revised draft zoning plan for the palisadoes-port royal protected area

Prepared by The National Environment and Planning Agency

December 2013

REVISED DRAFT ZONING PLAN FOR

THE PALISADOES-PORT ROYAL PROTECTED AREA 2014-2019

REVISED DRAFT ZONING PLAN FOR THE PALISADOES-PORT ROYAL PROTECTED AREA 2014-2019

Prepared by The Protected Areas Branch

The National Environment and Planning Agency

December 2013

© Published by the National Environment and Planning Agency (NEPA) 10 Caledonia Avenue Kingston 5 Jamaica W.I. Telephone: 1-876-7547540 Fax: 1-876-7547596 E-mail: [email protected] Website: www.nepa.gov.jm

Compiled by the staff of the Protected Areas Branch with input from Ecosystems Management and Map Registry Branches of NEPA. This publication may be reproduced in whole or part for education or non-profit purposes without the special permission from the copyright holder. Acknowledgement of the source must be made and NEPA would appreciate receiving a copy of any such publication.

© 2013 by NEPA

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Page Acknowledgements……………………………………………………………………… ii

List of Figures.……………………………………………………..……………………. iii

List of Boxes...…………………………………………………..……………………….. iv

List of Appendices………………………………………………..………………………. v

List of Acronyms………………………………………………………………………….. vi

Executive Summary……………………………………………………………………… vii

1.0 Introduction…………………………………………………………………………….. 1 1.1 Background………………………………………………………………………… 1 1.2 The Purpose of and Basis for Zoning…………………………………………… 3 2.0 Description of the Natural Environment…………………………………………… 5 2.1 Terrestrial/Coastal Habitats………………………………………………………. 5 2.2 Marine Ecosystems………………………………………………………………… 6 2.3 Threats to the Resources in the P-PRPA………………………………………. 8 3.0 Methodology for Zoning………………………………………………………………. 9 3.1 Primary Sources……………………………………………………………………. 9 3.2 Secondary Sources………………………………………………………………… 10 4.0 The 2014-2019 Proposed Zoning Regime and Guide to Activities.................... 11 4.1 Overview……………………………………………………………………………….. 11 4.2 Restricted Use Zone………………………………………………………………….. 13 4.3 Conservation Zone…………………………………………………………………… 17 4.5 Multiple-use Zone……………………………………………………………………… 23 4.6 Core Heritage Special Purpose Zone……………………………………………….. 26 References…………………………………………………………………………………… 31 Appendices…………………………………………………………………………………… 33

TABLE OF CONTENTS

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The Natural Resources Conservation Authority (NRCA) and the National Environment and Planning Agency (NEPA) would like to recognize and thank the many people, communities and organizations whose assistance has made the completion of the Zoning Plan for the Palisadoes-Port Royal Protected Area a reality.

The Community

Fishing interests and representatives from the following areas:

Port Royal Rae Town Greenwich Hellshire Causeway

Forum

Caribbean Cement Company Ltd. Port Royal Brotherhood

Port Royal Citizens Association

Government of Jamaica

Airports Authority of Jamaica Fisheries Division

Forestry Agency of Jamaica Jamaica Civil Aviation Authority

Jamaica Constabulary Force, Marine Division Jamaica Defense Force-Coast Guard

Jamaica National Heritage Trust Maritime Authority of Jamaica

Ministry of Tourism National Land Agency

National Solid Waste Management Authority National Works Agency

Port Authority of Jamaica Social Development Commission

Tourism Product Development Company Limited Urban Development Corporation

Institutions

University of the West Indies

ACKNOWLEDGEMENTS

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Page Figure ES-1: Map Showing the Proposed Zones of the Palisadoes-Port Royal

Protected Area (2014-2019)……………………………………………………… xi

Figure 1: Map showing the Boundaries of the P-PRPA………………………………… 1

Figure 2: Satellite Image of the Port Royal Cays………………….……………………. 6 Figure 3: Map showing the Key Habitats of the P-PRPA…………………..………...… 7

Figure 4: Proposed Zones for the P-PRPA 2014-2019………..……………………………….. 12

Figure 5: Image showing the Boundaries of the Restricted

Use Zone…………............................…………………………………………… 14

Figure 6: Image showing the Boundaries of Conservation Zone A…………….……… 18

Figure 7: Image showing the Boundaries of Conservation Zone B……………………….…… 19

Figure 8: Image showing the Boundaries of Conservation Zone C………………….……. 20

Figure 9: Map showing the Boundaries of the Multiple-use Zone…………………….……. 23

Figure 10: Image showing the Boundaries of the Core Heritage SPZ……………….……. 28

LIST OF FIGURES

LIST OF FIGURES

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Page

Box 1: User Activities for the Restricted Use Zone…………............................……… 16

Box 2: User Activities for the Conservation Zone…...........................…………….……. 22

Box 3: User Activities for the Multiple-use Zone...……………………………………… 25

Box 4: User Activities for the Core Heritage SPZ…...............………………………….. 30

LIST OF BOXES

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Page

Appendix 1: Land Use Port Royal Special Area………..……………………………..… 33

LIST OF ACRONYMS

LIST OF APPENDICES

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CMI Caribbean Maritime Institute

DEMO Development of Environmental Management Organizations

KSAC Kingston and Saint Andrew Corporation

JDFCG Jamaica Defence Force Coast Guard

JGQL Jamaica Gypsum and Quarry Limited

JNHT Jamaica National Heritage Trust

KMA Kingston Metropolitan Area

LCM Lime Cay Mooring

MCM Maiden Cay Mooring

NMIA Norman Manley International Airport

NRCA Natural Resources Conservation Authority

NEPA National Environment and Planning Agency

NLA National Land Agency

PAB Protected Areas Branch

P-PRPA Palisadoes-Port Royal Protected Area

RJYC Royal Jamaica Yacht Club

LIST OF ACRONYMS

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Background The Palisadoes-Port Royal Protected Area (P-PRPA) is approximately 7,523 hectares (75.23 km2) and encompasses both terrestrial and marine areas. The area was declared a protected area under the Natural Resources Conservation Authority (NRCA) Act on 18 September 1998 (Figure 1). However, prior to this, the Port Royal Protected Area was declared on 8 May 1967 under the Beach Control Act (BCA). The area was also designated as Jamaica’s second Wetland of International Importance (Ramsar Site) under the Convention on Wetlands of International Importance especially as a Waterfowl Habitat on 22 April 2005. The protected area also encompasses the Port Royal and the Palisades which is one of five heritage districts in the island, designated by the Jamaica National Heritage Trust (JNHT)1. The zoning plan has undergone a series of consultations and targeted activities with both governmental and non-governmental entities as well as individual members of the user community. This plan is intended to be a five year (2014-2019) framework which seeks to realize the objectives of ensuring the protection of key habitats/sites, whilst promoting the wise and sustainable use of the natural and heritage resources and compliance with applicable laws and regulations within the P-PRPA. The Plan was compiled by staff of the Protected Areas Branch with input from the Ecosystems Management Branch, the Local Area Planning Branch and the Map Registry and Data Management Unit of the National Environment and Planning Agency (NEPA).

The Purpose of and Basis for Zoning Zoning as a Management Tool Zoning is a management tool that has been commonly used in many jurisdictions to protect sensitive resources from overuse and to separate conflicting human activities in these areas. It is a system by which specific geographic areas within a protected area are classified based on preservation requirements, as well as the sites ability to accommodate various types of activities. The zoning plan defines the “limits of acceptable use” and the types of developments and activities that can and/or cannot occur in each zone. It rationalizes and regulates the use of the protected area and its resources, defining where activities can be undertaken and how to achieve the area’s management objectives. Legislative Basis for Zoning the P-PRPA Section 4(2) c of the NRCA Act, 1991 is the main piece of legislation which provides the basis for the zoning of the P-PRPA by the NRCA. It makes reference to the provision for the zoning of a protected area for specified purposes and for the licensing of persons carrying on any trade or business therein.

1 Section 13 (1) (b) of the Jamaica National Heritage Trust Act gives power to the Jamaica National Heritage Trust to designate any place to be a protected national heritage.

EXECUTIVE SUMMARY

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Objectives and Benefits of Zoning the Palisadoes-Port Royal Protected Area

The P-PRPA is a multiple-use area supporting several vital social and economic activities, including but not restricted to residential, commercial, industrial, fishing, shipping, research and recreation. The zoning of the area will provide an effective management tool that will assist the management authority with the protection and preservation of the values of the protected area, thereby ensuring its sustainable use in perpetuity. It is expected that once an effective zoning plan is implemented, then the outcomes would include:

Reduced damage to important habitats; Protection of spawning areas and nursery grounds; Provision of refuge for protected species, such as sea turtles and the American Crocodile; A boost of species numbers; Increase the abundance of fish; and Increased resilience of the reefs against threats such as bleaching, climate change and water

pollution.

The Methodology for Zoning The following are the methods used in determining the zones presented in the plan for the period 2014-2019: Primary Methods and Sources

Resource Assessments o Marine Assessments o Coral reef assessments o Terrestrial Assessments o GIS and Remote sensing

Land Use Survey Stakeholder consultations and User Assessments

Secondary Methods and Sources A series of secondary sources were consulted in the preparation of this work. A literature review was conducted of relevant documents pertaining to zoning plans generally, and more specifically to those relating to the P-PRPA in order to provide guidance in the development of proposed zones for the protected area. With particular reference to the P-PRPA, several reports were consulted based on assessments conducted within the P-PRPA. These reports included: Plant Species/Habitat Survey of the Cays (2009); Ecological Assessment (2007); Mapping of Critical Habitats (2006) and the Proposed Zoning of the Palisadoes Port Royal Protected Area (2007). The Town and Country Planning (Kingston and Saint Andrew) Provisional Development Order, 2008 (Draft) was also consulted which informed the recommendations for the types of activities to be allowed in the terrestrial area. Other categories of publications consulted include internet publications and journal articles.

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The 2013-2018 Zoning Regime and Guide to Activities The Zoning Plan provides the framework for the management of uses within the P-PRPA over a five-year period (2014-2019). It outlines the proposed activities for various sections of the Protected Area to ensure that socio-economic values are preserved, user conflicts are minimized and the natural and archaeological/heritage resources in the protected area receive adequate levels of protection. The P-PRPA consists of four (4) major zones (Figure ES-1). These are:

1. Restricted Use Zone 2. Conservation Zone 3. Multiple-use Zone 4. Core Heritage Special Purpose Zone(SPZ)

1. Restricted Use Zone

This zone begins at the Harbor View Round-about and extends along the Palisadoes tombolo approximately 7.5 km (4.6 miles) inclusive of lands housing the Norman Manley International Airport and its associated facilities, and ends at a point adjacent to the Plumb Point Lighthouse. The Restricted Use Zone forms part of a heavily used corridor within the terrestrial area. The area currently supports a range of uses, some of which have considerably large ecological footprints. The objective of this Zone is to allow for the operation and expansion of existing facilities and other activities which can be undertaken in a manner that will not negatively impact surrounding zones. 2. Conservation Zone This Plan identifies three areas for conservation. They are as follows:

1. Conservation Zone A: This area encompasses the Buccaneer Swamp (the wetland area immediately to the south and west of lands housing the Royal Jamaica Yacht Club) and includes the entire expanse of mangrove lagoons extending toward the Norman Manley Highway.

2. Conservation Zone B: To the north, the area includes the Port Royal mangroves (inclusive of

Refuge Cay). In addition to its significance as a nursery, this segment of Conservation Zone B is also an important habitat for several species of birds, including the Brown Pelican. The southern boundary of this zone extends (seaward from the main road) from the Plumb Point Lighthouse, and ending at a vacant lot adjacent to the Port Royal Basic School, and is marked by the presence of coastal scrub vegetation and dune ecosystems.

3. Conservation Zone C: This includes the barrier reef system along South and South East Cay.

The goal of the Conservation Zone is to provide for the protection and restoration of ecologically significant or sensitive habitats, species, heritage sites and monuments where present thereby increasing the resilience of coastal and marine ecosystems to damaging events. It also aims to improve economic opportunities for fishers through the operation of these zones as managed fisheries which, rather than

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exclusion of fishing as an activity, will seek to regulate the fishing effort in the areas in question so as to improve the viability of the fishery. 3. Multiple-use Zone This zone includes all the areas outside the boundaries of the Restricted Use and Conservation Zones and the Core Heritage Special Purpose Zone. The Multiple-use Zone will allow for a range of uses such as fishing as well as recreational boating and all activities with an environmental footprint that will not adversely impact archaeological/heritage resources and the functionality of the area’s ecosystems and that of adjacent zones. 4. Core Heritage Special Purpose Zone Special Purpose Zones (SPZs), in essence, cater for specific user activities which are considered to be special uses or specially managed areas which may fall under the jurisdiction of other government entities. The zoning for the protected area identifies a SPZ for one such activity, namely: a Core Heritage SPZ. This zone will provide for the regulation of activities within the JNHT’s historical Sunken City of Port Royal to ensure the preservation of areas of archaeological and historical significance whilst making allowances for activities which may be sustainably undertaken within the terrestrial area in light of the heritage resources contained therein.

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Figure ES-1: Map showing the Zones of the Palisadoes-Port Royal Protected Area (2014-2019)

Source: Protected Areas Branch, NEPA 2013

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1.1 Background The Palisadoes-Port Royal Protected Area (P-PRPA) is approximately 7,523 hectares (75.23 km2) and encompasses both terrestrial and marine areas. The area was declared a protected area under the Natural Resources Conservation Authority (NRCA) Act on September 18, 1998 (Figure 1). However, prior to this, the Port Royal Protected Area was declared on 8 May 1967 under the Beach Control Act (BCA). It was also designated as Jamaica’s second Wetland of International Importance (Ramsar Site) under the Convention on Wetlands of International Importance especially as a Waterfowl Habitat on April 22, 2005. The protected area also encompasses the Port Royal and the Palisades which is one of five heritage districts in the island, designated by the Jamaica National Heritage Trust (JNHT)2.

Figure 1: Map showing the Boundaries of the P-PRPA

Source: Map Registry and Data Management Unit, 2010

2 Section 13 (1) (b) of the Jamaica National Heritage Trust Act gives power to the Jamaica National Heritage Trust to designate any place to be a protected national heritage.

1.0 INTRODUCTION

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The boundary of the P-PRPA includes the southern border of the Kingston Harbour to the north and the wider Caribbean Sea to the south which encompasses the Port Royal cays; the 20 m depth contour line to the east and shoals and beacons to the west. The area includes the tombolo and its associated flora and fauna, mangrove islands, mangrove lagoons, cays, shoals, coral reefs, seagrass beds and surrounding waters. The tombolo is approximately 16 km (10 miles) long and varies in width from 100 to 1500 m, with the narrowest point in the eastern section. It extends from the Harbour View round-a-bout in the east to the Jamaica Defence Force Coast Guard (JDFCG) base in the west. It is the major gateway from the Norman Manley International Airport (NMIA) and the town of Port Royal to Kingston, the capital city. The tombolo is believed to have been formed from sediments brought down by rivers in the eastern section of Jamaica and transported by the process of longshore drift which were deposited in the area, joining several derelict cays giving rise to the geomorphogical feature existing today. The tombolo and the surrounding cays provide protection for Kingston Harbour, which is recognized as the seventh largest natural harbour in the world. By virtue of its exposed location, it is susceptible to the impact of hurricanes which result in changes in its profile from time to time. The town of Port Royal was founded in the 1650s by the first British settlers who came to Jamaica. The town developed around Fort Charles and soon became packed with traders, shopkeepers, innkeepers, soldiers, buccaneers and pirates. There were also craftsmen including carpenters, bricklayers, tailors, goldsmiths and silversmiths (JNHT, 2013). By 1690, there were between 8,000 and 10,000 permanent inhabitants at Port Royal. On June 7, 1692, an earthquake struck Port Royal. Many of the buildings were destroyed and most of the city disappeared into the sea. Over 2,000 people died and more than 3,000 had serious injuries. After the earthquake, the survivors went across the harbour and many settled in Kingston. Port Royal began to lose its status as a major town. A fire in 1703 and a devastating hurricane in 1722 further contributed to the full decline of the town. The sunken city of Port Royal has been kept almost exactly as it would have looked in 1692 and this has fascinated people all over the world (JNHT, 2013). The town of Port Royal today is a mixture of modern and historic structures, some of which are in disrepair (NRCA, 1997). Its historic sites and monuments however prominently illustrate the cultural/heritage values of the P-PRPA which are valuable for public understanding and popular among visitors. Presently, there are no regulations for the P-PRPA, and the draft management plan3 is dated and in need of revision. With the increasing human impact on the resources, it was recommended that a zoning plan be developed as a first step towards protecting the sensitive ecosystems from further degradation. The zoning of the P-PRPA will serve as an important tool in the management of the area.

3 The Palisadoes-Port Royal Protected Area Management Plan Start-up Phase, 1999-2001; NRCA-DEMO. This was a first draft for Community and Stakeholder Discussion and Comment.

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1.2 The Purpose of and Basis for Zoning

1.2.1 Zoning as a Management Tool Zoning is a system by which specific geographic areas within a protected area are classified based on preservation requirements, as well as the site’s ability to accommodate various types of activities. Zoning provides guidance regarding the activities that are allowed or prohibited in an area with respect to natural resources management; cultural resources management; human use and benefit; visitor use and experience; access; facilities and protected area development; maintenance and operations. In so doing, the limits of acceptable use and development in the park are therefore established (Young and Young, 1993). Zoning as a management tool has been commonly used in many jurisdictions to protect sensitive resources from overuse and to separate conflicting human activities in these areas. It inherently requires the evaluation of multiple resource attributes according to multiple objectives and must integrate at its helm the objectives of sustainability. It should therefore adopt a holistic approach and should ultimately reflect the intended use as well as the level of management and development permitted. In general terms, zoning divides an area into logical units to apply consistent management strategies for conservation and recreational values. The zoning plan defines the “limits of acceptable use” and the types of developments and activities that can and/or cannot occur in each zone. It rationalizes and regulates the use of the protected area and its resources, defining where activities can be undertaken and how to achieve the area’s management objectives in this regard. Biological values, socio-economic characteristics, stakeholder knowledge and concerns, threats and feasibility of implementation are factors which are considered in the preparation of a zoning plan. The principal objectives of a zoning plan are usually:

To ensure the conservation of the protected area in perpetuity; To provide protection for critical or representative habitats, ecosystems and

ecological processes; To separate conflicting human uses; To protect the natural and/or cultural values of the protected area while

allowing a range of reasonable human uses; To reserve suitable areas for particular human uses, while minimizing the

effects of those uses on the protected area; and To preserve some areas of the protected area in their natural state undisturbed

by humans except for the purposes of scientific research, monitoring or education.

1.2.2 Legislative Basis for Zoning the P-PRPA Section 4(2)c of the NRCA Act, 1991 is the main piece of legislation which provides the basis for the zoning of the P-PRPA by the NRCA. It makes reference to the provision for the zoning of a protected area for specified purposes and for the licensing of persons carrying on any trade or business therein.

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1.2.3 Objectives and Benefits of Zoning the Palisadoes-Port Royal Protected Area

The P-PRPA is a multiple-use area supporting several vital social and economic activities, including but not restricted to residential, commercial, industrial, fishing, shipping, research and recreation. The zoning of the area will provide an effective management tool that will assist the management authority with the protection and preservation of the values of the protected area thereby ensuring its sustainable use in perpetuity.

Broadly speaking the objectives of the zoning plan are to:

1. Promote conservation of biodiversity; 2. Allow for sustainable uses for the enjoyment and benefit of present and future generations; 3. Minimize potentially conflicting activities; and 4. Make management more effective

More specifically, the benefits of developing a zoning plan for the protected area would include:

The continued existence of the unique ecosystems/habitats of the area (mangroves, coral reefs and sea grass beds) and the provision of additional protection for threatened species;

The maintenance of essential ecological processes/functions; The harmonization of the goals of conservation with that of the area’s economic and social

development; The protection of the diverse range of other benefits and values of the area, including

recreational, cultural heritage, educational and scientific values; and The ability for future generations to continue to use and enjoy the resources of the protected

area.

It is expected that once an effective zoning plan is implemented, then the outcomes would include:

Reduced damage to important habitats; Protection of spawning areas and nursery grounds; Provision of refuge for protected species, such as sea turtles and the American Crocodile; A boost of species numbers, which helps the food web as a whole; Increase the abundance of fish; and Increased resilience of the reefs against threats such as bleaching, climate change and water

pollution.

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2.1 Terrestrial/Coastal Habitats The Palisadoes tombolo, the major gateway from the town of Port Royal and the Norman Manley International Airport to the capital city Kingston, in conjunction with barrier reefs and cays, provides protection for Kingston Harbour. This protected harbour has been cited as the seventh largest natural harbour in the world. The tombolo is approximately 15km (9.3 miles) long and was formed as a result of the longshore drift of sediments supplied by large rivers in eastern Jamaica, which joined together a number of derelict coral cays [Robinson, 1974]. The rocky projections of Plumb Point, Little Plumb Point, Rocky Point and Port Royal represent ancient cays which interrupted the transport of river sediment westwards along the coast and caused the build-up of material (The Natural Resources Conservation Authority, 1997). The tombolo is a critical buffer for the harbour during hurricanes. However, it is susceptible to hurricanes [as well as earthquakes], especially where sediments rather than limestone islands underlie the surface (The Natural Resources Conservation Authority, 1997). The north eastern shore of the tombolo is the most heavily developed. The southern shore exhibits coastal vegetation inclusive of Beach Morning Glory (Ipomoea pes-caprae), Sea Grape (Coccoloba uvifera), Seaside Mahoe (Thespesia populnea) and Button Mangrove (Conocarpus erectus), which give way to coastal scrub vegetation and mangrove forests on both the northern and southern shores of the tombolo as one progresses westward. The vegetation in this region provides coastal protection and their roots assist in stabilizing the sand. Sea turtle, crocodile and dolphin sightings have been recorded in this area. The ecosystems are however, threatened by solid waste. The mangrove communities are essential for the maintenance of the overall biodiversity of the area. Goodbody (in prep., 2004) identified a large number of species from the area, of which at least 26 are new species and are found only in this locale. Further, Goodbody (2003) found 39 ascidians in the Port Royal mangroves and lagoon area with one new species: Phallusia caguayensis. Hechtel (1965) found 57 species of sponges in the Port Royal area with 16 new species and 1 new genus, examples include Darwinella rosacea, Haliclona hogarthi and Callyspongia pallida. Alleng (1990) also documented flora and fauna of economically important species of the PR Mangroves. The ascidian, Ecteinascidia, which was found on the prop roots of the Red Mangrove within this area, has been found to be a source of anti-leukaemia drugs (NRCA,1997). The largest contiguous area of the mangroves lies near the town of Port Royal and covers approximately 270 hectare (667 acres) (NRCA, 1997). Refuge Cay, located in close proximity to coastal Town of Port Royal is amongst the top-10 largest nesting colonies for the Brown Pelican (Pelecanus occidentalis) in the Caribbean, accounting for approximately 5% of the region’s population (Society for the Conservation and Study of Caribbean Birds, 2007). Other bird species observed on the Cay included the Glossy Ibis (Plegadis falcinellus), Snowy Egret (Egretta thula), White Ibis (Eudocimus albus) (NRCA, 1997), Great Egret (Ardea (Egretta) alba), Little Blue Heron (Florida caerulea) and Yellow-crowned Night Heron (Nyctanassa violacea) (Alleng, 1990). The Cay consists mainly of Red Mangroves (Rhizophora mangle) and is significantly healthy on the southern half. However, the mangroves on the northern half of the Cay have suffered from die-back leaving gaps within the forest canopy. Solid waste from the KMA has also contributed to the unhealthy state of the northern half.

2.0 DESCRIPTION OF THE NATURAL ENVIRONMENT

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2.2 Marine Ecosystems The marine component of the P-PRPA encompasses a very narrow marine area north of the tombolo and the more expansive stretch of water to the south. It includes the lagoon, reef area, shoals and Port Royal Cays. The cays are Lime Cay, Maiden Cay, Gun Cay, South East Cay, Rackham’s Cay, Drunkenman’s Cay and the Twin Cays (Figure 2).

Figure 2: Satellite image of the Port Royal Cays

Source: Google Earth, 2007

Lime Cay which is an important turtle nesting site is the largest and most heavily vegetated of all the cays in the P-PRPA. It is under the most pressure from human activities, particularly on weekends and on public holidays. There is also an extensive barrier reef system which protects the entrance to the Kingston Harbour. Between the barrier reef and the tombolo is a lagoon area of approximately 39 km2 in size and an average depth of 33 m. It is an important nearshore fishing ground for fishermen from several communities within the Kingston Metropolitan Area. There is also the South-eastern Channel which passes through the site, connecting the port of Kingston to the wider Caribbean Sea.

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The cays, their reefs, shoals and surrounding waters covers an area of approximately 2500 hectares or an area approximately 8km wide and 13km long. The sand of the Cay is biogenous in origin and is principally formed from the breakdown of the marine calcareous alga Halimeda. Associated with the cays is a barrier reef system of mainly fringing, patch, and pseudo-barrier type. The vegetation of cays are called strand communities (Asprey & Robbins, 1953) which consist of plants that have sand or coral rock as their substrate. Asprey & Robbins (1953) divides this community into strand-beach, strand-dune, strand-scrub and strandwoodland. Each of these communities represents a succession phase in plant colonization of an area. Focusing on the cays, the strand communities observed are strand beach which include sand runners and binders (e.g. Ipomea pes-caprae and Sporobolus virginicus), herbs (e.g. Sesuvium portulacastrum and Cakile lanceolata) and grasses(sporobolus is a grass) and shedges (e.g. Chloris petraea and Cyperus brunneus) and strand-woodland which is most frequently the Coccoloba-Thespesia association. Figure 3 shows the key habitats and dive and snorkel sites located in the P-PRPA.

Figure 3: Map showing Key Habitats of the P-PRPA

Source: Ecosystems Management Branch, NEPA, 2010

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2.3 Threats to the Resources in the P-PRPA

The terrestrial and marine resources within the P-PRPA combine to give its unique characteristics which include its geological formation/features, the flora and fauna, historic sites and buildings. The viability of the tombolo and its resources as well as the marine environment are susceptible not only to human impact but by nature itself. One of the major adverse factors affecting the ecology of the area is the increased recreational activity that could exceed the carrying capacity. The fishing pressure in the area also poses some concern to as it is generally accepted that Jamaican waters are highly overfished. Commercial activity and shipping has led to recent modifications involving the widening of the Southeast ship channel by the removal of a section of Rackham’s Cay and the reallocation of the associated coral reefs. There is the issue of point and non-point source of pollution from malfunctioning or non-existent sewage treatment facilities and activities that has constantly plagued the Port Royal Area. This has resulted in negative impacts on water quality and the loss of marine habitats, fauna and safe recreational areas. In addition, mangrove areas have previously come under threat from road improvement projects and housing developments. This area of Jamaica is the most persistent approach for hurricanes that have made landfall in Jamaica; as a consequence, the reefs of the area have been adversely affected in the past. Solid waste, organic and oil pollution from Kingston Harbour through the discharge from rivers and gullies which empty into the harbour have deleterious effects on the coastal and marine ecosystems of the area especially the mangrove communities.4 The removal of sand and coastal vegetation as well as the illegal dumping of solid waste in the area is also practices that have adverse impact on the resources of the area. There is also illegal squatting that exists in the mangroves and the attendant problems.

4Ramsar Information Sheet (9RIS) for the Palisadoes-Port Royal Ramsar Site (RIS) prepared by the University of the West Indies and the National Environment and Planning Agency (2005) p. 8

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The process of gathering information for the preparation of this document involved several steps including literature review, baseline research/assessments and analysis; land use survey, consultation workshops and field visits with stakeholders of the protected area.

3.1 Primary Sources

Resources Assessments Baseline assessments were conducted including mapping of critical terrestrial as well as marine habitats. Surveys were also undertaken of the cays in 2006, 2007 and 2009. In order to facilitate and guide the development of the zoning plan for the P-PRPA both desktop and baseline research/field assessments were conducted. Rapid assessments of the marine space including that of the sea floor; survey of benthic habitats; and coral reef surveys were conducted in October and November of 2009 and areas in need of further research were identified.

Land use Survey A land use survey of the tombolo was conducted in February 2007 by the NEPA Planning Branch. This provided information on the types and location of various land uses and provides a basis for future planning of the limited land resources in the area.

Stakeholder Consultations and User Assessments Consultation workshops were held with several stakeholders from both the private and public sectors in February 2010 and September 2012 where the draft and revised Plans respectively were presented, with the aim of soliciting feedback on the proposals made and formulating recommendations for the Plan’s amendment. Consultation field visits to six (6) fishing beaches throughout the Kingston Metropolitan Area were also undertaken in October 2013. Two reconnaissance activities were also undertaken involving representatives from the fishing communities that use the area and staff of the Fisheries Division in one instance. The purpose of these exercises was to solicit feedback on the proposed zones, to establish the local names used by the fishing community for fishing grounds located within the protected area and to determine the issues affecting this group of stakeholders and by extension the fishery, and the role of NEPA and the Fisheries Division in addressing these. The participants in these activities provided useful comments which have been taken into consideration for the further refinement of the Plan.

3.0 METHODOLOGY FOR ZONING

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3.2 Secondary Sources A series of secondary sources were consulted in the preparation of this work. A literature review was conducted of relevant documents pertaining to zoning plans generally, and more specifically to those relating to the P-PRPA in order to provide guidance in the development of proposed zones for the protected area. With particular reference to the P-PRPA, several reports were consulted based on assessments conducted within the P-PRPA. These reports included: Plant Species/Habitat Survey of the Cays (2009); Ecological Assessment (2007); Mapping of Critical Habitats (2006) and the Proposed Zoning of the Palisadoes Port Royal Protected Area (2007). The Town and Country Planning (Kingston and Saint Andrew) Provisional Development Order, 2008 (Draft) was also consulted which informed the recommendations for the types of activities to be allowed in the terrestrial area. Other categories of publications consulted include internet publications and journal articles.

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This chapter presents the descriptions, objectives, background and rationale and a list of approved and prohibited activities for each zone in the zoning regime for the period 2014-20195.

4.1 Overview The P-PRPA consists of four (4) major zones. These are:

1. Restricted Use Zone 2. Conservation Zone 3. Multiple-use Zone 4. Core Heritage Special Purpose Zone (SPZ)

These are depicted in Figure 4. Detailed descriptions of each of these zoning designations are provided in subsequent sections.

5 Wherever an activity is not explicitly stated, approval will be subject to the Natural Resources Conservation Authority, where necessary, in consultation with the Kingston and St. Andrew Corporation, the Jamaica National Heritage Trust and the Port Authority of Jamaica. Additionally, the National Environment and Planning Agency reserves the right at any time to temporarily suspend or waive the stipulations presented in this plan with respect to any approved or prohibited activity in any case of emergency and for the purposes of undertaking any activity related to the Management of the Protected Area.

4.0 THE 2014-2019 PROPOSED ZONING REGIME AND GUIDE TO ACTIVITIES

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Figure 4: Proposed Zones for the P-PRPA 2014-2019

Source: Protected Areas Branch, 2013

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4.2 Restricted Use Zone

4.2.1 Boundary Description

This zone begins at the Harbour View Round-about and extends along the Palisadoes tombolo approximately 7.5 km (4.6 miles) including lands housing the Norman Manley International Airport (NMIA) and its associated facilities, and ends at a point adjacent to the Plumb Point Lighthouse (Figure 5). The boundary description of the Restricted Use Zone is as follows:

1. The boundary begins at point A adjacent to the airport roundabout on the parochial road parallel to the Palisadoes strip, at coordinates 17°56'22.68"N; 76°46'5.64"W

2. From point A, the boundary continues along the parochial road to intersect the Caribbean Maritime Institute Road at point B, at coordinates 17°56'33.47"N; 76°45'54.02"W

3. From point B, the boundary continues along the Caribbean Maritime Institute Road to point C, where it intersects the eastern boundary of the Jamaica Yacht Club, at coordinates 17°56'40.04"N; 76°46'16.35"W

4. From point C, the boundary continues along the perimeter of the mangrove to point D, a water based mark, at coordinates 17°56'45.34"N; 76°46'26.26"W

5. From point D, the boundary continues in a straight line to a point E, at coordinates 17°56'49.67"N; 76°46'19.87"W

6. From point E, the boundary continues in an easterly direction along the southern boundary of the Kingston Harbour to point F, where it intersects the Palisadoes-Port Royal Protected Area Boundary near the Jamaica Gypsum Quarry facility, at coordinates 17°56'51.29"N; 76°43'23.66"W

7. From point F, the boundary continues along the Palisadoes-Port Royal Protected Area Boundary to a point G, at coordinates 17°56'49.82"N; 76°43'10.47"W

8. From point G, the boundary continues in a straight line to a point H at coordinates 17°56'45.73"N; 76°43'17.10"W

9. From point H, the boundary continues in a westerly direction along the coast to where it intersects point I, at coordinates 17°55'43.60"N; 76°46'46.08"W

10. From point I, the boundary continues in a straight line to point J, where it intersects the Norman Manley Highway, at coordinates 17°55'47.04"N; 76°46'45.11"W

11. From point J, the boundary continues in an easterly direction along the Norman Manley Highway to a point K at coordinates 17°55'51.94"N; 76°46'56.80"W

12. From point K, the boundary continues along the boundary of the Norman Manley International Airport runway to point L, a water-based mark at coordinates 17°56'27.08"N; 76°48'13.25"W

13. From point L, the boundary continues in a straight line to point M, a water-based mark at coordinates 17°56'38.08"N; 76°48'7.33"W

14. From point M, the boundary continues along the NMIA boundary to Point N, adjacent the Palisadoes Go-Kart Track (Old Runway), at coordinates 17°56'45.92"N; 76°46'57.54"W

15. From point N, the boundary continues in a straight line to point O at coordinates 17°56'49.35"N; 76°46'54.02"W

16. From point O, the boundary continues along the easternmost limits of the NMIA property to point

A.

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Figure 5: Image showing the Boundaries of the Restricted Use Zone


4.2.2 Objectives

The objectives of the Restricted Use Zone are: 1. To allow for the operation and expansion of existing and introduction of new facilities/uses provided that these are undertaken in a manner that will not cause an adverse negative impact on adjacent natural or historical ecosystems and sites. 2. To facilitate the restoration/rehabilitation of degraded habitats coastal ecosystems and stabilization of the shoreline.

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4.2.3 Background and Justification

The Restricted Use Zone forms part of a heavily used corridor within the terrestrial area. The area currently supports a range of uses, some of which have considerably large ecological footprints. Land uses include the Norman Manley International Airport (NMIA) and its associated facilities, informal settlements, the outfall of the Harbour View Sewage Treatment Plant, the site of the Jamaica Gypsum Quarry Limited (JGQL), coastal revetment works, bus stops, the Royal Jamaica Yacht Club, the Caribbean Maritime Institute, the Palisadoes Go-Kart Track, the Buccaneer and Gunboat Beach facility6, the Plumb Point Lighthouse, roadside shops, and informal parking stops. Within this area, recreational fishing is conducted on both the harbour and seaward sides of the tombolo. The entire zone has, over the years been subject to and shaped by the effects of both meteorological as well as anthropogenic influences which have served to further exacerbate the area’s exposure and the vulnerability of its ecosystems. This has over time had implications for not only the area’s ecological functionality, but its functionality as an important socio-economic corridor as well. The eastern section of this zone especially is significantly disturbed. The tombolo is narrowest in this area and is underlain by unconsolidated materials. Prior to the construction of coastal revetment and road improvement works, this segment was highly susceptible to becoming breached during extreme storm events. There is therefore every indication that the area needs and will benefit from a restoration of degraded habitats. The southernmost section of this zone adjacent to the Plumb Point Lighthouse which abuts the NMIA serves as a Jet Blast Zone for airplanes landing and taking off at the NMIA. The Jet Blast Zone is significantly degraded and disturbed with few patches of pioneer species, and consists mainly of sand and boulders, which were deposited during the passage of Hurricanes Ivan and Dean. This zone has therefore been so designated as it requires intervention to limit the occurrence or presence of activities which may lead to the further deterioration of the ecosystems contained therein, whilst making allowance for those activities which promote the restoration of the area’s critical habitats and those which may be undertaken sustainably.

6 The Gunboat and Buccaneer beaches which were the most popular beaches within the KMA in the 1960’s. Today, their use has declined significantly as there are concerns regarding the water quality and the associated health issues.

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4.2.4 Activities Guide

This zone will allow for low impact recreational and commercial activities, as well as activities associated with research. All activities to be allowed in this zone (especially construction type activities) will be examined on a case by case basis and approval will be granted subject to the results of assessments by relevant bodies in the approval granting process. The approved and prohibited activities are outlined in Box 1 below:

Box 1: User Activities for the Restricted Use Zone

RESTRICTED USE ZONE Allowed

•Construction of new and expansion of existing facilities subject to the granting of relevant approvals.

•Low impact recreational activities eg. jogging, access to platforms/areas for rock fishing, cycling.

•Low impact commercial activities.

•Ecological restoration activities.

•Infrastructure improvement and coastal defence activities/works.

•Research/educational activities.

•All activities associated with the NRCA’s management of the area. Not Allowed

•Erection of any additional permanent structures (with the exception of road improvement and coastal defence works) which upon review by the Authority are deemed to be harmful to adjacent, natural or historical ecosystems and sites.

•Removal or disturbance of physical or biological features/specimen or habitats, i.e. dune, sand, rock, flora, fauna etc.

•Any activity which contravenes local environmental laws and/or may have a deleterious effect on the environment e.g. open burning, dumping.

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4.3 Conservation Zone 4.3.1 Boundary Description

This Plan identifies three zones for conservation. They are as follows:

4. Conservation Zone A: This area encompasses the Buccaneer Swamp (the wetland area immediately to the south and west of lands housing the Royal Jamaica Yacht Club) and includes the entire expanse of mangrove lagoons extending toward the Norman Manley Highway.

5. Conservation Zone B: To the north, the area includes the Port Royal mangroves (inclusive of

Refuge Cay). In addition to its significance as a nursery, this segment of Conservation Zone B is also an important habitat for several species of birds, including the Brown Pelican. The southern boundary of this zone extends from the Plumb Point Lighthouse, ending at a vacant lot adjacent to the Port Royal Basic School, and is marked by the presence of coastal scrub vegetation and dune ecosystems.

6. Conservation Zone C: This includes the barrier reef system along South and South East Cay.

The boundary descriptions of each designated conservation area are outlined below. It is anticipated that the effective management of these zones will increase fish populations and assist in the protection and improvement in the functionality of important, seagrass, reef and mangrove habitats.

The boundary description of Conservation Zone A (Figure 6) is as follows:

1. This boundary begins at point A, adjacent to the airport roundabout where the boundary of the Restricted Use Zone intersects the parochial road parallel to the Palisadoes strip, at coordinates 17°56'22.68"N; 76°46'5.64"W

2. From point A, the boundary continues along the parochial road to intersect the Caribbean Maritime Institute Road at point B, at coordinates 17°56'33.47"N; 76°45'54.02"W

3. From point B, the boundary continues along the Caribbean Maritime Institute Road to point C, where it intersects the eastern boundary of the Jamaica Yacht Club, at coordinates 17°56'40.04"N; 76°46'16.35"W

4. From point C, the boundary continues along the perimeter of the mangrove to point D, a water based mark, at coordinates 17°56'45.34"N; 76°46'26.26"W

5. From point D, the boundary continues in a straight line to point E at coordinates 17°56'40.18"N; 76°46'32.92"W

6. From point E, the boundary continues along the boundary of the wetland abutting the Restricted Use Zone to point A.

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Figure 6: Image showing the Boundaries of Conservation Zone A


The boundary description of Conservation Zone B (Figure 7) is as follows:

1. This boundary begins at point A; a land based mark on the Norman Manley Highway, at coordinates 17°55'47.12"N; 76°46'45.25"W

2. From point A, the boundary continues in a straight line to point B, a coastal based mark at coordinates 17°55'43.59"N; 76°46'46.08"W

3. From point B, the boundary continues along the coastline in a westerly direction to point C, a coastal based mark, at coordinates 17°56'14.22"N; 76°50'14.92"W

4. From point C, the boundary continues in a straight line to point D, a land based mark on the Norman Manley Highway, at coordinates 17°56'21.60"N; 76°50'19.78"W

5. From point D, the boundary continues along Norman Manley Highway to point E, at coordinates 17°56'27.16"N; 76°50'7.36"W

6. From the point E, the boundary continues in a straight line to point F, a coastline based mark at coordinates 17°56'33.34"N; 76°50'11.06"W

7. From point F, the boundary continues in a straight line to point G, a water based mark at coordinates 17°56'34.28"N; 76°50'7.67"W

8. From point G, the boundary continues in a straight line to point H, a water based mark along the protected area boundary near Gallows Point at coordinates 17°56'51.42"N; 76°50'14.70"W

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9. From point H, the boundary continues in a straight line to point I, a water based mark along the protected area boundary at coordinates 17°56'57.25"N; 76°49'58.79"W

10. From point I, the boundary continues in a straight line to point J, a water based mark along the protected area boundary at coordinates 17°56'56.45"N; 76°49'19.51"W

11. From point J, the boundary continues in a straight line to point K, a water based mark at coordinates 17°56'30.15"N; 76°48'53.30"W

12. From point K, the boundary continues to run along the mangroves to point L, a water based mark at coordinates 17°56'15.21"N; 76°48'27.00"W

13. From point L, the boundary continues to run along the Norman Manley Highway to point A.

Figure 7: Image showing the Boundaries of Conservation Zone B


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The boundary description of Conservation Zone C (Figure 8) is as follows:

1. The boundary description begins at point A; a water based mark fronting South East Cay at coordinates 17° 54.365N; 76° 47.999W 2. From point A the boundary runs in a straight line to point B a water-based mark at coordinates 17° 53.884N; 76° 47.546W 3. From point B, the boundary continues to point C, a water-based mark , at coordinates 17° 53.419N; 76° 48.856W 4. From C, the boundary runs to Point D, a water-based mark, at coordinates 17° 52.952N; 76°49.641W 5. From D, the boundary runs straight to E, a water-based point at coordinates 17°52.939N; 76°50.391W 6. From E, the boundary runs to point F, a water-based point at coordinates 17° 53.590; 76° 50.462W 7. From F, the boundary runs back to point A.

Figure 8: Image showing the Boundaries of Conservation Zone C


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4.3.2 Objectives

The objectives of the Conservation Zone are:

1. To provide for the protection, preservation and/or restoration of ecologically significant or sensitive habitats, species, heritage sites and monuments where present.

2. To improve economic opportunities for fishers through the operation of these zones as managed fisheries which, rather than exclusion of fishing as an activity, will seek to regulate the fishing effort in the areas in question so as to improve the viability of the fishery.

3. To increase the resilience of coastal and marine ecosystems to the effects of climate change.

4. To provide environments for research.

4.3.3 Background and Justification This zone is designated so as to provide for the protection and conservation of the unique species and habitats as well as monuments/heritage sites within the areas. The area is ideal as it includes species and sites that are of great significance to the area’s historical and ecological heritage. The mangrove communities located within Conservation Zones A and B cover approximately 1,050 hectares (2,594 acres) and in addition to serving as habitats for numerous species, acts as a safe-harbour for small boats during hurricanes. The mangrove communities are essential for the maintenance of the overall biodiversity of the area. Alleng (1990) recommended the total preservation of the Port Royal Mangroves in its natural state. This was based on an evaluation conducted within PR Mangroves in which he found that the mangroves were valuable in terms of structural components (the forest, wildlife, fisheries), ecologically (storm protection, shoreline stabilization) and special attributes (biological diversity – richness of fauna, important nesting site for seabirds and rare birds, nursery for commercially important species of fish, crustaceans and feeding ground for the Bottlenose Dolphin {Tursiops truncatus}). He further noted that the mangroves were important for recycling nutrients, continued productivity of coastal waters and supported the fisheries in the Kingston Harbour due to the linkages in the detrital food web and that the replacement cost for these functions were considered to be high.

Conservation Zone C located at South and South East Cay is an extensive barrier reef system which protects the entrance to the Kingston Harbour. Between the barrier reef and the tombolo is a lagoon area of approximately 39 km2 in size and an average depth of 33 m. The area supports numerous species of marine life and is an important nearshore fishing ground for fishermen from several communities within the Kingston Metropolitan Area. There is also the South-eastern Channel which passes through the site, connecting the port of Kingston to the wider Caribbean Sea.

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Zones A, B and C were selected based on the following criteria:

Ecological and cultural heritage features: presence of seagrass beds, coral reef system, and mangrove communities which provide a habitat for a large number of species (including birds, fish, crabs, oysters, sponges and microscopic animals); ecological functions (storm protection and shoreline stabilization); habitats for seabirds and rare birds, nursery for commercially important species of fish, crustaceans and feeding ground for the Bottlenose Dolphin. The mangroves are important for the recycling of nutrients and the support of fisheries within the Kingston Harbour (Alleng 1990). The remains of Fort Rocky or Rocky Point Fort, constructed during World War II are also located within this area. Fort Rocky, the last of the great forts, was erected as part of efforts to protect the island from German invasion.

Potential impacts: the potential impacts that point-source pollutants, anchor damage and ship

groundings may have on these sites.


The areas comprising the Conservation Zone within this plan are reserved for the purposes of historical and ecological conservation and restoration. The zones will allow for those compatible activities with an environmental footprint that will not adversely impact the area’s values. All activities are subject to the granting of relevant approvals. The activities that will be allowed and those to be prohibited are outlined in Box 2 below.

Box 2: User Activities for the Conservation Zone

CONSERVATION ZONE Allowed Activities with environmental footprint that will not adversely impact archaeological/heritage resources and the

functionality of the area’s ecosystems and that of adjacent zones. Low impact recreational activities e.g. jogging, bird watching, cycling (in areas traditionally used and which

may be identified from time to time). Ecological and archaeological restoration/conservation activities. Special events e.g. recreational/commercial events such as parties, festivals subject to special approval of the

KSAC, NRCA and the JNHT. Research/educational activities. Fishing (under the guidelines of a managed fishery). All activities associated with the NRCA’s and JNHT’s management of the area. Not Allowed The operation of motorized vessels at speeds exceeding 3 knots (except on the northernmost outskirts of

Conservation Zone B). Activities with environmental footprint that will adversely impact archaeological/heritage resources and the

functionality of the area’s ecosystems and that of adjacent zones. Removal or disturbance of physical or biological features/specimens or habitats, i.e. dune, sand, rock, artifacts

flora, fauna. Anchorage. Any activity which contravenes local environmental laws and/or may have a deleterious effect on the

environment e.g. open burning, dumping.

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4.4 Multiple-use Zone

4.4.1 Boundary Description

This zone includes all the areas outside the boundaries of the Restricted Use and Conservation Zones and the Core Heritage Special Purpose Zone and includes the Port Royal Cays and their surrounding waters. The Multiple-use Zone is the most extensive of all the proposed zones. Its area abuts the outermost limits of other zones. Its most seaward limits are the actual boundaries of the protected area.

Figure 9: Map showing the Boundaries of the Multiple-use Zone


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4.4.2 Objective

The objective of the Multiple-use Zone is:

1. To provide an area which facilitates a wide range of both recreational and commercial activities, and a mechanism for regulating such activities according to the objective of sustainability.

4.4.3 Background and Justification The Multiple-use Zone includes areas outside the established zones which have traditionally been used for the purposes of recreation, fishing as well as other commercial activities such as shipping. The areas within this zone that are located inside the Kingston Harbour have been traditionally used as fishing grounds and for the purposes of recreational boating. Seaward, the zone comprises the Port Royal Cays which includes popular recreational areas such as Lime and Maiden Cays, as well as several dive and snorkel sites. The seaward segment of this zone has also traditionally been used for the purposes of fishing and recreational boating. The Port Authority of Jamaica’s established Ship Channel also runs immediately south of the tombolo in a general west-east direction. Lime Cay which is an important turtle nesting site is the largest and most heavily vegetated of all the cays in the P-PRPA. It is under the most pressure from human activities, particularly on weekends and on public holidays. The dominant vegetation on this Cay is Button Mangrove (Conocarpus erectus), followed by White Mangrove (Laguncularia racemosa). White mangrove is dominant on the south western side of the cay while on the eastern side Button Mangrove was dominant with Red Mangroves mainly found in a depression on this side of the cay. Black Mangroves were found mainly on the north-eastern side. The extent and density of the vegetation cover on this Cay has changed overtime. Additionally the shape of the cay appears to have changed extending further south eastward. A loss of sand has also been noted on the south-eastern side of the Cay. Maiden Cay is the smallest Cay of the Port Royal Cays and consists entirely of sand, mostly under tidal influence (Asprey and Robbins, 1953). It is used mainly for parties. Marine sea turtles are also known to nest on this Cay.

This zone was created based on the following criteria:

1. The need for an area which could accommodate traditional user activities for which there are no special zones identified.

2. The need for the regulation of activities occurring in areas adjacent to the established zones so as to ensure safety and the preservation of the area’s resources.

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The Multiple-use Zone will allow for a range of uses such as fishing as well as recreational boating and all activities with an environmental footprint that will not adversely impact archaeological/heritage resources and the functionality of the area’s ecosystems and that of adjacent zones.

Box 3: User Activities for the Multiple-use Zone

MULTIPLE USE ZONE Allowed

Recreational activities and special events (in areas traditionally used and which may be identified from time to time) subject to the granting of relevant approvals and permits from inter alia the NRCA, JNHT, KSAC.

Activities with environmental footprint that will not adversely impact archaeological/heritage resources and the functionality of the area’s ecosystems and that of adjacent zones.

Ecological and archaeological restoration/conservation activities. Installation of facilities/structures associated with the management of the area and permitted activities

(e.g. anchor pins, mooring buoys, marker buoys, appropriate temporary sanitary and solid waste disposal facilities).

Fishing. Research/educational activities. All activities associated with the NRCA’s and JNHT’s management of the area.

Not Allowed

Jet Skiing (within Ship Channel and swimming areas at Lime and Maiden Cays). Activities with environmental footprint that will adversely impact archaeological/heritage resources and the

functionality of the area’s ecosystems and that of adjacent zones. Removal or disturbance of physical or biological features/specimens or habitats, i.e. dune, sand, rock,

artifacts flora, fauna. Anchoring on all Cays (with the exception of those instances in which moorings are inadequate or

absent). Any activity which contravenes local environmental laws and/or is deemed to be a potential threat to

human safety or which may have a deleterious effect on the environment e.g. open burning, dumping.

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4.5 Core Heritage Special Purpose Zone

Special Purpose Zones (SPZs), in essence, cater for specific user activities which are considered to be special uses or specially managed areas which may fall under the jurisdiction of other government entities. The zoning for the protected area identifies a SPZ for one such activity, namely: a Core Heritage SPZ. The Core Heritage SPZ of the P-PRPA falls under the direct jurisdiction of the Jamaica National Heritage Trust and forms the core area of a wider zone nominated for inclusion in the United Nations Educational, Scientific and Cultural Organization’s World Heritage List. This zone will provide for the regulation of activities within the JNHT’s historical Sunken City of Port Royal to ensure the preservation of areas of archaeological and historical significance whilst making allowances for activities which may be sustainably undertaken within the terrestrial area in light of the heritage resources contained therein. 4.5.1 Boundary Description

The boundary description of the Core Heritage Special Purpose Zone is as follows:

1. The boundary begins at point A, on the Norman Manley Highway at coordinates 17°56'24.19"N; 76°50'13.43"W

2. From point A, the boundary continues in an easterly direction along Norman Manley Highway to point B at coordinates 17°56'26.90"N; 76°50'9.03"W

3. From point B, the boundary continues in a south-easterly direction to point C at coordinates 17°56'23.13"N; 76°50'7.71"W

4. From point C, the boundary continues in a south-westerly direction to point D at coordinates 17°56'21.17"N; 76°50'11.06"W

5. From point D, the boundary continues in a north-westerly direction to point E near the Norman Manly Highway at coordinates 17°56'22.75"N; 76°50'17.01"W

6. From point E, the boundary continues in a westerly direction to point F at coordinates 17°56'18.89"N; 76°50'26.27"W

7. From point F, the boundary continues in a straight line in a south-easterly direction to point G at coordinates 17°56'18.44"N; 76°50'25.82"W

8. From point G, the boundary continues in a straight line in a south westerly direction to point H at coordinates 17°56'17.22"N; 76°50'26.50"W

9. From point H, the boundary continues in a south easterly direction to point I at coordinates 17°56'16.15"N; 76°50'25.80"W

10. From point I, the boundary continues in a south-westerly direction to point J at coordinates 17°56'15.71"N; 76°50'26.47"W

11. From point J, the boundary continues in a westerly direction to point K at coordinates 17°56'15.94"N; 76°50'27.09"W

12. From point K, the boundary continues in a south-south westerly direction to point L (Fort Charles Boundary) at coordinates 17°56'7.29"N; 76°50'30.94"W

13. From point L, the boundary continues in an easterly direction to point M at coordinates 17°56'6.98"N; 76°50'30.14"W

14. From point M, the boundary continues in a south-westerly direction to point N at coordinates 17°56'4.50"N; 76°50'31.65"W

15. From point N, the boundary continues in a south easterly direction to point O at coordinates 17°56'2.46"N; 76°50'31.02"W

16. From point O, the boundary continues in a south westerly direction to point P at coordinates 17°55'58.64"N; 76°50'37.36"W

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17. From point P, the boundary continues in a north westerly direction to point Q at coordinates 17°55'59.50"N; 76°50'37.97"W

18. From point Q, the boundary continues in a north easterly direction to point R at coordinates 17°56'2.28"N; 76°50'33.27"W

19. From point R, the boundary continues in a north westerly direction to point S at coordinates 17°56'4.61"N; 76°50'34.34"W

20. From point S, the boundary continues in a north easterly direction to point T at coordinates 17°56'5.07"N; 76°50'33.98"W

21. From point T, the boundary continues in a north westerly direction to point U at coordinates 17°56'6.49"N; 76°50'34.90"W

22. From point U, the boundary continues in a north easterly direction to point V at coordinates 17°56'7.77"N; 76°50'32.55"W

23. From point V, the boundary continues in a westerly direction to point W at coordinates 17°56'8.80"N; 76°50'36.63"W

24. From point W, the boundary continues north westerly to point X along the shoreline at coordinates 17°56'9.78"N; 76°50'37.98"W

25. From point X, the boundary continues in a north westerly direction to point Y, a water based mark at coordinates 17°56'22.25"N; 76°50'44.01"W

26. From point Y, the boundary continues in a north easterly direction to point Z, a water based mark at coordinates 17°56'30.57"N; 76°50'17.50"W

27. From point Z, the boundary continues in a straight line to point A.

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Figure 10: Image showing the Boundaries of the Core Heritage SPZ


4.5.2 Objective

The objective of the Core Heritage SPZ is:

1. To provide for the protection and preservation of critical heritage resources of the JNHT’s Sunken City of Port Royal.

2. To allow for environmentally and archaeologically sustainable uses.

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4.5.3 Background and Justification The town of Port Royal was founded in the 1650s by the first British settlers who came to Jamaica. The town developed around Fort Charles and soon became packed with traders, shopkeepers, innkeepers, soldiers, buccaneers and pirates. There were also craftsmen including carpenters, bricklayers, tailors, goldsmiths and silversmiths. By 1690, there were between 8,000 and 10,000 permanent inhabitants at Port Royal (JNHT, 2013).

At its height, Port Royal represented the global centre of the British merchant trade in the 17th century. Typical of an English colonial port town, yet unique in its unprecedented consumer wealth, carousing buccaneers, and thriving middle class, Port Royal was unparalleled anywhere in the world. In 1692, without warning, the dazzling city fell to a great earthquake which engulfed the town in a matter of minutes leaving behind nothing but a detailed and permanent record buried under the sea (UNESCO, 2013).

As the only sunken city in the Western Hemisphere, the assemblage of buildings both on land and underwater illustrate a vivid picture of life during the era of colonial expansion in the new world. The sunken city of Port Royal has been kept almost exactly as it would have looked in 1692 and this has fascinated people all over the world (NRCA, 1997).

The outstanding universal value of this site can be justified by the following criteria used in the site’s nomination for world Heritage Site Status:

1. Is an outstanding example of an architectural and technological ensemble or landscape which illustrates a significant stage in human history.

2. Is an outstanding example of a traditional human settlement and land-use which is representative of a culture or human interaction with the environment especially when it has become vulnerable under the impact of irreversible change.

3. Is directly or tangibly associated with events or living traditions, with ideas, or with beliefs, with artistic and literary works of outstanding universal significance.

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Under the guidance of the JNHT, the Core Heritage SPZ will allow for those uses which can be undertaken in a manner that is archaeologically and ecologically sustainable. The activities that will be allowed and those to be prohibited are outlined in Box 4.

Box 4: User Activities for the Core Heritage SPZ

CORE HERITAGE SPZ Allowed

In the terrestrial area ONLY, construction of new and expansion of existing facilities that are in keeping with character of the area and with strict conditions re: mode of construction as approved by the JNHT.

Ecological and archaeological restoration/conservation activities. Special events e.g. recreational/commercial events such as parties, festivals subject to special approval of

the KSAC, NRCA, the ODPEM and the JNHT. Research/educational activities subject to approval from the JNHT and NRCA. Recreational activities (in areas traditionally used and which may be identified from time to time). All activities associated with the NRCA’s and JNHT’s management of the area.

Not Allowed

Development in the marine segment of the zone. Construction in ‘No build’ zones designated by the JNHT and the ODPEM. Multiple storey developments without the approval inter alia of the JNHT, ODPEM and the Jamaica Civil

Aviation Authority. Removal or disturbance of archaeological, physical or biological features/specimens or habitats, i.e. dune,

sand, rock, artifacts flora, fauna. Any activity which contravenes local environmental laws and/or may have a deleterious effect on the

environment e.g. open burning, dumping.

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REFERENCES Alleng G. 1990 Historical development, power status and management guidelines for the Port Royal Mangal, Jamaica. Master of Philosophy Thesis, Zoology, University of the West Indies, Mona. 171 pages Cumberbatch, J. 2001. Case Study of the Folkestone Marine Park and Reserve, Barbados; CANARI Technical Report #281.Retrieved on [2010 January 26] from http://www.canari.org/folkstone.pdf Department for Environment and Heritage, Government of South Australia, 2005. Basis for Zoning for the Encounter Marine Park Draft Zoning Plan. Retrieved on [2009 September 23] from http://www.deh.sa.gov.au/coasts/pdfs/encounter_marine_park_zp_tech.pdf Department for Environment and Heritage, Government of South Australia, 2005. Encounter Marine Park Draft Zoning Plan 2005. Retrieved on [2009 September 17] from http://www.environment.sa.govt.au Great Barrier Reef Marine Park Authority, 2003. Great Barrier Reef Marine Park Zoning Plan 2003. Retrieved on [2003 November 3] from www.gbrmpa.gov.au/__data/assets/pdf_file/0016/10591/Zoning_Plan.pdf Gubay, S. 2005. Marine Protected Areas and Zoning a System of Marine Spatial Planning. Retrieved on [2010 January 7] from http://www.wdpa-marine.org Kelleher, G.; Kenchington, R. 1981. Guidelines for Establishing Marine Protected Areas, International Union for the Protection of Nature and Natural Resources p.34; 68-78. Retrieved on [2009 July 28] from web.tiscalinet.it/areeprotettemarine/iucn.pdf New South Wales Marine Parks Authority, 2004. User’s Guide to the Zoning Plan; Lord Howe Island Marine Park. Retrieved on [2009 November 26]from http://www.mpa.nsw.gov.au/pdf/lhimp-guide.pdf New South Wales Marine Parks Authority, 2006. Solitary Islands Marine Park and Solitary Islands Marine Reserve, Zoning Summary and Use Guide. Retrieved on [2009 September 29] from http://www.mpa.nsw.gov.au/pdf/simp_zoning_summary_brochure.pdf New South Wales Marine Park Authority, 2006. Batemans Marine Park Zoning Plan: User Guide. Retrieved on [2009 August18] from www.mpa.nsw.gov.au/pdf/bmp-zoning-plan-users-guide.pdf Smith Warner International 2005. Recreational Carrying Capacity Assessments for Port Royal/Lime Cay. Submitted to the Tourism Product Development Company The Jamaica National Heritage Trust 1985. The Jamaica National Heritage Trust Act. The National Environment and Planning Agency 2007. A Report on the Proposed Zoning of he Palisadoes-Port Royal Protected Area (Draft; Unpublished) 2008. The Town and Country Planning (Kingston and Saint Andrew) Provisional Development Order, 2008 (Draft)

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The National Environment and Planning Agency; University of the West Indies and (2005) Ramsar Information Sheet (RIS) for the Palisadoes-Port Royal Ramsar Site Retrieved on [2010 February 10] from www..wetlands.org/reports/ris/6JM002en.pdf The Natural Resources Conservation Authority; Coastal Zone Management Branch 1997. Draft Palisadoes-Port Royal Protected Area, Draft Environmental Policy Framework (Draft) NRCA-DEMO Project (Unpublished) 62 pages 1999. Palisadoes-Port Royal Protected Area Management Plan (Draft) NRCA-DEMO Project (Unpublished). 81 pages The Nature Conservancy (Virgin Islands program), 2002. St. Croix East End Marine Park Management Plan, pg.1, 2; 14-19; 20.

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Appendix 1: Land use Port Royal Special Area

1. Introduction

Port Royal is a historic town located at the Western tip of the Palisadoes tombolo. In the 17the century,

the town was the centre of shipping and commerce in Jamaica. During this time, it gained a reputation

as both the “richest and wickedness city in the world” as pirates from around the world congregated at

Port Royal coming from the waters as afar away as Madagascar. In June 7, 1692, a massive earthquake

destroyed most of Port Royal, causing two thirds of the city to sink into the Caribbean Sea such that

today it is covered by a minimum of 25 ft. of water. The sunken city is considered one of the most

important underwater archaeological sites in the Western Hemisphere.

Today, the area is a shadow of its former self with a population of approximately 3,300 persons7.

Fishing is the main economic activity. Despite the fact, that some of the attractions and many of the

historic buildings are currently in a state of disrepair, the area is frequented by both local and foreign

tourists.

2. Land Use

Port Royal is located in the parish of Kingston. It is also a protected area and forms part of the

Palisadoes Port Royal Protected Area, which is also a designated RAMSAR site. The town of Port

Royal has been declared a Protected National Heritage Site by the Jamaica National Heritage Trust.

Figure 1 shows the Land Use by hectares in the Port Royal Special Area. The land use is dominated by

vegetation (accounting for 43% of the total area) comprising of mangroves, cacti, scrub and dune scrub.

Norman Manley International Airport and its ancillary uses account for another 43% of the total area.

There are several historical sites within this area that account for approximately 2% of the total land use

area.

7 Population Census – Jamaica, STATIN 2001

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Source: The Port Royal Project – Archaeological excavations* __________________________ *Photo taken from http://nautarch.tamu.edu/portroyal/archhist.htm

revised draft zoning plan for the palisadoes-port royal protected area

Documents