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Summary and Conclusions the Caribbean Netherlands Five Years

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Summary and Conclusions the Caribbean Netherlands Five Years Summary and conclusions The Caribbean Netherlands five years after the transition Impact on the population Rob Bijl and Evert Pommer In October 2006, the Hague played host to a conference on the future constitutional struc- ture of the Caribbean Netherlands. The final declaration contained a commitment to a joint evaluation of the development of that new constitutional order by the Netherlands and the islands of Bonaire, Sint Eustatius and Saba. The evaluation was to take place five years after the administrative transition on 10 October 2010. In order to make this evaluation possible in 2015, preparatory studies were carried out. The study described in this report, which was carried out between January and June 2015, focused on the consequences of transition for the population of the islands. Research questions The research questions formulated by the Commission charged with evaluating the devel- opment of the new constitutional structure for the Caribbean Netherlands (Commissie eva- luatie uitwerking nieuwe staatkundige structuur Caribisch Nederland) were as follows. 1 How has the economic situation on the islands developed since 10 October 2010? Which factors (e.g. relating to the fiscal legislation) are or have been important in the economic development of the islands? 2 How has the physical infrastructure developed, including the accessibility of the islands by water and by air? How has the level of infrastructural facilities evolved against the background of the economic development since 10 October 2010? 3 How has implementation progressed of the agreements that emerged from the administrative consultation on 31 January 2008 to formulate standards, taking into account the specific circumstances cited in the list of resolutions in that consultation, for a level of facilities that is acceptable within the Netherlands in Bonaire, Sint Eusta- tius and Saba in the priority fields of education, public health, social security and public safety? 4 How has the level of facilities developed against the background of the particular char- acter of the Caribbean Netherlands and against the background of the agreement reached on formulating standards for a level of facilities that is acceptable within the Netherlands? In addition, the study team was requested to provide an insight into the role played by rel- evant actors, and specifically into the following aspects: 309 s u m m a r y a n d conclusions 1 How has the policy pursued on the level of facilities in the fields of education, public health, social security, public safety and physical infrastructure impacted on the popu- lation? 2 What has been the contribution of the ‘public bodies’ (the official status of the islands under Dutch law), central government and other relevant actors to the development of the level of facilities? 3 How has the distribution of responsibilities between the public bodies (islands) and central government functioned in respect of the development of the level of facilities? And what was the level of cooperation in this regard? At the request of the commissioning party and the supervisory committee for this study, extensive attention was devoted to the experiences of the population (question 5). This is in line with the advice of the Dutch Council of State that this part of the study should focus primarily on the tangible social impact on the daily lives of island residents as a result of the transition to the new constitutional order on the islands. The influence of the various actors on the level of facilities achieved (questions 6 and 7) is not simple to determine decisively within the short timeframe of this study, due to the other factors that could also play a role. Policy efforts, or the lack thereof, are often just one of the factors that determine the social situation of island residents. Causality is not easy to determine. For example, health status and the level of safety depend in part on factors that lie outside the scope of policy influence. Interviews held on the islands and the survey of residents are the main sources used to provide an impression of the role of the various actors. This is described in chapters 8 and 9 of this report, which are concerned with the perception and appreciation of life on the islands by the population and by administrators, policymakers and professionals, representatives of civil-society organisa- tions and members of the business community working in the priority fields. Ascertaining the contribution made by the public bodies, central government and other relevant actors to the development of facilities was however not an independent element of the present study, nor was the distribution of responsibilities and the cooperation between the public bodies and central government. The perceptions, observations and levels of appreciation by respondents can be regarded as ‘social facts’. People act in accordance with this reality, whether or not it is based on empirically observable facts. Or, to quote the Thomas theorem: ‘If men define situations as real, they are real in their consequences.’ In other words, the way in which citizens perceive their social situation as described in this report cannot be dismissed as the sum of mere opinions, but must be regarded as a reality that is relevant from both a policy and a politi- cal perspective. 310 s u m m a r y a n d conclusions Research design When carrying out this study, allowance was made for the limited availability of data that could serve as indicators for the situation on the islands. This applies not only for the num- ber of indicators, but also for their development over time. The amount of information available proved limited in many areas. It is important to be aware that no baseline meas- urements were carried out in 2010, so that any statements about the consequences of the decisions taken on 10 October 2010 must be treated with caution. The limited time availa- ble also made it difficult for the researchers to collect extensive primary data themselves. Despite these constraints, scp did endeavour to gather new supplementary data within a short space of time. The following activities were undertaken to this end: – A representative survey was conducted among the population of the three islands (Saba: 146 respondents; Sint Eustatius: 202 respondents; Bonaire: 401 respondents) to ascertain their perception of the situation following the administrative transition; – Seven intensive discussions were conducted with focus groups made up of island resi- dents; – More than 60 interviews were held with a total of some 150 administrators, civil serv- ants, professionals, representatives of civil-society organisations, entrepreneurs and citizens on the islands, focusing on their experiences of the situation on the islands fol- lowing the administrative transition; – Interviews were conducted with approximately 100 island residents in their preferred language (Dutch, Papiamento, English) during six drop-in sessions with the researchers on the islands; – A webpage was made available on which island residents could tell their stories about and recount their experiences of the administrative transition; approximately 25 resi- dents made use of this facility; – Interviews were held with inspectors charged with overseeing the priority facilities, as well as with officials from the ministries involved. The remit of the study was to provide as factual and objective a picture as possible of developments in the Caribbean Netherlands in the individual areas highlighted and in the socio-economic situation. To achieve this, statistical data, microdata (from individual per- sons) and qualitative insights are indispensable. Existing sources were used to address the research questions, including a large number of policy documents and information from supervisory authorities and civil servants involved in the transition. How has the economic situation developed? Island character and scale impose limits on economy The majority of commodities and other goods and products used on the islands have to be brought in from elsewhere. However, the (very) limited size of Bonaire, Sint Eustatius and Saba, in terms of both area and population, imposes limits on the size of the local econ- 311 s u m m a r y a n d conclusions omy and the available spending potential. If there are too few users, it is not (financially) attractive to offer a given amenity, either commercially or non-commercially. The scale and the associated cost disbenefits also play a role: a shrinking market increases the average unit costs, which means that, without government intervention, the product or service in question becomes more expensive. This applies especially for Saba and Sint Eustatius, and to a lesser extent also for Bonaire. One-sided economic structure makes islands economically vulnerable All three islands have a one-sided economic structure. The limited number of economic activities, which dominate the local economy, makes all three islands economically vulner- able. To what extent the overall picture has been influenced by the decisions of 10 October 2010 cannot be established on the basis of the available data (from Statistics Netherlands (cbs) ). However, the opinions and perceptions of the local population and business com- munity do enable a more qualitative picture to be formed. That picture is not universally positive. Increased tax revenues ploughed back in through (temporary) rafts of measures The administrative reforms also involved a review of the tax system. One key agreement in this regard was that the tax burden in 2011, the year that the new system was introduced, would remain roughly the same (at macro-level) as in 2010. In reality, however, following the introduction of the new system, tax revenues turned out higher than agreed. A range of measures was subsequently introduced to channel the excess tax revenues back to taxpay- ers. This operation also helped to sustain purchasing power and boost the business cli- mate. However, it is unclear how this operation worked out in practice for the different sections of the population.
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