ST. THOMAS EAST END RESERVES MANAGEMENT PLAN

ST. THOMAS EAST END RESERVES MANAGEMENT PLAN May, 2011 St. Thomas, U.S. Virgin Islands Drafted and edited by the STEER Core Team: Jeanne Brown, VI Coastal Program Director, The Nature Conservancy Alexandra Holecek, Area of Particular Concern Coordinator, Division of Coastal Zone Management January Murray, Fisheries Biologist 3, Division of Fish and Wildlife Lihla Noori, Virgin Islands Marine Advisory Service, University of the Virgin Islands Jean-Pierre Oriol, Acting Assistant Director, Division of Coastal Zone Management Judy Pierce, Wildlife Chief, Division of Fish and Wildlife Renata Platenberg, Wildlife Biologist 3, Division of Fish and Wildlife Sandra Romano, Masters of Marine and Environmental Science program, University of the Virgin Islands Drew Russo, Friends of Christmas Cove Christine Settar, Virgin Islands Marine Advisory Service, University of the Virgin Islands With valuable input from St. Thomas residents, STEER user groups, business owners, and researchers (collectively known as STEER Stakeholders) Contributors: Tyler Smith, University of the Virgin Islands Anthony D'Andrea, Oregon State University Agathe Sector, Conservation Finance Consultant Elena Kobrinski, Coastal Policy Intern, University of the Virgin Islands, Nova Southeastern University Anne Marie Hoffman, The Nature Conservancy, University of Maryland Stephen Hale, Fisheries Biologist II, Division of Fish and Wildlife Melanie L. Feltmate, The Nature Conservancy Photographs: Jeanne Brown; Alex Holecek; Shaun Kadison, MMES 2007; Renata Platenberg; Sybille Sorrentino, Virgin Islands Marine Advisory Service (VIMAS) Main cover: Judy Pierce, Sybille Sorrentino Citation: STEER (2011) St. Thomas East End Reserves Management Plan. St. Thomas, USVI. EFTA01119647 The drafting of this management plan was partially funded by award NA09NMF4630112 to The Nature Conservancy, from the National Oceanic and Atmospheric Administration, U.S. Department of Commerce. The statements, findings, conclusions, and recommendations are those of the author(s)and do not necessarily reflect the views of the National Oceanographic and Atmospheric Administration or the U.S. Department of Commerce. The Department of Planning and Natural Resources Division of Fish and Wildlife participation was funded by U.S. Fish and Wildlife Service through the Sport Fish and Wildlife Restoration Act grants Vl-F-19-MHTBM-M and VI-W-25-P. <4850. tit c.r) St0ROV TheNature Conservancy Protecting nature. Preserving lifer EFTA01119648 STEER Management Plan (May 2011) Table of Contents Executive Summary 1 I. Introduction 3 1.1 Purpose and Scope 3 1.2 Legislative Authority 6 1.3 Background of STEER Designation and the 2011 Management Plan 6 1.4 Rules and Regulations of STEER 8 1.5 Location, Access and Facilities 11 1.6 Current Socio-economic Uses of STEER 13 II. Conservation Action Plan 16 2.1 Plan Development process 16 2.2 Vision 18 2.3 Goals 19 2.4 Conservation Resources 19 Mangroves 21 Seagrass Beds 23 Compass Point Salt Pond 24 Sea and Shore Birds 24 Coral Reef Communities 25 Nursery and Fisheries Resources 26 Compatible and Sustainable Use and Enjoyment 27 2.5 Threats 28 2.6 Conservation Objectives and Strategies 31 2.7 Monitoring and Evaluation of Effectiveness 62 2.8 Zone and Mooring Plan 82 III. Sustainable Financial Plan 84 3.1 Summary of the STEER Sustainable Finance Plan 84 3.2 Management Structure and Implementation 90 Establishment of a Park, Board, Capacity staffing, training, facilities, equipment IV. References 92 EFTA01119649 Figures FIGURE 1 Marine Reserve Wildlife Sanctuaries and natural resources of STEER 4 FIGURE 2 Areas of Particular Concern in STEER 5 FIGURE 3 Watershed Map of STEER 11 FIGURE 4 Facilities Adjacent to STEER 12 FIGURE 5 STEER Habitats 21 FIGURE 6 Conceptual diagram showing the ecosystem services provided by mangrove ecosystems of STEER 22 FIGURE 7 Conceptual diagram showing the ecosystem services provided by seagrass ecosystems of STEER 23 FIGURE 8 Proposed STEER Use Zones 83 FIGURE 9 STEER Needs Assessment by Functional Area 87 Tables TABLE 1 Summary of MRWS Rules and Regulations applicable to STEER 8 TABLE 2 STEER Threat Ranking Matrix 30 TABLE 3 STEER Objectives listed by major threat group (1-9) or management area (10, 11) 32 TABLE 4 Summary of Strategies for STEER ranked by priority, impact and feasibility 34 TABLE 5 STEER Action Steps 36 TABLE 6 STEER Monitoring Plan 64 TABLE 7 STEER Initial Research Needs 79 TABLE 8 STEER Activities Guide 83 TABLE 9 Financial Strategy Ranking for STEER 88 TABLE 10 Potential Revenue, Critical and Optimal Funding for STEER 89 Appendices (see supplement document "STEER Management Plon: Appendices") APPENDIX A Relevant STEER Rules and Regulations APPENDIX B STEER Boundary Coordinates APPENDIX C Adjacent Commercial Entities APPENDIX D STEER Documents, Studies, and Papers Environmental Sensitivity Index Map Bathymetry in STEER APPENDIX E Bridge to Nowhere Survey Results APPENDIX F Full Sustainable Finance Plan APPENDIX G Core Drafting Team and Stakeholders APPENDIX H CAP Process, Timeline, Meetings and Workshops APPENDIX I STEER Targets: Long Versions EFTA01119650 STEER Management Plan (May 2011) List of Acronyms • AGRRA: Atlantic and Gulf Rapid Reef Assessment • APC: Area of Particular Concern • BMPs: Best Management Practices • CAP (process): Conservation Action Planning • CRCP: Coral Reef Conservation Program • CWA: Clean Water Act • CWP: Center for Watershed Protection • CZM: Coastal Zone Management • DCCA: Department of Conservation and Cultural Affairs • DEE: Division of Environmental Enforcement • DEP: Division of Environmental Protection • DFW: Division of Fish & Wildlife • DPNR: Department of Planning and Natural Resources • EIS: Environmental Impact Statement • EPA: Environmental Protection Agency • FOCC: Friends of Christmas Cove • FTE: Full-time employee • GIS: Geographic Information System • IUCN: International Union for Conservation of Nature • LiDAR: light Detection and Ranging • MLBB: Mangrove Lagoon Benner Bay • MMES: Masters of Marine and Environmental Science • MPAs: Marine Protected Areas • MRWS: Marine Reserves and Wildlife Sanctuaries • MSA: Marine Protection, Research and Sanctuaries Act of 1972 • MSDs: Marine Sanitation Device • NASA: National Aeronautics and Space Administration • NMFS: National Marine Fisheries Service • NOAA: National Oceanic and Atmospheric Administration • NP: Non-point source pollution • NPS: National Park Service • PA: Protected Area • PS: point source pollution • SLR: Sea level rise • STEER: St. Thomas East End Reserves • STT: St. Thomas, VI • STXEEMP: St. Croix East End Marine Park • TNC: The Nature Conservancy • USFWS: U.S. Fish and Wildlife Service • USGS: U.S. Geological Survey • USVI: U.S. Virgin Islands • UVI: University of the Virgin Islands • VIMAS: Virgin Islands Marine Advisory Service • VINE: Virgin Islands Network of Environmental Educators • VIRR: Virgin Islands Rules and Regulations • VIWMA: Virgin Islands Waste Management Authority EFTA01119651 EFTA01119652 EXECUTIVE SUMMARY This Management Plan contains the roadmap for effectively conserving the coastal and marine natural and cultural resources of the southeast end of St. Thomas. It does not contain any new rule or regulation that does not already exist in Virgin Islands Code. By creating a new territorial marine protected area, collectively deemed the St. Thomas East End Reserves (STEER), several existing protected areas (Cas Cay / Mangrove Lagoon, St James, and Compass Point Marine Reserves and Wildlife Sanctuaries) will be protected as one comprehensive management unit. In recognition of the importance of adjacent natural and cultural resources as well as the imminent threats to them, a collaborative planning process between the STEER community and the Virgin Islands Department of Planning and Natural Resources (DPNR), University of the Virgin Islands (UVI), and The Nature Conservancy (TNC) was initiated in May 2008 to develop this management plan to provide the long term vision for the area and guide near-term (3-5 years) objectives and activities. The intent of the STEER Management Plan is to outline the steps needed to restore and maintain a functional coastal ecosystem that promotes sustainable recreational opportunities and compatible commercial uses with community engagement through effective management. The TARGETED RESOURCES in STEER that this plan aims to protect, enhance and restore are: • MANGROVES • SEAGRASS BEDS • COMPASS POINT SALT POND • SEA AND SHORE BIRDS • CORAL REEF COMMUNITIES • NURSERY AND FISHERIES RESOURCES • COMPATIBLE AND SUSTAINABLE USE AND ENJOYMENT The THREATS to these targets fall into nine general themes: 1. Land-based Sources of Pollution 2. Climate Change 3. Habitat Loss 4. Unsustainable or Illegal Fish Harvest 5. Predators of Sea and Shore Birds 6. Incompatible Use Issues 7. Trash and Debris 8. Physical Damage from Boats 9. Marine-based Sources of Pollution 1 EFTA01119653 STEER Management Plan (May 2011) STRATEGIES developed to abate these threats or restore a targeted resource revolve around: • Improved watershed and stormwater management • Increased coordination of permitting, regulation and enforcement of non-point and point- source pollution and coastal development to prevent habitat loss and sedimentation • Improving enforcement of existing coastal rules and regulations • Community outreach • Developing a climate change adaptation plan • Creation of a moorings program within STEER • Developing a Zone and Mooring Plan for recreational and commercial activities • Improve bird nesting success and survival rates by reducing predation by introduced species and entanglement by discarded monofilament • Restoration activities The primary components of this Management Plan are: 1) An outline of STRATEGIES AND ACTION STEPS aimed to abate threats to these resources or to restore the targeted resources to acceptable and functional levels. Page 34 2) A MONITORING PLAN to accompany the management strategies to inform managers, researchers, funding sources, and Virgin Islanders of the effectiveness of activities to the benefit of the resources. Page 64 3) A SUSTAINABLE FINANCE PLAN that identifies the financial need and resources for the management and operation of STEER. Page 84 Appendix F 4) A ZONE AND MOORING PLAN which clearly delineates the designated allowed maritime, recreational and commercial uses with corresponding regulations, and a mooring and anchoring plan. Page 82 5) Relevant BACKGROUND INFORMATION necessary for guiding the management of STEER including legislative structure, current uses and status of the resources, studies, and involved parties. Page 6 Appendices C, D, E, and I EFTA01119654 INTRODUCTION 1.1 Purpose and Scope This Management Plan was developed for the Cas Cay / Mangrove Lagoon, St James, and Compass Point Marine Reserves and Wildlife Sanctuaries (MRWS) collectively referred to as the St. Thomas East End Reserves, or "STEER". Prior to the development of this Management Plan, the most recent plan, written in 1993, focused solely on the Cas Cay/Mangrove Lagoon MRWS, but was not authorized by the managing authority nor has it been implemented. STEER is one of the various forms of protected areas throughout the marine and coastal environment of the U.S. Virgin Islands (USVI). Of the system of protected areas managed by the Territorial Government of the USVI, this area is the most recent, along with the St. Croix East End Marine Park (STXEEMP). As part of a larger, territory-wide system of Marine Protected Areas (MPAs), STXEEMP and STEER are designed to protect the system of coastal resources including mangroves, seagrass beds, coral reef communities and other critical marine habitats. 3 EFTA01119655 STEER Management Plan (May 2011) St. Thomas The Living Oceans Benthic Habitat (2001) kleclmm densny seagrass Bare bedrock pavement i 5tontastraea reel , &Aro& fleshy 8 calcareous algae Rubble r Sand o, Nips Roads Dense gorgonians on bedrock Dense mann* 8 encrusting Dense seagrass Dicyola on pavement Sparse corals 8 high algal covet Sparse corals 8 Du algal cover Sand W algae Sand ni calcareous green algae Sand Al sparse gorgontans Sparse seagrass Turf algae and Mdlepora .Vc Natural Resource Inventory St Thomas East End Reserve Committee December 4. 2008 Cabita Point River / Gut a Ambient Water Dually 11. P.Ionitoring Stations (DEP) Vegetation Cover Thicket scrub Developed Beach .4 Semi 8 Drought Marine Reserve deciduous forest A Inner Mangrove Lagoon Coasts grassland CB Cas Cay i Mangrove Lagoon OMITS hedge cc St James Mood dry shiublarvi 0 G Compass Point sag Pone 05 0 25 0 Liam Figure 1: Marine Reserve Wildlife Sanctuaries and natural resources of STEER Rock pavement Mangroves Freshwater pond ( Mixed Swamp Salt flat I Salt pond •••••••••••••asa00 The MPAs described in this Plan encompass 9.6 km2 of significant coastal, marine and fisheries resources, including mangrove forests, salt ponds, lagoons, reefs and cays. Located at the southeastern end of St. Thomas, STEER is thought to be one of the most valuable fish nursery areas remaining on St. Thomas. Many species of fish and shellfish, including important commercial and sport fisheries resources, spend a portion of their life protected in the shallow mangrove and seagrass beds while feeding and growing before populating other marine habitats in the area. These natural resource-rich areas were declared Areas of Particular Concern (APCs) in 1979, specifically the Mangrove Lagoon/Benner Bay APC and Vessup Bay APC (Figure 2: Areas of Particular Concern in STEER). APCs identified in Figure 2 include both terrestrial and marine areas. EFTA01119656 Figure 2: Areas of Particular Concern in STEER This Management Plan is designed to provide the long-term vision for STEER and guide near- term (3-5 years) objectives and activities. It does not contain any new rules or regulations that do not already exist in the Virgin Islands Code. Components include a management activity plan (including monitoring for effectiveness), a financial business plan, and a zone and mooring plan. The Plan is part of an adaptive and iterative management process, ultimately leading to the sustainable use of the coastal and marine resources in STEER. It is designed to provide guidance in the near-term, but is also open to modifications based on periodic evaluation of management activities and results. The monitoring program included in the Plan is designed to provide the framework for the evaluation of the effectiveness of the management actions. Each action undertaken by management will be evaluated to ensure that it is achieving the objectives set forth throughout this plan. This plan should be revised with stakeholder input after a period of five years from the time of approval and commencement of management activities to reflect the results of the monitoring program. Specific sections, such as the strategic actions, will be reviewed on a more frequent basis to adapt to changes. 5 EFTA01119657 STEER Management Plan (May 2011) 1.2 Legislative Authority The Virgin Islands Code, Title 12, Chapter 1, Section 97 grants the Commissioner of the Department of Planning and Natural Resources (DPNR) the authority to designate or establish marine and wildlife sanctuaries for the purposes of propagating, feeding and protecting birds, fish and other wildlife. It is under this authority that the Cas Cay/Mangrove Lagoon, St. James and Compass Point Pond Marine Reserves and Wildlife Sanctuaries were all established in 1994. In 2002, Title 12, Chapter 1 of the Virgin Islands Code was amended to include the establishment of the St. Croix East End Marine Park, and to allow for the future designation of other marine parks. Section 98(b) of the Code grants the Virgin Islands Coastal Zone Management Commission (the Commission) the authority to establish other marine parks in the Virgin Islands as part of a territorial park system; further, the Commission may promulgate rules and regulations pertaining to the management of such designated areas under the authority of section 98(d)(3) of the VI Code. 1.3 Background of STEER Designation and the 2011 Management Plan In 1972, the Legislature of the Virgin Islands (Legislature) passed Act 3330, Commercial Fishing Promotion, which was aimed to develop the commercial fishing industry and recognize the significance of the marine habitat to the industry, and its importance to the livelihood of the people of the Virgin Islands (DCCA, 1979). As part of the Act, the Department of Conservation and Cultural Affairs (DCCA) was mandated to establish necessary fishery management programs. In that same year, Congress passed the Marine Protection, Research and Sanctuaries Act of 1972 (MSA), which would allow for the designation of marine sanctuaries for "the purpose of preserving or restoring their conservational, recreational, ecological, or aesthetic values" (DCCA, 1979). The National Oceanic and Atmospheric Administration (NOAA) Sanctuaries Program Office was tasked with administering the program. Criteria for designation were commonly based on areas with distinctive and important habitat, species and ecosystems, although sometimes areas were designated to preserve distinctive resources where conflicts between human uses and conservation required comprehensive management planning guidelines. As early as 1979, the area off southeast St. Thomas was identified as a top candidate for designation under the National Marine Sanctuary Program. Criteria used in selecting the area included: o Ecological value of the area EFTA01119658 o Value of the area for scientific research o Ability of the area to support fisheries o Ability to maintain recreational use of the area It was determined that the area's ecological, cultural, recreational and aesthetic importance to the people of the Virgin Islands would require increased management for the protection of the multiple resource uses. Although many years have passed since the investigation into the area off the southeast of St. Thomas, many of the concerns for the area remain today. The areas were given some protection when designated MRWSs, but functional management of the area has been non-existent. In 2008, DPNR-Division of Coastal Zone Management (CZM) received an application submitted by WT Enterprises to moor a vessel in Christmas Cove on Great St. James Island and operate it as a floating bar and restaurant. There was tremendous public outcry against the granting of a permit for such activity. The main reason cited was that the area was designated as a Marine Reserve and Wildlife Sanctuary. After reviewing the regulations, a floating bar and restaurant were not specifically prohibited, but most believed that such an activity could not foster the goals outlined in the designation of the area as a reserve. It was clear that a management plan for the area was lacking; one that would identify a vision for the area and prevent future applications of this type from occurring. As a result, in April 2008, DPNR, the University of the Virgin Islands (UVI), The Nature Conservancy (TNC), and a community group called the Friends of Christmas Cove (FOCC) partnered to create a management plan for all the designated MRWSs on St. Thomas' east end. Coincidentally, activities undertaken by DPNR's Division of Environmental Enforcement (DEE) to remove derelict and unpermitted vessels from the MRWSs in the spring of 2008 drew further attention to the need for a management plan for the area. This endeavor by DPNR's DEE happened to coincide with the early formation of the Core Planning Team to spearhead the drafting of a comprehensive area Management Plan for STEER and the identification of stakeholders to provide input in the planning process. Community attention and support for a Zone and Mooring Plan grew as a result of the highly publicized actions by DPNR's DEE. 7 EFTA01119659 STEER Management Plan (May 2011) By creating a management plan for the area, clear conservation goals are established, resource management can be achieved, and the area can be managed under the Virgin Islands Territorial Park System. 1.4 Rules and Regulations of STEER A summary of the Virgin Islands Rules and Regulations (VIRR) and Virgin Islands Code applicable to STEER is outlined in the table below (Table 1). The complete rules and regulations that apply to STEER are included in Appendix A: "Relevant STEER Rules and Regulations." The applicable rules and regulations include: • VIRR Title 12, Chapter 1, Subchapter 94: Islands and Cays • VIRR Title 12, Chapter 1, Subchapter 96: Prohibited Acts in Wildlife and Marine Sanctuaries • VIRR Title 25 Navigation, Chapter 16: Mooring of Vessels and Houseboats o Section 404 Mooring and Anchoring of Vessels in the Territory o Section 405 Mooring Permits, Fees, Renewals and Cancellations o Section 406 Placing of buoyed mooring; unauthorized use; reassignment; identification o Section 408 Unseaworthy and derelict vessels, houseboats, refuse and pollutants o Section 408a. Prohibition of Houseboats • VI Code Title 12, Chapter 2, Endangered and Indigenous Species Act Table 1. Summary of MRWS Rules and Regulations applicable to STEER Cas Cay Marine Reserve and Wildlife Sanctuary VIRR Title 12 Chapter 1, Subchapter 94, Islands and Cays It is unlawful for any person to land on or create disturbance near any island or cay listed in the Annex unless the person is a governmental employee on official business, an authorized scientist, a licensed seabird guide, or a person possessing a valid visitation permit who is escorted by a licensed seabird guide acting within the scope of his license. (Subchapter 94, Section 94(b)-1) (Islands and cays listed in the Annex include Capella, Carval Rock, Cas Cay, Cockroach, Congo, Cricket, Dog, Dutchcap, Flanagan, Flat, Frenchcap, Kalkun, Little Flat, Pelican, Saba, Shark, Stevens', Sula, Turtledove.) With the exception of Cas Cay which was bequeathed to the Government of the Virgin Islands "for the exclusive use as a bird sanctuary, and for the purpose of preserving the cay in its natural state for the perpetual enjoyment of the people of the Virgin Islands." EFTA01119660 Subchapter 96, Section 96-2 Prohibited Activities within the Cas Cay MRWS: Except under permit or specific authorization from the Commissioner, it is unlawful to: • Take or possess any bird, fish, or other wildlife (including any living organism) or part thereof • Unlawful to use, possession or discharge of any firearm, air rifle, bow and arrow, or any trap or other contrivance designed for or capable of taking birds, fish or other wildlife into or within the Marine Reserve and Wildlife Sanctuary. • Anchor beyond 7 days within the boundaries of the Marine Reserve and Wildlife Sanctuary • Anchor boats without functioning sewage holding tanks • Use in the inner lagoon any internal combustion engine (Inner lagoon is defined as the area within the Marine Reserve and Wildlife Sanctuary west of a line from Turpentine Run to the eastern end of Patricia Cay) • Operate any powered vessel in excess of 5 miles per hour • Moor any vessel after July 1, 1996. Vessels with current mooring permits must have a functioning holding tank capable of being discharged at a pump-out facility or beyond 3 miles at sea. (No new mooring permits will be granted for this area) • Picnic in/at non-designated areas, camp hunt, use of fire (except in self-contained charcoal-briquette or gas grill), possession of firearms, playing of amplified music, disturbing or removal of any plant, animal or mineral, store, repair, maintain, or construct any vessel or vehicle Permitted Activities within the Cas Cay MRWS: Subchapter 96, Section 96-5 Acts permitted, provided a permit is first obtained from the Commissioner: • The use of castnet with a minimum square mesh size of y. inch to capture baitfish (fry) within 50 feet of the north and west shorelines of Cas Cay only Mangrove Lagoon Marine Reserve and Wildlife Sanctuary Subchapter 96, Section 96-2 Prohibited Activities within the Mangrove Lagoon MRWS: Except under permit or specific authorization from the Commissioner, it is unlawful to: • Take or possess any bird, fish, or other wildlife (including any living organism) or part thereof • Unlawful to use, possession or discharge of any firearm, air rifle, bow and arrow, or any trap or other contrivance designed for or capable of taking birds, fish or other wildlife into or within the Marine Reserve and Wildlife Sanctuary • Anchor beyond 7 days within the boundaries of the Marine 9 EFTA01119661 STEER Management Plan (May 2011) Reserve and Wildlife Sanctuary • Anchor boats without functioning sewage holding tanks • Use in the inner lagoon any internal combustion engine Operate any powered vessel in excess of 5 miles per hour • Moor any vessel after July 1, 1996. Vessels with current mooring permits must have a functioning holding tank capable of being discharged at a pump-out facility or beyond 3 miles at sea. (No new mooring permits will be granted for this area) • Picnic in/at non-designated areas, camp hunt, use of fire (except in self-contained charcoal-briquette or gas grill), possession of firearms, playing of amplified music, disturbing or removal of any plant, animal or mineral, store, repair, maintain, or construct any vessel or vehicle Compass Point Pond Marine Reserve and Wildlife Sanctuary St. James Marine Reserve and Wildlife Sanctuary VIRR Title 12, Chapter 1, Subchapter 96, Prohibited Acts in Wildlife and Marine Sanctuaries Prohibited Activities within the Compass Point Pond MRWS: • Unlawful to use, possession or discharge of any firearm, air rifle, bow and arrow, or any trap or other contrivance designed for or capable of taking birds, fish or other wildlife into or within the Marine Reserve and Wildlife Sanctuary • Unlawful to bring livestock, dogs, motor vehicles or to play loud electronic music in Marine Reserve and Wildlife Sanctuary • Unlawful to disturb or take and plant or animal within the Marine Reserve and Wildlife Sanctuary • Unlawful to store, repair, maintain or construct any vehicle or vessels within the Marine Reserve and Wildlife Sanctuary Subchapter 96, Section 96-3 Prohibited Activities within the St. James MRWS: • It is unlawful to remove any marine or other wildlife without a permit or specific authorization from the Commissioner Subchapter 96, Section 96-4 Permitted Activities within the St. James MRWS: Acts permitted, provided a permit is first obtained from the Commissioner: • Scientific collecting in support of and for use in a research project with an approved protocol • The use of castnet with a minimum square mesh size of Y. inch to capture baitfish (fry) within 50 feet of the shoreline, except for Cow and Calf rocks • Fishing with hook and line EFTA01119662 Various Federal regulations also apply to STEER including, but not limited to, the Essential Fish Habitat Amendment to the Magnusen-Stevens Fishery Conservation and Management Act, the Endangered Species Act, the Migratory Bird Treaty Act and the Clean Water Act. 1.5 Location, Access and Facilities The MRWSs described in this Plan, collectively referred to as STEER, encompass 9.6 km2 of significant coastal, marine and fisheries resources, including mangrove forests, salt ponds, lagoons, reefs and cays (Figure 1: Marine Reserve Wildlife Sanctuaries and natural resources of STEER). Located at the southeastern end of St. Thomas, the area spans 39 km (24 miles) of coastline consisting of mangroves, sandy beaches, rocky headlands, rocky shores, and developed shoreline. STEER includes the Compass Point Pond, a salt pond located near Benner Bay. The Cas Cay/ Mangrove Lagoon MRWS has Long Point as a western boundary, Nazareth as the eastern boundary and contains Patricia, Bovoni, Rotto and Cas Cays. The St. James MRWS starts at the eastern boundary of the Cas Cay/ Mangrove Lagoon, to the northwestern shore of Little St. James, encompassing Great St. James to the mean high tide watermark, and reaching to Cabrita Point. (Please see Figure 3. Watershed map of STEER and Appendix B: STEER Boundary Coordinates, for the boundary coordinates and descriptions of STEER and the zones contained within.) Legend RIVet I Gut •Ambient Wailer Cateroyep, Motets CO,. WO, Watersheds Property Parcels Marine Reserve Jetties Ray by Zone r jot Inn.? Mangiove Lagoon Ss Frenchman Bay C? P Co Can i M nag' n'a• 189808 2,ti Roe Hook ass. R4 CC St James S. Smith Say Ilhe Co: Comensit PO4.11 San PCIINI Figure 3: Watershed Map of STEER Watershed & Landuse Inventory St Thomas Emit End Reserve Committee December 4. 2008 11 EFTA01119663 STEER Management Plan (May 2011) rove Lagoon, There are five private offshore cays (Little St. James, Great St. James, Current Rock, and Patricia, Rotto, and Fish cays), two public owned offshore keys (Cas and Bovoni cays), and Cow and Calf Rocks within STEER. Several adjacent watersheds impact STEER, including Red Hook Bay, Jersey Bay, and Frenchman Bay watersheds. There are six hotels /resorts/condominium associations along the Marine Reserves boundary (Figure 4: Facilities Adjacent to STEER) with reverse osmosis plants, a waste water treatment plant, fueling facilities, back-up generators, and public access points to the water. In addition, a large housing community in Estate Bovoni is located just north of the Clinton Fipps Race track, directly north of the Mangrove Lagoon. The municipal landfill for both St. John and St. Thomas borders the western end of STEER. Boaters and anglers alike can access STEER by way of nine marinas and boat yards that lie along the southern shore of St. Thomas. This "Marine Row" was not included in the original physical boundary of the MRWSs; however due to their proximity and access for the Marine Reserves waters their practices are critical to this Management Plan. Some public ramps are located at Benner Bay adjacent to Eco-Tours and Cowpet Bay. • X0.1 Morimpil Drip Cerdwrint lApIngo Wale. • nistmanIPLinl Novang thie elninnt • Pole1na I Ilya, a s".4, lamas a Aptic Oext. Access Facilities Adjacent to STEER EFTA01119664 1.6 Current Socio-economic Uses of STEER Recreational use: The luxurious beaches and coastlines of STEER are favored sites for snorkeling and scuba diving, for both residents and visitors, particularly at Cas Cay, Christmas Cove, Great Bay, and Cow and Calf Rocks. An active recreational water sports community partakes in windsurfing, kite boarding, kayaking, and sailing from public beach access points and swimming areas located at condo and hotel locations such as Vessup Beach, Ritz Carlton, Secret Harbor, Cowpet Bay East & West, Anchorage, The Elysian, Water Point, • STEER, R. Platenberg Cabrita Point and Deck Point residential areas. In addition, visitors engage in sightseeing excursions on both motor boats and sailing vessels. Bait fishing, hook and line as well as sport fishing are limited and require DPNR permits. Vista into Reserve, R. Platenberg Widely known as the original boating community in the Virgin Islands, STEER is a gateway for "down-island" and stateside voyages, where boaters can readily service their boats (Appendix C: "Adjacent Commercial Entities"). Home to the St. Thomas Yacht Club at Cowpet Bay and the annual ROLEX regatta, STEER is a world renowned destination for the charter boat and private yacht industry including powerboats, sailing vessels and fishing charters. An active residential boating community has developed in STEER, including overnight stays as well as full time and seasonal live-aboards. Private DPNR-permitted moorings as well as personal moorings are 13 EFTA01119665 STEER Management Plan (May 2011) Sailboats moored at Cas Cay, R. Platenberg found in STEER. As part of the management for the area, permanent mooring buoys will be installed in STEER to help prevent anchor damage to coral reefs, seagrass beds and mangroves. Commercial Use: Many of the commercial activities within or adjacent to the boundaries of STEER support the traditional and recreational uses of the area. Because the southeast area of St. Thomas is convenient to a major airport, downtown Charlotte Amalie, Red Hook, St. John and the British Virgin Islands, a concentration of seaside hotels, private villa rentals, condominiums, restaurants, and yacht clubs are all concentrated around the STEER coastline. air n, R. Platenberg Routes for regularly scheduled inter-island ferry service and commercial barges pass through the St. James Reserve within STEER. There are powerboat, sail, water sports equipment and scuba diving businesses. Ecotourism-based businesses also exist within STEER, one of which provides kayak tours of the mangrove lagoon. The majority of St. Thomas marinas and boatyards bordering the Reserves provide various marine related services (although the marine facilities are not within the boundaries of the Reserves, all water craft must enter and exit via the Reserves waters). The St. Thomas Yacht Club in Cowpet Bay has moorings available to its members on a fee basis. Limited fishing (bait fishing with cast net as well as hook and line by permit only) occurs in STEER. Research and Education: STEER is convenient and easily accessible by research and educational groups alike. Over the years, USVI resource agencies including DPNR's CZM, Division of Fish & Wildlife (DFW), Division of Environmental Protection (DEP), and UVI have gathered a wealth of information related to the area's fish, turtle, bird, coral reefs, sea grasses, salt pond dynamics, mangroves and water quality. More recently, UVI's Center for Marine and Environmental Studies, NOAA, Gulf of Mexico Foundation and TNC have also been active in research, restoration and management initiatives. Most of ionitoring in STEER, IMES 2009 the documents associated with past research are available at the DFW Office in Red Hook or see list of references at the end of this document and the "Appendix D: STEER Documents, Studies, and Papers" supplemental to this report for more detailed information. EFTA01119666 The diverse habitats in STEER provide a research opportunity for undergraduate and graduate students, visiting researchers from off-island, as well as elementary and secondary school students to study the relationships between the ocean, the reef, the shore, and commercial/residential uses in the area. There is expressed interest in "citizen science" opportunities whereby tour operators, residents, park visitors, and guests participate in monitoring of marine habitats as part of their marine park experience. Community Perceptions: A survey was distributed to participants at the 2009 Earth Day clean up event located at the locally known "bridge to nowhere," an area of land adjacent to STEER and within the Jersey Bay watershed, and usually encumbered by large amounts of roadside waste and debris. The purpose of the survey was to gather information about community perceptions, understanding, and attitudes towards the Jersey Bay watershed. ), VIMAS storm water catchment and groundwater recharge." The top issues in the Jersey Bay watershed were "sediment run-off," "dumping," "sewage outfall," and "development." When asked what they would do to prevent further watershed pollution if given assistance, the most popular choices made were "volunteer for community environmental programs," "report commercial polluters," and "plant trees" (see Appendix E: "Bride to Nowhere Survey Results" for complete survey and results). Out of the 60 individuals surveyed, 29 of them indicated as living in or near the Jersey Bay watershed. When asked why this watershed was important, the popular responses were: "it contains habitat for rare St. Thomas wildlife such as freshwater shrimp and wetland birds," "it is home to many different kinds of plants," and "it is an area for While the survey was not widely distributed in the USVI, these results do indicate that there is a concern for the current health of the STEER watershed and adjacent areas, and that residents are interested in, and willing to participate in the conservation mission and goals of STEER. 15 EFTA01119667 STEER Management Plan (May 2011) STEER Stakeholder meeting, VIMAS II. CONSERVATION ACTION PLAN (CAP) 2.1 Plan Development Process The initiative to build a comprehensive management plan for STEER began in the spring of 2008. The development of the Plan followed The Nature Conservancy's Conservation Action Planning (CAP Process) as a mechanism to develop a strategic vision and management plan for the Reserves (TNC 2007). The CAP methodology has been utilized and tested by TNC and its partners for over fifteen years and has resulted in effective management plans for hundreds of protected areas around the world. CAP is based on the principles of adaptive management and is designed to facilitate and utilize input from stakeholders. The CAP is implemented through a series of planning meetings and workshops with the Core Planning Team and the Stakeholder Advisory Group. Facilitated discussions result in the development of goals, identification of priority conservation resources and their condition, understanding of human activities impacting the resources, and selection of objectives and strategies for improving or maintaining the resources within STEER. The process of working through CAP for protected areas results in a comprehensive management plan based on a solid ecological foundation focused on specific and attainable strategies for biodiversity conservation and threat abatement. The original St. Croix East End Marine Park Management Plan was also developed using early CAP principles. Ultimately, the process can address capacity issues and promote a financial plan for monitoring and evaluation. Most importantly, the CAP process results in the creation of an overall work plan for local management authorities and related agencies to translate into annual work plans. The sustainable financial plan for STEER as contained within this Management Plan (page 84 and Appendix F: "Full Sustainable Finance Plan") was developed using World Wildlife Foundation's financial modeling template and TNC's methods of Integrated Strategic and Financial Planning following Conservation Finance Alliance methods and the Convention of Biological Diversity Programme of Work on Protected Areas. This included a finance gap assessment, which aided in the development of a realistic work plan, with associated costs. The resulting financial model provides comprehensive, long- term estimates of costs of each program, as well as potential sources of revenue. The total costs, revenue estimates and gap analyses derived from the model provide the components for developing sustainable funding vehicles and fundraising proposals. The Management Plan was developed by the VI-DPNR (the Management Authority), UVI, and TNC with funding from NOAA and the US Fish and Wildlife Service (USFWS). Personnel of DPNR's Divisions of CZM, DFW, DEP, and DEE contributed to the drafting of the plan as did faculty and students of the UVI and Friends of Christmas Cove. This process relied heavily on community expertise, with a series of EFTA01119668 community workshops held to generate input and ideas from the Stakeholder Advisory Group, special interest groups, and other regional experts during consultation meetings and workshops (see Appendix G: "Core Drafting Team and Stakeholders" for list of Core Planning Team and Stakeholder Advisory Group members involved). A brief description of the process that guided the workshops (CAP) and the timeline of the series of meetings and workshops held are included in Appendix H: "CAP Process, Timeline, Meetings and Workshops." The STEER CAP process also benefited from conducting a multitude of broad community engagement activities including: Bridge to Nowhere Earth Day Clean-Up 2009, Reef Fest Exhibit 2009, Boating Safety Booth, STEER/Cleansweeps Mangrove Restoration/ VI Waste Management Authority -Youth Environmental Services summer program, UVI high school mangrove/seagrass monitoring demonstration, several radio shows, publishing of a factsheet, inclusion in recent USVI legislators environmental briefing book, utilization of Google Groups communication tool (STEER Stakeholders 2009), delivery of watershed socio-economic survey to resident focus group, web-based posting of documents, and periodic newspaper articles. Conducted by Core Steering Team members and targeted for the wider St. Thomas Community, these activities served as opportunities to build support and awareness for the plan, a starting point for adding societal and natural resource conservation value to the area, imperative to the successful implementation of the plan. Bridge -2-No Where • Earth ➢ag Clean-Op 2009 Restoring Oar Precious Watershed TegetherMr Thanks to the inspiration and partnership of: nvironmental Association of St. Thomas, WI- Center for Marine and Environmental Studies, Bellows In- national, Department of Planning and Natural Resources, Budget Marine, & St. Thomas East End Reserve Management Planning Group Bridge to Nowhere, Earth Day Clean•Up Poster 17 EFTA01119669 STEER Management Plan (May 2011) r at a trash clean-up, VIMAS 2.2 Vision The aim of STEER's vision statement is a very brief summary of what STEER management is trying to achieve. It was based on the reason the Reserves were originally established and why they continue to be important today. It was designed to be: • Relatively General - Broadly defined to encompass all possible project activities • Visionary - Inspirational in outlining the desired change in the state of the targets toward which the project is working • Brief - Simple and succinct so that that all project participants can describe the vision A statement of the vision the community has for STEER was collaboratively written by the Core Steering Team and the Stakeholder group in a series of steps across two meetings. The steps included asking participants: "What is significant about the place?" What is important to you?" and "What do you want STEER to look like in 20 years?" A list of statements was produced, forming the basis for the vision that was vetted at several subsequent stakeholder meetings. The resulting vision for STEER is: 'al ith .In action, VIMAS EFTA01119670 2.3 Goals The goals for the activities planned for the management of STEER were developed using a similar approach of stakeholder input, review, editing, and building consensus over a series of meetings. Most of what was originally expressed in the visioning process but not captured in the vision, such as specifically promoting research in the area, was incorporated into the goals. The resulting management goals of STEER are: GOAL #1 Bolster natural resource condition by utilizing ecosystem -based management principles that aim to conserve watersheds and adjacent marine habitats critical to our island's fishery and tourism resources. GOAL #2 Adopt effective management models that incorporate research and planning, to elevate STEER status into the USVI Territorial Park System marine protected area network. GOAL #3 Inspire the community to support and participate in STEER management through community engagement opportunities, educational activities, and a variety of communication strategies. GOAL #4 Fortify widespread socio-economic benefits, while respecting traditional use and cultural values 2.4 Conservation Resources (TARGETS) The resources within STEER that stakeholders, resource managers and experts feel are to be the primary targets of our conservation efforts were identified in a series of workshops. These "Targets" provide a basis for all subsequent planning steps, including the determination of indicators and creation of monitoring plans to gauge the effectiveness of management of STEER. Conservation targets can be thought of as the resources that are important or unique to STEER that need to be protected whether they are natural, cultural, or socio-economic. From a long list of all desired targets of protection, the top targets were determined to be: • MANGROVES • SEAGRASS BEDS • COMPASS POINT SALT POND • SEA AND SHORE BIRDS • CORAL REEF COMMUNITIES • NURSERY AND FISHERIES RESOURCES • COMPATIBLE AND SUSTAINABLE USE AND ENJOYMENT 19 EFTA01119671 STEER Management Plan (May 2011) All participants in the CAP process have felt strongly that improved water quality should be a primary target for conservation action within STEER. However, in subsequent steps, we realized that improvement of water quality, as an attribute for all of the above listed targets, would benefit all seven targets. Improved water quality is thereby considered not only a target for conservation strategies and action, but also an overarching aim for STEER. It also serves as an important indicator of improvement in the status of the targets. Participants felt confident that water quality is a major theme of action for this Management Plan. Furthermore, from a long list of species identified as targets to protect (such as conch, fiddler crabs, certain seabirds, parrotfish, etc.) we felt that targeting conservation efforts on the habitats that these species need to thrive will likely improve the status of these species within STEER. This can be gauged by measuring presence, population levels, biomass, or status of these species as indicators of successful management of the targets (Section 2.7 M For comparison, the following lists important habitats and features of STEER that were at one point identified in various legislative, scientific and historical documents and formed the basis for designation of the MRWSs on the east end of St. Thomas: o The Reserve contains six offshore coys that are considered St. Thomas' most important assets due to their pristine state. It was noted that the cays total almost 300 acres of which only 15 ore public; Cas Cay was bequeathed to the VI government. o The mangroves in Jersey Bay are considered the most significant mangrove area in the VI and the last remaining such area on St. Thomas. The primary significant ecological function of these mangroves is as nursery and feeding ground of important finfish and invertebrate fisheries, and as a filtering agent for the runoff from adjoining watersheds. The mangrove system also provides valuable shoreline protection and shelter for boots during emergency weather events. o Solt ponds (includes coastal salt ponds found in Great St. James). o Coral reefs with their important ecological and recreational value. o Sea grasses, also serving as nursery and feeding grounds for fishes. o Guts (stormwoter drainages with riparian habitat) in the adjacent watersheds. o Recreational resources which play a major role in the lives of Virgin Islanders and hove become important economic resources as well. For a more comprehensive list of species commonly associated with STEER, see Appendix D or The Comprehensive Wildlife Conservation Strategy for the Virgin Islands at vifishandwildlife.com onitoring and Evaluation of Effectiveness page 62). rg 10 EFTA01119672 The following describes the role of STEER conservation Targets in the ecosystem, their characteristics, status and extent, and pressures on these resources. For more comprehensive background, studies, and references, please see "Appendix D: STEER Documents, Studies, and Papers." 0 Legend 0 Marker Buoy Mangrove Bebthsc Habitat K Colonized Bedrock SiIL Reef K Sand K Sand I Seagrass K Seagrass Conpas<PniM sm Pond STEER Habitats Cas Cay f Mangrove Lagoon, St James, and Conpass Pout lAame Reserves and Made Sanctuaries - collectively STEER Figure 5: STEER Habit..:-, Mole Tar St Trona...WM WO (USNA) Alhes K•41(SI Ms Sow inn o Ocean., i isuntliacr , Putt's* zoo-07.p0 TY0e (Sib Snipe 2.4.1 Mangroves (For a more extensive description of mangroves in the USVI, see Appendix 1: STEER Targets: Long Versions) Mangroves are salt-tolerant plants that grow along tropical and sub-tropical coasts. They require warm temperatures, calm near shore waters, and low-lying coastal land. Their unique structures serve several important roles in marine ecosystems. The dense root system, especially prevalent in the red mangroves, protects coral by filtering land-based sediment that would otherwise flow into the ocean and obstruct sunlight from reaching the coral. The roots also provide nutrient-rich detritus and protection for larvae and juvenile fish, resulting in an ideal fish and shellfish breeding ground and nursery. Mangrove trees are also home to various species of birds. Furthermore, mangroves are valuable to humans, especially in times of severe weather. The roots are able to absorb high levels of wave energy; and boaters often protect their boats by docking them within the mangroves. The mangroves also protect the land behind them from erosion and flooding. STEER is adjacent to the largest mangrove stand on St. Thomas and includes the lagoon at the western end of the Reserves within its boundaries (F