,
studies should be conducted to determine if any practices such
as fertilizatilon or irrigation would pose a threat to the
reefs below.

Two sites should be considered for the provision of a neigh-
borhood park in the existing village of San Antonio. One
is the open space area between the village and the Junior
High School, which could also accommodate some residential
growth, perhaps up to 50 new homes. A second site which
could accommodate a small park and has limited value for
other use is the narrow strip of beachfront lands extending
from the White Sands Hotel to Agingan Point west of Beach
Road.

CHALAN KANOA - SUSUPE - SAN JOSE

For the purposes of this plan, these three villages will be
treated as a single planning unit since their proximity to
each other defies separation. By far the single largest con-
centration of Saipan's population is within this area where
over 6,500 persons now reside. All of the island's major
commercial activities are located here as well as the Northern
Mariana Islands Civic Center and the island's two high schools.

The present development pattern here is such that little addi-
tional growth can be expected. As can be determined from the
land use plan, the existing land use pattern is for the most
part hemmed in on three sides. On the west side is the lagoon,
and on the east side is Lake Susupe with its associated wet-
land. San Antonio borders this area on the south and Wallace
Road provides the borders to the North.

Although one might expect intensive development north of San
Jose between there and Garapan, there are several factors
likely to prevent this, at least within the 1978-85 Plan period.
First from a planning stand-point, it would be desirable to
maintain, for as long as possible, the separate community iden-
tities of Garapan and San Jose - Susupe - Chalan Kanoa. In
order to do this, much of the open space between Garapan and
San Jose should be maintained for low-density rural residential
use and by preventing strip commercial uses from further

blighting Beach Road. The second and perhaps more important
factor is that the area lacks suitable infrastructure for
intensive development.

The plan for the Chalan Kanoa-Susupe-San Jose area as discussed
here is oriented towards correcting existing problems. For
example, Saipan's most intensive effort in the replacement of
substandard housing will take place in this area. Part of
that process will be an effort to connect most of the exist-
ing houses to the sewer system for the first time.

Major transportation decisions must also be made in this area
which will significantly affect land use. The upgrading of
Texas Road is necessary to improve traffic conditions on Beach
Road. The preferred alternative is to circumnavigate Oleai
school so as to avoid the separation of the school from the
neighborhood which it serves. The existing Texas Road would
then be downgraded to a local collector road. One major advan-
tage of this alignment is the preservation of the San Jose
neighborhood. Continued residential growth could then be en-
couraged so that the village would ultimately surround the
school on three sides.

South of oleai schooll the bypass road would rejoin Texas Road
in the vicinity of the existing Marianas High School and the
Civic Center. Eventually the road would be extended through
Chalan Kanoa as far south as As Perdido Road.

Chalan Kanoa Urban Development

The history of a developed Chalan Kanoa dates back to the early
1930's when the Japanese built the town to house the sugar mill
workers. Because the town escaped complete destruction during
the war, Chalan Kanoa became the internment camp for natives
in November, 1944. Barbed wire fences surrounded the village,

mainly to protect the residents, until the lst of July -1946,
when the fences came down.

During the Naval Administration, Chalan Kanoa developed into
an attractive tropical town with its own movie theater, general
merchandise shops, ice cream parlors, barber shops, a cobbler
and other commercial establishments. The older Dart of town
had streets lined with poinciana and other shade trees. The
houses, brightly-colored and well-maintained, stood in rows
and had small gardens and flowering hedges in front. The move-
ment of people to other parts of the island, as well as the
absence of free construction material, available during the
Naval Administration, were major causes of the deterioration
of the town.

Chalan Kanoa is a town of great historical, cultural, and socio-
economic significance. First of all, the existing municipal
buildings and many of the original houses built by the Japanese,
if not the original town, can be classified as historical sites.
There are important cultural aspects such as the small gardens
and the small cook houses. In addition, there are the social-
economic aspects: Chalan Kanoa is still the largest town in
Saipan and the Northern Mariana Islands and is the major orga-
nized community where Chamorros and Carolinians live together.
It is with these factors in mind that we address the concept of
the Chalan Kanoa Urban Renewal and Redevelopment Plan.

Specific plans for renewal are not presented here as they re-
quire a much more detailed study than was possible within the
framework of the master plan study. However, as a minimum, the
renewal effort should carefully address traffic circulation,
infrastructure development, and flooding problems. Redevelop-
ment of Chalan Kanoa must include a concerted effort to create
a viable commercial center in the village's central plaza where
the post office, bank, and municipal offices are presently
located. Incompatible uses should be removed, walkways should

be provided, the old Japanese houses restored as shops if
possible, trees planted, a fountain provided, landscaped
open space maintained and parking provided. Lifestyles
compatible with the culture and tropical environment should
be encouraged and maintained. The urban and architectural
scales should be compatible with existing structures.

A final major portion of the redevelopment proposal for the
Chalan Kanoa, Susupe, San Jose area include proposed improve-
ments to the Civic Center Complex. These are addressed later
in the chapter on Public Facilities.

Resort-hotel uses within this area will be confined to the
approximate present location of the Royal Taga Hotel and the
recently opened Saipan Grand Hotel. Consideration should be
given to the construction of resort type apartments or con-
domi,niums at the north end of the site now leased to the Royal
Taga. The remaining beach area west of Beach Road between the
Royal Taga Hotel and Garapan should be maintained as a public
park with picnic facilities and possible tennis courts across
from the Civic Center.

GARAPAN

The Village of Garapan located in the central part of Saipan's
west coast urban strip presently has a population of about
1700 persons. Existing land uses include residential develop-
ment along both sides of Beach Road, an elementary school, the
islands's two newest and largest hotels, the dock and port
facilities, and the industrial area just north of the village.

The Garapan Community Plan, illustrated on.Plate 8, proposes
a number of major uses which should vastly improve the liva-
bility of the village (See Plate 8 in Pocket).

It should first be recognized that Garapan is already experi-
encing more rapid residential growth than any other Saipan
village. The development of Garapan Estates and the Sugar
King Estates projects are the beginning of this process. More-
over it is a basic assumption of the overall Land Use Plan
that the Garapan area is a desirable location for new resi-
dential growth. Many factors contribute to this choice.
These include availability of easily developable land, the
presence of water, sewer and power service, the resort-tourist
industry, the proposed American Memorial Park, a proposed new
Junior High School, the future improvements to the port facili-
ties and adjacent industrial park, and finally the probable
location for the new hospital.

As regards residential use, it is proposed here to concentrate
residential growth around the proposed Junior High School
at the intersection of Navy Hill Road and West Coast Highway.

To some extent this is already happening as Garapan Estates
becomes developed on the site's west side and the two Sugar
King Estates, are developed to the south. To the extent possi-
ble, residential growth should be encouraged on the east side
of the school site also.

An important element in the growth of Garapan into an indepen-
dent community is the development of a thriving community com-
mercial center. It is proposed that the area just north of
the Junior High School site be the location of a commercial
center with permitted uses limited to personal service uses,
such as a bank, grocery store, insurance office, laundry, bar-
ber shop, restaurant, bar, bakery, and other uses compatible
with these.

The area surrounding this commercial center could be reserved
for multiple family dwelling apartments. To the extent that
the demand exists, residential growth should be encouraged
eastward up the Navy Hill Road. A number of knolls offer the
potential for valuable home sites with scenic vistas across

the lagoon. It is not anticipated that residential growth will
be needed above Navy Hill during the short range period; how-
ever, in the ultimate plan, consideration should be given to
the development of a road from Navy Hill to Capitol Hill along
which residential development can occur where topography per-
mits.

In support of the concept that Garapan should grow as a separate
identifiable community, it is recommended that growth not be
encouraged to the south. The proposed Garapan Fishing Marina
and the park extending from the lagoon as far east as Sugar
King monument should provide a buffer zone between the urban
area to the north and the rural residential areas proposed to
the south.

An important feature in the future of Garapan will be the
American Memorial Park, which will act as a central recreation
area for all of Saipan. This park will be developed as a
result of the Technical Agreement in the Covenant to establish
the Commonwealth of the Northern Mariana Islands. Therein,
the U.S. Government has agreed to make 133 acres available for
use as an American Memorial Park. -The income from a $2,000,000
trust fund will be available to develop the Park, as further
described in the Parks and Recreation Element of the Master

Plan.

An equally important area in Garapan which should increase
in importance, is the resort-tourist area now situated along
Micro Beach between the Continental and Hafa Adai Hotels.
.As the tourist market dictates, the construction of another
hotel should be considered between the Inter-Continental and
Hafa Adai Hotels. This would replace the existing Samoan
housing. The presence of four hotels together should provide
a viable resort community which would ultimately support the
development of a tourist-oriented commercial center parrallel-
ing the existing hotels on the east side of Beach Road.

Another probable influence on Garapan's future is the proposed
location of the new hospital in this area. A hospital site
has tentatively been selefted along Navy Hill Road. The site,
would overlook Garapan, the American Memorial Park, and the

resort area.

The proposed upgrading of the port and dock facilities and the
industrial park should result in an improved employment base
for Garapan as well as the rest of Saipan. Perhaps as impor-
tant would be the development of a more aesthetically appeal-
ing shoreline extending from the south tip of American Memorial
park, north through the industrial park.

TANAPAG

The village of Tanapag has an estimated 1976 population of 725.
The existing land uses include residential, a few small "mom
and pop" stores, and lands for public facilities such as the
baseball field, basketball court and the elementary school..
Within the plan period 1978-85, extensive growth is not expected.
However, relative.to the village's existing population, a signi-
ficant increase in population can be anticipated. There is a
desire on the part of Tanapag residents to extend village in
a southerly direction towards the Lower Base Industrial Park,
and an area of approximately 30 acres has been set aside for
village expansion. This parcel should be developed as part of
the Village Homestead Program and should contain a small com-
mercial center and lands for public facilities.

It is proposed that a linear park bordering one of the small
streams meandering through the area act as a buffer zone bet-
ween the residential development and the Lower Base Industrial
Area. The large tract across west coast highway from the exist-
ing village should continue to be used primarily as agricultural
land. Some additional agricultural lots of one hectare or lar-
ger should be permitted.

SAN ROQUE

San Roque Village with a 1976 population of about 700 is the
northernmost village on Saipan. Presently the village borders
both sides of Beach Road and is principally a residential com-
munity with an elementary school and a church. Expansion of
the village through the Village Homestead Program is nearly
impossible at present since all available land adjacent to
the village is in private ownership.

The future expansion of San Roque will depend upon two major
important factors. Firstly, there is the need to improve the
village infrastructure, especially water and sewer lines.
Secondly, the growth of San Roque will be dependent upon the
location of a major resort development in the Marpi area.
Should such a resort develop, the village of San Roque could
become the principal major source of employees.

Ultimately, the population of San Roque could be 1,350 persons.
A new homestead site has been designated north of the existing
village, bordering probable resort lands (Marpi Village Home-
stead site). However, little development is either proposed
or anticipated in this village during the short range plan.
It should be noted that when development does occur, the sub-
division should include provisions for a small commercial
center and public facilities.

SAN VICENTE

The village of San.Vicente is the only major community existing
on the windward side of the island. Estimated population in
1976 was 635 persons living in approximately 102 family units.
San Vicente is similar to San Roque in that most of the lands
adjacent to the village homestead area are in private ownership.

The land tenure situation therefore limits the possibilities
that public development might stimulate private development.
Rural residential development is occurring on private lands
west of Cross Island Road, and it is anticipated that this
pattern will continue during the plan period.

MARPI AREA LAND USE

Plate 9 (in Pocket) depicts the proposed land uses within the
Marpi area. Generally the uses proposed for this area are non-
intensive uses in character with the desire to maintain much of
this existing open space as public reserve and park land.

Major land uses include the M-arpi Public Grazing lands, a
Marpi Resort Area and a Residential Subdivision. Three Agri-
cultural Homestead areas are also included.

Marpi Public Grazing Lands

one of the major objectives of the Socioeconomic Development
Plan was the establishment of publicly developed grazing lands
that would be leased out to interested persons thereby enabling
proper management of the land resource. The Northern Marpi
area, Banadero and I Madog, provides suitable lands for grazing
on otherwise undeveloped lands. The establishment of farms
should enhance the scenic character of the landscape as viewed
from Suicide Cliff. The area offers security since access can
easily be controlled along both the West Coast and East Coast
Highways. Two small areas of fair to good agricultural land
are suited for cultivated pasture. Water is not plentiful;
however, sufficient quantities of water necessary for cattle
should be available either through catchment basins or by
exploitation of ground water resources.

Marpi Resort

A Marpi Resort Area with hotels, recreation facilities and a
championship golf course are proposed for development on lands
adjacent to both sides of West Coast Highway in lower Marpi.

The hotels, convention center, and most recreat:@onal facilities
would be located on the beach side and the golf course would
be developed on the As Matuis Plateau. Presently, the area
lacks suitable infrastructure and it will be necessary for
any proposed development to provide water, power, and sewerage
facilities before development.

In planning this resort a number of important factors related
to environmental protection must be considered. These include
analyzing potential water pollution problems, and providing a
design for handling runoff which would assure no damage to the
off-shore reef. Also, the development of a design concept
which would not create a visual blight on the landscape or
block views of the shoreline and the provision of public
access to the beaches and the maintenance of a 150 foot set-
back from mean high tide must be considered.

A major concern is the provision of irrigation water necessary
to keep the golf course green. Drilling of wells will be
quite expensive and no other sources of water are available
at the north end of the island.

Marpi Park

Marpi Park would include all the coastal lands as well as the
cliffs and their associated plateaus. The park would encom-
pass the Japanese Command Post, man made caves, Suicide and
Banzai Cliffs, Bird Island, the Grotto and Kalabera cave.

Limited commercial forestry would be allowed. Also included
are several areas that should be made available for cultiva-
tion and grazing leases.

Agricultural Homestead Areas

Three agricultural homestead areas are delineated on the Marpi
land use plan. Total area is in excess of 269 hectares. The
major homestead site is on Kalabera Plateau, east of East Coast
Highway. A second, smaller site is located along the Burma
Road. The third site borders the southern boundary of the golf
course site at Matansa.

Marpi Village Homestead Site

The discussion of the Marpi Village Homestead site has been
included in the previous section on proposed land uses for San
Roque and will not be repeated here.

KAGMAN AREA LAND USE

Plate 10 depicts the proposed land uses for the Kagman area.
The Kagman site has the advantage of an adequate water supply
for irrigation, contains the island's most productive soils,
and is generally flat land. Much of Kagman is in public
ownership and considerable attention should be given to the
establishment of a viable agricultural program as opposed to
considering these lands for private homesteads. That is, it
might be more productive to maintain the land in large communal
tracts rather than subdividing the area into small homesteads
which could ultimately be subdivided further by private land-
owners thereby removing these lands permanently from agricul-
tural production (See Plate 10 in Pocket).

one major obstacle to the expansion of agricultural lands is
the extensive area under lease by the Trust Territory Govern-
ment for its communications station. As the demand for good
agricultural land increases, serious thought should be given
to either improving this system so as to reduce the land re-
quirements or relocating the communication facilities to an
alternate site.

Proposed uses in the Kagman area include: Expansion of the
Agricultural Station, expansion of the public croplands;
location of a sanitary landfill, the construction of proposed
correctional facilities, the expansion of the existing housing
area and the establishment of Kagman Wilderness park.

Agricultural Station

The present agricultural station in Kagman contains approxi-
mately 60 acres of land which are being utilized by farmers
during the dry season for crop production. With the increasing
emphasis placed on agriculture in the Socioeconomic Plan it is
proposed that the existing agricultural station be expanded
to several hundred acres to include all suitable cropland in
Kagman. Some of the lands proposed for expansion presently
lie within the TT Receiver Station boundaries and will not
become available until that facility becomes obsolete or is
relocated.

Kagman Residential Area

With the expansion of agriculture in the Kagman area, there
will also be a need for the development of nearby housing.
The plan calls for the expansion of the existing Kagman
housing area. This area should eventually be developed as
a village homestead; however, it is doubtful that the pro-
posed expansion would occur during the initial plan period.
Presently the lack of infrastructure precludes such develop-
ment. The proposed area includes suitable privately owned
lands existing north and west of the public lands.

Public Facilities

Two other major public facilities are proposed for Kagman and
include a sanitary landfill site and the construction of cor-
rectional facilities. The proposed landfill site will be con-
tained in an abandoned quarry north of East Field. A second
potential landfill site lies immediately south of East Field.

The proposed correctional facilities are sited on lands north
of East Field. Plans are to construct a medium security
facility and later in the plan period to construct a minimum
security or youth correction house. The plan concept is to
locate the facilities upon lands suitable for cultivation so
that inmates can engage in agricultural production.

Other Uses

It is proposed that lands in Kagman be retained in the public
domain. Agricultural lease lands for grazing should be encour-
aged South and East of the abandoned runway.

Kagman Wilderness Park and related coastal conservation areas
would complete the land use scheme for the Kagman area.

Tank and Marine beaches are areas which should be further
developed into beach parks. Both will require the reconstruc-
tion of the existing access roads. The area which-lies between
Tank and Marine beaches has development potential for a golf
course and related resort facilities. Presently, these lands
are removed from the population centers; however, the continua-
tion of this land in public ownership would facilitate such
development in the future. It is therefore recommended that
these lands be continued in the public domain. Their utiliza-
tion as grazing lands under short-term lease agreements is
suggested during the plan period.

PROPOSED ZONES

Delineated on the Land Use Plan (plate 6) and the more detailed
land use plans for Kobler, Garapan, Marpi and Kagman, (plates
seven (7) through ten (10)) are seven major land use zones three
of which have been further subdivided.

Each of the following major land use categories are discussed
below, with specific highlights as they relate to overall deve-
lopment.

Conservation

Agriculture

Agriculture 1 Cultivation
Agriculture 2 Subsistence farming and grazing

Residential

Rural Residential
Single Family Residential
Multiple Family Residential

Commercial

"Light" Commercial
"Heavy" Commercial

Hotel Resort

Industrial

Public Facilities

CONSERVATION

The Conservation Zone provides for the preservation and pro-
tection of natural resources such as, watersheds, unique
animal habitats, historic and cultural resources, and scenic
resources including prominent topographic forms and features,
outstanding views and attractive wilderness areas. The zone

also includes areas of unique geologic or vegetative sites;
steep slopes and ridges; inland and coastal wetlands; shore-
lines, offshore reefs, and lagoons; beaches; beach parks and
general parks.

Approximately one-third of Saipan's total land area is in the
Conservation Zone. Due to the various land claims made and
received, and the rather haphazard manner in which homesteads
have been granted, not all areas recommended for conservation
are public lands. Areas such as the Susupe wetlands west
of Lake Susupe and the limestone pinnacle rock forest near
San Jose are now private lands which should be acquired
through purchase or exchange.

Protection of conservation areas goes beyond merely preserving
scenic spots. Many conservation areas are now used by the
local populace and are integral to the Saipan lifestyle, e.g.,
the beach areas where picnic barbecues are common. The pro-
tection of many shoreline and adjacent areas as required by
the Constitution is essential for the preservation of the shell-
fish and reef fish that now are an important food source for
islanders. Saipan's scenic beauty -- already being degraded
by litter, land scarification, and unrestricted erection of
structures -- can be restored and maintained by proper iden-
tification of Conservation Zones and application of build-
ing and land use controls for these areas.

Parks and Recreation Areas

Two major Parks identified herein include Ogso Tagpochau
Park and Marpi Park. Ogso Tagpochau Park would encompass
the peak and the flanking steep ridges of the mountain. It
would be a scenic park with limited picnic facilities, a few
trails, and vista points. Agriculture would be encouraged
to continue and those structures presently existing would be

allowed to remain. Lands which are now in private ownership
that have access and slopes conducive to residential use
should eventually be acquired or exchanged for other areas
outside the proposed park.

The Marpi Commonwealth Park ties together the historic sites
of Suicide Cliff, the Last Japanese Command Post, and Banzai
Cliff with the natural features of the Grotto and Bird Island.
This is accomplished with a Conservation Zone band stretching
around the Marpi shoreline. This land is presently in public
ownership. The Constitution prohibits transferring public
land within 150 feet of mean high tide. Therefore, designation
of such a park could be quickly accomplished by the Northern
Marianas Public Land Corporation. Limited agricultural leases
would be permissible as would limited forestry.

Other Commonwealth Parks outside the urban area include Tank

Beach, Marine Beach, Paupau Beach, Wing Beach, the Talafofo
River Valley and Beach, Laulau Beach, and Ladder Beach.

Wilderness Areas

Two wilderness areas included in the conservation zone are
or can easily be made accessible to the public. These same
areas, however, possess high scientific or environmental
value due to their rare vegetation, geology, or wildlife.
Their value is threatened by even moderate overuse. These
include Kagman and Naftan parks which are proposed to be
developed as wilderness parks.

Natural Preservation Areas

Three unique areas of vegetation are located within or border
the largely urbanized west coast.

The first and largest of these is Lake Susupe and the surround-
ing wetland. Encompassing approximately 400+ acres of water
and wetlands, these are the only wetlands in Saipan associated

with an inland water body, and is a valuable habitat for the
rare and endangered Marianas Duck. A boardwalk nature trail
through some of its parts would provide a useful education
tool and foster greater understanding of wetland ecology.
The uniqueness of Lake Susupe and the adjacent wetlands
require their preservation and the provision of a buffer zone,
to protect the area from urban encroachment.

A second unique natural site of approximately 20-25 acres is
located north of Wallace Highway between Beach Road and the
West Coast Highway and, bordered on the north by a low wet-
land dominated by grasses. Approximately 8-10 acres of this
site is a forest of indigenous trees, including large ficus
and palms on a limestone pinnacle rock base characterized by
numerous sinkholes up to 6 feet deep. Bird life in this forest
is extensive and varied.

The third unique natural site is located near Garapan where
the Northern Mariana Islands' only stand of mangroves is loca-
ted. The site is still in a youthful developing stage (pro-
bably less than 30 years old) and is approximately 3 to 5 acres
in size. This mangrove area is located near Charlie Dock bet-
ween the Public Works Department access road and Beach Road.
!Although not sufficiently large to play a major role in the
marine ecology of Saipan, the uniqueness and potential for
growth of this site justify its protection. Provision of a
boardwalk through this small site or use of the old Japanese
railroad berm as a nature trail would provide access to this
unique botanical area for science students, birdwatchers,
nature lovers, and people seeking a natural area for mental
and spiritual refreshment.

Historic and Archeological Sites

Several historic and archaeologically significant sites, pre-
viously identified in prior studies (The Parks and Recreation
Plan) have been incorporated within the conservation zone.

These sites include the Japanese Hospital, the Japanese Jail,
Sugar King Monument, and the Latte Stone Sites at Laulau and
Obyan Beaches.

AGRICULTURE

Two agricultural zones are proposed in the land use plan.
The Agricultural 1 (cultivation) zone includes those lands
to be used for intensive cultivation of field crops, orchards
and forage. Lands included in this category contain the is-
land's most productive soils and in many instances they over-
lay valuable ground water resources.

The Agricultural 2 zone provides land for grazing activity,
subsistence croplands and uses related to animal husbandry,
including the raising of cattle, swine, and poultry.

The present agricultural situation in Saipan is a stark con-
trast to the pre-WW II Japanese agricultural industry which
placed over 18,000 acres in sugar cane production and over
2/3 of Saipan's 30,000 acres under some form of agricultural
production. Today intensive agricultural use of land for row
crops, staple items, or fruits occurs on less than a few
hundred acres. In fact the only major plot which produces
marketable agricultural products is the 50-60 acre site at
the Kagman Agriculture Experimental Station. Other private
land holdings utilize old banana/coconut plantations, or have
small plots of pineapple and/or vegetables. However, most of
these products are for personal or extended family consumption
and have little effect on the market for fresh fruit or produce.

Animal production for market is limited. Approximately 1150
acres are now grazing about 700 head of cattle, about 15% of
this total consisting of government experimentation. With
most of the commercial beef sold in Saipan coming from the

large (7500 + acre) Micronesian Development Corporation ranch
on Tinian, it is probable that most of the beef produced in
Saipan is for personal consumption.

Based on pre-war production records, Saipan has the ability
to produce fruit and produce for both domestic consumption
and export. Approximately 1300 acres of Class B "fair" soils
are well suited to row crop agricultural production.

Land proposed to be included in the Agricultural 1 (Cultiva-
tion) zone includes the best suited lands in Kagman and lands
east of the abandoned Kobler field runway. It is proposed
that these lands remain in public ownership to insure a
future capability for crop production.

Extensive portions of the island have been included in the
Agricultural 2 (Grazing + Subsistence farming) zone. Gene-
rally these lands are suited for grazing, orchards, and small
subsistence lot farming. In many instances, land designated
as agricultural 2 zone overlay ground-water resources. it
will be necessary to monitor the utilization of pesticides
and fertilizers within these areas.

Three major areas of continued public ownership of Agricultural
lands have been discussed previously. They include: the Marpi
Public Grazing Lands, Kagman Public Croplands and the Kobler
field grazing lands.

RESIDENTIAL

Two residential zones are delineated in the Land Use Master
Plan. They include Rural Residential and one and Two family
Residential. A third category Multiple-Family-Residential
is not depicted on the land use plan but general thoughts
concerning the location of multiple family residential areas
will be included herein.

Rural Residential

This zone provides for low density residential development
together with compatible agricultural uses generally charac-
terized by "small farms" or "subsistence lots". This zone
may lack basic essential services normally required for
urban zones. Areas zoned Rural Residential may eventually
be suitable for more intense urban uses. However, redesig-
nation during this planning period would be premature with
respect to other urban areas and/or provision of adequate
infrastructure to support such developrfient. Generally the
lot size is 20,000 sq. feet or two units per acre.

A Rural Residential zone is proposed between Sugar King Park
in Garapan as far south as Quarter-Master Road in Oleai.

Rural Residential zones are proposed for lands bordering
the west side of the Lake Susupe Conservation area and the
entire eastern hillside from Wallace Highway as far south as
As Perdido.

One and Two Family Residential

The purpose of this zone is to provide areas for low density
family living offering privacy and a reasonable amount of
open space, and which are protected from noise, congestion
and hazards that may result from incompatible land uses such
as commercial or industrial. Uses will include one and two
family dwelling units, incidental and subordinate commercial
or personal services such as "Mom and Pop" stores, home occu-
pations, schools, parks, playgrounds and recreational areas.
This zone provides for up to 6 units per acre.

These areas have generally been discussed in the Community
Plan proposals and will not be repeated here.

Multiple Family Residential

This zone provides for medium density (up to 16 units per acre)
residential uses including low density apartments and condomi-
niums. It may occupy transition areas such as between com-
mercial and residential areas and between industrial and resi-
dential. Compatible land uses will include single and multiple
family dwellings, home occupations, schools, parks, playgrounds
and subordinate commercial or personal service uses.

Two major urban areas are identified for multiple family resi-
dential. They are the Chalan Kanoa - Susupe - San Jose urban
area and the Garapan urban area. Proposed areas for multiple
family residential generally correspond to those areas which
have presently or that are anticipated to have adequate infra-
structure development during the plan period. Multiple family
residential may also be part of Planned Unit Developments
(PUD's) or urban renewal projects such as envisioned for Chalan
Kanoa or as part of new Village Homestead areas.

COMMERCIAL

Commercial activities beyond the intensity of occasional ser-
vices, retail establishments, and professional offices appro-
Driate to the residential zone should be located in designated
commercial areas. "Mom and Pop" stores, restaurants, bars,
etc. will be allowed to continue in those areas where they are
presently located as long as they maintain a maximum size re-
quirement of 500 square feet. In several areas they will be
designated as non-conforming uses. Generally; however, "mom
and pop" stores, and bars shall not be allowed in future resi-
dential subdivisions except in specified commercial areas.

The two proposed commercial zones are "light" commercial and
"heavy" commercial. Light commercial includes those enter-
prises normally found in one-stop neighborhood shopping cen-
ters such as small grocery stores, office buildings, and

public and quasi-public facilities. "Heavy" commercial
includes those activities that are generally not considered
compatible with adjacent residential areas such as lumber
sales, auto sales, etc. Each zone is discussed in greater
detail below.

Commercial "Light"

This zone provides for a more intensive concentration of per-
sonal service-related enterprises than that which would be
found in the residential zones. This zone may be in close
proximity to, as well as, easily accessible from nearby
residential neighborhoods. It will provide space for compact,
one-stop shopping areas, office buildings, and public and
quasi-public facilities which are architecturally and func-
tionally related, and which fulfill regional market needs to
varying degrees.

The creation of viable shopping areas near residential neigh-
borhoods is a major concern of the plan. Generally shopping
centers will be located on lands that can be provided with
access from two major roads. The Master Plan proposals
include:

� The provision of small commercial areas in all new subdivi-
sions, government or private, when the subdivision as ' pro-
posed exceeds, or has the capacity to expand to more than
50 units.

� The creation of a major commercial area in Chalan Kanoa at
the existing location of the Post Office and Municipal Build-
ings. This should be a mall or plaza type concept and include
the Japanese roll houses as small shopping centers or craft
stores. Included within this plaza would be a farmers' market,
grocery store, and neighborhood offices such as insurance and
trave; agents. Proposed layout and sizing of the center will
be part of the Chalan Kanoa redevelopment project.

Some form of strip development will have to be accommodated
along sections of Beach Road from $usupe to As Perdido Road
where strip development is now occuring. Many of these shops
and stores are modern or inappropriate to the surrounding
neighborhood. Specific details must, however await the pro-
posed urban renewal program of Chalan Kanoa.

� Designation of a Beach Road commercial site in San Antonio
would provide for the commercial needs that future expansion
of San Antonio might require.

� The Susupe Civic Center complex will continue to remain as one
of the major "regional" shopping centers since Susupe has
become the hub of daily activities. The Civic Center, high
school, two first class hotels, and the new Nauru office
building suggest that this area will remain a major commercial
center long into the future. The discussion of the Civic
Center Complex and proposed improvements is found in the
Public Facilities chapter. See Plate 12 on Page 83.

� Present trends in Garapan where strip development is beginning
to occur along Beach Road, suggest the need to establish a
viable commercial center East of Beach Road across from the
resort area. Government assistance such as land exchange
should be pursued to develop the center and avoid the strip
development that has occurred in Chalan Kanoa.

� A second commercial site is also proposed in Garapan along
West Coast Highway. This would be located on Government land
below Navy Hill housing and would probably include offices and
small shopping areas catering to the surrounding multi-family
housing area. It is proposed that the Garapan fire station be
located on this parcel of property. Quick access to either
Garapan or the Commercial Port Industrial Park area would be
assured.

Commercial "Heavy"

This zone shall provide for the location of a major regional
center where commercial uses not generally considered compa-
tible with adjacent residential areas may be located. Such
uses include lumber sales, construction material and equipment
sales, warehousing, auto sales and repair.

It is most important that the location of heavy commercial
areas be controlled. The plan recommends that the Government,
through a program of land exchange, acquire the necessary pro-
perty and lease it for heavy commercial developments. In this
manner, proper location and greater control can be maintained
through covenants negotiated with the lease of the properties.

Two areas are proposed for Heavy Commercial development. The
first is within the Industrial Park. The second site in San
Jose is bordered by Wallace Highway, Beach Road, and West Coast
Highway.

HOTEL-RESORT

This zone provides for areas to accommodate the needs and
desires of visitors, tourists, and transient guests. It pro-
vides for compatible and complementary development structures
and uses in a unique resort setting. Permitted uses include
hotels and accessory buildings customarily incident to hotel

uses.

Generally an agglomeration of hotel and resort facilities pro-
vides for a more stimulating and varied environment for the
tourist. A variety of shops, restaurants, and discotheques
can make it much more enjoyable for the tourist. Single or
remote hotels, unless they offer a unique experience or provide
a full range of recreational activities (golf, sailing, tennis,
etc.) will generally not be marketable.

The proposed zone does not suggest that no additional hotel-
resort areas will be developed during the plan period. A
number of sites including Fanunchuluyan Bay (Bird Isle), Obyan
beach and Laulau bay, have exceptional potential for develop-
ment as resort areas. Careful planning and design of the sites,
however, is required. These Pites are generally far removed
from presently available water, power, and sewer facilities,
and if these sites are to be eventually developed the provision
of necessary services must be considered. Within the proposed
Implementation and Legislation volume, provisions are made for
consideration of such development.

The Land Use Plan proposes four ma3or areas for hotel-resort
development. These include: Marpi, Micro Beach, Susupe and
San Antonio. This is not to preclude development in other
areas, but suggests that the above-mentioned areas are either
presently under development or are considered to be most suited
for development at this point in time.

The Garapan-Micro-beach area presently contains three first-
class hotels. A suitable location exists for a fourth which
could be constructed between the existing Hafa Adai Hotel
and the Saipan Intercontinental. The property is in the public
domain, and the site presently has on it about a dozen Samoan-
style houses constructed in the 19601s. It is proposed that
this site be reserved for future hotel or resort-related deve-

lopment.

The Susupe Civic Center area presently has the Royal Taga Hotel
and the recently opened Grand Hotel. The entire area is well-
oriented to the lagoon and the nearby civic center. The expan-
sion of the Royal Taga Hotel to the north with either a new wing
of hotel rooms or condominium apartments is possible during the
plan period. As discussed further in the Civic Center Complex
section in the Public Facilities Chapter, this general area
has the potential to become the island's true urban center.

Establishment of a third major resort complex in the lower
Marpi area is likely to occur during the short range plan.
Japanese interests have prepared several proposals for its
eventual development. As noted in the Marpi Land Use Plan
(See Plate 9 in Pocket) there are environmental concerns which
must be addressed in any plan proposal. Presently water faci-
lities extending northward from Garapan are inadequate to carry
the flows necessary for a resort complex.

A single hotel presently exists in San Antonio south of the
coast guard station. Nearby vacant land could be used for
either expansion of the White Sands Hotel or for the cons-
truction of another resort hotel.

INDUSTRIAL

The industrial zone provides primarily for light industrial
uses and processing plants including sufficient space to meet
expected future needs. These reserved areas encourage orderly
industrial development while avoiding nuisance or hazard poten-
tial to residential and commercial areas. Also included in
this zone are concrete or asphalt batching plants, fuel and
chemical storage, storage and warehousing. Furthermore, heavy
commercial uses may be granted through special permit.

The Land Use Map (Plate 6 in Pocket) depicts two areas that
have been specifically designated as industrial zones. They
are the Lower Base Industrial Park in Tanapag and the Saipan
International Airport lands in the south.

Lower Base Industrial Park

Light and heavy industrial uses, warehousing and supply build-
ings, an antenna field, and possibly the new power plant and
sewage treatment plant will be located within the industrial
park lands near Tanapag Harbor. As discussed in detail in

the Public Facilities Chapter, the industrial park is slated
for infrastructure improvements within the plan period to
encourage further development of industrial activities. The
present uses are predominantly warehouse and supply oriented,
principally accommodating the Northern Marianas Departments
of Public Works and Education. Further development will
support economic growth on Saipan.

Airport Industrial

Located in the southern part of Saipan, the airport industrial
zone will provide for those activities directly supporting the
Saipan International Airport. The zone includes the airport
complex itself.

Principal uses for the airport zone will be bulk fuel storage
for aircraft as well as maintenance facilities. Aircraft
hangars and fuel tanks will be typical facilities that will be
accommodated by the designation of the area as an industrial

zone.

PUBLIC FACILITIES

The development and delivery of essential public services must
be assured by the Master Plan. Lands must therefore be reserved
for such uses and the Public Facilities Zone provides the mecha-

nism to do so.

The necessary public services to be accommodated in the zone
are governmental operations, health care, education, recreation,
public safety and housing. In addition, two uses, an industrial
park and a soon to be abandoned government complex, are appro-
priate to this zone by virtue of the public ownership of lands
and buildings on them. These latter two zones are the Lower
Base Industrial Par% and the Capitol Hill Complex.

Summarily, a public facility for each of the services enume-
rated above are identified and discussed in the following
paragraphs. More detailed discussions are presented in the
Public Facilities chapter of the plan.

Civic Center

The Civic Center in Susupe will continue as a major seat of
the Commonwealth Government. It is proposed that the Civic
Center and the lands adjacent to the existing facilities be
reserved to ultimately accommodate all government offices,
including those of the legislative and executive branches.
As part of the Civic Center Complex, the Marianas High School
will be expanded enhancing possibilities for joint use of
facilities such as the library, auditorium, gymnasium, and
recreational fields.

Health Facilities

Dr. Torres Hospital and the Public Health Center are the two
major health facilities which are to be included in the Public
Facilities Zone. Four dispensaries located in various vil-
lages complete the catalogue of public health facilities.

The Public Health Center is proposed to be relocated as part
of the Civic Center Complex in Susupe. Space has been provi-
ded for this.relocation, a move desirable for the centraliza-
tion of as many public services as can be accommodated within
the center. There still remains a possibility that the Public
Health Center will be combined with the proposed Garapan Hos-
pital facilities, thereby achieving a centralization of health
care services. This possibility is being investigated.

Education Facilities

Aside from the expansion of the Marianas High School within
the Civic Center, a new junior high school in Garapan is pro-
posed. Expansion of the existing elementary schools are also

anticipated in the plan. New elementary schools may be re-
quired beyond the immediate planning horizon; however, it is
expected that these schools will be adequately accommodated by
the present designation of Public Facilities Zone (see Educa-
tion under the Public Facilities chapter).

The new junior high school in Garapan will be complete with
25-30 classrooms, an auditorium-gymnasium, a library, recrea-
tional facilities, and an administrative building. Construc-.
tion of the facility will alleviate classroom shortages for
junior and senior high students and provide interim relief
from overcrowding in the elementary schools, while expansions
of these schools are being completed.

Parks and Recreation Facilities

As noted, wherever school recreation facilities can be jointly
used for community needs, they will be planned for such uses.
Other recreation facilities include the American Memorial Park,
beach parks and historical sites (discussed in detail in a
subsequent section of the Plan), and a Tennis Center in the
Civic Center Complex.

The American Memorial Park will be the principal park for the
Commonwealth and is to be established between Micro-Beach and
Tanapag Harbor. Active recreational fields, passive park
grounds, and a marina are proposed for the Memorial Park.

Public Safety

A new fire sub-station in Garapan and a correctional facility
in the Kagman Area are the only additional public safety faci-
lities required in the plan period. These new facilities will
require the designation of public lands for their use. Renova-
tions of the existing facilities within the Civic Center have
been anticipated and accommodated in the center's expansion
plans.

other Public Facilities

Specific facilities not identified in any of the previous sec-
tions, but which are reserved as public facilities, include the
new Baker Wharf dock, a fishing center, and an agricultural
station in Kagman.

The new Baker Wharf dock is proposed as the first construction
project in the expansion of Saipan's Commercial Port. Com-
pletion of the new dock will provide more berthing areas and
will allow continued trans-shipment capability while Charlie
Dock, in present use, is renovated.

The fishing center in Garapan is to accommodate the needs of
sport fishermen as well as other small boat operators. Addi-
tionally, a fishing area will be provided for fishermen who
presently utilize Charlie Dock and interfere with cargo move-

ment functions at the Port.

The Kagman Agricultural Station will provide a plant protection
lab and an extension office for the benefit of increased
agricultural production in the Northern Marianas.

PUBLIC FACILITIES

CIVIC CENTER

HEALTH

EDUCATION

PARKS AND RECREATION

PUBLIC SAFETY

HOUSING PROGRAMS

LOWER BASE INDUSTRIAL PARK

CAPITOL HILL COMPLEX

AGRICULTURAL IMPROVEMENTS

INTRODUCTION

The following sections present details on the major public
facility projects recommended for Saipan during the plan
period. Many of the facilities are proposed to stimulate
economic growth; others are to replace or improve inadequate
facilities or to provide for nonexisting facilities. Each
major facility is mentioned briefly below, and its location is
depicted on Plate 11. Also depicted are some of the major
utility improvements proposed during the plan period.

� Expansion and improvements to the Civic Center Complex,
including the construction of a public health center (den-
tal clinic) and a new civic auditorium to be used jointly
by the High School and the Saipan community.

� The construction of a new acute care hospital most probably
to be located on Navy Hill in Garapan.

� Relocation of the Chalan Kanoa Public Health Center to
either the Civic Center or the new hospital site.

� Marianas High School will be improved with the addition of
a gymnasium, science building, administrative building, and
a library.

� A new Junior High School for 600 students will be construc-
ted in Garapan.

� The development of the American Memorial Park, including a
war memorial and active and passive recreational facilities.

� Improvements to and development of island recreational
facilities, including upgrading of athletic fields at the
high school and the development of a tennis center in
Susupe at Civic Center Beach.

� The construction of a fire station in Garapan.

� Construction of a medium security corrections facility in
Kagman.

� The development of infrastructure improvements for Sugar
King I and II subdivisions.

� The development of the As Perdido subdivision.

� Expansion and infrastructure improvements at Lower Base
Industrial Park, including the location therein of a new
Power Plant and a Wastewater Treatment Plant.

� Reconstruction of Garapan Boat Basin and development into a
small boat fisheries harbor.

� Construction of new commercial port facilities at Baker
Wharf and eventual reconstruction of Charlie Dock.

� Improvements to the existing Agriculture Experiment Sta-
tion, including the expansion of existing croplands and
improvements to the Plant Pathology and Entomology Labora-
tories.

� Development of Beef Cattle Grazing Lands at Marpi.

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CIVIC CENTER COMPLEX

One of the major development schemes includes the continued
improvements to the existing Civic Center whose construction
began in 1968 following the devastation wrought by Typhoon
Jean. This concept differs somewhat from the original plan
designed and developed by consultants in 1968. It is cog-
nizant of the need to expand the existing educational faci-
lities and further recognizes the need for development of an
urban center. Included as part of the scheme are incentives
and include the removal of parking and hazardous access along
Beach Road. The proposal is also tied in with the planned
relocation and upgrading of Texas Road as discussed later in
the section on Highway Transportation.

The proposed upgrading and realignment of Texas Road will
allow traffic to feed into the Civic Center from both Beach
and Texas Roads. After by-passing Oleai School, Texas Road
would rejoin the existing alignment at the rear of the exist-
ing high school site. Improved access would allow for more
intensive land uses between the paralleling roads. The
eventual continuation of Texas Road as a limited access high-
way into Chalan Kanoa should ease or alleviate many of the
traffic problems along Beach Road.

The central commercial site within the area will remain in
the vicinity of the existing Joeten Shopping Center. It is
proposed that the Joeten Center develop its parking to the
north and east of the existing building, relocate the main
entrance to the rear, and landscape the present parking area
fronting Beach Road. With the warehouses removed at the rear
of the existing lot, a new extension, parking, and an open
plaza could be developed. Access to the center would be pro-
vided from Texas Road, as well as Beach Road. With the new

Nauru Office Building, the Joeten Center and the existing
vacant lot east of Joeten's developed into either commercial
or apartments, Saipan would have a modern commercial and civic
center (See Plate 12 ).

There should be no through traffic bisecting the government
complex, nor should there be an east-west traffic link between
the high school and the Civic Center. The entire complex
should be designed like a campus linking all public buildings
with shaded pedestrian walkways. The focal point will be a
new auditorium which is anticipated to be built in 1983 or
19841 placed centrally between the high school and administra-
tive offices, so that it may serve multiple purposes. The
central pedestrian plaza and walkway which parallels Beach
Road should be flanked by the more important government
offices (functions). Shade trees, fountains, sculptures,
war relics, benches and space for outdoor meetings, leisure
or passive recreation should be incorporated into this space.

The scheme illustrated is a long range plan. Implementation
will be gradual, but the initial phases should be built along
the central walkway (or plaza) and spread toward the outer
fringes (Texas Road and Beach Road) in later phases. Ade-
quate room for expansion of the Civic Center to ultimately
accommodate all government offices including legislative
offices and the governor's offices is provided. It is possi-
ble that the office cluster on Texas Road may never be needed.
It is also possible that a multi-story structure (such as the
Nauru building) will include leased space to the government.

High School Improvements

The final major redevelopment includes the proposed improve-
ments to the high school where a science building, library,
gymnasium and administrative buildings are proposed for cons-
truction.

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&A (existing)

-Be ch Road

0 100 2 0 M.

The two athletic fields, the multipurpose athletic field
located adjacent to Texas Road, and the baseball/softball
diamond located between the administrative center and the
Joeten Supermarket should be phased out and located to the
north and northeast on high school and government grounds.
Central to these sports areas should be the proposed gymna-
sium which will be located at the north end of the public
place, so as to form a visual anchor point for the Civic
Center and high school combined. The present track would be
reoriented and new baseball and softball diamonds would be

constructed.

The construction of the science buildings should take place
near Texas Road as envisioned in the earlier plan. If and
when the vocational buildings require expansion it may be
possible to build a new addition onto the wing in front of
the unsightly prefabricated buildings. This addition should
match or be sympathetic to the architectural expression of
present buildings in order to evoke a feeling of unity and
cohesiveness of the entire complex.

HEALTH FACILITIES

EXISTING CONDITIONS

The physical facilities available for health services can be
characterized as inadequate and inefficient. Their appear-
ance indicates neglect, and their shabbiness detracts from
the beneficial psychological effects which are usually re-
quired for effective medical care. These inadequacies have
helped create the negative image that the delivery of health
services has developed in the Northern Mariana Islands.

Dr. Torres.Hospital

This facility (84 beds, 12 bassinets) was built in 1962 and,
while some efforts to rehabilitate and maintain it have been
made, they have been inadequately funded and too modest in
their conception. The hospital is of the U.S. Army field
type, consisting of seven separate buildings connected by
covered walkways, and designed to be as cool as wind and
weather permit. Air-conditioning has been installed in
some parts of the hospital; however, patchwork carpentry
has been required to close openings that were originally
designed for breezes. Hospital laboratories are dark and
poorly designed; nursing care is difficult to provide in
the widely dispersed wards; and the flow of outpatients
and the traffic patterns between wards are both inefficient
and potentially dangerous. There has been serious deterio-
ration in the electrical wiring and water pipes, and the roof-
ing, though typhoon-resistant, does not protect building
interiors from getting wet.

Funds have been made available to rehabilitate Dr. Torres
Hospital, but the U.S. Department of HEW has advised that
the hospital cannot be renovated to meet minimum U.S. stand-
ards, and hence would be ineligible for participative fede-
ral funding.

Dispensaries

Four dispensaries have been built in Saipan. These are loca-
ted in the villages of Garapan, Tanapag, San Roque, and San
Antonio. They are small wooden buildings used for offices
by nurses and as clinics. They do not have any diagnostic
facilities or pharmacies.

Public Health Center

The Saipan Public Health Center in Chalan Kanoa is housed in
two buildings at the Municipal Center. Both of these build-
ings were built prior to 1944 by the Japanese, and are in
need of major renovation. There is a small pharmacy and
limited diagnostic capability at the Public Health Center.
The dental clinic consists of four antiquated chairs and a
laboratory with insufficient space for storage.

PLANNING FACTORS

Hospital Occupancy and Outpatient Usage

Hospital occupancy rates have been slowly increasing: 61
percent in FY 1973; 63 percent in FY 1974 and FY 1975; and
65 percent in FY 1976. The patient data shown in Table 2
reveals a heavy use of facilities and services. The annual
number of outpatient visits has increased by 52 percent
since 1972.

These figures indicate the high frequency with which medical
facilities are used. But they also indicate the heavy out-
patient demand at the hospital versus that at the dispensa-
ries. Several reasons may contribute to this situation.

The dispensary concept was developed when residents in
various communities were constrained in mobility. This
situation has changed considerably on Saipan during the
last several years, due to the increasingly widespread
ownership and use of the automobile.

TABLE 2

OUTPATIENT USAGE

1974 1975 1976

SAIPAN HOSPITAL 39,061 43,789 44,303

SAIPAN PUBLIC 4,003 3,116 5,774
HEALTH CLINIC -
CHALAN KANOA

SAIPAN DISPENSARIES 3,552 4,557 4,375

ROTA SUBHOSPITAL 9,445 12,940 71F255

TINIAN SUBHOSPITAL -3,464 3,923 3,648

59,525 68,325 65,355

1976 ALL PATIENT VISITS 67,669

OUTPATIENT 97%

INPATIENT 3%

� The dispensaries were never properly supported and lacked
good diagnostic equipment.

�Today and in the foreseeable future there is little chance
of securing sufficient qualified personnel to provide good
clinic care. The patients prefer to go where they have

access to a doctor.

RECOMMENDATIONS

The Socioeconomic plan has identified several guidelines for
health service. Among these, three particularly affect the
provision of capital facilities.

� Meet the medical facility and health manpower accreditation
standards required by the U.S. Department of Health, Edu-
cation and Welfare to participate in all relevant Federal
programs by 1981.

�Substantially improve the utilization of all health care
facilities and related services.

�Establish a "feeder system" for the acute care hospital
to prevent unnecessary duplication of health services,
health personnel, and diagnostic and'treatment equipment.

Hospital Size and Location

There is virtually unanimous agreement that Saipan needs a
new hospital facility. The size of the facility, however,
is subject to some dispute. A study is presently being
undertaken by health planners to determine the ultimate
size and necessary facilities required to provide adequate
health care. It is essential that a facility needs and
program plan be developed. Should the facility be overbuilt,
the extremely high cost of the hospital facility would unne-
cessarily escalate the cost of the health care. Most pro-
bably a facility between 70 and 100 beds will be recommended
for construction.

The proposed hospital will require a site of between ten and
twenty acres although ultimate land requirements will depend
upon the terrain of the site selected, type and style of
structure,and most importantly determination of what health
services will be provided on the site. Should the decision
be made to include Public Health and out-patient services,
the continuation of nursing school and medical staff housing
a larger site would be required.

Demographic patterns suggest a location on West Coast High-
way between Wallace Road and Garapan. Four sites have been
tentatively identified as possible locations. Two (2) are
on public lands and two are on private. A fifth alternative
would be reconstruction at the present site. The new sites

include:

Navy Hill location
Sugar King
Gualo Rai
Golf Course Site (Chalan Kiya)

Navy Hill

The principal site is ideally located off the West Coast High-
way in Garapan. A 20 acre site is proposed on Navy Hill Road
which would allow for the location of the hospital, public
health facilities and provide additional open area for the
eventual construction of a nursing school. The Navy Hill
Housing area, anticipated to become available by 1981 or 1982,
could also be utilized to house medical staff. Utilization
of this site may require that the Sugar King II subdivision
design be modified to provide sufficient room for the hospital.

Public Health Facilities

Relocation of the Public Health Center from Chalan Kanoa is
also envisioned during the plan period. Health planners are
not yet decided as to whether the future Public Health faci-
lities should be located at the Civic Center or the same site

as the new hospital. Most probably health facilities at the
Civic Center would require the construction of additional
buildings and an area has been reserved in the Civic Center
Master-plan to accommodate these facilities (See plate 12 on
Page 83). In any event it is believed that the Civic Center
is the ideal location for a Public Health Dental Clinic as
it would be close to the existing population center and
adjacent to the high school.

Dispensaries

The existing dispensaries in Garapan, San Antonio, Tanapag
and San Roque are proposed to continue in service during the
short range plan. It is proposed that the dispensaries
serve as first call facilities and be utilized for dissemi-

nation of health information. Public Health nurses would
screen patients in all dispensaries and send them to either
the Public Health Clinic, or to the hospital out-patient
ward. Some degree of underutilizing dispensaries will exist,
however, and the natural inclination of patients to go directly
to a doctor must be addressed in an aggressive public education

program.

Capital Improvements Program

The timing of new or improved physical facilities has been
guided by the need to improve the facilities as rapidly as
possible. Not only is this need created by the high prior-
ity given to improving the quality of health care, but also
by the fact that the earlier that,standards of HEW are rnet,
the earlier the people of the Northern Marianas can receive
the benefits of the funds which will be made available under

.Medicaid and Medicare programs. Tables 3 and 4 indicate
the proposed scheduling of facility improvements and the
proposed funding scheme.

TABLE 3

Schedule for Health Facility Improvements

FACILITY PROPOSED YEAR

Acute Care Hospital 1978-81

In-patient - 70 beds
Out-patient facilities
Emergency facilities

Public Health Offices and Dispensary 1980
Renovation at Civic Center or
new construction at Navy Hill Site

Dental Offices and Treatment Facilities 1981
Renovated or new building at
the Civic Center

Village Dispensary Improvements 1979
Garapan, Tanapag, San Roque
and San Antonio

TABLE 4

HEALTH SERVICES: PROJECTED CAPITAL IMPROVEMENTS
PROGRAM EXPENDITURES, FY 1978-85

(Thousands of dollars)

Facility and FY FY FY FY FY FY FY FY
location 1978 1979 1980 1981 1982 1983 1984 198

Saipan

Acute care
hospital.... 500 2F850 1,550 1,100

Public health
building... 50 100

Village
dispensaries.. 100

Dental
facilities... 50 100

Hospital reno-
vations
(Dr. Torres)... 140

TOTAL ......... 640 3,050 1,650 1,200

Source: Projections prepared by RRNA.

In Fiscal Year 1978 it is assumed that the $500,000 would
be programmed for the Design and Engineering of the new faci-
lities.

Improvements to Dr. Torres Hospital should be minimized and
only those improvements which are absolutely necessary should
be completed. One hundred and forty thousand dollars are
presently earmarked for that purpose.

EDUCATION FACILITIES

EXISTING CONDITIONS

The Saipan school system consists of kindergarten through the
twelfth grade. Mount Carmel, a private school having grades
one thru twelve has some of the enrollment, but the majority
of pupils attend the public school system. The following
analysis is limited to the public system.

Physical Plant-Size

The physical facilities consist of nine schools - seven ele-
mentary schools, Hopwood Junior High, and the Marianas High
School. These facilities contain approximately 165 class-
rooms (See Table 5). Data on the average number of students
per classroom - available in Volume II of the Socioeconomic
Development Plan - indicate that the total number of class-
rooms is reasonably adequate. However, several classrooms
have been diverted to non-classroom uses such as offices and
libraries. moreover, several classrooms are unsatisfactory
for school use and must be programmed for either replacement
or upgrading.

Based on mainland standards, most of the school sites are
sufficiently large to support current enrollments. The
standards for high school sites suggest that the campus for
Marianas High School should be between 35 and 40 acres. Only
22 acres are in use today, however,. the present site can be
expanded to the north.

Moreover, the joint use auditorium proposed to the south of
the high school site will also compensate for the small site
size.

TABLE 5

SAIPAN SCHOOLS & FAC.

NUMBER OF CLASSROOMS

SCHOOL AREA MASTER PLAN EXSITING- R
(AC) Fl
EXIST'( PROP. STAND. SUBSTA
SAN ANTONIO 5.13* 7 5 7 5 Basketball, 1@a
purpose Field,
CHALAN KANOA 10.63 20 - 13 17 BASKETBALL CT.

SAN JOSE 10.41 12 1 12 3 NONE - OPEN FI

ko
cn SAN VICENTE 7.38 6 14 6 3 MULTI-PURPOSE
GARAPAN 7.36 8 12 8 16 NONE - OPEN FI

TANAPAG 6.04 - - - 6 MULTI-PURPOSE

SAN ROQUE 5.32 5 5 3 BASKETBALL CT.
HOPWOOD 18.40 - - 33 - BASEBALL FIELD
ffE_
MARIANA HI. 31.97 25 25 BA BALL, SOCC
I I 1 2- BASKETBALL

THERE'S A 4.8 AC GOV'T LAND ADJ. TO SCH. VACANT

Classroom Conditions

A recent physical study showed that of the 218 classrooms in
the NMI, none could be rated as excellent; 142 were good, 60
were fair, and 17 were poor. It should be noted that the
standards used in this evaluation were significantly lower
than those that would be used in an average American school
system. A general impression of currently used classrooms
is one of severe inadequacy, both in terms of maintenance
and equipment.

Within the nine schools comprising the Saipan Public School
System 53 rooms, located in 15 buildings, ranging in size
from two to seven rooms are considered substandard struc-
tures. That is, these buildings are not likely to withstand
typhoon level winds, and most do not have adequate protect-
ion from wind and driving rains.

There is little evidence that in the planning of schools,
the special needs of the school administrators, counselors,
and teachers were even considered. In the past, pressure
to build classrooms has evidently been so great that prac-
tically all other space requirements were neglected. The
space used for administration, counseling, and auxiliary
teaching services (laboratory, supplies, etc.) is also clear-
ly inadequate. In many cases, regular classrooms or hallways
are used for these important functions. office quarters are
usually crowded, ill-furnished, and lack privacy. Teacher
restrooms and office facilities are virtually non-existent.

The sanitary facilities in many schools are inadequate and
ill-maintained. Many plumbing fixtures are in need of re-
placement, and waste disposal is a frequent problem.

There are four school libraries in Saipan and, in general,
the school library facilities are inadequate and ineffec-
tively operated.

Schools have limited space for recreation facilities and
activities. Some classrooms are used for storage and re-
creational equipment and some indoor forms of recreation
activity, but there are no buildings reserved specifically
for these purposes. School grounds usually have open space
for outdoor games, but have very little equipment. Teachers
lead elementary classes in group games but physical educa-
tion teachers have only been recruited for the junior high
and high school. Only the private school in Saipan has a
roofed-open-wall facility for games.

PLANNING FACTORS

Policies Affecting Physical Plant

Policies affecting the capital improvement program have been
developed in the 1978 to 1985 Socioeconomic Development Plan
for the Northern Mariana Islands. The following summary of
policies affecting the education physical plant have set
directions for the present planning horizon.

� Existing Village schools will be retained in their present
locations.

� A new Junior High School is to be constructed in Garapan.

All schools will have adequate numbers of good classrooms.

Administrative offices, counseling rooms, storage space
and library facilities will be improved at all schools.
A science building is to be added to the High School.

Audio-visual rooms will be constructed to all schools with
large schools having auditoriums.

Recreational facilities will be improved at all schools
including the construction of a semi-enclosed gymnasium
at the high school.

Population Growth and School Population

Present School population estimates were obtained directly
from school principals. Projections of school populations
are based on the proportion of each grade-group (elementary,
junior high, and high school) to the total resident popula-
tion at the end of the planning horizon (1985) and for ulti-
mate development. Table 6 summarizes this data.

Classroom Requirements

The enrollment figures contained in Table 6 have been trans-
lated into classroom requirements in Table 7. The require-
ments for the year 1985 and at ultimate development will be
significantly affected by the desired student size per room.
Table 7 indicates classroom requirements based on overall
average class sizes of 20 and 25 students. Because of seve-
ral administrative and scheduling considerations, individual
class sizes are often greater than the desired standards.
However, it should also be noted that contemporary standards
among education administrators require that average class
size be reduced for the junior high school and high school
groups, especially for the latter.

Table 7 shows the total number of classrooms required, all
of which should be of adequate physical standard. These
requirements do not include special classroom requirements
which may be desired by education administration officials.

The most urgent requirements are for junior high school
classrooms. However, high school classroom space will also
be urgently needed, as will kindergarten space, and replace-
ment of substandard elementary classrooms. Currently no pro-
vision has been made for kindergarten space. A minimum of
10 classrooms, assuming double sessions will be required by
the end of the plan period.

TABLE 6

SAIPAN SCHOOL ENROLLMENT BY GRADE GROUP

GRADE 1977 1985 ULTIMATE

KINDERGARTEN 360(ESTIMATED) 477 1267

GRADES 1-6 2159 2860 7600

JUNIOR HIGH SCHOOL
GRADES 7-8 (PRORATA) (672) (917) (2448)
GRADE 9 (PRO-RATE) (369) (458) (1224)

HIGH SCHOOL
GRADES (10-12) 616 985 3024

TABLE 7

CLASSROOM REQUIREMENTS

1985 ULTIMATE

Low High Low High
(20) (25) (20) (25)

KINDERGARTEN 24 19 63 51

ELEM. SCHOOL 143 114 380 304
(1-6)

JUNIOR H. S. (7,8) 46 37 122 98

JUNIOR H. S. (9) 23 18 61 49

HIGH SCHOOL 49 39 151 121
(10,11,12)

100

CAPITAL FACILITY RECOMMENDATIONS

Elementary Schools

This grade group consists of kindergarten through the sixth
grade. Based on school enrollment projections it is esti-
mated that a minimum of 114 classrooms will be required by
1985. Furthermore, of the existing 107 classrooms, 53 are
considered substandard and should be replaced.

As many as 70 new classrooms could be required during the
plan period - 53 to replace substandard rooms, and 17 rooms
for additional space. Funding guidance provided in the RRN/A
Socioeconomic Plan would enable the construction of thirty-
one (31) new classrooms. Assuming that 10 or 20 special
purpose rooms would also be available, some 29 substandard
classrooms would remain in use at the end of the plan period.

In general, it is recommended that new classroom space should
be provided at existing school locations and that the elemen-
tary campus size be limited to 26 to 28 classrooms. This
would allow for four sets of kindergarten through sixth grades
at a particular site. The San Antonio site should be expanded
by annexation of the adjacent 4-acre parcel. The individual
school master plans presently existing for San Antonio, San
Jose, Chalan Kanoa and Garapan require reevaluation, to make
certain that these sites can be expanded to meet future class-
room requirements and to determine the specific nature and
timing of the expansion.

Several additional elementary sites will be required beyond
the present planning horizon. Eventually, as many as 225-
250 elementary school classrooms will be necessary. Timely
site acquisition is essential to insure an orderly expansion
of the school system and to preclude the need to pay exorbi-
tant acquisition costs. The proposed new subdivisions at
Kobler field and the Marpi homestead site should both in-
clude sites reserved for educational facilities. The Sugar

101

King I site should be redesignated as an elementary school
if it does not become the location for the new hospital.

Junior High School

Immediate action is required to design and construct the new
Garapan Junior High School. Construction should not only
relieve the critical space shortage, but will also provide
interim relief at the elementary school level. A complete
educational complex including 25 to 30 classrooms, an audito-
rium gymnasium, library and administrative buildings, and
recreational facilities are proposed for the site (See Plate
13).

At least one additional junior high school facility will be
required beyond the present planning horizon. It is recom-
mended that either the present high school be converted to
a junior high school (with concurrent construction of another
high school) or that a new site be acquired, preferrably
along Wallace Highway at the site of the present golf course.

High School

By the end of the present planning horizon (1985), the present
High School will be experiencing slightly overcrowded facili-
ties. A number of capital improvements are proposed at the
high school during the 1977-1985 Plan period. These include
a new gymnasium, a science building, an administrative build-
ing and a library which will release several classrooms pre-
sently utilized for those purposes. Additional facilities
are proposed to be added to the vocational education depart-
ment. Plans are also proposed to upgrade the existing recrea-
tional facilities. A new auditorium, for joint use as a
school assembly facility and a community civic center, on lands
immediately south of the school site are also proposed (See
Plate 12 on page 81). Based on Saipan's ultimate population,
there could be over 3000 students requiring high school space
for grades 10, 11 and 12, and still more if a four-year high

102

J-

qy,

PARKING AR

TENNIS
COURIS

BASE A L

TRACK

W S 7-
C 0 A S T
L

n VV A y

school system is adopted. It is essential that the School
Board and the Department of Education re-examine needs for
either a three-year or four-year high school. Although two
separate high schools of identical curriculum is not recom-
mended, it may be possible to eventually support a vocational-
technical high school. Plate 14 illustrates the proposed
gymnasium.

A second high school site should be coterminus with the pro-
posed junior high school site at the golf course. If the
option is chosen to consolidate all high school facilities at
the golf course site the existing high school could then be
available as a third junior high school.

Community College

Recent discussion has centered upon the need for a Community
College. It is suggested that the present hospital site be
utilized for this purpose. Several of the existing buildings
could be renovated thereby saving the costs of new construc-
tion. Joint use of existing high school and vocational edu-
cational facilities should also be considered as an alterna-

tive.

Land Use Planning Implications

The primary factor in the education program related to growth
and land use is the location of the new Junior High School.
Its proposed location at the southeast corner of the West
Coast Highway and the extension of Micro Road should be a
desirable location. Further development of Garapan Estates
and Sugar King I and the proposed development of Sugar King
II, bordering the school site on the south, would surround
the school on three sides with residential use. Student
access would be facilitated and the only major problem would
be West Coast Highway. Proper buffering and provisions for
pedestrian access from the west could, however, solve this
problem.

105

Location of the Junior High in the Garapan area may also
affect growth trends elsewhere to some extent. It will mean
reduced pressure on the northern elementary schools and per-
haps induce more growth in the Garapan and San Roque-Tanapag
areas. Also, many of the proposed new elementary classrooms
could be constructed in the Chalan Kanda and Oleai areas thus
relieving the increasingly crowded conditions at those sites.

Consideration must also be given to the eventual location of
a new campus for a high school facility in the long range or
ultimate plan. Such a facility would require 35 to 40 acres
of land and should be centrally located with respect to the
population. A possible site which should be explored is a
portion of the existing nine hole golf course in Chalan Kiya.
This assumes of course that a new golf course facility is
built during the plan period and that the land can be acquired.

Conclusion

observation of the proposed budget for the 1977-85 plan period
encompassing the above facilities indicates probable substan-
tial improvement over existing conditions. However, it is not
presently the intent of the program to eliminate the use of
all substandard facilities within the plan period. The extent
to which these facilities are phased out will depend on future
trends in school attendance and population growth. Continua-
tion of 3% annual increases in school population, coupled with
the various new facilities including the new Junior High and
thirty new elementary classrooms, should reduce the use of
substandard classrooms from the 53, in use today, to a maximum
of 30 by 1985.

106

gz*- 00 23,-00

T- -roof line

S
\0
T

KITC HEN Ll

G @um
STAGE
C F 0 IUM
Ox
Boy@- -dR--LS (5 COURT)
0
TOILET TOILET

DRESS STO.

OFF BLEACHERS
ST4 GYM STO.
roof line JD@ESJ
WE

FLOOR PLAN

PARKS AND RECREATION

Recreation is an important part of life on Saipan as the tra-
ditional lifestyle includes frequent family and group picnics
at beaches and other recreational sites. Future planning and
funding for recreational facilities must carefully balance
the needs of the local communitv with the recreational needs
to meet an expanded tourism industry.

The proposed short and long range park and outdoor recreation
system for Saipan has been established in close conformity
with the Northern Mariana Islands Park and Outdoor Recreation
Resource Study prepared in April, 1977.

EXISTING CONDITIONS

The existing park and recreation system for Saipan includes
the numerous beach parks, and historic sites such as the Last
Command Post, the Japanese Hospital and Jail, and the Cerman
Light House.

Also included are the active recreational baseball, basketball,
and tennis courts, etc., facilities. Plate 15 depicts the
location of these facilities.

The active recreational facilities that have been developed
on Saipan consist generally of open space or multipurpose
fields and multipurpose courts constructed so as to accommodate
basketball, tennis, or volleyball.

109

Generally, the fields that have been constructed are for base-
ball; however, several such as at the high school can also
accommodate softball and soccer. Many of the fields at the
elementary schools are open space multipurpose play areas
which were constructed with no specific use in mind.

Table 8 indicates the existing public and semi-public outdoor
recreational activities exclusive of beach parks.

There are thirteen basketball courts or multipurpose courts
which are distributed about the island. Only the Mt. Carmel
High School facility is semi-enclosed and allows play during
inclement weather. All are in pretty good shape; however,
they could be improved with fences and backboard replacement.
.Several lack bleachers and lighting.

Presently there are two public tennis courts, one at Capitol
Hill and the second at Civic Center beach. Quasi-public courts
include the Intercontinental, Hotel Courts and those at the
Coast Guard station. Many of the basketball courts have been
constructed as multi-purpose courts; however, most are cons-
tantly in demand for basketball.

Presently, there are five public little league baseball/soft-
ball fields (excluding the Mt. Carmel facility). These could
be improved with minimal expenditures to provide for or improve
backstops and screened dugout areas.

Saipan is fortunate in having extensive beachfront areas which
remain in public ownership along its western shoreline. Most
villages have informally claimed beach areas which are consi-
dered to be their village beach and park areas. Many have
wooden tables and several have tables and barbecue pits cons-
tructed of cinder blocks or concrete.

110

BAHIA FANUMCHULUVAM

PURTAIM SABAMETA
J-

j11

.N@
Al

J@,- T
@j
San,,@,%ue

K
/T'

@x-
HISTORIC PARK n ag .0i;
A
qP
(API
PICNIC FACILITIES

BASKETBALL COURT

BASEBALL FIELD

Boat
MULTIPURPOSE FIELD Ramp

umPAG
OTHER FACILITY
HAMOR

7,
Ramp

Ga rapan Boat
Ramp Ir "I
PuKqTAM MUCH07

JSII ETA [,WAMAGAH,,@@

0 2 3km

TABLE 8

VILLAGE RECREATIONAL FACILITIES

San Antonio Location Garapan

Basketball Court (multi-purpose court) Village Center Basketball (multi-purpose
Baseball Field Associated with open Field
Basketball Court (multi-purpose court) Hopwood Junior
Soccer Field High School Tennis Court

Multi-purpose Field Elementary school
Navy Hill
Tennis Court (semi-public) Coast Guard Station

Multi-purpose Field
Chalan Kanoa

Tanapag
4 Basketball Courts Each District
Fj Multi-purpose Field Elementary School Basketball (multi-purpose
Basketball Court (partially closed) Mt. Carmel School Baseball Field
Baseball Field Mt. Carmel School open Field

Susupe San Roque

Basketball (multi-purpose court) District Meeting Hall Baseball Field (Playgroun
Basketball (multi-purpose
Baseball Field Civic Center

Tennis Court (multi-purpose court) Civic Center Beach Capital Hill

2 Basketball courts (parking lot) Associated with
2 Volleyball Courts Marianas High School Tennis Court
Unimproved track Basketball Court (needs r
Multi-purpose Field Multi-purpose Field

San Jose San Vicente

Basketball Court church Grounds Basketball (multi-purpose
Baseball (multi-purpose f
open Field Elementary School

Golf Course (nine holes)

Saipan is blessed with a wealth of historic sites dating from
early Chamorro settlements up through the various governmental
administrations which have held control over the Marianas.
The incorporation of this resource into the recreational plan
is especially important for tourism.

A partial inventory of sites taken by the Historic Preservation
Office is included as Table 9. It is anticipated that this
list will be updated as part of the ongoing Historic Preserva-
tion Program. It should be noted that programs are presently
underway to restore several of the Japanese period structures.
'Another thrust is a study which will initially survey areas of
early Chamorro settlements and develop a methodology for asses-
sing the value of each site.

TABLE 9

HISTORIC SITES

PRE-CONTACT (CHAMORRO) LaulaU Beach Latte
Obyan Beach Latte
Bird Island Latte

SPANISH ADMINISTRATION Kalabera Cave Marpi Area
Church Tower Garapan

GERMAN ADMINISTRATION Lighthouse Navy Hill
Governor's House (steps) Garapan

JAPANESE ADMINISTRATION Japanese Hospital Garapan
Sugar Factory Housing Chalan Kanoa
Municipal Complex Chalan Kanoa
Japanese Jail Garapan

WORLD WAR II Last Command Post Marpi Area
Banzai Cliff Marpi Area
Suicide Cliff Marpi Area
Coastal Gun Bunkers Obyan, Laulau, Agingan

OTHER SITES Bird Isle
Managaha
Underground Stream Cave
The Grotto Marpi Area

114

RECOD,MNDATIONS

Overall objectives of the Parks% and Recreation plan should

be to:

� Provide suitable and adequate active and passive recreational
places for the local community and island visitors.

� Maintain those areas of local significance that are of impor-
tance either as food gathering or food procurement, or which
are significant culturally.

Develop recreational facilities that support and encourage
expanded tourism.

Provide adequate recreational facilities in conjunction with
the school system and community centers.

Specific recommendations which will help to attain these goals
include the following:

� Renovate and improve the active recreational facilities
scattered about the island. Fencing of tennis courts, recon-
struction of backboards, leveling and improving of all-purpose
fields.

� Improve the central sports complex at the Susupe High School
location. The track field should be reorientated. A soccer,
football field, regulation major league baseball field, and
minor league/softball fields should be constructed.

� A semi-enclosed gymnasium should be constructed at the Susupe
site. Initial design and construction should allow for expan-
sion of facilities to add stage and locker rooms.

� The American Memorial Park should be phased so as to minimize
the duplication of essential facilities. initial construc-
tion of active recreational facilities should @nclude the
swimming pool and tennis court areas.

115

� Improve access roads to the beach parks, provide for litter
picX-up and increase the number of picnic tables and barbe-
cue pits. Necessary road @mprovements are discussed in the
section on transportation.

� Promote or encourage the private development of at least
one 18 hole golf course, either in the Marpi Resort Area
or at Agingan Point.

� Develop through the Historic Preservation Office the means
by which historic sites are inventoried, surveyed, renovated
and included into the parks and recreation plan.

Establish and develop the Marpi Commonwealth Park and the
Kagman, Naftan, and Ogso Tagpochau wilderness parks.

More detailed explanation of each of the above recommendations

follow:

Recreat ional Facility Standards

Future active recreational facilities must include "tot lots"t
play lots'for children of pre-school age, neighborhood play-
grounds or village parks, area centers of community facilities
and, finally, island centers.

Playlots- (Mini Parks)

Playlots are small recreational areas designed for pre-school
children to play in complete safety. Space devoted to the
playlot should be between 2,500 to 10,000 square feet. Gene-
rally, they are part of more densly populated urban areas.
Presently, only Chalan Kanoa has densities of development and
numbers of pre-school children which warrant their development.
Future subdivisions or multi-family residential areas should
consider their development.

116

Neighborhood Playgrounds

Neighborhood playgrounds serving between 500 and 1,000 persons
should be developed at each elementary school or within major
subdivisions. The playground of each elementary school should
be of sufficient size and design, and properly maintained, to
serve both the elementary educational program and the recrea-
tional needs of all age groups in the neighborhood. Since
education and recreation programs complement each other in
many ways, unnecessary duplication of essential outdoor re-
creation facilities should be avoided. The cost to duplicate
facilities and lack of suitable public lands near the existing
residential areas makes it even more important that the dupli-
cation of facilities is avoided on Saipan. Present plans
suggest that each facility should contain a multi-purpose
court, childrens' playground and multi-purpose field. The
minimum area requirement that will accommodate essential acti-
vities is about 3 acres.

Area Centers - Community Playgrounds

The Community area would normally be associated with either
the Junior High School or High School facilities. This is
a most economical approach to the development of community
recreational facilities when the school sites are properly
located. Facilities should initially include two multi-pur-
pose courts, a baseball field, and a soccer or football
field enclosed by a track. A minimum of twelve (12) acres
are required for development of such facilities. The ulti-
mate school plan would also include an enclosed basketball
court gymnasium. Such sites are presently envisioned at the
Hopwood Junior High School, the Marianas High School in
Susupe and the New Garapan Junior High School.

Island Center

This facility would serve the entire island and provide the
recreational facilities normally included in the area centers,

117

as well as provide for facilities such as a swimming pool,
recreation building, nature trails and picnic areas. Fields
would be equipped with lights for night play. The American
Memorial Park facility as discussed later in this section
will contain the above mentioned functions and should ful-

fill the island's needs.

American Memorial Park

The principal Commonwealth park will be established between
Micro beach and Tanapag harbor area.

The Covenant states in Section 803 (e) that the Government of

the United States will set aside an area of 133 acres at Tana-
pag Harbor for public use as a memorial to American and
Marianas people who were killed or wounded in the Marianas
Campaign during World War II. The $2 Million received from
the Government of the United States for the lease of this pro-
perty will be placed into a trust fund and used for the deve-
ment and maintenance of the park.

Plate 16 illustrates the conceptual design of this American
Memorial park. It is proposed that the park have various mix-
tures of active and passive recreational facilities providing
facilities for both the visitor and the local citizen. Pro-
posed active recreational facilities include tennis courts,
a swimming pool, a teen center and island-wide athletic
fields including soccer/football, baseball and softball dia-
monds. Initially a powerboat marina should be constructed
to provide facilities for sport fisheries and commercial
boat activities geared towards the tourist. As need or demand
increases a second marina for sailboats should be developed.
Passive recreational areas in the war memorial site will in-
clude the Amphitheater, Monument and Poinciana park. A
natural area with a botanical garden is proposed to be deve-
loped in the natural ponding basin including buildings to
house an information center and a natural historic museum.
This area might also include a Micronesian cultural center.

118

Boat trips to Monagaha Island
and glassbottorn boat rides

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Marpi Park

The Marpi area should also be developed into a major common-
wealth park. Marpi area represents the largest contiguous
area in public ownership on Saipan. Much of the land area is
recommended to be preserved as a wilderness area or to be deve-
loped into public grazing lands. The area includes the out-
standing natural features of Suicide Cliff, the Grotto, Bird
Island, Fanunchuluyan Bay, Laderan and Jeffries Beach (Unai
Fahang). It includes, furthermore, the important historic
sites of Banzai Cliff and the Last Japanese Command Post.

Within this area, some overgrown existing Japanese road align-
ments should be reestablished as trails, to be part of a hiking
trail system connecting historic and scenic interests. This
park will offer the following recreational opportunities:
historic education, scenic driving, snorkeling, scuba diving,
picnicking, hiking, camping, nature observance and contempla-
tion.

Wilderness Parks

Three large wilderness parks are proposed which take advantage
of lands marginal for development. They are illustrated on
Plate 17 and include Kagman, Naftan, and Mt. Tagpochau. Each
includes highly scenic features and in the case of Kagman and
Naftan, the lands are presently in public ownership. Parts of
the proposed Tagpochau park are in private ownership.

Municipal Parks and General Parks

Along with the municipal beach parks, three general parks
are proposed for development. The first, to be called Sugar
King Park, includes lands and historic sites including the
sugar train, sugar king monument, the hospital and jail and
extends down to the proposed fishing marina. This park was
proposed in the 1967 Master Plan and is considered to be
worthy of mention again.

121

A second park, to be called Tanapag Beach park, would extend
from the Tanapag ridge down to the beach front. This park
would provide a buffer between the industrial park and pro-
posed southward expansion of Tanapag. It was in this vici-
nity that the Japanese made their last attack against the
American forces during World War II.

The third proposed park would be the Lake Susupe - Civic
Center park area which would provide for a strip of land
from the shoreline through the civic center and eventually
extending into the conservation lands bordering Lake Susupe.

Golf Course Development

The present golf course in Chalan Kiya is a small nine hole
course of medium difficulty. The 1967 Master Plan had sug-
gested that this site be expanded to a full 18 hole course
with ancillary recreational facilities. Recent residential
development adjacent to the course, hindering further expan-
sion and land acquisition problems, make it nearly impossi-
ble to construct an 18 hole course on the site. In recogni-
tion of the above factors we recommend that possible sites be
proposed for golf course locations and that the Government
invite private interests to develop the site. Two potential
golf course sites are proposed. The first is at Agingan Point
where approximately 150 acres have been set aside in public
reserve for the development of the course. The site offers
exceptional views to Tinian, and should be designed to have
maximum interplay with the coastline. A particular problem
of golf courses in the Western Pacific is to keep them lush
during the dry season. The Agingan Sewage Treatment Plant
with proposed expansion could provide up to 1.5 million gal-
lons of water daily for golf course irrigation. It is a
potential irrigation source which should not be overlooked.

122

GROTTO

BAMA FAMUNCHULUVAH

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The second golf course site is located in the Marpi Resort
area. Presently developers have a proposal for the construc-
tion and operation of a resort hotel, convention complex, in-
cluding a golf course. The golf course would be made avail-
able to Northern Marianas citizens as part of the development
package. Timetable for completion of the project is under
negotiation as is the final lease agreement. The golf course
site is upwards of 200 acres on a high plateau overlooking the
western coastline.

Financial Allocations

Table 10 indicates the proposed financial allocations for
recreation and community event projects as identified in the
Socioeconomic Development Plan. Additional funds are also
being allocated for recreational facilities to be developed
in conjuction with educational facilities (See Table 11).
Where necessary, trail and access roads to beaches on public
lands will be constructed and maintained by the Public Land
Corporation. Where the beaches are heavily used, their access
will be part of the road pattern developed and maintained by
the Department of Public Works. It is anticipated that well
kept paths to such major tourist points as the tip of Tagpo-
chau, Bird Island, Banzai Cliff, etc. will be constructed and
maintained by the Public Land Corporation. Funds for these
operations are included in the operating funds budgeted for
agencies. Additional funds may be available from the Bureau
of Outdoor Recreation of the U.S. Department of the Interior.
The Marianas Visitors Bureau should assume responsibility for
the maintenance of public beaches and points of tourist inte-
res t with funds from the beverage tax and a grant from the
NMI government. Government funds totalling $188,000 are pro-
vided as a subsidy to MVB for this purpose.

125

Table 10

Northern Mariana Islands Projects for
Recreation and Community Events

(Thousands of dollars)

Type of FY FY FY FY FY FY FY
Activity 1978 1979 1980 1981 1982 1983 1984

Managaha renovation. 35 35

Historical preserva-
tion (matching
funds) a/ . . . . . . 50 50 50

Village picnic and
recreational
facilities . . . . . 10 10 10 25 25 25 25

Public sports center
tennis courts.

Public sports center
playing field
improvement.

Memorial park . . . . . 50 50 50

Total . . . . . . . . 145 145 60 25 75 25 25

a/ Japanese Hospital, Light House, Banzai Cliff, Suicide Cliff, Rota
'ffouse, Matching funds required to meet available grants from U.S. Dep

TABLE 11

EDUCATION AND RECREATIONAL FACILITIES

Facility Funds PY Budgeted

Recreational Equipment $ 49,000 Operations

School Ground Recreational 200,000 1979 - 83
Facilities (playground,
ballfield, etc.), Saipan,
Rota, Tinian

Marianas High School; 487,000 1981 - 83
covered recreational
building (basketball
court, stage, office,
etc.)

Maintenance of school Included in Operations
recreational facilities school main-
tenance

127

PUBLIC SAFETY

EXISTING CONDITIONS

Physical facilities for public safety services on Saipan
presently consist of a police headquarters, a set of deten-
tion cells, a communal jail, and a fire station, all located
within the Civic Center. The headquarters and criminal deten-
tion cells are housed in one building with the communal jail
located in a separate building to the rear of the headquarters.

Public safety equipment include: 15 police vehicles, half
being late model; a police radio system consisting of a base
unit and portable units in each vehicle; a pumper and a tanker
truck assigned to the Civic Center fire station; and two fire
trucks permanently stationed at the International Airport.
The two airport trucks, one being a crash/fire/rescue truck
and the other a back-up tanker, provide water and foam concen-
trate extinguishing capability in the event of an aircraft
mishap.

The existing facilities and equipment for police services are
basically adequate, requiring only additions to and timed
replacements of the vehicle stock as well as expansion of
the communications capability to provide full coverage of
Saipan. Despite the establishment of a booster facility on
Navy Hill, several areas cannot be reached by the communica-
tion network due to the constraints imposed by topography.

The corrections facilities are sorely inadequate for several
reasons: No separation of adult male and juvenile offenders
is possible during the day in the communal jail; no separate
area is available for females other than detention cells;
and the detention cells are not provided with basic sanita-
tion facilities.

128

The fire fighting capability on Saipan is weak. Existing
fire trucks and other fire apparatus, with the exception of
the airport trucks, are in poor operating condition and need
early repair or replacement. Of crucial concern is the lack
of radio communication units in any of the vehicles.

PLANNING FACTORS

The mission of police and fire fighting forces is to protect
the safety of the public. At the least, adequate response to
the threats of criminal activity and the devastation of a fire
must be provided. Thus, the planning of any capital improve-
ments should be based on the need to respond quickly and
effectively to these elements that threaten the public's
safety.

Crime is believed to be increasing in the Northern Marianas,
particularly on Saipan. Increase in crime is a function of
many variables which are difficult to analyze for relative
importance. It is likely, though, that limited police capabili-
ties in crime prevention and law enforcement, as well as mar-
ginally effective corrections programs, have been strong con-
tributing factors.

Fire fighting response to the immediate Susupe/Chalan kanoa
area is estimated to be from five.to eight minutes. Response
times to other areas are even longer, which certainly do not
reduce the threats to life and complete property losses that
might result from fires in remote areas.

In determining necessary improvements, the provision of effect-
ive corrections facilities that separate female from male
offenders and repeat from first time criminals has been consi-
dered a desirable objective.

129

Additionally, fire response times of three to six minutes for
the downtown area and no more than ten minutes to other areas
have guided the determination of fire fighting capital im-
provements.

Improvements to police vehicle stock as well as the expansion
of the police and fire communications capability are necessary.
However, these will be undertaken as part of operational im-
provements. Thus, these are not addressed further in this
section.

RECOMMENDATIONS

The recommended capital improvements are enumerated as follows:

� Construct a female cell block within the Civic Center jail
and provide sanitation for each cell in the present facility.

� Construct a new NMI corrections facility for adults to provide
effective, but minimum security detention.

� Construct a youth correction facility which would provide
the needed separation between repeat adult, and youthful,
first time offenders.

� Purchase an attack pumper to increase fire response capabi-
lity for the Civic Center Fire Station.

� Construct a fire substation in Garapan to reduce response
times to population centers in this area.

During the Short Range Plan, a total of $1,270,000 has been
allocated for these improvements. Each recommended improvement,
along with its costs, is briefly outlined below.

130

Civic Center Jail

The detention cells in the existing jail should primarily
be utilized as a lock-up facility for detention of those
persons apprehended and awaiting arraignment. Female pri-
soners would also be incarcerated in this facility. Thus
a new cell block, sight and sound-proof with respect to the
other blocks, is required. Each cell must also be provided
with sanitation facilities, a basic requirement for improve-
ment of prison conditions. Costs for these renovations are
estimated to be approximately $25,000.

NMI Medium Security Corrections Facility

A medium security facility is proposed primarily for the in-
carceration of non-felony, male offenders. (Felony prisoners
require maximum security facilities which would be prohibi-
tively costly to construct. Thus, they are to be incarcerated
at off-island facilities through a contract arrangement). The
initial facility should accommodate 25 inmates, provide voca-
tional rehabilitation facilities, include agricultural lands
suitable for cultivation, and provide recreation facilities,
both indoor and outdoor.

Costs for the new facility will amount to $625,000, including
design, construction, and equipment. The facility is expected
to be designed in FY 1978 with construction and equipment pur-
chase budgeted for in 1979. Initial plans are to locate the
facility in the Kagman area.

Youth Corrections Facility

Late in the plan period, a separate Youth Correction Farm
should be developed for juvenile, male offenders. The NMI
corrections facility may thus be reserved for adults. The
youth facility would be similar to the adult facility, how-
ever, it would be minimum security and costs are expected to
amount to $325,000. This facility is also recommended to be
constructed in Kagman.

131

Saipan Fire Equipment

A 250 gallon "attack pumper" is needed to immediately streng-
then the service efficiency and response capability of the
Civic Center Fire Station. The pumper is small, but highly
mobile and should suit the requirements of Saipan's popula-
tion. Estimated cost of the pumper is $25,000.

Garapan Fire Sub-Station

Tentatively, Garapan has been chosen as the location for a
new sub-station. The facility will enable quick response to
fires in the area which will be especially critical as the
population of the island expands over the next five to ten
years. Design, construction and equipment costs will be
approximately $230,000. Design and construction are expected
to occur in FY 1983 with equipment purchases to be made in

1984.

132

HOUSING PROGRAM

The goals and objectives of the Housing Program as identi-
fied in this Plan are:

� To provide decent, safe, and sanitary houses for the
people of Saipan and the Northern Mariana Islands;

�To develop inexpensive houses through various homestead
assistance programs;

�To develop house plans that incorporate conservative
features, allow for future expansion, and still meet
the criteria of decent, safe, sanitary and inexpensive
houses;

�To provide as many amenities and infrastructure improve-
ments to the homestead housing sites without significantly
increasing costs to the prospective residents; and

To encourage the development of total housing packages by
private developers through provision of incentives such
as release of available public lands at nominal costs.

In addition to the above goals and objectives, a policy to
provide various subsidies, those mentioned in the Socioeco-
nomic Plan or otherwise stated herein, should be pursued by
the government.

EXISTING CONDITIONS

There are approximately 2500 housing units on Saipan of which
only 1000 are capable of meeting minimum housing code stand-
ards for decent, safe, and sanitary homes. More than half of
the present housing stock must therefore be upgraded during
the plan period. In addition, socioeconomic planners have
identified a need for 100 new units each year to meet increas-
ing population growth. It is thus projected that some 2300
units will be needed during the plan period to properly house
the residents of Saipan.

133

In Table 12, projections of housing construction under
the aegis of the Mariana Islands Housing Authority or by
private developers are shown. These projections indicate
that at the most approximately 1210 units could be cons-

tructed.

Another 400 units, assuming 80% of all housing construction
occurs on Saipan, are anticipated under the Homestead Housing
Assistance Program as identified in the Socioeconomic Plan.
A total of 1610 units could therefore be constructed during
the initial seven-year plan period.

Unfortunately, the above figures indicate that replacement
of substandard homes can barely be accomplished and that
housing needs due to population increases will not be met.
Perhaps a more vigorous construction program should be pur-
sued by the government.

Homestead Housing Program

The major focus of the government housing program is the
Housing and Village Homestead Program. The Socioeconomic
Plan has set aside a total of $5.555 million for the cons-
truction of 500 housing units, together with bare essential
infrastructure (power, water, roads). Currently, it is felt
that homestead areas should be subdivided into one-quarter
acre lots (approximately 10,000 square feet) serviced by
paved roads, water and power. These lots are adequately
sized for septic tank disposal of wastewater. It should be
noted that the cost for septic tank installation was inad-
vertently left out of the housing costs as estimated in the
Socioeconomic Plan.

134

TABLE 12

PROJECTED HOUSING CONSTRUCTION FOR SAIPAN

HOUSING UNITS TOTAL # UNITS
PROGRAM (YEARLY) (PLAN PERIOD)

MIHA Federal (150 Yearly) 130* 910

Private 45 __300

Totals - 175 1210

Based on the assumption that 80% of total projection
would be constructed on,Saipan. The Socioeconomic Plan
proposes the construction of another 500 units under the
Homestead Housing Assistance Program.

Planning and survey work is currently underway for the As
Perdido Subdivision located in the old Kobler Field area.
The project, which was funded by the previous Legislature,
involves the creation of a village homestead complete with
300 + lots, commercial and government facilities. The first
phase calls for the planning, surveying, and mapping of the
basic lot and the subdivision. The second phase calls for
engineering design of the infrastructures.

Because sewerage facilities are available nearby, the lots
will eventually be sewered. However, the use of septic
tanks for disposal of sewage is initially required, hence
the lots are being minimally sized as quarter-acre lots.

HOUSE PLANS

one of the objectives of the housing program is to develop
typical houses plans for use by local residents in the de-
velopment of their homesteads. Accordingly, two schemes
have been developed and are graphically represented in
Plates 19 and 20. The major features' of the plans are
summarily outlined as follows:

135

minimum floor area should be 704 square feet (This differs
from the 550 square foot floor area as recommended in the
Socioeconomic Plan).

Each house should include two bedrooms and a bathroom
arranged to facilitate future expansion.

� The living, dining and kitchen areas should be contiguous
open spaces to provide maximum flexibility for the large
families that typify the average family unit in the NMI.

� Laundering appliances should be protected from the elements
to prevent rapid deterioration. Space can be allocated in
the kitchen area or, as indicated in Plan B, Scheme II,
by provision of a utility room between the kitchen and

bathroom.

� All fixtures requiring plumbing connections should be
placed back to back along one plumbing wall to achieve
maximum economy.

� A poured-in-place concrete slab on grade is the most eco-
nomical and practical floor material and should be stand-
ard flooring for the homes. Termite infestation of wooden
floors and dry or wet rot problems make wooden floors
undesirable.

� The bearing walls should be constructed of reinforced
concrete masonry units with a bond beam at the top and a
cement plaster finish on the outside wall. These walls
are most economical unless large tract developments are
contemplated which make tilt-up pre-cast concrete panels
competitive.

� The climatic conditions, especially given the character
and intensity 'of typhoons make it desirable that concrete
slabs be used for the roofing of the standard home. Greater
peace of mind and security during a typhoon are assured
by concrete roofs. Moreoverf given the substantial invest-
ment in a home that a person makes, protection from the

136

FUTURE
TERRACE

FUTURE
BEDROOM f
FUTURE
i FUTURE
BEDROOM BATHRM
roof line

BEDROOM perspective
SCHEME 11
BEDROOM

UNEN
CLO.
URE
F REF WM
T El DINING

KITCHENR

STO

LIVING
F El 'FU URE
iCA
ORT
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CU
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-PUTURE
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(,T)
FLOOR PLAN
AREA ( FLOOR) = 738. 00 SQ. FT. perspective
SCHEME IIA

FUTURE
TERRACE 11 FUTURE
BEDROOM

FUTURE
13EDROOM FUTURE
-BATHRM- roof line

BEDROOM I BEDROOM
A
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SCHEME I

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aw 41601ml am

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roof line

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FLOOR PLAN
AREA(FLOOR) 704.OOSQ.FT. perspective
V

SCHEME IA

devastation of typhoons is most desirable. Low-income
families are not in a position to constantly rebuild or
repair homes and if a substantially typhoon-proof home
can be provided to these people then a major burden on
future expenses can be removed.

� The interior side of the concrete masonry unit walls can
be exposed with struck joints and left unpainted without
seriously affecting the livability of the home. The home-
owner also has the flexibility to paint the walls at a

later date.

� Gypsum plaster drywall panels on metal studs are inexpensive
yet effective materials for interior partition walls.

� Hanging closets in the bedrooms should be left doorless to
realize economy in the cost of the standard home.

Replacement of unsafe homes for low income families with
standard homes such as detailed above appears to be a rea-
sonable approach for the government to pursue. These stand-
ard homes are fireproof and reasonably comfortable to live
in yet they can be constructed at minimum costs. Large
savings for the low-income person are realized through the
omission of "extra" cost items such as tile finishes over
concrete floors, paint finishes over the masonry walls, doors
on the closets and ceiling light fixtures (equally effective
lighting is achieved by simply providing outlets for plug-in
fixtures). Of course, the homeowner does have the option to
provide these "extras" but the initial cost of the home can
be reduced without affecting the safety, or health of the
family and the habitability of the home.

House Plan Cost Estimates

Table 13 outlines preliminary cost estimates for each scheme
based on the minimum finishes and features enumerated above.

141

TABLE 13

HOUSING COST ESTIMATES

Scheme 1 Sche

Concrete and Masonry

Roof Slab (2500 psi) $1,365.00 $1,54
Footings (2000 psi) 408.00 42
C.M.U. Walls 2,780.00 2,92

Carpentry

Closet, cabinets 2,388.00 2,62
Louvres 562.80 65
Doors 1,197.00 91

Electrical Outlets 770.00 84

Plumbing

Outlets 375.00 37
Water Heater 120.00 12

Forms 990.00 99

Hardware 100.00 10

Sub-Total $11,055.80 $11,49
30% Labor - 3,316.74 3,44
-$14,372.54 $14,94

These cost estimates appear to be very disproportionate to
estimates identified in the Socioeconomic Plan and also
seem to indicate that the minimally standard home may be
beyond the reach of low income families. However, these
discrepancies are justified and elaborated upon as follows:

Perhaps the greatest differences between the standard homes
recommended in the Socioeconomic Plan and in this plan is the
size of the floor area - 550 square feet as recommended in
the Socioeconomic Plan versus 704 square feet recommended
in this plan. It is the contention in this Physical Develop-
ment Plan that 550 square feet will inadequately accommodate
the average family in the NMI.

Another difference lies in the bare conveniences to be pro-
vided for the home. The Socioeconomic Plan provides no more
than a concrete structural shell, lacking such necessities as
cabinets and closets. Such "amenities", as they are treated
in the Socioeconomic Plan, can be provided without adversely
affecting monthly mortgages albeit a change in financing stra-
tegies becomes necessary. This change is detailed as follows.

The costs as outlined in Table 13, would amount to a monthly
mortgage (assuming 5% interest for 20 years and the applica-
tion of the various cost reductions for materials and labor

identified in the Socioeconomic Plan) of between $63 to $65.
However, should the duration of the loan be extended, i. e.,
from 20 years to 30 years, costs for standard homes recommend-
ed in this plan can be reduced to approximately $51 or $53 per
month.

Thus the standard home recommended in this Plan complete with
a concrete roof, closet (without doors), and cabinets is
well within the reach of low-income families yet is a sub-
stantial improvement over the Socioeconomic Plan's standard
home. The GNMI should seriously consider adopting a policy

143

to extend 30 year loans to the low-income homesteaders if
the objectives of the housing program are to be realized.

Should such a policy be undesirable, the schemes presented
in this plan can be modified to reduce costs even further
without reducing comfort. Aluminum roofing which may reduce
costs about $1500 to $2000 is an option many may find more
comfortable especially when designed so as to reflect heat
off the roofs. The roofing can also be designed to with-
stand strong winds and provide protection from typhoons.

It must be understood, though, that the margin of safety is
much smaller and thus homesteaders may suffer from feelings
of insecurity and anxiety during storms.

The construction of septic tanks that meet Public Health
standards is a major item that has not been included in Table
13. Septic tanks together with the leaching fields are esti-
mated to add an additional $1,500 to the construction cost.
The two major cost items in the installation of septic tanks
are the digging of the hole and construction materials. As
indicated in the Socioeconomic Plan, these costs can be
reduced through government subsidies. Providing concrete
blocks for the walls and pipes for the leaching fields on a
discount basis, as well as possibly doing the actual digging
are forms of subsidies which the government would find rea-
sonable to pursue.

The house schemes, whether constructed with concrete or alu-
minum roofs, should be developed into complete house plans
with electrical and plumbing design. The complete plans
should be reviewed by the Building Permit Section and given
a blanket seal of approval for all schemes.

The plans should then be made available to the indigenous and
welfare case families with the permit fees waived, provided
that a homestead lot has been made available to them.

144

SITE DEVELOPMENT AND SUBDIVISION PLAN

A site development and subdivision plan for homestead areas
is not made part of this Physical Master Plan. A meaningful
site plan can only be generated once accurate topographic
maps and geological investigations are conducted. Since the
sites themselves have not been selected (other than the As
Perdido Subdivision) or have not been surveyed, recommenda-
tions for a typical subdivision layout would be invalid at.
this time.

To illustrate the point, different criteria govern the design
of subdivisions on hillside properties from those on flat
terrain. Beyond an approximation that lots would be laid out
roughly 100 by 10.0 feet, substantive expressions cannot be
made with any certainty. Street sections and geometric con-
figurations for example would differ from one site to the

other.

In the selection of a homestead site serious consideration
must be given to the manner in which sewage disposal is to be
accomplished. The use of septic tanks and leaching fields
require larger parcels than sewered house lots. Consequently
the costs of the other infrastructure (roads, water and power)
increase on a per lot basis. On the other hand, sewer collect-
ion systems are expensive, especially if an interceptor line
is required. (See costs comparison herein). In the process
of making a trade-off evaluation, it should be noted that a
sewered subdivision allows for more units per acre than in
unsewered developments. Furthermore, in any decision process
regarding locations for homestead subdivisions, consideration
should also be given to novel and innovative methods such as
package treatment plants, lagoons, etc.

145

Construction Costs for Site Development

In spite of the lack of a typical subdivision layout, cons-
truction costs can be generalized. Careful note should be
made however that only a magnitude of costs is inferred and
that actual costs will be subject to conditions at each site.
The concerns previously raised especially with regards to
differences between hilly and flat terrain also apply to the
costs outlined below:

Roads, Residential and Rural 20-feet
travel surface with 41 to 5' stabi-
lized shoulders at $31.50 per ft. x 1001 ..... $ 3,150

Water lines 6" diameter with hydrants
and appurtenances $25 per ft x 1001 2,500

Power lines at $50,000 per mile of
unhardened lines or $9.50 per 1001 .......... 950

TOTAL FOR 100 LINEAL FEET ................... $ 6,600

Assume lots on both sides - $6,600/2 = $3,300 per lot.

If the costs of septic tanks and leaching fields are added
to the above figure, the costs of development will be
$4,860 per lot exclusive of the house pad.

For sewered lots, assuming a 75-foot frontage (for a 751 x 1001
lot), and assuming that a sewerage system is available nearby,
the following tabulation is made:

Roads, water and power
.75 x $3,300 ................................. $ 2,475

Sewer lines, 8" diameter with
appurtenances $35 x 751 ...................... 2,625

TOTAL ........................................ $ 5,100

146

As can be seen from the above calculations, the difference

between sewered and unsewered homestead lots is not excess-
ive. The advantages of sewered lots, however, are signifi-
cant - better utilization of homestead sites, better sanita-
tion, reduced incidences of pollution, etc.

Other costs associated with mass housing developments are
the costs of the pads for the housing unit itself. Again,
depending on topographic and soil conditions this may vary
considerably from site to site. The minimum pad required
should consist of at least 611 thick compacted coral base
and extended 6 feet from the exterior walls of the house.
A 24' x 301 house (Scheme II), would therefore need a pad
of 36' x 421 or 1,512 square feet. If coral costs $10 a
cubic yard, this item adds another $300 per lot.

From the above discussion it is also apparent that the
Socioeconomic Plan understated the cost of developing hous-
ing within the homestead program. Instead of constructing
500 units within the Plan period, a more accurate estimate
based on the CIP money being set aside for this program, is
350 units.

HOUSING PROJECTS BY PRIVATE ENTERPRISES

One of the objectives for housing in the Socioeconomic Plan
is to "make the maximum possible use of private enterprise
in attaining NMI housing goals". The government would do
well to encourage private developers as the use of public
funds can be minimized.

Several innovative low-cost housing projects were initiated
and successfully completed in the Territory of Guam. Two
such projects involved the use of government-owned properties.
The properties were turned over to private developers at

147

very nominal fees (amounting to $350 per lot), which were
then developed as low-cost housing areas. The developments
included complete infrastructure facilities -- streets with
sidewalks, utilities, park sites, and 3 and 4 bedroom houses.
The developer was required under contractual agreement to
develop the total package and sell the house and lot at cer-
tain pre-arranged prices.

We envision a similar situation taking place on Saipan. Once
a site and the developer are selected, and the development
concept approved, the developer proceeds on a 'turnkey' basis
to perform all the necessary tasks from survey to construction
to sales without the further encumbering of public funds. If
handled properly, this program can add 500 units to the hous-
ing market within the plan period. These homes would most
likely sell in the price range of $20,000 to $25,000. Granted,
these prices may be out of the reach of 85% of the people of
the Northern Marianas now, but it is conceivable that about
midway through the plan period, certain people would be in a
position to afford these houses.

Certain government lands have been identified as suitable
for this purpose. @rhe Capitol Hill site and a homestead
area in Marpi are potential development sites. Infrastructure
development costs at each site will be minimal since water and
power are available nearby.

There are large parcels of private properties that are also
suitable for this type of development. A more practical
program alternative may thus be arranged for exchange of
government-owned land for private properties.

It is recommended that the housing agency initiate preliminary
work to identify the most favorable site for such a develop-
ment early in the plan period. The methods of financing
should be studied, approved, and the listing of priorities

148

by income and need established. After financing and program
policies and procedures have been established, construction
may be implemented by conventional contracting methods or
on a 'turnkey' basis.

149

LOWER BASE INDUSTRIAL PARK

EXISTING CONDITIONS

Lower Base Industrial Park is located on Puntan Flores in the
vicinity of Tanapag Harbor. Presently, an area of approximately
45 acres accommodates warehouses, supply buildings, two central
repair shops and offices of the Northern Mariana Departments of
Public Works and Education. A privately-owned office and batch
plant as well as a 2.7 acre parcel for a cemetery are also
located within the park area.

Although the industrial park is served by road, power, sewer,
water and drainage facilities, the present infrastructure is
inadequate and will require improvements if expansion and
development of the park is to be achieved. The existing condi-
tions of the infrastructure are summarized as follows.

Roads

The main access road into the park area is paved. However,
the present entrance point, immediately north of Charlie
Dock, requires improvements to the existing box culvert and
realignment of the existing road section. Realignment and
reconstruction of the roadway is necessary to improve circu-
lation between the Harbor and the industrial area.

With the exception of several narrow surface roads and the
main access, there are no other paved roads through the park
area. Service and maintenance roads, in particular the roads
leading to the Education office, are only coral-surfaced.
These roads should be paved to provide convenient access for
industrial park tenants and patrons.

Problems with certain intersections have also been identified
within the park area. in anticipation of the increases in

150

industrial-related traffic, specifically trucks and other
cargo carriers, these intersections will require improvements
especially with respect to turning radii.

Water and Power

The water and power facilities into the park area appear to
be inadequate by virtue of both their size and their service
area. The existing water line is a four-inch pipe connected
to a six-inch transmission line running adjacent to the east
side of the park (West Coast Highway). Replacement of the
existing pipe as well as extensions into other areas of the
park are anticipated. The existing power lines should be
relocated to follow the major rights of ways. Extension of
power lines to provide service to presently vacant lands is
also necessary.

Wastewater

Wastewater collection lines within the park area are virtually
non-existent. The present sewer line extends only about 390
feet into the park and presently serves only the DIMI Public
Works complex. Since industrial activities, possibly includ-
ing a cannery, are expected to develop within the area, ade-
quately sized sewers will be necessary.

Drainage

The inadequacy of the existing drainage canal to convey storm
runoff from adjacent areas through and away from the industrial
park area is perhaps the most severe constraint affecting in-
dustrial park expansion.

The existing canal has been poorly maintained resulting in
heavy siltation and overgrowth in the inland portions of the
canal. Storm runoffs from a 1400 acre watershed, upland of
the industrial complex, flow into these flatlands. The block-
age in the canal causes the waters to overflow and flood land
that can be utilized for industrial development. Estimates

151

of the flows during a 50 year storm indicate that as much as
5800 cfs can be expected, a magnitude of flow that cannot be
entirely dissipated by percolation and must therefore be con-
veyed away by other means.

To further complicate matters, poor construction practices
have resulted in the impoundment of surface runoff from the
existing development. Further development can only be expected
to aggravate the situation and invite more serious flood con-
ditions if proper drainage facilities are not provided.

PLANNING FACTORS

The extent of industrial development that will be realized
is a function of the economic stimulation from outside in-
vestment and will be affected by whatever provisions may be
imposed on the lease of lands in the industrial complex. It
is anticipated that policies involving low rents, long term
leases, construction of buildings to suit manufacturing inte-
rests, as well as the provision of infrastructure at the
cost of the GNMI, will be developed to encourage foreign
investment in the NMI. Such policies, if successful, Pay
result in the complete utilization of all the areas desig-
nated for industrial activities.

Land Use

The overriding determinants of infrastructure requirements
are the proposed land uses for the area and the extent of
development that is anticipated. Plate 18 depicts the parti-
cular zones that have been designated for the expansion of
industrial activities.

A 13.2 acre light industrial zone has been designated for
accommodating activities of a light manufacturing nature
such as lumber yards and research. This zone will be located
to the east of the existing Transpac warehouse and Central
Supply warehouse.

152

EXISTING
CHARLIE DOCK
TO REMAIN PROPO
(kc PLANT
POTENTIAL SITE
OR COMMERCIA
FISHING DOCK

EXISTING ROAbD
TO BE ABANDONED

CON4FRVATION AREA

LIGHT LIGHT OPEN
INDUSTRIAL INDUSTRI STORA
IWAREHO

EXISTING RESERVOIRS
TO REMAIN

LEGEND

PUBLIC WORKS

TRANSPAC WAREHOUSE

CENTRAL REPAIR SHOP
CENTRAL SUPPLY WAREHOUSE
HEADQUARTERS SUPPLY BUILDING
EDUCATION OFFICE S WAREHOUSE

DILLINGHAM OFFICE Si BATCH PLANT

Adjacent and north of the light industrial zone, open storage
warehousing and perhaps wood processing industries are antici-
pated and a 6.4 acre parcel has been reserved for such uses.

A proposed heavy industrial zone encompassing three parcels
totaling 38.9 acres will be located north of the light indus-
trial and open storage zones. Manufacturing plants, fuel pro-
cessing, construction material batch plants, are typical acti-
vities to be accommodated in this zone.

Finally, the land use pattern in the industrial park will also
allow for the proposed location of several public facilities
including a new power plant and a new sewage treatment plant.
The power plant is to be sited west of the Public Works com-
plex near the existing seaplane ramp. Present plans for the
location and sizing of the sewage treatment plant are to pro-
vide approximately four acres of land north of the existing
trailer park.

RECOMMENDED IMPROVEMENTS

The improvements necessary for developing the industrial park
require an expansion of the present facilities. These are

enumerated as follows:

* Perhaps most importantly, the drainage system must be
improved so that land, the essential resource in this
area, is made available for development.

* The existing coral roads must be paved to provide conve-
nient access to the buildings and other areas of the park.

* Water lines of an adequate size and quantities to meet in-
dustrial demands, especially those of food packaging and
processing plants, must be constructed. The water distri-
bution system must be adequate for fire fighting capability.

155

The wastewater collection system must be extended into
the park, particularly as the industrial wastes must
be conveyed to treatment facilities before disposal.

The power system must be extended and the system hardened
so that service is improved as well as protected (to the
extent possible) from the devastating effects of tropical
storms or typhoons.

Fencing of certain areas must be provided for the security
of buildings and/or equipment.

Drainage

A drainage study for the Garapan area including the Industrial
Park should be conducted to refine estimates of design storm
flows that must be handled by the drainage facilities. The
study is estimated to cost approximately $100,000 to be joint-
ly funded from CIP funds for the Industrial Park development
and the American Memorial Park. It is anticipated that $50,000
from the Industrial Park funds will be expended for the drain-
age study.'

Actual drainage improvements must await the results of the
study. Preliminary investigations have identified, however,
the need for three drainage culverts, estimated to cost appro-
ximately $140,000.

Construction costs totaling $300,000, including the $140,000
for culverts, have been anticipated and should be funded out
of the CIP funds for the Industrial Park development.

Roads

To provide adequate access to the park approximately 8,800
feet of roads are to be paved. Two twelve-foot wide travel
lanes and stabilized eight-foot shoulders are minimally recom-
mended. The travel surfaces are to be paved with three inches
of asphaltic concrete -- a feature designed in anticipation of

156

industrial truck traffic -- and the costs will approximate
$55 per linear foot, or $490,000. These funds are to be
derived from the local CIP funds as Federal Highway Act aid
cannot be extended to access roads.

Water

The water lines in the park area consist of four-inch and
six-inch lines which presently serve only a portion of the
lands. It is anticipated that the lines, especially the
four-inch lines, will be replaced with at least six-inch
lines and that the network will be expanded to serve other
portions. Fire fighting capability will be an integral aspect
of the water improvements.

The costs of improvements are approximately $205,000. This
would include roughly 6,600 feet of eight-inch lines and
21000 feet of six-inch lines. The existing six-inch lines
may be retained provided that actual field investigations
indicate the lines are in good condition.

Sewer

A main sewer line as well as service lines totaling 8,000
feet, are required within the park area. The 8,000 feet of
line (size has not been exactly determined) will cost appro-
ximately $340,000 to construct. The extension of the sewer
line is anticipated to be part of the overall sewerage system
improvements for Saipan. A sewage treatment plant is to be
located within the Industrial Park and the main line leading
to the plant is anticipated to be routed through the park.
Thus the only sewer lines that need to be funded from the
Industrial Park funds are the service lines to the different
parcels within the park area. These are expected to cost
approximately $87,400. However, a new pump station will be
required, the cost of which will be dependent on the size of

157

the station. It should also be noted that EPA funding for
the improvements remains a possibility and such funds should
be pursued.

Power

There are plans to construct a new power plant within the
Industrial Park. Construction of the plant will require the
relocation of the main transmission lines within the park.

Aside from this relocation, the power distribution system is
to be extended and hardened. The extension is required so
@that power utilities may be provided to areas presently with-
out service. It is anticipated that service lines to indi-
vidual lots and/or businesses will be provided with under-
ground power connections. The underground connection will
provide protection from typhoon winds. The improvements to
the power system will also include the installation of street
lights. The lighting is necessary for security and nighttime
visibility within the park area.

Total costs of the power improvements have been estimated at
$100,000. Funds for these improvements will be derived from
the CIP monies for the industrial park development. It is
doubtful that federal funding will be available for any of
the power improvements.

Security Fencing

It is proposed that security fences be provided for certain
zones within the Industrial Park. Initially, the light in-
dustrial areas will be fenced with a chain link or equivalent
fence. An area of approximately 13.2 acres will be fenced in
requiring roughly 3,600 feet of fencing. Estimated cost of
the project is $53,900. The monies are to be derived solely
from the Industrial Park development funds.

158

Improvements Beyond the Short Range Plan

Further expansion of infrastructure is anticipated for the
period beyond the immediate 1978-1985 planning horizon. Ex-
pansion and extension of service roads, water, power and sewer
lines totaling approximately $425,000 will enable the develop-
ment of additional lands especially for heavy industrial ac-
tivities.

CIP funds have not been allocated beyond the year 1985, con-
sequently these improvements have not been scheduled for any
particular year. Although federal aid may be available for
certain improvements, especially the wastewater system im-
provements, it is anticipated that the extent of federal in-
volvement will be minimal. Consequently, local funds must be
assured if these improvements are to be completed.

Funding Scheme

The Industrial Park development is to be phased over the
seven-year plan period, dictated by funding constraints.
The Socioeconomic Plan has identified and earmarked
$950,000 in CIP monies for proposed improvements. The
specific yearly allocations of CIP funds identified in
that plan are shown in Table 14 as local funding.

It is anticipated that construction costs for improvements
will exceed the budgeted amounts primarily due to the need
for more extensive infrastructure requirements than were
originally anticipated.

Since the Industrial Park is essential to the economic deve-
lopment of Saipan, it may be possible to solicit funding aid
from the Economic Development Administration (EDA). Such aid
is granted on a 50% cost-sharing basis, but is subject to
the non-availability of other federal funds. For certain
improvements, specifically roads, water, and drainage, EDA

159

Table 14

SCHEDULE OF INDUSTRIAL PARK INFRASTRUCTURE IMPROVEMENTS

Fiscal Action Estimated Local* Other"
Year Cost Funding Funding

1978 Drainage study, and $ 150,000 $ 150,000 ---
Master Plan and De-
sign.***

1979 Construction 246,900 175,00 $ 71,900

1980 Construption 246,000 175,000 71,900

1981 Construction 311,000 200,000 11,000

1982 Construction 371,600 250,000 121,600

$1,326,400 $ 950,000 $ 376,400

As allocated in Socio-Economic Plan.

Includes EPA, EDA, EDLF, and lease repayment fund sources.

***To include detailed site and facilities planning as well
as design of the infrastructure.

160

funds will be required and can be justified as the appropriate
federal agencies cannot participate in the development of an
Industrial Park. Another potential source is the funding of
initial capital investments from the Economic Development
Loan Fund (EDLF) granted to GNMI by the Covenant. The loan
can then be repayed out of the lease of lands within the In-
dustrial Park.

Finally, the joint development of the Harbor and the Industrial
Park can be a potential source of additional funding. Again,
EDA could be solicited to fund the joint development, especial-
ly since both the Harbor and the Industrial Park are integrally
related to the economic development of Saipan.

161

CAPITOL HILL COMPLEX

An important resource of the NMI is the Capitol Hill complex
consisting of 100 single family residences, 15 apartment units,
and 12 administrative buildings. The complex contains over
88,000 square feet of office space.

The complex was built by the Naval Technical Training Unit
(NTTU) in the 1950's. The buildings were constructed of pre-
cast concrete,panels and, in spite of some serious leakage
problems due to the method of construction utilized, they are
in relatively good condition. Structurally, both the residen-
tial units and the office buildings remain sound. Consequently,
the useful life of the complex is expected to last beyond the
present plan period (1978 to 1985).

The disposition of the Capitol Hill facilities will be a major
consideration of the new Commonwealth government. Currently
these facilities are being used by the TTPI government as head-
quarters and residences for expatriot workers and their fami-
lies. By 1982, the executive branch of TTPI should be reloca-
ted, and the Capitol Hill complex vacated. By then a mechanism
for disposing of the facilities should be implemented. It is
highly recommended that theTTPI departure and the disposition
plan be coordinated effectively to ensure that the units are
not left vacant for long.

PLAN ALTERNATIVES

As mentioned above the Capitol Hill complex consists primarily
of residential units and office buildings. Several alternatives
are proposed for disposing of the housing units, and these are

enumerated below:

Property Exchange Program
Government Assisted Housing for Low Income People
Privately Managed Housing development
Development of High-Quality Resort

162

Each of these options will now be examined and suggestions for
implementation will be discussed below.

Property Exchange Program

The housing units and the properties to which they are affixed
can be used as property exchanges for such programs as highway
relocation, urban renewal relocation, etc. This would require
the completion of a subdivision survey and a plot-map of the
housing area. Because of the low density, each parcelled lot
will be relatively large (perhaps 1@2 acre in size) thereby
making the exchange program attractive.

Government Assisted Housing For Low Income People

A certain number of housing units can be set aside and used as
relocation housing for families that are temporarily displaced
due to community redevelopment projects or other government-
directed programs. In addition, a certain number of units can
be used for low-rent and Section 8 housing subsidies. Reloca-
tion, low-income, low-rent and Section 8 housing subsidies
should be under the purview of the Mariana Islands Housing
Authority.

Privately Managed Housing Development

One alternative to a Government assisted housing program is a
housing program managed by private enterprise. As a beginning,
the dwelling units at Capitol Hill can be turned over to a
developer chosen on the basis of some specified performance
criteria. The developer will make units available either for
direct rental or for government subsidized housing for low in-
come people (under Section 8), or for housing expatriot govern-
ment employees. Two major benefits are readily apparent from
this alternative:

The private developer will assume all financial responsibi-
lities. Thus the government will be free of the responsi-
bility for providing initial operating capital.

163

The private developer will have the flexibility to mix
the neighborhood tenancy to asure that neither a ghetto
of low-income families nor a cluster of high-paid pro-
fessionals and expatriots is created.

Development of a High-Quality Resort

Recommendations and a proposal have already been received by
the NMI government to convert the Capitol Hill complex into
a high-quality resort area. The dwelling units would pos-
sibly be sub-leased to large corporations in Japan and else-
where. Incumbent with this alternative is the lease of
additional vacant properties in order to develop a self-
contained recreational and sports facility.

Disposition of Office Buildings

Each of the above-mentioned alternatives deals primarily with
the disposition of housing units -- the office buildings are
not included in any of the options. It is recommended that
the office structures in the Capitol Hill Complex be pro-
grammed for use by the NMI government administrative agencies
that have little contact with the general public. Such depart-
ments and agencies might include the Civil Service Commission,
Public Services Commission, Public Auditor, Financial Adminis-
tration, Development Bank and others. These could be located
in the current facilities with ease and comfort. Likewise,
as an interim measure, the legislature could use the former
facilities of the Congress of Micronesia (COM) for all their
needs, until such time as the government decides on a perma-
nent location for the legislature. Although the capacity of
a structure depends largely upon its intended use, the confi-
guraton of the building and the permanent portions therein,
as a general guideline, 100 square feet of office space should
be allotted to each office worker. Thus the TTPI executive
offices can provide space for up to 700 employees, while the
COM facilities can accommodate 100 workers.

164

Outright Sale of the Property

A final possible alternative for disposing of Capitol Hill
is the outright sale of the entire complex, including land,
residential units, and office buildings. The major advan-
tage of this option is, obviously, the revenue that would
be generated from the sale. The accompanying disadvantage
is the permanent loss of a valuable asset.

Constitutional requirements would have to be satisfied
before the execution of this option. Also as a hedge
against an economic downturn which might depress property
values, the sales contract should stipulate that the pro-
perty can be resold only to the government.

RECOMMENDATIONS

It would be premature to make a decision on the ultimate
disposition for Capitol Hill. All of the above mentioned
alternatives are viable and should be considered during
the next several years. Further analysis of the advantages
and disadvantages of each should be made in the ensuing

years.

165

AGRICULTURAL FACILITIES

Agriculture will continue to be the principle occupation for a
significant number of persons and will continue to supplement
the incomes and daily diets of many Saipanese families.
Increased output and greater productivity are the goals of
development in the agricultural sector during the course of the
plan. To accelerate progress toward these goals, a broad prog-
ram of actions in plant and animal industry has been recommended
in the Socioeconomic Development Plan. Similarly, principles
and recommendations have been suggested for a number of overall
agricultural sector problem areas including Agricultural Home-
steading and future agriculture education and experimentation.

RECOMMENDED IMPROVEMENTS

Major capital projects proposed for Saipan include the Develop-
ment of Plant Pathology and Entomology Laboratory, Development of
Beef Cattle Grazing Lands, Completion of an Irrigation Reservoir
Project, Improvement of Slaughterhouse and Refrigeration Faci-
lities.

Plant Pathology and Entomology Laboratory

The Socioeconomic Development Plan recommends the construction
of a Plant Pathology and Entomology Laboratory. Seventy-five
thousand dollars is programmed for its immediate construction.
Approximately 10% should be set aside for Architectural and
Engineering Design. A facility of between 2000 and 2500 square
feet should be able to be built with the proposed funds,
assuming that infrastructure facilities are available. Loca-
tion at the existing Kagman Experiment Station is envisioned.

Irrigation Reservoir Project

Thirty-five thousand dollars has been proposed to complete con-
struction on the irrigation reservoir at Kagman. Funds are to

166

line the pond and provide for additional pumping capacity. It
is doubtful that a new well can be developed at the present
funding level as well development costs in the Marianas are
presently thirty to forty thousand dollars per well.

In subsequent years 1984 and 1985, a total of $20,000 has been
provided for pilot activities to determine the feasibility of
small, on-farm irrigation reservoirs.

Beef Cattle Grazing Lots

one of the major animal industry development projects recom-
mended in the Socioeconomic Development Plan is increasing Beef
Cattle production.

The development of a number of improved pastures on public
lands is proposed which would be subsequently leased to inter-
ested cattlemen. The pastures would be fenced in and arranged
around chutes constructed for vaccination, spraying, and other
management tasks.

On Saipan the most promising area for such usage is the North-
ern Marpi area at Bandero and I Madog. Lands suitable for
grazing exist adjacent to the old Japanese Fighter Strip. The
previous area disturbed by runways, taxiways, and aprons can be
used to locate corrals, spraying facilities, farm buildings,
and other equipment.

Presently there is no potable water system serving the Marpi
area; however, sufficient quantities of water necessary for
cattle should be available either through the development of
catchment basins or by further exploitation of ground water
resources. During World War II the U.S. military forces devel-
oped several wells with chloride content between 800 and
1000 ppm. These wells have since been abandoned, and a new
well would have to be developed. This water would be margin-
ally suitable for cattle drinking water; however, with mixing

167

of catchment water should be quite satisfactory.

The proposed Marpi Cattle Grazing Lands are indicated on
Plate 9 (See Plate in Pocket). Actual design of the pasture
blocks, location of corrals and other facilities would require
more detailed site examination than was possible during the
plan effort. Some survey work and minimal design would be
required and should be completed prior to 1982 when funds for
construction become available.

Other Improvements

During the plan period other capital improvement funds are pro-
posed for further development of the Kagman Station Facilities
(115 thousand dollars during the plan period). The renovation
of an existing building to be utilized as an Extension Office
is programmed for 35 thousand dollars in 1979. Purchase of
additional agricultural equipment and machinery is funded for
195 thousand dollars during the plan period. The purchase of a
hammer mill to further encourage the production of feed for
small livestock development is funded for 42 thousand dollars.
Renovation and expansion of the existing slaughterhouse includ-
ing expanded refrigeration facilities are funded for 50 thousand
dollars in 1983. A goat development experimentation project is
funded for 22 thousand dollars during the plan period. To
encourage export crop production, packaging and refrigeration
equipment is funded for 60 thousand dollars in 1980. Fifteen
thousand dollars is also proposed for the purchase of canning
and refrigeration facilities for demonstrations and public use
to expand the Home Economics Program.

Each of the above mentioned projects is discussed in much
greater detail in the Socioeconomic Development Plan, and they
will not be repeated herein. Table 15 summarizes and indicates
by year the proposed Agricultural Facility improvements pro-
posed for Saipan during the plan period.

168

TABLE 15

SAIPAN AGRICULTURAL DEVELOPMENT: PROJECTED CAPITAL IMPROVEMENT F
1978-1985
(Amounts in 000's)

1978 1979 1980 1981 1982 1983 1981

Development of Kagman Station
Facilities 35 20 -0- 20 -0- 20 -0-

Extension Office -0- 35 -a- -0- -0- -0- -0-

Agricultural Machinery 45 -0- 50 -0- 50 -0- 50

Plant Protection and Entomology
Laboratory 75 -0- -0- -0- -0- -0- -0-

Export Crop Development -0- -0- 60 -0- -0- -0- -0-

Beef Cattle Grazing Infrastructure -0- -0- -0- -0- 35 -0- -0-

Small Livestock Development (As Lito
Station) -0- 42 -0- 10 -0- -0- -0-

Slaughterhouse Refrigeration -0- -0- -0- -0- -0- 50 -0-

Goat Development -0- 5 -0- -0- -0- 17 -0-

Irrigation Expansion 35 -0- -0- -0- -0- -0- 10

Home Economics -0- -0- 15 -0- -0- -0- -0-

TOTAL 190 102 125 30 85 87 60

Source: Robert R. Nathan Associates, Inc.,.October 1977

AGRICULTURAL HOMESTEADING AREAS

The Constitution of the Northern Mariana Islands mandates the
continuation of the Agricultural Homestead Program. It speci-
fies that three (3) years must elapse between a homestead grant
and receipt of freehold interest, and that this freehold inter-
est may not be transferred for ten years after receipt. It is
hoped with the stipulation of the ten-year transfer requirement
that agricultural lands will not be subdivided, parcelled, or
held for speculation and that the intended purpose--that of
providing land for subsistence agriculture to needy persons--be
realized.

The Socioeconomic Development Plan recommends that, should the
Agricultural Homesteading Program be continued, then a number
of principles should be observed. Those specific principles
which bear on future land use include:

Agricultural homesteading areas should be redefined accord-
ing to the physical land use plan.

Agricultural homesteading should give priority to crop and
small livestock production. Thus, no parcel should be
larger than 5 acres (about 2 hectares) nor smaller than
2.5 acres (about 1 hectare).

Homestead areas should be surveyed and land,capability or
fertility be assessed so that proper sizing of the home-
steads can be made prior to permitting.

Public Lands available for Agricultural Homesteads are gener-
ally restricted to the Kobler-Isley, Kagman, and Marpi regions.
Because of the value that the Kagman region holds for possible
future commercial farming activities, it is suggested that
lands lying therein be zoned agriculture and be leased rather
than homesteaded. This would assure the continued utilization

170

of these lands for agriculture and allow for the possibility of
medium size commercial farming operations to occur. It will
also facilitate management practices and provide assurance that
the resource is not destroyed by poor agricultural practices.

During the initial plan period 1978 to 1985, lands in Marpi and
lands in Kobler-Isley are proposed for Agricultural Homestead-
ing. Total land area is estimated at 530 hectares, of which
approximately 270 hectares are located in the Marpi area and
260 hectares are positioned east of the Saipan International
Airport at Isley Field. These lands are depicted on Plates 7
and 9 (See Plates in Pocket). Other Publicly Owned Lands in
the Kobler-Isley and Marpi regions should be held in reserve
for future public use, either through a provision of leasing
agreements or by initially being placed in a conservation zone.

It should be mentioned that insufficient land area is available
to meet the existing number of applicants presently awaiting
Homestead Lands. Reassessment of need and qualifications of
applicants will be necessary to make certain that those persons
most deserving of lands are given first consideration.

171

PUBLIC UTILITIES

WATER

SANITARY SEWERAGE

POWER

SOLID WASTE

DRAINAGE

WATER

EXISTING CONDITIONS

The fresh ground water of Saipan is classified as either
basal, a thin lens of fresh water floating on sea water,
or high level, which saturates aquifers having relatively
impermeable bottoms lying above sea level.

The principal basal water regions of Saipan that are presently
being exploited include the Isley-Kobler field area, Dandan
immediately north of the airfield and the Rapugau district
lying west of Navy Hill.

The most important high level ground water resources is found
at Agag, lying on the east flank of Ogso Tagpochau. Other
high level sources include Donni Springs and Tanapag Spring.

Generally the daily production of water on Saipan is between
2.0 and 2.4 million gallons though it varies considerably
during the dry season when yields from the wellfields and
springs in the north decrease. Five new wells are presently
being constructed.

The existing resources, treatment plants, reservoirs, and
transmission mains for the island of Saipan depicted on
Plate 21 can be divided into five sub-systems as described
below. Table 16 provides a tabular summary of the quantity
of water pumped from each source.

South Sub System

This major system supplies water to the villages along the
west coast from Puntan Agingan to Oleai, via 18-, 16-, 12-
inch and other smaller distribution mains. Also included
in this system are the hospital, San Vicente Village, and
Saipan International Airport. Water for the system is
obtained from the Maui I shaft, wells No. 9, 10, 11 in the

173

TABLE 16
SAIPAN ISLAND WATER SYSTEM

Well Pump Reservoir Spillway
Capacity Volumes Elevation
Water Source (gpm) Reservoir (MG) (ft)
South System
Isley (basal) Maui 1 190 Isley 1.0 196
Maui 1 270 Isley 1.5
Well No. 9 70
Well No. 10 70
Well No. 11 70
Well No. 1* 55**
Well No. 2 55**
Well No. 15* 60**
Well No. 16* 60**
Well No. 17* 60**
Dandan (basal) Well No. 7 28 San Vicente 0.5 352
Well No. 20* 55**
Well No. 22* -
Hospital (basal) Well No. 3 47 Hospital 1.0 182
Hospital Tower 0.05 250
4.05
Capitol Hill
.System
Agag (high level) Well No. 31 Dry Capitol Hill 1.0 890
Well No. 45 Dry
Well No. 50 200
Well No. 75 80
Well No. 70* -
Well No. 71*
Well No. 72* -
Donni Spring 210
1.0
Navy Hill System
Rapugau (basal) Maui IV 55 Calhoun 0.5 561
Maui IV 45
Well No. 2 40
Well No. 3 50
Well No. 4 50
Donni Spring
(high level) 210
Tanapag (high level) 40
0.5
Central Coastal System
(Same sources as for
Navy Hill System above Tanapag 1.0 190
As Mahetog 0.2 225
Achugau 0.02 233
Emergency 3.0 60
Emergency 9.0 60
13.22
Kagman Stati n
Kagman (basal) Well No. 76 35 Kagman 0.05 370
0.05
18.82
Recently constructed wells
Approximate well pump capacity

174

Isley area, Dandan well No. 7, Hospital well No. 3 and nixed
water from the other systems. Several new wells have recently
been constructed in the Maui 1, Isley Field, and Dandan areas.
These are wells 1, 2, 15, 16, 17, 20, and 22. Water is stored
for distribution in Isley reservoirs 1 and 2, San Vicente,
the hospital water tower, and the hospital reservoir, and
is distributed via the transmission mains shown on Plate 21.

Capitol Hill Sub-System

The Trust Territory facilities at Capitol Hill are supplied
with water from Agag Field (wells 45, 50 and 75) and from
Donni Spring. Wells 70, 71 and 72 have recently been cons-
tructed in the Agag area. Water is pumped to the 1 MG Capitol
Hill Reservoir, the highest reservoir at elevation 890 feet,
and transmitted by gravity via 6- and 10-inch lines to the
living quarters and facilities in the headquarters area. A
portion of the water from these sources feeds the central
coastal system.

Navy Hill Sub-System

The residents of Navy Hill and the upper Garapan Heights are
supplied with water from the Maui IV well, and Rapugau To7ell
numbers 2, 3, and 4. They also receive overflow from the
Capitol Hill System. Water from Donni and Tanapag springs
can also be blended into the main source. The water is chlo-
rinated at the Maui IV treatment plant and pumped to the
Calhoon Reservoir, which has a capacity of 500,000 gallons,
situated at elevation 561 feet.

Central Coastal Sub-System

The Central Coastal system supplies water to the villages
of Oleai in the south and San Roque in the north. Water for
these villages is obtained from the same sources as those
listed under the Navy Hill system. Water is stored for dis-
tribution, however, in the reservoir located at Tanapag, which

175

basically feeds the area along the west coast from Puerto Rico
to Oleai. The water stored in the As Mahetog and Achugau
reservoirs generally serves the areas of Tanapag and San Roque.

Kagman__Sub-System

This system is a separate system serving the Kagman area
lying on the eastern shoreline. The Kagman Reservoir, loca-
ted at elevation 370 feet, has a storage capacity of 50,000
gallons and is supplied by good quality water from well No.
76.

PLANNING FACTORS

Aside from the basic objective of being able to provide ade-
quate water pressure and water quality, the proposed Saipan
water improvements must also address the elimination of wastes
due to line losses and domestic waste.

Line Losses and Excessive Consumption

Average daily water supply data for the 1970-1976 period were
statistically tabulated from Public Works production records.
Based on the present (14,000) population and a total daily
production of 2.4 million gallons, the per capita water con-
sumption is an alarmingly high 171 gallons per day.

Further statistical analysis of metered residences indicated
that, on the average, each metered home used 480 gallons of
water per day. For an average family size of 5 persons per
home, the rate of consumption is 95 gallons per person per
day.

Although conclusive consumption figures can be obtained only
when all customers are metered, it is probable that the dif-
ference between 171 gallons per capita per day (gcd) and
95 gcd, or 75 gcd, is being lost through a combination of leaks
and waste. This excessive loss contributes directly to the
interruption of water service and low water pressures.

176

LEGEND

0 RESERVOIR OR TANK

WELL 8 PUMP

WATER TREATMENT PLANT

O@ SPRING

---------- WATER LINE

PUNTAN MARPI CP BOOSTER PUMP

WATER LINE (PHASE I - 1985)

PROPOSED WELL FIELD (PHASE 1 1985)

PARABASAL EXPLORATION
O.5MG. SAN ROQUE RESERVOIR PROGRAM IN RAPUGAU co ELL
AREA (PH. E0 IMPROVE AGAG W
(PH. V FIELD (PH.l

VOLCANIC GROUND WATER A@"
EXPLORATORY PROGRAM (PH. ]I
NEW WELL FIELD (PH. ff
NEW TRANSMISSION
MAIN (PH. D flt@)
1-9

WATER DISTRIBUTION SYSTEM
(UNDER DESIGN BY A/E) REPLACE
SAN ROQUE' EXISTING
MAUI WATER MAIN (PH. I NEW 4.
TREATMENT TRANSMISSION I
EXPANSION DONNI KAGMAN WELL *76
SPRING
(PH. 11 MAIN (PH. V CACHA NE
A
H@$RAU A I P A N CH
C ING s
0.02 MG NEW WELL FIELD
ACHUGAU N RAPUGAU EX
RESERVOIR I
(PH.V AG
li 0.05 MG
REPLACE EXISTING KAGMAN NE
MAIN (PH. I) TANAPAG 02MG CAPITAL RESERVOIR
SPRINGS A@ MAHOETOG HILL
TANAPAG RESERV IR WELL%71
WELL'75
PREC. CONSTA ' ELL #31 REPLACE
L EXISTING
I _ �WLE L L -t $9,5 -41 AGAG WELL
0 -4bo.05 MG RESERVOIR MAIN
G Q WELL -72(REC. (PH. I)
NEW TANAPA CONST)
PUMP (PH. 1) 1.01 AGAG
F.= HILL RESERVOIR WELL-70 -yv
G CAP'I'TAL

TANAPAG WATER DISTRIBUTION LOWER BASE (REC. CONST)
SYSTEM (PH.1) (UNDER WELl_t4 OGSO TAGPOCHAU
DESIGN 13Y A/E) 9.0
DIST ICT PUBLIC WORKS MG 12" WELL#3 ELEV. - 1555 FT
WELL 44 SAN
WELL *2 NEW TRANSMISSION
RAPUGAL-P',@! --MAUI 4 TREATMENT PLANT LINE (PH. I
ER PUMP 1. 0 MG. TANAPAG EXPANSION (PH. 11)
BOOSTER PUMP 0.5 MGSAN VICENTE
%\ 3.0 MG 0.5 MG CALHOUN RESERVOIR RESERVOIR
% PUERTO RICO NAVY HILL -NAVY HILL SYSTEM
SUGAR KING SUBDIVISION 1 8 :11 HOSPITAL WELL@3
WATER DISTRIBUTION SYSTEM
TANAPAG
() (UN DESIGN) (PH. D
HARBOR GUALO RAI z,
:PLACE EXISTING
N MAIN (PH. I BOOSTER PUMP
%, - ----- CHALAN KIYA
NOTES
N@, co CHALi N LAULAU
ACTUAL NUMBER AND LOCATION OF PROPOSED WELLS 2..
(INDICATED BY & ) TO BE DETERMINED 13Y HYDROGEOLOGICAL
INVESTIGATtONS 8 DRILLING EXPLORATORY PROGRAMS. Qr
ELLS SHOWN ARE FOR ILLUSTRATION PURPOSES.
(7 SUSUPE
0.2 MG. GUALO RAI RESERVOIR
NORTH 8, SOUTH GARAPAN WATER 5 WATER SYSTEM CHALAN OLEA
DISTRI UTION SYSTEM (PR V KIYA WATER SYSTiM (PH 1)
(UNDER DESIGN BY A/E (UNDER DESIGN BY A/E)__@@q
CDj
SAN JOSE - OLEAI NEW 0.5 MG
WATER DISTRIBUTION RESERVOIRS
SYSTEM (PH. 1) (PH. 1)
REPLACE EXIST
P H I L f P P I N E SEA MAIN (PH. I

0 1 2 3km

Provision of Adequate Pressure

Although present average consumption is 171 gcd, a successful
water management program should significantly reduce this
figure. Saipan's standard of living will rise and eventually
approach that of other middle class areas. Consequently, an
average water consumption rate of 110 gcd was used to determine
the water requirements for Saipan. The 110 gcd is below that
of established middle class communities on Oahu, which in
FY 1976 was about 160 gcd. This difference is attributed to
the use of domestic water for lawn irrigation. Maximum daily
consumption is taken as 1.5 times average daily consumption,
and peak hour consumption is taken as 2.0 times maximum daily
consumption, or 3.0 times average daily consumption. Based on
these per capita consumption figures, water requirements have
been established for the present planning horizon and beyond.
They are given in Table 17. Table 18 details expected 1985
consumption by general village areas.

Although some areas suffer from chronic low pressure, analysis
indicates that reservoir location is generally adequate to
provide acceptable minimum line pressures. These isolated
problem areas will be corrected as leaks are discovered and
repaired, and waste is reduced.

Reservoir capacity should meet the following conditions:

� Equalize fluctuations in demand rate during the day.

� Provide for highest fire flow plus maximum day consump-
tion rate for the duration of fire flow.

� Provide for one day's maximum consumption.

In Saipan the governing criterion is that to provide storage
for one day at maximum consumption. Required 1985 storage
capacities for various parts of the system are shown on
Table 19. Additional reservoir capacity is also needed to
provide the capability to transfer water between regions.

179

TABLE 17

SAIPAN WATER REQUIREMENT, 1985 AND ULTIMATE

Plan Ave. Day Max. Day Peak Flow
Horizon Population Supply (mgd) Supply (mgd) (mgd)

1985 24,000 2.64 3.96 7.92

Industrial, Commer-
cial, Resort, Others 0.78 1.17 2.34

3.42 5.13 10.26

Ultimate 50,000 5.50 8.15 16.50

180

TABLE 18

1985 WATER REQUIREMENTS BY GENERAL VILLAGE AREAS

1985 Ave. Day Max. Day Peak Flow
Village Area Population (mgd) (mgd) (mgd)

Central Coastal and Navy Hill System
San Roque 885 0.097 0.146 0.292
Tanapag 1,621 0.178 0.268 0.534
Garapan 4,000 0.440 0.660 1.320
Chalan Laulau 960 0.106 0.158 0.317
Industrial, Commercial,
Hospital, Resort, Other -- 0.540 0.810 1.620
7,466 1.361 2.042 4.083

South System
San Jose-Oleai 2,775 0.305 0.458 0.916
Susupe 2,260 0.249 0.373 0.746
Chalan Kanoa 5,270 0.580 0.870 1.739
San Antonio 3,100 0.341 0.511 1.023
Hospital Area 150 0.017 0.025 0.050
Industrial, Commercial,
Resort, Other -- 0.240 0.360 0.720
13,555 1.731 2.597 5.194

Capitol Hill System
Capitol Hill 600 0.066 0.099 0.198
600 0.066 0.099 0.198

Other Systems
San Vicente 902 0.099 0.149 0.298
Other Agricultural
Areas -1,477 0.162 0.243 0.487
2,379 0.261 0.392 0.785

24,,000 3.42 5.13 10.26

181

TABLE 19

Estimated Reservoir Requirements

Additional
1985 Max. Day Existing Capacity to
Water System (mgd) Capacities be Provided

Central Coastal
and Navy Hill system 2.04 1.72 mg. (excl. 0.5 mg for
emergency re- San Roque Area
servoirs)

South System 2.60 2.05 mg (excl. 1.0 for San
Isley open Antonio Area
reservoirs)

Capitol Hill 0.10 1.00 mg None

San Vicente 0.15 0.50 mg None

TABLE 20

Fire Requirements

Fire Hydrant
Flow Duration Spacing

1. Farm Lots 1,000 gpm 1/2 hour 700 feet

2. Single Family and duplex 1,000 gpm 1 hour 350 feet
buildings

3. PUD town houses and low 1,500 gpm 1 hour 250 feet
rise apartments

4. Schools, neighborhood
businesses, small shopping
centers, hotels, and high
rise apartments 2,000 gpm 2 hours 250 feet

5. Light. industry, downtown
business, and large shop-
ping centers 4,000 gpm 3 hours 250 feet

182

Provision of Adequate Fire Flow Protection

National fire protection standards affect water system design
because system adequacy affects fire insurability and asso-
ciated insurance rates. The National Board of Fire Under-
writers Guide, "Grading Cities and Towns of the United States
with Reference to Their Fire Defenses and Physical Conditions",
is the standard of comparison. Although adoption of the
standards in this reference would result in a system favorable
for insurance purposes, the costs of required improvements
would be prohibitively high. The cost effectiveness of pro-
tective measures must be considered. A more realistic set
of standards, similar to those used in Honolulu, is given in
Table 20 (See preceding page) for residential, business, and
commercial establishments.

Improve Water Quality

The majority of the domestic water on Saipan is presently
obtained from deepwells in the Isley and Rapugau regions
that exhibit high chloride, hardness, and total solids con-
centration. To treat the raw water, the Isley and Maui IV water
softening treatment plants have mixing and settling tanks and
two gravity filters to reduce the' high hardness and total
solids concentration.

The two 10.5-foot diameter gravity filters are Lo Prest Type
N units with a capacity to treat 260 gpm of water per filter.
The clarifier is a 20-foot diameter, circular (Lo Prest Type C)
unit with a center lime feed compartment. The mixing-and
settling tanks are not being used because of the high cost of
chemicals, and the filters are not being used since they fre-
quently overflow. It has been reported that backwashing has
to be done every two days. The only treatment performed at
this time is the chlorination of the water. The saltiness
of the water cannot be controlled by using the treatment

183

facilities; only reduced pumping of the existing wells will
decrease salinity. To compensate for high salinity, most
households in the southern areas have resorted to the use
of cisterns to privately collect rainwater for drinking and
cooking.

In order to replenish water storage reservoirs, the Public
Works personnel several months per year, close valves supply-
ing water to villages from 1 pm to 4 pm, and 8 pm to 5 am.
Although this practice tends to conserve water, it allows air
to enter the distribution system, resulting in increased in-
ternal rusting of metal pipes. When valves are opened the
water scours the pipe interior picking up some of the rust,
causing the brownish-red color reported in the South System.
Further system improvements are needed to increase reservoir
replenishment rates, eliminate the inconvenient service
interruptions, and prevent water discoloration.

RECOMMENDED IMPROVEMENTS

The present program of water improvements remains basically
sound and will improve the quantity and quality of the water
supply. Although the program will require continuous updat-
ing, the following are recommendations for the 1978-1985
plan period. Presently, consultants are preparing a Water
Facilities Fact Plan which will prioritize and schedule
improvements through the year 1997.

The improvements that are planned for the entire water system
will attempt to strike a balance between resource development
projects, improvements to the distribution network as have
been recommended in previous studies, and other improvements
as determined necessary in the Water Facilities Fact Plan.

184

Major physical facility improvements are being recommended in
the following areas:

� Completing the upgrading of the village distribution systems.

�Continuation of resource exploration and development.

�Completing the metering system.

�other improvements include upgrading and extending trans-
mission lines, improving reservoirs, installing new booster
pumps, and conducting hydraulic analyses.

The recommended improvements are further discussed below and
are detailed with estimated costs in Table 21. Two non-
facility oriented improvements but of equal importance are the
need for an education program concerning the need for water
conservation and a study of the overall manpower requirements
of the Water Supply Division.

Distribution System

Patch-up improvements have been initiated in Chalan Kanoa,
Oleai, Susupe, and San Antonio. However, major improvements
are yet to be implemented. Areas identified for improvements
include:

North and South Garapan
San Roque
Tanapag
Sugar King Subdivisions I & 11
Gualo Rai Reservoir and distribution system
Chalan Kiya

Afetna

Fina Sisu

Chalan Kanoa

Metering

Individual metering of water service to all consumers appears
to be effective, and the program should be completed rapidly
so that a reasonable estimate of line leakage can be made.

185

Unless leaks are repaired and excessive water use curtailed,
the quantity of water produced will be insufficient and water
quality will not improve, even with new water sources. A leak-
age surveillance program of the existing distribution and indi-
vidual lateral systems should be initiated. Also, a source out-
put metering program should be instituted to obtain direct
data on volume of water produced from all available sources.

Resource Development

The following specifi c improvements are recommended for
resource development:

Improve the Tanapag Springs and Agag well fields.

Develop more basal water resources further inland
and explore for parabasal water at Rapugau fields.

Start a drilling exploration program for high level
and parabasal water in limestone. The program should
not be tied to immediate plans for production. How-
ever, advanced design of the water well fields together
with the distribution system improvements and land ac-
quisition must be made early in the plan period to take
advantage of Economic Development Administration Public

Works funds.

Extend a transmission line to Chacha Kagman from San
Vicente and develop additional well fields therein.

Education Program
An education program should be implemented immediately to
emphasize the scarcity of water and the cause of poor water
quality now and in the future. Much water is lost through
leaking faucets, hose and pipe connections, and indiscriminate
consumption practices. Public education should emphasize the
importance of water conservation, the metering programs, and
citizen's responsibility for proper maintenance of his home

186

Water Treatment

Water treatment plants at Isley and Maui IV have not been ope-
rated in the past or fully utilized by Public works because
of a lack of trained personnel and the cost of chemicals neces-
sary for plant operation. This has not been a serious concern
in the past since most potable water is derived from indivi-
dual home catchment basins. As the water quality improves
an adequate supply realized, and less reliance is based on
catchment basins, it may be necessary to re-evaluate the pre-
sent policy of non-treatment.

Hydraulic Analyses

Since fire protection is poor in many areas, hydraulic analyses
and field pressure tests should be conducted. Additional mains
and/or increased storage by construction of new reservoirs and
installation of more fire hydrants as required should be imple-
mented to provide adequate fire flow to all villages.

Manpower

The Public Works Department should review and upgrade the man-
power and operating budget as soon as possible because it is
understaffed and unable to keep up with the present demands
for water. The present Public Works staff will not be able
to handle any future expansion and acceleration of its acti-
vities due to population growth and expansion of urban areas.

Summary of_Costs

The total estimated cost of Phase I improvements exceeds the
$4.4 million programmed in the socioeconomic study guidelines.
However, some of these improvements may be eligible for fund-
ing from additional Federal programs. Furthermore, some
improvements are presently being completed with prior year
funds. other improvements may be found unnecessary after
further system experience is gained. Because the program
cannot be stabilized at this timer the unbalanced funding
situation indicated on Table 21 has been left unadjusted.

187

TABLE 21

SAIPAN WATER SYSTEM PROPOSED IMPROVEMENTS 1978-1985*

1. Complete water metering program 9. Eight-inQh transmission main
of all homes and commercial between Chacha well field,
businesses Lump Sum $ 50,000 Agag wells, and San Vicente
area

2. Complete planned improvements
to the water distribution
system as recommended in pre- 10. Transmission main, reservoir,
and distribution system for
vious studies and/or under San Antonio Newtown
design
11. Transmission main and distri-
a. North and South Garapan bution system for new areas
distribution system Lump Sum $800,000 in Garapan
b. San Roque distribution
system Lump Sum $200,000 12. Transmission main,booster pump
c. Tanapag distribution and reservoir for San Roque
system Lump Sum $400,000
d. Sugar King Subdivision 1 13. Transmission main and distri-
& II distribution System Lump Sum $200,000 bution system for new areas in
e. Gualo Rai Reservoir and San Jose-Oleai-Susupe areas
distribution system Lump Sum $500,000
f. Chalan Kiya distribution 14. Additional distribution sys-
system Lump Sum $100,000
g. Afetna distribution system Lump Sum $300,000 tem, improvements and replace-
FJ h. Fina-Sisu and Chalan Kanoa ment of existing pipes for
00 distribution system Lump Sum $100,000 existing villages (San Antonio
00 i. Tanapag pump Lump Sum $ 40,000 Chalan Kanoa, Susupe, Oleai,
Garapan, Tanapag, San Roque,
j. Airport Apron Water and San Vicente)
Catchment system Lump Sum $100,000
15. Transmission main and distri-
3. Initiate inventory and data base bution system for new areas
program that will allow system- in Tanapag
atic analysis of behavior of the
water sources over time 16. Replace and upgrade existing
transmission mains that are
4. Additional wells at Isley Field old or in deteriorated con-
Kobler Field area 2 wells $ 80,000 dition.
@$40,000
5. New well field at Rapugau 3 wells $120,000 a. Transmission main along
@$40,000 primary road in vicinity
of San Vicente
6. Conduct exploratory drilling b. Transmission main from
program between Agag and hospital well #3 to Isley
San Vicente Lump Sum $200,000 field-Kobler field area
7. Improve Agag well field Lump Sum $100,000 c. Transmission main in Chalan
Kanoa
8. New well field in Chacha 4 wells $160,000
district @$40,000

Proposed improvements are not yet prioritized.

SANITARY SEWERAGE

Planning for sewerage facilities plays a very dominant role
during this development cycle. Notwithstanding the dearth
of precise, comprehensive, and historic data, there is ample
evidence of the urgency surrounding investment in these faci-
lities.

Areas presently operating on cesspools and septic tanks are
experiencing some indicators of impending failure. Pumping
and cleaning of private cesspools in San Vicente must be
accomplished every two to three months. The leaching field
at the Tanapag Elementary Schools operates improperly, re-
quiring periodic pumping of the septic tank. Private sys-
tems cannot for long be located in impermeable clay soil
nor in low lying, poorly drained areas. Areas in San
Vicente and in the low areas surrounding Lake Susupe and
the swamp have already or will develop serious problems.

Density of dwelling units also affect the suitability of
private systems. Saipan will experience a growth rate of
up to 15 percent annually over this planning period, and
as housing densities increase so too will the incidence of
system failures. Generally, those areas planned to accom-
modate high densities must have adequate public sewerage.
Other areas cannot be developed beyond their ability
to support private septic systems.

EXISTING CONDITIONS

Parts of the Saipan sewerage systems still in use today were
constructed during the early stages of occupation by U.S.
military forces. It is not uncommon to find asbestos cement,
concrete, cast iron or steel sewers; materials that were
available at that time. In the early 1970's, major improve-

189

ments were made to the system with the addition of the Agingan
and Garapan wastewater treatment plants which included related
transmission and collection systems.

The public sewerage system for Saipan can be generally sepa-
rated into two distinct systems: 1) the southern coastal sys-
tem and 2) the central highlands and coastal system. Although
seventy to eighty percent of the population could be serviced
by the existing system it is estimated that only ten (10)
percent of the population presently utilize the system.

Southern Coastal System

The Southern system extends from Puntan Agingan on the south
to Oleai on the north, as illustrated on Plate 22. This sys-
tem services the villages of San Antonio, Chalan Kanoa, Susupe,
and Oleai. Public and private facilities also served include
the hospital, Royal Taga Hotel, the various schools, government
offices and business organizations along the highway. The
waste flows generated by these facilities are conveyed by a
series of gravity interceptor sewers and sewage lift stations
to the Agingan treatment plant. Following "primary" treatment,
the effluent is discharged into the ocean through a 12 inch

surface outfall sewer.

The Agingan wastewater treatment plant has a capacity of 1.0
mgd. A Dorr Clarigester treatment unit provides both primary
sedimentation of raw sewage and anaerobic digestion of set-
tled solids.

The effluent from the clarigester is then chlorinated prior to
final disposal through the ocean outfall. Chlorination is
accomplished by an automatic V-notch 400 ppd module unit. The
anaerobically digested sludge from the clarigester is dewatered
by gravity filtration utilizing a trailer-mounted mobile "DCG"

190

BAMA FAMUNCHULUVAH

PUNTAN SABANETA

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oque
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-Outfall Line
0 EXISTING LIFT STATION
0 EXISTING TREATMENT PLANT TANAPAG
HARBOR

EXISTING SEWER LINE

PROPOSED SEWER LINE

PROPOSED LIFT STATION Garapan
UNTAN MUCHOT
@p
PROPOSED TREATMENT PLANT

ISLETA MANAGAMA

7- 0 2 3km

unit (Dual Cell Gravity sludge dewatering unit, Permutit Co.
Model 100). Dewatered solids are disposed of at a sanitary
landfill.

Central Highlands and Coastal System (Northern SVstem)

This system extends from North Garapan to South Tanapag, in-
cluding the tributary areas of Navy and Capitol Hill IkSee
Plate 22). This system services the hotels, Garapan Element-
ary School, a portion of the homes and businesses in Northern
Garapan, the facilities and residences at Navy and Capitol
Hill, and the facilities at the Public Works area. The sewage
collected by this system is conveyed by a system of intercep-
tor sewers and sewage pump stations to the Garapan wastewater
treatment plant, treated and discharged into the ocean.

The Garapan wastewater treatment provides primary treatment
for flows generated in the central highland and coastal system.
Its present design capacity is 0.3 mgd with provisions to ex-
pand to 0.6 mgd, if the present site can accommodate the in-
crease. The Garapan plant employs a Dorr Clarigester treatment
unit for both primary sedimentation of raw sewage and for diges-
tion of settled solids, similar to the Agingan plant. The pri-
mary effluent from the clarigester is chlorinated and discharged
via an 850 foot long 12" diameter outfall at a depth of 53 feet.
The trailer mounted mobile "DCG" unit assigned to the Agingan
plant is available for dewatering of digested sludge at the
Garapan plant.,

Individual Septic Tanks/Cesspools

These types of individual disposal units are universally used
and are adequate for sparsely developed areas if soil conditions
are favorable. As population densities increase, however, the
failure rates of septic tanks and cesspools invariably increase.
Health hazards to the community increase, as does the threat of
damage to receiving waters.

193

More specifically, the villages of Chalan Kanoa and Susupe
are located in the low area surrounding Lake 5usupe and the
swamp. Heavy rains cause ces$-pools and privies to flood giving
rise to potential health problems. There are also several pro-
blem areas which require frequent pumping of cesspools and sep-
tic tanks.

The existing leaching field at the Tanapag Elementary School
does not operate properly. The septic tank leading to the
field requires pumping nearly every other day by Public Works
personnel. Cesspools at San Vicente require pumping once every
two to three months due to the impermeable clay soil. Extension
of the sewerage system to these areas should remedy these pro-
blems and relieve Public Works personnel for more productive work.

PLANNING FACTORS

Population projections for Saipan indicate an increase of bet-
ween 22,000 to 25,000 persons within the next seven years.
Moreover, the projected growth of the tourist industry will
place further stresses on the island's sewerage facilities.
It is essential to continue improvement of the sewerage system
to accommodate this growth.

Land Use Pattern

The proposed land use pattern provides input on future land
use and the growth of existing urban areas. Generally, those
areas having a dwelling unit density of less than two per acre
are not scheduled for public sewerage facilities. It is essen-
tial to the success of the planned system that positive action
be taken to insure these density limits are not exceeded.

Planning Objectives

The plan for sewer improvements. should be directed to meet the
following objectives:

194

* Eliminate or minimize health risks and nuisance problems.

*Eliminate or prevent adverse effects of sewage discharges
on the quality of receiving waters.

*Implement the best practicable control technology mandated
by Public Law.

*Support the continuation, expansion, and creation of urban
land uses compatible with the existing urban pattern.

Projected Flows

The following criteria were used to develop flows:

Unit Flow Coefficients:
Flow per residence 80 gpdc
Flow per hotel unit 160 gal/hotel unit/day
Commercial, industrial area = 3000 gpad
Infiltration = 1000 gpad

Maximum Design Sewage Flow Rate: Ave. design sewage flow rate
x max. factor; where max. factor is based on Babbitt's formula.

Wet Weather Infiltration: 1500 gpad

Peak Flow Rate: max. design sewage flows + wet weather infil-

trates.

Regional versus Sub-Regional Syste

In the development of the plan, consideration was given both
a regional system consisting of one treatment and disposal
facility serving both the Southern and Central Highland .
areas, and a sub-regional system, retaining separate treatment
and disposal facilities for each area. The following are high-
lights in the evaluation of these two alternatives.

The existing facilities were constructed independently. To
convert to a regional system would require rerouting of
portions of the existing interceptor sewer system and en-
largement of mains to accommodate larger flows. Both exist-
ing outfalls would have to be abandoned and replaced with a
larger one adjacent to the new treatment facility.

195

� Greater initial capital costs are required to establish a
single large treatment and disposal facility.

� Construction and/or modifications to each sub-regional system
can proceed independently, minimizing down time, public in-
convenience, and time for implementation.

The Southern Garapan and Chalan Laulau areas are planned for
"rural residential". Development of this intensity is suf-
ficiently sparse for adequate septic system operation. Con-
sequently, there is no immediate requirement within the 1985
planning horizon to extend either the northern or southern
systems into this area.

RECOMMENDED IMPROVEMENTS

The plan recommends a decentralized system. There should be
a separate treatment and disposal facility for both the South-
ern area and the Central Highland (Northern) area for the
reasons mentioned above.

Southern Coastal System

The design sewage flow projection is 2.0 mgd, based on appli-
cation of the preceeding flow parameters to the proposed
development pattern.

The proposed sewerage master plan, shown on Plate 22, recom-
mends the following major improvements.:

1. Expand the existing 1.0 primary treatment facility to
2.0 mgd, with possible upgrading to secondary treatment.

2. A high level interceptor sewer line, and a sewage pump
station constructed along the "Texas" road or Texas road
bypass is required. The existing system of pump stations
and transmission mains along Beach Road does not have the
capacity to handle the projected flows. While peak flows
of approximately 6.0 mgd is anticipated, the present system
can handle only 1.2 mgd.

3. An interceptor sewer system to convey waste flows generated
from San Antonio/New town area.

196

Central Highlands - Coastal (Northern) System

The anticipated flow generated in this area is 2.0 mgd, appro-
ximately one-half being attributable to the 250 acre industrial
area in Tanapag.

Approximately 9000 residents will be serviced by this system.
other users will include the resorts in the San Roque and lower
Garapan area, and the commercial area in Garapan.

Besides expansion of service mains and collectors, the plan
recommends eventual abandonment of the existing treatment faci-
lity and outfall located in the Rapugau area. The land avail-
able at the existing plant site cannot accommodate a facility
for treatment of 2.0 mgd, the projected sewage load for the
northern area. Moreover, the existing site is located near
an area where complaints of odors emanating from the plant are
constantly reported.

Finally, the outfall discharges within the barrier reef into
Tanapag Harbor. Because of long detention time within the
embankment the discharge may eventually cause drastic changes
to the ecosystem, a phenomenon reported in several instances
worldwide. These changes will eventually reduce the recreational
and aesthetic value of the nearshore water in Tanapag Harbor
to a serious degree.

The plan recommends construction of a new 2.0 mgd secondary
treatment facility at one of two alternate locations. The
Tanapag industrial area location would require a new 20 inch
outfall extending 3500 feet offshore to a discharge depth of
30-40 feet. This site shown in Plate 22, is on government-
owned land and is reasonably close to the center of wastewater
generation.

An alternate site for the proposed treatment facility has
been identified in the North Tanapag/South San Roque area (See
Plate 22). This land is privately owned, however, and must
either be purchased or exchanged for government land.

197

This site has advantages of lower cost for the land portion
of the outfall due to shorter length, and is located on the
"fringe" areas of development, which would minimize the poten-
tial odor problems.

The general location for the outfall site is based on two fac-
tors. This location requires a minimum length for the ocean
portion of the outfall and furthermore, the predominant current
and winds which are generally parallel to the shoreline in
this area, minimize the risk of transporting effluent into the

reef area.

Besides the new treatment plant and outfall, the plan provides
for the following elements:

1. Construct a system of interceptor sewers and pump stations
to convey sewage from San Roque to Tanapag.

2. Construct a system of interceptor sewers and pump stations
to serve the southern portion of Garapan and the unsewered
areas, and pump to new station.

3. Construct a system of interceptor sewers and pump station
from Rapugau to the proposed treatment plant.

Capital Costs

Table 22 presents the distribution of the $14 million required
for complete implementation of the sewerage plan. Sixty per-
cent of the cost is for the northern area; the remaining forty
percent is for the southern area.

Detailed costs are indicated in Table 23 and a recommended
prioritized capital improvements schedule has been developed.
Recommendations are based on quantitative cost benefit evalua-
tions, the relationship of each item to the operation of the
entire system, and the expected rate of growth in affected

areas.

198

Table 22

COST SUMMARY OF PROPOSED TREATMENT

FACILITIES FOR SAIPAN BY AREAS

Cost in $1000

Northern Area

San Roque 870

Tanapag (North) 40,780

Tanapag (South) 1,800

Garapan 1,000

$ 81,450

South Area

San Jose - Oleai 430

Susupe 420

Chalan-Kanoa 1,270

San Antonio, including new town 3,590

5,710

Total $14,160

199

Table 23

Cost of Saipan Sewage System* ($1000)

Transmission Pump Collection Treatr
Area Main Station System Faci

1. San Roque 440 270 160 -

2. Tanapag (Northern) 410 210 210 2,2

3. Tanapag (Southern) 1,300 500 --- --

4. Garapan 500 --- 500

C" 5. San Jose-Oleai 240 140 50
CD
6. Susupe 210 140 170

7. Chalan Kanoa 690 200 380 --
8. San Antonio 1,300 620 170 1,5(

*NOTE: Lateral are not included in the cost summary.

POWER

EXISTING CONDITIONS

Saipan's power system presently suffers many shortcomings
which have to be corrected. The primary power source, "Imped-
ance" suffers frequent and prolonged outages and is scheduled
to be dry-docked by 1979. The distributio n system suffers
from poor maintenance. Frequent outages are caused by light-
ning, failing transformers, and storms. Wires are corroded,
hardware is old and difficult to replace, and poles are
rotting.

Electrical energy conservation practices are not in effect.
The present metering and billing procedures run contrary to
reasonable conservation efforts.

Growth of electrical demand is anticipated to be significant.
The annual growth rate will probably approach 9-1/2 percent,
but due to the relatively small size of Saipan's system, growth
will occur in quantum jumps. At best, therefore, growth will
be dramatic and must be analyzed with respect to development
project.

Management/Operation

The Public Works Division of the Northern Mariana Islands (NMI)
government now operates the entire electric power system.
The Saipan Utilities Agency has been established with this
division to operate the electric power, water and sanitation
systems in Saipan. Current peak usage is about 11.2 MW
(11,200,000 watts or 11,200 KW). During FY 1976, about 50
million KWH were generated by the system.

Power Generation

Table 24 summarizes the present generation capability of the
power system Plate 23 shows the location of these facilities.
The army power barge "Impedance" is the primary power plant.

201

TABLE 24

SAIPAN POWER GENERATION CAPABILITY

CENTRAL POWER PLANT

Power barge "Impedance" 30 MW
(Commissioned in 1943)

STAND-BY POWER PLANT

a) 2-Nordberb units, 2.2MW ea. = 4.4 MW*
b) 2-White Superior units, 1.5MW ea = 3.0 MW*
c) 1-White Superior unit, 1.5MW (1971) 1.5 MW* ++

MISCELLANEOUS POWER EQUIPMENT

a) 1-Caterpillar 0.6 MW
b) 2-GE units, 0.6 MW ea. 1.2 MW
c) 11 Caterpillar, 0.8 MW
(being overhauled) .8 MW

d) 3-GE units, 0.6 MW ea.
(being overhauled) 1.8 MW

NOTE: Indicates units considered suitable for retention as
stand-by power, capacity of 8.9 MW. Units to be phased-
out by 1990.

++ Unit is to be relocated to the stand-by power plant.

202

BAHIA FANUNCHULUYAN

PUNTAN SABANETA

12,

4 IN,

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p
PROPOSED
PO "L T
PRIMARY LINE NO 1
(AMPED BARGE
@2@@ PRIMARY LINE NO 2
TANAPAG
PRIMARY LINE NO 3 HARBOR

4 PRIMARY LINE NO 4
ara
@3&4@ PRIMARY LINE NO 3 &4
@PUNTAN MUCHOT
ISLETA MANAGAHAV

7. 0 1 2 3km

Commissioned in 1943, she has 2 boilers capable of delivering
30 MW. The barge is on loan at no cost to the NMI, but must
be kept in good repair and is examined yearly by a team of
army engineers.

At best, the "Impedance" is inefficient. Since its installation
in November, 1975, the "Impedance" has had unscheduled outages
for repair approximately once per month. its age and present
condition indicate a high maintenance cost in the near future,
and it is due for drydocking in 1979.

A standby power plant consisting of 2 Nordberg and 2 White
Superior generators is capable of supplying 7.4 MW. The plant
in which these diesel units are located was designed so that
it could be expanded by 2 more small diesels, adding up to a
total capacity of 10.0 MW. A third White Superior 1.5 MW unit
is scheduled to be relocated to the plant. Miscellaneous equip-
ment include five (5) GE .6 MW units and two Caterpillar units
totalling 4.4 MW.

Onlythe Nordberg and White Superior Units should be considered
for operation as stand-by units. After about 1990 the Standby
Plant and the miscellaneous equipment should be retired as
they are too inefficient to operate.

Power Distribution

The distribution system on Saipan consists of about 72 miles
of primary line (13.8 KV) and approximately 96 miles of second-
ary lines. Plate 23 shows the location of the 13.8 KV circuits.
These circuits consist of various size conductors. Circuits 3
and 4 which serve the area south of the power plant carry 80%
of the system load.

The condition of the lines ranges from fair to poor, with
numerous unscheduled outages caused by lightning, burned out

205

transformers and storms. Maintenance is less than optimal,
with repair and replacement of corroded wires, hardware, and
rotten poles occurring less frequently than reasonable main-
tenance schedules call for.

PLANNING FACTORS

Load Growth

The seven percent annual load growth projection given in the
basic power consultant report was re-examined with respect
to Saipan's unique growth prospects. The constant percentage
basis of projection can be applied to relatively large systems
having a historical data base. Saipan, in contrast, is a
relatively small area facing dramatic quantum growth from
international interests such as the economy of Japan and U. S.
military plans. It should be noted that load increases on a
system the size of Saipan's 500 KW capacity, requires special
consideration. Therefore, projections of anticipated load
growth based on anticipated socioeconomic factors were
developed. These are summarized in Table 25.

The new Nauru office building is projected to add a minimum
of 500 KW to the system peak load. Design calls for two
500 KVA transformers. This alone represents a system load
increase of 4.5 percent. The Grand Hotel will add a similar
load. These two projects alone will increase peak load by
about 9% in 1978.

Table 26 synthesizes the gains and losses through the planning
period. These data indicate an average annual growth of 9.5%
in Saipan's power requirements. In 1985 the peak demand is
expected to reach 22.98 MW. If the 9.5% growth is projected,
the system will peak at 30 MW in 1989 and 40 MW in 1992.
Moreover, major social and economic changes would affect
these projections.

206

TABLE 25

SAIPAN POWER DEMAND 1977 - 1985

FOR. PROBABLE MAJOR CONSTRUCTION

EST LOAD KVA

1978 Nauru Building Cunder construction) 500
White Sands Hotel (60 rooms completed) 120
Grand Hotel (under construction) 400
150 New Single Family Homes 300
Hook Up of Sugar King I (Approximately 160 homes) 320
10 New Elementary Classrooms 10
TOTAL 1650

1979 New Junior High School (25 Classrooms) 100
Public Health Center - 10,000 sq.ft. 50
160 New Single-Family Homes 320
TOTAL 470

1980 New Hospital 90 to 100 bed (Phase out of old) 500
lst 15 room correctional facility (max. security) 25
5 New Classrooms Elementary 5
170 New Single Family Homes 340
Far East Broadcasting 750
TOTAL 1620

1981 New Commercial Center - Garapan size, of Town House 750
180 New Single Family Homes 360
TOTAL 1110

1982 Two hundred (.200) room hotel 400
190 New Single Family Homes 380
New Fire Station (Garapan) 50
TOTAL 830

1983 Canning Processing Plant (Maximum 8,000,000)
Lime Plant - (size unknown) Estimate 1500
200 New Homes (20% Apts and/or Condominiums) 400
TOTAL 1900

1984 New Harbor Facilities - Lighting
600 ft, berth - breakbulk warehouse 600
210 New Homes 420
TOTAL 1020

1985 220 New Homes (.20% Apts & Condominiums) 440
Misc. a) Probably more commercial area
b) Potential for another 100 room hotel
c) increase in light industrial Estimate 7,00
TOTAL 1140

207

Alternate Generator Configuration

The load projections indicate that the initial plant requires
a basic delivery capacity of at least 20 MW (Megawatts).
Table 26 shows a 1985 demand of nearly 23 MW, which if pro-
jected at the 9.5 percent growth rate would necessitate a deli-
very capacity of 30 MW in 1989, and 40 MW in 1992. The statis-
tical risks of projecting linear increases for small areas
still remains, however, and it is emphasized that deviations
from these projections can be dramatic. System flexibility
is therefore an important consideration.

In developing alternate plant configurations, back-up power and
stand-by power must be considered. Besides generating the
required projected load, the plant should have back-up gene-
rators which permit periodic maintenance to be performed on
individual units. In other words, an additional unit is needed
to allow "rotation" for maintenance and inspection. Stand-by
cdpability is also required for unscheduled failures of on-
line units. As a minimum, another unit is required for
stand-by. The existing two Nordberg units and three White
Superior units can provide the stand-by requirements until
about 1989/1990. At this time they will have to be replaced.

Table 27 details alternate plant configurations based on 7.5
megawatt CMW) and 10.0 MW units. Each configuration uses
multiples of an identical unit, which is considered necessary
for operation and maintenance efficiency.

Both alternative configurations are currently under study by
Office of Transition Studies and Planning and Public Works
personnel. During the initial years of the planning cycle,
there appears to be a relative advantage in using multiples of
7.5 MW units. However, towards the end of the Short Range
planning horizon (1985) and beyond, the relative advantage

208

TABLE 26

SAIPAN SYSTEM GROWTH THROUGH 1985

EXIST'G GROSS EST. NEW OTHER STA. TOTAL
PLANT GEN. CONST. INCR.(l%) LOSS(NEW) INCR.
YEAR MW mw MW 8% MW MW

1977 11.2

1978 11.2 1.65 0.11 0.13 1.89

1979 13.09 0.47 0.13 0.04 .0.64

1980 13.73 1.62 0.14 0.13 1.88

1981 15.61 1.12 0,15 0.09 1.36

1982 16.97 0,83 0.17 0.07 1,07

1983 18.04 1.90 0.18 0,15 2.23

1984 20.27 1.00 0.20 0.08 1.28

1985 21.55 1.14 0.21 0.08 1.43

AVERAGE INCREASE

TABLE 27

ALTERNATE PLANT REQUIREMENTS

7.5 MW UNITS

1979 1985 1989 1992

Demand 14MW 23MW 30MW 40MW

Basic Units 2 3 4 6
(15MW) (23MW)

Back Up 1 1 1 1
(-7.5MW) (7.5MW)

Total 3 4 5 7
2215MW 30MW 37.5MW. 52.5MW

Standby 8.9mw 8.9mw 1 @ 7.5MW 1 @ 7.5MW
Plus Misc. Plus Misc.
standby standby
equipment equipment

10.0 MR UNITS

1979 1985 1989 1992

Demand 14MW 23MW 3014W 40MW

Basic Units 2 3 3 4
(20MW) (30MW) (30MW) (40MW)

Back Up Standby plant Standby 1
plant
8.9mwl 8.9 MWI UOMW) UOMW)

Total 3 4 4 5
28.9MW- 38.9MW 40MW 50MW

Standby Misc. Misc.
standby standby
equipment equipment

210

tends to support multiples of 10.0 MW units. Adoption of
one of the alternatives will depend on further analyses of
relative costs, system performance, and possibly on fuel
type.

Fuel Type

Presently two types of fuel are being considered for utiliza-
tion in the proposed power plant, diesel fuel no. 2 and no. 6
residual fuel. In essence either fuel can be utilized; how-
ever, no. 6 residual fuel does have problems which should be
considered. The use of residual (black oil) fuel will result
in higher maintenance costs, a more complicated plant to
operate even with experienced operators, a need for duplicate
(DF-2 and residual) fuel systems and the necessity to start-
up, shut down and operate at lower loads on DF-2.

In conclusion, despite lower cost the utilization of No. 6
residual fuel should be carefully weighed prior to commit-
tment to its usage.

The current U. S. effort to curtail the use of oil and gas
as fuel sources and substitute coal, nuclear power, sun, wind
or thermal power will, in practice, have little effect in
the Northern Mariana Islands. While the costs of power will
undoubtedly increase, there presently is no practical alter-
native to the use of oil in the generation of power in the
Northern Mariana Islands. For the small population involved,
coal/steam plants are uneconomical and other sources such as
wind, sun, nuclear and thermal power are still in the develop-
ment stage and will lack practical application during the plan
period (1985). However, they should not be discounted as
potential future sources of Northern Mariana Islands energy

needs.

211

Power Plant Location

Three alternate locations are being considered in the vicinity
of the Industrial Park (Lower Base). The preferred location
appears to be the Outer Seaplane Ramp area and sufficient
lands should be set aside for the plant location at that site.
Impact assessments of the potential sites are presently being
made and will be available shortly.

Hardening

Recent experience has emphasized the need to "harden" the
power system against tropical storms and typhoons. Both on
Saipan and neighboring Guam, the distribution system is the
first to fail. Therefore, as lines are extended or replaced,
an evaluation of the cost effectiveness of various hardening
techniques will be made. The eventual burial of the line on
Beach Road from Micro Beach to Wallace Road, for example, has
already been identified. This action will markedly reduce
the recovery time of restorative operations to customers
throughout the entire area.

Conservation

Forced dependence on oil fuel will mean drastic increases in
Saipan's energy bill throughout the planning horizon and
beyond. Although technological breakthroughs may come any
time, it is almost certain that energy will remain an ever
precious commodity. Therefore, an electrical energy conserva-
tion plan similar to the type in the planning stage in the
U. S. must be implemented on Saipan. The plan would establish
a power budget for various types of clients with a heavy
penalty for any power consumed beyond the established budget.
As stated, there are no existing conservation programs in use
today although some states and territories have completed
initial studies with federal grants. Guam has completed
the first phase of its study and will proceed into the second
phase, implementation of the plan, shortly.

212

CAPITAL IMPROVEMENT RECOMMENDATIONS

The short-range recommendations for the development of the
Saipan Power Generation and Power Distribution Systems
include:

Construct a diesel power generation plant from alternate
plant configurations consisting of units between
7.5 MW and 10.0 MW. Initial plant should be at least
20 MW.

Develop a program for the systematic replacement of
primary and secondary lines. Redundancy and hardening
of essential primary lines should be considered.

The "Impedance" and all standby units should be phased
out by 1979 and 1990, respectively.

The proposed system shown in Plate 23 will serve island growth
to the 40 MW level, matching the proposed power plant's ulti-
mate capacity. All four circuits will have a 10 MW capacity.
Circuits are expected to run along major roads. Major devel-
oped areas and facilities such as the airport, new hospital,
industrial area, resort area, and commercial area will have a
back-up circuit. One circuit from the new power plant paral-
leling West Coast Highway should be hardened immediately to
provide assurance of rapid renewal of power service and long-
lived capital investments in the generation and distribution
subsystems.

The estimated cost for the system is $15,580,000, which
includes $12,000,000 for power generation and $3,580,000 for
power distribution. Detailed costs are depicted in Table 28.

Beyond the Planning Horizon

About 5 years before the 40 M.W system peak is reached, a study
should be made to determine new requirements for a power plant
and the distribution subsystems.

213

When the system's load exceeds 40 M.W, a major change must be
made to the distribution systems. If the southern half of the
island exceeds 20 VTW, then a higher voltage transmission line
must be built and a substation located as near as possible to
the load center.

214

TABLE 28

POWER GENERATION AND DISTRIBUTION
Estimated Costs 1978-1985

POWER GENERATION

OPTION 1 OPTION 2

1978: Three (3) 7.5 MW units 1978: Two (2) 10 MW units
Installed cost $400 per KW Installed cost $400 per KW
Total $9,000,000 Total $8,000,000

1985: One (1) 7.5 MW unit 1985: One (1) 10 MW unit
Installed cost $400 per KW Installed cost $400 per KW
Total $3,000,000 Total $4,000,000

TOTAL COST $12,000,000 $12,000,000

POWER DISTRIBUTION

NEW LINE CONSTRUCTION
Primary line 10 miles
@ $50,000/mile 10 x 50,000 $500,000
Secondary line 20 miles
@ $25,000/mile 20 x 25,000 500,000
Commercial & Residential Hook Ups
Estimated 1400 during plan
period @ $200 1400 x 200 -280,000 $1,280,000

REPLACEMENT OF EXISTING LINE
Estimated replacement needs in
short term are 33% of exist-
ing Primary and Secondary
lines
Primary line 22 miles
@ $50,000/mile 22 x 50,000 $1,100,000
Secondary line 30 miles
@ $25,000/mile 30 x 25,000 750,000
Primary line - Hardening
Approx. 7.5 miles
@ $60,000/mile 7.5 x 60,000 450,000 $2,300,000

POWER DISTRIBUTION COST $3,580,000

215

SOLID WASTE

Planning for solid waste management must be cognizant of
the unique problems of the Mariana Islands in general, and of
course the unique characteristics of Saipan's size and popu-
lation, transportation concerns, and types and quantities of
waste which are anticipated.

Proper storage, collection and disposal of solid waste and
refuse will have a tremendous impact on a developing eco-
nomy, especially-an economy that has close ties to America,
and one that hopes to capitalize on the Japanese tourism
potential.

EXISTING CONDITIONS

The present solid waste collection and disposal system is
inadequate. Although the reasons for this situation are
complex, improper collection and disposal practices basically
stem from failure to realize that health hazards and blight
to the scenic qualities of the island are consequences of
improper waste disposal.

The official disposal sites are inadequate and operated im-
properly. Unofficial dumpsites randomly located along road-
ways are havens for vermin, and make the spread of diseases
a threat to everyone. They scar the beautiful face of
Saipan and present an undesirable image to visitors. The
practice of burning solid waste is rampant. This practice
creates air pollution in addition to being an outright nuisance.

Composition of Waste

Extensive data on solid waste generation in the Northern
Mariana Islands - Saipan included - are not available. How-
ever, data from Guam is available. The proximity to Guam, the

216

similarities of weather conditions, customs, and habits of the
people and the applicability of such biological factors as
the fly cycle, allow for assumptions of waste composition
and generation in the Northern Marianas and particularly
Saipan, based on data from the neighboring U. S. territory.

Table 29 outlines the probable composition of residential waste
in Saipan. Average residential waste contains about 7% food
waste, 10% garden waste, and 16% paper products, or a total
of 33% decomposible materials. Saipan may generate a slightly
lower percentage of food waste than that indicated, due to
the more prevalent practice of using this waste for chicken
and pig feed. This discrepancy may be expected to decrease
as Saipan continues development.

With respect to commercial and industrial wastes, it is neces-
sary to identify waste components of a hazardous nature which
may require special handling, storage, and disposal procedures.
Presently, the types of hazardous waste found and generated in
the islands include:

PCB Compound (or transformer fluid)

Chlorine

Ordinance left over from World War II (these "wastes"
are hazardous because of their explosive nature
and/or their chemical poisoning potential)

Pathological wastes

Crank case oil from service stations

Petro-chemical wastes from asphalt plants

A study presently undertaken by the Hawaii Department of Health
for EPA Region 9 may provide additional information on hazard-
ous waste problems of the Marianas.

217

TABLE 2 9

COMPOSITION OF RESIDENTIAL SOLID WASTE IN SAIPAN
(Based on Guam-generated data)

Component Average % of Component Estimated lbs. of
by Weight Component per
Capita per Day

Food Waste 7.7 .30

Garden Waste 10.7 .62

Paper Products 16.0 .62

Plastic, rubber, leather 2.2 .07

Textiles 5.1 .20

Wood 1.9 .08

Metals 35.3 1.37

Glass and ceramics 13.6 .53

Rocks, Dirt, Ashes, etc. 7.5 .25

TOTAL 100.0% 3.9 lbs.

Source: Saipan Solid Waste Disposal
Office of the Distric-t
Planner, Gerald Maier and
Scott Russell, June, 1975.

218

Storage and Collection Practices

There is no organized refuse collection service for the majority
of residences. The Department of Public Works presently col-
lects trash at government housing areas and for public insti-
tutions such as schools, the hospital, and government offices.

Wastes for the majority of residences are stored in assorted
containers, generally in 55 gallon containers which are used
for both storage and burning of trash. Trash is generally
loaded into the back of pick-up trucks and is carried unco-
vered to the dump site in Puerto Rico or to numerous unofficial
open dumps scattered about the island.

Due to this practice, streets are littered with beverage
bottles and cans, paper wastes, and offending leftover foods
and other perishable material. It is a foregone conclusion
that the major islands should have regularly scheduled col-
lection. Whether this effort should be handled by the govern-
ment or by private enterprise is another matter that requires
a policy decision. The ideal system would provide twice a
week residence-by-residence collection.

Disposal Practices

The existing official dump site at Puerto Rico ha s been iden-
tified as environmentally unsuitable by the U. S. Army Corps
of Engineers and may eventually be condemned by the U. S.
Environmental Protection Agency. Moreover, the numerous un-
official dumpsites along less traveled roads present equal, if
not greater, causes for alarm. Virtually no manageable pest
control program can be established if random littering and
dumping continues. This practice conveys to all an attitude
of disregard for Saipan's beauty. and her people, and is
quickly picked up by visitors.

219

PLANNING FACTORS

The intent and purposes of the Solid Waste Management element
of the Saipan Master Plan is to make recommendations on
operations, storage practices, collection and disposal methods
and procedures.

The contract under which the plan is being prepared does not
allow for an in-depth study of Solid Waste Management. Con-
sequently, such aspects as environmental assessment, volume
and composition, organization of the Solid Waste Management
Division at the Department of Public Works and alternate
waste processing and disposal methods cannot be addressed in
this report. A separate study to be funded through an EPA
Technical Study Grant would allow for greater in-depth ana-
lysis of the overall solid waste management practices.

However, several factors essential for more comprehensive
analysis have been identified. These factors have led to
the development of several immediate considerations which
will have to carry Saipan through the study period.

Waste Generation

In 1970 national per capita refuse production was 4.2 pounds
per day. For Guam this figure is 3.9 lbs/day. On an
annual basis this amounts to 1480 pounds per capita. Based
on Guam's figures, Table 30 was derived reflecting 10-year
waste generation figures for Saipan. Commercial waste is
estimated at 3300 tons for 1978. This total includes the
tourist oriented and support industries and is based on
Guam's ratio for the year 1970. The table also incorporates
an increase of 0.05 lbs per person per day. The commercially
generated waste is increased at the rate of 5% per year.

220

TABLE 3 0

PROJECTED QUANTITY OF REFUSE GENERATED

Saipan, Northern Marianas

YEAR POPULATION QUANTITY PER YEAR TOTAL
RESIDENTIAL COMMERCIAL GENERATION

1978 14,041 9,990 Tons 21260 Tons 12,,190 Tons
1191880 C.Y. 26,400 c.y. 146,280 c.y.

1979 141939 10,771 Tons 2,310 Tons 13,081 Tons
1291252 C.Y. 27r720 C.y. 1560,972 c.Y.

1980 150,904 111610 Tons 21426 Tons 14,036 Tons
1391320 C.Y. 29,106 C.Y. 168,426 C.Y.

1981 161666 121316 Tons 2F547 Tons 14,863 Tons
147,792 C.Y. 30,561 c.y. 178,353 C.Y.

1982 17.524 13j'108 Tons 2,674 Tons 15,782 Tons
1571296 C.Y. 32,089 C.Y. 189,385 c.Y.

1983 18-360 131908 Tons 2,808 Tons 16,716 Tons
166,896 C.Y. 33?696 c.Y. 200,592 c.Y.

1984 19,341 14,825 Tons 2,948 Tons 17,773 Tons
177JI900 C.Y. 351376 c.Y. 213,276 c.y.

1985 20JI306 150,757 Tons 3.096 Tons 181843 Tons
1881964 C.Y. 37,152 c.y. 226,116 c.y.

1986 21,374 16,778 Tons 3,250 Tons 20,028 Tons
2011,336 C.Y. 39,000 c.Y. 240,336 c.y.

1987 221225 17,647 Tons 3F413 Tons 21,060 Tons
211,764 C.Y. 40,956 c.Y. 252,720 C.Y.

TOTALS 136,700 Tons 27F672 Tons 164P372 Tons
1,640,400 c.y. 332,056 C.Y. 1,972,456 C.Y.

1. Based on 3.9 lbs/day/capita with an increase of .05 lbs/day/
capita every year

221

Collection Alternatives

Two methods of collection have been proposed: house-to-house
pick-up, and central pick-up from a limited number of transfer
stations in each village. Both alternatives must be carefully
considered before a permanent program can be selected. How-
ever, today's sanitation and nuisance problems are so acute
as to require immediate remedial action. In anticipation of
this requirement an immediate scheme for weekly house-to-
house pick-up has been developed.

Table 31 reflects the 1978 population projection and dwelling
unit count for each village. Seventy to eighty per cent
of Saipan's residences are located in villages and other urban
areas such as Gualo Rai. The population and the amount of
waste they generate is of minor importance in the formulation
of the equipment list and schedule of pick-ups. The number
of residential units is the governing factor.

Disposal Alternatives

Previous solid waste studies for Saipan have reviewed waste
disposal alternatives, and the exercise will not be repeated
here. Based on previous findings it is assumed that the sani-
tary landfill approach with possible future reduction of
waste volume through reprocessing waste and using returnable
cans and/or bottles is the most viable approach for Saipan.

The first matter to be addressed is the identification of
a proper landfill site for many environmental reasons, but
chiefly due to scenic blight, water pollution, and health
hazards. The present Garapan site should be closed, covered
up and landscaped as soon as possible. Uncontrolled dumping
at unofficial sites must also be restricted. Furthermore,
the practice of locating dumps in swamps or lowlands because

222

TABLE 31

POPULATION AND DWELLING UNIT DISTRIBUTION

1978*

COMMUNITIES POPULATION DWELLING UNITS

San Roque 729 118

Tanapag 839 137

North Garapan 1,900 348

South Garapan 11442 310

Capitol Hill 568 115

Navy Hill 200 33

San Vicente 846 187

San Jose 11510 287

Susupe 923 186

Chalan Kanoa 30,582 667

San Antonio 11402 312

TOTALS 14,041 21700

Population Projection assumes an average density of 5.2
persons/DU overall.

223

the practice was believed to reclaim "unuseable" land should
be stopped immediately. Scientific evidence has clearly de-
monstrated that swamps and marshes act as water purification
areas. Swamp plants remove pollutants from water and convert
them to useable plant food substances. One such area in
Saipan, Lake Susupe, is also the habitat of the Marianas
Mallard, a rare duck found only in the Marianas and listed
worldwide as an endangered species.

Plate 24 shows three possible landfill sites. The first site
in As Lito is an abandoned quarry just north of Saipan Inter-
national Airport. This site offers the advantage of good
accessibility (4.6 miles from Central Chalan Kanoa and 6.0
miles from Central Garapan), adequate space and soils, and
non-conflicting nearby uses.

However, a serious potential problem with a sanitary land-
fill at this site is the possible pollution of nearby well-
fields. Conclusive evidence that the leachate would not flow

southwesterly toward the Dandan and Kobler wellfields must
be established before this site could be selected for landfill

use.

A second site, which may be marginal in size, is located in
the Kagman area on the road to Laulau Beach. The advantages
of this site are adequate soil cover, and a lesser threat
to the groundwater since there are no wellfields nearby.
However, further investigations of groundwater activity should
also be carried out here. The disadvantage of this site is
accessibility. The site is about 8 miles from central
Chalan Kanoa and 7 miles from central Garapan.

The third site is an old quarry about two miles northeast of
San Roque Village. This site is larger than the Kagman site
but probably smaller than the As Lito site. It should pose

224

SAN ROQUE

KAGIVIAN

AIRPORT

SAIPAN ISLAND
PHYSICAL DEVELOPMENT MASTER PLAN
N SOLID WASTE
potential land fill sites

January 1978
0 1 2 3km [@4]Pacific Planning and Design Consultants
Saipan -Commonwealth at the Northern Mariana Islands

225

no groundwater pollution problem (again this must be verified
by a qualified hydrologist) and adequate cover material
should be available. It could be kept from conflicting with
nearby uses by providing buffer zones. A major accessibility
problem exists here, however. The distance from the bulk of
Saipan's population may be excessive since the site is 11.5
miles from Chalan Kanoa.

Storage Practices

Wastes are stored in assorted types of containers. The use
of anything bigger or heavier than a 32-gallon container,
such as the commonly used 55-gallons drums, creates serious
problems for the implementation of an efficient refuse col-
lection system.

Use of the 55-gallon drums promotes the burning of wastes.
Burning, in addition to creating pollution and general
nuisance, makes the container weigh heavier because of
the accumulation of ashes. To complicate matters, these
drums are usually not covered, allowing rain water to collect
along with thelashes. Rusting of the container is thus
accelerated. The excessive weight, bulkiness, and deterioration
make these drum containers impractical for use in a sound,
efficient and sanitary refuse storage and collection program.

Resource Recovery

Although conservation techniques may not seem important now,
as the volume of waste increases the ability to properly
dispose of it will decrease. A complete waste reprocessing
center which separates out glass and metal for recycling and
converts combustible material to compost or energy is pro-
bably not feasible at this time. However, careful observa-
tion of the feasibility study of a waste reprocessing plant
in Guam should be made to determine its potential application

226

in the Northern Marianas. The time frame necessary to study
and start a reprocessing plant is such that a new landfill
site will be needed anyway.

Since a significant portion of the litter on Saipan and the
solid waste at the dumps are cans and bottles, the possibility
of a law banning throw-away cans and bottles for drinking
beverages should be considered. Successful implementation
would reduce littering, reduce projected costs of maintaining
public historic and scenic sites, beaches, and road rights-
of-ways. Also, it would have a long term effect of increas-
ing the life expectancy of the landfill site.

PLAN RECOMMENDATIONS

It has been recommended to the Office of Transition Studies
and Planning that, pending final designation by the Common-
wealth Government of the Northern Marianas, Saipan should
constitute a separate management district for handling
normal residential waste and bulky wastes. Furthermore, a
regional boundary including all the islands of the Northern
Marianas should be established for the disposal of hazardous
wastes, with Saipan as the central processing and disposal
point.

The collection and disposal of hazardous wastes which can
become quite a delicate matter, should be centralized as
much as possible and be managed at the regional district
level. The fewer the number of sites for disposing of these
wastes that exist, the lesser the hazard to the general public.
Further, the collection and handling of these wastes will
require specialized training and/or equipment, thereby elimi-
nating the possibilities that normal solid waste collection
crews can handle them safely.

227

Although additional study is required to address adequately
a comprehensive solid waste management program, the urgency
of today's problems demand immediate remedial action. There-
fore, the plan makes several recommendations regarding storage,
collection and disposal which will directly alleviate the most
glaring health and nuisance problems for the immediate future.
These actions will permit time for thorough analysis of
Saipan's needs for the balance of the 1985 planning horizon
and beyond. Specific recommendations for collection, storage,
and disposal are listed below.

Collection and Storage

1. Immediately initiate a once-a-week collection system
for all residential areas with implementation of twice-
a-week service by the end of the planning period.

2. Collection of commercial waste should be handled by
private haulers or by government pick-up at an estab-
lished fee.

3. Weekly collection should be scheduled on a four day week
with the fifth day reserved for pick-up of oversized
materials or for the completion of uncollected areas.

4. Legislation prohibiting burning in private containers
should be passed and rigidly enforced.

5. Regulations prohibiting the use of 55-gallons drums as
refuse containers should be established. Only 32-gallon
galvanized iron steel containers with tight covers, or
plastic bags should be used.

6. All commercial accounts, institutional accounts, and
apartment buildings of more than 4 units shall.be required
to furnish containers of a design and capacity designated
by the Division of Solid Waste Management.

7. Trash containers should be placed at all parks, picnic
areas, beaches, public buildings, and other public areas.

228

8. Residents should be encouraged to place their refuse
containers in readily accessible locations so as to faci-
litate collection.

9. oversized objects such as tree cuttings and yard trimming
should be bundled up and tied.

Disposal

1. Close any and all open-burning dumps.

2. Initiate immediately the development of a sanitary
landfill at either the As Lito site or Kagman site.

3. A D-7 tractor equipped with a special blade can be used
for spreading and compacting waste and the cover material.

4. Establish regulations requiring contractors to use the
site for disposal of construction waste and excess exca-
vated materials, as well as demolition debris.

5. Start a water quality monitoring program in the nearby
well-fields.

6. A fence may be necessary to set the boundary limits of
the landfill site, and also to control the use of the
area by private haulers.

The use of packer trucks should be required, whether the col-
lection is conducted by the government or through the private
sector. In urban areas, the accepted standard is 2 minutes
per pick-up. Twenty-yard packer trucks are the optimal units
for the islands as they are reasonably sized and can negotiate
the local streets and roads. They should be equipped with
the mechanism for loading two and three yard containers. An
analysis of equipment requirements for collection are iden-
tified in Table 32.

If collection is to be done by government personnel, it should
be standard practice to dismiss the collectors when the day's

229

TABLE 32

EQUIPMENT REQUIREMENT

Total number of dwelling units (DU's) in 1978 = 2,700
Number of DU's to be picked up weekly on a
four-day week basis = 2,700 divide by 4 = 675 DU's

Assume 6 hours of actual pick up time,
total number of minutes available for
pick up, 6 x 60 = 360 min.

Using 2 minutes per residence for pick up
number pick-ups available for each equipment,
360 x 2 = 180 DU's

Number of equipment needed 685 divide by 180 = 3.7 say 4 Packers
with 2 in reserve
for standby and
periodic mainte-
nance

With four crews and equipment working
the number of possible pick-ups = 4 x 180 720/day

230

work schedule is accomplished. This provides incentives to
work faster and more efficiently. This interim service
would require six-packer trucks and four crews.

Costs of Improvements

Estimated capital costs for the implementation of an effective
solid waste management program is $605,000 during the seven-
year plan period and includes:

� Feasibility study of Solid Waste Disposal System
and development of a Solid Waste Management
Program Strategy for the Northern Mariana Islands.
Estimated cost $60,000

� Preliminary feasibility studies on alternate
landfill sites and development costs for the
selected landfill.
Estimated cost ..................................... $80,000

� Purchase of six (6) Packer trucks to supplement
existing equipment. Two (2) to be purchased in
FY 1978 and the remainder to be purchased between
1980 and 1983.
Estimated cost, at $55,000 or ...................... $220,000

Purchase of a D-7 Bulldozer or comparable
equipment with sanitary landfill blade.
Estimated cost ..................................... $135,000

Operational and maintenance costs have not been identified
herein; however, they will be identified as part of the Solid
Waste Management strategy to be conducted in 1978.

231

DRAINAGE

EXISTING CONDITIONS & PLANNING FACTORS

Saipan's drainage problems predominantly occur on the west-
ern half of the island where rugged, steep limestone forma-
tions abruptly give way to flatlands, typically near sea

level.

Natural drainage ways which carry storm runoff from the
slopes are well-defined. However, on the coastal plain
where substantial development has taken place, drainage
channels have been systematically obliterated, filled,
dammed or otherwise altered giving rise to serious pond-
ing and flooding problems. The post-World War II cons-
truction of the island's highway network was accomplished
without adequate drainage crossings. Residential and com-
mercial areas were carelessly developed, often without
storm water collection and disposal facilities. Existing
culverts are predominantly 55-gallon drums welded end to
end or corrugated metal pipes - the majority of which are
grossly undersized and badly deteriorated.

The areas which have been identified as having acute, chro-
nic drainage problems are depicted on Plate 25. The following
paragraphs briefly describe and define the drainage conditions
and problems which prevail in each specific area. It should
be noted that GNMI has not established storm drainage planning
design criteria and that runoff estimates presented in this
report are based on Guam Drainage Standards. Because of the
Island's similarity of geology and hydrology,, it is felt
that use of Guam Drainage Standards will give a reasonable
picture of the magnitude and extent of Saipan's drainage
problems.

232

BAHIA FANUNCHULUVAN-

PUNTAN SABANETA

----------- /,@,

A Z,

Roque 4

Tana ag 4V
00

j@,

,I!- j"f V; y-
SAN ROQUE

-ISLAND ROAD AT TANAPAG
CROSS
...... ....

LOWER BASE INDUSTRIAL COMPLEX
TANAPAG "V.
HARBOR
D GARAPAN/ PUNTAN MUCHOT

E WALLACE HIGHWAY AT OLEAI

F CHALAN KANOA LAKE SUSUPE
@PUNTAN MUCHOT
ISLFTA MANAGAHAV

z 0 1 2 3km

San Roque Village

San Roque Village, Saipan's northernmost community, is situa-
ted directly in the path of a major natural drainage way. The
tributary watershed is 150 acres. Twenty-year design storms
are predicted to generate runoff volumes of approximately 720
cubic feet per second (cfs) from this extensive watershed area.
During storms, runoff is collected and discharged at the south-
eastern corner of the village into a masonry-lined rectangular
open channel about four feet wide and six feet deep. The chan-
nel constructed by the San Roque Municipal Public Works Depart-
ment, extends a distance of 1000 feet to Cross Island Road.
There, flows are intercepted and conveyed northward along the
highway by a series of shallow earth-lined ditches and small
culverts which? for the most part, are not functional. The
existing drainage facilities are not only hazardous, but are
also hopelessly inadequate to cope with runoff from storms of
even light to moderate intensity. Consequently, San Roque has
compiled a depressing history of acute flooding problems. The
situation will gradually worsen with further expansion of the
village.

Cross-Island Road at Tanapag

The construction of Cross-Island road at Tanapag was accom-
plished without adequately sized drainage crossings. This
condition has reached flood hazard proportions at an area
approximately 3000 linear feet north of the GNMI Public Works
Complex where flow from a rugged 77-acre watershed overwhelm
a series of greatly undersized pipe culverts. The existing
crossing is made up of one 12-inch and two 18-inch diameter
concrete pipe culverts with only one of those currently opera-
tive. Flows across the roadway during intense storms often
reach depths of two feet and are characterized by strong velo-
cities and heavy sediment and debris loading. The twenty-year
design storm runoff volume is estimated to be about 375 cfs.

235

Lower Base Industrial Complex at Tanapag

Runoff from a 1400-acre watershed flows into the government
owned industrial complex located at the base of Sabanan As
Kina. The existing developed area, containing an assortment
of both public and private industrial facilities, makes up
only a fourth of the 240-acre government property reserved
for industrial uses and designated for intensive development
in the plan period. The area is characterized by extremely
flat terrain and is underlain by sandy soils of good permea-
bility. Runoff from upland areas, including Capitol Hill,
Sabanan As Kina and As Rapugau, predicted to reach a volume
of 5800 cfs during 50-year storms, converge on the flatlands,
causing extensive ponding and severe flooding. Flood waters
are partially dissipated through percolation and evaporation.
However, runoff is primarily disposed of by direct outflow
to the sea via a major drainage way known locally as Sadog
Tase which loops through the complex, emerging at the bay at
two separate points. The interfaces between this drainage
canal and the sea appear to be well developed tidal estuaries
with abundant mangrove vegetation. The inland portion of the
canal is heavily silted and overgrown with swampgrass and
tangan-tangan and does not function effectively in disposing
of storm water. This poor drainage predicament has been aggra-
vated by a long history of improper grading practices which
have created large ponding areas. Without the construction
of an adequate infrastructure, expansion and further develop-
ment of the industrial complex will surely invite disastrous
flood conditions.

Garapan/Puntan Muchot

Garapan and the Puntan Muchot peninsula lie at the base of As
Rapugau and As Falipe hills, between West Coast highway and
the shoreline. Tributary areas total over 400 acres and are
of limestone formation with average slopes between 10% and 20%.
The watershed is largely undeveloped terrain and well-forested,
with the exception of the Navy Hill area that has been deve-
loped over the yeara for residential and commercial uses.

236

Runoff from upland areas, predicted to reach 1500 cfs during
a 30-year design storm, is conveyed under West Coast High-
way at several points and discharged into Garapan. Prior
to World War II, shallow-open drainage channels extending
to the sea provided a means for collection and disposal of
storms water from both Garapan and Puntan Muchot. However,
post World War II residential and commercial developments
have obliterated most of these channels, causing storm flows
to flood the flatlands. Eventually and over a considerable
period of time, flood waters dissipate through percolation
and evaporation. However, because Garapan and Puntan Muchot
are practically at sea-level, effective percolation is severe-
ly constrained by the water table and tidal fluctuation.

Garapan appears to be headed for intense residential and commer-
cial development. Expansion of residential and commercial faci-
lities in Garapan, as well as further resort development at
Puntan Muchot can be expected to aggravate present flooding
conditions. An integrated flood control program to be imple-
mented concurrent with further development is necessary if
more serious flooding problems are to be avoided.

Wallace Highway at Oleai

Wallace Highway, a primary road with a long history of drainage
problems, bisects an extensive alluvial coastal terrace extend-
ing south from the base of Sabanan Gallego to Lake Susupe. The
highway, constructed on only two feet of fill, receives runoff
from an extensive 1782 acre watershed that includes portions of
Sabanan Gallego, Laderan Tagpochau, and Fina Sisu to the north
and east of Oleai. It is estimated that runoff volumes for a
50-year design storm will exceed 4000 cfs. It is no wonder then
that Wallace Highway floods during light to moderate rainfall.
Stormwater, however, does not pond on Wallace Highway, but flows
towards Lake Susupe, a natural drainage basin which serves as the
ultimate disposal point for a vast 2800 acre tributary area.

237

Chalan Kanoa/Lake Susupe

Chalan Kanoa, the most densely populated community in Saipan,
sits at the periphery of an extensive wetlands area extending
south from Chalan Kiya to the norther-n boundary of San Antonio
municipality. At the drainage centroid to these wetlands lies
an eight-acre freshwater lake known as Lake Susupe. The areas
which contribute runoff to Lake Susupe reach far north to La-
deran Tagpochau, east to Fina Sisu and south to ks Pe rdido,
embracing over 2800 acres. The 50-year design storm flow into
Susupe is estimated at over 7000 cfs. During intense storms
of long-duration, the water level of Lake Susupe rises dramati-
cally and floodwaters spill into Chalan Kanoa and Susupe Vil-
lage inundating extensive residential and commercial areas.
The drainage problem at Chalan Kanoa and Susupe is clearly one
of flood control.

The Chalan Kanoa area is slated for a Community Redevelopment
Program under the auspices of the Mariana Islands Housing Autho-
rity (MIHA). It is anticipated that the program will provide
drainage infrastructure facilities which should alleviate cur-
rent flood problems in the villages of Chalan Kanoa and Susupe.

CAPITAL IMPROVEMENT RECOMMENDATIONS

General

Before proceeding with the design and construction of drainage
improvements, it is imperative that the GNMI develop and esta-
blish storm drainage planning and design criteria based on a
thorough statistical analysis of Saipan's rainfall data and
unique watershed conditions. This project will involve, as a
minimum, the following tasks:

A. Analysis and synthesis of these hydro-geological
relationships and factors:
1. Rainfall intensity and duration
2. Rainfall - runoff relationship
3. Storm recurrence interval

238

4. Times of concentration

5. Percolation rates for various sub-surface

conditions.
6. Runoff coefficients for differing watershed
topography and conditions
B. Adopt storm drainage methodology and procedures
C. Develop construction standards and "guide" speci-
fications to prescribe and regulate materials and
methods involved in the construction of drainage
facilities.
D. Prepare and publish a Saipan "Manual of Storm Drain-
age Planning, Design and Construction Standards"
which incorporates the results of tasks A trough C.

This project is estimated to cost $50,000 and should be under-
taken as soon as possible.

In order to provide immediate, temporary relief of present
drainage problems, it is recommended that the GNMI initiate
a program for maintaining existing drainage facilities. All
existing drainage channels and culverts should be located,
cleaned out and maintained regularly. Fifty-five gallon
drum culverts should be systematically replaced by adequate-
ly sized reinforced concrete pipe culverts.

This maintenance program can be undertaken using present GNMI
Public Works personnel and equipment. Additional labor, equip-
ment and material requirements should be programmed as line
items in the GNMI Public Works operation budget.

San Roque

To alleviate flooding conditions at San Roque, upland storm
flows must be intercepted before they enter the village, then
conveyed safely to ultimate disposal. It is recommended that
an underground concrete box culvert system, of sufficient size

239

to accommodate storm runoff @rom A 20-year design storm, be
constructed beginning at the southeast corner of the village
extending generally along the aouthernmost village street to
Cross Island road. The box culvert should continue along
the highway for a distance of at least 1100 feet then turn
westward, crossing the roadway and extending to the sea.

The lower box culvert section should be increased in capacity
as necessary to accommodate additional runoff from the village
proper plus provide for future runoff from a 60-acre area just
north of the existing village. This area is likely to develop
as part of the inevitable expansion of San Roque.

The total cost of improvements is estimated to be $900,000
including $55,000 for engineering and design. Since the drain-
age problem is one of flood control, funding may be provided
through the Army Corps of Engineers Civil Works program when
it becomes applicable in the Northern Mariana Islands or through
the Economic Development Administration's Public Works program.

It is recommended that engineering and design funds be made
available early in the plan period to catalyze an EDA grant
for construction.

Cross Island Road at Tanapag

A box culvert of sufficient capacity to accommodate 20-year
design storm flows should be constructed at the existing high-
way crossing. Energy dissipators should be provided along with
transition channels at both upstream and downstream sections of
the proposed culvert. A 200 foot section of roadway must be
reconstructed as part of the scheme of improvements.

The cost of improvements, including engineering and design, is
estimated at $1001000. Design may be financed from Highway
Program funds and construction through an EDA grant. Again,
it is recommended that design be undertaken early in the plan
period to take advantage of EDA funding.

240

Lower Base TndustKial Complex at Tan4pag/Garapan and Puntan
Muchot

The drainage problems at Lower Base, Garapan, and Puntan Muchot
are not only contiguous, but also exhibit similar hydro-geolo-
logical features. The solution to the drainage problems will
involve intercepting and diverting upland storm flows away
from existing and proposed residential, commercial and indus-
trial areas and either ponding in conservation areas or chan-
nelling to the sea - or through a combination of both methods.

It is recommended that a detailed drainage study be conducted
and a Facilities Plan prepared for the combined regions of
Lower Base, Garapan and Puntan Muchot, including Puerto Rico,
the coastal area between Lower Base and Garapan. The study
and drainage facilities plan should address the following items:

� Investigate and analyze the hydrology of the combined areas.

� Identify and evaluate existing drainage facilities in the
combined areas and their respective watersheds.

� Compute storm flows based on accurate existing and predicted
hydrological statistics and appropriate storm drainage de-
sign criteria.

� Develop storm drainage disposal alternatives including ocean
disposal, ponding or a combination of both methods.

� Assess the impact of each alternative on the environment in
general and on marine and groundwater resources in particu-
lar.

� Develop a plan for the construction of drainage facilities
which should provide the following as a minimum.
a) Basis for planning and design of facilities
b) Schematic design of improvements establishing sizes and
alignments as required to accommodate the anticipated
future industrial, commercial, residential and recrea-
tional development.

241

c) Land and easement acquisition requirements
d) Guide construction specifications and procedures
e) Construction phasing and implementation schedules
f) Environmental Impact Statements (if necessary)
g) Funding requirements and recommended financing schemes
h) Land use and Development controls to assure proper plan
implementation

The cost of the Drainage Study and Facilities Plan is estimated
at $100,000 and will be financed through joint funding from the
GNMI American Memorial Park and Lower Base Industrial Park De-

velopment funds.

Construction of improvements should be incrementally programmed
and may be financed through a combination of Industrial Park
development, Highway Program, EDA and Subdivision development
funds. It is recommended that private developers be required
to finance or construct portions of the improvements as part
of residential subdivision, commercial or resort development.

Wallace Highway at Oleai

A detailed drainage study for the Wallace Highway area is being
conducted under-the administration and supervision of the CNMI
Department of Public Works to provide a basis for the design of
highway improvements. Preliminary drainage and highway design
analyses recommend that the portion of Wallace Highway through
the swamp be raised about 2.5 feet above its existing elevation
and equalization culverts be installed at several points along
the highway.

Construction of highway improvements, scheduled to begin early
in the plan period and to be financed by Highway Program funds,
will improve drainage conditions. However, it should be noted
that the design of drainage improvements - to be constructed

242

as an integral part of the highway project - is based upon
the implementation of the Land Use Plan. Deviations from
this plan will significantly influence the purpose and per-
formance of the proposed drainage facilities.

Chalan Kanoa/Lake Susupe

The drainage problem in the Chalan Kanoa and Lake Susupe
areas is one of flood control. in fact, substantial parts
of Chalan Ranoa and Susupe Village lie in the Lake Susupe
flood plain.

The lake and surrounding wetlands comprise a fragile, sensi-
tive ecological system which can be easily disrupted and
destroyed by indiscriminately altering its character. Lake
Susupe must be continuously recharged by a sufficient quan-
tity of good quality runoff from its tributaries. on the
other hand, intense storm discharges will surely cause flood-
waters to inundate Chalan Kanoa and Susupe. The present drain-
age problem is a dilemma of sorts and the solution will be com-
plex. It will involve a detailed flood control study, followed
by construction of flood control facilities and the implementa-
tion of a sound flood plain management program which should im-
pose land use and development controls on not only Lake Susupe
but its flood plain and watershed as well.

It is therefore recommended that:

A. A detailed flood control study be conducted of Lake Susupe,
to entail the following scope:
1. Investigate and analyze the hydrology and flood problems
of Lake $usupe and its tributaries.
2. Identify and evaluate existing drainage facilities in
and around Lake $Llsupe and its watershed.
3. Compute atorm flows based on accurate existing and pre-
dicted hydrological statistics and appropriate storm
drainage design criteria.

243

4. Develop flood control alternatives including ocean
disposal of overflows, pondi.ng or a combination of
both methods.
5. Assess the impact of each alternative on the environ-
ment in general and on Lake $usupe and marine resour-
ces- in particular.
6. Develop a plan for the construction of flood control
facilities which should provide the following as a
minimum.
a) Basis for planning and design of facilities.
b) Schematic design of improvements establishing
sizes and alignments as required to accommodate
the anticipated future industrial, commercial,
residential and recreational development.
c) Land and easement acquisition requirements for
facilities and the floo d plain.
d) Guide construction specifications and procedures.
e) Construction phasing and implementation schedules.
f) Environmental Impact Statement.
g) Funding requirements and recommended financing

schemes.
h) Develop a Flood Plain Management and Zoning Pro-
gram which will set forth recommendations with
respect to authority, organization, administra-
tion, policies, procedures, land use and develop-
ment controls, etc.

The study is estimated to cost about $150,000 and may be under-
taken by the Army Corps of Enginers, or financed jointly through
the MIHA Redevelopment and Coastal Zone Management Programs. It
is also possible that the Federal Insurance Administration (FIA)
could lend assistance in mapping flood hazards areas - assuming
the National Flood Insurance Program becomes applicable to the
Northern Mariana Islands.

244

B. The construction of flood control facilities should be
undertaken in phases with immediate, limited village
drainage improvements being incorporated into the Mariana
Tslands Housing Authority (MIHA) Chalan Kanoa Redevelop-
ment Program. Major flood control structures could sub-
sequently be financed by the Army Corps of Engineers Civil
Works Program or EDA.

C. A Watershed and Flood Plain Management and Zoning Program
be implemented for Lake Susupe, its flood plain as well
as its tributaries. The program must include the establish-
ment and enforcement of land use and physical development
controls which will ensure not only that the Susupe eco-
system is preserved, but that fringing residential and com-
mercial areas are adequately protected from flooding as
well. The program should be a regulatory function of the
Commonwealth Government and could be funded by the GNMI
Executive budget or through special appropriations or taxa-
tion.

245

TRANSPORTATION

AIRPORTS

HARBORS

HIGHWAYS

AIR TRANSPORTATION

EXISTING CONDITIONS

Air transportation is the principal mode of travel connecting
the Northern Mariana Islands and therefore plays a vital role
in the social and economic development of these islands. Is-
land residents are highly dependent upon air transport for
resupplying perishable foodstuff, medical supplies, merchan-
dise, and personal travel, which places high priority and im-
portance on safe and reliable air transportation and efficient
airport facilities. This report identifies current and pro-
jected airport development requirements for Saipan and propo-
ses a development program through 1983 together with estimated
project costs for planning purposes.

Trust Territory Airport System Plan

Data from the current Trust Territory Air System Plan have been
analyzed and in some instaces incorporated into this report.
These include: airport standards, forecasts of air traffic,
and capacity analysis of existing airport system and airspace
which have been analyzed and summarized in subsequent sections
of this report. A detailed summary of existing conditions is
also provided here.

Airport Layout Plans

The approved airport layout plan (ALP) for Saipan International
Airports was utilized as the basis for developing the system
costs and the proposed schedule for improvements.

PLANNING FACTORS

Saipan is served by limited commercial air carrier traffic, and
is also the home base for a small number of chartered general
aviation aircraft. However, important changes in air service

247

requirements for this area are expected and in fact are already
emerging. Tt is therefore nec65aary to begin by examining the
planning factors- most likely to impact heaviest on this sector
of public transportation.

Changing Route Structure

The air route structure within Micronesia presently centers
around Guam, the point of interchange between airlines flying
across the Pacific and Micronesia. The major routing is east-
ward from Guam, connecting Truk, Ponape, Kwajelein, Majuro,
Johnson Island and Honolulu. Other routes are southwestward
between Guam, Yap and Palau and north-south between Guam, Rota,
Tinian, and Saipan. These are the routes over which scheduled

air carrier service via Continental-Air Micronesia has been

available.

On October 1, 1977, Continental-Air Micronesia and Japan Air-
lines inaugurated direct flights between Tokyo and Saipan. Con-
tinental-Air Micronesia has revised its overall route scheduling
to include the Tokyo-Saipan leg with the remainder of their route
structure. This change will eliminate the need for connecting
flights at Guam for their passengers. Their revised schedule is
as follows:

1. Tokyo-Saipan-Guam-Truk-Ponape-Kwajelein-majuro-Johnson Is-
land-Honolulu--3 flights a week each way.

2. Tokyo-Saipan-Guam-Yap-Palau--2 flights a week each way.

3. Tokyo-Saipan-Guam--2 flights a week each way.

Japan Air Lines has four flights a week each way between Tokyo
and Saipan, with passenger connections provided by Continental-
Air Micronesia for points beyond.

248

Larger Aircraft

The largest aircraft presently in service are the Boeing 727-
100's used by Continental-Air Micronesia and the Douglas DC-8's
used by Japan Air Lines. However, as projected traffic mate-
rializes, it may eventually require the introduction of larger
capacity aircraft such as the Boeing 747 and Douglas DC-10.

Air Taxi Service

Most of the air passenger service between islands is provided
by small air-taxi operators (Island Air, Aviation Services and
Tinian Air), which provide two- to four-times a day service
between Saipan and Guam. Special charter and sightseeing
flights are also available to all islands, including Pagan.
These air-taxi operations utilize small single or twin engine
aircraft. Air-taxi service will remain a significant factor
in the movement of air passengers in the future.

A wide range of aircraft are available which can serve practi-
cally any type of service requirements or airport size and con-
ditions. Many of these aircraft are highly specialized, while
others are more flexible. Costs can vary widely for each avail-
able cargo pound mile or available passenger mile produced.
Generally, the more highly specialized and smaller the aircraft,
the more expensive it is to operate on an available passenger
mile basis. To illustrate this fact a broad comparison of va-
rious aircraft, compiled from other reports, is shown below:

Aircraft Cost per Available Passenger Mile

Helicopter (4 passengers) 70@
Seaplanes (9 passengers) 19@ (1975 cost)*
Cessna 402 (8 passengers) 8(@ (1977 cost)*
Britain Norman Islander
(9 passengers) 6.93@ (1975 cost)*
Norman Tri-islander
(17 passengers) 5.39@ (1975 cost)*

249

De Havilland Twin Otter
(20 passengers) 5.25@ (1977 cost)*
*Based on high utilization rate

It can be readily seen that costs per available seat mile de-
crease as the size and efficiency of the aircraft increase.
However, these figures must be matched with demand to determine
load factors conducive to economical air service. For if there
are no passengers to fill the aircraft, costs quickly soar. A
good air service with a frequent schedule to each island can be
provided only if there is sufficient demand.

With the wide range of aircraft available to the air-taxi indus-
try and the unique transportation requirements of this area, the
air-taxi industry will become stronger and larger, and be an
important user of airport facilities.

Air Traffic Forecasts

The air trafffic forecasts used in this report are those deve-
loped in the Trust Territory Airport System Plan/. report. Pro-
jections of air passenger traffic and cargo/mail volumes were
used to derive aircraft operations needed to handle these fore-
casts. Aircraft operations are broken down into air carrier-
passenger, air carrier-all cargo, air taxi, general aviation,
and military operations. Peak hour forecasts and sensitivity
analyses are also included. The forecasting methodology con-
siders historical visitor arrival statistics, the economic pro-
file, and the political aspects of the whole of Micronesia.

Table 33 summarizes the air traffic forecasts for the 1980,
1985 and 1995 planning horizons.

These forecasts may be questionable for some uses, but their
overall usefulness as a planning tool remains. It is signi-
ficant that the forecasts indicate a need for only minimum

250

TABLE 33

SUMMARY OF AIR TRAFFICE FORECASTS

SAIPAN INTERNATIONAL AIRPORT
1980-1995

ANNUAL

Air Total Arriving
Passenger Cargo/Mail Air Carrier Air Carrier
Movements Volume Passenger All Cargo Air G
Year (ENP & DEP) (000 pounds) Aircraft Aircraft Taxi A

1980 248,948 12,579 5,314 728 5,144

1985 464,645 26,072 6,608 1,456 8,374

1995 896,824 46,042 11,134 1,976 13,266 .4
Ul
Fj

Peak Hour Operations:

1980 5 4
1985 6 6
1995 11 7

facility construction. Once accomplished much higher usage
than that projected could be accommodated without significant
facility addition.

AIRPORT DEVELOPMENT NEEDS

The immediate objective of the Mariana Islands Airport Author-
ity is to attain and retain air carrier certification for its
existing air carrier airports by January 1978, when the North-
ern Mariana Islands enters into commonwealth status, in accord-
ance with the FAA safety and operational standards, Federal
Aviation Regulation, Part 139.

The needs of the Northern Mariana Islands for airport improve-
ments are limited because of funding restraints to items essen-
tial to provide safety and operational efficiency. These include
minimum paved runway lengths, adequate runway safety areas,
cleared approach and transitional surfaces, runway lighting,
navigational aids, safety and security equipment, taxiways, and
apron areas. Terminal buildings, vehicle parking lots, access
roads, and similar items are included to improve operational
efficiency.

Saipan International Airport is a complete facility capable of
handling large jet aircraft. Additional navigation aids, safe-
ty equipment, and ground operations facilities will be required
to handle the forecasted traffic over the next 20 years. To
meet these requirements, the following projects have been funded
or earmarked for funding:

� Runway End Indicator Lights CREIL lights) are required on
runways 7 and 25. This requirement is included in ADAP
Project No. 6-75-0003-04, funded in fiscal year 1977.

� The ground operations area requires expansion. A partial
parallel taxiway with runway exits- and apron expansion is
a firm requirement, identified for funding in Fiscal Year

1979.

252

Additional safety equipment is needed. A firm requirement
for funding in fiscal year 1979 is the addition of a fire
truck and expansion of the CFR building.

Other requirements to provide for substantial airport
activity include construction of air cargo/maintenance
buildings, general aviation/fuel storage facilities, and
control tower. Installation of navigation aids for ins-
trument landing capability are also required.

These requirements are listed in Table 34, in order of recom-
mended accomplishment. Being a rapidly changing sector, fre-
quent changes in the nature and phasing of the capital improve-
ments can be expected. Frequent examination of the program by
MIAA will insure a current program, and should be understood
and welcomed by the public.

Airport Development Costs

Table 34 also indicates the estimated cost of the airport im-
provements, along with the suggested source of funding. The
cost for the Fiscal Year 1977 improvements are exact since the
project has already been initiated. The other costs are not
as precise, and should be considered accurate only to the order
of magnitude. The estimates provide for engineering, adminis-
tration and contingency costs.

Fund sources include the Federal Aviation Administration (FAA),
Economic Development Administration (EDA), and Marianas Islands
Airport Authority (MIAA). It is assumed that 141AA will actively
seek maximum federal funding of eligible projects. Two points
should be remembered, however, when seeking federal assistance.
First, only certain types of projects are eligible for federal
assistance. $econd, federal-aid programs are highly competitive
and subject to fund availability. This competition could re-
sult in extended waiting periods for funding of projects, even
if approved. However, the high cost of imp rovements greatly

253

TABLE 34

SAIPAN AIRPORT DEVELOPMENT COSTS
(Costs in 0001s)

FISCAL YEAR ACTUAL PROJECTS FAA MIAA OTHERS4
1977 Reil lighting, security fencel 92.0 10.2

1979 Partial parallel taxiway, apron
expansion, CFR building expansion,
and additional fire truck 2,984.0 746.0

Sub Totals 3,076.0 756.2 -

t1a Potential Projects
Ln
1980 Air Cargo/Maintenance building - - 5,500.02

1981 General aviation/fuel storage
facilities - - 400.03

1982 Navaids for ILS System 588.0 147.0 -

1983 Control Tower 1,300.00 - -

Sub Totals 1F888.0 147.0 5,900.0

Totals 4,964.0 903.2 5,900.0

1. Project which had been recently bid; figures indicate gra
2. No taxiway costs included
3. No costs for fuel storage facilities and taxiway included
4. Potential source of funds assumed to be EDA

prevents the local residents from bearing the entire cost of
the program. It is recommended that whenever possible, pro-
jects be designed in advance in preparation of the possibility
that funds become available on short notice.

255

HARBORS

Although the airports are a key to the Northern Marianas for
passenger movement, the harbor and dock facilities are more
important to overall economic growth in the islands. The move-
ment of most consumer goods to the Marianas and the reliance
upon local subsistence fisheries by many of the people require
adequate docks and harbor facilities.

Establishment of regular and reliable sea cargo services bet-
ween other countries and the Northern Marianas will be a cri-
tical factor in the growth and development of the economy.
The problem of promoting shipping services for the Northern
Marianas is and has been that the whole Trust Territory area,
including the NMI, generates a relatively small volume of
cargo. In addition, physical facilities in NMI ports have
been rather poor, creating inefficiences in cargo handling
and lengthening vessel turn-around times.

During the plan period it is anticipated that the volume of
sea cargo transported to the NMI will increase, with the in-
creased capital improvements program, as well as rising per-
sonal incomes and population growth. Increased capital im-
provements resources will also make substantial port develop-
ment possible within a few years. In sum, the efficiences
achieved through port improvements, coupled with general
growth in economic activity throughout the NMI, will increase
the appeal of the Northern Marianas as a port of call for ves-
sels and ships.

Planning for Harbors and Dock facilities in the Northern
Mariana Islands and more specifically for Saipan must consi-
der the following issues:

256

* Saipan is favorably located and with its exclusion from
provisions of the Jones Act could become a major trans-
shipment point for cargo vessels in the western Pacific.

* Inter-island sea transport between Saipan and neighboring
islands is important for the overall economic development
of the Northern Mariana Islands.

* Commercial fisheries could become an important industry
in the economy of the Northern Mariana Islands.

* Recreational boating, sport fishing and subsistence fishing
require improved docks, pier spaces and ancillary shore
facilities in order to grow and contribute to the overall
economic development of the Northern Marianas.

EXISTING CONDITIONS

Management of docks and harbors in the NMI is presently the
responsibility of the Department of Public Works. on Saipan,
a Port Control Officer with a staff of five has administrative
charge over entry and,departure of vessels and responsibility
for generally overseeing dockside operations.

Sea Transport

As of the beginning of 1977, eight private shipping companies
have been granted rights to enter ports in the NMI, of which
six have established scheduled services. The companies pro-
vide service between Saipan and ports in the Far East, Austra-
lia and on the U.S. West Coast, including Hawaii. Routes often
include ports in the Trust Territory as well. Frequency of
service varies between roughly 40 and 60 days, depending upon
route structure. In additionf barge service on a weekly basis
has been established between Saipan and Guam by two private
companies which provides intermediate or transshipment service
to Rota and Tinian.

257

For calendar year 1976, a reported 68,803 revenue tons (R/T)
moved through NMI ports. Inbound cargo accounted for 59,485
R/T and outbound cargo 9.318 R/T, or about 86.5 percent and
13.5 percent, respectively, of total cargo volume. The 1976
figure represents an increase of about 44 percent over 1975's
reported 47,756 total revenue tons. The Port of Saipan han-
dled 64,1503 R/T, or nearly 93.8 percent of all NMI cargo in
1976, while Tinian handled 2,359 R/T (3.4 percent) and Rota
11941 R/T (2.8 percent). Earlier records of cargo movement
are fragmentary; however, it does appear that increases or
declines in the amount of cargo moving through the Port of
Saipan have been closely tied to the size of public and pri-
vate construction activities.

Physical Facilities - Saipan Harbor and Charlie Dock

Saipan Harbor, which consists of the outer anchorage, Garapan
Anchorage, and Puetton Tanapag, is the port of entry and is
the administrative center for GNMI. The harbor is formed by
the waters within a radius of 2/-12 miles of the root of the
landing at Garapan. The entrance channel of Puetton Tanapag
is about 300 feet wide and has a shallow depth of 8.8 m (29
feet). The harbor is sheltered by the barrier reef and is
partially protected from winds.

Anchorages. The outer anchorage affords shelter during
prevailing easterly winds, but none during infrequent
westerly storms. This anchorage, which lies from 3 to 5
miles offshore, is suitable as only temporary anchorage
for large vessels.

The inner anchorage, which includes Garapan Anchorage,
contains numerous berths in depths ranging from 14.6 m
(50 ft.) to over 54.9 m (180 ft.), holding ground fair
to good, with coarse coral sand. This anchorage lies
from 1 mile to 2 miles offshore.

258

The anchorage area in Puetton Tanapag has been dredged
to a projected depth of 9.1 m (30 ft.). A seaplane land-
ing area is located northward of the anchorage area.

Navigation Aids. Tanapag Harbor is equipped with range
lights and some lighted buoys. There is also a U.S.
Coast Guard Loran Station located on Saipan.

Charlie Dock (Pier C). Saipan's harbor complex consists
of a commercial port plus a small boat quay and a pier
at which the power barge "Impedence" is currently docked.

As-built drawings or plans for Charlie Dock are not avail-
able. The dock was originally constructed by the Japanese
prior to World War II and was subsequently improved or
expanded. Inspection of the dock in 1972 indicated that
the face of dock is a masonry wall consisting of 41 x 41

x 51 concrete blocks.

Charlie Dock C, is L shaped, and has 530 feet of berthing
space along its north side. Berths, with depths of 7.6 m
(25 ft.) to 6.1 m (20 ft.) are available along the north
and west sides of the pier. Depths of 2.4 m (8 ft) are
found alongside the south side of the pier.

The channel to the dock, running more or less on a south-
westerly line, is 457.2 rn (1,500 ft.) long, 91.4 m (300 ft.)
wide and 8.8 m (29 ft.) deep. It is marked with lighted
and non-lighted buoys set by the U.S. Coast Guard.

Dockside facilities include a 1,115 m2 (12,000' ft2 ) ware-
house (Prefab type) constructed by the Trust Territory
and presently used as a break-bulk warehouse. For cargo
handling, the port has some heavy forklift equipment and
trucks available, and has access to heavy cranes (50 ton
mobile and 30 ton crawler) owned by NMI Public Works.

259

A second prefab type warehouse owned by the NMI Government
is also located at the port and is presently occupied by
port operations and maintenance.

Small Boat Facilities

Facilities for small boat harbors are also woefully inadequate.
Only the "Smiling Beach" small boat area provides adequate pro-
tection during storms.

In Garapan a pier, 155 meters in length (485 feet) originally
constructed by the Japanese and later reconstructed by the U.S.
military forces, is in a bad state of disrepair. Erosion of
the shoreline, filling in of the formerly-dredged docking area,
wooden pilings, and several wrecks make this harbor area ina-
dequate. Garapan Channel is also shallow and narrow and has
inadequate navigational facilities further limiting the harbor's
usefulness. Shore facilities are inadequate as no docking or
tie up space is available. only recently were concrete boat
launching ramps constructed.

Sugar Dock, another Japanese remnant in Susupe consists of a
concrete pier 84.1 m (276 ft) in length. Presently the Tinian
Co-op vessel utilizes this facility on Tuesdays and Fridays.
However, the channel is so shallow that entry and exit can
not be made during low tide. A concrete launching ramp is
available and daily usage is generally between seven (7) and
ten boats. Navigational aids are also inadequate. Adjacent
land is all in private ownership further limiting the useful-
ness of this pier (See Plate 26).

PLANNING FACTORS

A substantial increase in cargo volumes to be handled in NMI
Ports is projected between FY 1978 and FY 1985. Factors under-
lying this growth will be the quantum increase in construction
activity which the new political status of the Northern Marianas
will bring, rising real incomes of NMI citizens, and a conti-
nuing increase in population.

260

COMMERCIAL FORT
PHASE I
-CONSTRUCT BAKER DOCK
ISLETA IAA"Ar) FIVE ACRE CONTAINER YARD
SECURITY FENCING
WAREHOUSE

PHASE 2
RECONSTRUCT CHARLIE
DOCK

HARBOR BASIN
----------- ------------------------
-------------------------- CHMLIE

AMERICAN
MEMORIAL PARK EAST QUAY
-CONSTRUCT MODIFY FOR
BOAT MARINA FISHING FACILITY
- CONSTRUCT SAIL
BOAT MARINA

PUNTAN
MUCHOT

GARAPAN 'Wharf'
SUBSISTENCE FISHING
20OFT. PIER
LAUNCHING RAMP
LOADING DOCK
NAVIGATIONAL AIDS
SHORE FACILITIES SUGAR DOCK
PARKING AREA(lighted) WIDEN a DEEPEN
CHANNEL
NAVIGATIONAL AIDS
INCLUDING LIGHTED FIXED
CHANNEL MARKERS
GARAPAN PARKING AREA (lighted)
CHANNEL
DEEPEN TO 15FT ENTRANCE
IOFT. INSIDE
INSTALL NAVIGATIONAL AIDS
INCLUDE LIGHTED FIXED
CHANNEL MARKERS

SAIPAN ISLAND
PHYSICAL DEVELOPMENT MASTER PLAN
GARAPAN N HARBOR AND DOCK FACILITIES
DESIGNATED ANCHORAGE January 1978
MOORINGS 0 1km Pacific Planning and Design Consultants
NAVIGATIONAL AIDS I . .. . [*Saipan -Commonwealth of the Northern Mariana Islands

with the recent indications to increase tariffs at the port of
Guam, there is an excellent chance for Saipan to pick up signi-
ficant quantities of transshipment cargo should adequate faci-

lities be available.

Port Calls and Wharf Requirements

The records of the Mariana's District Public Works Department
show that about 250 port calls to the Saipan commercial harbor
were made by more than 70 different vessels during 1976. An
analysis of the information in Table 35 indicates that at least
304.8 m (11000 ft.) of deep water berths and 182.9 m (600 ft.)
of medium depth (6.1 m + or 20 ft +) berths are required for
the commercial port.

Growth in cargo volumes in the Port of Saipan will be most sig-
nificant. With the increase'in capital improvement projects,
durable and non-durable consumer goods, and with a general in-
crease in inter-island trading, total cargo passing through the
Port of Saipan is projected to rise to about 138,700 R/T by FY
1985. This represents and increase of about 115 percent over
the present base level volume of approximately 64,000 R/T.

Transshipment

Many private businessmen and public officials concerned with
shipping in the Northern -Marianas have expressed interest in
developing Saipan as a transshipment point for cargo passing
through the Western Pacific. The Northern Marianas' exclusion
(under the Covenant) from provisions of the Jones Act, which
governs U.S. coastwide shipping, may in fact permit Saipan to
attract foreign vessels carrying cargo from the continental
U.S. to Pacific or Far Eastern destinations. The recent pro-
posal to increase tariffs at Guam's Commercial Port, presently
the major transshipment point for the Western Pacific, provides
anadditional incentive for Saipan to attempt to capture some of
the transshipment market.

262

Table 35

Analysis of the District Public Works Department
Log on Port Calls at Saipan Harbor During 1976
Number of Days Ships Were in Port
Ships
0 1 2 3 4 5 6 7 8 Tug & B

January 6 4 5 6 3 7

February 1 6 11 4 5 4

March 5 9 8 7

April 7 7 12 3 5

May 11 8 7 1 5

June 3 13 6 3 2

July 4 5 6 5 3 2 2 2 2 7

August - 5 17 3 6 4

September 3 13 12 6

October 2 6 16 6 2 6

November 5 5 11 4 1 1 1 1 7

December 8 11 8 1 5

Totals 55 92 119 36 22 3 3 2 3 69

The basic data was furnished by the,Trust Territory of the Pacific Isl
Public Works Department.

The average vessel turn around time, excluding the barge, is 36.9 hour

The average vessel turn around time, including the barge, is 26.7 hour

Significant upgrading of the physical facilities at Saipan's
port, including warehousing, and ship and cargo handling capa-
bilities would be necessary.

Inter-island Sea Transport

Efforts should be made during the course of the plan period to
accommodate the expansion of inter-island sea transportation,
commensurate with increasing requirements. Sea transport ser-
vice for both cargo and passengers to the sparsely inhabited
northern islands will be an important component of inter-island
transport. This shipping service, presently known as "field
trip" service, is organized and funded by the Government of
the Northern Mairanas as a public service to northern islands
residents.

The government itself does not possess a vessel for field trip
operations, but leases a ship from a local private operator.
The option of obtaining a vessel on a permanent basis to use
for field trip shipping, as well as for other services, is
currently under consideration. Possibilities include renova-
tion and taking possession of a YFU class landing craft from
the U.S. Navy, or obtaining a vessel from the Trust Territory
Government under the agreement dividing Trust Territory capi-
tal assets with the Northern Marianas.

Inter-island sea transport needs between Saipan and its neigh-
bor islands of Rota and Tinian appear at present to be ade-
quately covered by private shipping companies, principally
barge service, plus boats operated by the Tinian Municipality.

once military base construction on Tinian is initiated, however,
it will be important to establish a regular daily ferry service
between Tinian and Saipan in order to promote a steady flow of
goods and labor which will support both the base construction
and later, the base operations.

264

Fisheries and Recreational Boating

Physical facilities for subsistence fisheries, large scale
commercial activities and recreational boating are inade-
quate and should be improved during the plan period. Im-
proved docks, pier spaces and ancillary shore facilities
are needed in order for the s-ubsis-tence fisheries industry
to grow and to contribute to the overall economic develop-
ment of the Northern Marianas.

An estimate of the number of small fishing craft was made
with the help of the Northern Marianas Fishing Cooperatives.
Currently, there are fewer than 100 co-op members and only
37 co-op boats. (See Table 36).

Table 36

ESTIMATE OF SMALL FISHING CRAFT - NMI

Number of Number of Small Fishing Boats (outboards)
Island Members Co-op Members Non-Members Total

Saipan 58 25 53 78
Rota 24 6 2 8

Tinian 16 6 5 11

Total 98 37 60 97

The primary need is to improve launching ramps at convenient
locations. The old Japanese seaplane ramps are good for launch-
ing boats except that they become very slippery at times tending
to launch both the vehicle as well as the boat.

There are also several concrete boat ramps such as at Fishing
Base in Garapan and Sugar Dock and one gravel launching ramp
at the memorial park site, "Smiling Beach".

265

The deep lagoon around the commercial port provides a super
abundance of moorings. There is also a shallow lagoon, about
10 feet deep, inside the reef near Garapan. Channels through
the reef are shallow (6 feet deep) except for the 29 foot ship

channel.

Commercial Fishing Port

Commercial fishing could become an important industry in the
NMI economy, and policies relating to marine resources are of
extreme importance to economic development. The new interna-
tional agreements on the 200 mile coastal fishing zones will
involve the NMI in many ways and must be followed carefully.

The existing berths for commercial fishing vessels at the end
of Charlie Dock interfere with traffic, disrupt security, and
inadequately serve the fishing industry. Although it is
likely that the East Quay will continue as the fishing dock
during the Short Range Plan, future possible locations in-
clude the rehabilitation of portions of Able Dock or cons-
truction of a new facility behind the present Northern
Marianas Public Works facilities, south of the existing sea-
plane ramps. If large scale commercial fisheries prove to
be viable, a medium depth dock and shore facilites should

be constructed.

Present Maritime Fleet

A list of vessels in service in the Trust Territory of the
Pacific Islands (TTPI) during 1976 was provided by the TTPI
District Public Works Department (DPWD). the characteris-
tics of these vessels were compiled from the American Bureau
of Shipping Record Book, 1977, and are shown on Table 37.
The deepest draft vessel, the ENNA G. draws 28.29 feet when
fully loaded. All others draw less than 26 feet, and about
seven of them draw less than 12 feet. Generally, it is anti-
cipated that the type of vessel serving Saipan and the Mariana

266

TABLE 37

VESSELS CALLING AT SAIPAN PORT
GOVERNMENT OF THE NORTHERN MARIANA ISLANDS
Marianas Public Works Department
Saipan, Mariana Islands

Data revised in accordance with the American Bureau of Shipping
Record Book, 1977.

VESSEL DATA SHEET
Name of Vessel Length Breadth Depth Draft
(feetT (feet) (feet) (feet)

Muskingum 338.75 50.00 29.00 l/
Herkimer 321.33 50.00 29.00 23742
Fentress 321.33 50.00 29.00 23.42
Micronesia Princess 242.75 40.00 21.50 13.83
Ponape Maru 479.00 73.49 l/ 25.82
Enna G 456.08 61.04 T/ 28.29
Seven Seas 231.30 37.10 17-.00 l/
Tjirebon Maru 433.00 60.33 27.60 1/
Coral Princess 477.75 61.00 1/ 18754
Marshall Islands 185.00 33.00 11.00 1/
Kaselehlia 131.23 27.90 11.48 10710
James Cook 225.67 1/ l/ l/
Truk Islander 111.02 22731 9784 8788
Yap Islander 111.02 22.31 9.84 8.88
Ran Annim 165.00 32.00 14.29 10.04
Militobi 156.00 30.00 13.00 11.05
Tinian 11 40.00 12.00 6.00 l/
Olwol 72.36 15.60 7.55 i/
Normar 11 122.00 23.00 10.40 9720
New Field Trip Vessels 185.00 33.00 15.00 11.00

l/ Information not published.

267

Islands will continue to be of similar class although it is
probable that significantly more cargo will be shipped via

containers.

Future Maritime Fleet

At least three types of vessels may be involved in the future
of the Northern Mariana Islands. The selection of future ves-
sels will be affected by cargo type, passenger markets, cargo
tonnage, passenger volume, fuel costs, and the development of
new types of vessels. Modernized tugs and barges and self-
loading monohull container ships with bow thrusters for maneu-
vering will continue to be competitive during the short term.

Hovercraft and the high speed hydrofoil, such as the Boeing
Jetfoil, have an exotic appeal. These 50 mph vessels stimu-
late the imagination and provoke thoughts for their use on
short runs. A ferry system, such as from Tinian to Saipan is
one possible use provided future passenger volumes of 200-300
persons per trip become a reality. These passenger carriers
draft only 5 feet with foils up. Sugar Dock pier with minor
channel improvements could therefore be used as a terminal.
A shorter run and direct delivery of passengers to the popula-
tion center on Saipan are possible advantages.

However, it is discouraging that experience with these vessels
in Hawaii has not proven competitive with regular air service.
Hydrofoil fares are actually less for given routes but opera-
tions have been conducted at a loss. Sea Flite, as the hydro-
foil service is known in Hawaii, has therefore been terminated
and the GNMI would do well to seriously evaluate the feasibi-
lity of such services before embarking on any commitments.

268

The stable, semi-submersible platform (SSP) appears to be the
most promising of future vessels. A oilot model is presently
being tested in Hawaii. A report on the use of the SSP enti-
tled "Hawaii Marine Highway System Study, Review of a Stable
Semisubmerged Platform (SSP) Marine Highway System," was made
by the State of Hawaii Department of Transportation in 1976.
Vessels proposed for use include 500-ton and 3,000-ton displace-
ment SSP's. The 500-ton SSP would have a full load draft of
16.5 feet and a capacity of 150 long tons with an operating
range of 600 miles at about 25 mph. Such vessels may prove
economical for future inter-island transport in the Marianas.

PORT AND HARBOR DEVELOPMENT PROGRAM

To accommodate projected growth in cargo, and in general to
support and stimulate economic activity in the Northern
Mariana Islands, a program of port and harbor developments
will be implemented during the Plan period. The program
should feature major improvements to the commercial port
and the development of shore facilities for Saipan. Funding
for subsistence and commercial fishing program need's will be
provided in large part by government CIP allocations. It is
anticipated, however, that U.S. Federal program assistance
for port development will also be available, especially for
harbor and channel dredging, and breakwater construction.
Recreational and tourist oriented boating facilities are pro-
posed to be included in the American Memorial Park.

Future Harbor Development, Federal Cooperation

It is assumed that future harbor planning will be in coopera-
tion with the U.S. Government; therefore, the normal division
of responsibilities would conform with proposed legislation
and U.S. statutes. Accordingly, the Corps of Engineers would
be authorized to plan harbor development, construct and main-
tain the main channels, basins, and breakwaters for commercial

269

harbors, for fishing harbors including those of subsistence
fishing, and recreational harbors. On such projects, the
GNMI would be required to contribute about half the construc-
tion cost.

The Corps of Engineers' maintenance would include periodic
hydrographic surveys to check the harbor depth, etc. (Hydro-
graphic surveys of the harbors in the NMI, except for Rota
Harbor were last conducted in 1944. Rota Harbor was surveyed
in conjunction with the design of various repairs and improve-
ments necessitated by the devastation of typhoon Pamela.) The
U.S. Coast Guard would also be authorized to provide naviga-
tional aids on Federal projects. The Defense Mapping Agency,
Washington D.C., will update navigation charts as new data
becomes available from hydrographic surveys by the Corps of
Engineers or others.

Commercial Port

Early in the plan period, it is suggested that funds be made
available to do emergency repairs (bullrail and temporary
fenders) to Charlie Dock. An engineering analysis of Charlie
Dock should also be undertaken to determine its structural
integrity.

Although the present planning effort did not provide funds
for an extensive analysis of Charlie Dock, preliminary sur-
veys seem to indicate that major reconstruction of Charlie
Dock will be necessary. The final configuration of the new
port complex would depend upon the findings of the Charlie
Dock analysis and subseauent master plan, but in any event
would include substantial expansion of dockside storage and
working areas. Other features of the port development would
probably involve construction or reconstruction of a bulkhead;
doubling, reinforcing, and paving of dock surface areas; crea-
tion of additional ship berthing space: construction of a
break-bulk warehouse; provision of security fencing for the
dockside itself (See Plate 27). Adequate shoreside facilities
for loading and unloading of cargo will also be required.

270

POSSIBLE

F U T U R E P I E R H E A D- -L I N E-

EXIST CAUSEWAY

EXISTING DUMP 0
TO BE 0 0
CLOSED AND LANDSCAPED 000
TANK FARM

BEACH ROAD TO BE
CLOSED BEYOND
THIS POINT

WEST COAST H

POWER
PLA@@

0 50 100 200 M.

The long term commercial port facility would then have appro-
ximately 304.8 meters (100 feet) of deep berthing, 182.9 meters
(600 feet) of medium berthing, 10 acres of container storage, a
transit shed to be rebuilt on Charlie Dock for break-bulk cargo,
a warehouse, scales, etc. Factors that inhibit the immediate
reconstruction of Charlie Dock include:

a. The cost of upgrading Charlie Dock to modern standards
approaches costs for construction of a new pier.

b. The construction work to upgrade Charlie Dock would
seriously interfere with stevedoring operations.

C. It appears that in the near future two docks will be
needed anyway.

It is therefore recommended that only interim repairs to Charlie
Dock be made. For example, it is necessary to install a 121 x
12' timber curb for safety purposes. Presently, equipment opera-
tors do not use the outer 5 to 10 feet of the pier because of the
danger of rolling off the pier.

Baker Wharf

Rather than reconstruct Charlie Dock it is recommended that a
new Baker Wharf be the first phase of construction.

Construction of Baker Wharf would add 500 feet of deep water
berth (30-35 feet deep) and 300 feet of medium depth berth
(15-20 feet deep). Construction activities would include dredg-
ing to a 35-foot depth alongside the new wharf. The dredge ma-
terial could be used as compacted backfill behind Baker Wharf
for a container yard and other purposes.

Ultimate development to provide for efficient mechanization of
the commercial port, would include an extended pier head line
established on a straight line from the northwest corner of
Charlie Dock to the south end of the old Army pier. If major
transshipment activity is thus developed, container crane tracks
and other mechanized equipment and facilities could be installed
to serve more than 2000 feet of deep water wharf.

273

Container Yard

The container yard would require about 5 acres to handle an
average of 40 containers per day and 10 day demmurage. The
container yard should also be raised on a good foundation
and paved with a minimum 4 inches, of A.C. on a 12 inch base.

Other requirements include:

a) break-bulk shed
b) security fence
c) control tower
d) flood lights
e) electric outlets for refrigerated containers and
f) truck scales, etc.

Subsequent to the completion of Baker Wharf, Charlie Dock
can be renovated, thereby avoiding the discontinuance of
service during construction. Estimated cost for the con-
struction of Baker Wharf is given in Table 38.

Charlie Dock Reconstruction

The eventual reconstruction of Charlie Dock would include an
envelope of a new concrete-capped, steel sheet pile wall with
tie backs and a new fender system. The new wall should be 2
or 3 feet outside the existing block wall. The deck level
should be raised to an elevation of 8 feet-to minimize over-
topping by waves and to provide a suitable backing for the
fender system. A new transit shed would have to be constructed.

Reconstruction of Charlie Dock would provide an additional 400
feet of medium depth dock and 550 feet of deep dock, 30 to 35
feet deep. (-See estimates Table 39).

274

TABLE 38

ESTIMATED COST FOR CONSTRUCTION OF BAKER WHARF

New 500' Baker Wharf (35' depth, 60 returns):
Sheet Piles & Tie Backs 6201 @ $1600 $ 992,000
Fenders 5001 @ $500 = 250,000
Cleats & Misc. Metal 500' @ $50 25,000
Pave Wharf 500' x 60' = 30,000 SF @ $1.35 40,000

SUBTOTAL: $ 1,307,500

New Medium Depth Wharf (East Side):
Sheets 2401 @ $1200 280,000
Fenders 300 @ $350 105,000

SUBTOTAL: $ 393,000

Fill for New Wharf & 5 Ac. Container Storage:
Dredge Fill (-10 to +8)
165,300 c.y. @ $5.00 826,500**
Dike on east side 500' @ $200 100,000
Dike on north face 450' @ $200 90,000

SUBTOTAL: $ 1,016,500

5 Acre Container Storage:
Paving & Base 218,000 SF @ $1.35 294,300
Fencing 1600 LF @ $15.00 = 24,000
Rock Protection east side 300 LF @ $100 30,000
Flood Light 80,000
Electric Underground 25,000
Warehouse 150,000

SUBTOTAL: $ 603,300

TOTAL SHORT TERM: $ 3,320,300

ENGINEERING INSPECTION 10%: 332,000
TOTAL: $3,652,300**

Utilities, unless specified, are not included

Assumes dredge fill from Harbor and Channel. Cost for dredg-
ing harbor and channel may be borne by the federal government.
Should a Corps project not be simultaneous with Dock construc-
tion estimated cost for land fill material is approximate 3.000/
cubic yard or 500,000.

275

TABLE 39

ESTIMATED COSTS FOR RENOVATION OF CHARLIE DOCK

Short Term Improvements
Emergency Repairs for Charlie Dock

Bull Rail and Fendera $ 50,000
Structural Analysis of Charlie Dock 70,000

SUBTOTAL: $ 120,000

Long Term Improvements
Reconstruction of Charlie Dock*:

Sheet Pile & Tie Back 900' @ $1600 1,440,000
Fenders 5001 @ $500 = 250,000
400' @ $350 = 140,000
Fill - 4' Deep - 100,000 SF - 14,800CY @ $6.00 88,800
130,000 SF @ $1.00 130,000
Cleats & Misc. 50OLF @ $50 25,000
Lights & Power Service 50,000

SUBTOTAL: $ 2,123,800

Transit Shed on Dock 160,000

SUBTOTAL: $ 2,283,800

Engineering & Inspection 10% 288,200

TOTAL: $ 2,512,000*

Utilities on Dock not included. Does not include cost of any
breakwater or significant harbor dredging.

276

In addition, dredging of portions of the Saipan harbor and
channel will be required to complement development of the
dock and its related facillties. An application requesting
Federal Assistance should be filed with the U.S. Corps of
Engineers to accomplish this work.

Garapan Wharf

Small-boat fishing facilities are planned for Garapan Wharf.
Work would involve dredging to improve the passages in the
lagoon and permit better access to the dock, and construction
of a launching dock, a building, boat slips, and a secure boat
storage area. It is hoped that breakwaters and navigational
aids will be constructed with Federal funds.

The buildings at the small-boat center will include:

* A service building for refrigerated storage of fish for ice
making and to house equipment for weighing, cleaning and
selling fish.

* A second building will contain offices for the government
agencies involved in developing the fishing industry, and
offices for fishing cooperatives. A classroom/meeting
room will be available for training purposes, as well as
for co-op meetings.

* Land should also be made available for a secure one or two
acre boat repair yard.

Estimated costs of the fishing wharf are indicated on Table 40.

Recreational Facilities

Marinas for power boats and sail boats will be constructed as
part of the development plans for the American Memorial Park.
Capital Improvement costs for the park including the two Mari-
nas will come from the $2,000,000 trust fund. In addition,
marine fuel taxes and boat berthing fees should be set aside

277

TABLE 40

ESTIMATED COST FOR GARAPAN FISHING WHARF*

Design Engineering: 52,000

Stabilization, renovation and resur-
facing of 200 feet of the existing
pier $800/ft.: 160,000

Boat Ramp facility including parking
lot, water line for boat washdown,
loading dock,lighting, landscaping,
minor dredging, clearing and grading: 125,000

Buildings:

Service buildings for weighing
cleaning and selling fish inclu-
ding small reefer.

Gov't offices and classroom/meet-
ing room 113,000

Designated Anchorage for 25 boats

3 anchor 2 point mooring 25 @
$3,000 75,000

SUBTOTAL: $ 525,000

Does not include cost of any breakwaters or significant
harbor dredging.

278

to amortize pier and mooring costs originally financed by CTP
funds. power and sail boat piers would be provided in the
inner basin until the outer basin is developed for sail boats.

Summary Costs_
Table 41 is a summary of Harbor and Dock facilities costs as
projected during the short range plan and for anticipated costs
beyond the seven (7) year plan. Marine facility costs for Saipan
are estimated to be 4.8 million dollars during the present plan
period.

279

TABLE 41

Cost Estimates of Marine Facilities for Saipan
Short and Long Term
(In Thousands, 1977 Prices)

Container Wharf Boat
Wharf Wharf Yard Subsistence Ramps
Deep, 30-35' Medium 15-201 Complete Fishing Boat Complete

Short Term (Baker Wharf) 300 ft. Five Acre Garapan
7 years $3,652 Included w/ Included w/ 200 ft.pier
Wharf Wharf and Ancill-
ary facili-
ties
$525
Commercial One compl
fishing 200 Boat Ramp
co ft. Dock cility
$414 ($212)

Long Term (Charlie Dock) Additional Continue Re- A second
$2,512 Five Acre construction complete
Container Garapan Pier Boat ramp
yard 11280 ft." facility
$300
$224 $212

$6,164 $414 $300 $749 $.424

HIGHWAY TRANSPORTATION

Highway transportation improvements will play a vital role
in the development of Saipan. A well-integrated, dependable,
improved highway system will ensure safe, efficient, and
convenient intra-island transportation services responsive
to the mobility requirements of people and goods.

Although the existing road network on Saipan is relatively
well-developed, its physical condition can generally be con-
sidered as worn out. Furthermore, Beach Road and certain
other major highways now experience heavy traffic congestion
during peak travel hours. An ambitious, extensive highway
development program will be required to keep pace with, as
well as support, the needs of the evolving Saipan economy.

EXISTING CONDITIONS

The existing road system on Saipan originates from two sources:
The network of unimproved primary roads constructed by the
Japanese prior to World War II, and the improved roads cons-
tructed by the American Armed Forces shortly after occupation
in 1944. Most of the paved roads are over 30 years old and
have deteriorated due to the absence of a regular maintenance
program. Cracks indicating pavement failure, and pot holes
and slumps indicating subgrade failure are evident everywhere.
More importantly, it should be realized that the useable life
of portions of the road system could be extended with the
implementation of an asphalt overlay program; however, unless
such a program is undertaken relatively soon roads which are
salvagable in their present condition will require major re-
construction due to further deterioration.

Previous Authority for Administering Improvements

The Government of the Northern Mariana Islands has been
responsible for construction and maintenance of primary

281

and secondary roads in the Northern Marianas, while the muni-
cipalities were tasked with the construction and maintenance
of their respective municipal roads.

At the Government of the Northern Mariana Islands level, road
improvements have been performed by the Roads/Airports/Grounds/
Heavy Equipment Branch of the Operations and Maintenance
Division of GNMI Department of Public Works. However, since
the Branch has many and varied responsibilities, road work
was never been actually funded as a specific budget item.

At the municipal level, road programs have been funded by
grants-in-aid from the Northern Mariana Islands Legislature,
based on the share of fuel excise taxes collected in each
municipality. The Saipan Municipal Government includes a
Public Works section consisting of about 19 personnel with
an annual budget of nearly $108,000. In Rota and Tinian,
road work is handled by the GNMI Public Works Offices on
those islands, with funding on a direct, a non-reimbursable
basis.

Previous Planning and Road Improvement Efforts

In 1974 the District Planner prepared a Road Development Plan
which recommended that some 90 miles be improved or recons-
tructed on Saipan. The-estimated cost for the program was
$19.5 million. Other than the resurfacing of airport road,
no construction or road work other than maintenance has been

initiated.

The highway plan was re-evaluated in 1976 with recommendations
that about 203 miles of roads in the Northern Mariana Islands
be constructed or reconstructed. The revised Plan was synthe-
sized into a Five-Year Road Development Program with an
estimated cost of $43,000,000. The program indicated that
approximately 91 miles of Saipan's roadway system required
reconstruction.

282

over the years, no large scale road maintenance or construction
has taken place in the Northern Marianas, reportedly due to
inadequate program funding and to a lack of proper road equip-
ment. With a few exceptions, which will be addressed later,
road work has been limited to temporary or emergency road
repairs such as patching, culvert cleaning, and occasional
drainage improvements. To be sure, the glaring lack of proper
drainage facilities appears to be one of the major factors which
have contributed to the general deterioration of the Northern
Mariana Islands road system.

In addition to the limited maintenance that has been performed
to date, there have been several Capital Improvement Projects
(CIP) appropriations for road development over the years. Spe-
cifically, various CIP grants received by the Trust Territory
Government from the U. S. Congress, plus CIP appropriations
by the Congress of Micronesia for the Marianas, have provided
sources of funds for road improvements and road equipment
purchases. Since FY 1969, total CIP appropriations from both

sources available to the Northern Marianas have amounted to
$239,500. Individual projects included in this sum are pre-
sented in Table 42.

PLANNING FACTORS

Road classification

In theory, roads in the Northern Mariana Islands are catego-
rized as "primary" roads, those serving the major points of
activity for the resident population; "secondary" roads, those
of lesser use which tend to connect village or communities;
and "local" roads, those which function as either residential
or intra-village streets. It should be noted that a functional
classification of the road network does not yet exist. In
many instances the roadway functions are not well defined as
certain roads serve not only as primary, but also as collect-
ors and even residential or local streets. An approximate

283

TABLE 42

PAST CIP APPROPRIATIONS FOR NMI ROAD SUBSECTOR

Source Appropriation Purpose FY

Trust Territory $ 55,000 Hot Asphalt paving 75
of road to Saipan
International Airport

Trust Territory $ 50,000 Surfacing of Kagman 72
Road

Congress of Micronesia $ 37,000 Road and Street Light-72
ing (,NMI-wide); Road
Surface dividers,
Saipan

Trust Territory $ 50,000 Grading and coral 70
surfacing of Rota
Airfield - to Song-
song Village Road

Congress of Micronesia $ 47,GGG P.urchase of Road 69
Equipment

TABLE 43

SAIPAN AS-BUILT ROADWAY-SYSTEM

Improved Primary Roads 35 to 40 miles

Unimproved Primary and
Secondary Roads 20 to 25 miles

Municipal (Local) streets 11 miles

284

classification of the "as-built" roadway system into primary-,
secondary and local roads for Saipan is presented in Table 43
(see preceding page) and illustrated on Plate 28.

It is interesting to note that there is a striking imbalance
in the ratio of primary and secondary roads to local streets.
This "inverted pyramid" of primary to local roads resulted
from an intense, accelerated roadway development program
conducted by the Japanese before World War II and subsequently
by the U. S. Military forces. In contrast, in mainland com-
munities where roadway development has been gradual, the mile-
age of local streets greatly exceeds that of primary and
secondary roads. The costs of upkeep and maintenance of the
present system far exceed the ability to pay for such a mass-
ive road network which has been in existence since World War

II.

Vehicle Registration

In 1976 there were 3,775 private vehicles registered in Saipan.
There were approximately 475 government vehicles registered
by either the Trust Territory or the Northern Marianas Govern-
ment. Total number of vehicles on Saipan was slightly in
excess of 4,200 vehicles. Table 44 indicates private vehicle
registration on Saipan for the years 1965 to 1976. The number
of privately owned registered vehicles on Saipan has almost
quadrupled since 1966 and since 1974 has more than doubled.

It is anticipated that the number of private vehicles will
increase dramatically with increasing population and increased
income. Should the car/population ratio approach that of Guam
it can be expected that private vehicle ownership will increase
to eight or nine thousand during the short range plan period.

General Traffic Conditions

Generally traffic conditions in Saipan are good with most
traffic moving freely on the expansive roadway system cons-
tructed by the U. S. Military shortly after the island's
occupation in 1944.
285

TABLE 44

VEHICLE REGISTRATION FOR SAIPAN, M. I.

SEDAN JEEP PICK/UP TRUCK BUS M/CYCLE TOTAL

9/9/76 2769 150 623 88 50 95 3775

1975 2343 151 624 66 36 ill 3331

1974 2189 159 487 76 40 144 3095

1973 1992 145 461 69 23 180 2870

1972 1783 144 403 52 23 233 2638

1971 1655 170 384 55 23 125 2412

1970 1422 187 340 58 19 98 2124

1969 1229 202 279 42 16 74 1857

1968 1032 279 220 45 19 85 1680

1967 663 290 131 21 21 85 1211

Source: Saivan Municipal Government
Vehicle Registration

286

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one area of Saipan and one road in particular does have some
significant traffic congestion problems - specifically, the
village of Chalan Kanoa and Beach Road. Beach Road is a two-
lane roadway which presently functions as the primary road
for north - south traffic on the Island. In Chalan Kanoa it
also functions as the' major arterial, and the main collector
road for all local traffic. Beach Road is the only road
which provides continuous access to many of the island's major
traffic generators including the dock and harbor, government
offices, Civic Center, hotels and commercial centers, and
four of the seven villages.

To date there has been no continuous or systematic traffic
counting program for the Northern Marianas. Therefore, one-
week manual count at 9 different locations was conducted

in order to measure traffic trends. Results of these counts
are presented and analyzed in the next section.

Traffic Volumes and Analysis

Although traffic conditions are qualitatively observed by all
users on the road network, it is essential to quantity traffic

volumes for several reasons:

� Trends must be identified. Rates of traffic growth on
specific highway and road segments are prime indicators
in setting priorities for repairs, maintenance, and up-
grading.

� Precise volumes for segments are vital for determining
the number of traffic lanes, their widths, and proper
shoulder and appurtenances configurations.

� The location of traffic control devices such as signing,
lane markings, and signals are directly determined by
present and projected volumes.

289

Finally, present and potential bottlenecks in the circu-
lation system are best determined through quantitative
analysis of volume counts.

For these reasons, immediate action has been taken to develop
an initial traffic count program. Nine locations were selected,
based on qualitative analysis of the present circulation system.
A series of sixteen-hour turning and volume counts was con-
ducted. Although limited in sample observation, a sufficient
number of cross-checks were made to validate the data. The
sixteen-hour counts were extrapolated to show average daily
volume for the count day. Several important initial findings
are evident from an analysis of the counts.

� Beach Road from the Wallace Highway intersection towards
Susupe/Chalan Kanoa carries the highest volume of traffic,
with an extrapolated total daily count of 11,500. Based
on a peak hour volume of 10 percent of this amount (1,150),
this segment may well exceed its maximum carrying capacity
during this planning horizon, i. e., by 1985.

� Beach Road from the Wallace Highway intersection towards
Garapan carries the next highest volume of 8200 vehicles
per day, considerably more than the parallel West Coast
Highway.

� The Beach Road/Wallace Highway and the West Coast Highway/
Wallace Highway intersections have significant volumes.
Although not of magnitudes requiring immediate signaliza-
tion, these adjacent intersections constitute a system
which could require signalization if present growth trends
continue.

� Wallace Highway volumes already exceed 6000 vehicles per
day. Given accelerated growth of airport activity and normal
growth trends, this segment could reach the maximum tolerable
carrying capacity within the plan period.

290

If present trends continue, and there is no reason to assume
otherwise, the following scenario can be anticipated to occur
within the plan period. Beach Road, especially the segment
from the Wallace Highway intersection towards Chalan Kanoa
will become annoyingly congested, leading to excessive travel
time delays and greatly increased accident rates. Congestion
will develop at the intersections of Wallace Highway with
Beach Road and the West Coast Highway, resulting from queues
of traffic waiting to negotiate cross-traffic movements.

A solution to these problems would be to widen Beach Road to
four or more lanes, and to install traffic lights along Wallace
Highway at the Beach Road and West Coast Highway intersections.
However, intersection signalization requires an entirely new
maintenance and control technology which is very expensive
and which will create hazards during times of power outages.
Such solutions, however, are often self-defeating, for short
term improvements in flow soon generate additional traffic
which outpaces the additional carrying capacity provided by
the improvements.

An alternate solution would be to disperse the traffic flow,
and to provide redundancy within and build flexibility into
the network. Alternate routes provide minimum overall net-
work travel times, insure network serviceability in the event
of a natural disaster such as typhoon or earthquake, and pro-
vide for support of a balanced urban development pattern.
For these reasons, management of the highway transportation
system may best be accomplished through the development of a
dual access highway system.

Highway Development Alternatives

The development of roads in the Northern Mariana Islands falls
into four basic alternative types of improvement:

1. New Construction
2. Major Reconstruction

291

3. Surface Treatment

4. Stabilization

New construction will involve the full-scale development, in-
cluding paving and construction of roads and drainage facili-
ties, on presently unimproved roads or trails, or the creation
of routes where none now exist. Major reconstruction will
involve the reconstruction of existing paved roads to include
the major upgrading of the complete road structural section,
paving and appropriate roadside drainage facilities. New
construction and major reconstruction will be chiefly confined
to the Primary and Secondary road network and important village

Collector Streets.

Surface treatments involve overlays, slurry sealing or fine
grading of base course followed by successive single or'multi-
ple applications of asphalt and aggregate. Surface treatments
can be classified in most cases, as semi-permanent road im-
provements which are designed to either prolong the life of
certain existing primary and secondary roads, or to upgrade
local roads with anticipated light, intermittent traffic load-

ings.

Finally, stabilization improvements involve road travel sur-
face or shoulder treatment with oil or asphalt derivatives
to provide a temporary weather-resistant surface and to control
dust. Stabilization improvements will be limited to existing
rural roads with very light traffic loadings such as access
roads to agricultural homesteads, grazing lands and certain
scenic roads.

Highway Development Costs

The 1976 study prepared by the Northern Marianas Department
of Public Works (Roads and Grounds Branch) estimated capital
improvement costs to be in excess of $40,000,000 for the
Northern Marianas for a full-scale road development program.

292

Although this amount may be difficult to accept considering
available resources, it is certainly indicative of the magni-
tude of highway funds that will be required in the future to
upgrade the present roadway system.

The cost for developing each segment of road will depend upon
the type and extent of improvements. New construction and
major reconstruction efforts will cost more than surface treat-
ments or stabilization. Furthermore, a two-lane highway faci-
lity would be less expensive for a given length than a four-
lane facility. Road development program costs have been stand-
ardized by categories of improvement in order to provide a
basis for preparing and prioritizing a highway program budget.

Table 45 presents design and construction cost estimates for
various categories of highway improvements. Typical Cross
Sections of the principal roads are illustrated on Plate 29.

HIGHWAY TRANSPORTATION PROGRAM DEVELOPMENT

It is essential to define goals and objectives of the Highway
Transportation program to ensure the development of standards
by which program recommendations can be evaluated. The plan
envisions a transportation system that will provide access to
and from residential, commercial and industrial centers, as
well as public facilities.

objectives are realized through the implementation of policies
and capital improvements over a finite, reasonable span of
time commensurate with available resources. The goals and
associated objectives of the program are presented in Table
46.

Recommended Program Implementation Strategy

The most crucial step in the highway transportation planning
process is the development of an implementation strategy.
The goals and objectives established for the program require

293

TABLE 45

HIGHWAY PROGPJkM DEVELOPMENT COSTS

I. New construction or Major Reconstruction Development Costs

COST COST
ROAD TS SHLDR PVMT BASE PER PER REMARKS
WIDTH WIDTH TH TH MILE L.F.

A. Primary-Rural 24' 8' 2.5" 8" $ 55.70 $ 294,096 A. Includes provisions for road,
(paved) side surface drainage facili
ties

B. Primary-Urban 48' 81 3" 811 97.25 513,480 B. Includes-4 foot flush median
(paved) and roadside drainage facili
ties

C. Primary- 701 --- 3" 81, 192.90 1,018,512 C. Includes 16 foot flush media
Ultimate curbs, gutters, sidewalks an
underground drainage facili-
ties

D. Secondary- 22' 81 2.5" 81. 44.40 234,432 D. Includes, roadside surface
Rural (stab.) drainage

E. Seconeary- 44' --- 2.5" 81, 124.85 659,208 E. Includes, curbs, gutters, si
Urban walk and 16 foot median/turn
ing lane

F. Tertiary- 24' 10, 2" 6" 52.70 278,256 F. Includes two 10 foot parking
Collector lanes, curbs, gutters and
sidewalks

G. Tertiarv- 24' --- 2" 6" 67.25 355,080 G. Includes curbs, gutters and
Residential- sidewalks
Urban

H. Tertiary- 201 41 2" 6" 31.50 166,320 H. Includes limited roadside
Residential drainage and sidewalks
Rural

II. Double Surface Treatment: Includes grading, construction of 6 to
8 inches of base course and double bitu-
minous surface treatment of a travel sur-
face width of 22 feet. Four to six foot
wide stabilized shoulder and minimal
roadwide drainage improvements.

COST PER MILE . . . . . . . . . . . . . . . . . . . $ 85,000

III. Road Stabilization Includes minimal grading and construc-
tion of 6 to 8 inches of base course
and stabilization with asphalt emulsion
of a 22 foot wide travel surface.

COST PER MILE . . . . . . . . . . . . . . . . . . . $ 75,000

294

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TABLE 46

RECOMMENDED GOALS AND OBJECTIVES

Goals objectives

I. Transportation Performance

To develop and implement a trans- To develop a transportation system
portation system which ensures which diminishes the dangers of driv-
safe, efficient, and convenient ing-accidents, and resulting injuries.
transportation services respon-
sive to the mobility require- To develop a transportation system
ment of the people and goods on which improves accessibility to all
the island. activities on Saipan.

To develop an efficient and economical-
ly feasible transportation system
which meets present and future mobility
requirements.

II. Transportation Balance

Provide the optimum highway trans- To utilize transportation resources as
portation facilities to complement a tool in the solution of Saipan's
the social and political aspirations most pressing social and economic pro-
of the island. blems, to include the improvement of
access to and from residential, com-
mercial, industrial centers and public
facilities.

To develop a nultimodal approach to
transportation planning which avoids
the total dependence on automobiles.

III. Support National & Local Interests

Incorporate and develop local trans- To develop a transportation system
portation plans and programs within which will function during a natural
the context of developing national emergency or disaster.
and local transportation interests.
To develop a transportation network
which supports or improves the economic
diversity of Saipan and the Commonwealth.

IV. Environmental Protection and
Preservation

To design and implement transportation To design and construct transportation
systems that encourage users to real- facilities to help conserve energy and
ize the natural beauty of the island other natural resources and which re-
and that protects the social and eco- duces the total need for new public
logical fabric of the community. investment.

To coordinate and integrate Saipan's
transportation facilities with surround-
ing activities so that these facilities
contribute to the enrichment of the
physical environment of the island.

297

that ambitious and extensive plans be formulated within the
financial capabilities of the Commonwealth and in accordance
with development policies previously mentioned. It is evi-
dent, however, that the financial resources of the Commonwealth
are limited and that initial highway transportation projects
must be undertaken using NMI Capital Improvement Program funds
identified by the Socioeconomic Plan in combination with U. S.
Federal Highway Administration funds.

The following recommendations which deal with the administra-
tive and operational activities of the program which must be
set in motion as a prerequisite to the proper, logical plan-
ning design and construction of highway improvements.

GNMI must take immediate steps to cause the Federal
Highway Act to be amended to include the Commonwealth
of the Northern Mariana Islands. Furthermore, GNMI
should request yearly federal fund apportionments com-
mensurate with its ability to provide matching local

funds.

The Government of the Northern Mariana Islands must
organize and establish an administrative and opera-
tional hierarchy to properly undertake the highway
transportation planning, engineering, construction
and maintenance activities. The level of funding
will dictate the level of staffing required. Quali-
fied professional planners and engineers must be
recruited and appropriately placed in the government
with a mandate to instill in local profesionals the
administrative and technical skills necessary to ope-
rate and maintain the program.

It is recommended that the highway transportation plan-
ning, engineering and maintenance functions be placed
under the Department of Public Works and in separate

298

divisions or sections. To optimize manpower and
financial resources, GNMI should concentrate on
program administration, operation and maintenance,
and execute actual design and construction of trans-
portation facilities through consultant and cons-
truction contracts.

Finally, it is recommended that GNMI identify and
designated the function of each segment of road on
Saipan and establish a Functional Road Classification
System which will define the standards to which speci-
fic roads must be improved.

Table 47 sets forth functions, associated responsibilities
and the type of professional resources required for proper
operation and maintenance of a Highway Transportation Deve-
lopment Program.

It is recommended that implementation of the Highway Transporta-
tion Development Program be accomplished in three phases. The
first phase, or the Short Range plan, will coincide with the
plan period, or seven (7) years hence. The second and third
phases, or, collectively, the Long Range Plan, will follow in
successive increments beyond 1985.

The Short Range Plan - Phase I

The physical measure of the success of highway program efforts
is embodied in the actual construction of highway projects.
The Short Range Plan will focus on the reconstruction of exist-
ing highways and the construction of major highways where only
coral base roads now exist. It will also include the upgrad-
ing of certain roads which serve as access to scenic or tourist-
attraction areas.

299

TABLE 47

HIGHWAY DEVELOPMENT PROGRAM FUNCTIONS/RESPONSIBILITIES

Function Program Responsibility Profes3ional
Staffing Requirements
*Develop and implement a Comprehensive High- TransDortation Planner
way Transportation Plan for the island.
Highway/Civil FnQineer
*Establish the bases for the desiqn and con- (with highwav planning
struction of highway improvements through experience)
collection, evaluation and synthesis of
I. Planning traffic data. Statistical Analyst
*Maintain an inventory of condition of exist- Draftsman/Technician
ing transportation facilities.

*Determine highway improvement priorities
and participate in the formulation of CIP
budgets.

*Administer and implement highway safety-
related programs.

*Develop and establish highway de S4 gn cri- Highway/Civil Project Engin-
II. Engineering teria and standards. eers.
and *Design or contract for and administer the Surveyor and survey aids
design of highway improvement nrojects.
Design *Regulate the design of streets and roads Draftsmen
which will eventually become public by pre-
scriptive rights or dedication.

*Administer contracts for the construction Highwav/Civil Project
III. Construction of highway projects. Engineers
Administration *Provide material quality control and Inspectors/Technicians
inspection of highway projects.

*Acquire rights-of-way (ROW) or easements Surveyor
required for the construction of high-
IV. Right-of-Way way facilities. Survey aids
Acquisition
*Prepare and process maps and other docu- Land agents
ments and negotiate for the acquisition
of ROW's and easements.

*Operate and maintain highway transporta- Highway Maintenance (Civil)
V. Maintenance tion facilities. Engineer
*Construct small segments of road. Traffic Signal Maintenance
Technician (electrician
*Operate and maintain traffic signs and with traffic signal main-
signals. tenance experience)

*Develop and establish policies and pro- Heavy Equipment Operators
cedures, as well as issue and enforce and laborers
permits for highway encroachments and
crossings.

300

The plan seeks to develop alternative routes to those that are
presently heavily congested. Accordingly, the plan will em-
phasize utilization of West Coast Highways vis-a-vis Beach
Road. This will require the reconstruction of West Coast
Highway including its intersection with Wallace Highway and
its extension southward to As Perdido Road along the alignment
of what is now Texas Road.

This project will not only alleviate the most pressing problem
associated with the present system -- the overcrowding of
Beach Road from Wallace Highway toward Susupe/Chalan Kanoa --
it will also establish a multi-access primary circulation
pattern throughout Susupe and Chalan Kanoa.

Included in the plan will be the upgrading of As Perdido Road
to provide improved, quick access to the Airport and the pro-
posed new residential subdivision at Kobler Field from Chalan
Kanoa and other commercial, residential and industrial centers
on the western side of the island.

Wallace Highway will be reconstructed from Beach Road to
Cross Island Road leading to San Vicente Village to improve
the existing travel surface as well as the level of service
of this primary route.

The reconstruction of other major roads, namely Micro Beach
Road and portions of Beach Road, will be undertaken to im-
prove their travel surfaces and levels of service, as well
as to enhance proposed commercial and institutional develop-
ment along their rights-of-way.

Cha-Cha Road will be upgraded to improve access to agricul-
tural developments in the Kagman area. A small segment of
Navy Hill Road will be reconstructed to provide improved

301

access to the proposed new hospital site on Navy Hill. Certain
village streets and roads which serve as access to scenic
areas will be upgraded using local funds, totalling over $1.7
million.

Table 48 lists the projects proposed to be undertaken during
the plan period as well as the amounts of local and federal
matching funds programmed over the next seven (7) years. The
locations of the road proposed for construction are illustrated
on Plate 28 (See Page

The Long Range Plan -- Phases 2 and 3

The Highway Transportation Development Program will continue
beyond the plan period for as long as improvements to the
transportation system are required. However, for planning
purposes, the Long Range Plan will cover the next fourteen
(14) years in successive seven (7) year increments, i. e.,
Program Phases 2 and 3. The Long Range Plan will continue
to focus on the reconstruction of the existing highway net-

work.

Since funds have not been identified beyond 1985, it is dif-
ficult to determine the financial resources which can be
used to continue Phases 2 and 3 of the Highway Development
Program. However, specific projects have been identified and
recommended for implementation based on a subjective analy-
sis of the remaining useful life of critical portions of the
transportation network as well as the need to stimulate
commercial and industrial development in certain areas. The
segments of road recommended to be reconstructed under the
Long Range Plan are also illustrated on Plate 28 (See Page 287).

302

TABLE 4 8

Proposed Saipan Highway Improvement Projects -- Short Range Plan

NMI
ROAD SEGMENT Miles (Federal) FY FY FY FY FY FY
Contribution 1978 1979 1980 1981 1982 1983

Wallace Road 1.5 270 270 -- -- -- -- --
(630) (630)
Beach Road 1.2 108 108
(252) (252)
(Oleai-Susupe) .2)
(Chalan-Kanoa,Chalan Piao) (1.0)
Texas Road Bypass 2.0 300 -- 200 100
(700) (467) (233)
Micro Beach Road .5 45 -- 45
Cw Inner Road (105) (105)
w(Oleai-Capital Hill Turnoff 5.5 515 256 259
(1,192) (596) (596)
New Hospital Road .3 27 -- 27
(63) (63)
San Vicente Approach .5 45 -- 45
(105) (105)
Kagman Road 1.0 90 90
(210) (210)
South Island Airport 3.0 300 -- -- --
Access Road (700)
Selected Scenic Roads -- -- 80 80 80
Village Roads 200 180 -- -- 180

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