CNMI marine parks management plan

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

CNMI MARINE PARKS
MANAGEMENT PLAN

Prepared For
Coastal Resources Management Off ice
Saipan COASTAL ZONP-
HNFORMATION CENT2R
OH Prepared By
91.75 Pacific Basin Environmental Consultants, Inc.
N67 Guam
P33
1985 March 1985

TABLE OF CONTENTS

Page

Table of Contents i
List of Figures U - S- . DEPARTMENT OF COMMERCE NOAA iv
List of Tables v
Summary and Recommendations COASTAL SERVICES CENTER S1
2234 SOUTH H0F3(-J'N AV@Ntj@
I. INTRODUCTION CHARLESTON , SC 29405-@4 1 "3 1
A. Purpose of Marine Parks I
B. Concept of Underwater Preservation 2
1. Early Park Examples 2
2. International Marine Parks 3
C. Development of Marine Parks 4
D. General Management Plan for Maine Parks in the CNMI 6
1. Sites 6
2. Resources 6
3. Environment 6
4. Management Zoning 7
5. Resource Management 7
6. Interpretation 7
7. Personnel for Operation and Maintenance, Monitoring
and Enforcement 9
8. Funding 9
E. Management Objectives 10
1. Conservation of Natural Resources 10
2. Preservation of Cultural and Historical Resources 10
3. Acquisition of Information 10
4. Promote Visitor Use 11
5. Promote Visitor Safety 11
6. Provide Interpretation 11
7. Insure Safe Operation 12
F. Immediate Development Concept 12
1. Priority 13

Ii. THE ENVIRONMENT 15
A. A Brief History of the Mariana Islands 15
1. General Statement 15
2. History and Political Development 17
3. Population, Employment and Wages 20
4. Present Economy and Infrastructure 22
5. Prospects for Economic Development 25
B. Marine Resources in the CNMI 30
1. General Statement 30
2. Reefs 31
3. Lagoons 32
@4. Subtidal Reef Flat Platforms 35

PAGE
C. Recreational Resources in the CNMI 35
D. Cultural and Historic Resources in the CNMI 36
E. Socioeconomic Environment 37
1. Micronesia in General 37
2o Saipan 39
3. Rota and Tinian 39
F. Existing Development and Use of Marine Resources 40
1. CNMI Wide 40
.2. Saipan 40
3. Tinian 43
4. Rota 44
G. Description of the Visitor 45
1. Visitor Profile and Origin 45
2. Visitation Trends 47
3. Visitor Activity Preference 49

III. RECOMMENDED SITES 50
A. Saipan 50
B. Tinian 53
C. Rota 55

IV. THE MANAGEMENT PLAN 57
A. Resource Management and Zoning 57
1. Zoning 57
a. Outstanding Natural Feature Zone 57
b. Natural Environment Zone 57
c. Conservation Zone 58
2. Resource Management 58
a. Natural Resources 58
b. Cultural and Historical Resources 59
c. Recreational Resources 61
B. Visitor Use and Interpretation 61
1. Orientation 61
2. Underwater Trails 62
3. Non-Diver Park Use 67
4. Other Park Features 68
5. Site Specific Interpretation 68
a. Saipan 68
b. Tinian 70
c. Rota 71
C. Operation 73
1. General Statement 73
2. Advisory Board 73
3. Staf f 74
4. Policy Guidelines for Visitor and Diver Use 76
5. Emergency Procedures 77
D. Enforcement and Monitoring 77
E. Violations and Fines 78

PAGE
F. Summary of Cost 79
1. General Statement 79
2. Additional Studies 80
3. Land Acquisition 81
C Personnel 81
5. Development of Facilities 82
6. Equipment 83
7. Annual Operating and Maintenance
Expense 83
G. Program Projections 84

REFERENCES
APPENDICIES
A. Legislation
B. Memorandum of Understanding
C, Rules and Regulations

LIST OF FIGURES

Figures Page

1. The Mariana Islands 16

2. Saipan Managaha Island Marine Park 51

3. Tinian Taga Beach Marine Park 54

4. Rota Sasanhaya Bay Marine Park 56

5. Interpretive Display Concept 63

6. Example of Underwater Site Marker 65

7. Flow Diagram of CNMI Marine Parks Advisory Board 74

LIST OF TABLES

Table Page

1. Northern Marianas Population Projection, CY 1980 - 2000 21

2. Government of CNMI- Projected Capital Improvement Plan
Activities, FY1981 - FY1987 28

3. Annual Percent Change of Visitor Arrivals in the CNMI
By Fiscal Year, 1971 - 1973 47

4. Total Visitor Arrivals and Percent Change by Month
for FY1983 1984 48

SUMMARY AND RECOMMENDATIONS

The marine environment of the Commonwealth of the Northern Mariana

Islands (CNMI) contains important resources of significant natural, cultural

and recreational value. To ensure that representative examples of these re-

sources are preserved and that their historical, cultural and recreational

potential is realized, the Coastal Resources Management Office (CRMO) has

established a Marine Parks Program. The program consists of acquiring

marine and terrestrial lands from the Commonwealth Government, developing

the sites as necessary. and thereafter managing them as marine parks, re-

serves or recreational areas. This plan will provide proper direction for the

proposed program.

Three marine parks have been recommended, one each for the major

islands of Saipan, Tinian and Rota as follows:

Saipan: Managaha Island Marine Park

Tinian: Taga Beach Marine Park

Rota: Sasanhaya Bay Marine Park

Each of the parks are comprised mostly of submarine lands with minimal

terrestrial support land with the exception of the Saipan park which encom-

passes all of Managaha Island.

The marine parks program will:

1. Preserve the best representative examples of natural resources

found in coastal and inland waters.

2. Provide a variety of underwater recreational opportunities, with

emphasis on underwater areas near population centers.

3.- Preserve scenic underwater resources.

4. Preserve significant historical or cultural underwater resources.

The marine parks program will be implemented by the following actions.

1. The CRNI Office will appoint an advisory board for marine parks in

the CN`MI. This board will provide for the systematic management

of each proposed site to identify natural, recreational, scenic,

historic and cultural resources.

2. The Marine Parks Advisory Board will be comprised of several

government agencies each with a vested interest in tourism develop-

ment, recreational opportunities and historical, cultural and envi-

ronmental preservation. The following agencies are suggested:

Historic Preservation Office; Department of Natural Resources and

Divisions of Fish and Wildlife and Parks and Recreation; Marianas

Visitors Bureau; Department of Public Safety; and the Legislature.

Each agency will be represented by one individual appointed to

serve a term of one (1) year on the Board except the CRMO and

Legislature which will be appointed for two (2) years. Ap-

pointments will be staggered for the sake of board continuity.

3. The Advisory Board will indicate to the Marianas Public Land Corpo-

ration those submarine and terrestrial lands that should be placed

into the marine parks program and will request that jurisdiction of

these lands be transferred to the program in fee or on a long-term

lease basis.

Selected areas within the three proposed marine parks will be zoned

according to compatible recreational uses and the desired level of protection.

Three zones are proposed:

A. Outstanding Natural Feature Zone. This zone will include

underwater nature trails where there will be no taking of marine

life or other artifacts.

B. Natural Environment Zone. The majority of each marine park will

be designated as such and managed to allow environmentally

compatible recreational activities most of which already exist.

C. Conservation Zone. Areas are zoned as conservation to perpetuate

ecological values. Only subsistence fishing will be allowed in these

areas.

The Management Plan outlines the manner in which these marine parks

will be managed, used, operated, inforced and monitored. Included are cost

estimates for future expansion programs and program projections.

INTRODUCTION

A. PURPOSE OF MARINE PARKS

Marine parks, underwater preserves, marine sanctuaries and similar

areas are established to accommodate many purposes including:

- Perpetuation of an unspoiled natural submerged area and the

significant features it possesses without the impact of

damaging ones

- Restoration and rejuvenation of a submerged or tidal area

that has been degraded

- Protection, restoration and perpetuation of unique species of

marine life

Research and education

- Recreation and tourism

- Provision of a buffer zone

Acceptable uses and activities that may be permitted within a marine

park or preserve are governed by the primary purposes for which it is

established. Many visitor activities, such as swimming, skindiving,

surfing, boating, nature study and photography are nonconsumptive and

appropriate within a marine park. However, some of these activities

might be disruptive to marine life in areas devoted to research.

Taking living organisms out of marine parks, collecting - historical

artifacts or damaging geological formations are prohibited in marine parks

in most countries. However, in some areas limited commercial, sub-

sistance or sport fishing is allowed under strict control. A specific

protected underwater area may be zoned to accommodate varying degrees

of protection and management.

B. CONCEPT OF UNDERWATER PRESERVATION

The concept of preserving underwater areas is not new. Some

native peoples on oceanic islands, who were totally dependent on pro-

ducts of the sea for basic survival, established taboos that prohibited or

restricted use of certain inshore areas and specific forms of marine life

centuries ago. Although the primary reason for those restricted areas is

not known, it is assumed that the resources would be protected for

future generations by such action.

1. Early Park Examples

When the boundaries of the Everglades National Park in Florida

were established in 1934, they included submerged lands and waters

of Florida Bay and the coastal zone that extended four miles into the

Gulf of Mexico. The following year, the vast submerged lands and

waters of the Dry Tortugas in the Gulf were set aside for protection

as a large marine park when Fort Jefferson National Monument was

created by Presidential Proclamation. Subsequently, in 1957, the

Government of the Bahamas created the Exhumas Cays Land and Sea

Park to protect not only unique coral reefs and marine features but

terrestrial environments and animal life as well. California followed

in April of 1960 with the establishment of the Point Lobos Marine

Preserve. Also in 1960, a Presidental Proclamation provided protec-

tion for the reefs off the Florida Keys that extended beyond the

three-mile zone by designating the area as the Key Largo Coral Reef

Preserve. The state of Florida next set aside portions of the reef

and waters that are located shoreward from the preserve and incor-

porated them in the John Pennekamp Coral Reef State Park, dedi-

cated in 1960.

Since this small beginning, numerous marine parks, underwater

preserves and other types of natural preservation plans have been

established in virtually every coastal state and many situated on

rivers and estuaries.

2. International Marine Parks

The need for international marine parks, preserves and sanctu-

aries for visitor use and scientific research has also been recog-

nized. A proposal to create a system of international marine scien-

tific preserves was presented to the United Nations in 1968. This

original proposal spun-off numerous possibilities, some of which have

developed into active international organizations like the International

Union for the Conservation of Nature and Natural Resources (IUCN),

Man and the Biosphere (MAB) program as a part of UNESCO, The

African Leadership Foundation, World Wildlife Fund and many others.

Antarctica, an area larger than the United States, is intoto an

international nature preserve, set aside for 25 years by a treaty

signed by the countries participating in the exploration of the re-

gion. Antartica represents a vast international marine resource as

well as all marine life in the oceans below 600 south latitude, which

are also restricted for scientific purposes.

An inventory of the oceanic islands of the Pacific was conducted

by the International Biological Program in cooperation with the IUCN

and the Pacific Science Association. The basis for this study was to

determine how unique island ecosystems can be preserved and in-

corporated into an international "islands for science" program. In

addition, a comprehensive inventory of the recreational, scenic,

natural and historic values of America's islands was prepared by the

U.S. Bureau of Outdoor Recreation. This report proposed coopera-

tion at all levels of government for island conservation and recom-

mended that governments provide protective zones for underwater

areas adjoining islands.

C. DEVELOPMENT OF MARINE PARKS

Progressive stages in the establishment of marine parks vary from

country to country according to existing laws, procedures, jurisdictions

and public opinion. However, there are certain steps that provide for

the acquisition, orderly development, operation, management and use of

the marine resources identified within the park system. The following

should be considered at a minimum-

- Establish the concept of marine resource conservation and a

public understanding and appreciation of the needs to pre-

serve the marine environment

- Inventory the coastal environment to determine types of

ecosystems* present, their state of preservation, present

uses, impact of these uses, and the identification of signi-

ficant species, features and areas that require special pro-

tection

Based upon this inventory, classify the ecosystems into

theme groups, such as tide pool, coral reefs, seagrass beds,

etc.

Conduct detailed studi6s of individual sites to determine

their significance and boundaries required for desired degree

of protection. Determine the feasibility of establishing the

areas as underwater parks and define development pro-

cedures that must be followed

Select the most representative areas and those that most

urgently need protection from the areas that received at-

tention

Prepare a master plan of the specific sites to indicate the

primary purposes, proposed boundaries, facilities and develop-

ment needs, types of uses and activities that are permissible

and those that should be prohibited, management and opera-

tional requirements

Secure authorization tor the area by legislative action

declaration, proclamation, or other legal avenues

Establish appropriate rules and regulations

Acquire the lands and waters if not already government

owned

Develop the area in accord with the master plan

Operate, manage, protect and use the area. This involves

adequate enforcement of necessary rules and regulations,

provision for health and safety of visitors, protection for

marine life and other park features, maintenance of facilities

and the interpretation of park features

D. GENERAL MANAGEMENT PLAN FOR MARINE PARKS IN THE CNMI

The general management plan is designed to maintain current uses

and practices within the selected sites, limit the future exploitation of

those areas in terms of fishing, harvesting or collecting, improve some

facilities and services and provide long-range plans for the preservation

of natural resources as the visitor population increases. Site specific

management plans for each of the three proposed marine parks and

details of the following items will be prepared based on need.

1. Sites

This management plan identifies one site for each of the three

major islands in the Commonwealth of the Northern Mariana Islands

(CNMI) Saipan, Tinian and Rota. Sites are selected based on field

evaluations, supporting data, CNMI government input, the need for

preservation and public opinion. Development of sites has been

prioritized based on present use level and degree of economic impact

to the CNMI. These sites are discussed later in this plan.

2. Resources

Resources within each of the sites are discussed in general terms

for this management plan. Natural, historic and cultural resources

are identified and keyed to specific development issues.

3. Environment

This plan discusses the general environment of the CNMI in

broad terms, specifically for each island and site specific only in

terms of existing data. Elements to be covered include-

- General History of the CNMI

- Natural Environment (Marine Resources)

Socioeconomic Environment

Existing Development and Use of Marine Resources

Recreational Resources

Cultural and Historic Resources

Visitor Profile

4. Management Zoning

Proposed management zoning and use emphasis is defined within

this general management plan in the form ot narrative and maps.

For the sake of this general management plan, zoning criteria include

the following generalized concepts:

- Outstanding Natural Feature Zone (A)

- Environmental Zone (B)

- Conservation Zone (C)

5. Resource Management

Resources found within marine park boundaries will require

management to ensure proper protection. Each of these resources

must be maintained in their present state or improved depending on

their condition. Resources include the following:

- Recreational

- Natural (Marine and terrestrial)

- Historical

- Cultural

6. interpretation

For a fuller understanding and appreciation of the marine eco-

system within a marine park, it is important that an imaginative

interpretive program be developed. This program should tell the

story of the marine world to the visitor in terms he can readily

understand and by methods that will place him in closer contact with

the underwater environment. Methods that are currently being used

elsewhere include: glass bottom boats, underwater observation

rooms, guided and self-guiding underwater nature trails with sub-

merged markers explaining specific features, illustrated guide book-

lets, video movies, illustrated lectures and guided trips along the

shoreline.

Creative imagination must be employed to develop additional site

specific methods that may be used to effectively interpret undersea

life. Procedures, devices and methods to be used are those that will

not destroy, damage or impair the features being displayed. Some

methods may be for use by swimmers while "dry methods" will be

required for individuals who do not or cannot go in the water.

Closed circuit television and hydrophones, plastic covered guide

books or plates that identify the common forms of marine life,. pas-

senger-carrying submersibles, underwater tubes and walkways,

floating craft with submerged viewing rooms and underwater obser-

vation rooms are among some of the methods being used in other

areas. Exactly which of these methods are utilized depends on a

number of factors:

- Layout of the site

- Depth of water

- Number of visitors

- Available development capital

7. fersonnel For Operation and Maintenance, Monitoring and

Enforcement

The management plan identifies general needs in terms of per-

sonnel for operation, maintenance scheduling, monitoring and enforce-

ment activities. More specific needs will come out of each successive

marine park management plan as they are developed.

8. Funding

Not the least important element of this general management plan

are the costs associated with developing the essential elements.

Costs are based on the following categories:

- Personnel

*In-House

*Local Hire

- Consultation

*CNMI: General Marine Park Management Plan

*Saipan: Managaha Island Management Plan

*Tinian: Taga Beach Marine Park Management Plan

*Rota. Sasanhaya Bay Marine Park Management Plan

- Improvements

*Underwater Trial Interpretation

*Visitor Orientation Center Interpretation

*Video Interpretation

- Equipment

*Boat and Motor

*Vehicle

*Scuba Gear

E. MANAGEMENT OBJECTIVES

The following seven management objectives are designed to protect

and preserve the delicate ecological balance of selected sites chosen for

inclusion in the CNMI Marine Parks Program.

1. Conservation of Natural Resources

- To assure long-term perpetuation of the coral reef and

associated biota as well as native vegetation, wildlife and

other natural resources of selected park sites and to mini-

mize adverse effects of human acti vities on these resources

- To maintain the highest possible quality of the park's rare,

threatened or endangered species and their habitat

- To reduce the adverse impact of exotic or nuisance species,

such as Acanthaster planci (crown -of-thorn s starfish, jelly-

fish, rats and others) on native flora and fauna

- To ensure that the - aesthetic quality of the barrier and

fringing reefs is not impaired by structures or other in-

trusions

- To ensure that the subsistence taking of selected marine

life, such as lobsters, shells, fish and others do not effect

the ecological balance of the general area

2. Preservation of Cultural and Historical Resources

To identify, evaluate, preserve and protect the parks cultural

and historical resources in a manner consistent with executive and

legislative requirements and the CNMI Historic Preservation Program,

3. Acquisition of Information

To secure adequate information, through research, moni-

toring or other means to enable efficient and effective man-

agement of the parks resources

To evaluate the effects of subsistence and commercial fishing

and shell-fishing on selected areas of the parks

To locate and evaluate sources of pollution that may be

having adverse effects on the condition of the parks ter-

restrial and marine ecosystem

4. Promote Visitor Use

To make opportunities for day use recreational activities,

such as picnicking, hiking, fishing, shellfishing, swimming

and snorkeling at levels and in locations where they are

compatible with long-term perpetuation of the parks ter-

restrial and marine resources

5. Promote Visitor Safety

- To promote public awareness of potential hazards associated

with boating, snorkeling, hiking and other activities and

thereby help ensure a safe and enjoyable park experience

for all visitors

- To minimize congestion, promote sound seamanship practices

and ensure public safety in the vicinity of underwater trails

- To ensure that visitors are well informed on the poisonous

characteristics ot certain marine animals and terrestrial flora

6. Provide Interpretation

To promote public understanding and appreciation of the

ecology of the barrier and fringing reef and the sensitivity

of the fragile ecosystem to the adverse effects of human.

activities

To ensure that the techniques used for underwater interpre-

tation are effective and provide the visitor with high quality

experiences that do not adversely affect the reef environ-

ment

To foster public awareness of natural terrestrial and marine

flora and fauna resources in the CNMI including processes

needed for the continuing evolution and the influences which

may adversely affect them, as well as the increasing impor-

tance of the park in conserving these resources as the CNMI

continues to develop

7. Insure Safe Operation

To improve efficiency of general park operations for the

benefit and safety of all park visitors

F. IMMEDIATE DEVELOPMENT CONCEPT

The general development concept plan designates one site on each of

the three islands of Saipan, Tinian and Rota for inclusion in the marine

parks program. These sites (discussed in Part III of report) will then

be prioritized and developed according to need. Depending on present

level of development, the park might change very little from more than

official designation as a marine park. This may be the case for the Rota

and Tinian Sites. However, it is anticipated that the Saipan Site may

immediately benefit from the park designation because of existing use.

Obviously, the present level of use by local residents and visitors will

determine the clegree of immediate transformation and at what rate develop-

ment may occur.

Additional site:.@ may be added to the marine parks program for

preservation dependlng on th:! Future need for additional facilities re-

sulting from increased visitor arrivals or local resident use.

1. Priority

Development of the Managaha Island Marine Park appears to be

the first priority in the CNMI based on present level of use.

Managaha Island and the surrounding reefs exhibit numerous natural

resources of significance. Traditional and cultural uses make the

area special and valuable. Historical remains abound in the area on

land and underwater. Approximately 150 - 200 Japanese Tourists

visit Managaha Island daily and local resident use of this island is

popular particularly on weekends. The island itself has both

historical and cultural value and includes gun placements, bunkers

and other materials from World War 11 and an ancient Carolinian

burial site.

The island of Managaha is considered sacred by the Carolinians

because of the burial site of Chief Agrub dating back to 1819.

Managaha is unique because it supports a variety of medicinal

plants. Culturally, the island is special and sacred because

"Firowrowa" is performed here, the traditional practice of burning

clothes and other personal posessions of the deceased.

In the waters surrounding Managaha Island can be found

numerous war related artifacts, wrecked ships and airplanes, barges

and an assortment of war related debris. The coral reef sur-

rounding Managaha Island is diverse and beautiful and has been

used traditionally by the Carolinians and Saipanese for subsistence

fishing and gathering. This is the site where the largest fish was

speared during the 1984 Santa Remedio Spearfishing Tournament.

Scuba and skin diving groups freq uent the waters around Managaha.

Island as do windsurfers, sailors and waterskiers.

Although the ancient Carolinin Chiefs did not intend their

preservation of Managaha Island to encourage development, the

island has become a popular tourist destination for Japanese visitors

and a picknicking site for local residents. It is frequented by

nearly 85% of all tourists who visit the CNML Because of the inten-

sive pressure placed on the natural, cultural and historical resources

on and surrounding Managaha Island, protection at some level is

essential to preserve these resources. The inclusion and prompt

development of the area as a Marine Park will help to protect these

resources while allowing existing activities to continue.

Development of Marine Parks on the Islands of Rota and Tinian,

beyond legislation and simple identification is not warranted at this

time. Neither present use levels nor resource degradation pose a

serious threat to these resources. These parks will be developed

later when the level of use increases.

II. THE ENVIRONMENT

A. BRIEF HISTORY OF THE MARIANA ISLANDS

1. General Statements

The CNMI is composed of 16 islands which have a combined total

land area of 510 square kilometers (kM2) (184 square miles (mi7).

The chain extends 730 kilometers (km) (440 miles (mi)) from Farallon

de Pajaros (Uracas) in the north to Rota in the south (Figure 1).

The United States Territory of Guam lies only 205 km (127 mi) to the

south of Saipan. Only six of the islands in the CNMI--Saipan,

Tinian, Rota, Alamagan, Anatahan, and Agrihan--are regularly

inhabited. Pagan is now uninhabited as a result of recent volcanic

eruptions. Saipan, Tinian and Rota account for 65% of the land area

of the Commonwealth, 99% of the population and nearly all of the

economic activity.

Geologically, the Northern Mariana Islands are moderately high

mountainous islands of volcanic origin. The Marianas are part of the

Palau- Yap - Mariana-Japan trench system which forms the boundary

between Asia and the true Pacific Basin. The island chain is aligned

along the crest of the gulf that is associated with the great Mariana

trench nearly 10 km (6 mi) deep. -In the southern islands, coralline

limestone covers the old volcanic formation forming unique and

diverse coral reefs. Saipan is the only island with a sizable lagoon

that extends almost the entire length of the western side of the

island.

The climate of the CNMI is tropical, uniformly warm and humid.

Saipan is reputed to have one of the world's most equable climates

Farallon de Pajaros

0
Maug Islancis

Asuncion island

Cj Agrihan

OP Pagan

Alamagan

Guguan

Sarigan

Anatahan

Farallon de Mr-dinilla
ff
SAI PAN
TINIAN
Aguijan
PROJECT
LOCATION

ROTA

GUAM
0 50 100 miles

FIGURE 1. THE MARIANA ISLANDS

with an average year-round temperature of 270C (810F). In the

Marianas wind and rainfall are the most variable elements with dis-

tinct dry and rainy seasons. December - April and June - October

respectively. November and May are transitional months. Average

yearly rainfall is 130 centimeters (cm) (50 inches (in); over half of

it falls between July and October.

From July through November, typhoons with winds in excess of

300 km/h (180 mph) periodically sweep through the 'islands.

Flooding and wind damaged vegetation are a common result of storms

with winds above 100 km/h. Storms of this sort are very des-

tructive and are particularly hard on structures of all kinds.

2. History and Political Development

Present day inhabitants of the CNMI are the descendants of the

original Chamorro settlers of the islands, Carolinians, and a growing

number of Asian settlers including many Filipinos, Koreans and

Japanese who are engaged in the construction and service in-

dustries. The Chamorros who settled the islands, probably in the

third or fourth century A.D., were reputed to be tall, warlike and

fearsome. The first European visitor to what is now the CNMI may

have been Ferdinand Magellan, who landed in Guam in 1521. Sub-

sequent to Magellan's departure, the islands in the CNMI were

virtually ignored until the arrival of Spanish Jesuits in 1668. The

priests Christainized the archipelago "Marianas" in honor of Queen

Maria Anna, widow of Philip of Spain and patroness of the first

missionaries. In 1565 a Spaniard, Don Legazpi, formally proclaimed

the Mariana Islands to be Spanish territory. However, for a century

after Don Legazpi's visit Spain made no effort to colonize the islands

using them mainly as a watering and provisioning stop on the sailing

route from Acapulco to Manila. During this time, persecution,

famine and disease so depopulated the islands that, by 1698, all of

the remaining inhabitants had been removed to Guam. By 1780 the

number of Chamorros even on Guam had fallen to less than 2,000.

Saipan was repopulated in the nineteenth century, initially by

Carolinian sailors from the Eastern Caroline islands who received

permission from the Spanish Governor on Guam to settle there in

1815. Later, it also became home to people of partial Chamorro

decent whose parents had been forcibly evacuated from the Northern

Marianas by the Spaniards earlier. They were also attracted by the

possibility of engaging in copra production and of having greater

freedom from Spanish control than they had on Guam.

In 1899, after its defeat in the Spanish-American War, Spain

ceded Guam to the United States and sold the Northern Marianas,

along with the rest of Micronesia, to Germany for $4.5 million.

The Marianas proved to be an economic liability to Germany

because of scarce resources and distance from Europe. Commerce

never took off as expected. At the beginning of World War I, the

islands were taken by Japan without struggle. In 1920, the League

of Nations formalized this wartime seizure by placing the Northern

Marianas, as well as the Carolines and the Marshalls under a League

of Nations Mandate to Japan.

During the Japanese period (1914-1944), the islands acquired

new significance. They lay along routes of Japanese economic ex-

pansion and were considered strategically vital to Japan. Japanese

commercial enterprises and colonization brought development to the

Mariana's. Much of the still existing and utilized infrastructure such

as roads, docks and water system are from this era. Sugar and

starch (sugar cane, taro and cassava) production dominated economic

life at the time. Fishing also contributed to the economy. By 1937

there were 47,000 residents in the Marianas, most of whom were

Japanese citizens or nationals, Okinawans and Koreans. Natives

numbered only 4,000. Garapan Village in Saipan became a thriving

commercial town of 15,000 by 1941.

World War II radically transformed the Marianas. Ninety percent

of the local population survived but vegetation and agriculture lay in

ruins. Withdrawal of troops left a landscape cluttered with air-

strips, abandoned installations, piles of waste, live ammunition of all

kinds (artillery shells, mortar shells, hand grenades) and a com-

pletely altered indigenous society. At first, the islands were placed

under naval administration. Then, on July 18, 1947 the Security

Council of the United Nations and the United States entered into a

Trusteeship Agreement, covering all of the former Japanese mandated

islands, including the Northern Marianas, the Eastern and Western

Carolines and the Marshall Islands.

In March., 1976, both the people of the Northern Marianas and

the United States Congress approved a Covenant to establish the

Commonwealth of the Northern Mariana Islands. Then, on April 1,

1976, the Northern Marianas separated from the rest of the Trust

Territory and became separately administered, moving toward

eventual Commonwealth status. By popular referendum, the people

of the Northern Marianas adopted the Northern Marianas

Constitution, subsequently approved by the United States

Government. The Constitution of the Northern Marianas became

effective on January 9, 1978 and the people witnessed the inaugu-

ration of their first elected governor, legislators and other elected

officials. Establishment of the CNMI government meant that Saipan

was now the site of the headquarters for both the Trust Territory of

the Pacific Islands (TTPI) government and the new CNMI govern-

ment. Subsequently, the TTPI became the Federated States of the

Micronesia (FSM) with headquarters on Pohnpei. This marked the

first time in more than 400 years that the people of the Northern

Marianas played an active part in choosing their own government.

3. Population, Employment and Wages

According to the 1980 census, 20,000 people live in the CNML

Saipan (125 square kilometers, 45 square miles) is home for 17,500

people, Rota (90 square kilometers, 32 square miles) 1500 and Tinian

(110 square kilometers, 40 square miles) approximately 1000. The

population of Alamagan (12 square kilometers, 4 square miles) is less

than 50 and only sporadically populated. The same is true of Pagan

which has not been populated since its active volcano erupted in

1981-1982 drawing its 50 or so residents away to Saipan.

The Micronesian population of the CNMI is relatively young, In

1980, over 45% of all Micronesians in the CNMI were under the age of

15 years. This age structure results from a high birth rate,

relatively low infant mortality and a high death rate in older people.

Table 1 presents population projections through the year 2000.

Table 1. Northern Marianas Population Projection CY 1980 - 2000.

Sex Age Group 1980 1981 1982 1983 1984 1985 1990 2000

Both Total 16,758 17,596 18,575 19,598 20,576 22,165 23*320 32,630
0-14 7,613 7,991 8,456 8,884 9,339 10,111 10:890 15,210
15-64 8,622 9,052 9,513 10,082 10,483 11,335 11,673 17,060
65-over 523 553 606 632 671 721 757 860

ale Total 8,457 8,886 9,378 9,875 10,362 11,161 11,780 16,26n
0-14 3,885 4,080 4,320 4,534 4,774 5,130 5,566 7,770
15-64 4,326 4,547 4,778 5,047 5,269 5@687 5,853 8,580
65-over 246 259 280 294 319 344 361 410

Female Total 8,301 8,710 9,197 9,723 10,205 11,006 11,540 16,370
0-14 3,728 3,911 4,136 4,350 4,565 4,981 5,324 7,440
15-64 4,2�6 4,505 4,735 5,035 5,214 5,648 5,820 8,480
61-over 271 294 326 338 352 377 396 410

Estimates are based on the 1980 Population Census Preliminary Data. The cohort-component
method ol population projection is used to obtain the estimate..

The present Micronesian labor force in the CNMI probably num-

bers about 5000, or about 64% of the total Micronesian population

over the age of 15 years. Measured in terms of employment and

wage and salary payments, it appears that the private sector has

undergone real expansion since the advent of Commonwealth status.

Tax returns indicate that between 1977 and 1980, total wage and

salary payments doubled in the private sector and the number of

persons employed rose by 25%. In contrast, the government sector

expanded only 32% in wage and salary payments and actually declined

in the total number of employees. Overall, money wage and salary

income appears to be steadily increasing. In 1975, the total was

$21.5 million and rose to $41.9 million in 1980 ($29.5 million in 1975

dollars). Per person, the annual wage rose from $3491 to $5494

($3869 in 1975 dollars), an 11% increase.

Although the growth has been extraordinary for a Pacific Island

nation, the CNMI does not enjoy the standard of living and the

benefits of a typical mainland community or the closest neighboring

United States possession, the Territory of Guam.

4. Present Economy and Infrastructure

In the years prior to World War I, the economy of the Marianas

was mainly a- subsistence economy based on fishing and gathering.

In the Japanese years, those between World Wars I and II, agri-

culture became the mainstay of the Northern Marianas' economy.

Since World War II, this agricultural pattern has changed dramat-

ically with only 240 ha (600 acres) now under cultivation and 9100 ha

(22,500 acres) in grazing. There are probably fewer than 100

full-time commercial farmers or ranchers throughout the CNML

Fishing in the Commonwealth is largely subsistence supplemented by

a few small to medium sized commercial operations. Most families in

the CNMI engage in casual or subsistence fishing from time to time,

but persons engaged in serious full-time fishing probably number no

more than 200.

Growth of the visitor industry has been dramatic since the mid

1970's when direct air service to and from Japan was established in

1977. Total visitors to the Commonwealth numbered 119,370 in 1980,

an increase of 134% in just four years. Tourism is now the leading

private sector activity in the Commonwealth with 131,823 visitors in

1984.

Construction, retailing and a range of service enterprises ac-

count for most private sector activity. As of 1983 nearly 1000

different businesses were active in the CNML General merchan-

dising, retailing, wholesaling and importing make up about 26%,. while

miscellaneous services (car rentals, auto and appliance repair,

tailoring, tour services and printing) account for 35% of the busi-

nesses. Construction and construction supply comprise 11%, while

hotels, bars and restaurants also make up about 11% of business.

Facilities and infrastructure throughout the CNMI are in need of

substantial expansion and maintenance if economic development is to

continue. The Saipan water system does not meet the demands of

consumers and is still turned off during the evening hours to permit

recharging of storage tanks. Apparently, much of the productive

water capacity is being lost to leaks in the systems. Recently,

Covenant Capital Improvement Project (CIP) funds have bee n tapped

to improve the water system through new water mains and dis-

tribution lines in four major areas of Saipan including a new 760

kiloliter (200,000 gallon) reservoir and booster pump. As a result,

more areas have better water service. However, most areas sti.11

experience water hours.

Electric power service is provided by the CNMI Public Works

Department. The power supply and distribution system on Saipan

have grown less and less reliable over the years as a result of

increases in demand coupled with inadequate maintenance of equip-

ment. Although the power source for Saipan was upgraded in 1983

with a new oil-fired plant of 21 MW capacity, additional investment

will be required to improve the power distribution system which has

deteriorated.

Only a small percentage of the island residences have solid waste

pick-up service. Waste that is collected is disposed in a nealy full

landfill at the edge of the lagoon directly upwind from the center of

tourist development in Garapan. Suitable alternate solid waste

disposal sites are presently being studied.

The Commonwealth Government maintains and operates a short

wave radio for communications with the northern islands and ships

within the territorial waters of the Marianas. A commercial cable TV

station also operates on Saipan. The islands of Saipan, Rota and

Tinian are served by Micronesian Telecommunications Inc. (MTC), a

subsidiary of Hawaiian Telephone. The telephone service is limited

and will require major improvements to meet demand in the future.

Health care services in the Commonwealth are provided by the

Department of Public Health and Environmental Services, which is

publicly funded. No private physicians practice in the CNML Dr.

Torres Hospital, an 84-bed former United States Army field hospital

constructed in 1962, is the major health care facility in the Common-

wealth. Both its in-patient and out-patient facilities are heavily

used. The hospital has been unable to meet the requirements for

the accreditation required to obtain reimbursement under Medicaid.

A new hospital is currently being built and completion is scheduled

in early 1986. Other health care facilities include a Public Health

Center in Chalan Kanoa, and a dispensary on -Agrihan. Semi-

hospital (despensary facilities) with full-time physicians and nursing

staff operate on Tinian and Rota.

5. Prospects For Economic Development

The Commonwealth, along with the other Pacific island govern-

ments, must plan for economic development under constraints of

limited land, water, natural resources and capital. Three promising

areas for future development are tourism, agriculture and fisheries.

Attainment of long-range development objectives depends on proper

planning, development of infrastructure and utilization of available

resources. One of the most important resources is the human re-

source. Population projections in Table 1 indicate a CNMI population

of almost 33,000 by the year 2000, and, as now, 45% will be under

the age of 15. Providing the education to prepare residents of the

CNMI for jobs that will contribute to economic growth is a major task

now facing the government.

Present policies regarding the importation of alien labor to the

GNMI attempts to strike a balance between strictness and responsive-

ness to meet the needs of the labor market. Existing regulations

allow alien labor to meet demonstrated needs, but only after it has

been determined that qualified local labor is not available.

According to recent estimates, about 8600 ha (921,140 acres), or

18% of the total Commonwealth land area, are in private hands. All

other lands in the CNMI, roughly 39,000 ha (96,300 acres), are

public lands and belong collectively to the people of the Common-

wealth who are of Northern Marianas descent. Much of the island of

Tinian has been set aside for possible use by the United States

Department of Defense. The relatively large proportion of public

land results from the Japanese and German administrative policy to

take lands not enclosed and cultivated, thus preventing the ac-

cumulation of large private land holdings such as one sees, for

example, in Hawaii. The magnitude of public land holdings give the

government of the CNMI an unusually broad latitude in developing

land use plans.

One special institutional factor related to the use of land re-

sources may influence development of the Commonwealth. Ownership

of land is limited constitutionally and in the Covenant to persons of

Northern Marianas descent. Persons of Northern Marianas descent

are defined as either individuals of at least one-quarter Northern

Marianas Chamorro or Carolinian blood, or corporations whose director-

ships and voting are held 51% by such individuals. It is important

to note, however, that these restrictions have not discouraged

foreign investment in the visitor industry, the Commonwealth's

leading private sector economic activity. Leases are bought and sold

regularly. Deeds are held by legitimate holding companies.

Relative to its population size and economic base, the Common-

.wealth possesses impressive public sector financial resources for

development. These resources derive primarily from the financial

relationships established between the Commonwealth and the United

States under the Covenant. However, the Commonwealth does not

have sufficient financial resources to implement all the long range

infrastructural projects necessary to meet the federal water and

health standards and local socio-economic development needs. The

CNMI government is attempting to make the most effective use of

local funds, including Covenant funds, to maximize the impact upon

the economy and to encourage private sector growth.

To assist the CNMI in becoming more self supporting and to

achieve progressively higher standards of living for its people, the

Covenant commits the United States Government to provide direct

budgetary support payments to the CNMI. These payments are

earmarked for government operations, capital improvements and

economic development loans. Table 2 gives a general listing of

anticipated expenditures for the period FY 1981 through FY 1987.

Covenant grants are set at $14 million annually in FY 1975

dollars and adjusted to compensate for inflation. Covenant direct

grants represented approximately 62% of the resources available to

CNMI in FY 1981, excluding unobligated prior year balances.

Table 2. Government of CNMI-. Projected CIP Plan
Activities, FY 1981 - FY 1987.

SECTOR AMOUNT (millions of 1980 dollars)

Health 1.0

Education 6.2

Natural Resources 3.2

Public Safety 0.5

Community Affairs 0.8

Housing 1.0

Public Works (Power) 9.4

Public Works (Water) 12.1

Public Works (Sewer & Sanitary) 1.7

Public Works (Roads) 6.0

Ports and Harbors 3.9

Public Buildings 3.0

Administration 2.7

Total $51.5 million

The Covenant stipulates that direct grants to the CNMI will be

provided for a period of seven full fiscal years from the establish-

ment of the Commonwealth. This means that the direct grants will

continue through FY 1985. After FY 1985, the CNMI will continue to

receive the grants at the same annual level plus inflation adjustments

until Congress appropriates different amounts.

The Commonwealth also raises revenues from internal sources.

Total GNMI internal revenues were estimated at about $9.7 million for

fiscal year 1980. Major sources of internal revenue are excise taxes

levied on petroleum and other products imported into the Common-

wealth for sale, lease, or rental ($2.4 million in FY 1980), graduated

taxes on individual wage and salary earnings ($994,000 in FY 1980)

and gross receipts of businesses ($1.8 million in FY 1980).

The Commonwealth's principal advantages are those of geographic

location, a tropical climate and great natural beauty. Hardly further

from Japan than Miami is from New York makes the CNMI an ideal

tourist destination for the populous and affluent Japanese market.

In addition, the Hong Kong and Taipai tourist market is being

expanded. The effects of this market will eventually be felt as more

tourists from these areas visit the GNMI. The growing demand for

new tourism experiences in the United States may also enhance the

tourist industry in the CNMI.

In a remarkably short time, the visitor industry has become the

leading source of export earnings and the source of about one-fourth

of CNMI private employment. The strategic issues for the next few

years are, primarily, how to keep the tlow of tourists increasing in

the face of increased competition, and secondly, how to increase the

net domestic income per tourist-day. It is expected that the visitor

industry will continue to lead the private sector in the

Commonwealth.

The major flow of tourists has been created by the air service

between Saipan and Japan and will, in the future, depend on the

number of seats in that service as well as the availability of hotel

rooms on Saipan. Personnel in the Marianas Visitor Bureau (MVB)

believe that the world petroleum situation, and the resulting in-

creases in air fares may combine to enhance the competitive position

of tourisim in the CNMI over other destinations in the Pacific like

Hawaii.

Saipan's location has other advantages. The strategic importance

of the Northern Marianas in the Western Pacific is recognized in the

Covenant between the United States and the CNMI. The United

States has exercised its option to use much of Tinian for military

purposes. Development for this purpose will have significant

economic impact. The close proximity to abundant marine resources

presents the possibilities of increased fishing, fish processing and

the development of other marine related activities. In addition, its

location, so -close to East Asia markets, may prove attractive to

United States firms desiring a forward office based in a

Commonwealth with United States ties.

B. MARINE RESOURCES IN THE CNMI

1. General Statement

The Mariana Islands are rich in marine resources and may in fact

represent the area's greatest resource. Historically, the ocean

provided for the islanders basic protein needs from the fish taken

for food. Even today a certain level of subsistence living is taken

from the ocean. To a larger extent foreign fishing fleets pirate tons

of fish from these waters only to be sent back in cans and sold in

local markets.

The basis for marine life in these islands, like all other islands,

are the diverse coral reefs. These reefs form over thousands of

years building the structure upon and within which a myrid of sea

creatures live and breed. It is these reefs that support the vast

array of marine life that makes these islands rich in marine re-

sources.

The shorelines and immediate coastal regions of Saipan, Tinian

and Rota can be divided into four basic zones; Rocky shorelines,

beaches, low-lying shorelines which support intertidal vegetation and

man-made or altered shorelines. In addition, the shoreline is bor-

dered by fringing reefs and erosional bench platforms. True reefs

have developed by direct organic creation by corals, corraline algae

and associated reef organisms. On Saipan and Tinian offshore

barrier reefs with shallow lagoons exist along their western coast-

line, more significant on Saipan.

2. Reefs

Shallow reef-flat platforms are intermittently developed along the

shorelines of Saipan, Tinian and Rota. Offshore barrier reefs

separated from the shore by shallow lagoons are developed along the

leeward coasts of Saipan and Tinian, more so on Saipan. Although

there is an absence of shallow fringing reef flat platforms on Rota

and Tinian, this does not mean that reefs are absent or that reef

building does not occur on the offshore slopes. Studies show that

most of ihe deeper subtidal slopes and terraces of all the islands are

covered with a variety of corals, benthic algae and a variety of reef

associated organisms. In fact, greater diversity of flora and fauna

and reef development has been observed in these areas. On nu-

merous offshore slopes and terraces along the shore, reef deposits

are accumulating and well developed channel and buttress, spur and

grove systems are evident.

These reefs provide habitats for a wide variety of marine life of

which the fish are dominant and provide islanders with a plentiful

food source and an enjoyable form of recreation. These reefs harbor

other edible forms for marine life, such as the lobster, octopus,

clams, shells, shellfish and certain species of algae. Because of the

diversity of marine life associated with coral reefs, one can also find

larger predators, like the shark, barracuda and morey eel.

Coral reefs are often isolated from land and in these cases are

usually within rough water areas. However, in most cases coral

reefs border the coastline and have a calm water element along the

shoreward side or lagoon. It is in these calm water lagoons where

the greatest recreation is derived for the visitor. Marine life

abounds in these calm waters with little hassle or danger from rough

water and swiftly moving currents. There is even reduced danger

in lagoons from sharks or other large predators.

3. Lagoons

Lagoons can be found on the leeward (west) side of Saipan and

to a lesser degree on the west side of Tinian. The entire west coast

of Saipan represents the single largest lagoon in the Mariana Islands

and is, on the average about 15 feet deep. Depths of 45 feet are

found only in the shipping channel which was dredged in the 1940's

for harbor improvements. Within this sparkling lagoon is found an

astounding complexity of marine life.

Managaha island is the only offshore island associated with

Saipan located inside the barrier reef within the lagoon and at the

entrance to Tanapag Harbor. The island is vegetated with Iron-

wood, Coconut, Banyan, Messerschmidia, Scaevola and a variety of

ornamentals brought in during recent development for the benefit of

visitors.

The shallow water environment surrounding Managaha island

supports a healthy coral reef. Patch reefs and clusters of coral

heads are found along the northwest side of the island and these

extend seaward where they fuse to form the solid barrier reef for-

mation.

The island of Managaha and its associated lagoon and coral

resources represent the single largest natural attraction for visitors

to this island. It is estimated that nearly 85 percent of all Saipan

visitors spend a day on Managaha island enjoying the natural beach,

ocean and coral reef. (More about Managaha island later in this

report as a site for further development as a marine park).

Tinian enjoys limited lagoon development along its west coast

near the harbor. A breakwall was built upon remnants of a barrier

reef for harbor improvements during WWII. The majority of the

adjacent lagoon was destroyed by dredging and filling operators

during construction of the harbor. However, a small patch reef

remains as a focal point of interest in regards to coral reef develop-

ment in the area. This patch reef can be described as an irregular

oval reef with some local patches of sand, gravel and coral algal

rubble in localized holes and depressions. Corals are abundant and

diverse on the platform and subtidal slopes.

Rota does not have a well developed lagoon formation. There

are areas along the west coast, within the well defined reef-flat

platform, that show signs of an emerging lagoon. However, these

areas are extremely small and shallow.

Common to all lagoon and semi-lagoon areas in these islands are

depths between 3 - 45 ft. The floor is relatively flat and undu-

latory with mostly a sandy bottom and scattered coral-algal rubble of

unknown thickness in deep areas, becoming a thin veneer over

reef-rock pavement in numerous places along the shoreline. The

outer portion is sandy with more coral-algal rubble particularly along

the border of the barrier reef where local areas of irregular reef are

exposed. There are numerous coral mounds throughout the lagoons,

particularly the Saipan lagoon, smaller and less frequent in smaller

lagoons or semi-lagoons (Tinian and Rota). Corals are usually

absent to widely scattered along the inner part of the lagoon and

more abundant in the outer lagoon where it grades into the barrier

reef.

Seagrasses are scattered throughout the Saipan lagoon mostly

within 100 m of the shoreline. No seagrass patches are found within

the immediate vicinity of Managaha Island. Seagrasses form patches

or a thick turf depending on species and location. On Rota and

Tinian, seagrasses are found less often but do exist in a few calm

inlets or bays where sandy bottoms prevail.

4. Subtidal Reef Flat Platforms

These platforms are usually submerged during low tides. During

low spring tides, water circulation on the platforms is commonly

reduced or even restricted at places and depauperate reef com-

muni ties similar to those found in intertidal platforms are present.

The more diverse reef communities are found on deeper parts of the

platforms or where good water circulation is found. In general,

coral distribution on the subtidal platform is absent to widely scat-

tered on the inner third, scattered to locally abundant at the middle

third and most abundant on the outer third. Coral diversity follows

a similar pattern with one to five species generally present on the

inner platform increasing to 20 or more on the outer seaward edge.

It is safe to state that the majority of coastline around the

islands of Rota and Tinian are composed of rocky shorelines and reef

flat platforms. Saipan also has a signiticant amount of these for-

mations, however, they are more dominant along the windward (east)

coast.

C. RECREATIONA L RESOURCES IN THE CNMI

Recreational resources in the CNMI abound on land and in and on

the water. Throughout all the islands in the CNNII one can find a.

variety of recreational outlets. Though not high islands, these specs

in the ocean offer wilderness trails, waterfalls, lush tropical limestone

rain forests, lakes, marshes, wetlands, mangrove forests, active and

dormant volcanoes and a dazzling array of wildlife. The islands are not

lacking in spectacular vistas, majestic overlooks and exquisite sun sets.

In addition, all of these terrestrial recreational resources are surrounded

by the ocean with its incredible diversity of marine life.

It has been stated that these islands are truly for the outdoor water

oriented person, for exploring, hiking, camping, diving, fishing,

sailing, boating, skiing, surfing, beach combing, sunbathing and swim-

ming. It is a place to relax and enjoy the pristine environment. To

marvel in the beauty of majestic sunsets and bathe in the serenity of the

ocean. It is a place to be one with the environment either sitting on a

windy mountain top, surfing on a crashing wave or diving in quite

serenity.

D. CULTURAL AND HISTORIC RESOURCES IN THE CNMI

Culturally and historically, these islands have played an important

role in the development of island nations and world powers. These

islands were first settled by seafearing people from the Asian continent.

In their small oceangoing sailing canoes, small groups wandered away

from the traditional eastward Polynesian migration up into the Western

Pacific settling in the Carolines and Marianas. Slowly the population

increased as more and more migrations were made and as those already

inhabiting the islands proliferated.

The islanders, called Chamorros, were a tall strong and stately

people who farmed, fished and sailed the oceans in fast ocean going

proas. They inhabited the coastal low -lands, farmed the rich fertile

valleys and fished the reefs and lagoons.

The original settlers developed their own pottery, weapons, fishing

and hunting tools and lived a casual subsistence life. They danced and

sang for recreation and ceremony and were considered a happy, healthy

and peaceful people.

Culturally, the islanders today are only a fraction of what they were

originally. Occupations by four separate nations have changed the gene

pool completely. Their strong tie to the ocean is nearly gone and many

residents do not know how to swim. Their language is particularly

Spanish and their religion is strongly Catholic brought on by the

Spanish occupation. Their physical stature has been reduced to a

smaller people. Traditional fishing and gathering and sailing techniques

are nearly all lost in history where only a few hundred miles away in the

Caroline Islands, these practices still exist day to day. Regardless of

the cultural losses over time, the culture is still strong in history.

Numerous artifacts still exist and the people have a proud heritage.

E. SOCIOECONOMIC ED"WIRONMENT

1. Micronesia in General

After the war, these islands were handed over to the United

States in a United Nations Trusteeship agreement and administered

by the Navy. However, little if any improvements were made for at

least ten years. In the mid 1950's the Navy appointed governors for

these islands and, consequently, they were run like battleships.

There was no free access to the islands and one required special

permission to enter or exit them. Little was done to clear up the

physical mess caused by the war effort and the islands sat idle until

the early 1960's when the economics of tourism from Japan began to

gain importance.

The "Baby Boom" generation after the war produced a massive

Japanese population of well educated, hard working individuals who

wanted to see the world. Blessed with peacetime and a rapidly

improving economy, the Japanese people were beginning to spend

their leisure time and money on travel. They took notice if the

tropical mecca existing nearly in their own backyard and arrivals to

the CNMI began to pick up steadily. Airlines saw this potential and

established direct travel routes between Japan and Guam in 1970. It

was not long before direct routes were operating between Japan and

Saipan.

Tourism always brings with it significant support facilities and

so the economy began to improve steadily. At the same time, the

United Nations Trusteeship agreement was beginning to show signs

of weakness. Many of the islands bounded by this agreement were

looking for independence or some other association that would prove

more beneficial. The Northern Mariana Islands was the first to

break out of this agreement by forming a Commonwealth in as-

sociation with the United States. Still others broke out like the

Republic of Palau and Independent State of the Marshall Islands.

The island groups of Truk, Pohnpei (formerly Ponape), Kosrae

(formerly Kusai) and Yap comprise the new Federated States of

Micronesia, a remnant of the original United Nation Trusteeship

agreement. Each of these islands entities remains tied to the United

States economically. However, recent negotiations are underway

between Palau and the other U.K. and Soviets for economic aid.

2. Saipan

Of the three major islands representing the CNMI, Saipan enjoys

the highest economic level. Most residents on Saipan enjoy a com-

fortable style of living and the pace of life is casual. Although,

jobs are available, the general pay scale is low. Many unskilled jobs

are taken by aliens such as Filipinos, Koreans and Chinese who will

work for lower wages. Chamorros, for the most part, work for the

CNMI Government which is heavily overstaffed like most island

governments.

Saipan has six major hotels, numerous clubs and restaurants and

diverse support facilities for tourists. It is a tourist destination

with enough momentum to support itself. However, tourism on

Saipan is still in a development stage with three hotels planned in

the near future. These include the following: Diamond Hotel, Japan

Air Lines Hotel and Surf Hotel extension.

3. Rota and Tinian

Both Rota and Tinian are underdeveloped islands with strong

economic potential in the future. Large parcels on Tinian have

already been leased to the United States Marines for training ex-

ercises. Although only approximately 200 soldiers show up each

year, it is understood that the area will grow significatly when

government use and development picks up. Rota is a beautiful lush

island, much like Saipan. However, the vegetation is hardly altered

by wartime activities like on Saipan. The island of Rota has

tremendous potential as a tourist destination and already boasts the

luxury Pau-Pau Hotel, less expensive, Blue Peninsula and the

bungalow type Coconut Village. The level of economy is small in

comparison to Saipan. However, present state of development is

changing and stands as a testimony of what may come.

F. EXISTING DEVELOPMENT, USE AND DEGRADATION OF MARINE

RESOURCES

1. CNMI Wide

The people of the Marianas Islands have traditionally utilized

resources from the ocean for their daily existance. 'Ancient

Chamorros fished and gathered a variety of foods from the oceans

depths, coral reefs and shallow lagoons. These people were closely

linked to the ocean not only for food but also to communicate be-

tween islands of close proximity. Traditional recreational uses of the

ocean has always played an important role in the daily life of these

people.

Today there is less dependence on the ocean for food or daily

sustenance. Although the people still prefer many of the local

seafoods, they are able to purchase similar types in local stores

now, Often, these seafood products are caught in local waters by

the Japanese, canned or packed in Japan and shipped back to the

Marianas to be consumed by local residents. The need for sub-

sistan.ce fishing and gathering in the islands is rapidly vanishing.

Although it will never completely disappear, subsistence fishing and

gathering is becoming more and more rare.

2. Saipan

Saipan, with a base population of nearly 18,000, a complex local

government, healthy tourist population and a steadily growing pri-

vate sector is probably the least subsistence island in the CNMI.

However, it is here on Saipan that Marine Resources Development is

the strongest. The Department of Natural Resources Division of

Fish and Wildlife keeps a constant watch over Marine Resources in

the entire CNMI. It has the jurisdiction to monitor marine waters

for natural and unnatural disturbances that can affect resources

such as the crown-of-thorns starfish or heavy use by humans in

areas like Micro Beach or Managaha Island.

Lagoon water quality on Saipan is being degraded by the con-

tinued drainage of stormwater from numerous storm drains. These

are particularly numerous in the Garapan Area where rapid growth is

taking place. Sheet runoff from numerous parking lots, roads and

the ever increasing number of buildings in the Micro Beach Area,

pours into the Saipan Lagoon causing silt plumes in the Tanapag

Harbor Area. Landscraping for new developments in the north

(Marpi, Tanapag and San Roque Villages) leave scars on the hillside

waiting only for a rainfall to wash the topsoil into the lagoon..

Throughout the rainy season a perpetual silt plume can be found in

the deeper portion of the Saipan Lagoon from Marpi to the main

channel in Tanapag Harbor. The Puerto Rico Dump continually

leaches into the lagoon just north of the main tourist attraction at

Micro Beach. Each of these contributes its own share of pollution to

the Saipan Lagoon. Collectively, they tend to degrade the quality of

water and in turn marine resources in the near shore environment.

Siltation from stormwater runoff has caused periodic degredation

of lagoon water quality. This problem is usually associated with the

rainy season when heavy rains wash the loose soil into the lagoon.

Oftentimes the loose dirt is from construction projects which use

poor ground clearing practices. The ultimate problem occurs when

corals are covered by heavy siltation. These corals often cannot

remove the heavy silt particles and die even before they are com-

pletely covered.

Military activities on Saipan, prior to and during WWII, con-

tributed significant degradation to the marine environment. These

activities represent historical rather than present day activities and

they include Spanish, German, Japanese and American occupations.

Major degradation of the near-shore environment is particularly

evident on beaches and in the lagoon. Channels have been blasted

through the coral to allow access to shallow water areas and

dredging of these channels has modified the bottom environment

considerably.

Illegal fishing methods like blasting and chloroxing are still

common occurances on Saipan. Sites like Unai Dikike (Boom Town

Beach) is now a place name where blasting occurs regularly.

Directly across from the Rock quarry in Marpi, individuals have

timed their illegal blasts to coincide with rock quarry activites. The

scar left by the illegal activites is obvious and lasting.

The Crown-of-Thorns starfish has periodically inhabited several

sections of reef around Saipan. Today these animals are moving in

greater numbers from south to north along the west coast. Some

coral reef areas are heavily damaged by these animals. Recent field

studies indicate that the coral reef proposed for the Managaha Island

Marine Park Underwater Trail is being damaged by the starfish. If

removal efforts are not initiated immediately the coral reef could be

completely damaged.

3. Tinian

Tinian is an island whose reefs are well developed -but lacks any

true lagoon complex. Only a few very small lagoon environments

exist on the island.

The population of Tinian is very small with slightly less than

1000 people. Of this number, most are subsistence farmers,

gatherers or fishermen. Utilization of marine resources is high on a

per-capita basis because of their subsistence level of economy.

Many local residents have boats and use them primarily for fishing.

Nearshore fishing and gathering is still an everyday occurence for

many people.

Tourisim, on Tinian is still in its infancy. Only one hotel exists

on the island with mediocre facilites. The use of marine resources

by tourists is limited to a few easily accessible areas like the harbor

particularly the Taga Beach Coral Patch Reef Area.

The U.S. Government leases a significant portion of Tinian for

military training purposes. Each year about 200 marines land on

Tinian for warfare training. On occasion, these activities include

flassault training" utilizing amphibious landing craft. These activi-

ties are limited to specific areas of reef where beach access is pos-

sible. They drive these vehicles over the reef and up onto the

beach. Damage to coral on the reef flat is significant, as studies

have shown. However, recovery is remarkably rapid.

Tinian has a small but well developed harbor complex. This

facility was built during WWII for strategic military purposes.

Recently, the facility has been improved and is now being used as a

port of operation for a small tuna fishing fleet. The CNMI

government has recently exempted the fishing companies from certain

taxes helping to encourage their development.

These activities, if they continue, will have a significant impact

on marine resources in the near vacinity of the port. Accidental oil

spills, bilge pumping and other port related activities can jeopardize

resources if not properly monitored. This is particularly true in

Tinian since the proposed site for marine park development is ad-

jacent (south) to the harbor.

The CNMI Department of Natural Resources manages the develop-

ment of marine resources on Tinian as on all islands of the Northern

Marianas. The CRM office monitors coastal activites on a regular

basis through a coastal coordinator on Tinian. Activities of these

two agencies follow similar activities by these agencies on Saipan,

4. Rota

Rota is a large high island with approximately 1500 residents.

The vast marine resources surrounding this island are presently

underutilized. Rota, like Tinian, lacks an extensive shallow lagoon

complex. However, there is a narrow semi-lagoon located along the

entire west coast of Rota. At the extreme southern end of Rota is

the only true lagoon on the island.

Development of marine resources is extensive and well es-

tablished although underutilized. Residents fish these waters,

however, only about 10 fishermen use their boats efficiently. Most

fishermen fish extremely close to shore not utilizing the fishing

resources on the Rota Banks just a few miles off-shore.

Marine resources on Rota are well developed showing few signs

of degradation. Two ships have run aground damaging the coral

reef along a short section of the western reef. The Crown-

of-Thorns starfish has moved across selected coral reefs periodically.

The signs are still evident but not a major problem at the present

time. Rota's main port in Song Song Village has undergone major

renovation over the past few years. Dredging and filling operations

have created extensive silt plumes which have degraded not only

water quality but covered over and smothered selected coral com-

munities in the area. Other than these problems the marine re-

sources are in excellent shape on Rota.

G. DESCRIPTION OF THE VISITOR

1. Visitor Profile and Origin

For the first nine months of 1984 131,823 visitors came to the

CNMI. Seventy-nine percent (104,150) of all visitors were Japanese,

followed by Americans, 17 percent (22,511), and all others com-

prising 4 percent (5,156). Japanese tourists usually originate from

the larger metropolitan sections of Japan. Main Island Honshu;

Tokyo, Osaka, Yokahoma, Kobe, Nagoya and Kyoto. Very few

visitors originate from Hokaido or Kyushu. Most Japanese visitors

prebook their vacation with one of many large wholesale travel

agents, which includes airfare, hotel accommodations, meals and

selected day trips. The majority of Japanese tourists to the CNMI

are young couples (early 20's to early 301s). In fact, Saipan is

known for its honeymoon vacations. In addition to young couples,

there is also a significant number of young single women who usually

travel in groups of two to four, Family visitors represent only a

small number of the tour trade from Japan. A reasonable number of

older men, with their families, as couples or single, represent the

veterans who fought in the area during WWII. These groups come to

the CNMI to remember their past and place peace offerings on

shrines erected to the war dead.

Visitors from the United States represent a variety of types and

it is difficult to determine a group that would comprise the largest

percent. However, businessmen looking into potential ventures seem

to make up a large part. Rarely do they bring families. Certainly

one finds the typical American tourist, usually older, having

traveled extensively and looking for a new adventure. Occasionally

young single men and women make their way to these islands looking

for a cultural experience. Visitors from other countries exhibit no

specific trends except a rare charter of French, Germans and

Italians.

Of the 131,823 total visitors in 1984 the majority (93.8% of 1984

arrivals) visited Saipan exclusively. Only 4.8% (6,335) visited Rota.

Rota has one large first rate hotel (Pau Pau) , a small cabana style

hotel with a few rooms (Coconut Village) and the Blue Penninsula, a

modest but small hotel. Tinian is not set up to handle tourists

efficiently. However, there is a small hotel which serves as the only

accommodation on the island. Only 1,857 (1.4% of all 1984 arrivals to

the CNMI) visited the island of Tinian. Table 3 gives the arrival

percent change in visitors arrivals for the 13 years beginning 1971.

Note the downward trend during the economic recesion of the mid to

late 1970's.

Table 3. Annual Percent Change of Visitor Arrivals in the CNMI by
Fiscal Year 1971-1983.

Number ANNUAL
YEAR of Tourists % CHANGE

1970 16,538
1971 23,529 +30
1972 24,848 +6
1973 38,548 +36
1974 44,514 +13
1975 48,103 +7
1976 51,669 +7
1977 52,185 +1
1978 86,723 +40
1979 100,357 +14
1980 117,149 +14
1981 117,572 -0-
1982 111,173 -6
1983 124,024 +11
1984 131,823 +6

Total Expenditures (1970 -1980) $405,270,484

1. Source: Marianas Visitors Bureau, 1983 Annual Report
2. Annual percent change from previous year.

2. Visitation Trends

Japanese tourists seem to travel to the islands in two distinct

blocks of time annually. The first is during the months of February

and March and the second between June and September with July

and August being the heaviest months. Although these trends are

generally consistent throughout the years, peeks have moved up and

back a month in some years. Table 4 is a typical rundown of ar-

rivals by month for the year 1983.

Table 4. Total Visitor Arrivals and percent change by Month
for Fy 1983 - 1984. 1

Air / Sea 1983 1984 Percent
Change 2

October 7,684 8,079 +5

November 8,033 9,494 +18

December 8,938 11,070 +24

January 9,658 11,331 +17

February 10,287 11,952 +16

March 11,443 12,769 +12

April 8,511 9,549 +12

May 8,474 9,873 +16

June 11,941 11,407 -04

July 14,549 12,102 -17

August 13,711 13,664 -

September 10,795 10,533 -02

Total 124,024 131,823 +6%

1. Source: Marianas Visitors Bureau, 1984 Annual Report.

2. Percent change between 1983 and 1984.

The majority of Japanese tourists spend three days on Saipan

before returning to their home. Estimated daily expenditure is $180

for their three day stay. This figure does not include airfare, hotel

accommodation or meals, which are prepaid in Japan.

3. Visitor Activity Preference

To coin a phrase, the Japanese visitor in his travels is looking

for a "western experience," which is probably why the tropical

islands of the U.S. CNMI receives greater popularity than sub-

tropical Taiwan, Okinawa or tropical areas of Asia like Penang, Kuala

Lampur and Singapore. Furth,6rmore, the typical Japanese -visitor

resides in a large metropolitan city spending little time near or on

the ocean. For the Japanese tourist the islands represent 'paradise

found" with all its tropical splendor.

These tourists want to spend their time at the beach, lying in

the sun sunbathing, swimming, skindiving to see some of the under-

water sights, windsurfing and generally relaxing in a tropical envi-

ronment. The Japanese are not so hung up with finding secluded

beaches since they live in extreme closeness at home. They find

their "s pace" in these islands bigger anyway.

The Japanese want to experience the U.S. way of life, eat their

food, shop in their stores, attend their parties, speak their

language and see their sights. All of this is not possible of course.

However, given the chance they will attempt it all.

For the most part, the Japanese visitor wants to experience the

water since this is an element quite foreign to most of them. Even

for those that do not swim or spend some time in Japanese waters,

the tropics is something remote and special.

III. RECOMMENDED SITES

Preliminary work for the development of conservation areas and under-

water parks for Saipan, Tinian and Rota was conducted in 1982 by personnel

from the Coastal Resources Management Office and the Department of Natural

Resources, Division of Fish and Wildlife. Several sites at all three islands

were surveyed from shore and in the water by diving and towing behind a

boat. Considerable effort was given to choosing locations that were ac-

cessible, close to shore, on public lands, easily developed and in a relatively

safe location in regards to wave action, currents and water depth. High

priority for the underwater parks was finding a location where there was a

well developed reef with good live coral coverage, abundant fish and other

marine life. This study recommends three locations as candidate sites for

marine parks and conservation areas in the GNML

A. SAIPAN

Saipan has a rather extensive lagoon and barrier reef along the

entire length of the west side of the island. Although there are several

potential sites for an underwater park, one stands out in terms of coral

reef development, abundance of marine life, moderate water depth,

access and existing tourist use. The recommended site includes the

island of Managaha, the underwater area surrounding the island in-

cluding numerous. patch reefs, a section of the barrier reef and some

historic properties from WWII including several airplanes. Refer to

Figure 2 for boundaries of the proposed Managaha Island Marine park.

The island itself and a portion of the near-shore environment stands as

a focal point of the marine park. Siginificant historic and cultural

remains can be found on the island and a meandering path circles the

island providing access to these.

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Another focal point of the park is the proposed underwater trail.

This trail would be located in the shallow and diverse patch reefs just

offshore of the beach along the northwest corner of Managaha Island

(Figure 2). This trail would be buoyed to lead snorkelers and divers

along the trail and contain underwater markers to provide information

and identification of selected marine life. Significant historic properties

within the park (and possibly others nearby but outside the actual park

boundary) could also be located, buoyed and identified for use and

protection.

Depending upon the final layout for the marine park, the size of the

park's outstanding natural feature area (Zone A), natural environment

area (Zone B) and conservation area (Zone C) may be altered.

Based upon extensive diving and underwater towing throughout the

entire area, PBEC is recommending the following boundaries as il-

lustrated in Figure 2. The southeast boundary of the conservation area

includes the diverse patch reef which is awash at low tide. In close

proximity to this reef is a large airplane wing, fuselage, pontoon and an

intact upsidedown plane. Some of the best developed patch reefs are

within this Conservation Zone (C) and a section of the barrier reef out

to the 10 fathom (60 ft) contour has also been included. The tip of the

barrier reef and the northern boundary of the main channel form a

natural southwestern boundary.

The approximate size of the entire proposed park is 2.6 km 2 or 1.0

mi7 (640 acres) and represents approximately 5% of the total Saipan

lagoon. The location for the Underwater Nature Trail (Zone A) was

chosen because of easy entry and exit either from the beach on

Managaha Island or by boat. This area is very rich in marine life

supporting luxurious coral growth. This area of the park is also in the

protected lee of the island during the normal east and northeast trade-

winds. The approximate size of the Underwater Trail is 73,000 m? (18

acres) although the underwater markers will likely be clustered in a

smaller area. This Underwater Trial represents approximately 2.8% of

the total park area, a very small portion where all fishing and collecting

would be prohibited subsistence fishing is encouraged in other zones.

B. TINIAN

The location for the Taga Beach Marine Park on Tinian is the patch

reef and nearshore marine area just south of the harbor entrance chan-

nel and offshore of Taga Park and Jones Beach. Boundaries and zones

of the park are deliniated on Figure 3. The seaward boundary is the 10

fathom (60 ft) contour.

The location of the Taga Marine Park was chosen for several

reasons. It is one of the few areas which has a well developed patch

reef offshore and fringing reef alongshore. There is good access from

shore and its close proximity to the harbor means short, cost effective

trips by tour and dive boats. The location is also well protected from

the normal tradewinds and ocean swells.

The area of the Taga Beach Marine Park is approximately 946,000m?

(234 acres). It is proposed that the patch reef be zoned "A" Out-

standing Natural Features, and be totally protected from fishing and

harvesting as this reef represents a small fraction of the total reef and'

shallow water environment surrounding Tinian. The remainder of the

marine park will be zoned "B" as a Natural Environment Zone. There is

no conservation zone but subsistence fishing is allowed in Zone "B".

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C. ROTA

The Sasanhaya Bay Marine Park is located in the eastern portion of

the bay and extends from Sagua beach south to Puntan Ponya and

seaward to the 20 fathom (120 ft) contour. The boundaries are shown in

Figure 4. The main reason for extending the park boundary to the 20

fathom contour here is to include the WWII sunken Japanese cargo vessel

"Shoun Maru.11 The ship is located approximately 600m (0.37 mi) from

shore 'and sits upright in 30m (100 ft) of water. The wreck offers

excellent diving for scuba divers.

The Sasanhaya Bay Marine Park is divided into two zones, with the

section where the wreck is located designated Zone "A". Zone "An

prohibits the taking of all marine life while the remainder of the park

(Zone B) allows subsistance fishing. The approximate size of the marine

park is .5 mil. Although beach access to the park is possible at a few

locations along the shoreline, much of the park (including the wreck)

requires boat access. This section of Sasanhaya Bay is usually pro-

tected from the strong tradewinds and ocean swells but occasionally does

experience rough conditions with strong currents. This part of the

coast is regularly fished and is characterized by good coral development

and diverse marine life.

ROTA

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Not to scale

IV. THE MANAGEMENT PLAN

A. RESOURCE MANAGEMENT AND ZONING

The Resource Management Plan is designed to monitor existing use

patterns for the proposed marine parks, develop unique interpretation

concepts for each site, improve existing facilities and services and

provide long range plans as visitor use increases.

Each of the marine parks are to be zoned as previously noted ac-

cording to the various uses presently in effect and those established as

management objectives. Proposed management objectives of the park lands

and waters will be shown on the Zoning Management Map in each of the

subsequent Management Plans. These zones are in accord with the

National Park Service Classification System. In this system, all lands,

reefs and waters are classified into three zones as follows.

1. Zoning

a. Outstanding Natural Feature Zone A

This zone encompasses coral reefs and features of unusual

intrinsic value that led to establishment of the particular marine

park. The zone will be managed to protect aquatic resources

and to provide for public appreciation and enjoyment to the

extent that natural values are not impaired. There will be no

taking of any marine life or other artifacts in the area.

b. Natural Environment Zone B

Land and water in this zone will be managed to allow envi-

ronmentally compatible recreational activities. For the most part

these activities involve swimming, diving, wind surfing, sailing,

boating and other activites of this nature. This management

zone will continue to receive much of the existing use within the

park and the water.

c. Conservation Zone C

Land in this zone possesses particular value as wildlife

habitat and/or for research. The land will be managed to per-

petuate ecological values. Fishing in this zone will only be

allowed for subsistence purposes.

2. Resources Management

a. Natural Resources

Fragile coral formations in the vicinity of each marine park

will continue to be protected by designation of an underwater

trail identifying these features. Endangered species will con-

tinue to be protected by local and federal legislation.

Research programs will continue and new programs will be

initiated as needed to provide knowledge for management of

natural resources. One particular field of investigation which

should be examined are the consequences of continued con-

sumption of marine life by inhabitants of the CNMI. Other

research that should be conducted include:

- Development of a natural resources base map, including

a complete coral inventory.

- Investigation and monitoring of beach processes.

- Analysis of impacts by swimmers, scuba divers, fisher-

men, boats and natural ocean and storm processes on the

reefs.

- Investigation of coral growth rate, productivity and mor-

tality.

Monitoring of turtle nesting, including species com-

position and reproductive success.

Monitoring of established exotic plants to determine their

growth, regeneration and detriment to native flora.

Monitoring and impact analysis of water pollution re-

sulting from commercial and recreational boating and

sources outside the park.

b. Cultural and Historical Resources

Cultural and historic resources within Marine Parks of the

GNMI will be managed according to the managment policies of the

CNMI Historic Preservation Office. All undertakings in the

Managment Plan have been developed in consultation with the

Historic Preservation Office and the Territorial Historic Preser-

vation Officer.

An underwater survey has been conducted as a part of a

larger project to evaluate submerged resources within the boun-

daries of the park. This survey has determined the number and

significance of historical and cultural resources. In addition,

the survey will recommend the importance of these resources.

Through the Advisory Board the appropriate agency will monitor

these wreck sites and take appropriate measures to protect them

if the resource is threatened in any way.

A number of known submerged cultural and historic sites

exist in the three proposed parks. Significantly more historic

sites exist in the Saipan Lagoon than other islands of the CNMI.

Some of these properties exist within the boundaries of the pro-

posed Managaha Island Marine Park. One ship is within the

confines of the Rota Park.

The Historic Preservation Office managment policies state

that the dynamics of shorelines in the CNMI will be allowed to

take place naturally. These proposed Marine Parks are being

created to preserve existing natural beauty. The process of

seashore dynamics and island geomorphology might uncover

presently unknown cultural or historic resources. Accordingly,

the following program will be implemented to identify, evaluate,

and determine future management actions for such presently

unknown historical or cultural resources:

If a cultural resource is identified, it will be recorded

and evaluated as to its integrity and significance by ap-

propriate cultural resource specialists in consultation

with the CNMI Historic Preservation Officer.

Following completion of the evaluation study, the re-

source will be managed in accordance with its signi-

ficance.

The CNMI Historic Preservation Officer will be notified of

the resource discovery and will be advised of the pro-

posed management strategy by the National Park Service,

if within NPS jurisdiction.

No adverse impacts on significant cultural resources are

anticipated as a result of this plan. However, should unantici-

pated natural phenomena threaten a significant resource or if a

newly discovered resource is found to be threatened by a pro*-

posed action, then CNMI cultural resource specialists will ensure

that all feasible planning or design measures are taken to avoid

or minimize impairment of the resources. Unavoidable adverse

effects will be mitigated by professional data retrieval involving

controlled excavation, architectural recording, archiving or other

acceptable means.

C. Recreational Resources

Recreational use will be controlled to avoid overuse and

damage of submerged resources, such as propeller scarring of

corals or destruction of coral by anchors and prop thrust.

Mooring devices should be provided at selected sites for proper

mooring of boats.

B. VISITOR USE AND INTERPRETATION

1. Orientation

With an average ambient water temperature of 280C (820F), clear

water, coral reefs, colorful fish and the diverse variety of marine

life, there is tremendous potential for visitor use within a marine

park in the CNMI. For many, this view of the underwater world will

be their first and likely an experience they will long remember. For

the trained snorkeler and scuba diver, the islands provide some of

the best reef and wreck diving and spearfishing found anywhere in

the world. It is imperative that the interpretive methods and pro-

cedures reach as many tourists as possible including those that

never venture underwater.

It is reported that, regardless of location, most visitors to any

underwater park will be nondivers. The key to the nondiver's

awareness and enjoyment of the underwater park lies in the art of

interpretation. The nondiver can 2E-IY experience the underwater

world through creative interpretation. Therefore, a major emphasis

of the interpretive program takes place through an on-shore visitor

orientation center. The visitor orientation center can range from an

indoor or covered "theater" where park staff might give an oral

orientation augmented by a color slide presentation, movie or video

tape. Professional presentations can be prepared that are fully

automated by using either a videotape cassette or a slide program

utilizing a two-projector dissolve system with cassette tape. These

presentations could be run at regularly scheduled times, two to four

times a day and coordinated with peak visitor arrival times.

Other exhibits at a visitor center might include museum displays,

maps, aerial and underwater photographs and artifacts. An effective

way to present visual material is through the use of small kiosks

with exhibit panels (Figure 5). These Kiosks would contain a

locator map(s), aerial view of the park, photographs of marine life

and general park information. These exhibits should be clearly

presented and not overly technical avoiding confusion. As would be

the case with all orientation materials and programs for tourists in

the CNMI, they must be given in Japanese and English.

2. Underwater Trails

In designing and locating an Underwater Nature Trail, an area

with good coral reef development and diverse marine life must be

A I

Interpretive Display Concept

sit

E
ra,
L

ME?

Figure Marine Park Interpretive Display. Two-sided, free
standing plexiglass display framed in wood with matt
liner between plexiglass sheets. The panels are 3'x6'
and detatchable with handles for easy transporting
between display sites. Text will be in English and
Japanese.

chosen. The water should be shallow enough to allow enjoyment and

viewing by both snorkeler's and scuba diver's and should be in an

area where the water is consistently clear and free of pollutants.

Access could be from shore and/or by boat depending on proximity

of the resource and safety considerations.

One problem some underwater trails have experienced is that the

visitor gets lost or has difficulty in locating each successive station.

A major objective would be to design a trail that is easy to follow

from beginning to end without a guide. This means keeping stations

short distances from each other. In addition, surface markers or

floats could be provided to allow the diver to see the next station or

to reorient himself should he become confused. These buoys could

also be designed to serve as rest stations and augment security and

safety of the visitors.

The most common interpretation system of an underwater trail

consists of a series of stations with plaques or markers containing

descriptive language and drawings or simple numbers keyed to a

waterproof chart or booklet the visitor would carry with him. The

underwater trail should not be too long with no more than 20 - 25

stations. The markers are generally concrete blocks or stands with

an engraved plastic or glass plaque (Figure 6). The message should

be brief and simple, should stimulate interest, provoke curiosity and

stress the fragile nature of the resource. A plaque could point out

a type of coral such as "brain coral" with an outline drawing of it.

A station could be situated in an area where a certain species or two

of fish are almost always found. Next to a bed of staghorn

Figure 6. Example of Underwater Site Marker System.

(Acropora) coral a plaque might warn the visitor, "FRAGILE CORAL-

DO NOT STAND OR REST ON IT" and other language of this

nature,

One advantage of the underwater trail system is that it firmly

directs the visitor's attention to specific areas which contain in-

teresting marine life. This provides for the most efficient use of the

visitor's time while also providing for leisurely, unsupervised travel

along the trail.

A disadvantage of the underwater trail is that it concentrates

divers in one area and could lead to crowded conditions on busy

days. It may also stress the environment by concentrating indivi-

duals in a small area. Possible mitigation measures to these impacts

include changing trail routes periodically, moving plaques to other

(nearby) areas of similar features and periodic closure of trails.

Another method of interpreting park features is through the use

of a small, waterproof guide pamphlet which points out features and

interesting marine life found in various parts of the park. This

allows the visitor to choose diving areas that are most interesting to

him. This technique promotes dispersal of divers throughout the

park, eliminates crowding and reduces impacts to any one area.

This set-up might also eliminate, or certainly reduce, the costs of

maintaining a permanently mounted underwater trail system. One

disadvantage of this concept is reduced safety by spreading the

divers out over a larger area. It would also be more difficult to

restrict or monitor boat traffic within the park, another safety

consideration for the park users. This might best be accomplished

through interpretive workshops for the private concessioners.

These workshops would increase and improve the quality of services

offered to the visitor.

3. Non-DiVer Park Use

The non-diver could benefit from displays and audio-visual

presentations at the orientation center. Educational publications,

slide sets and other materials would be available for sale by the park

and private vendors.

Glass bottom boat tours around certain areas of the park would

provide the non-swimmer with excellent views of coral reefs, fishes

and other colorful marine life as well as historic artifacts. In areas

where there are sunken historic properties such as ships and air-

planes, viewing from a glass bottom boat can be truly exciting.

For the non-diver who can swim or feels comfortable in the

water, privately conducted basic snorkeling lessons could be given

by trained instructors in a very short time on the beach and at the

waterls edge. Using equipment supplied by the concessionaire,

including an adequate inflatable flotation vest (buoyancy compen-

sator), these neophyte snorkelors could be safely led in a group

along an underwater trail. For the visitor who has never personally

viewed a tropical coral reef, this will present a truly outstanding

experience.

To maintain 1-dgh standards of visitor enjoyment and safety,

educational seminars and/or training for diving instructors, guides

and boat operators are essential.

4. Other Park Features

If sunken historic properties are located within the boundaries of

an underwater park they can be incorporated as features to be

enjoyed by snorkelors, scuba divers and glass bottom boat pas-

sengers, depending upon their location and depth of water. In

addition, if there are wrecks located outside the confines of the park

that would be of interest to the visitor, they could be located,

identified, buoyed and protected. As is the case with all historic

properties in the Truk Lagoon, there should be no salvage or re-

moval of any artifacts associated with the wrecks, and to enhance

their roles as artificial reefs, spearfishing on the wrecks should also

be prohibited.

Saipan and Rota both have sunken wrecks inside and outside of

the proposed marine parks which would be of interest to divers.

Scuba diving on these wrecks should be limited to properly certified

divers and there should be bilingual information available regarding

identification, depth of water, orientation of the wreck and other

interesting aspects. It is also advisable to attach sturdy mooring

buoys to most of the wrecks. This not only provides for easy

location of the site but also minimizes damage to the wreck and coral

from repeated anchoring.

5. Site Specific Interpretation

a. Saipan

The Managaha Island Marine Park should have an underwater

nature trail in the area shown in Figure 2 (Zone A). Approx-

imately 20 stations with plaques would be sufficient to adequately

cover the area.

Within the park boundary the following historic properties

can be found- A wing and partial fuselage of a small, probably

Japanese aircraft; an almost intact, single engine, upsidedown

Japanese airplane, a large wing and other pieces of what appears

to be an American airplane; a piece of tail and*fuselage from the

same plane; a badly deteriorated barge and a few other mis-

cellaneous objects. It is recommended that all these be protected

and incorporated into the park as attractions.

In addition to the above properties, adjacent waters of

Tanapag Harbor and Saipan Lagoon contain a 4-engine Japanese

seaplane, a small Japanese sub-chaser, several M-boats (landing

crafts) and other significant war related properties. A study

that is currently underway for the Historic Preservation Office

document these properties. Some of these may warrant inclusion

and protection as features of an underwater park.

The shore-based orientation display center would be located

on Managaha Island as part of or adjacent to the existing pavil-

lions and gift shop area. It is recommended that a quality

audio-visual presentation be prepared for the marine park. It

should be either a two projector/ dissolve slide show with an

accompanying sound track (bilingual) or a video-tape cassette

program., depending upon the amount of funding available and

other requirements. Either format can be easily duplicated and

used for off-island promotions and advertising. The program

could be available to dive clubs, travel organizations and other

interested groups.

In addition to the audio-visual program, interpretive displays

should be prepared using photographs and maps on orientation

di@;play panels. These can be properly mounted and protected

from sunlight, rain and other elements. The presentations

should be simple, easily understood, brief and attractive. In

addition, the park should develop an interpretive guidebook

explaining the park concept and underwater trail. This could

also be used for park orientation, education and advertising.

Private interests should be encouraged to develop booklets,

maps, slide sets and other products that would appeal to park

visitors. The University of Guam has recently published two

excellent color books wl-dch describe fish and corals found in

Guam waters. Many of the species described in these books are

also found in the Saipan Lagoon.

There are currently three dive shops on Saipan offering dive

classes, rentals and tours. Many visitors now dive in the

vicinity of Managaha Island and equipment for snorkeling and

scuba diving can be rented there through a tourist oriented

concesion. It would appear that the private sector is well

equipped to handle the needs of visitors to the marine park. It

will be necessary to devise a fair method for providing services

from the dive shops. The park may also want to implement a

modest entry and use fee for visitors which could be used for

operation,, maintenance and improvements.

b. Tinian

The present level of tourism on Tinian (1,857 in 1984) is

quite small compared to Saipan. There are no dive shops or

other sources of snorkeling or scuba equipment rentals and no

compressor for filling tanks.

Although the current situation does not warrant the expense

of implementing an underwater trail or building a visitor orienta-

tion center, the Taga Beach Marine Park should be established

now to preserve the area for future interpretive development. A

few anchored buoys could be placed to mark the patch reef and

the boundaries of the park. A simple roofed kiosk orientation

center could be erected on shore with a locator map, aerial view

of the park and a few underwater photos. A simple brochure

could be produced to orient the visitor to the park and its

features. When warranted, shoreside park facilities could be

upgraded and expanded to include a changing room, showers,

restroom, picnic tables and shelters.

One drawback to the Taga Beach Marine Park is the 350m

distance from shore to the patch reef making it a long swim for

a novice or out of shape snorkeler. The harbor is very close to

the park, however, at this time there are few boats available to

ferry visitors to and from the park area.

c. Rota

Rota currently receives nearly 7,000 tourists annually, many

of which are snorkelers or scuba divers. There is currently one

dive shop at the Paupau Hotel which offers lessons, tours,

rental equipment and air. There are a few small boats that take

tourists out for fishing or diving excursions. If a marine park

were established, it may provide an opportunity for another dive

shop and/or a dive tour related business.

The Sasanhaya Bay Marine Park covers a .5 mi2 area along

the southeast portion of the bay to Puntan Ponya. However,

there are only limited beach areas that provide safe access to

the reef and beyond. The orientation center and access point

will have to be developed in a suitable location, perhaps at

Sagua Beach or similar site. Limited facilities such as a rest-

room, shower complex and one or two kiosks with interpretive

information could be constructed. A brochure with map des-

cribing the features of the park could also be developed.

Site investigations need to be conducted to determine the

feasibility of implementing a limited underwater trail system with

plaques. Such a trial would follow the reef edge as there are no

offshore patch reefs or pinnacles in this area. There is good

coral development and fish diversity along the reef front and in

surge channels.

The Japanese cargo ship "Shoun Maru" lies upright in 30m

(100 ft) of water within the park boundaries (Zone A) (Figure

4). This wreck can be viewed through glass bottom boats and

by snorkelers. It provides an excellent wreck dive for scuba

divers who can view such artifacts as a truck body, bicycles,

portholes and excellent marine life. It is recommended that the

wreck be marked with a mooring buoy for ease of locating and to

minimize damage to the ship from anchoring. Removal of arti-

facts and spearfishing would be prohibited on the wreck.

There are supposedly one or two other sunken ships located

in deep water in the vicinity of the Paupau Hotel or further to

the southwest. It should be determined whether or not these

exist and if they are shallow enough to dive on. If warranted,

other historic properties should be considered for protection and

inclusion in a park.

C. OPERATION

1. General Statements

Marine parks generally function to protect underwater environ-

ments while providing safe and enjoyable recreational opportunities

for visitors. They help to educate people about the ocean and its

ecosystems and provide interpretive programs of the marine environ-

ment for everybody's enjoyment.

2. Advisory Board

The essence of efficient operation and proper management is

vested in the Advisory Board. This board establishes policy and

determines the direction marine parks take in the CNMI. Suggested

representation on the Advisory Board include the following agencies:

- CRMO (Lead Agency)

- Legislature

- Historic Preservation Office

Department of Natural Resources (Division of Fish and

Wildlife and Department of Parks and Recreation)

- Marianas Visitors Bureau

- Department of Public Safety

Figure 7 represents a flow diagram of the Advisory Board and

how the different agencies interact. Each agency will be repre-

sented by one individual appointed for a term of one year except the

CRMO and Legislature. The latter two groups will have a represen-

tative appointed for two (2) years. CRMO is the only non-voting

representative except to break a tie when an equal number of repre-

sentatives make a quorum. Appointments will be staggard in order

to provide consistancy to the Board.

1HP01 UBLIC DNR PARKS & LEGISLATU IMVB I
i SAFETY RECREATIOJN I L--------- A

Figure 7. Flow Diagram of CNMI Marine Parks Advisory Board.

Meetings will be held monthly and will be comprised of a quorum

(at least four). The CRMO will be responsible for coordinating

these meetings, establishing an agenda and deciding a convenient

time and place. Each agency, by the nature of their responsibilities

within the CNMI Government, will add input to these meetings and

carry out any projects delegated within their jurisdiction by majority

vote of the board.

3. Staff

An educated and trained staff will add much to the general

enjoyment and safety of visitors to the marine park. Staff should

have a reasonable working knowledge of each park's unique features

and should be able to present them enthusiastically and in a inte-

resting fashion. Staff assigned to oversee diving activities need not

be divers. However, it would be helpful in most cases. Never-

theless, staff members must be able to recognize and evaluate unsafe

practices or activities that may be damaging to the environment and

hazardous to all users particularly divers.

When selecting personnel to staff marine parks in the CNMI one

should look for individuals who have specific academic skills and

interest in nature and the marine environment. One should look for

individuals who are willing to continually improve their knowledge

and who can pass this knowledge on to others with interest and

enthusiasm. Using volunteer groups to work within the framework

of the marine parks system is a viable alternative to any interpre-

tation program.

One (1) worker will be needed to oversea the day to day opera-

tion of small marine parks like those in the CNMI. For the sake of

reducing costs during start up operations, an existing government

employee should be utilized and may be found in the following CNMI

government agencies-

- Department of Natural Resources, Division of Fish and

Wildlife, Division of Parks and Recreation

- Historic Preservation Office

- Coastal Resources Management Office

As the park grows, additional employees can be added based on

specific need. Individuals participating in this program will be

given special interpretive and diver training as needed.

4. Policy Guidelines for Visitor and Diver Use

SCUBA diver qualification will be required of all divers who

intend to scuba dive within park boundaries. Diver qualifications

will consist of certification cards issued by the following associa-

tions: National Association of Underwater Instructors (NAUI),

Young Mens Christian Association (YMCA), Professional Association

of Diving Instructors (PADI) or an appropriate international organi-

zation. Uncertified divers in a training class will be permitted to

use scuba within the park only under supervision of a certified

instructor.

All scuba diving shall take place in at least buddy pairs.

Refusal by a staff member to allow a dive should be avoided except

under unusual circumstances where safety is a factor. A person

should be dissuaded to dive through a friendly discussion on equip-

ment requirements and the hazardous conditions to be encountered or

by recommending alternate diving areas or methods (skindiving only)

within the limits of the diver's experience, skill and equipment. If

the diver persists it should be made clear that, as in any dive, the

diver assumes full responsibility for his/her actions.

Use of a log-in/log-out system for scuba diving will provide a

record of divers using the park system. Diving logs should list the

name of certifying organization for each diver, level of certification,

location of dive,- time of dive, time in the water and expected time

out. There must be a designated dive master when organized

groups dive in the park. Diving parties will be responsible for

.removing all dive buoys or other objects used during the dive.

For divers who do not use scuba, all of the same requirements

will be in effect except diver certification. However, each diver

must know how to swim before entering the water. Divers who plan

on utilizing the underwater trail system or designated skindives

within the park should sign a diver's log located at the park rangers

stand.

5. Emergency Procedures

There should be a set of emergency procedures developed for

each park where diving takes place. These procedures shall be put

into a manual available on site and provide for:

- Diver Rescue

- First Aid for minor wounds and transportation to a

hospital for those requiring treatment

- Oxygen and First Aid for pressure related emergencies

to be administered by qualified personnel trained in its

application

- Phone numbers of emergency facilities kept readily

available and updated

D. ENFORCEMENT AND MONITORING

Monitoring and enforcement are essential elements in effective man-

agement of a marine park. Without these elements, natural, historic and

cultural resources within each park suffers a great degree of de-

gredation. An on-going monitoring program becomes the eyes and cars

of what is really happening within the park and how it is holding up to

increased visitor pressure. Results of monitoring efforts are then used

by the Advisory Board to mitigate negative impacts.

Monitoring of Marine Parks in th CNMI should be the responsibility

of the DNR through the Division of Fish and Wildlife. Monitoring acti-

vites for these parks could be implemented as a routine part of regular

monitoring activities. Findings should be reported to the Director of the

DNR in writing or verbally, if the matter is urgent, but always followed

by a written report. The director of DNR will then report these

findings to the Advisory Board during its regularly scheduled meeting.

Special meetings can be called if the matter is urgent.

Personnel employed by each Marine Park will have the responsibility

of enforcing park policy, maintaining order within the park and assisting

park users. It is essential that enforcement activities within the park

be handled on a low-key basis. When an incident presents L'tsclf, all

effort should be made to inform the users of park policy and the poten-

tial negative impacts that way result from his/her actions. In no way

should the user be embarrassed or harassed by a park employee. If,

after a reasonable period of time, the user still wishes to pursue his/her

own course of action (barring serious consequences) the user should be

informed of his/her negligent conduct and that the park will not be held

responsible for his/her action. Where serious consequences are possible,

the CNMI Police Department should be notified. These matters should

then be written into a daily log.

E. VIOLATIONS AND FINES

Violations of park regulations can be minimized considerably through

proper park management and monitoring activities. However, violations

are bound to occur since many thousands of people will be using the

facility for a variety of purposes. The vast majority of these violations

will be minor infractions that can be handled in an informal manner

through discussions with park users in the same fashion a life guard

would. However, occasions do arise when such informal discussions do

not bring about the desired results. In these cases police officers

should be called in to deal with the situation. In most cases severe

violators are likely to try and escape after warning. Many times they

will evade park employees and actually get away. In these cases all

pertinent information should be taken down so that it can be turned over

to the police department for further action. Warnings can be given first

offenders based on the severity of the action.

Fines will only be assesed for major violations where persons are

declared to be negligent or purposely violating existing regulations and

for repeated offences.

F. SUMMARY OF COST

1. General Statement

It is not possible at this time to project exact costs for the

development of each marine park designated in this management plan.

Although the sites have been identified, extensive site specific field

work and interpretation have yet to be done. Preliminary evaluation

of each site was carried out by a CNMI official in 1982. However,

this individual is no longer with the government and little specific

information was formally organized and prepared. Managaha Island

and the Saipan Lagoon is the only site where more than preliminary

data exist. This site was extensively surveyed during recent field

studies associated with the Saipan Lagoon use Management Plan.

Results of this study suggest that the entire island of Managaha,

surrounding reef and selected historic wrecks nearby be included in

a marine park. The plan further identifies a cluster of coral heads

along the west coast of Managaha as an underwater trail. This trail

would become the focal point of the Managaha Marine Park project.

Although site specific data have already been collected from the

Managaha area, exact location of the trail is still not known.

Additional field studies are still required for this site as well as all

others in the CNML

Costs for implementing this marine park program occur in the

categories of additional studies, land aquisition, development of

facilities, personnel and equipment.

2. Additional Studies

Each of the three designated sites require a manangement plan

that will gather together the necessary site specific data needed to

determine the most appropriate methods for interpretaion, aquisition,

staffing, equipment and development. First Priority is to develop a

scope of work for consultant services to produce a management plan

for marine parks on Saipan, Tinian and Rota.

COST

Saipan: Nianagaha Island Marine Park Managment Plan $4,500

Tinian- Taga Beach Marine Park Management Plan 4,500

Rota: Sasanhaya Bay Marine Park Management Plan 4,500

$13,500

3. Land Acquisition

At this time it is assumed that all potential sites are presently

owned by the CNMI government eliminating the high cost of land

aquisition. Only an insignificant in-house administrative cost of land

transfer is involved. Depending on actual site development identi-

fied in the individual park manangement plans., upland areas may

need aquisition to provide access and support facilities.

4. Personnel

The number of staff required to properly operate a marine park

depends on a number of factors such as size of park, activities and

number of daily visitors. Marine parks in the CNMI are small when

compared to others in the U.S. and foreign countries. These small

parks and can be managed by one individual working closely with

the Advisory Board. Since these parks will take years to develop

fully, a single individual will be adequate in the short term. This

individual might easily handle the marine park managment tasks as a

routine part of on-going CNMI government activities. Selection of an

individual at this time should come from within selected agencies of

the CNMI government, such as the CRMO or Department of Natural

Resources, Division of Fish and Wildlife or Parks and Recreation.

Initially, this indiviudal might only require 50 percent of his

work time toward the development of the marine park program.

Because priority of sites is given to the Saipan Managaha Island,

Marine Park it is suggested that the employee reside on Saipan

where his/her attention can be spent on the most important park for

the moment. Periodic trips can be made to each of the other parks

as needed.

COST

One (1) employee at 50% of average income of $7,000 $3,500

Diver training if needed 150

First Year $3,650

Successive Years (as amended) $7,000

5. Development of Facilities

Development costs for each of the marine parks will depend on

the level of interpretation, infrastructure and numerous related

f acilities. Since no in-depth site specific plans have been done, it

is impossible to determine actual development costs for each site.

However, preliminary studies have been done on the Managaha Island

Marine Park Plan in the form of data collection and development

concepts and these development costs are included as follows:

MANAGAHA ISLAND MARINE PARK COST

- Visitor orientation center

(display of maps, photographs,

general in-formation and park layout) $12,000

- Underwater trail (20 stations with

identification plates and marker buoys) 12,000

- Marker-Buoys for 10 additional sites

in the park 6,000

- Signs and identification plates

for additional sites in the park

(Terrestrial and Marine) 3,000

COST

- Interpretive Literature (maps, species

identification charts, general information

handouts (does not include

printing cost) 109 000

- Interpretive Video 10,000

$53,000

6. Equipment (costs are based on December 1984 estimates)

The following equipment will be needed for the first year but

will be useable for three (3) subsequent years or until replacement
is required. COST

14-Foot Inflatable Boat $2,000

25 HP Outboard Engine 1,500

Pick-Up Truck 8,000

1 set Scuba Gear 800

$12,300

7. Annual Operating and Maintenance Expense

Boat and Motor $500

Pick-Up Truck 750

Visitor Orientation Center 500

Underwater Park 1,000

$2,750

G. PROGRAM PROJECTIONS

The CNMI Marine Park Management Plan has identified three sites for

initial inclusion in the program; one site for each major island. One of

these, the Managaha Island Marine Park, is considered the priority site

for developmental purposes. The other two sites are designated only as

parks at this time although minimal development could take place im-

mediately. Further development of the sites on Tinian and Rota will

likely wait for greater demand based on need. It is difficult to project

at this time when plans for parks on Tinian and Rota will require

funding for interpretive development. However, it is likely that a

significant increase in visitor use will be the key to improvements in

these parks.

This plan will be updated as circumstances dictate. Review and
0
pdating will be the responsibility of the Costal Resources Management

ffice in cooperation with the Marine Parks Advisory Board.

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Marine Sanctuary. Development Planning Office Terriroty of American
Samoa. 112p.

U.S. Dept. of Commerce, NOAA, Sanctuary Program Division. 1983. Looe
Key National Marine Sanctuary Mangement Plan. Prepared by: James
Dobbin Asso. Inc. 58p.

U.S. Dept. of Interior I National Park Service. 1983. Buck Island Reef
National Monument U.S. Virgin Islands. General Management Plan,
Development Concept Plan and Environmental Assessment. 56p.

U.S. Man and the Biosphere Program. 1983. Project 8: Biosphere
Reserves. Guidelines for Identification, Evaluation and Selection of
Biosphere Reserves in the U.S. 37p.

. 1974. Task Force on. Criteria and Guidelines for the
Choice ai@-d Establishment of Biosphere Reserves. Final Report. 61p.

. 1981. Interim Guidelines for Identification and Selection of
Coastal Nilosphere Reserves. Report No. 6. 33p.

. 1983. Man and the Biosphere Information System,
Biosphere Reserves. Prepared for UNESCO. 61p.

Veverka, J.A. and S.A. Poneleit. 1981. Interpretation as a Management
Tool for Underwater Parks. Association of Interpretive Naturalists
Journal of Interpretation. Vol. VI No. 2.

Wallis, O.L. 1971. Establishing Underwater Parks Worldwide. 36th
American Wildlife and Natural Resources Conference Proceedings. PP.
98 - 117.

APPENDICES

A. Legislation

1. An Act proclaiming Marine Parks in the Commonwealth of the
Northern Marianas.

B. Memorandum of Understanding

C. Rules and Regulations

Appendix A

AN ACT PROCLAIMING
MARINE PARKS IN THE COMMONWEALTH OF THE
NORTHERN MARIANAS

Date

Establishing Marine Parks in the CNMI of the United States of America.

Whereas The Commonwealth of the Northern Marianas (CNMI) is situated
in the Western Pacific between Latitudes 150 051 0011 N and 150
171 3011 N and Longitude 1450 401 30" E and 1450 501 3011 E.
These islands were ceded to the United States Government by
Japan in a mandate at the end of WWII.

Whereas: All property acquired by the United States at the end of WWII
by mandate not reserved by the United States for public pur-
poses was placed under control of the Marianas Public Land
Corporation with legal title remaining with the CNMI
Government.

Whereas: Not all offshore exposed and submerged lands have been
reserved by the CNh4I or United States Governments for specific
purposes.

Whereas Numerous offshore areas within the CNM1 and its adjoining
shores, rocks and undersea coral reef formations possess some
of the finest marine habitats in the Western Pacific.

Whereas These lands and their related features are of great scientific
interest and educational value to students of the sea,. tourists
and local residents.

Whereas This unique natural area and the rare marine life which are
dependent upon it are subject to constant threat of commercial
exploitation and destruction by natural and unnatural elements.

Whereas - The Coastal Resources Managment Office impressed by the
caliber and scientific importance of offshore lands and coral
reefs within the CNMI has urged their prompt protection to
prevent further degredation.

Whereas: The Governor of the CNMI under authority vested in him by
the Legislature wishes to protect the following marine habitats
as marine parks in the CNMI for the protection of natural
historic and cultural resources for scientific resources and
other purposes so all people may enjoy them forever.

1. Saipan: Managaha Island. Marine Park
Lat. 150 141 011 N and 150 141 45" N
Long. 1450 411 3011 E and 1450 421 3011 E
2. Rota: Sasanhaya Bay Marine Park
Lat. 140 o6l 4011 N and 140 071 3511 N
Long. 1450 091 30" E and 1450 091 5811 E
3. Tinian- Taga Beach Marine Park
Lat. 140 561 43" N and 140 571 3311 N
Long. 1450 371 28" E and 1450 371 2811 E

Whereas - It is in the public interest to preserve these areas of
outstanding scientific, aesthetic and educational importance for
the benefit and enjoyment of all people.

Now, therefore, I , Govenor of the CNMI under and
by virtue of the authority vested in me do proclaim that, subject to valid
existing rights, there is hereby reserved and set apart each of the pre-
viously mentioned sites as Marine Parks within the CNMI.

Warning is expressly given to all unauthorized persons not to appropriate,
injure, destroy, deface, or remove any feature of these Marin& Parks and
not to locate or settle upon any of the lands reserved for these parks by
this Act.

The Coastal Resources Management Office through the Marine Parks Advisory
Board shall oversea the supervision, management and control of these Marine
Parks.

In withness whereof I have unto set my hand and caused the seal of the
CNMI to be affixed.

Done at the village of this day of
in the year of our Lord o

Governor

Appendix B

MEMORANDUM OF UNDERSTANDING

To: Directors
Department of Natural Resources
Division of Fish and Wildlife
Division of Parks and Recreation
Department of Public Safety
Historic Preservation Office
Marianas Visitors Bureau
CNMI Legislature

From: Director
Coastal Resources Management Office

Subject: Establishment of Marine Parks Advisory Board

It is understood in this memorandum that an Advisory Board is established
for the proper managment of marine parks in the CNMI. The board will
consist of one representative from each of the seven (7) aformentioned
agencies and chaired by a non-voting representative from the CRMO, voting
only to break a tie. Appointments to the Advisory Board will be for one (1)
year except for the CRMO and Legislature which are appointed for two (2)
years for the sake of Board continuity.

Meetings will be held monthly on a regular schedule established by the
CRMO. A quorum of four (4) representatives excluding the CRMO constitute
a legal meeting. Special meetings can be called at the descretion of any
board member by contacting the CRMO. All representative agencies will
assume responsibilities vested in them by majority vote of the board.

Signed Date
Signed Director CRMO Date
Director DNR

Signed Date
Director F8zW
Signed Director P&R Date

I
I Signed Date
I Signed Director Public Safety Date
Director HPO
I Signed Director MVB Date
I Signed Legislature Date
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Appendix C

CNMI MARINE PARKS RULES AND REGULATIONS

Sections

I. Authority

II. Purpose

III. Boundaries

IV. Definitions

V. Activities Permitted

VI. Activities Prohibited

VII. Penalties

VIII. Permit Procedures

IX. Other Permits

X. Appeals

I. Authority

These marine parks have been designated by the Governor of the
CNMI pursuant to the authority of the Legislation Proclaiming Marine
Parks in the CNMI. The following rules and regulations are also issued
pursuant to the authority of this Legislation.

II. Purpose

The purpose of designating these Marine Parks is to protect and
preserve the coral reef ecosystem and other natural resources of se-
lected waters in the CNMI and to ensure the continued availability of
the area for public educational purposes and as an ecological research
and recreational resource. These areas support a particularly rich and
diverse marine biota. The areas are accessible to and are widely used
by private boaters, commercial boat operators, recreational divers,
fishermen, tourists and local residents. Consequently, both present
and potential levels of use may result in harm to these areas in the
absence of long-term planning, research, monitoring and protection.

III. Boundaries

The Marine Parks consist of areas of various sizes as described
below. The precise boundaries are:

MARINE PARK LATITUDE LONGITUDE

Saipan Managaha Island Marine Park 150 141 0 " N 1450 411 3011 E
150 141 4511 N 1450 421 5011 E

Rota Sasahaya Bay Marine Park 140 061 40" N 1450 091 30" E
140 071 3511 N 1450 091 5811 E

Tinian Taga Beach Marine Park 140 561 4311 N 1450 371 2811 E
140 57' 3311 N 1450 371 58" E

IV. Definitions

A. Advisory Board Marine Parks is chaired by the CRMO
with representatives from the Department of Natural ResourcesP
Division of Fish and Wildlife and Parks and Recreation, Marianas
Visitors Bureau, Department of Public Safety, Historic Preservation
Office and CNMI Legislature.

B. "Director" means the Director of the Coastal Resources Management
Office.

C. "Chief" means Chief Division of Fish and Wildlife, (DNR).

D. "Pereon" means any private individual, partnership, corporation, or
other entity; or any officer, employee, agent, department, agency
or instrumentality of the Federal government, or any local unit of
the government.

V. Activities Permitted

All activities except those specifically prohibited herein may be
carried on in designated Marine Parks subject to all prohibitions, re-
strictions and conditions imposed by any other authority.

VI. Activities Prohibited

A. Unless permitted by the Director through the Advisory Board or as
may be necessary for the national defense or to respond to an
emergency threatening life, property or the environment, the
following activities are prohibited within Marine Parks. All pro-
hibitions must be applied consistently with international law.

1. Removing or damaging distinctive natural features.

a. No person shall break-, cut or similarly damage or take any
coral or marine animal except as an accidental result of
anch6ring. Sand anchoring is encouraged but not re-
quired. Divers are prohibited from handling coral or
standing on coral formations.

b. No person shall take any tropical fish or marine animal
from those zones designated (A) Outstanding Natural
Features.

co There shall be a rebuttable presumption that any items
listed in this paragraph found in the possession of a
person within Marine Parks have been collected or removed
from within the Marine Park.

2. Operation of watercraft. All watercraft shall be operated in
accordance with Federal Coast Guard rules and regulations that
would -apply if there were no Marine Park. The following
constraints shall also be imposed.

a. No person shall place any anchor on coral within (A) zones
of the Reef of the Marine Park nor allow any chain or rope
to touch the Reef in a way that injures any coral in these
areas. When anchoring ,dive boats, the first diver down
will inspect the anchor to ensure that it is placed away
from corals in such a way so as not to damage them. No
further diving is permitted until the anchor is placed in
accordance with these requirements. Exceptions are per-
mitted where there is danger of drifting. Anchoring in
other zones is permitted on coral reefs.

b . Watercraft must use mooring buoys, stations or anchoring
areas when such facilities and areas have been designated
and are available.

C. Watercraft shall not be operated in such a manner as to
strike or otherwise cause damage to the natural features of
the Marine Park.

d. All watercraft from which diving operations are being
conducted shall fly in a conspicuous manner, the red and
white "divers down" flag.

3. Using harmful fishing methods.

a. No person shall use or place wire fish or lobster traps
within any zone of designated Marine Parks.

b. No person shall use pole spears, Hawaiian slings, rubber-
powered spearguns, pneumatic and spring loaded spear-
guns or similar devices known as spearguns within zones
designated (A) of Marine Parks and only for subsistence
purposes in other zones.

C. No person shall use poisons, electric charges, explosives
or similar methods whatsoever within ?nv zones of the
Marine Park.

4. Removing or damaging distinctive historical or cultural re-
sources.

a. No person shall remove, damage or tamper %,vith any
historical or cultural resources, including cargo pertaining
to submerged wrecks.

5. Discharges.
a. No person shall deposit or discharge any materials or
substances of any hind within Marine Parks.

6. Markers.

a. No person shall r.-,ark, deface or damage in any way or
displace, remove or tamper with any signs, notices, or
placar6s, whether temporary or permanent, monuments,
stakes, posts or other boundary markers installed within
Marine Parks.

b. The prohibitions in this section are not based on any claim
of territoriality and will be applied to foreign persons and
vessels in accordance with principles of international law,
including treaties, conventions and other international
agreements to which the United States is signatory.

VIL Penalties

A civil penalty of not more than $100 will be levied against any
person for each violation of any regulation and further authorizes a
proceeding in rem against any vessel used in violation of any such
regulation.

VIII. Permit Procedures

A. Any person in possession of a valid permit issued by the Director
in accordance with this section may conduct the specific activity in
the Marine Park including any activity specifically prohibited if
such activity is:

1. Scientific research related

2. for educational purposes

3. for salvage or recovery operations.

B. Permit applications shall be addressed to the Marine Parks Advisory
Board. ATTN: Director CRMO, CNMI, 96950. An application shall
include a description of all activities proposed, the equipment,
methods, and personnel (describing relevant experience) and a
timetable for completion of the proposed activity. Copies of all
other required- licenses or permits shall be attached.

C. When considering whether to grant a permit the Director shall
evaluate such matters in terms of:

1. Professional and financial responsibility of the applicant.

2. Appropriateness of the methods envisioned to accomplish the
purpose(s) of the activity.

3. Extent to which the conduct of any permitted activity may
diminish or enhance the value of the Marine Park as a source
of recreational, educational or scientific value.

4. End value of the activity.

5. Other matters as deemed appropriate.

D. In considering any application submitted pursuant to this section,
the Director shall seek the views of the Advisory Board and may
seek and consider the views of any person or entity, within or
outside of the CNMI government and may hold a public hearing as
deemed appropriate.

E. The Director may not at his/her own discretion, grant a permit
which has been applied for pursuant to this section, in whole or in
part without the majority vote of the Advisory Board. The Director
may require the submission of one or more reports regarding status

or progress of such activity. Any information obtained shall be
made available to the public.

F. Any permit granted may not be transferred without written
consent of the Advisory Board.

G. The Director through the Advisory Board may amend, suspend or
revoke a permit granted purstiant to this section, in whole or in
part, temporarily or indefinitely, if the permit holder has acted in
violation of the terms of the permit or of the applicable regulations.
Any such action shall be set forth in writing to the holder, and
shall set forth the reason(s) for the action taken. The holder may
appeal the action to the Advisory Board.

IX. Other Permits

All permits, licenses and other authorizations issued pursuant to
any other authority remain valid. Any person may request an appeal
hearing from the Director if an activity is prohibited by these
regulations.

X. Appeals

A. Any person (the appellant) may appeal the granting; denial or
conditioning of any permit to the Advisory Board through the
Director. In order to be considered such appeal shall be in writing
and shall state previous action(s) by the Board. The appellant may
request a formal hearing before the Advisory Board on the appeal.

B. Upon receipt of an appeal authorized by this section, the Director
shall notify the applicant, if other than the appellant, and may
request such additional information and in such form as will allow
action upon the appeal. Upon receipt of sufficient information, the
Director through the Advisory Board shall decide the appeal based
upon information relative to the application on file with the
Advisory Board and any additional information. A summary record
shall be kept of any such hearing. The Director shall notify all
interested persons of the decision, and the reason(s) in writing
within 30 days unless additional time is needed for a hearing.

C. If a hearing is requested or if the Director determines one is
appropriate, he/she may grant an informal hearing before the
Advisory Board after first giving notice of the time, place and
subject matter. Such hearing shall normally be held no later than
15 days following publication of the notice. The appellant, the
applicant (if different) and, at the discretion of the Advisory
Board, other interested persons may appear personally or by
counsel at the hearing and submit material and present such
arguments determined appropriate.

D. The Director will adopt the Advisory Board's recommended decision,
in whole. The Advisory Boards action shall constitute final action
an the matter.

E. Any time limit prescribed in this section may be extended for a
period not to exceed 30 days by the Director for good cause, either
upon his/her own motion or upon written request from the Appellant
or Applicant stating the reason(s) therefor.

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