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This article was downloaded by: [Michael Orbach] On: 02 May 2015, At: 10:31 Publisher: Taylor & Francis Informa Ltd Registered in England and Wales Registered Number: 1072954 Registered office: Mortimer House, 37-41 Mortimer Street, London W1T 3JH, UK Coastal Management Publication details, including instructions for authors and subscription information: http://www.tandfonline.com/loi/ucmg20 MMAS in Belize Jesse G. Hastings a, Michael K. Orbach b, Leah B. Karrer c & Les Kaufman d a Department of Geography, National University of Singapore, Singapore b Duke University Marine Lab, Duke University, Beaufort, North Carolina, USA c The Global Environment Facility, Washington, DC, USA Click for updates d Department of Biology, Boston University, Boston, Massachusetts, USA Published online: 01 May 2015. To cite this article: Jesse G. Hastings, Michael K. Orbach, Leah B. Karrer & Les Kaufman (2015) MMAS in Belize, Coastal Management, 43:2, 138-154, DOI: 10.1080/08920753.2015.1005531 To link to this article: http://dx.doi.org/10.1080/08920753.2015.1005531 PLEASE SCROLL DOWN FOR ARTICLE Taylor & Francis makes every effort to ensure the accuracy of all the information (the Content ) contained in the publications on our platform. However, Taylor & Francis, our agents, and our licensors make no representations or warranties whatsoever as to the accuracy, completeness, or suitability for any purpose of the Content. Any opinions and views expressed in this publication are the opinions and views of the authors, and are not the views of or endorsed by Taylor & Francis. The accuracy of the Content should not be relied upon and should be independently verified with primary sources of information. Taylor and Francis shall not be liable for any losses, actions, claims, proceedings, demands, costs, expenses, damages, and other liabilities whatsoever or howsoever caused arising directly or indirectly in connection with, in relation to or arising out of the use of the Content. This article may be used for research, teaching, and private study purposes. Any substantial or systematic reproduction, redistribution, reselling, loan, sub-licensing, systematic supply, or distribution in any form to anyone is expressly forbidden. Terms & Conditions of access and use can be found at http://www.tandfonline.com/page/termsand-conditions

Coastal Management, 43:138 154, 2015 Copyright Ó Taylor & Francis Group, LLC ISSN: 0892-0753 print / 1521-0421 online DOI: 10.1080/08920753.2015.1005531 MMAS in Belize JESSE G. HASTINGS, 1 MICHAEL K. ORBACH, 2 LEAH B. KARRER, 3 AND LES KAUFMAN 4 1 Department of Geography, National University of Singapore, Singapore 2 Duke University Marine Lab, Duke University, Beaufort, North Carolina, USA 3 The Global Environment Facility, Washington, DC, USA 4 Department of Biology, Boston University, Boston, Massachusetts, USA This article is part of a special issue that provides insight into global conservation science by analyzing a 5-year, $12.5 million global marine conservation science and policy program. In this article, we summarize the development of the program in Belize, which concentrated its effort in the southern portion of the country. The marine managed areas that developed in Belize took a variety of different forms, and involved a number of different government and private sector agencies and organizations. Keywords Belize, marine conservation, nongovernmental organizations, science to policy Socioeconomic, Institutional, and Environmental Context Belize is a small country in Central America bounded by Mexico, Guatemala, and the Caribbean Sea with a population of 340,844 people in 2014 (www.cia.gov). The country is disproportionately rich in terrestrial and marine biodiversity. Along with Mexico, Guatemala, and Honduras, Belize s waters are home to the Mesoamerican Barrier Reef System (MBRS). The Belizean section of the MBRS is 280 km long and covers 1,400 km 2 (McField and Bood 2007). Belize s reefs are critical to the country s development, providing food, income, and tourism business opportunities for the country s population (Burke et al. 2011). Belize is recognized internationally as a leader in establishing both terrestrial and marine managed areas. There are 18 marine managed areas (MMAs) in Belize s coastal zone, covering 22% of its atolls and continental shelf (McField and Bood 2007). The MMAs are generally zoned into schemes including both marine reserves and areas which allow fishing and tourism. Currently the zoning of Belize s MMAs leans heavily towards large areas being open for fishing, meaning few areas are completely protected from extractive activities. In addition, insufficient MMA enforcement, limited financing, unrestrained tourism development, illegal fishing, land based pollution, climate change, hurricanes, urchin die-offs, and cruise ship impacts have resulted in Belize s coral reefs being severely degraded over the last 25 years (McField and Bood 2007). These threats, Address correspondence to Michael K. Orbach, Duke University Marine Lab, Duke University, 135 Duke Marine Lab Road, Beaufort, NC 28516, USA. E-mail: mko@duke.edu 138

MMAS in Belize 139 including sedimentation, algal growth, fish depletion, and coral bleaching and disease, have increased at an alarming rate. While legislation for marine protection and fisheries management is present in Belize, implementation and enforcement of this legislation are limited. Lack of MMA enforcement has made it difficult to control illegal fishers from Belize, Guatemala, and Honduras (Perez 2009); therefore, Belize relies heavily on the nongovernmental organization (NGO) sector and donors external to the country such as the World Bank, the Global Environmental Facility, Summit Foundation, and the Oak Foundation to provide marine and fisheries management capacity. Within government, the most important stakeholder is the Department of Fisheries. This department regulates and implements closed seasons and catch limits on export fisheries such as finfish, lobster, and conch. It also directly manages MMAs, including Glover s Reef Marine Reserve and South Water Caye Marine Reserve. In addition, there are government advisory boards for tourism and fisheries. Several NGOs co-manage MMAs with the Department of Fisheries. Most relevant to Marine Management Area Science (MMAS) are the Belize Audubon Society (BAS), the Southern Environmental Association (SEA), and the Toledo Institute for Development and Environment (TIDE). SEA is an amalgamation of the former NGOs Friends of Nature and Toledo Association for Sustainable Tourism and Empowerment (TASTE). BAS comanages the Half Moon Caye Natural Monument, SEA co-manages Gladden Spit and Silk Cayes Marine Reserve, Sapodilla Cayes Marine Reserve, and Laughing Bird Caye National Park, and TIDE co-manages Port Honduras Marine Reserve. These co-management arrangements are not standardized across MMAs. They do, however, reduce financial and personnel pressure on the Department of Fisheries while allowing civil society stakeholders to take a larger role in marine resource management. Local communities are connected to the MMAs through involvement with NGO s education, outreach, and advocacy efforts. Other NGOs, academic institutions, and quasi-governmental agencies are also present in Belize. The Wildlife Conservation Society (WCS) is a strong presence in marine research and works closely with the government to turn research into policy outcomes. The University of Belize (UB) is home to several of the country s most preeminent marine scientists, but overall lacks adequate financial, institutional, and human capacity. The Department of Forestry manages the country s forest resources and works with the Department of Fisheries to manage some marine protected areas. The Protected Area Conservation Trust (PACT) is a conservation trust, funded by an airport tax and dedicated to management and preservation of Belize s protected areas. The MBRS project, which was funded by the Global Environment Facility, was active during the early part of the MMAS program and created a framework for the reef s sustainable use as well as housed data on the state of the reef s ecosystem. The Coastal Zone Management Authority and Institute (CZMA/I) is a coastal quasi-government management policymaking and research institution. The CZMA/I was active from 2000 until 2003, and then closed from 2003 until re-opening in 2008. One key new development, the establishment of the Environmental Research Institute at UB, did not occur until just after the MMAS project period. Despite the fact that the marine management sector in Belize is small, and many of the stakeholders know each other personally and professionally, there is surprisingly little cross-institutional data sharing and communication. The Association of Protected Area Management Organizations (APAMO), which was established in 2007 and has two staff, is attempting to fix this issue by linking Belizean protected area management

140 J. G. Hastings et al. organizations personnel together through improved communication. APAMO also intends to advocate for improved environmental policies (www.apamo.net). MMAS in Belize Similar to the other MMAS regions, MMAS in Belize was based on the framework of the global program and tailored to the regional needs. However, in contrast to the other regions, Conservation International (CI) does not have an office in Belize. Consequently, to ensure the research fed into conservation agendas, the program in Belize relied heavily on partnerships. Influencing policies also required working with partners to understand and feed MMAS results into their conservation strategies. Figure 1 is a map of Belize MMAS study sites, Table 1 is a list of the MMAS study locations and principal investigators (PIs), and Figure 2 is a rough timeline of MMAS action in Belize. MMAS Initiation As with the other regions, Belize was identified as one of the priority regions for MMAS. Consistent with the program themes and to ensure comparability, all four MMAS regions, including MMAS in Belize, conducted ecological monitoring, socioeconomic and governance monitoring, cultural roles monitoring, and economic valuation. Building on the MMAS framework and the core set of studies, the next step in building the MMAS Belize program was to tailor plans specifically to Belize. While the MMAS senior PI and a few of the Science Advisory Committee members had research connections to Belize, CI did not have an office in the country. Consequently, a critical decision during this early phase was the identification of a coordinator. CI leadership, specifically the head of the Global Marine Program and the senior PI sought a partner to undertake this role. Recommendations and advice were sought from partner organizations and several candidates were considered. At the time of these deliberations, the person who was eventually to become coordinator for Belize was director of Friends of Nature, an NGO based in southern Belize. Friends of Nature was responsible for managing two MMAs and had a strong reputation for community engagement. A Belizean, the coordinator had been working in protected area management for over a decade, was active on various consultative boards and NGOs, and was well placed to coordinate the scientific studies and subsequent science-to-action (S2A) activities. MMAS responsibilities were in addition to his ongoing work, so he agreed to work in a part-time role. He was excited about being involved in MMAS, as he saw MMAS as a way to finally start turning Belizean science into policy, a traditional area of weakness for the country. During this initiation phase, the head of the CI Global Marine Program and the senior PI sought to better understand knowledge needs and how they matched the MMAS framework. In May 2005 the senior PI participated in a meeting organized by the Belizean NGOs TASTE, TIDE, and Earthwatch to determine how to focus a research program for the Sapodilla Cayes Marine Reserve. Over thirty individuals from NGOs, government, universities, and local user groups attended and engaged in three days of marine research discussions. For the senior PI, the meeting acted as a catalyst for his thinking about how the MMAS core ecological monitoring in Belize would be structured. He also used this meeting to gather ideas about what studies beyond core monitoring would be useful for the country. For example, discussions with both Belizean and non-belizean professionals with knowledge of Belizean science needs resulted in plans for the Conch Genetic Connectivity study.

MMAS in Belize 141 Figure 1. Belize MMAS locations. Discussions with stakeholders continued after the Earthwatch meeting. Once she was hired in late 2005, the CI senior director worked with the senior PI and the Belize coordinator to discuss plans with stakeholders through a series of one-on-one meetings focused on information needs, MMAS research themes and how these could be matched and appropriate for the studies. Coordinated by the coordinator, early discussions were held with government agencies (e.g., Department of Fisheries, Mesoamerican Barrier Reef System Project), NGOs (e.g., Healthy Reefs Initiative, Wildlife Conservation Society, the Nature Conservancy, TIDE, and TASTE), academia (e.g., University of Belize), and donors (e.g., the Oak Foundation, Summit Foundation) regarding the objectives of the MMAS program.

142 J. G. Hastings et al. Table 1 MMAS Belize studies and locations Topics of research (PI) Core Ecological Monitoring (Shank) Core Socioeconomic and Governance Monitoring (Haylock/Catzim) Core Cultural Roles Monitoring (Palacio) Core Economic Valuation (Hargreaves- Allen) Visualization and Spatial Analysis (Gopal) Cross-Shelf Habitat Linkages (Romero/ Ricketts) Inter-Reefal Habitats (Lobel) Enforcement Chain Analysis (Neal) Cruise Ship Ecological Impacts (McField) Study locations: Village or marine area Half Moon Caye National Monument Southwater Caye Marine Reserve Sapodilla Cayes Marine Reserve Laughing Bird Caye National Park Port Honduras Marine Reserve Sarteneja Chunox Copper Bank Dangriga Hopkins Sittee River Indedepence Placencia Monkey River Punta Negra Punta Gorda Sarteneja Hopkins Seine Blight Placencia Gladden Spit and Silk Cayes Marine Reserve Nationwide Transect running from Placenica Lagoon to Glover s Reef Atoll; Southwater Caye Marine Reserve Lagoon between the coast and the first ridge of mangrove cays in the Southwater Caye Marine Reserve. Nationwide Canalito Hol Chan Coral Garden Caye Caulker South Gallows Lee Reef Coral Grove Rendezvous North Silk Laughing Bird Ranguana Goffs (Continued on next page)

MMAS in Belize 143 Table 1 MMAS Belize studies and locations (Continued) Topics of research (PI) Study locations: Village or marine area Conch Genetic Connectivity (Cigliano/ Sapodilla Cayes Marine Reserve Kilman) Larval Dispersal Modeling (Paris-Limouzy) Glover s Reef Marine Reserve Ecotourism Effects on Spawning Fish Gladden Spit and Silk Cayes Marine (Heyman) Reserve A few national-level institutions were targeted for collaboration as a means of working across organizations and feeding results to multiple partners. In particular, the MBRS Program was seen as a mechanism to combine MMAS data with other existing datasets, and in the process build more comprehensive datasets for Belize. APAMO, which was a new network of organizations focused on protected areas, was seen as an important portal to those organizations. The Healthy Reef Initiative collated data and information from across the region to produce a report on the state of the MBRS and was, therefore, also a priority partner. Conversations with these organizations helped contextualize MMAS Belize projects and ensured selected stakeholders aware of what CI was planning. It was evident from these discussions that Belizean stakeholders were frustrated with foreign scientists doing science in the country without an understanding of the social, cultural, and political context of Belize and without contributing value to Belizean organizations. The MMAS Core Team, which in addition to the Global Marine program head, MMAS senior director and senior PI, included the MMAS directors of Natural and Social Figure 2. Belize MMAS timeline.

144 J. G. Hastings et al. Science. This team was adamant that the science was to have applications to management and that local stakeholder groups, particularly senior scientists, should be involved to the extent possible. Stakeholders in Belize were generally excited about MMAS early and declared notion of specifically doing science that was targeted toward management applications and that some of the science was filling in information gaps that had long existed in Belize. However, some Belizean PIs and other stakeholders found this early phase of research planning to be difficult and frustrating, believing that that consultation with a wider range of Belizean stakeholders on the design of the studies had been insufficient, and it would have been better to have left more room for local adaptation in the studies. MMAS PI Identification and Workplan Development When looking for Belizean PIs, the coordinator and the MMAS Core Team found that Belize did not have an extensive cadre of trained scientists, and those that were trained were often not available. The relative lack of scientific capacity in Belize led to the need to use foreign PIs on various MMAS projects. Out of the final total, foreign PIs represented approximately two thirds of all MMAS PIs in Belize. Foreign PIs who became involved were generally connected through personal and professional networks with MMAS Core Team members, but also were selected based on their potential to create S2A-relevant science and perform rigorous, high quality scientific work. Recruitment of Belizean PIs was done based on recommendations from stakeholders in Belize, as well as through knowledge of those PIs in networks that could fill the roles. For example, after a recommendation from a staff member of the Oak Foundation in Belize and discussions with other stakeholders, two Belizeans were recruited to be the PIs for the Socioeconomic and Governance Monitoring study. Hired as consultants, they both possessed extensive knowledge and skills gained from conducting social science research and working with Belizean communities for over 15 years. Other studies were either initiated based on perceptions of stakeholders needs or as new funding opportunities arose. The Cruise Ship Ecological Impacts study arose somewhat opportunistically as another CI division had been working with a member of the Smithsonian Institution staff who was located in Belize on the cruise ship industry, and it made sense to incorporate her project into MMAS even though it had separate funding through Oak Foundation. The Enforcement study for Belize was initiated in 2009 through a new source of funding. The coordinator, after learning about the MMAS enforcement study in the Eastern Tropical Pacific Seascape (Arauz et al. 2010), suggested to the MMAS Core Team that an enforcement study in Belize would well complement the ETPS study and could provide information that could be useful for the country s policymakers. Once new funding was secured for this study, an independent Belizean consultant was recruited to do the work. Once the PIs for the studies had been recruited, the process of developing the individual study workplans began. Workplan construction involved discussions and sharing between the PIs, the MMAS Core Team, and the coordinator, which was typical of all the MMAS regions. The PIs provided scientific expertise and methods planning while the coordinator focused on policy and management implications through continuing discussions with stakeholders noted previously. The MMAS Core Team ensured the workplans balanced the scientific, management, and governance needs of Belize with the overall MMAS model.

MMAS in Belize 145 In addition to the coordinator and the MMAS Core Team s outreach efforts, the PIs also gained input from Belizean stakeholders. For example, the PI for the Socioeconomic and Governance Monitoring Study held discussions about her study with heads of marine NGOs in Belize City and Punta Gorda. MMAS Implementation: Data Collection and Capacity Building Data collection for the MMAS studies began when their individual workplans were fully completed. For some studies, it took almost a year to recruit the PIs and design the workplans. Most of the studies, such as the Ecological Monitoring, Socioeconomic Monitoring, Economic Valuation Study, Cultural Roles Study, Visualization, Ecotourism Effects of Spawning Fish, and the Inter-Reefal Habitats Study began data collection in 2006 or 2007. Duringdatacollection and analysis, the coordinator continuedto engagestakeholderswith updates on the research. In order to better discuss and consider the implications of the research results, in 2007, the coordinator and the MMAS Core Team arranged a S2A Workshop in Belize City. This workshop had two objectives: (1) to bring the Belizean conservation community up-to-date on the development of the MMAS studies and complement the earlier one-on-one discussions and (2) to engage this community in planning MMAS S2A impacts. The workshop was well attended by NGO representatives, but few representatives of government agencies or user groups(e.g., fishers) attended although invited. The workshop engendered two responses. First, many were happy that CI was making a serious effect to link science to policy, a recognized area of weakness for Belize research. Second, many were surprised by the extent of MMAS work in the country and disturbed that they had not been consulted earlier. Stakeholders felt that MMAS was attempting to post-facto devise S2A applications for studies that had been designed without sufficient coordination with and input from Belizean NGOs. Most strongly, representatives from BAS and TIDE felt that their organizations only learned the full range of MMAS work in MMAs that they managed at the workshop itself, and that earlier consultation could have allowed synthesis of MMAS and their NGO s ecological monitoring efforts. It appeared that the one-on-one discussions with the core MMAS team, the coordinator, and the PIs had not been effective in creating an extensive feeling of buy-in in this instance. Capacity building efforts varied greatly depending on the study and the personal initiative of the associated PI. For example, during his visits to Belize the Ecological Monitoring study PI trained individuals in ecological monitoring and survey techniques, taught two resource management and statistical training courses, and mentored a particularly promising Belizean student who later used these skills to become the co-pi for the Cross- Shelf Habitat Linkages study, and the student eventually secured a scholarship to attend Boston University for a Master s degree. The capacity building led by the PI thus had multiplier effects, as those that received training were able to go back to their own organizations and share insights with others. MMAS Science-to-Action: Translation and Dissemination As results emerged, they were shared with managers and policymakers through a variety of mechanisms in order to ensure they influenced policy. For the first studies with results, the coordinator together with the PIs and MMAS Core Team personally discussed results with stakeholders during one-on-one meetings with NGOs and government agencies,

146 J. G. Hastings et al. particularly the Department of Fisheries. PIs also discussed results during fieldwork and post-fieldwork visits. In 2007 and 2008, the coordinator was deeply involved in Belizean marine governance, sitting on the National Protected Areas Commission, acting as an advisor to the Belize Fishermen Cooperative Association, and professionally connected to high-level Belizean policymakers. During participation in these meetings, he was occasionally able to discuss MMAS studies results. Further, he was involved in working on the creation of APAMO, and used this opportunity to try to build a partnership with this organization. He also oversaw the production of MMAS newsletters that showcased MMAS emerging results in an understandable, engaging format. However, in 2009, the coordinator became occupied with running a private business and moved out of his roles on councils and management boards, leading to a drop in MMAS result dissemination. An NGO employee states: [The coordinator] was a member of APAMO board. [I] heard about MMAS from [the coordinator], heard lead investigators were coming to Belize and that the lead investigators wanted participation. [The coordinator] would indicate at board meetings that the project was ongoing and provide some feedback. But he is no longer on APAMO board as of 2009.... I really do not recall as to what the whole project is about at this point. There is a lack of information generally. Interviews in 2009 and 2010 indicated that awareness of MMAS studies in Belize was low. Many community members interviewed knew little about the MMAS studies; some were unaware that they were even taking place. The Ecological Monitoring study was visible due to its capacity building efforts; other studies were slightly visible either because community members were surveyed or because the PI had a history in the community. Stakeholders generally viewed the studies as being timely and relevant to the Belizean management and policy context. The Department of Fisheries, which had required yearly permit applications from the PIs in order to continue the research, was able to stay informed as to study progress. Other managers and policymakers in Belize, however, were generally unsatisfied with the level of information sharing about, and input into, the studies during the design, implementation, and dissemination process. S2A efforts improved considerably beginningin2009whenmoreresultswere released and when responsibility of Belize coordinator was transferred to a staff member of the Healthy Reefs for Healthy People Initiative. With guidance from the MMAS Core Team, the new coordinator developed a S2A Matrix for Belize to guide plans for translating and disseminating results to influence conservation. In the S2A Matrix, the new coordinator distilled key messages for each of the MMAS studies, identified relevant policy and management issues, appropriate target audiences for the messages, and then determined the most appropriate materials (e.g., booklets, posters, educational videos, newspaper articles, radio blurbs, and television programs) and mechanisms for dissemination to influence existing and planned conservation strategies. As in the other MMAS regions, the S2A matrix was used as a framework to plan, and repeated discussions were held among the new coordinator, stakeholders, PIs, and the core MMAS team to refine plans. Most of the dissemination efforts involved holding small group or one-on-one meetings with policymakers to insert results into policy and management efforts as noted in the next section. However, in order to ensure more widespread awareness, the new

MMAS in Belize 147 coordinator also organized a series of workshops with MMA managers to discuss S2A applications. In February of 2010, she organized a large stakeholder meeting where the final results of MMAS studies were disseminated to a large audience of governmental, NGO, and local community representatives. There were also several smaller, more targeted S2A workshops. In April of 2010, the new coordinator organized an S2A workshop where stakeholders worked through key messages coming out of studies and discussed how these messages could be disseminated. This workshop was attended by the coordinator of APAMO, several Fisheries officers, WCS, several independent consultants, and some PIs. In July 2010, the new coordinator organized a workshop with the Ministry of Fisheries. Using the results of the Ecological Monitoring study and the Enforcement Chain Analysis, she emphasized the need for a greater emphasis on enforcement and enforcement training. These workshops helped narrow the information gap that had existed about the MMAS studies results (see Table 2 for study results). MMAS Conservation Impacts: Policy and Management Outcomes through 2014 Contributed to Zoning Plans and No-Take Areas for the South Water Caye Marine Reserve and Sapodilla Cayes Marine Reserve. When in Belize performing their MMAS projects, several PIs took the initiative to feed their data into ongoing MMA zoning efforts. The baseline data from the Ecological Monitoring study was incorporated into the zoning and management plan for the Sapodilla Cayes (SEA Belize 2010). A government employee explains: Because of work that [the PIs] team was doing, they could identify pristine habitats for the preservation zone [the PIs] work identified good habitats for no-take zone in concert with work of other scientists. Now it is 5% preservation zone and located in the north. Just a couple of days ago, the demarcation and enforcement of this preservation zone went into effect. The Inter-reefal Habitats study, in concert with data from the Smithsonian on sponges and tunicates, helped to show that Pelican Caye was an area of endemism and worthy of protection. These results contributed to a new no-take zone around Pelican Caye in the South Water Caye Marine Reserve. Contributed Someday is Now Campaign and Mesoamerican Reef Report Card. In November 2010, the Belize Reef Summit entitled Someday is Now! Save our Reef, Demand a Plan took place (San Pedro Sun News 2010). Well attended by conservationists, high-level Belize policymakers, members of the media, and others, this summit was intended to draw attention to the state of Belize s natural environment and motivate stakeholders across Belize to work to protect their marine resources by developing a coastal management plan. The new coordinator and one of the MMAS project PIs attended, and discussed results from MMAS to motivate action. Results from MMAS were also presented through a short video produced by CAVU (Clear Altitude Vision Unlimited) in collaboration with MMAS. The video highlights the ecological and socioeconomic value of Belize s marine resources drawing in part on MMAS results. Results from various MMAS studies were further used to contribute to the Mesoamerican Reef Report Card, which was also presented at the summit (www.healthyreefs.org/cms/report-cards/). The Report Card is the most widely recognized measure of reef health in the region.

148 J. G. Hastings et al. Table 2 Belize MMAS studies final results Topics of research (PI) Core Ecological Monitoring (Shank). Core Socioeconomic and Governance Monitoring (Haylock/Catzim) Core Cultural Roles Monitoring (Palacio) Main results (abstracted from final study reports) The MMAs had a minimal effect on the enhancement of fish assemblages and little or no effect on the state of reef bethos. More enforcement, increases in size and representativeness of fully protected zones needed. Majority of respondents across communities did not link a change in economic or health status to MMAs. Commercial fishers linked negative economic outcomes to establishment of MMAs, only communities with opportunities for tourism linked positive economic outcomes to establishment of MMAs. Establishment of MMAs is linked to a change in marine resource patterns, but positive impact from the rules is nullified due to an increase in fishers, small no-take zones, and largely inadequate patrolling. Marine management bodies lead to greater environmental awareness and knowledge. Acceptance of marine resource management is related to the level of economic reliance of communities on marine resources. Economic livelihood needs drive resource users to employ unsustainable practices. None of the four communities report significant impacts from the establishment of the Laughing Bird or Gladden Spit MMAs. All four communities have been affected significantly by the development of the leisure-tourism industry; by the development (or lack) of infrastructure such as roads; by the trends in labor, alternatives such as timber and fruit; and by in-migration from neighboring countries. (Continued on next page)

MMAS in Belize 149 Table 2 Belize MMAS studies final results (Continued) Topics of research (PI) Main results (abstracted from final study reports) Core Economic Valuation (Hargreaves- Allen) Visualization and Spatial Analysis (Gopal) Cross-Shelf Habitat Linkages (Romero/ Ricketts) Inter-Reefal Habitats (Lobel) Enforcement Chain Analysis (Neal) As of 2007, Gladden Spit and Silk Cayes Marine Reserve was worth $1.3 million per year and have a net present value of US$13 29 million over 25 years. Modeling software developed. All species examined that concentrate as adults in coral reef habitats depended upon sea grass and mangrove at least until reaching a standard length of ca. 15 cm. Furthermore, there is a net shift toward offshore habitat with increased size in all species but L. synagris, which appears to be a lagoon specialist. There is a patchwork of scattered hard bottom oasis habitat that fish use to cross the open sand/silt planes. If these oasis habitats are clustered, they may form an important stepping stone corridor for migration and thus, would be important sites for environmental protection. While functioning mechanisms and agencies that are responsible for patrols and surveillance, detection, arrest/ interception, prosecution, and sentencing exist, efficiency and effectiveness can be significantly improved through effective communication, greater collaboration and more efficient coordination. Enforcement is an expensive process that that has very few immediately tangible results. There is much more illegal activity in MPAs than is being reflected by the number of cases. There needs to be documentation of the enforcement process and proper handling of the documents. There are several pieces of legislation that govern maritime spaces in the country of Belize. There are jurisdictional overlap and gaps that need to be addressed. Every agency has its own approach to the enforcement problem. (Continued on next page)

150 J. G. Hastings et al. Table 2 Belize MMAS studies final results (Continued) Topics of research (PI) Main results (abstracted from final study reports) Cruise Ship Ecological Impacts (McField) Variations in coral cover not consistent with visitor use levels. More highly visited sites have more mortality than controls. More impacts, such as disease, fin marks, etc. seen at highly visited sites. Visitor impacts decreases after snorkeler Conch Genetic Connectivity (Cigliano/ Kilman) education programs. Within queen conch, there is no more genetic variation among locations than would be expected. Conclusion that could be drawn from these findings is that queen conch have a history of gene flow that obscures any demographic discontinuity that might exist today. Larval Dispersal Modeling (Paris-Limouzy) Fish larvae from Glover s Reef spawning aggregation are less dispersed than previously thought. The grouper population that aggregates at the northern cape of Glover s Reef may also be local and needs to be managed accordingly. Ecotourism Effects (Heyman) Impacts of dive ecotourism on spawning aggregations and whale shark behavior is limited. Much of what MMAS was trying to achieve in the 2005 2010 period has been taken up by strong local NGOs such as TIDE, Belize Audubon Society, Programme for Belize, and the Healthy Reefs for Healthy People Initiative. For example, from 2010 until 2014 two more Healthy Reefs report cards have been disseminated, and the data (including those obtained under MMAS funding) contributed to the second Reefs at Risk global assessment. Contributed to Several Codes of Conduct. Data on diving and sound impacts from the Ecotourism Effects on Spawning Fish study was incorporated into a scientific paper (Heyman, Carr, and Lobel 2010) and a Code of Conduct called How to Dive on Spawning Aggregations, developed in partnership with SEA. The Cruise Ship Impacts study results also were used to develop a code of conduct for snorkeling on reefs. From 2010 through 2014 the new coordinator was working with the Belize Tourism Board to turn these Codes of Conduct into regulations and training plans. Training of Belizeans in Coral Reef Monitoring and Statistical Analysis. The Ecological Monitoring study provided substantial capacity building. Fifteen Belizeans were trained in coral reef monitoring and statistical analysis techniques, developing skills for

MMAS in Belize 151 themselves and their organizations. While the University of Belize had a marine biology component, the number of individuals trained in actual field survey techniques and statistical analysis in Belize has historically been low. Thus, the training through Ecological Monitoring study had the potential to create large multiplier effects. A NGO employee says: People working alongside with [the MMAS PI] have been strengthened, [one local Belizean] for instance. Other people at various levels have been trained in certain monitoring techniques. Capacity has been built. [The PI has also organized a statistics course for people in fisheries, NGO community. Major problem in Belize has been doing data collection but then no data analysis; there has never been training in proper data analysis...]. The PI has tried to address many of the gaps in Belize. Built International Collaboration between Boston University and University of Belize. Due to his extensive travel to and expertise with Belize, the MMAS senior PI was able to develop a closer partnership with professionals at UB. The two universities are in discussion to sign a memorandum of understanding (MOU) for enhancing information exchange and personnel and student transfers. The MMAS senior PI also assisted UB in establishing the new Environmental Research Institute (ERI). Since 2010 to 2014, ERI has been growing in capacity and influence. ERI is now the data bank and analytical central clearing house for environmental science generally and for marine management area research in particular, and has led the way in identifying key research questions relevant to Belize s marine resource management needs. Drafting of a Belizean Cabinet Paper. During 2010 the original and the new coordinator drafted a Cabinet paper with key messages from the studies. The paper helped to elevate the issues of coastal management and solutions into an arena of greater importance from 2010 onwards. A NGO employee says: Talks about cabinet paper are in process; they will fold into Reefs for Life initiative. Cabinet paper may cause them (government) to agree to a timeline for the Coastal Zone Plan. It could pass the mangrove regulations, gets their brain started thinking about the protected area bit, increase amounts for targets for no-take zones... Emergent Themes from Belize Several themes emerge through the examination of MMAS in Belize. Program Initiation From a biophysical standpoint, Belize offered the strongest sampling design of any MMAS study area: geographically stratified (onshore offshore, north south) inside and outside of gazetted no-take areas. This kind of design offers the potential to clearly separate geographical from management effects, a major scientific objective. It is also a good way to study coupled human natural factors, such as the effect of remoteness from population centers (decreasing cumulative impacts but also decreasing the cost-effectiveness of fisheries enforcement) on ecosystem health.

152 J. G. Hastings et al. However, with this strength came a great weakness: the imposition of a strong statistical design based only on scientific considerations meant that a major aspect of the basic structure of MMAS in Belize was decided upon by a small group of people from outside of the country. This contributed to a broader perception of little local input into MMAS design in Belize. There was the early 2005 EarthWatch workshop, and there were early one-on-one discussions with selected Belizean organizations after the initial MMAS model had been designed by the Science Advisory Committee (SAC) and the Gordon and Betty Moore Foundation (GBMF). These discussions while well intentioned could not provide full information to the very broad swath of NGOs and other stakeholder groups in Belize. Furthermore, they were often viewed as coming late in the study development process. This lack of a feeling of engagement at the earliest possible stage may have handicapped S2A efforts as it meant that the MMAS studies were not as visible or as relevant to organizations that felt excluded from design input. Networks, Partnerships, and Coalitions MMAS did not succeed in establishing a strong, early partnership with any organization in Belize. The intention with the original Belize coordinator was to leverage his involvement in SEA to a strong partnership. This did not happen, perhaps because but SEA was itself still very young. MMAS tried to partner with MBRS and APAMO. However these, too were young and weak. This left MMAS dependent on PIs and the MMAS Core Team efforts to gain input into the studies and leverage MMAS results. Since many of these individuals were foreign to Belize, efforts were unavoidably itinerant and sporadic. Participation across Scales and the Science Policy Boundary There was a dedicated effort to recruit local scientists as PIs so to enable studies to be accessible speak to Belizean management and science needs. This recruitment suffered somewhat due to the low scientific capacity at UB. PIs engaged in an extended process of discussing the workplans with the MMAS Core Team. Discussions across the science/ policy boundary in Belize during workplan design were less extensive. PIs did work with the original coordinator to craft their studies to speak to management and policy needs. However, the inability of foreign PIs to have regular, in-person contact with Belizean stakeholders meant that they needed to rely exclusively on his input. Several factors hampered engaged participation during the data collection phase of the studies. First, unlike other nodes, there was no obvious iterative, deliberative process for all of the studies into which to feed their results. There was no CI office and no strong national-level association. APAMO had just been established in 2007 and lacked institutional capacity. The MBRS project was under review and floundering. The UB was weak and under-resourced. Thus, for extended periods of time between 2007 and 2010 workshops, feedback on progress was relayed solely through newsletters and one-on-one communications. Second, focusing the studies on multiple MMAs instead of one meant that a larger set of MMA managers needed to be updated and consulted. Third, foreign PI s time in Belize was limited; when they were in Belize, they were focused on collecting and analyzing data as opposed to holding extensive stakeholder discussions. Fourth, the original coordinator had many obligations, and his involvement through a part-time contract was not sufficient. A person that had been paid full time from the beginning of the scientific projects to coordinate S2A efforts in Belize could have been more helpful. This person could have

MMAS in Belize 153 devoted their time to getting out information, keeping people updated, and trying to better tie the science into management decisions. Accountability and the Ability to Learn The experiences of MMAS in Belize show a propensity of CI to learn. In the last phases of MMAS in Belize, CI retooled and hired the second Belize coordinator. This was a positive step as she had both scientific acumen and time to commit to S2A dissemination. The lack of a CI office in Belize meant that there was one less accountability mechanism to give feedback to the MMAS Core Team in the United States; it was difficult for CI to know that stakeholders were unsatisfied with their input into the design of the studies until the large 2007 workshop. Science-to-Action The second coordinator took the lead in knowledge translation. S2A outreach ramped up in 2010 and closed some of the earlier information gaps with Belizean stakeholders. Engaging posters, videos, booklets, and t-shirts, in addition to methods that reached a large audience such as newspapers, radio, and television significantly extended the reach of MMAS study messages. Each of these products was planned through the S2A matrix, and intended to persuade a particular audience and achieve a specific management or policy impact. Assessment Context Belize is a case study in why it is important to understand the institutional context of a country before program initiation. Overall, despite the personal efforts of the core MMAS team, the original coordinator and others, dissemination of scientific results was not as successful as hoped due somewhat to country specific factors. With hindsight, it is clear that the lack of country-wide deliberative processes (combined with no CI office), low scientific capacity at UB, and low cohesiveness of the Belizean NGO sector hindered S2A efforts. If these factors had been considered at the region selection phase, Belize may not have been selected or selected only with much greater on the ground support (a full time coordinator, for example). Looking at Belize since MMAS ended in 2010, the picture that emerges is that of a marine social ecological system still in the process of first organizing its human sector, while growing through a highly heterogeneous recovery from overfishing and successive hurricanes, bleaching events, and outbreaks of coral and marine invertebrate diseases. Some excellent local NGOs have become stronger and a couple of new ones have spun off from the old, but others in key stewardship positions continue to flounder through revolving-door leadership and staffing crises. The Coastal Zone Management Authority Institute has taken hold, but its success in consolidating coastal planning in Belize has been severely hampered by a still woefully inadequate capacity, and by political brinksmanship that still allows poorly conceived mega-developments to move forward under the lubrication of absurdly incompetent environmental impact assessments. In hindsight, it is now clear how externally funded projects such as MMAS can be hampered by home-grown constraints on the free exchange of information and collaboration across geographical and political divides, even within a tiny country like Belize. Internecine power dynamics among individuals in government, NGO s, and foreign

154 J. G. Hastings et al. development interests contribute to a continuing air of instability in Belize s national environmental and economic vision. However, in the last few years a constellation of bright spots have emerged on the Belizean coastal environmental scene. A Placencia-based coral reef rehabilitation effort, Fragments of Hope, has demonstrated the feasibility of artificially restoring elkhorn and staghorn coral to the Laughing Bird Caye National Monument. Recently, major funding has appeared to subsidize fishery reform in Belize, instituting territorial user rightsbased fisheries (TURFs). In some ways, in the years since MMAS ended, Belize has shown that despite obstacles, there is still hope for coastal communities throughout the world tropics. Acknowledgments Some material in this article is used in an article in press for Conservation and Society, entitled J. Hastings, Developing participation in large-scale conservation: Lessons from Belize and Panama. [Copyright Medknow Publications]. References Arauz, R., D. Suman, L.E. Marin, H. Zambrano, M. Bigue, M. Pardo, and O. R. Rosero. 2010. An analysis of the law enforcement chain in the Eastern Tropical Pacific Seascape. WildAid. http://ww.wildaid.org/sites/default/files/resources/wildaid%20etps%20assessment% 202010_FInal.pdf (accessed September 1, 2013). Burke, L. M., K. Reytar, M. Spalding, and A. Perry. 2011. Reefs at risk revisited. Washington, DC: World Resources Institute. http://www.wri.org/publication/reefs-risk-revisited Heyman, W. D., L. M. Carr, and P. S. Lobel. 2010. Diver ecotourism and disturbance to reef fish spawning aggregations: It is better to be disturbed than to be dead. Marine Ecology Progress Series 419: 201 210. McField, M., and Nadia Bood. 2007. Our reef in peril Can we use it without abusing it? In Taking stock: Belize at 25 years of independence, ed. J. J. Awe, 171 171. Benque Viejo del Carmen, Belize: Cubola Productions. Perez, A. 2009. Fisheries management at the tri-national border between Belize, Guatemala and Honduras. Marine Policy 33(2):195 200. San Pedro Sun News. 2010. Belize Reef Summit 2010 Someday is NOW! November 18. http:// www.sanpedrosun.com/environment/2010/11/18/belize-reef-summit-2010-someday-is-now/ SEA Belize. 2010. Sapodilla Cayes Marine Reserve management plan 2011 2016. Placencia: Wildtracks. http://docs.lib.noaa.gov/noaa_documents/coris/sapodilla-cayes-mgmt-plan_2011-16.pdf