ENVIRONMENTAL ADVOCACY IN THE CARIBBEAN: THE CASE OF THE NARIVA SWAMP, TRINIDAD Nicole A. Brown 2000 CANARI Technical Report N° 268 Supported by the United Kingdom Department for International Development - Caribbean, as part of the project Capacity Building for Community Participation in Natural Resource Management in the Caribbean Acknowledgments This case study was prepared under the framework of the project Capacity Building for Community Participation in Natural Resource Management in the Caribbean, which is implemented by the Caribbean Natural Resources Institute in collaboration with and with financial support from the United Kingdom Department for International Development. The author is grateful to the following individuals who gave freely of their time and information for the preparation of this document: Mrs. Theresa Akaloo, President, Trinidad and Tobago Rice Growers Association; Mr. Gerard Alleng, Wetlands Specialist, Institute of Marine Affairs; Mr. Nazam Ali, Forester II, Forestry Division, Ministry of Agriculture, Land and Marine Resources; Mr. Michael Als, Director, Toco Foundation; Professor Peter Bacon, Head, Department of Zoology, University of the West Indies, St. Augustine; Ms. Robyn Cross, Head, National Parks, Forestry Division, Ministry of Agriculture, Land and Marine Resources; Mr. Selwyn Dardaine, Chief Conservator of Forests, Forestry Division, Ministry of Agriculture, Land and Marine Resources; Mr. Foster Derrick, Environmental Awareness Group, Antigua; Ms. Jacqueline Ganteaume-Farrell, Director, Land Administration Division, Ministry of Agriculture, Land and Marine Resources; Dr. Carol James, Sustainable Development Advisor, United Nations Development Programme; Ms. Sylvia Kacal, Caribbean Forest Conservation Association; Mr. Mootilal Lal, Game Warden, Wildlife Section, Forestry Division, Ministry of Agriculture, Land and Marine Resources; Mr. Ivan Laughlin, Architect; Mrs. Nadra Nathai-Gyan, Head, Wildlife Section, Forestry Division, Ministry of Agriculture, Land and Marine Resources; Mr. Yves Renard, Executive Director, Caribbean Natural Resources Institute; Ms. Karilyn Shephard, Vice President and Treasurer, Pointe a Pierre Wild Fowl Trust; Dr. Manuel Valdés-Pizzini, Director, University of Puerto Rico Sea Grant College Program; Mr. Dylan Vernon, Executive Director, Society for the Promotion of Education and Research, Belize . The author would also like to thank the following reviewers of the case study for their careful comments: Dr. Peter Bacon, Ms. Molly Gaskin, Dr. John Gamman, Ms. Tighe Geoghegan, Dr. Carol James, Mr. Vijay Krishnarayan, Ms. Maryse Mahy, Ms. Nadra Nathai-Gyan, Mr. Yves Renard and Ms. Karilyn Shephard. All errors and omissions are the responsibility of the author. ENVIRONMENTAL ADVOCACY IN THE CARIBBEAN: THE CASE OF THE NARIVA SWAMP, TRINIDAD Introduction Balance between the need for sustained economic growth on one hand, and the need to protect the natural, physical and cultural environment on the other is particularly important in the island states of the Caribbean where there is a high level of direct economic dependence on natural resources. In countries across the region, the sustainable and equitable use of natural resources is currently one of the critical national development issues, particularly as competition for ever-diminishing resources is on the increase. When large-scale commercial farmers from central Trinidad began illegally cultivating rice in the Nariva Swamp in 1986, the Government and people of Trinidad and To bago found themselves in a situation where a certain form of economic development was being pitted against the environment. Growing concern about the negative social and environmental effects of commercial rice farming and other illegal activities occurring in Nariva, prompted government resource managers, environmentalists and researchers to embark on what would become a ten-year campaign to oust the large-scale farmers and formalise arrangements for small-scale farming. The advocacy effort focussed on removing the squatters from the swamp and ceasing all illegal farming there until an environmental impact assessment (EIA) could be conducted and a management plan put in place. This narrative account of the Nariva advocacy campaign examines the actors, the process, its outcome and impacts, and highlights those elements of the strategy that contributed to the effort’s success in bringing about the cessation of farming in the swamp. Caribbean Natural Resources Institute 1 The Place of Advocacy in Natural Resource Environmental Advocacy in the TheManagement Center for and Democratic Decision Making Education defines Caribbean advocacy as a process “which organisations and individuals use to exert pressure for changes in a While there is a long tradition of grassroots specific policy or behaviour of a government or action and popular protest in the Caribbean institution” (Everts et al. 1996). It is a fundamental process in a democratic society as it allows groups against issues ranging from labour conditions and citizens to influence public institutions and to transportation to food shortages, policy. mobilisation in defence of the environment is a relatively new phenomenon that can be traced The term ‘advocacy’ is used to describe a series back a mere ten to fifteen years. But two trends of activities built around a theme or set of themes in the region suggest that over time it may with the aim of effecting a specific change in become a more frequent occurrence. Given action or policy. At the same time, advocacy seemingly fewer options for economic processes can contribute to community development, some governments in the region development and empowerment. They can help appear to be overlooking environmental build local capacity to articulate concerns and needs, assist in processes of group formation and considerations when trying to maintain or community organisation, and build confidence at increase levels of investment. At the same time, the local level. Advocacy processes can help ordinary citizens are becoming increasingly broaden concerns and develop an understanding of aware of environmental concerns and of the issues and stakes, and can help popularise need for civil society participation in all scientific and technical issues. Moreover, spheres of public life. Against this backdrop, it advocacy can be a useful tool in preparing is likely that as more communities face threats stakeholders for participatory processes. to their physical, cultural and social environment as a result of massive Even when advocacy efforts do not succeed in bringing about the desired policy change, the developments, they will attempt to pressure process itself may contribute to the strengthening governments and developers to take their of civil society, by building NGO and community concerns into account. capacity and raising the level of public awareness and debate (Miller 1994). As the following three examples illustrate, it is difficult to talk about a sole ‘model’ of environmental advocacy in the Caribbean. There are differences in processes of mobilisation, and in approaches and tactics that reflect national and local politics, culture and patterns of social organisation. In some cases, groups and organisations are formed specifically to address the issue, in other instances, established organisations take on the cause. Organisations sometimes act alone, seeking support and strategic alliances as necessary, while under some circumstances groups formally coalesce. The impetus for mobilisation can come from communities within or adjacent to the area in question, or the driving force can be external. Experience has shown, however, whatever the outcome, advocacy processes can have effects beyond the lobby issue: the process can prompt public debate on other related issues or catalyse processes of community development. 2 Environmental Advocacy and the Nariva Swamp, Trinidad Jalousie, St. Lucia In the late 1980s, a number of individuals within and outside of St. Lucia opposed plans for the construction of a hotel on the Jalousie Estate, at the foot of the country’s most famous landmarks, the Pitons. With support from the Organisation of American States plans had been developed for the creation of a national park within the area, as part of an overall framework for the integrated development of the Soufriere region. In 1990, as it became clear that the Government was about to grant approval for the construction of the hotel, and as there were indications that other development proposals were being considered for the area, a small group of prominent St. Lucians stepped up the campaign against the Jalousie development. They organised public meetings and made public statements about the issue. The involvement of the author Derek Walcott in the campaign helped give it regional and international attention. Linkages were established with conservation organisations outside of the region to secure their support. The group, which later established itself as the St. Lucian Environment and Development Awareness Council, aimed most of its attacks on the government and failed to generate support from the local community, as the advocacy process was external to it. In the end, the Jalousie hotel was constructed, but the effort raised awareness of the importance of the Pitons, and helped create conditions where the sorts of proposals that were considered then would now be looked at differently (Renard personal communication). Seatons, Antigua In Antigua, residents of Seatons