Parque Nacional Jardines De La Reina

EVALUATION REPORT

Parque Nacional Jardines de la Reina

Location: Cuba, Caribbean Sea

Blue Park Status: Nominated (2020), Evaluated (2021)

MPAtlas.org ID: 3701

Manager(s): La Empresa Nacional para la Protección de la Flora y la Fauna, Marlin Azulmar

MAPS 2

1. ELIGIBILITY CRITERIA

1.1 Biodiversity Value 3

1.2 Implementation 7

2. AWARD STATUS CRITERIA

2.1 Regulations 11

2.2 Design, Management, and Compliance 15

3. SYSTEM PRIORITIES

3.1 Ecosystem Representation 25

3.2 Ecological Spatial Connectivity 25

SUPPLEMENTAL INFORMATION: Evidence of MPA Effects 26

Figure 1: Jardines de la Reina National Park encompasses an archipelago formed by 661 cays, located approximately 80 km offshore of the southwest coast of Cuba. It is one of the four main groups of islands around Cuba, stretching for approximately 360 km from the Gulf of Guacanayabo to Casilda Bay. It is the largest continuous marine reserve in the Caribbean and covers an area of 2170 km2, including 161 km2 of land and 2010 km2 of ocean. Jardines de la Reina National Park has four types of regulatory zones: a Conservation Zone (dark blue, fully protected), Recreational Zone (light blue, lined, highly protected), Extractive Use Zone (light blue, highly protected), and Administrative Zones (highly protected) that fall within the Extractive Use Zones. The boundary of the park is surrounded by a 500-meter buffer zone in which extractive uses, with the exception of lobster fishing, are prohibited. (Source: Marine Protection Atlas, Marine Conservation Institute)

1.1 Eligibility Criteria: Biodiversity Value (must satisfy at least one)

1.1.1. Includes rare, unique, or representative ecosystems.

Jardines de la Reina National Park (JRNP) is formed by 661 cays.1,2 It is the largest continuous marine reserve in the Caribbean3 and contains representative examples of all the types of marine habitats present in Cuba and the insular Caribbean region.4 The park includes mangrove forests, seagrass meadows, coral reefs, deep water areas, and coastal habitats including coastal lagoons and estuaries.5 These ecosystems, common to the region but often degraded, are abundant with fish, sharks and other marine life.6

Jardines de la Reina National Park contains some of the most well-preserved and resilient7 coral reefs of the Caribbean, with the most developed reefs found on the southern side of the park: fringing reefs with reef crests (1-3m depth) and reef slopes (12- 15m for shallow reef slopes and 20-30m for deep reef slopes).8 The coral reefs at JRNP represent a rare, healthy ecosystem with top predators and large fish present.9

1.1.2. Includes area of high species richness or endemism within the context of the biogeographic region.

The coral reefs of JRNP are considered some of the most well-preserved reefs in the insular Caribbean region and in the world, due to their high diversity, complexity, and productivity.10 Reef health and resilience has been associated with JRNP’s isolation from the mainland, separated by cays and by broad, shallow lagoons with many patch reefs.11

1 Martín Blanco et al. (2010) Abundance, distribution and size structure of Diadema antillarum (Echinodermata: Diadematidae) in South Eastern Cuban coral reefs. Revista de Biología Tropical 58: 663-676. 2 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3. 3 Pina Amargós et al. (2014) Evidence for protection of targeted reef fish on the largest marine reserve in the Caribbean. PeerJ 2:e274. 4 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4. 5 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 6 Environmental Defense Fund (2013) Research Cruise in the Gulf of Ana Maria and Gardens of the Queen. Collaborative Research to Increase Knowledge, Capacity and Science for Healthy Marine Ecosystems in Cuba. Environmental Defense Fund. Retrieved December 2020 from https://www.edf.org/sites/default/files/waitt_cuba- research-cruise_oct2013_08_screen.pdf. 7 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4. 8 Martín Blanco et al. (2010) Abundance, distribution and size structure of Diadema antillarum (Echinodermata: Diadematidae) in South Eastern Cuban coral reefs. Revista de Biología Tropical, 58: 663-676. 9 Burke, L. (2014) Cuba’s Jardines de la Reina Reef—A Beacon of Hope in the Caribbean. World Resources Institute. Retrieved June 2017 from https://www.wri.org/blog/2014/01/cubas-jardines-de-la-reina-reef%E2%80%94- beacon-hope-caribbean. 10 Martín Blanco et al. (2010) Abundance, distribution and size structure of Diadema antillarum (Echinodermata: Diadematidae) in South Eastern Cuban coral reefs. Revista de Biología Tropical 58: 663-676. 11 Wilkinson C., Souter D. (2008) Status of Caribbean coral reefs after bleaching and hurricanes in 2005. Global Coral Reef Monitoring Network, and Reef and Rainforest Research Centre. Townsville, p. 77.

Surveys conducted between 2010 and 2016 on Cuba’s seven main coral reef systems found that JRNP reefs exhibited the highest coral density and species richness with 37 coral species. The comparative health of JRNP may be linked to lower impacts from fishing and land-based pollution given its remote location.12 A study conducted in 2017 on benthic coverage and diversity in JRNP recorded 20 species of Scleractinian corals, with Siderastrea siderea, Agaricia spp., Porites astreoides, Stephanocoenia intersepta, and Orbicella spp. being the most common.13 Studies in the park have also identified substantial populations of Acropora spp., especially Elkhorn coral (Acropora palmata), relative to other reef systems in the Caribbean.14 The marine flora of JRNP is composed of 183 species of macroalgae (74 Chlorophyta, 37 Ochrophyta, 72 Rhodophyta) and 4 phanerogams – Halimeda pygmaea, H. cryptica var. acerifolia, and H. pumila (Halimedaceae), with reports of new species being discovered.15

The Jardines de la Reina National Park protects 283 reported species of fish, accounting for approximately 25% of Cuba’s total ichthyofauna and 26% of its strictly marine species, representing a higher diversity of taxa than in the northwestern and northeastern regions of Cuba.16 The park exhibits a fish diversity, abundance and biomass that is not seen elsewhere in the insular Caribbean region.17 A study comparing fish species richness, composition and nestedness throughout Tropical America found species richness to peak around the Florida Peninsula, Bahamas and Greater Antilles, most notably Cuba, primarily due to favorable current environmental conditions for demersal and benthic fish species.18 The park also protects 165 species of marine invertebrates, including 60 species of sponges, 43 gorgonians, 37 corals, 19 mollusks and 6 echinoderms.19 Additionally, 120 species of birds have been identified in the park, taxonomically grouped into 17 orders and 37 families, with a 10% level of endemism. JRNP is seen to provide winter residence to many Neo-Arctic and Neotropical migratory birds, as well as providing nesting, breeding and hunting habitat for marine birds. The best represented orders are Passeriformes, Charadriformes and Pelecaniformes, as well as the families Parulidae, Scolopacidae and Ardeidae. Regarding nesting and residence, there are 30 permanent resident species, 18 bimodal, 24 winter resident, 10 summer resident and 32 passerby species.20

12 González-Díaz et al. (2018) Status of Cuban coral reefs. Bulletin of Marine Science 94.2:229-247. 13 Hernández-Fernández et al. (2019) Small-Scale Variability Dominates Benthic Coverage and Diversity Across the Jardines de La Reina, Cuba Coral Reef System. Frontiers in Marine Science 6:747. 14 Hernández-Fernández et al. (2019) Distribution and status of living colonies of Acropora spp. in the reef crests of a protected marine area of the Caribbean (Jardines de la Reina National Park, Cuba). PeerJ 7:e6470. 15 Sistema Nacional de Áreas Protegidas (n.d.) Jardines de la Reina. Sistema Nacional de Áreas Protegidas. Retrieved June 2017 from http://www.snap.cu/index.php/ct-menu-item-15/ct-menu-item-120/ct-menu-item-125. 16 Pina-Amargós et al. (2014) Ichthyofauna of the Jardines de la Reina archipelago, Cuba. Journal of Marine Research 32.2:54-65. 17 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4. 18 Polanco F. et al. (2020) Marine fish diversity in Tropical America associated with both past and present environmental conditions. Journal of Biogeography 47.12:2597-2610. 19 Sistema Nacional de Áreas Protegidas (n.d.) Jardines de la Reina. Sistema Nacional de Áreas Protegidas. Retrieved June 2017 from http://www.snap.cu/index.php/ct-menu-item-15/ct-menu-item-120/ct-menu-item-125. 20 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 13, English translation: p. 17.

The Jardines de la Reina National Park is one of the core areas of the Caribbean Biological Corridor, due to its regional importance in terms of representativity of its ecosystems and the importance of the park for the regional connectivity.21

1.1.3. Includes demonstrated historic or predicted ecological refugia.

Jardines de la Reina National Park is an important site for coral reefs because it is where reef crests with some of the best-preserved colonies of Elkhorn coral (Acropora palmata) can still be found.22,23 These key reef-building species were once abundant throughout the Caribbean basin, but their populations have declined 80-90% since the 1980s, primarily due to hurricanes, white-band disease (WBD), and mass bleaching events.24 The rapid loss of this species has been linked to the overall decline in coral abundance in the Caribbean basin. However, the relative abundance of Acropora palmata in JRNP may be linked to reduced anthropogenic stressors, as well as reduced impacts from hurricanes, storms and coral diseases compared to other Caribbean reef systems.25

Part of JRNP’s resiliency and high biodiversity may be due to its size and geographical distance (80 km) from the mainland; it is likely representative of what a relatively intact marine ecosystem in this region looks like.26 High coral diversity and abundance has been recorded in the park,27 and the abundance of marine megafauna, including sharks, rays, finfish, turtles, and cetaceans suggests that JRNP may function as an ecological refugium.28

1.1.4. Includes area important for threatened species (including those identified by the IUCN Red List or national legislation), keystone species, or foundational species. Important areas include migration pathways and breeding, nursery, feeding, or assembly areas.

Jardines de la Reina National Park includes several types of habitats important to threatened and endangered species, described as follows:

21 CBC Secretariat (2021). Summary of the proposal for the new demarcation of the Caribbean Biological Corridor. Scientific-technical Report. Strengthening the Caribbean Biological Corridor project. UNEP. 16 pp. 22 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 23 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4. 24 Bruckner, A. W. (2002) Proceedings of the Caribbean Acropora workshop: potential application of the US Endangered Species Act as a conservation strategy. NOAA Technical Memorandum NMFS-OPR, 24. 25 Hernández-Fernández et al. (2019) Distribution and status of living colonies of Acropora spp. in the reef crests of a protected marine area of the Caribbean (Jardines de la Reina National Park, Cuba). PeerJ 7:e6470. 26 Goode, E. (2015, Jul. 13) Crown Jewel of Cuba's Coral Reefs. The New York Times. Retrieved December 2020 from https://www.nytimes.com/2015/07/14/science/crown-jewel-of-cubas-coral-reefs.html?_r=0 27 González-Díaz et al. (2018) Status of Cuban coral reefs. Bulletin of Marine Science, 94.2:229-247. 28 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4.

• Fish spawning aggregations exporting larvae; mangrove nursery grounds; and shelter for snapper, grouper, parrotfish, sharks, and lobster (species identified in following paragraph) • Feeding grounds for hawksbill (Eretmochelys imbricata, CE/IUCN29), green (Chelonia mydas, EN/IUCN30), loggerhead (Caretta caretta, VU/IUCN31) and leatherback (Dermochelys coriacea, VU/IUCN32) sea turtles • Nesting beach sites for green, hawksbill, and loggerhead sea turtles; nesting sites for the American crocodile (Crocodylus acutus, VU/IUCN33) • Migratory corridors for species such as the whale shark (Rhincodon typus, EN/IUCN34) and the leatherback turtle35

The National Park is also known for its abundance, density, diversity and biomass of reef fish and sharks—most of which are of conservation concern.36 Notably, the park has one of the few remaining healthy populations of the endangered Goliath grouper (Epinephelus itajara, CE/IUCN37) and Nassau grouper (Epinephelus striatus, 38 39 EN/IUCN ). It also hosts populations of Caribbean reef sharks (Carcharhinus perezi, NT/IUCN40), silky sharks (Carcharhinus falciformis, VU/IUCN41), lemon sharks (Negaprion brevirostris, NT/IUCN42), tiger sharks (Galeocerdo cuvier, NT/IUCN43),

29 Mortimer, J.A., Donnelly, M. (2008) Eretmochelys imbricata. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2008.RLTS.T8005A12881238.en. 30 Seminoff, J.A. (2004) Chelonia mydas. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2004.RLTS.T4615A11037468.en. 31 Casale, P., Tucker, A.D. (2017) Caretta caretta (amended version of 2015 assessment). The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2017- 2.RLTS.T3897A119333622.en. 32 Wallace, B.P et al. (2013) Dermochelys coriacea. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2013-2.RLTS.T6494A43526147.en. 33 Ponce-Campos et al. (2012) (IUCN SSC Crocodile Specialist Group). Crocodylus acutus. The IUCN Red List of Threatened Species. Retrieved January 2021 from https://dx.doi.org/10.2305/IUCN.UK.2012.RLTS.T5659A3043244.en. 34 Pierce, S.J., Norman, B. (2016) Rhincodon typus. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2016-1.RLTS.T19488A2365291.en. 35 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 36 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4. 37 Craig, M.T. (2011) Epinephelus itajara. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2011-2.RLTS.T195409A8961414.en. 38 Cornish, A., Eklund, A.M. (2003). Epinephelus striatus. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2003.RLTS.T7862A12858266.en. 39 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 4. 40 Rosa, R.S. et al. (2006) Carcharhinus perezi. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2006.RLTS.T60217A12323052.en. 41 Rigby, C.L. et al. (2017) Carcharhinus falciformis. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2017-3.RLTS.T39370A117721799.en. 42 Sundström, L.F. (2015) Negaprion brevirostris. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2015.RLTS.T39380A81769233.en. 43 Simpfendorfer, C. (2009) Galeocerdo cuvier. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2009-2.RLTS.T39378A10220026.en.

spotted eagle rays (Aetobatus narinari, NT/IUCN44), sea turtles, manatees (Trichechus manatus, VU/IUCN45), marine birds including the reddish egret (Egretta rufescens, NT/IUCN46), Cuban black hawk (Buteogallus gundlachii, NT/IUCN47), and Golden- winged Warbler (Vermivora chrysoptera, NT/IUCN48), and corals (including the Staghorn [Acropora cervicornis, CE/IUCN49] and Elkhorn [Acropora palmata, CE/IUCN50] corals).51, 52

Qualifying Designations

Jardines de la Reina (Gardens of the Queen) is a designated Hope Spot.53

1.2 Eligibility Criteria: Implementation (must satisfy all)

1.2.1 The MPA is designated by a legitimate and functional government representing the interests of civil society, and the MPA’s implementation meets the IUCN standards for recognizing indigenous peoples’ rights.

Since 1996 and until 2010, half of the current area of JRNP was established as a Zone Under Special Regime of Use and Protection (ZUSRUP) by the Ministry of Fisheries, protecting about 950 km2 and only allowing lobster fishing and sport fishing.54,55

In 2010, the area was declared a National Park by the Executive Committee of the Council of Ministers under Decree 6803/2010, which designated the Ministry of

44 Kyne, P.M et al. (2006) Aetobatus narinari. The IUCN Red List of Threatened Species. Retrieved December 2020 from https://dx.doi.org/10.2305/IUCN.UK.2006.RLTS.T39415A10231645.en. 45 Deutsch, C.J., et al. (2008) Trichechus manatus. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2008.RLTS.T22103A9356917.en. 46 BirdLife International (2020) Egretta rufescens. The IUCN Red List of Threatened Species. Retrieved March 2021 from https://dx.doi.org/10.2305/IUCN.UK.2020-3.RLTS.T22696916A154076472.en. 47 BirdLife International (2019) Buteogallus gundlachii. The IUCN Red List of Threatened Species. Retrieved March 2021 from https://dx.doi.org/10.2305/IUCN.UK.2019-3.RLTS.T22735287A154466769.en. 48 BirdLife International (2018) Vermivora chrysoptera. The IUCN Red List of Threatened Species. Retrieved March 2021 from https://dx.doi.org/10.2305/IUCN.UK.2018-2.RLTS.T22721618A132145282.en. 49 Aronson, R., et al. (2008) Acropora cervicornis. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2008.RLTS.T133381A3716457.en. 50 Aronson, R., et al. (2008) Acropora palmata. The IUCN Red List of Threatened Species. Retrieved June 2018 from https://dx.doi.org/10.2305/IUCN.UK.2008.RLTS.T133006A3536699.en. 51 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 52 Global Conservation (2021) Jardines de la Reina National Park, Cuba. Global Conservation. Retrieved January 2021 from https://globalconservation.org/projects/jardines-de-la-reina-national-park-cuba/. 53 Mission Blue: Sylvia Earle Alliance (n.d.) Hope Spots. Mission Blue: Sylvia Earle Alliance. Retrieved June 2018 from https://mission-blue.org/hope-spots/. 54 Martín Blanco et al. (2010) Abundance, distribution and size structure of Diadema antillarum (Echinodermata: Diadematidae) in South Eastern Cuban coral reefs. Revista de Biología Tropical 58:663-676. 55 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3.

Agriculture as the legal party responsible for the administration of the park.56 The Ministry of Agriculture then officially designated the National Enterprise for the Protection of Flora and Fauna, a branch of the Ministry of Agriculture, as the administrator of the site under resolution 1254. Flora and Fauna manages over 70% of protected areas in Cuba.

In order to improve the park’s governance, the National Enterprise for the Protection of Flora and Fauna signed an agreement of administrative partnership with Marlin Azulmar, the tourism company managing tourism operations in the park, to help manage the park’s activities.57 Marlin Azulmar is a branch of Marlin Náuticas y Marinas, the Cuban government’s marine tourism company falling under the administration of the Ministry of Tourism of Cuba. Avalon, a privately-owned tourism company operating in Cuba, was granted the contract to administer Marlin Azulmar’s operations in the national park and helps to surveil and enforce fishing regulations. They are the only tourism company allowed to operate within the park, and in addition to this, can permit a certain number of private boats to visit the park at any given time.58

The designation of the MPA did not infringe on any indigenous people’s rights in the region. There are no distinct indigenous communities still in Cuba; most died in captivity or fled under Spanish conquest and colonization, though Ciboney-Taino-Arawak- descended populations are considered to have survived in parts of rural Cuba.59

1.2.2 The MPA is designated to enhance the biodiversity value of the site.

Jardines de la Reina National Park falls under the National System of Protected Areas of Cuba (SNAP), whose mission is stated as: “guarantee the conservation of natural, historical and cultural values in the most representative ecosystems of the country and contribute to sustainable development.”60

The specific management objectives of JRNP are to: • Guarantee an effective protection of natural resources and diminish threats to conservation targets. • Strengthen the management capacity in the park and improve training of staff and stakeholders. • Facilitate the regulated public use and sustainable tourism for the enjoyment of the park’s natural treasures.

56 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3. 57 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3. 58 Burke, L. (2014) Cuba’s Jardines de la Reina Reef—A Beacon of Hope in the Caribbean. World Resources Institute. Retrieved June 2017 from https://www.wri.org/blog/2014/01/cubas-jardines-de-la-reina-reef%E2%80%94- beacon-hope-caribbean. 59 Minority Rights Group International, World Directory of Minorities and Indigenous Peoples (2007) Cuba. Retrieved February 2021 from https://www.refworld.org/docid/4954ce3123.html 60 Sistema Nacional de Áreas Protegidas (n.d.) Sistema Nacional de Áreas Protegidas. Retrieved January 2021 from http://snap.cu

• Promote the sustainable use of marine resources in the park’s area of influence. • Increase scientific knowledge about the park’s ecological value and guarantee the systematic monitoring of conservation targets, key species, and threats to biodiversity in order to support adaptive management. • Raise the environmental awareness and ethics of staff, visitors and local community members, with an emphasis on the promotion of current and potential benefits resulting from the provision of ecosystem goods and services generated though the park. • Strengthen the alliances between the main stakeholders in order to guarantee effective management and protection of the natural resources in the area.61

1.2.3 The MPA designation is permanent or is effective for at least 25 years.

Jardines de la Reina was first established as a Zone Under Special Regime of Use and Protection (ZUSRUP) in 1996 by the National System of Protected Areas of Cuba, a designation that was meant to last 20 years.62 In 2010, however, the area was declared a permanent National Park by the Executive Committee of the Council of Ministers under Decree 6803/2010, which designated the Ministry of Agriculture as the legal party responsible for the administration of the park.63

1.2.4 The MPA has a management plan that has been updated within the last 15 years.

Operational Plans are released annually and Management Plans are published every five years.64 The most recent management plan is for 2017-2021.65

1.2.5 The MPA implements strategies to enforce its regulations and enhance compliance rates that are appropriate for the MPA’s size, accessibility, and poaching threats; managers report that regulations are actively and consistently enforced.

Surveillance in JRNP is shared between the National Enterprise for the Protection of Flora and Fauna and Marlin Azulmar. Flora and Fauna has structured management of the park in the form of two administrative zones—Santa Cruz del Sur in Camagüey and Júcaro in Ciego de Avila. Surveillance by Flora and Fauna in the Santa Cruz del Sur

61 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 24. 62 Martín Blanco et al. (2010) Abundance, distribution and size structure of Diadema antillarum (Echinodermata: Diadematidae) in South Eastern Cuban coral reefs. Revista de Biología Tropical 58:663-676. 63 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3. 64 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 65 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary.

sector is carried out by 1 motorboat, while the Júcaro sector is surveilled by 2 boats (1 dinghy with an outboard motor, and one SNAP motorized outboard).66

The bulk of surveillance activities are, however, conducted by Marlin Azulmar staff, with the support of two Fisheries inspectors assigned to the archipelago. While Flora and Fauna staff are neither uniformed nor possess the power of arrest, Fishery Enforcement Officers are uniformed and possess the power of arrest. They are housed by Marlin Azulmar on a liveaboard and conduct daily patrols alongside the Coast Guard with an Avalon-provided skiff and captain. Patrols normally target Boca Grande and Cabeza del Este, on the eastern side of the park, given the areas proximity to Cuba proper making it more prone to illegal fishing incursions. Inspectors carry out 15-day shifts and alternate between patrolling the eastern and western boundaries of the park. Illegal fishing fines can reach up to 7,500 Cuban pesos (US$300). The vast number of liveaboards, fly-fishing skiffs and dive tenders also serves as a critical deterrent for illegal fishing activities within the national park. Marlin Azulmar divided the archipelago into three macrozones and they distribute fishing vessels and skiffs based on the effects of fishing on each macrozone. While Marlin Azulmar dedicates one fly-fishing skiff to joint patrols with the Fisheries inspectors, 18 other fly-fishing skiffs, six liveaboards, and numerous dive tenders all serve as important sensors to alert authorities of any suspicious or illegal activities within the park boundaries.67

Currently, incidents are reported via phone and email. The national park has designed a database system for incident reporting and its implementation was delayed due to the COVID-19 pandemic. Wildlife Conservation Society has provided trainings on the Spatial Monitoring and reporting Tool (SMART) for JRNP staff, and it is helping Cuba’s Ranger Task Force in the rollout of SMART in other coastal protected areas of the country. It is likely that SMART or a similar incident reporting tool will be implemented in Jardines de la Reina in the near future.68

1.2.6 The MPA has a budget and staff.

The Flora and Fauna administrative unit of Santa Cruz del Sur is comprised of 31 staff members (14 conservation workers, 4 technicians, 5 seamen including skippers, machinists and sailors, and 8 administrative clerks), while the administrative unit of Júcaro is comprised of 15 staff members (5 conservation workers, 3 technicians, 4 seamen and 3 part-time admin clerks).69 The administrative staff remains in the administrative facilities located in Santa Cruz del Sur and Júcaro on the mainland, and the technicians and conservation workers (park rangers) in the biological stations located

66 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 25, English translation: p. 26. 67 Ugaz, Hugo (2016) Cuba, Gardens of the Queen Enforcement Plan. Wild Aid, Global Conservation. Retrieved January 2021 from https://issuu.com/hugougaz/docs/cuba_wildaid 68 Natalia Rossi (Cuba Country Director, Mesoamerica & Western Caribbean Program, Wildlife Conservation Society), personal communication, March 10, 2021. 69 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 25, English translation: p. 26.

in the Caguama (Camagüey) and Caballones (Ciego de Ávila) keys within the National Park, applying a rotation system of 10 to 14 days.70

Financing in the national park comes primarily from funds assigned to the National Enterprise for the Protection of Flora and Fauna by the Ministry of Finance, according to what is approved in the Economy Plan for the execution of projects that are not financed by the National Forest Development Fund.71

Sector Camagüey Sector Ciego de Programs Total (USD) (USD) Ávila (USD) Surveillance and 204,041.8 16,333.85 220,375.65 Protection Monitoring 30,742.14 26,099.15 56,841.29 Environmental 2,996.69 5,501.58 8,498.27 Education Training 1,154.5 To be determined 1,154.5 TOTAL 238,935.13 47,934.58 286,869.71 Table 1: Budget for management programs for 2021 in JRNP – values have been converted from CUP to USD. (Source: Empresa Nacional para la Protección de la Flora y la Fauna, 2017)

The park also utilizes revenue gained from tourism to cover maintenance costs. The income that Flora and Fauna receives from fly fishing and diving is agreed in a contract between Flora and Fauna and Avalon and is deposited in a centralized account.72

Income from Jardines Amount paid to Price x Pax de la Reina National Year Pax Flora and Fauna (USD) Park (USD) (USD) 2017 2210 30 66,300 39,780 2018 1816 40 72,640 43,584 2019 1847 50 92,350 55,410 *2020 546 60 32,760 19,656 Table 2: Tourism income received by Flora and Fauna in JRNP – values have been converted from CUC to USD. *2020 includes only January to March. (Source: Empresa Nacional para la Protección de la Flora y la Fauna, 2017)

International financing comes from organizations such as World Wildlife Fund, United Nations Development Programme, Global Environment Facility and the European Union

70 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021. 71 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 39, English translation: p. 37-38. 72 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

for projects within the park.73 Projects financed by NGOs and multilateral agencies help support monitoring and research, and generally provide equipment that is purchased outside the country; as well as funds for fuel and food for carrying out larger expeditions with the participation of specialists and researchers from scientific and/or national institutions; as well as funds for the acquisition of materials used in environmental monitoring, administration and education.74 In addition to Flora and Fauna funding, the park has received support through several projects implemented by different international NGOs and multi-lateral agencies. For instance, World Wildlife Fund provided support for sea turtle conservation from 2010 to 2015. The Global Environment Facility-funded project “Archipiélagos del Sur” - a ~$5.7 million USD project implemented by the Cuban Center of Protected Areas and United Nations Development Program - supported MPAs along the southern coasts and cays of Cuba, including Jardines de la Reina NP. World Wildlife Fund, via the local NGO Antonio Nuñez Jimenez foundation implemented the project “CCamBio” (~USD $665,000) focused on assessing potential impacts of climate change in Jardines de la Reina and in Zapata Swamp National Parks. Other smaller projects, supported by Wildlife Conservation Society, Environmental Defense Fund, the Ocean Conservancy, and others have been also supporting conservation work in JRNP.75

The management of Jardines de la Reina National Park is shared between the National Enterprise for the Protection of Flora and Fauna, and Marlin Azulmar. The National Park is an ecotourism destination for diving and fishing, and these activities are run by Avalon (contracted by Marlin Náuticas y Marinas).76 Avalon therefore has a dedicated staff staying on liveaboards in JRNP to support tourism operations as well as assist in park management. Avalon employs up to 190 staff during high season and up to 120 during low season. Avalon has a fleet of 7 yachts and 34 auxiliary smaller boats. Nine tenders are used for diving and 25 Dolphin skiffs are used for fly fishing.77

2.1 Award Status Criteria: Regulations Scores 1-3 = Platinum, 3-4 = Gold, 4-5 = Silver

Classification and scoring (1-8) of zones based on fishing gear, bottom exploitation, aquaculture, anchoring, and boating.

The overall score for Jardines de la Reina National Park is 3.9

73 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 39, English translation: p. 37-38. 74 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021. 75 Natalia Rossi (Cuba Country Director, Mesoamerica & Western Caribbean Program, Wildlife Conservation Society), personal communication, March 10, 2021. 76 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 77 Filippo Invernizzi (Co-Founder and Co-Owner, Avalon), personal communication, March 4, 2021.

Commercial lobster fishing is the only extractive activity authorized within the park’s boundaries, which is carried out under strictly controlled regulations (catch limit, season and spatial closures, effort and gear restrictions), and by a limited number of licensed fishing boats.78 The main economic activities within JRNP are tourism-based sport fishing (catch and release fly-fishing) and scuba diving. Snorkeling or other nautical activities must be contracted with Marlin Azulmar.

Anchoring is forbidden within the park, as well as mooring without due authorization or outside of the mooring buoys points. Only crafts authorized by Flora and Fauna to conduct management and surveillance activities have a permanent mooring permit – these include MINAL boats for monitoring lobster fishing and Marlin-Azulmar boats for tourism-based operations.79

Within JNRP, zoning is delineated by marine uses, but zones may overlap as long as they are not incompatible uses and practices. For example, commercial lobster pot fishing may be compatible with catch and release sport fishing, but it is not compatible with most conservation areas. JNRP management recognizes four types of marine zones: • Conservation Zone: patrolling and surveillance, monitoring and research, mooring and maritime transit (in specific sub-zones) allowed • Non-Extractive Recreational Zone: scuba diving, snorkeling, and sport fishing (catch and release fly fishing) allowed • Administrative Zone: craft transit and stay, regulated commercial lobster fishing, sport fishing (catch and release fly fishing) allowed • Extractive Zone for lobster fishing: regulated commercial lobster fishing, sport fishing (catch and release fly), scuba diving and snorkeling allowed80

Zoning was decided through a participatory approach in workshops with park stakeholders that included scientists, park management authorities, park tourism operator (Avalon), representatives of the local community fishing sector (both state fleet and private fishermen), and representatives of law enforcement agencies. Marine zonation criteria followed national guidelines (Principles for the management and zoning of national parks in Cuba developed by the National Center of Protected Areas - CNAP). CNAP is in alignment with IUCN and international conventions and standards for protected area designation, management and conservation.81 The best available science and spatial regulations in effect at the time of the planning process were considered and applied to zoning. Existing and planned tourism and fishing operations versus the estimated carrying capacity of the ecosystems were decisive in establishing the zones and their regulations. The most fragile and key ecosystems were reserved for conservation areas (most reefs, reef fish spawning aggregation sites, areas with the most suitable

78 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 6. 79 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 25. 80 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 30. 81 Natalia Rossi (Cuba Country Director, Mesoamerica & Western Caribbean Program, Wildlife Conservation Society), personal communication, March 10, 2021.

habitats for lobster farming, all mangrove areas, important lagoons, etc.). Although 80% of the park allows extractive use, this is limited to lobster fishing which is managed with catch limits, seasonal and spatial closures, and effort and gear restrictions (park managers monitor lobster populations to assess the sustainability of the lobster fishing—see Section 2.2.4.4); no other extractive activities are allowed in the park.82 All recreational sport fishing is catch and release.

For purposes of calculating a regulations score, administrative zones (e.g. mooring sites, fixed facilities) were not considered separately because they all fall within extractive zones and have the same regulations. For the remaining zones (Conservation, Recreational, Extractive), we assessed areas of overlap, and determined that there were three types of areas with different regulations: 1) Conservation Zones 2) Recreation Zones and overlapping Conservation and Recreation Zones 3) Extractive Zones and overlapping Conservation, Recreation, and/or Extractive Zones

Conservation Zones: 133 km2 Zone Classification: 2 Number of Fishing Gears Allowed: 0 Fishing gears list (c indicates commercial, r indicates recreational or subsistence): Fishing Gear Impact Score: 0 Bottom Exploitation and Aquaculture Index: 0 Anchoring & Boating Index: 1

Conservation Zones include: • The reef conservation zone, which includes all reef areas in JRNP (ridges, terraces and frontals) except those reserved for diving and snorkeling. • The coastal lagoon conservation area, which includes all closed or semi-closed coastal lagoons of the Breton, Cinco Balas, Grande and Caballones keys that have not been designated for fishing, public use, or as lobster breeding areas. They constitute important centers of breeding for numerous species of fish and aquatic birds.

Recreational Zones / Conservation and Recreational Zones: 265 km2 Zone Classification: 4 Number of Fishing Gears Allowed: 1 Fishing gears list (c indicates commercial, r indicates recreational or subsistence): lines (jigs, hook, handline, rod, troll – r) Fishing Gear Impact Score: 5 Bottom Exploitation and Aquaculture Index: 0 Anchoring & Boating Index: 1

Recreation Zones include:

82 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

• Coastal bathing areas, diving and snorkeling areas along reefs and mangroves, sportfishing areas (catch and release fly-fishing), and wildlife observation areas in canals and lagoons.

Sport-fishing (catch and release fly-fishing) takes place throughout the park and its buffer zone, except in the reef and coastal lagoon conservation areas, and in the snorkeling area, always in depths less than 5 meters. There is a maximum capacity of 20 boats permitted to fish per day. Target species include Tarpon (Megalops atlanticus), Macabí (Albula vuples), Poppet (Trachinotus sp.) and Snapper (Lutjanus sp.). A security subzone is also established around critical sites where commercial fishing activities may conflict with sport-fishing.

Conservation and Recreation Areas include: • The deep-water conservation zone, which extends from the edge of the frontal reef zone all the way to the park boundary and buffer zones. • The lobster breeding and monitoring area, which covers areas of seagrass less than two meters deep and lowland areas that surround the Breton and Cinco Balas keys.

Extractive Zones: 1618 km2 Zone Classification: 4 Number of Fishing Gears Allowed: 2 Fishing gears list (c indicates commercial, r indicates recreational or subsistence): traps (lobster – c), lines (jigs, hook, handline, rod, troll – r) Fishing Gear Impact Score: 5 Bottom Exploitation and Aquaculture Index: 0 Anchoring & Boating Index: 1

The extent of the MPA, except the coral reef and lagoon conservation zones and any recreational zone where fishing is not feasible, allow commercial lobster fishing using traps. This includes one zone that is considered a conservation zone, which is a grouper and snapper spawning site, prohibits catch-and-release recreational fishing during spawning season.

2.2 Award Status Criteria: Design, Management and Compliance 5 Attributes = Platinum, 4 Attributes = Gold, 3 Attributes = Silver

2.2.1 Size: MPA ≥ 100 km2 or explicitly designed as part of a network of MPAs to support population connectivity.

Jardines de la Reina National Park covers a 2170 km2 area, that includes 161 km2 of terrestrial habitats and 2010 km2 of marine habitats.83,84

2.2.2 Ecological Isolation: Ecological or other protected area buffers surround habitats targeted for conservation within the MPA (e.g., soft sediment or deep water surrounding coral reefs).

The park boundaries include a 500-meter buffer zone encircling the whole park in which extractive uses, with the exception of limited lobster fishing, are prohibited.85 Though the park’s boundaries are quite irregular, the southern boundary follows the 200-meter isobath. The most recent management plan also includes recommendations for expanding the park’s boundaries as well as buffer zones.86

2.2.3 Age: MPA regulations in the site, comparable to the current regulations, are ≥ 10 years old.

Jardines de la Reina was established as a National Park with its current area and regulations in 2010.87

2.2.4 Effective Management Plan: The management plan identifies

2.2.4.1 Measurable conservation targets

The current management plan (2017-2021) identifies several habitats and species of conservation concern. The priority habitats and species identified include mangrove forests, coral reefs, the Goliath grouper and other grouper species, species targeted by sport fishing such as tarpon, bonefish, permit and snappers, sharks and rays, sea turtles, and the American crocodile. The conservation status and threats of these species and their ecosystems are assessed in the management plan.88,89

Populations of Goliath grouper and other grouper species are relatively healthy in comparison to other regions in the Caribbean. However, overall declines in population

83 Sistema Nacional de Áreas Protegidas (n.d.) Jardines de la Reina. Sistema Nacional de Áreas Protegidas. Retrieved June 2017 from http://www.snap.cu/index.php/ct-menu-item-15/ct-menu-item-120/ct-menu-item-125. 84 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3. 85 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 86 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Parque Nacional Jardines de la Reina Plan de Manejo 2017-2021, p. 49, English translation: p. 45. 87 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 3. 88 De Vicente (2017) Conservation targets and vulnerability in the Jardines de la Reina National Park. Avalon Wildlife News. Retrieved June 2018 from http://avalonwildlife.com/conservation-targets-vulnerability-jardines- reina-national-park.html. 89 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 8-21.

sizes have been recorded over the past 40-50 years, and as such, the management plan prioritizes regular monitoring of grouper populations.90

The coral reefs of JRNP are also regularly monitored, with reef surveys and health assessments routinely carried out by state scientific agencies and by academic institutions, such as the University of Havana. Determining the cause of mass mortality of reef ridges with Acropora palmata is a main conservation priority. The goals outlined in the management plan include determining the cause/s of mortality, studying the reproductive biology of reef ridges at JRNP, assessing alternatives for the recovery of affected sites, and creating a database of the behavior of different meteorological variables that may, in the long term, indicate possible effects of climate change on these ecosystems.91

2.2.4.2 Threats to the conservation targets

The management plan identifies direct threats to conservation targets, including the degradation or alteration of habitats, illegal fishing and poaching in the park, and overfishing and by-catch in the areas surrounding the park. These threats are created by indirect factors such as the effect of severe storms, climate change, pollution by drifting garbage, and unsustainable fishing practices. Several socio-economic drivers also generate threats and the unsustainable use of natural resources, such as limited livelihood alternatives and employment options, limited alternative protein resource, the decline of traditional productive activities, and the lack of awareness on environmental issues and ecosystem services. The lack of management capacity (budget, training, resources, administrative structure) for the park is seen as the main impediment in addressing the primary threats to the park’s goal of marine resource and biodiversity conservation.92

Poaching and fishing are the main threats in the park. However, considering the large extension of the protected area and the relatively low frequency of incident detection despite the intense surveillance effort, managers report that the level of these threats can be estimated as low, especially when compared with the high levels of pressure that these activities generate in the rest of the country's marine protected areas. It should also be noted that the spatial pattern of violations of regulations is not homogeneous, since the most frequent illegalities occur in the extreme east of the area (Camagüey sector), which is closest to the mainland and the largest fishing community in the entire region: Santa Cruz del Sur. During the snapper and grouper runs there are concentrations of several dozen fishing boats on the southeastern edge of the park, which frequently cross the border to fish or hunt within the area.93

90 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Parque Nacional Jardines de la Reina Plan de Manejo 2017-2021, p. 28, English translation: p. 29. 91 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Parque Nacional Jardines de la Reina Plan de Manejo 2017-2021, p. 85-86, English translation: p. 75-76. 92 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 22. 93 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

One mysterious threat identified in the management plan is the threat of mass mortality in patches of the park’s mangrove populations. Since the cause of the mass mortality events has yet to be identified, the management plan includes carrying out research and monitoring actions to identify the cause/s, as well as monitoring fauna populations associated with mangrove habitats.94 The goals outlined in the management plan include determining the cause of mass mortality events, studying the reproductive biology of mangroves in JRNP, assessing alternatives for the recovery of affected sites, and creating a database of the behavior of different meteorological variables that may, in the long term, indicate possible effects of climate change on these ecosystems.95

2.2.4.3 Planned activities to mitigate threats and achieve conservation targets

The current management plan identifies main strategies for action which are:96 • Strengthening the park’s capacity for administration, management, and protection • Strengthening of strategic alliances • Strengthening of the park’s public use by developing sustainable tourism as the main funding source • Enhancement of monitoring and research • Boosting of park regulations and intensification of enforcement • Advancement of environmental education and public outreach • Search for innovative solutions to conflicts of use related to fishing

The main activities implemented under each strategic action can be found in pages 31-32 of the Jardines de la Reina National Park Management Plan 2017-2021, Executive Summary.97

The management plan also identifies strategies to achieve its conservation priorities, which include:98 • Reduce the pressure of tourism due to diving. o Optimize the use of dive sites, respecting the load capacity and achieving a rotation of its use. • Prevent the increase in the impact of tourism on reef and pasture beds, as well as on the keys, due to the increase in the visitation of pleasure boats. o Establish a mooring buoy system and a reservation center so that boats that meet the conditions and that are regulated according to the availability of mooring points are able to park.

94 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Parque Nacional Jardines de la Reina Plan de Manejo 2017-2021, p. 28, English translation: p. 29. 95 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Parque Nacional Jardines de la Reina Plan de Manejo 2017-2021, p. 84, English translation: p. 74-75. 96 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 23. 97 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, pp. 31-32. 98 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Parque Nacional Jardines de la Reina Plan de Manejo 2017-2021, p. 35, English translation: p. 34-35.

• Strengthen the capacity for control and surveillance to reduce pressures not related to climate change and improve the resilience of conservation targets. o Equipment, training and empowerment of legal power for personnel in charge of surveillance. o Improve the surveillance and response system for violations of regulations in the national park. o Special protection of herbivorous species (Parrots and barbers). • Strengthen and update the legal framework. o Develop a set of legally approved general obligations, regulations and prohibitions to strengthen the control of emerging threats. o Update and complete the zoning and the regulatory system associated with the framework. • Strengthen the monitoring of coral reefs and mangroves in the protected area. • Strengthen the monitoring and control of invasive species, in particular lionfish. • Continue monitoring the nesting temperature of sea turtles and the dynamics of beaches. • Establish the practice of transferring nests in key sites, following the protocol developed for such effects, to reduce the impact on reproduction due to flooding and nest erosion. • Fill in scientific knowledge gaps (oceanographic, climatic, geophysical). • Expand the training program to the main actors on issues related to climate change, emphasizing how, from their respective functions, they can contribute to adaptation to this threat. The management plan also outlines several Driving Programs relating to surveillance and protection, natural resource management, and conservation targets. The plan calls for park administrators to establish agreements with the Cuban Border Guard to carry out joint operations. Marlin Azulmar also dedicates a liveaboard to conduct part-time patrols. Additionally, a daily incident reporting system will be created with the support of fishing and diving guides, to report to the administration of the park any abnormal or suspicious situations. For these purposes, the administration of the park has already placed one official on the ground, who will be trained and equipped with the appropriate means to compile the information, as well as coordinate and respond to these incidents.99 In terms of natural resource management, the management plan identifies steps to control invasive lionfish (Pterois volitans) by identifying locations of lionfish populations and facilitating their removal.100

99 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 69, English translation: p. 61-62. 100 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 73, English translation: p. 65.

In relation to the actions that are developed to confront illegalities, the following can be mentioned:101 • The participatory preparation of the management plan, discussion of the final zoning and its regulations with the fishing companies that affect the area, so that it is public information and its mandatory compliance is known; as well as the publication and dissemination of an executive summary of the plan that contains the main regulations of the area and helps to understand its values. • The establishment of biological stations, one in each sector of the park, to guarantee the permanence of administration personnel • The accreditation of park personnel is in process so that they can apply fines when violations are detected, since they currently do not have the legal capacity to do so. Fines can only be imposed by inspectors from the State Inspection Office (ONIE), Border Guard Troops (TGF) and Forest Guard Corps (CGB), who participate in patrols of the park.

The park also has a patrol system for surveillance that is developed in a cooperative manner between the tourist operator, fisheries inspectors and the administration of the protected area. The tourist operation contributes with a boat and the necessary fuel, in addition to keeping the fisheries inspectors at their facilities. Daily surveillance tours are carried out depending on significant events that are occurring (e.g. running of certain species of fish, nesting of sea turtles, etc.) and the sites where the greatest incidents are known to occur are visited more frequently. In addition, the biological stations where the park's conservation personnel stay, the tourism facilities, the fly fishing boats and the liveaboards play an important role in surveillance, since during the execution of monitoring and transfers of fishermen or divers to their recreational activities, violations are also detected that are immediately communicated to the personnel responsible for protection. Additionally, joint tours are organized in the park's boats with Inspectors of Border Guard Troops and the Ranger Corps, mainly in the eastern sector of the area. The park has two medium-sized vessels and two support boats that support the surveillance and logistics of the park.102

2.2.4.4 Monitoring plans to measure progress towards conservation targets

The management plan identifies several research and monitoring priorities that focus on the park’s conservation targets. These include: • Causes of massive mangrove mortality in JRNP. • Causes of mass mortality of reef ridges in JRNP. • Study of the American crocodile population in Jardines de la Reina. • Study of the landscapes and marine biotopes of JRNP.

101 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021. 102 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

• Monitoring of the mangrove-seagrass and coral reef ecological system in JRNP. • Monitoring of commercial and recreational fishing, contemplative diving and other tourist activities in JRNP. • Monitoring sea turtle nesting. • American Crocodile Monitoring. • Shark populations and movement. • Biology and movement of Goliath grouper and other fish with economic and conservation interest.

Detailed steps to achieve each of these monitoring priorities are outlined in the management plan.103

Several scientific organizations support monitoring and research in JRNP. These include the Center for Coastal Ecosystem Research (CIEC), the Center for Environmental Research of Camagüey (CIMAC), the Center for Marine Research of the University of Havana (CIM-UH), and the Center for Fisheries Research (CIP). Scientific research has been carried out in the park for over 20 years with the support from international conservation organizations. Several research projects aiming to support the designation of Jardines de la Reina as a National Park were carried out since 2003.104

The CIEC conducts research and monitoring twice per year, once during the rainy season and once during the dry season. Most of this research is concentrated in the center of JRNP and relates to biodiversity and ecosystem functioning.105

Several of the research and monitoring projects planned in recent years have been developed in the park with the effort and cooperation of the area's administration, scientific institutions such as CIEC, CIMAC and CIM-UH, and logistical support from Avalon. Expeditions have been developed for the following purposes:106 • Evaluation of the situation of Acropora palmata in 2017 • Coral reef monitoring (2017 and 2019) • Monitoring of terrestrial biodiversity and the state of mangroves (2017, 2018, 2019) • Evaluation of the potential effect of protection on seagrasses (2017 and 2018) • Study of the herbivory of large parrots (2018) • Assessment of lionfish populations (2018) • Evaluation of the abundance of fish (2018) using BRUV's. • Evaluation of the spawning of the coral Acropora palmata (2019).

103 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Plan de Manejo PN Jardines de la Reina 2017-2021, p. 127-129, English translation: p. 108-110. 104 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 7. 105 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 106 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

• Monitoring of sea turtle nesting at all the park's beaches (nesting seasons 2018 and 2019). • Population assessment of crocodiles (Crocodylus acutus)

In the last five years, several international expeditions have been carried out with the support of foreign research institutions, which have allowed, for example, a better knowledge of mesophotic reef ecosystems (Walton Smith Expedition) and of the reefs of the national park (Expedition of the Woods Hole Oceanographic Institution and MIT in Alucia).107

The latest international cooperation projects where JRNP directly benefited were:108 • Monitoring and conservation of sea turtles in key nesting areas in Cuba (ProTortugas), financed by the World Wildlife Fund, was carried out from 2010 to 2014. It was mainly focused on supporting logistics for monitoring field work, nesting and threats. Some equipment was purchased (computers, boat motors, materials and instruments for field work). The festival for the conservation of sea turtles was designed and began to be held as part of the communication campaign based on the protection of these species. • Application of a Regional Approach to the Management of Coastal and Marine Protected Areas in the Southern Archipelagos of Cuba (Southern Archipelagos), with funds from the United Nations Development Program in association with the National Center for Protected Areas. It was executed from 2009 to 2014. This was a multi- million-dollar project that provided support to MPAs located on the coast and keys of southern Cuba. The project provided support for research and monitoring, while also providing equipment and materials to support management, monitoring and surveillance activities. • Assessment of the potential impacts of climate change on biodiversity and development of adaptation strategies in two regions of fragile ecosystems in Cuba (CCamBio), with funds from the European Union and the World Wildlife Fund. It ran from 2012 to 2014 and involved two national parks. This project invested in monitoring equipment, providing the park with an expensive CTD that will be managed by the Institute of Oceanology, a meteorological station, and monitoring of the dynamics of the coastline and the temperature of sea turtle nests was carried out. • Support for the implementation of the Business Plan to contribute to the financial sustainability of the Park and the improvement of surveillance, developed by the Wildlife Conservation Society. • Support for the study and monitoring of reef sharks and fish (carried out by Center for Coastal Ecosystem Research with the collaboration of Centro de Investigaciones Marinas de la Universidad de La Habana) supported by the Wildlife Conservation Society, The Pew Charitable Trust, Environmental Defense Fund and Mote Marine Lab.

107 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021. 108 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

• Support for scientific work by Avalon since 2017, when the MV Ocean for Youth, Avalon's ship dedicated to research in the national park, began to operate. Until March 2020, 19 scientific expeditions have been carried out. • Support for the study of Acropora palmata populations on the reef ridges of the park, jointly between Avalon and The Ocean Foundation (TOF).

2.2.5 Community Engagement: The local community is engaged in the management of the MPA.

There are no human settlements in the park, although a floating population includes the park’s and Marlin Azulmar’s staff, and a small number of fishermen and tourists that can stay in Anclitas cay on a live-a-board.109 The management plan identifies four coastal communities in mainland Cuba whose livelihoods are directly related to the marine ecosystems within the JRNP. Their commercial fishing bases are contracted with the Ministry of Food of Cuba.110

Local communities participated in the management planning process through multiple workshops and meetings. Most of the park's workers are from local communities, as well as many workers from the tourist operation (fishing guides, boat operators, and support staff). The park administration has environmental education programs that are developed in the local communities with the highest incidence in the park (Júcaro and Santa Cruz del Sur). The way and the frequency with which the park involves local communities in the planning process has been increasing since the first planning process in 2010.111 Environmental education programs are run by National Park workers (conservation technicians) who act as environmental promoters and dedicate 100% of their time to this task. They carry out educational actions where they are linked to schools, elders' circles, the sport fishing federation and other groups of community actors. Many of the activities are held in commemoration of significant dates related to the environment. Community festivals are also organized involving local leaders, as well as tourism, education and cultural entities in their logistics. In these festivals, the conservation of representative species of the park is promoted in the communities; for example, the Festival for the Conservation of Sea Turtles, which has been held for 8 years. In addition, local media is used to disseminate the most significant conservation actions taking place in the area. The park administration also conducts workshops and exchanges with decision-makers and main actors of the protected area on existing environmental problems.112

2.2.6 Resources and Capacity: The MPA has adequate resources and capacity (including budget, staff, training, and leveraged partnership) to implement its management plan and

109 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 6. 110 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 7. 111 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021. 112 Yanet Forneiro (Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna), personal communication, March 9, 2021.

its enforcement strategies.

The Flora and Fauna administrative unit of Santa Cruz del Sur is comprised of 31 staff members (14 conservation workers, 4 technicians, 5 seamen including skippers, machinists and sailors, , and 8 administrative clerks), while the administrative unit of Júcaro is comprised of 15 staff members (5 conservation workers, 3 technicians, 4 seamen and 3 part time administrative clerks ).113 Conservation work and surveillance in the Santa Cruz del Sur sector is currently supported by 1 midsize motorboat, and 2 skiffs with outboard engine. The Júcaro sector the work is supported by 1 medium size motorboat and 1 small size motorboat 114. There are also two biological stations in the park, which provide an additional layer of park security.

Flora and Fauna also created a public-private partnership with Marlin Azulmar and Avalon to help supplement surveillance and enforcement of park regulations. From 2016 to 2020, cooperative patrolling has averaged 1,821 hours, 189 days annually. Avalon provides skiffs with a skipper for surveillance, including gas, maintenance, salary and other related expenses. Additionally, Avalon also provides food and accommodation in their working facilities to inspectors and Flora and Fauna staff during their time in JRNP. Upon request, Avalon also supports Coastguard surveillance and enforcement facilitating skiff/skipper for carrying out those tasks in shallow waters.115

Marlin Azulmar dedicates one fly-fishing skiff to joint patrols with fisheries inspectors, as well as 18 other fly-fishing skiffs, six liveaboards, and numerous dive tenders serving as important sensors to alert authorities of any suspicious or illegal activities within the park boundaries.116 In that way ~ 900 anglers and ~ 1300 divers and snorkelers per year, together with Avalon staff, are de facto park rangers of the area, informing the inspectors about any suspicious activity or evident breaking of regulations.117

Patrolling and enforcement of park regulations is also supported by maritime security agencies including: The Border Troops (TGF), the National Office of State Inspection (ONIE), the Forest Ranger Corps (CGB), and the Port Captains.118

Since the declaration of the Marine Reserve in 1996, commercial finfishing, lobster fishing and recreational fishing have all declined throughout the reserve.119 According to

113 Yanet Forneiro, Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna, personal communication with updated information. 30 March 2021. 114 Yanet Forneiro, Conservation Specialist, Empresa Nacional para la Protección de la Flora y la Fauna, personal communication with updated information. 30 March 2021. 115 Filippo Invernizzi (Co-Founder and Co-Owner, Avalon), personal communication, March 4, 2021. 116 Ugaz, Hugo (2016) Cuba, Gardens of the Queen Enforcement Plan. Wild Aid, Global Conservation. Retrieved January 2021 from https://issuu.com/hugougaz/docs/cuba_wildaid 117 Filippo Invernizzi (Co-Founder and Co-Owner, Avalon), personal communication, March 4, 2021. 118 Empresa Nacional para la Protección de la Flora y la Fauna (2017) Jardines de la Reina National Park Management Plan 2017-2021 Executive Summary, p. 7. 119 Pina Amargós et al. (2008) Effects of Fishing Activity Reduction in Jardines de la Reina Marine Reserve, Cuba. Proceedings of the 61st Gulf and Caribbean Fisheries Institute, p. 351-357.

a paper published in 2014, the fishing efforts were relocated outside of the reserve, but poaching is still present in the reserve.120

3.1 System Priorities: Replicate Ecosystem Representation

The Blue Parks evaluation prioritizes nominees and Accelerator projects protecting ecosystems that are under-represented within their biogeographic region (<30% are protected in Blue Parks) or are rare in the biogeographic region.

Jardines de la Reina National Park protects mangrove forests, seagrass meadows, coral reefs, deep water areas, and coastal habitats including coastal lagoons and estuaries.121 The ecosystems protected by JRNP will be the first of these ecosystems within the Caribbean Sea to be represented in the Blue Parks network.

3.2 System Priorities: Ecological Spatial Connectivity

The Blue Parks evaluation also prioritizes nominees and Accelerator projects that improve ecological spatial connectivity among existing Blue Parks.

There are no other Blue Parks in the Caribbean Sea with which to consider the ecological spatial connectivity contribution of JRNP. Nevertheless, JRNP has been identified as one of the core areas of the Caribbean Biological Corridor (CBC), due to its regional importance in terms of representativity of its ecosystems and the importance of the park for the regional connectivity,122 which ensures that the site could provide connectivity with other future Blue Parks that could be established in the CBC’s demarcation. The CBC is one of the organizations supporting the nomination of JRNP as Blue Park and intends to promote the Blue Park standard amongst other MPAs in its demarcation.123

Although Exuma Cays Land & Sea Park (The Bahamas) is roughly 400 km away from JRNP, it is outside of the Caribbean—Cuba creates a formidable separation between them.

120 Pina Amargós et al. (2014) Evidence for protection of targeted reef fish on the largest marine reserve in the Caribbean. PeerJ 2: e274. 121 Puritz, A. (2017) Evaluating Management Effectiveness of Marine Protected Areas in Cuba’s Southern Archipelagos: A Comparative Analysis Between Punta Francés and Jardines de la Reina National Parks. [Master’s Thesis]. University of Miami Scholarly Repository. 122 CBC Secretariat (2021). Summary of the proposal for the new demarcation of the Caribbean Biological Corridor. Scientific-technical Report. Strengthening the Caribbean Biological Corridor project. UNEP. 16 pp. 123 José L. Gerhartz-Muro, Senior Conservation Specialist of the CBC´s Secretariat, former Marine Conservation Adviser to Avalon, personal communication, 30 March 2021.

Supplemental Information: Evidence of MPA Effects

Fish spillover from Jardines de la Reina was demonstrated in 2008 with higher abundance and biomass of fish, including mutton snapper (Lutjanus analis), cubera snapper (Lutjanus cyanopterus), dog snapper (Lutjanus jocu), jacks (Carangidae), black grouper (Mycteroperca bonaci), Nassau grouper (Epinephelus striatus) and hogfish (Lachnolaimus maximus), being recorded both inside and outside the park boundaries after several years of the protected area being established.124 Furthermore, dispersal modelling has showed that both the corals and reef fish spawning sites of the National Park can disperse larvae to other areas in Cuba and elsewhere in the Caribbean;125,126 consequently, the effective protection of this area ensures that the impact of protection reaches other sites in the region.

124 Pina Amargós et al. (2008) Effects of fishing activity reduction in Jardines de la Reina Marine Reserve, Cuba. Proceedings of the 61st Gulf and Caribbean Fisheries Institute, p. 351-357. 125 Paris CB, et al. (2005) Larval transport pathways from Cuban snapper (Lutjanidae) spawning aggregations based on biophysical modeling. Mar Ecol Prog Ser. 296:93–106. 126 Schill et al. (2015) No Reef Is an Island: Integrating Coral Reef Connectivity Data into the Design of Regional- Scale Marine Protected Area Networks. PLoS ONE 10:e0144199.