Puerto Rico and the sea = [Puerto Rico y el mar]--an action program for marine affairs-- : a report

[From the U.S. Government Printing Office, www.gpo.gov]

SEP 16 1974

COASTAL ZONE
INFORraTioN cENrER

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771

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PREPRINT
(Sul-ject to
final editing)

PUERTO RICO AND THE SEA

ACTION PROGRAM FOR MARINE AFFAIRS--

A Report to the Governor

US Department of Commerce
w0AA Coastal Services Center Library.
2234 South Hobson Avenue
Charlestoi:4 SC 29405-2413
L

San Juan

1972

PUERTO RICO AND THE SEA
Old San Juan, Puerto Rico

October 19, 1972

The Honorable Luis A. Ferr6
Governor, Commonwealth of Puerto Rico
La Fortaleza
San Juan, Puerto Rico

Dear Governor:

In response to your request earlier this year, we are pleased to
submit our recommendations to you for an action program for marine
affairs for Puerto Rico. The seas that bound the Island., through
their-resources and-their interactions with the coastal lands, give
an increased dimension to Puerto Rico. Prudently used, this new
-dimension will allow Puerto Rico to expand the quality of life of
@its citizens far beyond what is seemingly allowed by its s'mall land
mass.

In writing this progtam,,about one.hundred marine-oriented citizens
from many enterprises.worked together on a voluntary basis. Most
of them served on the six Subcommittees, whose findings and recom--
mendations form the basis for "Puerto Rico and the Sea." We want
you to know how very freely these individuals gave their time and
facilities to ensure the worth of this report.

The members of the Parent Committee and its Subcommittees would be
honored to again serve you and the Commonwealth.

Very respectfully submitted
by the Parent Committee,

Rafael Alonso Alonso Gordon K. LewiT -i@_
William S. Bel 1_er-,@4/,Chairman fflS_6 Jaro Mayda
Roberto Bouret Cruz A. Matos
Miguel A. Casel.@a Jack Noble
-@9 1@@
M&ximo Cerame-VIas
Rafael Pico.,,
Milton F. Rifia
Amador Cobas /71(`11
Juan M. Garcia/ Passa acquak', Victor S&nchez
Thomas Q. Haydon.Navarro Lloyd E. Slater
Lawrence W. Hill"*1@X__-Z Jos6 J. Villamil
Rudolph R. Kauffmann Frank Wadsworth

PUERTO RICO Y EL MAR
Viejo San Juan, Puerto Rico

Octubre 19, 1972

Honorable Gobernador Luis A. Ferre'
La Fortaleza
San Juan, Puerto Rico

Estimadb Gobernadot Ferre':

Respondiendo-a: su petici6n del 2-de marzo Tel 1972, nos complacemos
en someter nuestras recomendaciones para un programa de acci6n para
los recursos marinos de Puerto Rico. Los mares que -nos rodean con
sus recursos y su interaccio'n con los terrenos costaneros, le pro-
veen una dimensio'n adicional a nuestra Isla. Utilizada prudente-
mente, esta dimensi*6n le provee .rd a Puerto Rico la oportunidad-de
mejorar la calidad de la vida de sus ciudadanos, m6s alld-de.lo
que le permitiria'su limitada extension geogrd.fica.

Alrededor de cien ciudadanos interesados en asuntos marinos partici@
paron voluntariamente en la*redaccio'n de'este documento. Repres'en@
tantes de diversas profesiones y ocupaciones trabajaron en los seis
Sub-comit6s cuyos hallazgos y recomendaciones Integran el informe
de "Puerto Rico y el Mar"@ Estos ciudadanos nos brindaron gratuita-
mente su tiempo y sus talentos para asegurar el 6xito y la validez
de este informe.

Los miembros del Comite' Tim6n y de los Sub-comit6s nos sentiriamos
honrados de servirle a Vd. y a Puerto Rico nuevamente.

Muy respetuosamente sometida
por el Comit6 Tim6n,

Rafael Alonso Alonso Gordon K. Lewis
William S. Beller, Chairman Jaro Mayda
Roberto Bouret Cruz A. Matos
Miguel A. Casellas Jack Noble
M&ximo Cerame-Vivas Rafael Pic6
Amador Cobas Milton F. RCia
Juan M. Garcia Passalacqua Victor Sdnchez
Thomas Q. Haydon Navarro Lloyd E. Slater
Lawrence W. Hill Jos6 J. Villamil
Rudolph R. Kauffmann Frank Wadsworth

C 0 N T E N T S

Letter of Transmittal

Carta al Gobernador

Foreword . . . . . . . . . . . . . . . . . . . . . . . . 7

Acknowledgments . . . . . . . . . . . . . . . . . . . . 10

Pr6logo . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14.1

OVERVIEW--REPORT OF THE PARENT COMMITTEE . . . . . . . . . . . 15

Introduction . . . . . . . . . . . . . . . . . . . . . . 15
Coastal Zone Resources . . . . . . . . . . . . . . . . . . 17
Land Use and Development . . . . . . . . . . . . . . 17
Protection of Resources . . . . . . . . . . . . . . . 22
Recreation . . . . . . . . . . . . . . . . . . . . . . . . 27
Research and Development . . . . . . . . . . . . . . . . . 30
Characterization of the Marine Environment . . . . . 30
Waste Dumping . . . . . . . . . . . . . . . . . . . . 32
Data Bank . . . . . . . . . . . . . . . . . . . . . . 33
Toward a Healthy Research Program . . . . . . . . . . 34
Institutional Arrangements . . . . . . . . . . . . . . . . 36
Education and.Information . . . . . . . . . . . . . . . . 38
Role of Puerto Rico in the Caribbean . . . . . . ... . . . 42
For the Future . . . . . . . . . . . ... . . . . . . . . . 45

RESUMEN--INFORME DEL COMITE TIMON . . . . . . . . . . . . . . . 45.1
Introducci6n . . . . . . . . . . . . . . . . . . . . . . . 45.1
Recursos Costaneros . . . . . . . . . 45.3
Uso y Desarrollo del Te. 45.4
rreno . . . . . .
Protecci6n de Recursos . . . . . . . . . . 45.9
Recreaci6n . . . . . . . . . .. . . . . . . . . . . . . . . 45.14
Investigaci6n y Desarrollo . .. . . . . . . . . . . . . . . 45.16
Caracterizaci6n del Ambiente, Marino . . . . . . . . . 45.17
Descargas al Mar . . . .. . . . . . . . . . . . . . . 45.19
Banco de, Datos . . . . . . . . . . . . . . . . . . . 45.20
Hacia un Programa d! Investigacion . . . . . . . . . 45.22
Arreglos Institucionales., . . . . . . . . . . . . . . . . 45.24
Educaci6n e Informaci6n . . . . . . . * . . . . . . . . 45.27
El Rol de Puerto Rico en el Caribe . . . . . . . . . . . . 45.31
Para el Futuro . . . . . ... . . . . . . . . . . . . . . . 45.35

SECTION 1--REPORT OF SUBCO@UqITTEE ON LIVING RESOURCES . . . . 46

Introduction . . . . . . . . . . . . . . . . . . . . . . . 46
Protection of Living Resources . . . . . . . . . . . . . . 48
Coral Reefs and Mangrove Areas . . . . . . . . . . 49
Aquaculture Research, Development and Training. 56
Aquatic Life . . . . . . . . . . . . . . . . . . 57
Drugs and Pharmaceuticals . . . . . . . . . . . . . . 61
Fishing as a Commercial Enterprise . . . . . . . . . . . . 64
Four-Year Program For Fishery Vessels . . . . . . . . 67
Game Fish . . . . . . . . ... . . . . . . . . . . . . . . 68
Appendix. . o . . . . . . . . . . . o . . . . . . . . . . 74
Legislative Proposal No. 1 . . . . . . . . . . . . . . . . 75
Exposition of Motives . .. . . . . . . . . . . . . o . 75
Location of Sanctuaries . . . . . . . . . . . . . . . 77
Legislative Proposal No. 2 . . . . . . . j ... . . . . . . 82
Legislative Proposal No. 3 . . . . . . . . . . . . . . . . 83
Exposici6n de Motivos . . . . . . . . . . . . . . . . . . 84
Legislative Proposal No. 4 . . . o . . . . . . . . . . . o 87
Exposici6n de Motivos . . . . . . . . . . . . . . . . . o 87
References . . . . . . . ... . . . . . . . . e . . . . . . 92

SECTION 2--REPORT OF SUBCOMMITTEE ON RECREATION . . . . . . . . 95

Introduction . . . . . . . . . . . . . . . . . . . . . ... 95
Management . . . o . . . . . . . . o . . . . . . . . . . . 95
Facilities and Development . . . . . . . . ... . . . . . . 98
Illustration..---San Juan-Luquillo Inland Waterway . . . . . 100
Illustration@--Isla de Cabras Causeway Canal . . . . . . . 110
Education and Culture . . . o . o . . . . . . . . . . 112
Appendix A . . . . . . . . . . . . . . . . o . . . . . . . 114
Illustration--Pumping Station Proposal . . . . . . . . . . 115

SECTION 3--REPORT OF SUBCOMMITTEE ON COASTAL ZONE MANAGEMENT 117

Introduction . . . . . . . . . . . . . . . .. . . . . . . . 117
Illustration--Coastal Projects-1972 . . . . . . . . . . . 119
Access to Public Shorelands . . . . . . . . . . . . . . . 126
Extent of Public Ownership Rights in Shorefront Areas 129
Exclusion of Squatters from Maritime Zone . . . . . . 134
Beach Access . . . . . . . . . . . . . . . . . . . . 136
Access Rights Following Artificial Shoreline Changes 136
Land Use Guidance . . . . . . I. . . . . . . . . . . . . . 142
Protection of Critical Environmental Areas . . . . . 146
Protection of Areas Suited for Intensive Use . . . . 149

Regulatory 'Measures . . . ... . . . . . . . .. . . . . 150
Special Problems . . . . . . . . . . . . . 0 . . 10 . 156
Protection of Coastal Waters . . . . . . . . . . . . . . . 159
Water Quality Standards . . . . . . . . . . . . . . . 161
Protection of Coral and Underwater Life . . . . . . . 164
Protection of Ancient Shipwrecks . . . . . . . . . . 165
Public Information and Involvement . . . . . . . . . . . . 166
Information Mechanisms . . . . . . . . . . . . . . . 166
Public Education and Awareness .. . . . . . . . . . . 168
New Institutions for Public Involvement. 170

SECTION 4--REPORT OF SUBCOMMITTEE ON RESEARCH AND DEVELOPMENT. 174

Introduction . . . . . . . . . . ... . . . . . . . . . . . 174
Major Problem Areas . . . . . . . . . . . . . 178
Environmental Characterization . . . . . . . . . . . i79
Marine Biological Inventory of the Shelf . . . . . . 180
Comprehensive Current Study. . . . . . . . . . . 181
Beach Erosion Due to Sand Extraction . . . . . . 182
Pollution of the Marine Environment . . . . . . . . . 183
Ocean Resources Data Bank . . . . . . . . . . . . . . 188
Education and Training . . . . . . . . . . . . . . . 191
Other Research and Development Needs . . . . . . . . . . . 192
Appendix A--A'Special Report on Sand Resources . . . . . . 195
Beach Erosion Problem . . . . . . . . . . . . . . . . 196
Marine Sources of Sand . . . . . . ' * * 198
a*d'Rela*ted'
Appendix B--A Special Report on Energy n
Problems . . . . . . .... . . . . . . . . . . . 205
Appendix C--A Special Report on Manpower, Education and
Training . . . . . . . . . . . . . . . . . . . 209

SECTION 5--REPORT OF SUBCOMMITTEE ON INSTITUTIONAL
ARRANGEMENTS . . . . . . . . . . . . . . . .. . . . . 214

Introduction . . . . . . . . . ... o . . . . . . . . . . . . 214
Conceptual Considerations . . .... . . . . . . . . . . . . 217
Social Awareness, Information and Education . . . . . . . 225
The Policy Formulation Process . . . . . 0 . . . . . . . . 231
Intelligence or Research . . . . . . . . . . . . . . . 237
Development, Use, Regulati,on and Conservation . . . . . . 240
The Department of Natural Resources . . . . . . . . . . . 242
Other Issues . . . . . . . . . . . . o . . o . . . . . . . 244
Proceedings and Acknowledgments . . . . . . . . . . . 248

SECTION 6--REPORT OF SUBCOMMITTEE ON THE ROLE OF PUERTO RICO
IN THE CARIBBEAN AREA .. . . . . . . . . . . . . . . 250
Introduction . . . . . . . . . . . . . . . . . . . . . . . 250
The Present Character of the Caribbean Area . . . . . . . 250
Political Balkanization . . . . . . . 251
Inequity of Political and Constitutionai D*eveiopment 251
Linguistic Divisions . . . . . . . . . . . . . . . . 252
Pluralistic Societies . . . . . . . . . . . . . . . . 252
Plantation Economies . . . . . . . . . . . . . . . . 253
The Role of Puerto Rico in the Caribbean Area . . . . . . 256
Puerto Rico Can Teach and Learn . . ... . . . . . . . 257
Informal and Functional Cooperation . . . . . . . . . 260
A Puerto Rican International Personality . . . . . . 261
Serial Recommendations . . . . . . . . . . . . . . . . . . 263
Education . . . . . . . . . . . . . . . . . . . . . . 263
An Office for Caribbean Affairs . . . . . . . . . . . 266
Local Studies . . . . . . . . . . . 0 . q . . . . 266
Communications . . . . . . . ..... . . . . . . . . . 270
Transportation . . ... . . . . . . . . . . . . . . . 272
Interchange of Conferences . . . . . . . . . ... 0 . 273
Publications . . . . . . . . . . . . . . . . . . . . 276
Information Clearing House . . . . . . . . . . . . ... 277
References . . . . . . . . . . . . . . * . . . . . . . . . 281
Appendix A--Puerto Rico Law 92 (Articles 4, 5 and 6). 282
Appendix B--Partial List of Agencies and Professional
Organizations That Have Ties Throughout the
Caribbean Area . . . . . . . . . o . . . . . . 286

Committee Members . . . . ... . . . . . . . . . . . . . . . . 290

Index

Table of illustrations

San Juan-Luquillo Inland Waterway . . . . . . . . . . . . 100
Isla de Cabras Causeway Canal . . . . . . . . . . . . . . 110
Pumping Station Proposal. . o . . . . . . . . . . . . 115
Coastal Projects-1972 . . . . . . . ... . . . . . . . . . 119

FOREWORD

"Puerto Rico and the Sea" is a c*itiz en's report on marine

affairs to Governor Luis A. Ferre'. It prescribes an action

program for the Commonwealth with the aim of enlarging the well-

being of Puerto Rico by taking prudent advantage of its great

natural resource--the sea.

This report results from the direct request of Governor Ferr6

who asked that he "might have the advantage of seeing recommenda-

tions from an informed cross-section of our citizenry." Noting

that "the future of Puerto Rico lies more and more in the.resources

the sea can bring us," the Governor said "we must plan to use these

resources so they bring not environmental frustation, but more jobs,

food and pleasure to our citizens."

About one hundred citizens of Puerto Rico participated in "Puerto

Rico and the Sea"; most of them actively worked on the committees.

Many of these people have for years, worked on matters involving the

sea and its meaning to Puerto Rico. These participants included

scientists, planners, lawyers, journalists, bankers, students, build-

ers, governmental officials, and academicians.

Although these people were in the main attached to different

organizations in Puerto Rico, they contributed solely as interested

citizens having special and needed knowled"e. This way of pro-

ce e3ing permitted them to base their discussions and recommendations

on the touchstone of what is best for Puerto Rico. It also led

to a balanced approach to marine matters, where the need for devel-

oping resources joined with the simultaneous need to conserve them.

This report was organized and written in four months. it could

not have been done in this short time if entirely new knowledge had

been sought. The philosophy was that many citizens of Puerto Rico

know what the marine opportunities and problems are. In addition,

decades of studies exist on.marine problems in Puerto Rico, many

of whose writers would help with the report. It was further be-

lieved that if Puerto Rico waited until all relevant s tudies on

marine matters were in hand, by that time many of the questions

would be academic. A time for decision-making must come. it

was thought to be now! With this belief, the participants in

"'Puerto Rico and the Sea" strove to make viable recommendations

for a coherent marine affairs program.

Just as all elements of life in the Island are affected by

the sea, so are local programs affected by those of the Federal

Government, other Caribbean governments, and the business and

university community. Thus, this report calls for actions by

any agency, wherever located, that could most appropriately

perform them.

How work was done

The research and writing for "Puerto Rico and the Sea" was

done mainly by six Subcommittees,which had assignments in major

fields of ma rine opportunities:

- Living Resources

- Recreation

*Coastal Zone Management

Research and Development

Institutional Arrangements

Role of Puerto Rico
in the Caribbean Area

The Institutional Arrangements Subcommittee was created to allow

the other Subcommittees to concentrate on their primary f ields

of interest.

Each Subcommittee met on th e average of once a week for the

four-month period, defining issues, hearing witnesses, and arriving

at tentative and ultimately final conclusions.

The chairmen and vice-chairmen of each of the Subcommittees

were members of the Parent Committee, which also included sever-

al additional members. The Parent Committee acted as the steering

and integrating committee for the Subcommittees. It met several

times at all-day and two-day sessions during the course of the

project to make its suggestions to th e Subcommittees. However,

each Subcommittee, when writing its own report, had only to con-

sider the advice of the Parent Committee. It is remarkable that

despite wide divergencies of interest among the participants on

the project, the advice of the Parent Committee was accepted by

all Subcommittees.

A few redundant or overlapping recommendations may be no-

ticed, which the Parent Committee and Subcommittees felt were

signs of strength and reinforcement, and not worth sacrificing

in their entirety on the altar of brevity. In fact, were there

no redundancies, the fear might have been expressed that the com-

mittees were not aware of the interrelationships that exist in ma-

rine affairs on a small ocean island.

In its own report, the Parent Committee has attempted to

highlight and summarize those recommendations it believes have

the most significance for PuertoRico. Nevertheless, the choices

were difficult to make. All recommendations are believed important,

and the reader is urged to pursue them in this light.

The Parent Committee for "Puerto Rico and the Sea" was organ-

ized, and the project directed1by William S. Beller, on loan to

Puerto Rico from the U. S. Environmental Protection Agency.

ACKNOWLEDGMENTS

Surely there must be a fitting way the Parent Committee can

publicly show the gratitude it has toward the many people who

helped create this report. Yet the brief words that follow are

the only means we know. We ask those who have helped us,solve

our past problems to understand our present one; and know despite

what is left unsaid that even with more'words we could not possibl.y

relate o- deep gratefulness.

We are indeed indebted to the members of all of the Subcommit-

tees, and to the many or ganizations who donated the time of their

personnel and the use of facilities. Please look at the List of

Committee Members and their affiliations to get an idea of the

broad support we freely received from Government, industry and the

university community.

We want particularly to thank Governor Luis A. Ferre' who re-

quested the project, and then gave us without pause the encouragement

and facilities we needed to allow us to meet every deadline and

complete the report on schedule.

We appreciate the cooperation of William D. Ruckelshaus, Admin-

istrator of the U.S. Environmental Protection Agency, for his coop-

eration as well as assignment of personnel.

We want to say how very much we were helped by Lawrence Duffy,

Assistant to the Governor. He gave us good advice as well as

total assistance and support. Every request that we made to him,

without exception, was filled graciously and in timely fashion.

Cruz A. Matos, Executive Director of the Environmental Quality

Board and Lloyd E. Slater, Director of the Institute of Social

Technology, were instrumental in launching "Puerto Rico and the

Sea," and unstintingly gave of themselves and their organizations

in fashioning the final report.

The project could not have proceeded were it not for the

Mining Commission, and Pedro Gelabert, its Executive Secretary.

He graciously made certain that his office gave us whatever aid

we sought.

Nor could we have operated without th.e continuing help of

Fomento, and particularly Manuel A. Casiano, the Administrator.

Other Fomento personnel who assisted us beyond any call of duty

were Gerardo E. Maldonado, Rudolph Kauffmann, Adolfo Mendez R'ios

and Miguel Hern&-ndez.

In what sequence do we name those who have helped us? Certainly

the Governor's Washington office, through its Administrator, Luis

Guinot, Jr. greatly encouraged the start of the project, and aided

us with valued advice and help from the Washington vantage point.

Staff members Gilda M. Iriarte and Richard Falknor were in c onstant

comm unication with our staff.

We must also thank Resident Commissioner Jorge Luis CO'rdova

Diaz, who personnally and through his off ice assisted the project.

Other individuals who deserve special mention for their con-

tribution of help and facilities include M&ximo Cerame-Vivas,

Thomas Q. Haydon, and Rafael Benitez Carle who furnished the

extraordinarily good service of the Hotel El Convento which housed'

our offices. In addition, we want to thank Manuel A. Martinez

Suarez, Chief of Transportation and Wilfredo Morales Diaz, Assistant

Deputy to the Governor, who with great understanding and considera-

tion went considerably out of his way on many occasions to get us

the facilities and supplies we needed. We want to tell Ernie Potvin

of the Creative Group of our appreciation for his artistic contri-

butions. We want to thank Luis Morera for his help on several diffi-

cult legal questions.

Staff

Margarita Gandl'a as Project Coordinator was intensely valuable

for her ideas, enthusiasm, knowledge of Puerto Rico and boundless

energy. Without a doubt, her fine work enabled us more easily to

fit the pieces of the project together at its conclusion.

Maria Elena Mat'os L6pez, who was hired as the Executive

Secretary became the Office.Manager and expediter, assumed half

a dozen other duties, and.accomplished them all in exceptionally

good fashion although heaven knows how.

The report was edited by Irma Gual Rexach and Annette Biscombe

de RamirezArellano, and they also translated into Spanish the

introductory material as well as the Parent Committee chapter

under impossibly short deadlines. We wish -to praise them loudly

and publicly. Annette Biscombe also created the cover of the

Preprint.

We want to thank our summer interns. And lastly we indeed

appreciate the work of Pamela Toro and Pat Cornelison, who along

with the entire staff worked harder than anyone has a right to

expect.

PROLOGO

"Puerto Rico y el Mar" es un informe sobre asuntos marinos

sometido,al Gobernador Luis A. Ferre' por un grupo de ciudadanos.

El informe recomienda un programa de acci6n, para Puerto Rico

con el propo'sito de mejora r la calidad de la vida en nuestra Isla

utilizando prudentemente su gran recurso natural el mar.

El informe surgio' de la petici6n del Gobernador Ferr6, quien

solicit6 "la oportunidad de obtener las recomendaciones de un'

sector informado de nuestra ciudadania". Sefialando que "el futuro

de Puerto Rico depende cada vez mds en los recursos que el mar nos

-pueda aportar", el Gobernador in dic6 que "debemos planificar el uso

de esto.s recursos, de tal manera que su explotaci6n no sea detri-

mental para nuestro ambiente, sino que sea proveedora de mas empleos,

alimentos, y una vida mAs placentera para nuestros ciudadanos".

Alrededor de cien de nuestros ciudadanos participaron en el

proyecto "Puerto Rico y el Mar"; pasi todos trabajaron activamente

en los diversos comite's. Muchas de estas personas tienen una, vasta

experiencia trabajando en asuntos xelacionados,con el mar y su Sig-

nificado para Puerto Rico. Ej grupo de participantes incluy6 cien-

tificos, planificadores, abogados, periodistas, banqueros, estudiantes,

constructores, oficiales gubernamentales y acad6micos.

14.1

Aunque estas personas proven-lan de distintas organizaciones

locales, todos partic:,-paron finicamente como ciudadanos preocupados

e informado s contribuyendo gratuitamente sus conociment6s y destrezas

especiales. Esta manera desinteresada de proceder permiti6 que sus

discusiones y recomendaciones pudieran basarse en el criterio de lo

que mejor conviene a Puerto Rico. Este procedimiento tar@bi6n los

llev6 hacia un enfoque equilibrado de los recursos marinos, donde

la necesidad de desarrollar los recursos @a simultaneamente ligada

a la urgencia de conservarlos.

La organizacio'n y redaccio'n de este informe tomo' cuatro.meses.

Esto no hubiese sido posible'en tan corto plazo si hubi4semos tenido

que recopilar conocimientos totalmente nuevos. Se parti6 de la

premisa de que muchos ciudadanos de Puerto Rico conocian los problemas

y las oportunidades en torno a los recursos marinos. Ademds, ya se

habian llevado a cabo muchos estudios sobre problemas marinos en

Puerto Rico y sus autores participarian en la preparacio'n del informe.

Se consider6 tambie'n que si Puerto Rico tuviese que esperar hasta

que se hicieran todos los estudios pertinentes antes de tomar medidas,

muchos. de los problemas se tornarian en consideraciones puramente

acade'micas. Se concluyo' que la .h,ora de tomar decisiones ya ha llegado.

Con e'sto en mente, los participantes de 'Tuerto Rico y el Mar" tra-

taron de formular recomendaciones factibles para un programa coherente

de asuntbs marinos.

14.2

Del mismo modo en que todos los aspectos de la vida de nuestra

Isla son a.fectados por el mar, los programas locales tambie'n se

ven afectados por los programas del Gobierno Federal, por los de
otros gob.iernos del Caribe, por los del sector comercial y los de la*

comunidad universitaria. Por lo tanto, el informe recomienda acciones

por parte de cualquier agencia que pueda ejecutarlas con mayor efec-

tividad, no importa donde est6 ubicada.

Preparaci6n del Informe

La investigacio'n y redacci6n de "Puerto Rico Y el Mar" fue

llevada a cabo principalmente por seis sub-comit6s los cuales abor-

daron diferentes temas en el drea de asuntos marinos:

- Recursos Vivientes

- Recreaci6n

- Manejo de la Zona Costanera

- Investigac'16n y Desarrollo
- Arreglos I@st:@*-ucionales

- Rol de Puerto Rico en el
Area del Caribe

El Sub-comit6 de Arreglos Institucionales fue creado con el propo'sito

de permitirle a los demds sub-comit&s a concentrarse en aquellos cam-

pos de su principal intere's.

14.3

Cada sub-comite se reuni6 aproximadamente una vez por semana

durante un periodo de cuatro meses. En estas reuniones se defi-

nio la problematica, se oyeron testigos y se Ilegaron a conclusiones

tentativas y luego finales.

Los presidentes y vice-presidentes de cada uno de los sub-comites

formaron parte del Comite Timon, el cual incluyo tambien varios

miembros adicionales. El Comite Timon dirigio e integro a los dis-

tintos sub-comitest celebrando varias reuniones de uno a dos das

de duracion con el proposito de someter les sugerencias a los

sub-comites. Sin embargo, al redactar su propio informe cada sub-

comite tenia que considerar inicamente, el asesoramiento del Comite

Timon

Algunas de las recomendaciones se repiten en los informes de los

distintos sub-comites; no obstante, el Comite Timon y los sub-comites

creyeron que estas repeticiones fortalecrian el informe y no debe-

r1an sacrificarse en el altar de la brevedad. De hecho, si no hubiese

redundancia alguna, podria interpretarse como que los sub-comites no

estaban concientes de las inter-relaciones que existen en los asuntos

marinos de una isla pequena.

En su propio informe, el Comite Timon ha intentado resumir y

poner en relieve las recomendaciones de mayor importancia para Puerto

Rico. No obstante, fue dificil hacer la seleccion. Todas las reco-

mendaciones se consideran importantes y se le urge al lector que

14.4

las consider e como tal.

William Beller, de la Agencia de Proteccio'n Ambiental de

los Estados Unidos, organizo' el Comite' Tim6n para "Puerto Rico y el

Mar" y di rigio' el proyecto.

14.5

OVERVIEW--REPORT OF THE PARENT COMMITTEE

INTRODUCTION

The citizens of Puerto Rico until recently were generally un-

aware of the important contributions that marine resources were

making toward their quality of life. As a result, the Island had

never developed the managerial and custodial ethics, and public pol-

icy needed to protect adequately or develop many of the assets of

the sea.

As the Island shifted from agriculture to industry, new de-

mands and stresses were placed on the surrounding sea. These grew

as the population became more affluent and could afford the time

and expense of marine-oriented recreational pursuits.

Tourism rapidly increased, bringing thousands of off-island

visitors in search of tropical shores and the benefits these could

offer. Urban expansion and industrial developments encroached on

estuarine zones, along beaches and lagoons. Wetlands and swamps were

drained or filled to make more room for an ever-growing community hun-

gry for space. Beaches and dunes were exploited for sand needed for

constructing homes, factories, office buildings, roads and runways.

Many rivers and coastal waters became choked with the sedi-

ments of land disturbances and domestic and industrial wastes. The

marine environment, the prime recipient of the abuse, suffered pro-

gressive damage, the full extent of which is still largely unknown.

Not all the damage to the marine environment was necessary or

intentional. There was an underlying assumption on the part of de-

velopers, industrialists and the general public that marine resources

could be exploited indefinitely. Indeed this assumption is

true if the resources are used with forethought and wisely. It is

this enlightened use that we seek.

Yet an ocean island such as Puerto Rico does have a limit to its

capacity to withstand intensive use and development. once this limit

is passed, which is the state some of Puerto Rico's marine resources

are fast approaching, the Island changes character for the worse.

Where previously the effect of decisions with respect to the use of

the marine environment was largely reversible, this is not often the

situation now.

Our not seriously recognizing this crisis in our marine environ-

ment stems in part from Puerto Rico's penchant to use developmental

patterns more suited to large land masses,. Such a view dims the

reality of Puerto Rico as a small, ocean island. As a result, prior-

ities and solutions to problems more appropriate to large land masses

have tended to be Puerto Rico's priorities and solutions.

The imperative for wise and balanced use of the Island's clearly

limited marine resources, its restricted capacity for intensive

development of its shores, the false notion of Puerto Rico as a

large land mass--all these factors lead to a call for immediate ac-

tion. With this high degree of urgency, we offer the following re-

commendations for an action program in marine affairs for Puerto Rico.

COASTAL ZONE RESOURCES

The coastal zone is a complex area of habitats for a wide variety

of marine and terrestrial plants and animals. It is a particularly

fascinating area because of the way these life forms weave the land

and sea together and intimately depend upon each other for

survival. Healthy mangroves are efficient soil builders and serve

as homes or nurseries for nearly two-thirds of our species of

shallow-water marine fauna. Reefs and dunes moderate currents and

wave actions to protect lagoons, shore vegetation, and beaches. The

sea itself is the earth's largest unexplored wilderness-- a new

frontier for man in his pursuit of recreational,' scientific and in-

dustrial rewards.

Land Use And Development

The most dangerous threat to Puerto Rico's coastal zone is the

virtually uncontrolled process of shorefront land development. At

a time when the public still assumes that the process is large ly

confined to the area near San Juan, unplanned development patterns

are being rapidly established in virtually every sector of the

Island's coasts. Approvals are being granted on a case-by-case

basis, without benefit of effective planning or zoning, and with

little or no public participation. Government agencies have unknow-

ingly permitted, as they have for many years, the needless destruct-

ion of the Island's most prec ious resource, even though the means

to protect it are readily at hand. Measures to assure an appro-

priate balance between the needs of development and those of.pre-

servation must be taken immediately. Public awareness and parti-

cipation in the workings-of the development process is urgently

needed.

Recommendations

1. All concerned governmental agencies should hold,public hear-

ings, with appropriate public notice, before granting approvals (in-

cluding the all-important "consultas de ubicacion"* in the Planning

Board) for projects located within 200 meters of the sea.

2. The Governor should ensure that the Planning Board publish

by the end of 1972 and every six months thereafter an up-dated map

*Initial siting consultation

showing the current status of all applications-for-approval of@2ro-

jects located within 200 meters of the sea.

3. The Governor should reguest from the Plannin2 Board and

the Environmental Quality Board a thoroughly reasoned plan and envi-

ronmental analysis of the land between Boca de Cangrejos and the

Lolza River; and should assure the public that no development of this

particular ly strategic and threatened area will be authorized until

these documents are complet6d and publicly evaluated.

Policies, Plans, Implementation

The process of case-by-case project approval should be replaced

as rapidly as possible by an orderly system that includes adopting

rational policies and plans, and establishing measures to assure their

implementation. The Subcommittee on Coastal Zone Management recommends

a number of needed steps:

Recommendations

1. The Government should establish*a formal policy requiring

that coastal developments should preserve, to the fullest extent

practicable, the natural character of the shorelands that surround

Puerto Rico.

2. Comprehensive coastal-zone management policies and plans

should be adopted to provide for protection and development of the

coastal zone. Measures to expedite the planning and decision-making

processes, inclkading measures enabling developers to help speed

area planning, should be given particular attention.

3. The Legislature and administrative agencies should estab-

lish a system of Critical Environmental Areas to assure protection

of phosphorescent bays, important reefs and mangroves, and other

uniquely valuable areas. Regulations, maintenancearrangements, tax

incentives and Rro2erty purchase should be among the essential ele-

ments of such a system.

4. The G overnment should acquire control over the relatively

few remaining sites suitable for ports, power plants, and heavy

industry.

5. The Legislature should establish shorefront setback require-

ments and density limits by statute if agencies prove unwilling to

establish them rapidly.

Access to Public Shorelands

Although public access to beaches and shorelands has seldom

been a problem in Puerto Rico, new developmental patterns are now

creating such problems for the future. Unless new controls are

rapidly established, more and more beaches in outlying areas will be

effectively set aside for the sole use of occupants of shorefront

hotels and condominiums.

Recommendations

1. The Government should adopt a formal policy assuring all

people equal opportunity, in fact as well as in law, to enjoy the

beaches and other public shorelands of Puerto Rico.

2. The Government should clarify existing public property rights

in shorefront areas, including resolution of a number of legal issues.

3. The Government should establish by regulation, or by sta-

tute if necessary,_ minimum beach-access reguirements, including pro-

hibiting subdivision and development of extensive projects in areas

where those requirements are not satisfied.

Energy

Unless new and practicable power-generating methods are devel-

oped, facilities for electric power generation will continue to be

concentrated in the coastal zone. No amount of careful land-plan-

ning can protect our coastal resources if the present rate of in-

crease in power usage is allowed to continue indefinitely. The

time has come to ask how this rate of increase can be decelerated,

while effectively satisfying legitimate demands.

Recommendation

The Government should develop over the next five yea s a

coherent and realistic policy for the production and consumption

of electric power.

Protection of Resources

A combination of factors, all ultimately resulting from a lack

of adequate awareness and respect for natural processes, are causing

the slow elimination of essential marine habitats.

Reefs and Mangroves

Under particularly heavy stress are the very efficient producers

of marine life, the reefs and mangroves. To remove some of the

stresses on them, and help recreate stable conditions in the surround-

ing environment, the Subcommittee on Living Resources has identified

a number of needed measures.

Recommendations

1. A system of publicly-owned Marine Environmental Sanctuaries

should be created and carefully coordinated with a sVstem of similarly

established Critical Environmental Areas.

2. The removal, transportation, possession, or sale of coral

from any reef in Puerto Rican waters should be prohibited.

3. Spearfishing should be prohibited and undersea photography

promoted.

4. All publicly-owned mangrove areas should be transferred to

the custodV of the new Department of Natural Resources to become

part of the Commonwealth Forest System.

5. A one-year moratorium on the development of any privately-

owned mangroves should be declared, during which time the Department

of Natural Resources should inventory and evaluate these areas and

recommend public acquisition of appropriate ones.

Commercial Fishing

Scarcity of inshore fish, lack of knowledge of offshore resour-

ces, lack of modern methods and gear, obsolete fishing-craft, and un-

realistic credit programs all help perpetuate the depressed state of

most commercial fishing in Puerto Rico. Our nearly 3,000 fishermen

earn, on the average, no more than $1,600 annually. Yet recent

tests reveal that at least a threefold increase in fisheries'product-

ion can be obtained, with the accompanying increase in earnings for

the fishermen.

Recommendations

1. The Government should create a realistic fishermen's credit

program.

2. The Government should provide a training program in seaman-

ship, equipment maintenance, and small-business management.

Game Fishing

The intensive use of coast al waters has jeopardized recrea-

tional fishing around Puerto Rico. Governmental help is needed to

remedy this situation, especially if local citizens and tourists are

to continue to enjoy game fishing in our waters.

Recommendations

1. A program_should be implemented to locate, inventory. and

classify known and potential sport-fishing areas within which re-

creational fishing may be initially concentrated and further devel-

oped-

2. All existing laws and regulations pertaining to sport

fishing should be evaluated, and recommendations made to the Legis-

lature for a new updated and uniform set of laws with provision for

effective e nforcement.

Water Quality

Degradation of water quality is one of the most insidious de-

stroyers of the living resources in the coastal zone. Not only

the dumping of wastes into coastal waters but also such seemingly

remote activities as upstream grading or use of fertilizers can

have harmful effects.

Recommendation

It should be the 20licy of the Government to recover and re-

cycleall non-toxic, waterborne wastes as an alternative to .2re-

sent dumping into the sea. Until implementation of this policy

becomes economically and technologically feasible, measures to re-

ducepollution should be vi2orously pursued.

Sand

Puerto Rico's extraordinary economic development during the

last three decades upset the dynamic equilibrium between the supply

and demand for sand. Sand prices rose abruptly. Extractors turned

increasingly to publicly-owhed deposits, sometimes extracting il-

legally and other times paying the small fees--now less than 10

percent of the private market price--charged for sand extraction

from public lands. Large-scale extraction operations from beaches

and coastal dunes have created acute erosion problemsteliminated

beaches, and also entire plant and animal communities. The problem

continues to grow.

RECREATION

Puerto Rico should develop its marine recreational facilities

for the enjoyment of its citizens and as an asset for attracting

visitors, an important element in the Puerto Rican economy. More-

over, Puerto Rico should actively strive to make its citizens

aware of the pleasure that can be derived from the sea, and par-

ticularly stress this message to thos e who ordinarily avoid the

Island's shores.

Those who do not enjoy marine recreation include people who

fear the sea.., others who can not conveniently get to it because.of

their working hours or lack of access to the beach, and those who

go to the beach but do not enjoy all ithas to offer because facil-

ities are not present.

Those who fear the water often have reason on their side. Many

have simply not been taught swimming or water safety. If they have,

they they are still wary because most convenient beaches do not

have lifeguards. Swimmers often must worry about being cut down

by fast-moving power boats.

Recommendations

1. Swimming and water safety should be introduced in all

schools at all levels as part of the regular curriculum.

2. Certain areas of beach front should be restricted to

swimmers.

3. The Parks and Recreation Administration should be given the

responsibility for guaranteeing adequate cleaning and maintaining all

beaches. In addition, and most important, the Governor should give

the Administration the means to do the job, and funds should be

appropriated for this purpose.

The sun sets during the summer in Puerto Rico at about 6:30

P.M. Most people who wish to go to the beaches after work must

enter a constant and frustrating rush through traffic home, and

then perhaps without eating, out to the beach. The effort is often

not worth the reward. To get around this problem, which is not

unique to Puerto Rico, many nations have established Daylight Sav-

ing Time, thereby extending their daylight hours for the recreational

benefits of their citizens.

Recommendation

Daylight Saving Time linked to the Federal s)7stem should be

established in Puerto Rico.

Of course an extended period of daylight would do swimmers no

good if the beaches are closed. At present, our best beach facil-

ities are closed at least one entire day during the week, chiefly
on Mondays. 28

Recommendation

Public beaches should be kept open every day of the year.

Closing tim during the summer months should be extended in direct

relation to the length of daylight.

Anybody wishing to sail in Puerto Rico should be able to buy

a small boat powered by wind or motor for as little as $300. This

would be far from a yacht, and would probably not be new, but at

least it would be seaworthy and steerable. However, the financial

ability to enjoy boating only partly depends on the cost of the

equipment, especially for young sailors. Beyond the cost of the

boat, low-cost, accessible shoreside facilities are also needed.

Recommendation

Because public funds are not available for projects such as

marinas, public land should be leased on reasonable terms to pri-

vate developers for the construction at appropriate locations of

pre-designed marine recreational centers. A mechanism to implement

this recommendation should be established by statute.,and should

include environmental safeguards.and others such as public hearings

on lease terms and prices charged for use of facilities.

RESEARCH AND DEVELOPMENT

Puerto Rico should encourage research and development rele-

vant to the Island's needs. The usual classification of research

into "basic" and "applied" is empty here.

The Subcommittee on Research and Development has identified

several areas in which there are pressing needs for research, and

for gathering and making available the existing data.

Characterization of the Marine Environment

Puerto Rico uses the marine environment as a (a) ha@itat for

marine living resources; (b) garbage dump; (c) heat dump; (d)

source of sand, sa lt, fresh-water and chemicals; (e) medium for

transportation and commerce; and (f)-@&--source of enjoyment. Obvious-

ly, many of these uses are incompatible with one another and some may

be mutually exclusive. Research and data-gathering should assist in

the planning and wise utilization of our marine resources toward

the greatest possible benefit.

We need studies ranging from the simplest localized baseline

studies to surveys including the dynamic features of our shorelines,

bottomlands, and coastal waters. We do not have sufficient infor-

ma tion regarding the constituents and dynamics of most tropical

marine communities or ecosystems to allow us to speak intelligently

about their fate in the face of the environmental stresses we

are imposing.

Recommendation

The Government should vigorously support a malor effort to

determine the dominant characteristics of our marine environment.

High priority should be given-to the study and description of natu-

ral marine communities.

Research in aquaculture should go beyond the mere characteriz-

ation and should include specific aquacultural techniques, pilot

programs, rates of harvest and processing-

There are also components of our marine biota that are har-

vested through capture, but are not cultured. Studies on population

dynamics, possibilities of re-stocking, seasonal migration or fluc-

tuations, and life cycles would allow for intelligent designation

of capture seasons and for the protection of endangered species.

Recommendation

The Government should encoura7e research to characterize

those components in our marine biota worthy of culture as a source

of food or of pharmacologically valuablecompounds.

We need to know where sands are that can be mined without

harming the.Island. Once we know this, we should have an evalua-

tion of the economic feasibility of the mining operations involved

and their environmental effects. Initial studies could be followed

by programs directed to the development of submerged deposits, in-

centives, lines of credit, loans and technical aid.

Recommendation

A detailed survey of submerged sand deposits and other

non-living resources in the waters of Puerto Rico should be

compiled, and the technology and feasibility for their utilization

assessed.

Waste Dumping

Puerto Rico is not unique in having its coastal waters used

for waste disposal. We are unique, however, in that we have a

wide variety of industrial wastes entering a rich tropical marine

environment.

Recommendation

Research should be undertaken to determine the capac ty of

our coastal waters to absorb waste--industrial, thermal and domes-

tic--and the effect these wastes have on the biota.

The possibility of large volumes of cooling water from power-

plant condensers entering the sea merits not only se rious study of

the ecology of thermal pollution in tropical waters but also a

research program to determine the alternatives.

Recommendation

The Government should'support immediate research into methods

of energy production that lessen the potential for stress on the

Island's marine environment.

Data Bank

Developers of marine resources, scientists, and industry are

often hurt because the marine data they could use either are not

known to them or are stored in archives that have only very local

use. As a result, we have duplication of efforts, loss of Federal

money because of lack of data for proposals, inadequate long-term

planning, and hindrance of development p rograms.

Recommendation

An Ocean Resources Information Center should be established

at the MaVaquez Campus of the University of Puerto Rico.

Toward a HealthV Research Program

Funding for research on Island problems seldom comes from the

insular Government. When it does, it is usually given on a project-

by-project basis. Thus, the needed continuity in research is lost.

Island problems that could be solved by research are considered for

a while, then dropped when the Federal grant or private funds run

out. Because of different mainland priorities, many Island pro-

jects are never funded or completed.

Recommendation

The Legislature should appropriate funds specifically dedi-

cated to ocean and marine-oriented research and development, in-

cluding policy research.

When a difficult problem arises that needs research, and

governmental agencies are willing to allocate funds to solve it,

many times the aqencies look off-Island for the talent. Admittedly,

INSTITUTIONAL ARRANGEMENTS

Institutional arrangements in government are closely related

to the social, economic, physical, cultural and polktical reali-

ties of the community, and should respond to and.serve.its needs.

One of the greatest needs is that of elaborating a conceptual frame-

work for institutional arrangements that takes into account the

peculiarities of Puerto Rico as a system, particularly the fact

that it is a small island.

The'framework should also recognize that Puerto Rico is a

society in transition, and consequently has tensions that are re-

flected in conflicting objectives and priorities. (These are dis-

cussed in detail in the Report of the Subcommittee on Institutional

Arrangements.)

The importance of the policy formulation process to ach ieve

a cohesive institutional framework is frequently unrecognized in

government activities. With respect to policy formulation in the

area of marine affairs, there is a critical need to stipulate goals

and link these to overall economic and social objectives.

we also note:

- Many programs and activities affecting the marine environment

are in conflict with one another.

- There is need to enforce all laws and regulations deal ing with

marine affairs. This is cne area in which citizen participation

can be especially productive.

- The Goverfiment must have the necessary information and research

upon which to base rational decisions.

The type of policy formulation structure that we consider most

desirable for Puerto Rico in the area of marine affairs sees the

Planning Board as the agency charged with translating those social

priorities adopted by the Executive and Legislative branches into

operational directives; in turn, these directives are transmitted

to the various agencies dealing with the various sectors.

The Department of Natural Resources, which will begin opera-

tions January 1973, should be an operational department in charge

of development and management of programs in marine resources, and

correspondingly concerned with the enforcement of laws and regula-

tions. It should also engage in research related to operational

and development activities. In discharging these responsibilities,

the Department should act in accordance with the sectoral policies

established by the Environmental Quality Board.

Recommendations

1. The new Department of Natural Resources should be respon-

sible for the execution and operation of the 1programs of marine

resources, and for the enforcement of laws and regulations con-

cerned with these recources.

2. The Environmental Quality Board should be in charge of

formulating policies for the marine sector. To this end, th e

Rosition of Associate Director of EQB for Marine Affairs should

be created.

EDUCATION AND INFORMATION

over the past 20 years, Puerto Rico has focused on the ux-

gent need to develop its economy, and modernize its institutions.

This emphasis on consumption and industrialization has not en-

couraged parallel concern and awareness of the problems related

to other fundamental Island values such as environmental quality

and balanced growth. Government should assume a leadership role

with respect to modifying values and emphasizing long-range think-

ing and planning. Obviously, long-range use of the marine habitat,

the need to develop it and preserve it, is one large area of concern.

The Puerto Rican citizen is at present poorly aware of the

cardinal truth that he lives on a small islan d-territory of which

the sea is the hinterland. The child, however, is father of the

man; and the entire educational and mass-media structures of the

island should be turned toward a program to foment this essential

marine-oriented consciousness in the rising generation.

Recommendations

1. A Puerto Rican Advisory Committee should be appointed to

develop--in coordination with theDepartment. of Education--improve-

ments in the teaching of marine affairs. New courses should be de-

signed, new materials prepared and new training schemes for teachers

proposed.

2. The Government should foment greater interaction between

the school systems, colleges, adult education, industry, commerce,

business, newly emerging vocational education,and the Government it-

self in order to develop continuing and relevant interest in marine

resource matters.

3. The Government should organize contests, projects, compet-

itive activities and youth congresses on marine matters for both

Puerto Rican and other Caribbean students.

One very important problem that we face is that expertise in

specific areas of marine affairs is frequently not available in

Puerto Rico. The solution is not only one of creating scientists

and technicians but also of generating talent necesisary to formulate

and carry out policy and manage marine affairs.

Recommendation

Present e6ucational proqrams in the area of marine affairs

should be supported and reinforced; a Masters-level program should

be created in the area of environmental management with em2hasis on

policy analysis; undergraduate programs should be developed; and

short courses and seminars for Government officials instituted.

Many trained mechanics are needed to service the small craft

that berth in Puerto Rico. Some of the work is being done although

there are usually long waits for engine and electrical service, and

the technicians are usually not Puerto Rican.

Recommendation

Vocational schools should extend their curriculum to include

training in the different nautical fields such as, but not limited

to, marine electronics and marine mechanics, boat building and life

saving.

One area of concern in marine affairs, characteristic of all

government operations, is that information is frequently not avail-

able to interested citizens and private organizations. Further

participation by citizens has also been limited to public hearings

in which the subject under discussion has already been dealt with

extensively at the agency level. The result is that often the wit-

nesses are confronted with fixed positions.

Recommendation

The Government should, by statute, establish requirements sim-

ilar to those of the Federal Freedom of Information Act. Until such

legislation becomes effective, agencies should establish their own

Freedom of Information policies permitting_ release of certain

classes of information without specific authorization.

As a long-range objective, meetings of Government agencies

such as the Planning Board and Environmental Quality Board should

be open to the public so that they may be informed about what is

taking place.

Recommendations

1. The agenda of public meetings of Government agencies con-

cernec. with the environment should be made available to the public

in advance of the meetin2s; minutes should be taken during the

meetings and be made ava ilable to the 2ublic no more than one week

after the meetings'.

2. Government agencies should take the initiative in inviting

the submission to public hearings of memoranda and points of view

of all interested citizens.

ROLE OF PUERTO RICO IN THE CARIBBEAN

The Caribbean region comprises the archipelago and the coastal

areas of the contiguous continental masses. The sea it encloses

is a resource common to all countries on its shores. Hence, con-

cern for its rational development, exploitation and conservation

constitutes a moral obligation for all.

Puerto Rico's role within the Caribbean is conceived as one of

partnership as opposed to leadership. This implies that while Puerto

Rico can teach the region much,-it can also learn much from the

region. It also implies that since past attempts at formal regional

cooperation have lapsed, they must give way to informal and func-

tional cooperation utilizing existing Caribbean structures; and that

present bilateral relationships between Puerto Rico and the United

States ought to be complemented by multilateral relationships with

Caribbean neighbors.

Acceptance of these imperatives and their active pursuit should

help foment a new, viable international personality for Puerto Rico.

Recommendations

1. The'Caribbean is a startling contrast of poor lands and

rich seas. The search for new marine-oriented.industries that are

ecologically sound, economically feasible and socially desirable,

therefore becomes urgent.

A program of studies should be initiated by the Puerto Rico

Economic Development Administration and the Department of Commerce

on the technical and economic feasibility of establishing new

marine industries in the Caribbean communiLy.

2. Marine science and technology is a relatively new, fast

developing field. The need for Caribbean lands to share resources

and talent for marine development is crucial.

A vigorous new program in.marine affairs should be established

within the North-South Center encouraging technical interchange

and regional professional meetings.

3. The Caribbean region is increasingly one of busy inter-

territorial activity. But hitherto most relationships between

countries have been localized, haphazard and un-coordinated. There

is a strong need for Puerto Rico's government to more fully inform

itself of Caribbean activities and to more actively contribute to

inter-Caribbean affairs.

An Office for Caribbean Affairs should be established within

the office of the Secretary of State of the Commonwealth Government

at the Assistant Secretary level.

4. The average Puerto Rican citizen is poorly informed about

other Caribbean societies. Successful regional cooperation by

Puerto Ricans requires the planned growth of a Caribbean conscious-

ness.

The Commonwealth Department of Education should:

a. further strengthen the teaching of English, a major

Caribbean language, in the school system;

b. introduce the teaching of one or two of the other

major area_lanquages; and

C. develop and introduce textbook materials to facilitate

Caribbean-oriented social studies.

5. Caribbean inter-territorial cooperation is seriously inhib-

ited today by inadequate communications and transportation systems.

The Governor of Puerto Rico should take the initiative in

convening a conference of Caribbean country representatives to con-

sider improving regional transportation and communications.

FOR THE FUTURE

We have stressed that Puerto Rico does indeed have the re-

sources, abilities and abundant energy to derive from its sea and

shorelines many of the values it has for so long taken from its

soil. The vulnerability of these environments requires that we act

systematically and with care. In this report, we have tried to

point out some of the ways that we believe would be profitable.

The next move is for the Puerto Rican Government to initiate

an action program. A number of recommendations in this report can

be implemented immediately. Others require intermediate steps,

such as legislation and additional funding. To expedite action,

we recommend that a Special Project Staff Unit, as described in

the report of the Subcommittee on Institutional Arrangements, be

set up in the Office of the Governor.

As an epilogue, we suggest that the Government support the

reconvening of the Parent Committee and its Subcommittees one-year

after "Puerto Rico and the Sea" is received by the Governor. The

aim is for the committees to reappraise their recommendations and

note the actions taken. This is a novel proposal by a citizen's

committee, but one that can assure continuing interest in the prob-

lems mentioned in this report as well as encourage governmental

attention to them.

RESUMEN INFORME DEL COMITE TIMON

INTRODUCCION

Hasta hace apenas poco tiempo, los ciudadanos de Puerto Rico,

en general, desconocqian de las contribuciones importantes para la

calidad de sus vidas que provenian de los recursos marinos. Como

resul tado de esto,la Isla nunca habia desarrollado una etica para

la custodia administracion de los recursos ni una politica publica

orientada hacia la conservaci6n o el desarrollo adecuado de los re-

cursos del mar.

A medida que la Isla se transformaba de una economia agriccola

a una predominantemente industtial, el ambiente Marino se vi6 ame
zado por nuevas presiones y demandas. Estas presiones aumentaron

segun la situacion economica dela poblacion mejoraba, ya que se

disponia del tiempo y dinero requerido para disfrutar de la recrea-

ci6n marina.

El turismo aumento rapidamente atrayendo miles de visitantes

del exterior hacia las costas tropicales.y los beneficios que estas

ofrecen. La expansi6n urbana y el desarrollo industrial se extendio

hacia los estuarios, las playas y las lagunas. Los mangles y pantanos

fueron drenados o rellenados con el proposito de satisfacer las

demandas de una poblacion creciente y avida de espacio. Playas y
dunas, fueron destruidas en busca de arena' para la construccion de

45.1

casas, fabricas, edificios de oficinas, carreteras y pistas.

Muchos rios y aguas costaneras han sido invadidas por el

sedimento clue proviene de desperdicios domesticos e industriales

y de alteraciones del terreno. El ambiente marino, victima prin-

cipal de este abuso. sufrio un dano progresivo cuyas ramificaciones

totales todavia desconocemos.

No todo el dano ocasionado ha sido necesario ni deliberado.

Los industriales y el publico en general partian de la premisa que

los recursos marinos se podian explotar indefinidamente. De hecho,

esta premisa resulta ser cie ta si recursos se utilizan sabia

y cuidadosamente. Esta utilizacion prudente es lo que estamos tra-

tando de lograr.

Sin embargo, una Isla oceaninica como Puerto Rico tiene una

capacidad limitada para sobrellevar el uso intensivo y el desarrollo

de sus recursos. Una vez pasado este limite lo cual es el estado

actual de algunos de los recursos marinos de Puertoico la Isla

puede transformar irreversiblemente su caracter ambiental,

Cuando anteriormente los efectos de las decisiones respecto al

uso del ambiente marino eran en gran parte reversibles a menudo esta

no es la situacion en la actualidad.

El no reconocer con sobriedad la crisis de nuestro ambiente

marino, surge en parte de la tendencia puertorriqueia de emular patro-

nes de desarrollo que son mas aptos para paises localizados en las

45.2

masas continentales. Esta perspectiva opaca la realidad de que

'Puerto Rico.es.una pequefia isla ocednica. Por consiguiente, hay una

demostrada tendencia a que las soluciones a los problemas de paises en

las masas continentales tienden a convertirse en las prioridades
y"'soluciones de problemas netamente puertorriqueftos.

La imperante necesidad de una utilizacio'n sabia y equilibrada

de los recursos marinos de la Isla, su capacidad limitada para
-sostener el desarrollo .intenso de sus costas, el concepto equivoco

de visualizar a Puerto Rico como una masa continental todos estos

factores nos llevan a hacer un llamamiento de accio'n inmediata.

Con este alto grado de urgen'cia ofrec-emos las siguientes recomenda-

ciones para un plan de acci6n respecto a los asuntos marinos en

Puerto Rico.

RECURSOS COSTANEROS.

La zona costanera es una region compleja donde habita una gran

variedad-de plantas y animales marinos y terrestres. Es una regi6n

par-ticularmente fascinante por el modo en que estas formas de vida

entrelazan el mar y la tierra y@dependen las unas de las otras para

su-supervivencia. Los man gles saludables van poco a poco creando

.suelo y le sirven de hogar o criddero a casi dos terceras partes

de nuestras especies de fauna marina de aguas llanas'. Los arrecifes

y las dunas mitigan la acci6n 6e los vientos y el oleaje para proteger

45.3

las lagunas, las playas y la vegetaci6n de las o Irillas.. El mar

en,si es la regio'n ine-xplorada m&s grande que tiene la tierra --

,una nueva frontera para el hombre en su bfisqueda de recompensas.

recreativas, cientificas e industriales.

Uso v Desarrollo del Terreno

La amenaza mfis peligrosa a la zona costanera de Puerto Rico

es el proceso de desarrollo descontrolado a lo largo de las costas.

Aunque el pfiblico sigue en.1a creencia qu.e esto est& ocurriendo,

solamente en San Juan y sus alrededores, ra'pidamente se estcin esta-

bleciendo patrones de d esarrollo desparramado en casi todas nuestras

areas costaneras. Los proyectos se aprueban uno por uno, sin el

beneficio de una planificaci6n y zonificaci6n. efectiva y con escasa

o ninguna participacio'n pfiblica. Desde hace muchos ahos,las agenci as

gubernamentales, sin darse suficiente cuenta han permitido la des-

trucci6n innecesaria del mds preciado recurso de.nuestra Isla, a

,pesar de que los medios para evitarla estfin disponibles. Es necesario

tomar medidas inmediatamente para asegurar un balance adecuado entre

las necesidades del desarrollo y las de la preservacio'n del ambiente.

Es indispensable que el pfiblico se familiarize con las operaciones que

toman lugar en el proceso del desarrollo y part'icipe de.las mismas.

45.4

Recomendaciones

Todas las agencias qubernamentales que tratan con esuntos

ambientales debieran celebrar vistas publicas, luego de los debidos

avisos publicos, antes de aprobar la ubicacion o el desarrollo de

cualquier proyecto localizado dentro de una franja de 200 metros

desde el mar.

2. El Gobernador debe asegurarse de que la Junta de Planifi-

cacion publique antes de fines de 1972 y cada 6 meses de un

mapa actualizado indicando el estado actual de las solicitdes

para aprobacion de todos los provectos localizados a menos de 200

metros del mar.

3. El Gobernador debiera solicitar de la Junta de Planificaci6n

y de la Junta de Calidad Ambiental un plan de-tallado y un analisis

ambiental de las tierras entre Boca de Cangrejos y el Rio Loiza
tambien debiera asequrarle al publico que ningun desarrolic se auto-

rizara en esta area tan estratqica y amenazada hasta gue estos

documentos hayan sido completados y evaluados publicamente.

Politicas, Planes e Implementaci6n

El modo de revisar proyectos uno a uno debe ser reemplazado a

la mayor brevedad posible por un sistema ordenado que incluya la

adopcion de politicas y planes racionales, y el establecimento de

45.5

medidas que aseguran su instrumentacion El Sub-comite de la

Zona Costanera ha recomend ado una serie de medidas requeridas:

Recomendaciones

1.El Gobierno debe establecer una politica formal requiriendo

que los desarr ollos costaneros mantengan, en la medida que sea posi-

ble, el caracter natural de las costas que circundan a Puerto Rico.

2. Debieran adoptarse planes y una politica publica para

garantizar la proteccion y el desarrollo de la zona costanera.

Deberan recibir atencion particular medidas que aceleren los pro-

cesos de planificar y tomar decisiones, incluyendo aquellas que

ayuden a los constructores y proyectistas a acelerar la planificacion

de areas.

3. La Legislatura y las agencias administrativas debieran

establecer un sistema de Areas de lmportancia Ambiental para asegurar

la proteccion de bahias fosforescentes, arrecifes y mangles importantes,

y otras areas de singular valor. La reglamentacion, arreglos

el mantenirmiento, incentivos contributivos y la compraventa de la

propiedad deberan formar parte de los elementos esenciales de este

sistema.

4. El Gobierno debe adquirir control sobre los escasos predios

costanercs apropiados para el desarrollo de puertos, plantas de

energia e industria e industria pesada.

45.6

5. La Legislatura debiera establecer mediante estatuto limites

de densidad v de una distancia minima entre cualquier desarrollo

y el mar si las agencias apropiadas se muestran indispuestas a

tomar estas medidas rdpidamente.

Acceso a la Costa

Aunque el acceso pfablico a las playas y dreas costaneras rara

vez ha sido un problema en Puerto Rico, nuevos patrones de desarrollo

est&n creando este problema para el futuro. A menos que se establezcan

con prontitud, nuevos controles, mfis y mds playas lejanas.de hecho se

reservardn para el uso exclusivo de los residentes de los condomi-

nios y hoteles en la costa,

Recomendaci6nes

1. El Gobierno debiera adoptar una politica formal asegurdndole

a toda la poblacio'n la misma oportunidad, en la pra"ctica al iqual que

por ley, de disfrut ar las playas otras dreas costaneras de Puerto

Rico..

*k*car los derechos de propiedad
2 El Gobierno debiera clarl 3.

existentes en la zona costanera, incluvendo'la resoluci6n de una

serie de conflictos legales.

45.7

3. El Gobierno debiera establecer, ya sea por reglamento

o estatuto, requisitos minimos para el acceso a las playas, inclu-

yendo la prohibici6n de la lotificacion y el desarrollo de proyectos

extensos en areas que no cumplan con esos requisitos.

Energia E1ectrica

Si no se desarrollan nuevos metodos para producir electricidad,

las plantas para la producci6n de energia electrica seguiran concen-

trandose en la zona costanera. Ningun tipo de planificacion para

el uso del terreno podra proteger nuestros recursos costaneros si

las tendencias actuales respecto al consumo de energia continuan

indefinidamente. Ha llegado la hora de preguntarnos como se puede

controlar este aumento acelerado y a la vez satisfacer efectivamente

las demandas,legitimas.

Recomendacion,

El Gobie rno debiera desarrollar durante los proximos cinco anos

una politica publica coherente y realista para la produccion y el

consumo de energia electrica.

Proteccion de Recursos

Una combinacion de factores todos surgiendo a la larga como

resultadode una falta de conciencia respecto a la importancia

de los procesos naturales, estan gradualmente eliminando los criaderos
de la vida marina.

Arrecifes y Manglares

Los arrecifes y manglares, productores eficientes de la vida

marina, se encuentran particularmente amenazados. Para eliminar

a1gunas de las presiones amenazadoras y tratar de recuperar las

caracteristicas estables de su ambiente, el Sub-comite de Recursos

Vivientes ha identificado una serie de medidas necesarias.

Recomendaciones

1. Es necesario crear un sistema de Santuarios Marinos Publicos,

cuidadosamente coordinados con un sistema similar de Areas de Impor-

tancia Ambiental.

2. Debe prohibirse la extraccion, transportacion, posesion o

yenta de coral de cualquier arrecife en aquas de Puerto Rico.

3. Debe prohibirse la pesca con figas y fomentarse la foto-

grafia submarina.

45.9

@4. Todos los manglares que son pr02iedad p6blica deben trans-

ferirse a la custodia del nuevo Departamento de Recursos Naturales

para formar parte del Sistema Forestal Insular.

5. Debe declararse un moratorio de 1 afio respecto al.desarro-

llo de cualquier manglar que.sea propiedad privada, Para proveerle

al Departamento de Recursos Naturales un periodo para efectuar un

inventario V una evaluacio'n de estas dreas y recomendar la adquisi-

ci6n p6blica de ciertos manglares,

Pesca Comercial

La escasez de peces en la costa, la falta de conocimientos sobre

los recursos del mar afueraf la falta de equipo y te'cnicas modernas,

las embarcaciones obsoletas y los programas de credito poco realistas,

contribuyen a perpetuar el estado critico actual de la pesca comer-

cial en Puerto Rico. Nuestros 3,000 pescadore s ganan escasamente un

promedio de $1,600 al afio. Sin embargo, estudios recientes indican

que la producci6n de pesca se podrila triplicar, con un aumento

correspondiente en los ingresos de los pescadores.-

Recomendaciones

1. El Gobierno-debiera crear un sistema de cr6dito realista

2ara los pescadores.

45.10

2. El Gobierno debiera establecer un programa de entrena-

miento en navegacion, mantenimiento de equipo y a dministracion

de pequeos negocios.

Pesca Deportiva

El uso intensivo de las aguas costaneras ha puesto en peligro

la pesca deportiva en Puerto Rico. Se necesita ayuda gubernamental

para remediar esta situacion, sobretodo si los ciudadanos y los

turistas han de continuar disfrutando de la pesca deportiva en

nuestras aguas.

Recomendaciones

1. Debe establecerse un programa para localizar, inventariar

y demarcar todas las Areas de pesca conocidas y potenciales donde

la pesca deportiva pueda concentrarse inicialmente y desarrollarse

mejor.

2. Todas lasle leyes y reglamentos vigentes relacionados a la

pesca deportiva deben evaluarse; las recomendaciones al respecto

deben someterse a la Legislatura para que se establezca un nuevo

codigo de 1eyes uniformes y actualizadas con provisiones para po-

nerlas en vigor.

45.11

Calidad del Aqua

La degradacion de la calidad del agua es una de las maneras

mas insidiosas de destruir la vida marina en la zona costanera.

El desechar desperdicios en las aguas costaneras, al igual que

otras practicas mas indirectas (como por ejemplo, los movimientos

de terrenos o el uso de abonos) pueden tener efectos nocivos sobre

la calidad del agua.

Recomendacion

El Gobierno debiera adoptar la politica de recuperar y re-

utilizar todos los desperdicics liquidos no-toxicos como una

alternativa al actual sistema de desechar desperdicios al mar.

Hasta que la implantacion de esta politica sea econmica y tecno-

logicamente factible, ciertas medidas para reducir la ccontaminacion

se debieran aplicar vigorosamente.

Arena

El extraqordinario desairollo economico registrado en Puerto

Rico durante las ultimas tres decadas ha trastornado el equilibrio

dinamico entre la oferta y la demanda de arena. El precio de la

arena aumento rapidamente. Los extractores empezaron a suplirse

45.12

de los depositos publicos, extrayendo arena ilicitamente o pagando

la pequena suma -- actualmente menos del 10 por ciento del precio

de arena en el mercad0qo -- cobrada por la extraccion de arena de

terrenos publicos. La extraccion en gran escala de las playas y

dunas costaneras ha creado graves problemas de erosion y ha elimi-

nado playas y comunidades enteras de plantas y animales. Este

problema contina aumentando.

Recomendaciones

1. La extraccion de arena de areas publicas para propositos

comerciales debe Prohibirse, y debe exigrirse la preservacion de

todas las dunas existentes.

2. Los reglamentos administrativos vigentes deben enmendarse

para asegurar que los precios cobrados Por la extraccion comercial

de arena de depositos pulicos equivalgan a los precios del mercado

Privado.

Naufragios

Se sabe que los restos de mas de 100 naufragios yacen en las

aguas alrededor de Puerto Rico. Algunos de estos forman parte de

nuestro, patrimonio. Sin proteccion legal, sin embargo, estos pronto

desapareceran. Algunos ya han desaparecido.

Recomendacio'n

El Gobierno.debiera designar los restos de naufragios en aguas'

de Puerto Rico como reliquias nacionales y prohibir la alteraci6n

o rescate de las mismas sin previa autorizacio'n.

RECRENCION

Puerto Rico debiera desarrollar sus facilidades recreativas

para el disfrute de sus ciudadanos, y para atraer visitantes

una consideraci6n importante para nuestra economia. AdemC'%s, Puerto

Rico debiera tratar de despertar en sus ciudadanos un amor hacia

los placeres que pueden derivarse del mar, y en particular, llevar

este mensaje a aquellos que generalmente evitan el disfrute de

nuestras playas.

Los que no disfrutan plenamente de la recre-acio'n marina incluyen

aquellos que le temen al mar, aquellos para quienes las playas no

estdn a su alcance ya sea por falta de tiempo o por barreras

fisicas y aquellos que van a las playas pero que no las disfru-

tan plenamente porque no hay facilidades adecuadas.

Los que le temen al mar frecuentemente tienen raz6n para sus

temores. Muchos no saben nadar, y los,que saben, evitan a1gunas

playas convenientes porque no estAn debidamente vigiladas por

45.14

salvavidas. Aun cuando saben nadar y hay salvavidas, existe la

posibilidad de accidentes debido al uso de botes de motor muy

cerca de las orillas de las playas.

Recomendaciones

1. La natacion y las reglas de seguridad en el aqua debieran

introducirse al curriculo regular en todas las escuelas y en todos

los niveles.

2. Algunas areas cerca de las orillas debieran reservarse

Para el uso exclusivo de los baniistas.

3. La Administracion de Parques y Recreos Publicos debiera

tener la responsabilidad de garantizar la limpieza y mantenimiento

adecuado de todas las playas. Ademas el Gobernador debiera asequ-

rarse que a dicha Administracion se le Proporcionen los medios

par realizar esta enco mienda y se le provean fondos para ese fin.

Durante el verano, el sol en Puerto Rico se pone alrededor de

las 6: 30 P.M. Muchas personas que desean ir a la playa despues del

trabajo tienen que porder su tiempo en el trafico y quizas posponer

la hora de comida, para poder ir a la playa. El disfrute tan breve

a veces no compensa el esfuerzo. Para resolver este problema, que

no ocurre incamente en Puerto Rico, muchos paises han establecido

45.15

el sistema "Daylight Saving Time" extendiendo asi las horas de luz

solar Para el beneficio recreativo de sus ciudadanos.

Recomendacion

Puerto Rico debiera adelantar el horario instituyend el sistema

de economizar luz solar conocido Por "Daylight Saving Time"; este

debiera coordinarse con el sistema Federal.

Por supuesto, extendiendo el periodo de luz solar no beneficiara

a los banistas si las facilidades de las playas estn cerradas. En

la actualidad, nuestros mejores balnearios permanecen cerrados por

lo menos un dia por semana, generalmente los lunes.

Recomendacion

Todos los balnearios publicos debieran permanecer abiertos todos

los dias del ano. Durante los meses de verano, la hora del cierre

debiera extenderse en relacion directa a las horas de luz solar

El que desee navegar en Puerto Rico y quiera comprarse un bote

pequeno de vela ode motor, podria hacerlo pagando cerca de $300.
Este distaria mucho de ser un yate, Pero por lo menos seria seguro

y manejable. Todavia no se ha probado que haya una relacion estrecha

45.16

entre el placer de la navegacion y el costo del equipo utilizado,

particularmente para los marineros jovenes. Ademas del costo del

bote,sin embargo, se necesitan algunas facilidades nauticas.

Recomendacion

Debido a que no hay fondos publicos disponibles para proyectos

como marinas, ciertos terrenos publicos debieran arrendarse bajo

terminos razonables a proyectistas privados Para la construccion

de centros de recreacion marina pre-disenados en lugares apropia-

dos. El mecanismo para implementar esta recomendacion debera

establecerse mediante estatuto, y debera incluir medidas para la

proteccion del ambiente tales como vistas publicas para las con-

diciones del arrendamiento y los precios a cobrarse por el uso de

las facilidades.

INVESTIGACION Y DESARROLLO

Puerto Rico debe estimular la investigaci6n y desarrollo, rele-

vante a las necesidades de la Isla. La clasificacion corriente

de la investigacion en terminos de basica y applicada no tiene gran

significado aqui.

45.17

El Sub-comite' de Investigaci6n V Desarrollo-ha identificado'

varias dreas donde procede urgentemente que se haga investigaci6n,

y se recopile y haga disponible la informaci6n existente.

Caracterizacio'n del Ambiente Marino

Puerto Rico utiliza el ambiente marino como repositorio de (a)

recursos marinos vivientes;@ (b) vertedero de basura; (c) vertedero

de desperdicios termales; (d) fuente de arena, sal, agua y productos

quimicos; (e) medio de transportaci6n y comercio y (f) lugar de

recreo.. Obviamente, muchos de estds usos son incompatibles entre.

si, y podrian hasta excluirse mutuamente. La-investigac"io'n y la

recopilaci6n de datos debe ayudar en la planificacio'n y utilizacio'n

prudente de nuestros recursos marinos para obtener el mayor beneficio

posible.

Necesitamos hacer investigaciones que cubran desde los m6s

sencillos estudios de base hasta aquellos que incluyan los aspectos

dindmicos de nuestras costas, fondo del mar y aguas costaneras.

No tenemos suficiente informacio'n acerca de los componentes y la

dinfimica de los sistemas ecol6gicos o comunidades marinas tropicales

para que podamos hablar inteligentemente de como han de reaccionar

estas comunidades ante la carga ambiental que les estamos imponiendo.

45.18

Recomendacion

El Gobierno debiera apoyar vigorosamente un esfuerzo mayor

Para determinar las caracteristicas sobresalientes de nuestro

ambiente marino. Se le debe dar alta prioridad al estudio y

descripcion de las comunidades marinas naturales.

La. investigacion en el campo de la, acuacultura debera ir mas

alla de la mera caracterizacion y debera incluir tecnicas de acua-

cultura especificas, proyectos pilotos, ritmo de produccion, y

procesamiento.

Tambien hay algunos componentes de la biota marina que son

capturados en vez de cultivados. Estudios sobre la dinamica pobla-

cional -- la posibilidad de reponer las especies, las migraciones

o fluctuaciones estacionales y los ciclos de vida permitirian

la designacion inteligente de estaciones de pesca o captura y la

proteccion de las especies amenazadas.

Recomendacion

El Gobierno debiera, fomentar la investigacion para identificar

aquellos componentes de las comunidades marinas que merezcan

cultivarse como fuente de alimento o de valiosos compuestos farma-

cologicos.

45.19

Es preciso saber de d6nde podemos extraer arena sin ocasionarle

dahos a la Isla.. Una vez sepamos esto, debemos hacer una evaluaci6n

de la viabilidad econ6mica de las operaciones de extraccio'n envueltas

y sus efectos sobre el ambiente. Los estudios iniciales i-an
-podr'

conducir a programas dirigidos hacia el desarrollo de los dep6s itos

sumergidos, la creaci6n de incentivos, fuentes de cre'dito, pre'stamos

y ayuda t6cnica.
7

Recomendaci6n

Debe recopilarse un inventario detallado de los dep6sitos,

de arena sumergida V otros recursos minerales en las,aquas de Puerto

Ri co, v evaluarse la tecnologia v viabilidad de la utilizacio'n de

los mismos.

7
Descargas al Mar

Puerto Rico no es el 6nico lugar en el mundo donde se desechan
7 los d'esperdicios en las agu*as costaneras. Si somos 6nicos, sin
7 embargo, en que tenemos una gran variedad de desperdicios industriales
que se estdn introduciendo a nuestro f6rtil ambiente marino tropical.
F71

45.20

la informacion utilizable sobre asuntos marinos. Por lo tanto

existe la duplicacio'n de esfuerzos, la pedida de fondos Federales

ocasionada por falta de datos para elaborar propuestas, y una

mala planificacio'n que obstaculiza el establecim iento de programas

de desarrollo.

Recomendacio'n

Debe establecerse un Centro de Informacio'n sobre Recursos

Marinos en el recinto de Mayaguez de la Universidad de Puerto Rico.

Hacia un Programa Saludable de Investiaaci6n

Los fondos para investigacio'n sobre problemas de Puerto Rico

nunca provienen del Gobierno In'sular. Cuando se otorgan, se hace

finicamente para proyectos aislados. De esta manera, se pierde la

continuidad requerida en la. investigacio'n. Los problemas de la

Isla que podrilan resolverse mediante la investigacio'n, se consideran

por un tiempo y luego se abandonan cuando se acaban,los fondos fede-

rales o privados. Debido a que las prioridades en Jos Estados Unidos

tienden a ser diferentes a las nuestras, muchos proyectos de la Isla

no reciben fondos o no llegan a completarse.

45.22

Recomendacio'n

La Legislatura debiera asignar fondos destinados especifi-

camente Para la investigaci 6n v el desarrollo orientados hacia el

mar v los asuntos marinos, incluvendo la investigacio'n necesaria

P ra Poder formular una politica p6blica en este campo.

Frecuentemente, cuando surge un problema dificil que requiere

investigacio'n y hay agencias gubernamentales con fondos disponibles

para este prop6sito, I a tendencia inicial es la de buscar el talento

requerido fuera de la Isla. Hay que reconocer que Puerto Rico ca-

rece de ciertos talentos t6cnicos y que es necesario obtenerlos

del exterior. Sin embargo, los expertos necesarios deber5an soli-

citarse primero en la Isla, de manera que se estimule el desarrollo

del talento local. @Las agencias gubernamentales debieran tratar

de que cuando se utilizen expertos del exterior, 6stos trabajen de

ce rca con el personal local para entrenarlo'mejor en las materias

de su competencia.

Recomendaciones

1. El Gobernador debiera enviarle una declaraci6n de politica

pfiblica a todas las agencias de gobierno al efecto de que-se-le- de"

preferencia a las facilidades y al talento local para trabajos de

45.23

investigaci6n.

2. Los expertos del exterior que vienen temporeramente a

Puerto Rico debieran trabalar muv de cerca con el personal local

para entrenarlo en las materias de su. competencia.

ARREGLOS INSTITUCIONALES

Los Arreglos Institucionales en el Gobierno estfin estrechamente

relacionados con las realidades socio-econ6micas, fisicas, culturales

y politicas de la comunidad', y deben de servir y responder a las

necesidades de e'sta. Una de las necesidades mds apremiantes es la
de desarrollar un esquema conceptual de los arreglos instituci"onales

que tome en consideraci6n las peculiaridades de Puerto Rico como,

sistema, particularmente el hecho de que es una isla peque:na.

Este esquema tambie'n deber& reconocer que Puerto Rico es una

sociedad en transicio'n., y Como tal, sufre una serie de tensiones

que se reflejan en prioridades y objetivos conflictivos. (Esto se

discute mAs detalladamente en el Informe del Sub-comit6 de Arreglos

Institucionales.)

La importancia del proceso de formular politicas para lograr

una estructura institucional consistente no se reconoce en la

actualidad gubernamental. Con relaci6n a la formulacio'n de politica

45.24

en el Area de asuntos marinos, hay una necesidad critica de estipu-

lar metas y de integrarlas a los objetivos sociales y econo'micos

generales.

Tambie'n cabe notar que.:

Muchos de los programas y actividades que afectan el

ambiente marino confligen entre si.

Es necesario poner en vigor todas las leyes y

reglamentos que breguen con asuntos marinos. En

esta Area la participacio'n ciudadana podrl'a jugar

un papel-importante.

Para tomar decisiones racionales el Gobierno debe

t.ener la informacio'n necesaria basada en la in-

vestigacio'n.

El tipo de estructura para la formulacio'n de politica pfiblica

en el Area de asuntos marinos que creemos mds deseable para Puerto

Rico le asigna a la Junta de, Planificacio'n la tarea de convertir

en directrices operacionales@las prioridades.sociales adoptadas

por la rama Ejecutiva y la Legislativa. A su vez, estas directri-

ces pasar.'Ian a las distintas agencias que bregan con los diversos

sectores.

45.25

El Departamento de Recursos Naturales, que empezara a ope-

rar en enero de 1973, debera ser el departamento operacional

encargado de desarrollar y administrar los distintos programas

en el area de recursos marinos. Tambien a este le correspondera

velar por el cumplimiento de las leyes y reglamentos, y conducir

investigaciones relacionadas a las actividades operacionales y

de desarrollo. Para llevar a cabo estas responsabilidades, el

Departamento debera seguir las politicas sectoriales establecidas

por la Junta de Calidad Ambiental.

Recomendaciones

1. El nuevo Departamento de Recursos Naturales debiera estar

a cargo de la ejecucion y operaci6n de programas en el Area de

recursos marinos, y debiera velar. por el cumplimiento de las leyes

y reglamentos que atanen a estos recursos.

2. La Junta de Calidad Ambiental debiera estar a cargo de la

formulacion de la politica publica del sector marino. Para rea-

lizar este proposito, debiera crearse dentro de dicha junta el

puesto de Director Asociado para Asuntos Marinos.

45.26

EDUCACION E INFORMACION

Durante los ultimos veinte anios,Puerto Rico ha canalizado

sus esfuerzos hacia la urgente necesidad de desarrollar su eco-

nomia y modernizar sus institucones. El enfasis en el consumo

y la industrializacion no ha fomentado una similar preocupacion

o conciencia de los problemas relacionados con otros valores

islenos fundamentales tales como la calidad ambiental y el desa-

rrollo equilibrado. El Gobierno debiera asumir un rol de liderato

para modificar los valores existentes y darle enfasis a concep-
tualizar y planificar a largo plazo. Obvia mente, la necesidad

de utilizar, desarrollar y conservar el ambiente marino para el

futuro es una preocupacion importantisima.

El ciudadano puertorriqueno de hoy esta escasamente conciente

de una verdad fundamental: de que vive en un pequeno territorio

isleno donde el mar es el traspais. El nino de hoy sera el hombre

del manana; por esta razon es necesario que todas las estructuras

educativas y de comunicacion en la Isla se pongan al servicio de

un programa orientado hacia estimular una mayor conciencia de los

asuntos marinos entre las nuevgas generaciones.

45.27

Recomendaciones

1. Debe designarse un Comite Asesor Puertorriguen que tra-

baje con el Departamento de Instruccion Publica hacia mejorar la

ensenanza de, asuntos marinos. Es necesario disenar nuevos cursos,

preparar nuevos materiales y proponer nuevos metodos Para entre-

nar a los maestros.

2. El Gobierno debiera fomentar una mayor interaccion entre

las escuelas, las universidades, la educacion continuada, la indus

tria, el comercio, y la nueva instruccion vocacional de manera que

se, desarrolle un interes oportuno y continuo respcto a los recursos

marinos.

3. El Gobierno debiera organizar concursos, proyectos, compe-

tencias y congresos de asuntos marinos para los estudiantes de

Puerto Rico y de otros paises del Caribe.

Un problema muy importante con el cual nos confrontamos es que

en Puerto Rico con frecuencia no hay expertos disponibles en areas

especificas de, asuntos marinos. La solucion no es unicamente la

de crear cientificos y tecnicos, sino tambien la de producir el

45.28

talento necesario para formular e implementar politica publica,

y desarrollar el talento gerencial en el campo de asuntos marinos.

Recomendacion

Los programas educativos actuales en el area de asuntos marinos

debieran apoyarse y fortalecerse. Se debe establecer un programa

degerencia ambiental,a nivel de maestria, que le de particular

importancia al analisis de politicas. Tambien es necesario crear

programas al nivel de bachillerato, y establecer cursos y seminarios

cortos para funcionarios publicos.

Se necesitan mecanicos diestros para darle servicios a las

embarcaciones pequenas que se fondean en Puerto Rico. Parte del

trabajo que generan estas embarcaciones se esta realizando actual-

mente, pero hay esperas extremadamente largas para, servicios de

electricidad y mecnica de motores, y por lo general los tecnicos

no son puertorriquenos.

Recomendacion

Las escuelas vocacionales debieran extender su curriculo para

incluir entrenamiento en las diversas ramas de tecnica nautica,

45.29

tales como electr6nida y mec6nica-marina, construcci6n de embar-

caciones, reglas de salvamento, V otras.

Existe un motivo en el campo de los asuntos marinos que

caracterIza a todas las operacio nes gubernamentales.. Se trata

del hecho de que las organizaciones privadas y los ciudadanos

interesados, con frecuencia no tienen acceso al caudal de informa-

ci6n disponible.

Ademds, la part icipaci6n de la ciudadani'a se ha limitado a

las vistas pfiblicas, luego de que el tema de la vista ha sido

discutido ampliamente dentro de las respectivas agencias. El re-

sultado es que a menudo estas vistas sirven para legitimar las

decisiones ya tomadas.

Recomendaci6n

El Gobierno debidra establecer mediante estatuto disposiciones

similares a las establecidas en la Ley de Libertad de Informaci6n

Federal. En lo que esta legislacio'n se pone en vigor, las agencias

deben establecer sus propias poll'ticas de Libertad de Informaci6n'

permitiendo la liberacio'n de cierta clase de informacift sin auto-

rizaci6n especifica al efecto.

45.30

Como un objetivo a largo plazo, las reuniones de las agencias

del Gobiernotales como, la Junta de Planificaci6n y la Junta de

Calidad Ambiental, deberan abrirse al publico para que la ciudada-

nia este informada de lo que esta ocurriendo.

Recomendaciones

1. Las agencias gubernamentales cuya responsabilidad es bregar

con problemas ambientales debieran proveerle al publico con bastante

antelaci6n la agenda de las reuniones publicas a celebrarse. Las

minutas tomadas durante las reuniones debieran estar disponibles

Para el publico dentro de un periodo despues de las reuniones.

2. Las agencias gubernamentales debieran tomar la iniciativa

de invitar a los ciudadanos a las vistas publicas para que estos

sometan sus memorandos y puntos de vista.

EL ROL DE PUERTO RICO EN EL CARIBE

La regi6n del mar Caribe incluye su archipi6lago y el litoral de

las masas continentales circundantes. El mar incluido en este

territorio es un recurso comun que comparten todos los paises de

la region. Por lo tanto, la preocupaci6n por el desarrollo racio-

nal, la explotaci6n y la conservacion de este recurso constituye

una obligacion moral para todos.

45.31

El rol de Puerto Rico en el Caribe se visualiza mas bien

en terminos de colaboracion y no de liderato. Esto implica que

aunque Puerto Rico tiene mucho que ensenarle a la region, tambien

puede aprender mucho de esta. Implica ademas que ya que los es-

fuerzos previos hacia una colaboracion formal entre los paises de

la region han decaido, estos esfuerzos deberan cederl e paso a los

intentos para lograr una colaboracion informal y funcional utili-

zando las estructuras existentes del Caribe. Esta vision tambien

conlleva el que la relacion bilateral entre Puerto Rico y los

Estados Unidos se complemente con una serie de relaciones multi-

laterales con las islas del Caribe.

Sin duda, la aceptacion y la persecucion de estos imperativos

ayudara a fomentar la creacion de una nueva y viable personalidad

internacional para Puerto Rico.

Recomendaciones

1. En el area del Caribe hay un marcado contraste de tierras

pobres y mares ricos. Es urgente buscar nuevas industrias con

orientacion maritima que sean ecologicamente prudentes, econmica-

mente factibles, y socialmente deseables.

La Administraci6n de Fomento Econ6mico y el Departamento de

Comercio de Puerto Rico debieran iniciar un programa de estudios

45.32

sobre la viabilid ad economica y tecnica de establecer nuevas

industrias marinas en el Caribe.

2. La tecnologia y ciencia marina es un campo relativamente

nuevo y en constante crecimiento. La necesidad de que los paises

del Caribe compartan recursos y talento para fomentar el desa-

rrollo marino resulta ser crucial.

Se debiera establecer en el Centro Norte-Sur un programa

nuevo y vigoroso que este dedicado a estimular el intercambio

tecnico y a la celebracion de reuniones para los profesionales

de la region.

3. La region del Caribe es cada vez mas un area de activi-

dad interterr itorial. Sin embargo, hasta ahora casi todas las

relaciones entre paises han sido localizadas, fragmentadas y mal

coordinadas. Es muy necesario que el Gobierno de Puerto Rico

este mejor informado de las actividades del Caribe y participe

activamente en los asuntos de la region.

Debe establecerse una Oficina para Asuntos del Caribe dentro

de la Secretaria de Estado de Puerto Rico al nivel de Secretario

Auxiliar.

4. El ciudadano promedio de Puerto Rico no esta debidamente

informado acerca de las demas sociedades del Caribe. El exito

de las contribuciones puertorriquenas a la cooperacion regional

45.33

requiere desarrollar internacionalmente la conciencia de que

Puerto Rico pertenece al Car ibe.

El Departamento de Instrucci6n Publica debiera:

a. fortalecer aun mas la ensenanza del ingles, un

importante idioma del Caribe, en el sistema escolar;

b. introducir la ensenanza de uno o dos de los otros

idiomas importantes del area; y

c. desarrollar e introducir libros de texto que faci-

1iten los estudios sociales orientados hacia el

Caribe.

5. La cooperacion entre los distintos paises del Caribe se

ve seriamente obstaculizada por los actuales sistemas inadecuados

de comunicacion y transportacion.

El Gobernador de Puerto Rico debiera tomar la iniciativa de

convocar una conferencia de representantes de los distintos paises

del Caribe para deliberar sobre como mejorar los sistemas regionales

de comunicacion y transportacion.

45.34

PARA EL FUTURO

Hemos recalcado que Puerto Rico de hecho cuenta con los

recursos, las habilidades y la energia abundante para derivar

del mar muchos de los bienes que tradicionalmente se han

obtenido del suelo. La vulnerabilidad de los ambientes marinos

requiere que actuemos sistemdticamente y con cuidado. En este

informe hemos tratado de indicar.algunas de las maneras de

actuar que creemos serian ventaJosas.

El pro'ximo paso es que el Gobierno de Puerto Rico inicie

un programa de acci6n. Muchas de las recomendaciones en este

informe pueden ins,trumentarse inmediatamente. Otras requieren

que se tomen medidas intermedias, tales como instituir legisla-

cio'n y conseguir fondos adicionales. Para acelerar la acci6n,

re comendamos que se establezca dentro de la Oficina del Gobernador

una Unidad Especial de Proyecto, como se describe en el Informe

del Sub-comite' de Arreglos Institucionales.

Como epilogo, suge rimos que el Gobierno vuelva a convocar el

Comit6 Timo'n y los, Sub-comit6s un afto luego de entreg&rsele al

Gobernador el informe "Puerto Rico y el Mar". Asi los comites

podrian revisar sus recomendaciones y las acciones toma,das al

respecto. Esta es una propuesta innovadora por parte de un comite'

de ciudadanos, pero una que puede proveerle continuidad al inter6s

45.35

por los problemas expuestos en el informe, y estimular al Gobierno

a prestarle atencio'n a 6stos.

45.36

SECTION 1 REPORT OF SUBCOMMITTEE
ON LIVING RESOURCES

INTRODUCTION

The Living Resources Subcommittee considered its scope of

concern to include all living resources within the zone of ma-

rine influence, that is,from.the 100-fathom contour stretching

inland to coastal wetlands, whether fresh or salt; and also the

offshore islands, each of which is a special product of marine

forces. Within these areas of land and sea, we recognize a

number of distinct habitats for living things, including fresh

water, brackish,.and salt marshes; dunes, beaches, rocky shores,

lagoons, estuaries, mangroves, reefs, the sea bottom and the

sea itself.

The marine community is a complex web of intricately related

habitats. Each habitat helps support its distinctive living re-

sources. The various kinds of habitats are linked together by

the marine organisms, many of which during their life cycles de-

pend upon more than one habitat for survival.

Northern latitude natural communities are under constant but

unstable environmental stress. Characterized by relatively few

species and large populations, the communities are able to adapt

to drastic cyclic environmental changes, and make rather quick

adjustments to new environmental atresses. Tropical communities

are less,able to cope with environmental instability. As a re--

sult of the stable environmental conditions under which tropical

communities evolved, the relationship between their species com-

ponents is very complex and very specialized, but the relation-

ship between the species and the environment is direct and sim-

ple. Consequently, tropical marine communities are very suscep-

tible to environmental change.. Damage or destruction of one

marine community or habit at is quickly.felt and reacted to by

many of the others.

Measurable losses in seascapes and landsc.apes have occurred.

Reef systems have been pi lfered for coral and tropical fish.

Pristine beaches and dunes which were once sought after for

pleasure no longer exis t. Marine life forms such a's-the green

turtle and the Manati are rare and endangered because of overfish-

ing and habitat destruction. Once thriving reefs are dying or

dead because of sedimentation, turbid water and other forms of

pollution.

The marine resources, which Puerto Rico once took for granted,

are now finally creating attention. A m ore affluent society, while

slowly contaminating or eliminating marine environments, has

nevertheless become accustomed to the sea as a source of food and

pleasure. The community now looks to the sea with a.different

point of view: the quality of life is greatly enhanced by care-

ful nurture of the sea and its resources, both living and non-

living. It has become the task of the community at large to

reapprai se public policy, to create he w mechanisms and systems

to protect and manage the marine resources, and to look for in-

novative ways to develop them for the benefit of the community.,

PROTECTION OF LIVING RESOURCES

The living resources of the tropical marine ecosystems are

dispersed through a series of communities, each highly diversi-

fied in their species composition, highly specialized and highly

dependent upon each other. These tropical marine communities

exert important and diversified influence up on the land systems,

especially island land systems. This influence is in inverse

relationship with an island's size. Some small islands are formed

of 100 percent biogenic calcareous marine sediments. Puerto Rico
has 380 miles of coastline'over a total 3,400 square miles. The

magotes and the northern coastal plains are largely coraline de-

posits, and many of the natural beaches are formed by protective

coral-reef barriers. If the coral reefs protecting the beaches

were to disappear, the calm waters of Luquillo Beach, for example,

and the deposited sands would be lost.

The value of our marine living resources extends beyond their

influence upon our coastal geomorphology. Marine communities are

also productive areas for commercial and sport fishing, educational,

recreational and touristic endeavors. All too often land planners

fail to consider the impact of their developments and land-use

schemes upon fresh, brackish and salt-water marine systems. Ma-

rine resource users,.such as commercial and sport fishermen and

recreationists, compete for, overuse and deplete some of the com-

ponents ofIthe marine environment to the overall detriment of the

system. The net resul t is the slow elimination of marine habitats,

which sc ience is beginning to prove are essential to the wel 1-being

and survival of man himself.

Coral Reefs and Mangrove Areas

Of the marine living systems of Puerto Rico, the most critical

in terms of their role to the entire neritic habitat are the coral

reefs and the mangrove estuaries. These are also the most critical

in terms of their current rate of destruction.

Reefs

Coral reefs are among the most biologically prod uctive, diverse,

and aesthetically unique communities on earth. They also comprise

the most extensive shallow-water habitats. Puerto Rico's reef

community fringes about 75 miles (20 percent of our coastline.

Because the reefs are submerged, we do not readily See and

become concerned about the effects of man's activities upon them

as easily as we see his effects upon a forested habitat cut and

flattened for urbanization. Puerto Rico's coral reefsare seri-

ously threatened by a variety of man's activities, namely,.sedi-

mentation from poor land use and dredging, sewage poll ution, oil

and thermal pollution from industries and coral extraction.

When a reef community is destroyed, the ecological conditions

become such that it cannot be taken for granted that the reef

community will ever replace itself. Surveys.and studies have shown

that 30 years after the destruction of a reef, there was no sign of

regeneration. A reef cannot sustain itself without the presence of

the coral polyp. This living organism creates an environment fa-

vorable to myriad kinds of animals. If the corals are killed, the

other organisms migrate or die. The entire system eventually dis-

appears.

Reefs serve mankind in many important ways. They provide a

buffer against seas pounding shorelines. Consequently, they moderate

currents and also influence the de position of sand essential to the

formation and maintenance of beaches. Shoreline has been known to

recede inland by as much as two kilometers resulting from reef

destruction. The progress ive degeneration of the reefs off the

Isla Verde coastline is directly attributable to the dredging

of the Boca de Cangrejos channel and the escape of lagoon sedi-

ments that created the musky waters that coral cannot tolerate.

Reefs shelter and support the majority of fishes and crus-

taceans that are commercially extracted from our coastal waters,

most importantly snappers, groupers, parrot fishes, grunts, lob-

sters and mollusks.

The recreational values of coral reefs are well.known and

growing; they provide for fishing, diving and.unusual scenic

appreciations. Scientific and educational values are high: little

is really known and understood about how reefs form, the ecological

succession of the reef community, rates of coral growth, food chains,

and physiological tolerances to various disturbances.

Recommendations

1. Lecfislation should be established to create a system of

Publiclv-owned marine environmental sanctuaries. (A proposal for

legislation to accomplish this recommendation is appended as Legis-

lative Proposal No. 1.)

2. Legisla tion should be established to prohibit the removal,

transport, possession and/or sale of coral from any reef fring in.

Puerto Rico's shoreline, and the importation of coral from else-

where for sale or resale in Puerto Rico. (A proposal for legisla-

tion to accomplish this recommendation is appended as Legi slative
Proposal No. 2.) Z-See also similar recommendation of'Subcommittee

on Coastal Zone Management on the protection of coral./

Mangroves

The pioneer vegetation of shores with quiet salt water is a

swamp forest known as a mangrove. Generally, mangroves are identi-

fied as an ecological unit rather than a species. Four major types

of mangroves have been identified in Puerto Rico, the most impor-

tant of which is the species Rhizophora or red mangrove. These

mangroves basically have similar characteristics in that specialized

root systems are established, which form an interwinding mass be-

neath the surface of the water. The seeds germinate and become

viable when detached and fall from their parent,.and may become an-

chorage as they drift in the water.

Mangroves have several long-term and short-range beneficial

characteristics. They are efficient builders of land. Their root

system retards and stabilizes the movement of the water, and because

of this, suspended sedim ent is deposited among the trees, gradually

raising the land level. Because of the calmness of the water,

the sediment deposited is silt and clay rather than coarser sand.

The organic material deposited by the mangrove together with these

mineral deposits produce a rich organic soil. As soil is accumu-

lated, the mangroves march steadily seaward into new.waters. A

second characteristic of the mangrove is that the combination of

large amounts o organic matter and the extensive root system

form a rich, protected substrate in which a large variety of orga-

nisms live. These organisms serve as a food base for marine fauna

and flora, some of which, such as oysters and crabs, are directly

harvestable. Some fish of commercial importance, such as snapper,

are found living under the canopy formed by the mangrove roots,

while others spend part of their life cycle there for breeding and

spawning. Nearly two-thirds of salt-water fish life is directly

or indirectly dependent on mangrove areas for its survival. The

fish either spawn or live in mangrove areas; or eat organisms, part

of whose life cycle is spent in mangrove areas.

Mangrove areas form part of the nesting habitat for native

and migratory bird species. Some of these water fowl are hunted

as game birds while others, such as the Cattle Egret, are largely

responsible for erradication of a serious tick'problem among dairy

cattle.

Recreational and touristic values can be associated with

these lands, but at present little or no use has been made of

this potential. Finally, mangroves are valuable as objects of

scientific and ecological study.

The only' study that has .been made describing the mangrove

communities in Puerto Rico was done by Heatwale. According to

his 1960-survey of topographic maps, the total area occupied by

mangrove swamps was 16,600 acre s. Other studies had determined

that mangrove swamps deposit several unique types-of soil. Cork-

sequently, whenever any of these soils occur, it is known that

at one time that area w as covered.with mangrove.. The maximum

extent of estuarine soils wa s 65,000 acres. By mid 1960's the

total estuarine areas were only two-thirds as large, or 41,400

acres of,which 18,200 were in open water and 23,100 were land.

Of the land area, only 16,600 acres were in mangrove, representing

a deforestation of 6,500 acres or 28 percent. About half of the

mangrove areas left today are now in public ownership. Neverthe-

less, all are seriously threatened.

Deforestation did not occur uniformly over the entire island:

some zones show a complete loss of mangrove, others virtually none.

Neither the casual factors resulting in this loss nor the time it

occurred is known.

The destruction of mangroves between the mid 1960's and 1970's

has' been great. However, assessment must depend upon ground surveys

of particular areas. Many of those that were sampled show extensive

destruction. In some instances, draining has been deliberate to

provide additional areas for agriculture and building. Other ins-

tances have resulted from ignorance or careless disregard. For

example, the Boquero'n mangrove has been 88 percent destroyed owed
to effe@ts of road construction, which modified.drainage patterns.

Sand removal and the concomitant influence upon drainage patteTns

have also caused some destruction.

Recommendations

1. All existing publicly--owned mangrove areas-not included

in the proposed Marine Environmental Sanctuaries should be imme-

diately consolidated into one government agency and be made part

of the Commonwealth Forest System. An immediate one-year mora-

torium should be declared on the development of all other existing

mangrove areas, presumably all privately-owned and comprising about

7,400 acres. During the one-year moratorium the newly-created

Department of Natural Resources should inventorV and studV these

area-s and submit its recommendations in legislative form for the

public acquisition of all or part of the privdtely-owned mangrove

areas.

2. The DeRartment of Natural Re sources should take steps

to derive and implement management plans for the publicly-owned

mangrove areas to quarante harmonious use: the various uses

for the mangroves should supplement each other as much as possible,

but interfere with each other as little as possible.

3. An environmental ethic and public policy should establish

that th existing environmental qualiLy of any of the reefs and

mangrove areas will not be degraded by works of man which may be

established outside of the reefs and mangrove systems.

AQUACULTURE RESEARCH, DEVELOPMENT AND TRAINING

Although the fisheries of Puerto Rico have received increased

attention in the past decade, most of the efforts have been oriented

toward the hunt and search operations that fishing in natural waters

entails. Only cursory attention has been given and little energy

spent on the investigation and exploitation of the aquacultural re-

sources of the country. The success obtained by aquacultural en-

deavors in other nations, at times even under the most primitive

levels of management and techniques and under-most difficult. condi-

tions, supports the belief that the future contributions to the

fisheries of Puerto Rico from aquaculture could be highly significant.

Aquaculture in Puerto Rico deserves much more attention than

it is now receiving. The inland, estuarine and coastal areas and

the remaining area that comprises the insular shelf surrounding

Puerto Rico offer a large potential for tapping aquacultural re'-

sources, both at the subsistence and commercial-industrial levels.

Aquatic Life

Tropical marine communities are characterized by many different

kinds of fish but relatively few of each kind. Fish catches in

traps or by sieving result therefore in capturing few commercially

valuable fish. These are sold, of course, but the non-commercial

or "trash fish" are thrown away. This procedur e constitutes a'

substantial drain on the fisheries' productivity. Many of the wasted

specimens are not consumed because people have either not learned

to eat them or how to process them., The solution of this problem

through an aquacultu.ral research program could have immediate and

practical significance to the local fishing industry.

Per capita annual consumption of seafood (mostly fish) in

Puerto Rico is twenty-two pounds. However, more than 21 pounds of

it is imported, representing a dollar drain from the Puerto Rican

economy. Our aquacultural research program combined with efforts

to improve the commercial fishing industry might well reserve the

dollar flow by creating a strong local series of fishing enter-

prises. Preliminary research by the University of Puerto Rico,

De partment of Marine Sciences reveals that aquaculture can'be a

.profitable venture, but that techniques must be further tested.

and refined.

Many species of fish, mollusks, crustaceans, and algae in-

habiting the fresh, brackish and marine waters of the island

promise to bec ome highly successful aquacultural crops. Further-

more, some of these organisms have already been cultured inten-,

sively in other countries. Among these forms, the most commonly

utilized have been the channel catfish, the cichlid fish of the

genus Ij@, the pompano, the mullet, and a number of shrimp

species of the genus Macrobrachium.

Progress in aquaculture throughout the world ha's been very

slow. The practice finds itself at a stage similar@ to that of

agriculture at least 50 years ago. Programs in aquaculture have

been generally patterned from experience with the research-teaching-

extension approach so successfully applied to agricultural endeavors.

Extensive and intensive aquacultural research programs are conducted

in experimental units, which are utilized for research in much the

same way that field plots are used 'in investigaItions on agronomy.

Therefore, adequate facilities are required to insure that good

training is provided and valid research is conducted. Existing

facilities available in Puerto Rico to conduct research and to offer

training at various levels (academic-professional, technical and

extension) are insufficient. Suitable facilities will have to be

built to eliminate these deficiencies.

The ever-increasing demand for exploitation of the aquacultu ral

resources not only in Puerto Rico but also in the other islands of

the West Indies and in Latin American nations, provides new and in-

novative 6pportunities to governments and institutions of higher ed-

ucation in Puerto Rico and abroad: to prepare well@trained indi@7id-

uals capable of conducting valid basic and applied research in this

field and to supply the present and*future demanis for aquaculturists

in Puerto Rico, other Latin American countries, and our neighboring

I lands. Since Puerto Rico is so advantageously situated in the
s

West Indies and because of the bilingual nature of a large segment

of its inhabitants, the Island is in an enviable position to serve

as the "stepping stone" between Northand South America.

A research and training center is the site where new ideas are

born, developed, and tested. Such a center is also a most effective

tool by which to train new individuals in aquacultureand allied

fields. Generally, location of such center is at a university. The

university facilitates the professional-academic, technical and ex-

tension training of individuals. I t permits students (under-graduate

and graduate) to assist in the research b lucted at the cen-

ter and in all other.operations of the facility At the same time,

it allows these students to gain experience and to benefit from vari-

ous, types of scientific endeavors. Location of the center at a uni-

versity makes it possibl:e also to receive the cooperation andseek

consultantship of-scientists and specialists from other fields who

are employed in the institution. An example of such an arrangement

between an aquaculture centerand a.university is the International

Center for Aquaculture of the United States, located within Auburn

University, Auburn, Alabama.

The present high interest in aquaculture in the industrial s-ec-

tor of Puerto Rico makes it imperative that the government encourage

developing adequate technological an-d scientific knowledge. Scien-

tists, through their investigations and counsel, would provide the

necessary information to help in the implementation of aquaculture

industries in Puerto Rico; moreover, they would help safeguard the

island from unprincipled or ill-prepared entrepreneurs.

Recommendation

The Commonwealth should initiate a p rogram in aguaculture rec-

oMizinq_ three main cultural, sociolo2ical and economic elements:

(1) the urgent need to train Puerto Ricans and people from other

Caribbean countries and Latin American nations; (2) the dire need to

increase high -quality animal protein in the diet of some segments of

the human populations inhabiting the above areas, and (3)-the indust-

rial (commercial) potential that aquacultural resources exhibit.

The program should be centered at the Mayaguez Campus of the Univer-

sity of Puert o Rico. (A proposal for legislation to accomplish this

recommendation is appended as Legislature groposal No. 3.)

Drugs and Pharmaceuticals

Any substance introduced into an organism in a sufficiently.

high amount will exert toxic or pharmacological effects, that is,

it will modify physiological functions. Some compounds, however,

exert marked biological effects when introduced into the body in

low concentrations. These are known as "biologically active sub-

stances". They are called "drugs" from a purely scientific view-

point, that is, they are compounds that can be employed as tools for

the investigation of physiological functions. They can also be

called toxins or poisons.

In addition, some of these compounds are medically useful be-

cause their biological effects can be employed for the prevention,

diagnosis, or cure of disease. These are commonly known as pharma-

ceuticals or drugs in the more restricted medical sense.

An abundance of biologically active substances exist unknown to man-

kind in terrestrial plants, animals, and microorganisms. The largest

untapped source is believed to be the sea. Although historically

man has discovered many pharmaceutical properties of plants by sim-

ple ingestion and observation, the successful discovery and develop-

ment of marine pharmaceuticals today require a highly sophisticated,

multidisciplinary approach. Potential marine sources of these bio-

logically active substances include the sea water itself, marine

microorganisms, sponges, jelly fishes, corals, starfishes, sea ur-

chins, mollusks, and of course many species of fish.

Knowledge of drugs and toxins of marine origin is important

from two separate viewpoints. First, it may lead to developing new

pharmaceuticals. Second, knowledge of marine toxins is essential if

we want to take advantage of the full potentialities of the sea as a

source of food for mankind. We do not want to be fearful of, say,

ciguatera poisoning.

As emphasized above, the research and development needed for

getting drugs from the sea must be based-on a broad, multidiscipli-

nary approach. Accordingly, the process can be successfully accom-

plished only in an environment with a high level of academic, tech-

nological, and industrial facilities. For obvious reasons, it is

,not only desirable but also essential that such research facilities

should be located near the source of the potential compounds: the

sea itself.

Puerto Rico is an ideal place to pursue such activities. It

possesses highly developed academic, biomedical, and industrial fa-

cilities. Furthermore, all laboratories and research institutions

on the island are located within a few miles from shore.

In addition, the sea surrounding Puerto Rico is tropical and

the variety and diversity of marine species, both vertebrate.and in-

vertebrate, are maximal in tropical seas. Therefore, the chances

of finding new biologically active substances, and eventually marine

pharmaceuticals are much greater here than in northern waters.

Finally, there is another factor that may greatly contribute

to the research and development of marine drugs: the Puerto Rican
pharmaceutical industry. The promotion 'of research and development

of marine pharmaceuticals in Puerto Rico might give these firms the

opportunity to help the overall academic and technological development

of the community7 also the inverse could hold.

A multidisciplinary approach would be needed wherein all the

activities are centrally coordinated. Activities would include bio-

logical screening, 'rough identification, extraction and isolation,

chemical characterization, pharmacological studies, acute and chronic

toxicity studies, clinical testing, and industrial development.

Recommendations

The Government should:

1. 2@aqressively encourage and finance activities directed

toward the identification, characterization, and practical appli-

cations of_biologically active materials of marine origin.

2. Create a research and development fund part of which would

come from pharmaceutical firms established in Puerto Rico, in a

manner similar to ]2etrochemical industry contributions to the Con-

servation Trust Fund.

3. Charter an-organization or entiLy within the framework of

the University of Puerto Rico to develop, 2romote and coordinate

multidisciplinary co22erative research programs, and to make and

supervise research grants.

FISHIUG AS A COMMERCIAL ENTERPRISE

Local fish production has not increased much within the last

twenty years owing, in part, to depressed financial and technolog-

ical status of the local fishermen.

Approximately 2,800 people are engaged in commercia, 1 fisheries

(excluding the,tuna canning industry) in Puerto Rico. Of these,

only about 1,000 are full-time fishermen. The average annual pro-

duction per fisherman is slightly over 3,000 pounds, with a value

of $1,500 to $1,600. Although the production from specific regions

of the Island are greater than in others, the above figures on vol-

ume and value are relatively uniform throughout all fishing centers.

(Juhl, 1969; Suarez Caabro, 1970). Thi's low level of productivity

stems from scarcity of fish resources inshore; lack of knowledge

about the off-shore resources, modern fishing methods and gear; ob-

solescence of fishing craft, and lack of adequate credit facilities.

The fishing fleet includes about 1,300 boats ranging in size

from 14,to 40 feet, most of which do not have mechanized fishi ng

.gear. As a rule, these boats are not operable off-shore.

The ongoing Fisheries Development Program, Under the sponsor-

ship of the Puerto Rico Department of Agriculture and the U. S.

Department of Commerce and authority of PL-88-309 (Commercial Fish-

eries Research and Development Act of 1964) have demonstrated that

commercial fisheries production can be increased substantially in

Puerto Rico through the adoption of improved vessels, equipment and

fishing gear. This has been proven through the activities of the

Exploratory Fishing and Gear Tests project undertaken in most of the

coastal fishing centers of,the Island.

These tests have been conducted overthe past five years in over

30 fishing centers of Puerto Rico. The results of the tests indicate

that commercially significant fish resources exist in off-shore

waters, and that the local production of approximately five million

pounds could be substantially increased by harvesting these resources.

The exploratory fishing results demonstrated that 'fish-pot production

from depth greater than 20 fathoms was from three to fifteen times

greater than in shallower, depth. Traditionally the fish pot, which

is the most common gear used commercially, is pulled by hand. This,

of course,.has limited its.use to,shallow waters.- Based in part on the

exploratory results, it is estimated that the total island production

could be increased at least threefold, to 15 million pounds annually.

Fishermen need to acquire larger and better equipped vessels to

take advantage of the off-shore resources for increased production.

To fill this need, two types of vessels have been designed and are

considered ideally suited for the local conditions.

To operate these vessels effectively, these men must also be

trained in the use (but not limited to), operation and maintenance

of modern equipment and gear.

.A credit program could be implemented so that the fishermen

could acquire vessels of.the type designed and tested by the Depart-

ment of Agriculture, one a 24-foot an d the other 40-foot. The Agri-

cultural Services Administration would be charged with the construct-

ion and sale of the vessels. The Department of Agriculture would

offer a subsidy for'the acquisition of these vessels of 50 percent

of the total cost up to a maximum of $5,000. The balance would be fi-

nanced by the fishermen through the Agricultural Credit Corporation

(affiliate of the Dep artment of Agriculture). This Corporation would

provide lo ans, payable within ten years, to acquire these vessels.

Hull and mortgage insurance would be provided through the Office of

the Agricultural insurance, Department of Agriculture.

The fishermen must be adequately tralned in order to operate

these vessels effectively. Training should include (1) principles

@of navigation, (2) diesel'motor operation and repair, (3) refriger-

ation, (4) fishing gear, methods and equipment, (5)-maintenance of

vessel and equipment, (6) marketing and distribution, and (7) prin-

ciples of small business management.

On the job training should also be available aboard the vessels

of the Department of Agriculture or the Department of Marine Sciences

of the University of Puerto Rico.

The accompanying table shows estimated four-year budget for this

program.

Four-Year Program For Fishery Vessels

Insurance Adminis-
No. of Insurance Following trative Training
FY Vessels Subsidy Initial Years ExRense Expense Total
1973-74 20 $75,000 $26,000 $ - $15,000 $25,000 $142,600
1974-75 20 75,000 27,600 26,220 15,000 23,000 163,820
1975-76 40 150,000 55,200 51,660 15,000 22,000 293,260
1976-77 40 150,000 -55,200 100,740 15,000 23,000 343,940
$450,000 -$165,600 178,020 $60,000 $90,000 $943,620

Recommendation

The Government should establish a program of financial and

training assistance to stimulate a strong, locally-based commerci.;.:1.1

fishing industry. (A proposal for legislation to accomplish this

recommendation is appended as Legislative Proposal No. 4.)

GAME FISH

Recreation in the marine environment of Puerto Rico is growing

rapidly. Marinas, hotel-resorts, public beach developments, and near-

shore housing projects are attracting more investment and more people

than ever before. The result has been a sudden decline in the quality

of marine recreation, especially for game fishing.

Rapid and 'Uncordinated development and use of the coastal envi-

ronment has produced a variety of stresses: accelerated beach ero-

sion, effluent pollution, sedimentation, turbidity, over-fishing and

the depletion of other marine life forms upon which the int egrity of

marine communities depend.

These stresses have had an adverse impact upon the fisheries for

commercial as well as for recreational use. The combined effect of

the various stresses has been to reduce the supply and quality of

marine organisms that fishermen seek. Consequently, fishermen must

spend more time at sea, travel farther from Puerto Rico's shores, or

rely on illegal or highly suspect methods of harvest to secure their

catch. The current trend of a declining fishing resource is self-

perpetuating and works against present promotional.efforts aimed at

attracting tourists or at sati .sfying local recreational needs and

demands.

The recreational fishing resource has a great potential. Pro-

grams are needed to.improve the condition of the present resource and

then to protect and further develop them. The waters to be included

in such a program includethe seas, reef.systems, estuaries, lagoons,

rivers, canals, streams and lakes.

A first step in achieving the full potential of recreational

fishing [email protected] number of changes in managing fishing habitats.

After these changes have taken place and protection of the fishing

resource.is. assured, a development program can be undertaken.

Two major factors affect the current quality or condition of

fishing habitats: pollution and poor law, enforcement. These negative

factors will have to be eliminated before any sincere efforts to man-

age recreational fishing habits can be successful.

Domestic and industrial wastes are dumped into nearly all of our

rivers and estuaries, and into many of our lagoons. Some of the la-

goons and close, inshore, shallower waters are favorite boating areas.

There is no attempt to regulate boat size, horsepower or speed in

these ar eas. wave action from the larger boats disturbs marine life

in the lagoons and promotes turbidity by stirring up sediments. In

some areas, trash, litter, oil, gasoline and sewage from boats and

marinas have become serious problems. The scenic.wonder, tranquil-

ity, andibeauty of many of our lagoons are thus ruined for recrea-

tional use.

Recommendations

The'Environme'ntal Quality Board, working with the Department

of Natural Resources, should establish strict environmental controls

for rivers, lagoons and-estuaries. Separate controls should be or-

ganized to regulate the characteristics of allowed boats (size,

horsepower and speed) in these areas.
7

Good fishing attracts residents and tourists which represent

money made or lost by local economies, hotels, restaurants, service.

businesses, fishing guides, boat charters, bait and tackle shops.

Many fishing areas in Puerto Rico have not been developdd. Others
are in poor condition. Attempts should be made to develop, recon-

dition and manage geographically dispersed fishing areas so that no

particular areas are subject to overuse., Dispersement would also

provide economic stimulus to remote areas at present little used by

local sportsmen.'-

Recom"mendation

The DepartVient of- N4tural- -Resources. should locate,_

inventorV and classifV known and potential sport fishing areas

throughout Puerto Rico where recreational fishing can be initially

'concentrated and developed.

The lagoonst estuaries, lakes and rivers with their potentially

exciting snook (r6balo), tarpon (sAbalo) and fresh-water largemouth

bass (lobina) fishing are in need of a rest from the destructive

use. of the long net (chinchorro) and throw net (tarraya) These

devices are prohibited by law. Many. other laws passed to insure

resource protection and recreation diving and fishing are ignored

by fishermen and police. This problem is the crux of most environ-

mental difficulties connected with game fishing in Puerto Rico.@

Good legislation (which we have in part), well-organized and proper-

ly enforced (which we do not have) is essential to protect quality

resources.

Responsibl e laws must be established and strictly enforced to

protect and attempt to increase our spiny rock'-lobster population.

Such regulations should establish limits on size of lobsters taken,

numbers taken per day, seasons in which they can be t aken, and method

by which they can be taken. Any form of spear should be prohibited,

7.1

in the taking of lobsters. Puncture holes in should be

e rs
shoul
considered evidence that a spear has been used. d be

illegal if they are in the same boat with lobs6@:c@,`t_ ils. The fe-

male lobster, with eggs, should always be released.

Colorful reef fish are indiscriminately harvested by using

chemicals and sold to hobby shops and aquariums by professional

collectors. This practice should be made illegal.' Conchs and tur-

tles, now relatively rare in Puerto Rican waters, must be strictly

protected.

The very presence of spear fishermen.often drives fish from

frequently dived reefs. The image of the man swimming, the sound

of the spear gun being fired, the sound of the death -struggle by

the speared and dying fish, and the presence of blood in the water

all combine to set up a conditioned response offear in many fish

at the mere sight of man. This is especially true in large and

highly sought-after species, such as groupers and snappers, many

of which live long periods on a particular reef'. Man's presence

is apt.to drive them out of the ar eas where they are hunted. Reefs

barren of,fish is one result.

Recommendations

1. The Department of Natural Resources should studyand eval-

uate all existing laws and regulations pertaining to s2ort f ishing_

and re ommend to the legislature a new, up to-date, and uniform

set of laws with correspondinq 2rovisions for enfor cement central-

ized under the Department. Such legislation should prohibit

spearfishing and the use of chemicals in any marine envircnment.

2. The DeRartment of Natural Resources should administer

the fishing iaws and provide training for professional wardens.

SUBCOMMITTEE ON LIVING RESOURCES

APPENDIX

Legislative Proposal No.

"To Establish Marine Environmental Sanctuaries."

Legislative Proposal No. 2

"To amend Article 3-A of Law No. 83 of May 13, 1936,

...prohibition of coral, extraction."

Legislative Proposal No. 3

"To Establish a Center of Aquacultural Research,

Training and Development at the University of

Puerto Rico, Mayaguez."

Legislative Proposal No. 4

"To Establish a Program of Financial and Tech--tical

Assistance for Commercial Fishermen."

LEGISLATIVE PROPOSAL NO. 1

To create a system of Marine Environmental Sanctuaries,

define their location and boundaries, establish provisions for

their management and administration, and to assign funds for

their immediate protection through law enforcement activities.

Exposition of Motives

Expanding population and a rising standard of living com-

bine to place unprecedented demands on the natural resources of

Puerto Rico. The result is progressive deterioration of environ-

mental quality; the air we breathe, the water we drink, the areas

in which we take our recreation, plant and animal-habitat, and the

natural beauty of our Island.

Safeguarding the environment--air, water, land and plant and

animal habitats--is a necessity to maintain conditions under which.

man, as well as wildlife and plants, may continue to exist in a

good quality environment while expanding living standards.

The responsibility of the Commonwealth Government includes the

exercise of leadership in the wise use of all natural resources,

including diverse plant and animal habitats and the interrelated

ecological systems found on the land, along the coast and in the

ocean waters.

Puerto Rico is blessed with a variety of unique, unusual,

and diverse ecological systems, some of which are already set

aside as Commonwealth forests. Marine ecological systems are

in need,of public ownership and management to conserve their

outstanding values for future generations to use,,enjoy, study

and understand, located in settings where man and nature may

co-exist but wherein man is a visitor..

Article 1 - This Act may be cited as the "Marine Environ-

mental Sanctuaries Act."

Article 2 - The administration of the Act.is the responsi-

bility of the Department of Natural Resources..

Article 3 The Sec retary of .the Department of Natural

Resources will prescribe and publish administrative policies

and regulations as may be required to manage, protect, and

develop the Sanctuaries in accordance with public environmental

policy.

Article 4 - The Secretary of Natural Resources has authority

to grant permission for the removal of plants, animals (marine or

terrestrial) and artifacts for scientific.study or research pur-

poses, the acquisition of such material by museums and educational

institutions, or for the preservation of the integrity of the

Sanctuaries.

CORDILLERA SANCTUARY
Point No. North Latitude 1,7est_Longitude
I N 18024'54" W 6503736'1*
2 N 18020'54" W 65024'48"
3 N 18020'00" W 65024'48"
-4 N 18020'00" W 65034'30"

CAYO NORTE - ISLA CULEBRITA SANCTUARY

Point No. -North Latitude West Longitude
1 N18021'00" W65016'12"
2 N18021'00" W65013'48"
3 N18016'00" W65011'18"
4 N18013'54" 14 65012'18"
5 N18013'54" W65013'24"
6 N18016'18" W65014'42"
7 N18016'18" w6501611211
8 N18016'36" W65"16'12"
9 N18018'32" W65014'24"
10 N18020'00" W1601511211
11 N18020'00" w65016'12"

SOUTH VIEQUES SANCTUARY

Point No. North Latitude West Longitude

I N 18005'36" W 65027'00"
2 N 18007'36" W 65020'00"
3 N 18006'00" W 65"20'00"
4 N 18004'30" W 65027'00"

NORTH WEST VIEQUES SANCTUARY

Point No. North Latitude West Longitude

1 N 18008'18" W 65034'00"
2 N 18008'18" W 65031'00"
3 N 1800714211 W 65031'00"
4 N 18007'18" W 6503410011

MARGARITA SANCTUARY

Point No. North Latitude West Longitude
1 (Isla Cueva) N 17057'4211 W 67004'36"
2 N 17055'06" W 67004'36"
3 N 17054'24" W 67006'30"
4 N 17054'48" W 67012'42"
5 (Punta Aguila) N 17057'18" Iq 67012'42"

Boundary from Point 5 to Point 1 is along the coast shore line and
includes all public ly-ovmed mancrrove.

ISLA DE 'cEUERTOS SANICTUARY

Point No. North Latitude West Longitude

1 N 1705613011 W 66029'12"
2 N 17"56'30" w 6602613011
3 N 17054'00" W 66026'30"
4 N 17052'24" w 6603310011
5 N 17053'42" W 66033'00"

BAHIA DE JOBOS SANCTUARY*

Point No. North Latitude West 'LoUit,u,-@--

1 N 1705642" W 66016100"
2 N 17056'42" w 661110130"
3 N 17054'18" W,66111013011
4 N 17054'3611 w 6601610011

*Includes Mar Negro and public@taangroves of Cayo de Barca, Punta
Pozuelo, and Cayo Caribe.

MONA ISLAND SANCTUARY

Point No. North Latitude West Longi'@'ude
1 IN 18011'0611 V-7 67"58'12"
2 N 1801110611
3 N 18007'42" W 67049'42"
4 N 18002'18" W 67049'42"
5 N 18002'18" W 67058'12"
1 N 18011'00"' W 67058'12"

DESECHEO SAIN CTUARY

Point No. North Latitude West Loiieftud

N 18024'36" W 6703000"
2 N 18024'36" W 67027142"
.3 N 18022'2411 14 674:1:,.'elli@-@*,2"
4 N 18022'24" w 6703W00"
1 N 18*24'36" 14 67030'00"

Article 5a The following Marine Environmental Sanc-

tuaries are hereby created, named and described to preserve

their natural environments and ecosystems within their bound-

aries for recreational enjoyment, scientific study, and con-

servation education:

Article 5b - Other Sanctuaries may be created from time

to time by the Legislature upon recommendations b y the Secretary

of the Department of Natural Resources. The Secretary will under-

take an immediate inventory of all fresh and brackish water la-

goons and salt marshes, select from among them and recommend to.

the Legislature that outstanding and thoroughly representative

examples of them be established as Marine Environmental Sanctuaries

to serve the public under the purposes of this Act.. Recommendations

will be made to the Legislature before March 1, 1974.

Article 5c The Secretary of the Departmen t of Natural Re-

sources may at any time establish a Marine Environmental Sanctuary

to serve the purposes of this Act, the existence of which shall

be for no longer than 120 days.

Article 5d - Sport and commercial fishing is allowed provided

that methods used in these activities are not detriment al to the

environment.

..Article 6 The following acts or uses within the Sanctuaries

are prohibited; except as authorized in Article-4.

a. Hunt, trap, or extract terr est rial animals and turtles

including nests and eggs.

b. Extract, transport, possess, or sell

trial plants, corals, conches, turtles, lobsters and crabs.

C. Spearfishing.

e. Extract, transport, possess or sell artifacts from ca*ves,

ruins, and shipwrecRs.

f. Dump, place, leave, discharge or permit the same, of

any solid or liquid waste on the land or in the water-s--of@-1-11--'he

Sanctuaries.

Article 7 Violations of the prohibitions in this Act shall

be punishable by either a fine of $500 for each offense, 30 days
in jail' or both.

Article 8 - The Department of Natural Res our c S S I gn e d

the initial sum of $200,000 for the Fiscal Year 1973-74 to establish

a Department of Natural Resources Marine Environmental Sanctuary

Warden Division, such sum to includ e personnel, equipment and

related organizational and administrative expenses,

sums as appropriated being part of the total =11ocated

to the Department.

Article 9 - This Act supersedes provisions of any otrIler Act

which may be in opposition to the provisions of this Act.

Article 10 This Act will become effective 90 days following

it s enactment.

LEGISLATIVE PROPOSAL NO. 2

Para enmendar el Articulo 3 y adicionar el Articulo 3-A a la

Ley Num. 83 del 13 de mayo de 1936, segun enmendada, conocida como

Ley de Pesca.

tase por la Asamblea Legislativa de Puerto Rico:
Decre

Seccion 1 - Se enmienda el Articulo 3 de la Ley NUm. 83 de

13 de mayo de 1936, segun enmendada, para que se lea como sigue:

Articulo 3 - Por la presente se declaran propiedad del Estado
Libre Asociado de Puerto Rico, de dominio publico comun y uso

publico comun, todas las especies de peces, moluscos, crustaceos,

mamiferos acuaticos, plantas acuaticas, formaciones de corales,

caracoles de concha, y demas organismos sesiles, y todas las demas

especies que comprendan la fauna y flora maritima, lacustre y

fluvial. Podran ser pescadas, estraidas, aprovechadas y comerciarse

libremente con ellas, con sujecion a las restricciones de esta Ley

y del Reglamento para su ejecucion.

Secci6n 2 - Se adiciona el ArtIculo 3-A a la Ley Num. 83 de

13 de mayo de 1936, segun enmendada, para que se lea como sigue:

Articulo 3-A Queda vedada permanentemante la extraccion,

transportacion y venta de corales o de las formaciones de estos

en los arrecifes de Puerto Rico y de las is1ame islotes adyacentes
y la importacion de corales de paises extranjeros.

La violacion de las disposiciones de este articulo constituira

delito menos grave penable segun dispone el articulo 25 de esta

Ley.

Seccion 3 Se asignan al Departamento de Recursos Naturales

para la operacion del programa establecido por esta Ley durante el

ano 1973-1974, la cantidad de veinticinco mil (25,000) dolares de

los fondos comprometidos del tesoro estatal. Los fondos necesarios

para anos subsiguientes se consignaran en el presupuesto General.

Seccion 4 Esta Ley empezara a regir noventa (90)

despues de su aprobacion.

LEGISLATIVE PROPOSAL NO. 3

Para crear el Centro de Acuacultura de Puerto Rico, adscribirlo
al Recinto de Mayaguez de la Universidad de Puerto Rico, establecer

sus facultades y deberes, y asignar fondos para su operacion.

EXPOSICIONDE MOTIVOS

Por su cond.ici6n insular, Puerto Rico dependerd del mar

como fuente de empleo y subsistencia en mayor grado con el

transcurso del tiempo. Para obtener el provecho.mAximo deseado

de tal situaci6n, es necesario contar con personal altamente

adiestrado en las t6cnicas, destrezas y las ciencias marinas,

y otras dreas relacionadas o aplicables. Se requiere un cono-

cimiento mds abarcador y profundo del mar que nos rodea y de
los sistemas no maritimos que se relaci@nan con 6ste, por lo

que-tambie'n es necesario el estudio y la investigaci6n cienti-

fica y aplicada. Por tal motivo, se requiere una estructura

permanente de adiestramiento e investigaci6n en acuacultura que

se dedique a adiestrar a todo el personal que requiera la indus-

tria, a Ilevar a cabo estudios e investigaciones que sean necd-

sarias y a desarrollar nuevos productos vivientes para el mejo-

ramiento de la industria.

Decre'tase por la Asamblea Legislativa de Puerto Rico:

Articulo 1 Se crea por la presente el Centro de Acuacultura

de Puerto Rico y se adsctibe al Recinto de Mayaguez de la Universidad

de Puerto Rico.

Art'lculo 2 Se asigna a la Universidad de Puerto Rico@

para la operaci6n del Programa establecido por esta ley durante

el afio 1973-1974, la cantidad de ochocientos ochenta y siete mil

(887,000) d6lares de los fondos no comprometidos del tesoro

estatal. Los fondos necesarios para aftos subsig@ientes se con-

signardn en el Presupuesto General.

Articulo 3 - Se faculta y autoriza al Rector del Recinto

de Mayaguez de la Universidad de Puerto Rico, o a su represen-

tante legal, a:

(a) Nombrar y contratar los funcionarios, tecnicos v emple-

ados, y a comprar el material y equipo necesario para llevar a

cabo cualquier aspecto del programa.

(1) El Rector -oodrd, con el consentimiento del Senado

Acade'mico o la Junta Administrativa, seg6n sea el caso, excusar

,del cumplimiento con las disposiciones de las leyes de Pe.-sonal

Y Servicios pertinentes, cuando la aplicaci6n,de las mismas puedan

ocasionar perjuicio o impedimento en el desarrollo de los programas.

(b) Establecer facilidades experimentales en el drea de La

Parguera y de la Subestacio'n Exp erimental Agricol a de Lajas, uti-

lizando por lo menos 15,acres de superficle acudtica e igualcan-

tidad para facilidades terrestres.

con la acuacultura a nivel academico, industrial y comercial.

(d) Mantener estrecha cooperacion con los Laboratorios de

Pesqueria Marina del Departamento de Agricultura (Punta Guana-

jibo, Mayaguez); Division de Caza y Pesca del Departamento de

Agricultura; y otras entidades dependencias analogas.

(e) Proveer asesoramiento tecnico al Gobierno y a la indus-

tria privada en todo lo relacionado con acuacultura; al igual que

establecer y operar proyectos pilotos para el desarrollo de nue-

vas especies marinas y el desarrollo de nuevas tecnicas y proce-

dimientos.

(f) Proveer oportunidad de adiestramiento academico, cien-

tifico y tecnico para todo aquel que cualifique, incluyendo estu-

diantes de Latinoamerica, islas del Caribe y otros paises.

(g) Iniciar o contratar estudios en areas de interes para la

acuacultura tales como: cuestiones de derecho, cuestiones adminis-

trativas, cuestiones sociales o culturales y otras que afecten

directa o indirectamente a la acuacultura.

(h) Desarrollar, implementar y administrar los programas

academicos, tecnicos y de investigacion basica y aplicada relati-

vos a la acuacultura, del Centro de Acuacultura de Puerto Rico.

(i) Establecer la reglamentaci6n original y supleme .ntaria

necesaria para la operaci6n del centro dentro del sistema' uni-

versitario.

Articulo 4 El Rector delegard en el funcionario qiie nombre

para dirigir el Centro de Acuacultura de Puerto Rico, aquellas

funciones compatibles con el cargo, incluyendo las anteriores.

Art'lculo 5 Esta Ley entrard en vigor el 1 de julio de 1973.

@LEGISLATIVE PROPOSAL NO. 4

Para establecer un Programa de Ayuda a Pescadores Para Adqui-

rir Embarcaciones Pesqueras y Adiestramiento y para establecer

un Instituto de Pesqueria.ambos adscritos al Departamento de Recur-

SOS Naturales, facultades y deberes: facultades y deberes de la

Administraci6n de Servicios Agricolas, Corporaci6n de Cr6dito

Agricola, Oficina de Seguros Agricolas y del Laboratorio de Pes-

queria al respecto; asignar fondos para su operaci6n.

EXPOSICION DE, MOTIVOS

El Programa de Fomento Pesquero actual ha sido,efectivo en

demonstrar la posibilidad de aumentar la produccift de pescado y

el mejoramiento de los ingresos del pescador mediante e 1 uso de

embarcaciones y equipo mejorado. Por lo tanto, la creacio'n de-.@@

una industria local pesquera con buena base econ6mica no es so'lo

posible, sino tambi6n deseable. A la vez, el mArgen tan amplio

entre-la produccio'n local, el consumo y la creciente demanda

ofrecen un reto econ6mico muy prometedor.

Dudamos, no obstante, que-los recursos disponibles en la

regi6n costanera a profundidades menores de 20 brasas puedan pro-
I

ducir lo suficiente para absorber la demanda. Los proyectos em-

prendidod en la actualidad van dirigidos al desarrollo y expansio'n

m&xima de la pesca costanera y ademfis a profundidades mayores de
-20 brasas. Tal nuevo enfoque conlleva cambios considerables en

tipo de embarcaciones, equipo de--las mismas, atavlos de pesca, adies-

tramiento y me'todos operacionales.

Nos proponemos desarrollar un programa de' ayuda a los pesca-

dores para que ellos p.uedan adquirir barcos pesqueros.de.1 tipo

construidos y aprobados por el Departamento de Recursos Naturales

:y reciban el.adiestramiento pertinente para la adecuada operaci6n

de losimismos.

-Decr6tase por la Asamblea Legislativa de Puerto Rico:

Articulo I Se crea por la presente el Programa de Ayuda a

Pescadores Para Adquirir Embarcaciones Pesqueras y Adiestramiento,

adscrito al Departamento de'Recursos Naturales.

Articulo 2- Se asigna al Departamento De Recursos naturales
para la opercion del Programa establecido por esta key durante el
aho 1973-1974, la catidad de ciento cuarenta y dos mil seiscientos
(142,600) dolares de los fondos no comprometidos del tesoro estatal.
Los fondos necesarios para afios subsiguientes se consignaran en
el Preseupeuesto General.
Articulo 3 - Se faculta y autoriza al Secretario de Recursos
Naturales a:
(a) Nombrar y contratar los funcionariios, tecnicos y emplea-
dos necesarios para llevar a cabo cualquier aspecto del programa;
disponiendose, que dicho personal sera nombrado sin sujecion a
la Ley Num. 345 de 12 de mayo de 1942, que crea la Oficina de Per-
sonal.
(b) Comprar el material y equipo necesario para llevar a
cabo cualquier aspecto del programa, disponiendose, que dichas com-
pras se efectuaran sin sujecion a la Ley Num. 150 de 9 de mayo de
1945, segun subsiguientemente enmendada, que crea la Oficina de
Servicios del Gobierno de Puerto Rico.
(c) A negociar con la Administracion de Servicios Agricolas,
a quien por la presente se faculta para la construccion y venta a
los pescadores participes del programa, de las embarcaciones que

reciban aprobaci6n del Departamento-de;Recursos Naturalbs.

(d) A-ofrecer un incentivo a ios pescadores participes en

el programa de un 50 por ciento del costo total de las embarca-

cione's hasta un m&ximo de $5,000.00, en la adquisici6n de los:

mismos.

(e) A negociar con la C6rporacio'n de Cr&dito Agricola, a

quien por la presente se faculta, para conceder-prestamos a los

pescadores participes, con las embarcaciones como colateral, para

la obtenci6n de las embarcaciones del inciso (c) supra, hasta por

un mfiximo de diez (10) affos.

(f) A negociar con la Oficina de Seguros Agricolas, a

quien por la presente se faculta, la expedicio'n de p6lizas de

seguros sobre las embarcaciones y el equipo; a efectuar el pago

las primas correspondientes; y a designar al.Departamento de

Agricultura como beneficiario de las mismas.

(g), A contratar la'construccio'n, ampliaci6n, conversi6n, renta

o adquisici6n de facilidades adecuadas de almacenaje, refrigeracio'n

y transportaci6n de los pescados obtenidos por los.participantes

del.programa.

-(h) A emitir, aprobar, enmendar y derogar reglamentos para

llevar a cabo los objetivos de esta Ley.

Articulo 4 Se establece el Instituto de,Pesqueria, como el

organismo que descargara la funcion de ensenanza y adiestramiento
objeto de esta Ley.
Articulo 5 - El Instituto desarrollara, implementara y
administrara un programa de ensenanza y adiestramiento academico
y practico que incluya, entre otras, las siguintes materias: nave-
gacion; mecanica y mantenimiento de equipo diesel, electonica, re-
frigeracion, equipo de pesca y embarcaciones; tecnicas de mercadeo
y distribucion.
Articulo 6 - El Instituto utilizara las facilidades del Labo-
ratorio de Pesqueria del Departamento de Recursos naturales y otras
facilidades disponibles para llevar a cabo sus funciones educativas.
Articulo 7 -Esta Ley entrara en vigor el l de julio de 1973.

REFERENCES

COMMONWEALTH OF PUERTO RICO

1969 Informe de la Universidad de Puerto Rico a la Honorable'
Comisio'n Especial de la C9mara de Representantes Para
Investigar la Conservacio'n de los Recursos y Bellezas
Naturales. 258pp.

COMMONWEALTH OF PUERTO RICO

19,71 Informe Ambiental 1971 de Junta Sobre la Calidad
Ambiental. Processed. 137pp.

COMMONWEALTH OF PUERTO RICO

1972 Draft Report, Interagency Technical Task Force on Water
Resources Planning, Department of Public Works,
Area of Natural Resources. 187pp.

DEL CASTILLO, J.

.1965 En Torno a un Futuro-Instituto Oceanogra-fico de Tuerto
Rico. Revista General de la Universidad de Puerto Rico.
Sobretiro del No. 50, Mayo-Agosto de 1965. 41pp.

HEATWALE, HAROLD

1970 Survey of the Mangroves of Puerto Rico. Unpublished
report, Department of Biology, University of Puerto Rico,
Rio Piedras. 40pp.

HOLMSEN, A. A.

1966 Economics of Puerto Rico's Inshore Fisheries and Recom-
mendations for their Development. Report to Hon. Sec.
Agric. Comm. Puerto Rico, Dept. Agric., 57pp.

INIGO, F.AND JUHL, R.

1968. Outlook of Puerto Rico's Commercial Fisheries, Proc.
Gulf Caribbean Fish. Inst. 20th. Annu. Sess., pp. 128-132.

JOHANNES, R. E.

1970 Coral Reefs and Pollution. Paper presented at the FAO
Technical Conference onMarine Pollutioft, Rome,
December 1970. l6pp.

JUHL, R.

1969 Exploratory Fishing Survey and Gear Tests in Puerto Rico.
Cont. Agrop. Pesq., Dept. Agric. Comm. Puerto Rico,
1 (1):

NATIONAL ACADEMY OF SCIENCES

1967' Science and Technology in Support of the Puerto Rican
Economy. A report to the Governor prepared by the
National Research Council. Processed. 89ppi
PAGAN-,FONT, F. A.

1971 Utilization of Aquatic Resources: Specifically the
Pevelopment of Aquaculture. Address presented at the
I
Fifth Annual.Meeting_of the Caribbean Conservation
Association, San Juan, P. R. September 1971. 6pp.

SUAREZ-CAABRO, JOSE A.

1970 Puerto Rico's Commercial Marine Fishery Statistics,
1968-1969. Cont. Agrop. Pesq. Dept..Agric. Comm.
Puerto Rico, 11 (1): 1-38.

1971 Comisio'n de Agricultura, Informe de la Comision de
Agricultura de,la Camara de Representantes sobre la
R. de la C. 447. Para ordenar a la Comisi6n de Agricultura
de la C9mara de Representantes a estudiar y a evaluar
todos los aspectos normativos, administrativos, tecnicos,
de pesca y otros relacionados con el programa Pesquero
del Departamento de Agricultura.

WERNER, E., AND A. COBAS

1969 Operation: Oceaneering. A proposal for the exploitation
and pra .ctical utilization of Puerto Rico's most abundant
and least used resource the Ocean. Processed. 38pp.

.WISBY, WARREN J.

1968 An Aquarium and Ecological Park for Puerto Rico. An
evaluation of the suitability of'the El Faro property
for use as an ecological or marine park. Unpublished.
l6pp.

SECTION 2 REPORT OF SUBCOMMITTEE
ON RECREATION

INTRODUCTION

It is a paradox that in Puerto Rico, an island surrounded by

excellent waters, blessed with favorable breezes and- a tropical

climate, that water'sports and marine recreation are not fully

developed. The reasons stem from fear of the water by many residen ts,

lack of daylight hours for many residents to enjoy the beaches and

lack of low-cost marine facilities. An important factor comes from

the need for creative acti ons and supporting funds for those charged

..with developing the marine recreational potential of the Island.

MANAGEMENT

The Parks and Recreation Administration does not have an office

or section to handle or develop r@aritime recreation. Lack of commu-

nication between this agency and 'the people has seriously restricted

its creativeness with respect to the development of marine recreation.

The Parks and Recreation Administration is not conscious of many of

the needs and desires, of the public or of the vast recreational

potential the sea represents. In addition, it does not seem to have

the power or ability to coordinate with other government agencies at

Federal and Insular levels.

Recommendation

A mechanism should be established within the Parks and Recre-

ation Administration to permit citizen participation in water-

sports and recreation policy formulation.

For many miles, especially around the San Juan metropolitan

area, beaches are littered, uncared for and unsafe because there

..is no governmental agency assigned responsibility for their cus-

For years, different agencies have been shunning that re"

sponsibility and blaming each other. Because all out beaches are'

public, the Government should maintain them.

Recommendation

The Parks and Recreation Administration should be given the

responsibility for guaranteeing adequate cleaning and maintaining

of all beaches. In addition, and most important, the Governor

should give the Administration the means to do the job, and funds

should be appropriated for this purpose.

As more and more boats take to our beaches, swimmers, skin-

divers and surfers will be increasingly endangered. Accidents

involving small motor boats and swimmers will be more common in

-96

the future if no safety measures are taken.

Recommendation

Motor boats should be prohibited on es2ecially designated

areas of our beaches and speed limits should'be established for

motor boats used near beaches.

Because we are close to the equator, our day is relatively

short. We know that most developed countries have exchanged

unproductive morning daylight hours for recreational afternoon

daylight hours by means of establishing Daylight Saving Time

during the summer months. This system has improved the economy

as.well.as the quality of life of the people by providing additional

hours for recreation.

Puerto Rico is pre cisely in the southernmost position where Day-*

light Saving Time can work without sacrificing.producti ve morning

daylight hours. Sunrise in the shortest day of the year in Puerto

'Rico is around 7:00 A.M. In the six months of Daylight Saving

Time (from 20 April to 20 October) sunrise in the shortest day is

around 6:00 A.M. Therefore, if clocks are moved ahead one hour,

we would have as much daylight in the morning hours as in the winter

months, while in the afternoons we could enjoy one more hour of

sunlight. Undoubtedly, this extra hour of sunlight would.mean

more recreational time available to the citizen.

An important additional benefit would be the considerable sav-

ings of electrical power at a time when such economizing is immi-

nently desirable.

Recommendation

Daylight Saving Time linked to the Federal sVstem should be

ostablished in Puerto Rico.

FACILITIES AND DEVELOPMENT

The waters.on the coast from San Juan to Luquillo are usually

rough, but could be avoided. By merely following the natural

course of marshlands and of man-made drainage channels, a water

route can be traced between San Juan Bay-and Luquillo Beach. That

a waterway could be created along this route seems technically

feasible, although probably costly. In fact, a waterways study

1
for the San Juan Metropolitan Area recommends the extension of

such fluvial routes as far east as Vacia Talega. Given the demand

for scarce public funds, it is unlikely that such a waterway will

soon be built. However, the availability of an intra-coastal pro-

tected waterway would stimulate pleasure boating and would also

l,tSan Juan Waterways Transportation Project," Puerto Rico
Public Works Department, September 1971.

create-beneficial side-effects. It could (a) create new econom@ic

activity along its route, (b) offer alternate mass transportation

means for population centers near its route, (c) offer a commercial

route for cargo, (d)' provide a mechanism for limited sand extraction.

The proposed waterway need not follow the path of least resis-

tance from San Juan to Luquillo. For ins,tance, along the Espiritu

Santo River there are stands of mangrove and estuarine waters worthy

of conservation. At such points, the waterway should be designed

to avoid intruding on these assets. Where the route must traverse

mangrove areas the integrity of which we desire to maintain, the

waterway could be designed to minimize,its impact on the shore.

This Subcommittee feels that regardlesslof how long it may

take to ultimately complete such a waterway, its planning should

begin. (See map of San Juan-Luquillo Inland Waterway.)

Furthermore, it need not stop at San Juan Bay on its westward

thrust. The causeway between Palo Seco and Cabras Island is of

recent and artificial vintage. Cutting it, to provide water link-

age from Boca Vieja Bay and the Punta Salinas area-to San Juan Bay

and then eastward via Martin Pefia Channel, San Jose' Lagoon, the

Sudrez Canal, Torrecillas Lagoon, Pifiones Lagoon, Machic6te Channel,

the Loiza River, the Mediani'a Canal, the Herrera and Espiritu Santo

Rivers, and cutting across the base of Punta Miquillo and Punta

Pic6a to,the mouth of, the Mameyes River in front of Luquillo Beach,

99,

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would open up an excellent marine waterway at little cost to public

funds and with many worthy side benefitsf including the cleaning of

San Juan Bay.

Recommendation

-A study should be made of the technical feasibility and environ-

mental effects of a canal to@be dug inland parallel to the coast

from San Juan to Luquillo.

Over-fishing and other excesses have depleted commercial and

game fish around the Island and certainly the supply must be

brought back to normal. It,has been shown that the establishment

of artificial reefs increases fish population over natural reefs.

Recommendation

We endorse the research program seeking the development of

viable artificial reefs as pro osed in the Report of the Subcommit@

tee on Research and Development.

Thousands of residents of San Juan lack the transportation

facilities to enjoy beaches that are not within walking distance

of homes. Lacking practically any other type of recreation, the

101

less affluent city-dwellers flock to the beaches from Puerta de.

Tierra to Punta Las Marias on week-ends. With the exception of

one or two beaches such as, El Escambro'n, no public lockers or

sanitary facilities existin that stretch of beaches. The result

IS a situation of disorder and uncleanliness along the Condado and

Isla Verde beach strip. This same stretch of beach is supposed to

be one of our principal tourist attractions.

Recommendation

Public locker, sanitary, and cafeteria facilities should be

established along the beaches from Puerta de Tierra to Punta Las
Marias at strategic points and they should be supervised bV

safety personnel.

Our best beach facilities are closed at least one day a,week,

usually Mondays. Moreover, closing time is the same during winter

and summer months not taking into consideration the additional

daylight available during the summer.

Recommendation

All public beaches should be kept open every day of the year

and during the summer months the closing time should be extended

102

in direct relation to the length of the day.

Because of the prohibitive coast of available waterfront

property, the sports of game fishing, motor boating, water. ski,ing,'

skin diving and sailing up to the present have been enjoyed prin-..;

cipally by the more affluent individuals. Many others who would

like to participate in such sports and.may be able to afford the

necessary equipment, are unable to do so because of the lack of

facilities for'economically storing and launching their craft.

Unlike most maritime nations including Communist Bloc countries,

Puerto Rico does not offer its citizens adequate boat storage and

launching facilities.

The facilities that currently exist are primarily located in

a few long-established private clubs or are commercially oriented

and geared to the larger power and sail boats which demand deep-

draft slips commanding rentals of at least $40 per month. The

needs of the average would-be boating enthusiast who coul d afford

a small sail or power boat priced upwards from $300 are not being

effedtively met. The public facilities developed by Government

agencies have not been adequate; the launching ramps were so poorly

designed or located that they promptly broke up or were otherwise

rendered useless.

103

The one exception to this situation is the Yachting Facility

at the Isla.Verde Public Beach developed in 1966 as a Yachting

Training Center for the Central American and Caribbean Games. At

no cost to the public, it has continued to serve as a center for

small sailboat activity. The facility consists of a fenced-off

acre of land leased for afee of $100 per year to the Federacion

Nautica de Puerto Rico. This group regulates amateur yachting on

-the Island, and represent s all one-design fleets, yatching clubs

and organizations. Its commodore is the yachting delegate on

Puerto Rico's Olympic Committee.

The Federaci6n financed the construction of a sail storage

building with sanitary and meeting room facilities. The building

is furnished with boat storage racks at fees ranging from $50 to

$75 annually. It now stores well over 100 boats of various types,

and has become a center for sailing activities, such as free lessons

and week-end regattas for the sailing enthusiast, whether or not

his boat is stored there. This center has been a boon to the deve-

lopment of sailing skills, and some of the boat owners have been

@participants in@l national and international events, such as the

Olympic Games.

Given Puerto Rico's urgent social needs and relatively scanty

fi nancial resources, it is unlikely that public funds for recreation

104

would be diverted to.marinas. Nevertheless, there.is a demand-for

them. We-believe that private capital can be marshalled to satisfy

that demand if public lands located near suitable bodies of water

and population centers are made available for their development

alon g specified guidelines.

Marine recreation centers could be developed on these lands

and-could include a wide spectrum of facilities such as deep-berth
moorings for keelboats and large power cruisers, bulkhead'hoists

for dry-sailed boats, dry-boat storage, trailer parks, marine

shops, haul-out repair yards, cold storage for fish catches, and

marketing outlets for fish catches. These centers would serve the

needs of power and sail pleasure cruising,'commer,cial and sports

fishermen, skin and scuba divers,-and competitive sailing e'nthu-

siasts. The centers could also provide space for three other im-

portant activities which would concern the total boating population:

(1),...A training center for marine-related skills, developed in con-

junction with vocational training programs, (See fourth Recommenda-

tion under the Education and Culture subheading).i (2) Marine' club-

houses or meeting places within the marine center grounds where

groups.with common interests could meet and work to promote their

goals, and (3) Minor marine-craft manufacturing centers, where

fiberglass hullworks, sail lofts or other such nautical gear could

be constructed.

105

In sum, the key idea is that all the above-mentiofted socially

desirable goals could be accomplished without.relying on the public

treasury for their achievement if public lands could be--leased on

reasonable terms to thedevelopers, who could be selected through

a bidding process, and who would be required to comply with pre-

designated specifications and operational policies..

Recommendations

1. Facilities should be provided by the Parks and RecreatioJ2

Administration for the storage of small non-motorized boats at

various public beaches in Puerto Ric@,-alonq the lines of the

Isla Verde FacilitV, as managed-by Federac-46n Ndutica de Puerto

Rico.

2. Public land should be leased on reasonable terms to pri-

vate developers for the construction of recreational and commercial

marine centers at appropriate locations. A mechanism,to implement

this recommendation should be established by statute including

environmental safeguards and others such as public hearings on

lease terms and prices charged for use of facilities on public land.

Puerto Rico lacks all-weather harbors; because of t his, very

few.small pleasure craft cruise around the Island and prefer to go

106

to the nearby Virgin Islands. The ports of town s such as Naguabo,

Yabucoa, Patillas, Arroyo and Santa Isabel are good anchorage sports

only if the wind blows from the East and North. However, when the

wind:shifts the waters of these ports lose all their gentleness.

The development of all-weather harbors around the Island:would

definitely create a new dimension to local boating, and would@also

attr act visiting boats to our Island.

In addition, all-weather harbors would enable local commercial

fishermen to have bigger, safer, and more seaworthy boats. At

present, most boats are limited to small 17-18 feet craft that can

be beached to protect them from rough seas.

Recommendation

A study should be made on the feasibility of economically

transforming several ports in the Island's coasts into all-weather

harbors-by designing and constructing breakwaters.

Because of its stra tegic location in the middle o f the Metro-

politan Area, San Jose' Lagoon is the body of water with the most

recreational potential. in San Juan. Its stagnant and polluted waters

prevent giving any serious consideration to recreation plans. There-

fore, the cleaning of the San Jos6 Lagoon mu st be initiated as soon

107

as possible.

The following methods are suggested for further consideration:

(See also Appendix A)

1. Reversing the pumps of the flood-control station of

Llorens Torres in order to pump clear sea-water into@

thelagoon, thus eventually cleaning the water in it.,

.2. With-the use of a lock on Canal de los Sudrez, a sys tem

of tide control could be.set up to allow clear water into

San Jose' Lc@goon from Cangrejos-Torrecillas. This would

prevent a reverse flow and, in fact, would produce flow.

augmentation in Martin Pefia Channel.

Recommendation

An extensive study should be made to dev@lop a way to clean,

and maintain the San Jos6 Lagoon.

San Juan Harbor was prevented from cleaning itself in a natural

way when the causeway from Palo Seco to Isla de Cabras was.built.

Thus, San Juan Harbor is at present heavily polluted and there is

no outflow except through the mouth between El Morro and Isla de

Cabras, which is an unnatural exit.. Alsof a canal across the

causeway could provide access inside the reefs to the new

108

Bayam6n River channelization. (See diagram of Isla de Cabras,Cause

way Canal.

Recommendations

.1. Strict measures should be taken against of

CondadoLagoon and San Juan Harbor, especial.-@- those

em tying industrial wastes and oil. (See similar recommendation

of Subcommittee on Coastal Zone Management.)

2. A feasibility studyshould be made of the dredging of a

canal from San Juan Harbor westward across the present causeway

of Isla de Cabras that would help flush San Juan Harbor, and

also permit limited navigation of small passenger ferries.

In our waters there are no locations designated as underwater

gardens or trails for skin-diving enthusiasts to visit, such as

those in several of our neighboring islands.

Recommendation

Certain submarine locations should be chosen and designated

as underwater trails for the enjoyment of skin divers and underwater

photographV enthusiasts. (See also similar recommendation in the

report of the Subcommittee on Re5earch and Development.)

109

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The roads at some of-our most scenic spots either do not

have a parking area or the.spot is used as a garbage dump-

Recommendation

Scenic spots on our roads should be identified a.nd parking

and observation platforms should be built on them. Regulations

@to prevent.use of coastal areas as qarbaqe@dum2s should be

enacted and the means to prosecute violators'should be provided.

(See also similar recommendation in the report of the Subcommittee

on Coastal Zone Management.)

Ignorance of the sea,,its life and potential also contribute

to the local.attitude of regard'ing the ocean as a menace. A program

should be started to instruct people in the use of the sea recreation-,

ally and commercially.

Recommendation

Public swimming pools should be built at or contiguous to the

present athletic fields in every town in Puerto Rico.

EDUCATION AND'CULTURE

Although we live totally surrounded by water, too many of

our-people are taught from early childhood to be afraid of the

ocean. Therefore, relatively few learn how to swim and cannot

fully take advantage of.the pleasures or the work opportunities

the.sea'can offer.

Recommendations

-1 Swimming and water s2Lfety_should be introduced in all
schools at all levels as part of the*regular curriculum.

2. Marine-educational programs should be established in all

schools-and Government-radio and.television stations should in-

elude the sea as one of the principa:l subjects in its programming.

(See also similar recommendations in the reports of the Subcommit"

tees of Research and Development and Institutional Arrangements.)

3. A -program should. be -establis'hed within which schools,

governmental agencies,' associations, clubs,.and other institutions-

concerned with the sea may present exhibits for the instruction

and enjoyment of the general public.

There i's great potential for jobs related to,marine recreation

that-is not being tapped because available young@-people are not

112

trained in the various necessary skills. Most skilled marine

personnel are.non-Puerto Ricans.

Recommendation

Vocational schools should extend their curriculum to include

training in the different maritime-oriented fields such as marine

electronics, marine mechanics, life saving, and boat building.

113,

APPENDIX A

CLEANING SAN JOSE LAGOON AND MARTIN PERTA CHANNEL

The plan of cleaning San Jos6 Lagoon and Martin Pefia Channel

by pumping sea water into Laguna Los Corozos appears surprisingly

inexpensive. (See Figure showing Pumping Station Proposal.)

On Septembei 1970 the firm of Buck, Seifert and Jost, Consulting

Engineers to the Puerto Rico Aqueduct Sewer Authority, stated in

their report titled The Collection and Disposa 1 of Sewaqe in the

San Juan.Metropolitan Sanitary District that "immediate alleviation

of conditions in Martin PeEa Channel can be realized through flow

augmentation by pumping 1,000 cfs from the Atlantic Ocean to Los

Corozos Lagoon."

In their report, Buck, Seifert and Jost recommend the instal-

lation of pumps of 1,000 cfs capacity. They further state that

flow augmentation provided with such pumps "would provide the greatest

return in improvement of water quality per dollar expended."

However, they did not realize that at the present time there is

a pumping station located at Los Corozos Lagoon with a capacity of

1,250 cfs. '.Because its purpose being flood control of San Jose' and

Los Corozos Lagoo ns, this pumping station located at Baldorioty de

Castro Avenue across from Llorens Torres Public Housing proj ect, is

114

PUMP ING STATION PROPOSAL

EXISTING PUMPING STATION
ATLANTIC OCEAN

Punta Las Marlas

SANTURCE

LOS COROZOS

LAGOON

LAS CASAS

SAN JOSE

LAGOON

HATO REY

idle practically all the time.

Mr. Alfredo Heres, a noted Puerto Rican civil and sanitary

engineer, was asked about the feasibility of installing a system

so that the flow of the pumps could be controlled in such a fashion

that on dry days, the pumps would pump sea water into Los Corozos

Lagoon and or in rainy days, they could be switched back to original

position. He emphatically expressed his opinion that the project

is completely feasible. Not only are the pumps there but their

capacity is well above that required to clean out San Jose' Lagoon

and Martin PeEa Channel. The cost of reversing the flow of the

pumps would be nominal compared to the good effects brought by it.

Although the possible effects on nature by pumping sea water

into San Jos6 Lagoon should be given careful study, the healthier

conditions of the Lagoon and Martin Pefia Channel brought about by

the pumping would appear to outweigh any other considerations.

116

SECTION 3 REPORT OF SUBCOMMITTEE.ON
COASTAL ZONE MANAGEMENT

INTRODUCTION

The coastal zone* is Puerto Rico's most critical natural re-

source. This encircling.band of shorelands and coastal waters is

critical, first, because of its present and potential contributions

to the Island and its people; and second, because of the demands

inevitably focused upon it by the development of ports, industries,

power plants, homes and recreation facilities.

During the remainder of this century, recreational use of the

coastal zone is expected to grow dramatically as a result of in-

creasing population, mobility and leisure. Simultaneously,

*The term "shorelands" is used in this report to
describe the strips of land that comprise the interface
between the interior lands of Puerto Rico and the waters
of the Atlantic Ocean and the Caribbean Sea. The term
11coastal zone" includes, in addition to the shorelands,
the coastal waters, and the submerged lands lying under
the coastal waters, out to the limit of Commonwealth
jurisdiction. This usage is adapted from A Description
and Analysis of Coastal Zone and Shoreland Management
in United States, by Earl H. Bradley, Jr.,
Eins arama
and John M. Armstrong (Coastal Zone Management Project,
Sea Grant.Program, University of Michigan, Ann Arbor,
Michigan), Draft Edition, March 1972.

117

shorefront development of all kinds will continue its g radual en-

circlement of the Island. (See map, "Coastal Projects - 1972.11)

The character of this development will profoundly influence the qual-

ity of life in Puerto Rico well into the 21st century and beyond.

Most concerned Puerto Ricans already recognize these facts.

What many do not realize is that the pattern of shorefront devel-

opment will be largely determined within the next ten years--and

is even now being quietly determined for several key areas. Even

where no development is yet contemplated, rising land prices re-

flect the expectations of owners that they, too, will be allowed

to build at the densities now being permitted.

To guide these development pressures in the public interest,

we see a clear need for policies and plans. Policies, adopted

after thorough public discussion, should establish public object-

ives and designate means to achieve them. Adopted plans should

apply these policies to the varying conditions found in different

parts of the coastal zone. Finally, implementation measures should

be instituted to achieve desired action.

This report considers policies and.implementation mechanisms
in four problem areas: access to public shorelands, Land use-

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guidance,.protection of coastal waters and public information and

involvement. The Subcommittee has approached these problems with

an awareness that committee reports too seldom stimulate action.
The,members are familiar with dozens of reports whose criticisms,

exhortations, and sound recommendations have had no discernible

effect. In fashioning its recommendations, therefore, the Sub-

committee has repeatedly sought ways to' increase the likelihood

of responsive action.

This quest for action has proven especially difficult because

the coastal zone clearly needs planning. The desirability of de-

tailed.planning (in addition to formal policy making) seems beyond

real doubt.

Even the broad policies considered in this report are closely

interrelated, and numerous other public objectives should properly

be considered in addition. All these policies and objectives must

then be applied to conditions that vary greatly from place to place

within the coastal zone. only a planning process'. not a rigid

formula, can achieve multiple objectives under these conditions.

Although planning is sometimes seen as part of a process for

limiting or deterring development, the Subcommittee has repeatedly

encountered situations in which planning would aid development at

the same time that it would help conserve natural resources and,

120

environmental quality. Whether the issue is beach-access require-

ments or the location of proposed water-supply systems, developers

would often benefit from a,planning process that would tell them,

authoritatively, what the Government will require of them and what

services it plans to provide. At present, in the absence of plans,

the developer faces delays and uncertainty that can cost him more

than he would spend to comply even with tough coastal-zone devel-

opment standards.

At this point, two unpleasant realities must be acknowledged.

First, the development of Puerto Rico's coastline is being allowed

to proceed without significant guidance from policies or plans.

Formal policies, establishing meaningful directions for public

action, are rare. Plans, although sometimes prepared, are seldom

adopted and rarely applied. Regulations, upon which the public

must place principal reliance in guiding the development of private

property, normally lack the refinement needed for effective plan

imp lementation and environmental protection.

Second, every investigation, whether official or unofficial,

whether concerned with planning or land development, or the en-

vironment or natural resources, invariably recommends planning.

This has been true for many years. Why, then, haven't the recom-

mendations produced a meaningful planning process? Realistic re-

commendations depend on the answers to this question. Some

-121

possible problems--and responsive suggestions--are:

1. Lack of awareness. Perhaps the Government--and, ulti-

mately, the people--have simply not thought the need great enough

to insist on planning. We must therefore urge that the problem

is important, and recommend mechanisms to convince the public and

their officials. Fortunately, awareness of coastal-zone problems

has risen sharply in recent years. Interest in these problems

has also risen in the United States, with the result that major

proposed legislation on the subject is now before the Coiigress@*

This legislation, if enacted, will make new funding available

for coastal-zone-management programs and should be of substantial

help in creating addition al awareness of the problems here.

2. The Legislature has failed to provide needed powers and

funds. More planning authority, more regulatory power, more money

are thus required. This report points this out in some places.

More money f or land purchase is badly needed. In the case of

*For example, one coastal zone bill (H.R. 14146)
was passed by the House of Representatives on July 31,
1972. A land-use pouch bill, which would require the
development of plans and programs for areas of "crit-
ical environmental concern" (beaches wetlands, etc.)
was passed by the Senate on September 19, 1972.

122

planning and regulatory authority, however, the essential author-

ity has been on the books for 30 years. Additional, authority,

while needed, is not the heart of the problem.

3. The.failure may be caused by problems of bureaucracy, with

agencies tied up in their own red tape because of traditional lack

of policy orientation and secrecy. It is therefore necessary to

assign functions to new agencies (e.g., Department of Natural Re-

sources). This report does not designate agencies for most re-

sponsibilities, deferring instead to the recommendations of the

Subcommittee on Institutional Arrangements. Unfortunately, assign-

ment to new agencies seems likely to be beneficial only in the

short run because the same bureaucratic disabilities seern likely

to afflict all agencies sooner or later. Asa more permanent mea-

sure, it will be necessary to remove some of the secrecy and other

sources of bureaucratic difficulty.

4. The dynamism and resources of the private market may have

simply overwhelmed governmental efforts to guide development. The

most effective response to this problem, it appears, is to change

the rules in such a way that the dynamism of the private sector

will be infused directly into the planning pr ocess. Two kinds of

changes can be identified as tending toward this result.

The first of these changes is to improve the quality of ad hoc

123

project review. Coastal projects are submitted to an array of ad

hoc reviews. Even though most of the coastal zone lies outside

the areas covered by zoning, most projects need approval from the

Planning Board. Many projects require approval also from the Public

Servi ce Commission, the Environmental Quality Board, the Department

of Tourism, or Federal agencies. Since 1970, Commonwealth law has

required that environmentally significant projects be evaluated

in Environmental Impact Statements, which are circulated among agen-

cies and the public. Although some of these reviews are more ef-

fective than others, all are valuable. As our only operating wea-

pons to defend the coastal zone against misuse, they.must be vigor-

ously applied. None of these reviews, however, are adequate sub-

stitutes for a planning process. Indeed, some of the reviews are

more costly and time-consuming than they would be if the coastal

zone were planned. A plan! by making fundamental choi ces after con-

sideration of all,alternatives, can resolve issues that otherwise

must be reconsidered in some depth in connection with each project.

In an important sense, therefore, these increasingly sophisticated

review procedures are desirable, not.only for their direct effect

on individual projects but also because they tend to create addi-

tional demand from developers for a more rapid, effective planning

process.

A sec ond change is to apply more stringent requirements in the

124

absence of plans, with the result that plans will often ease re-

strictions instead of adding to them. At present, the absence of

plans is often used as a reason for not imposing neede d limits on

development. The plan becomes a step toward restriction7 without

it,-the traditional pattern of opportunistic development may con-

tinue. As a result, developers have insufficient incentive to de-

mand plans--even when they realize that planned development of a,

whole district could benefit their property. This situation needs

to be reversed. Protective requirements should apply in all coastal

areas except those where plans have shown that deviation from the

requirements will not harm the coastal zone. Accordingly, we suggest

theestablishment-of some requirements to protect unplanned coastal

areas. Though inevitably only an approximation of the public in-

terest., these requirements would provide some essential protection.

They would also stimulate private demand for planning.

Enforcement, like planning, presents some practical problems.

One response is to authorize citizen suits so that private citizens

can compel governmental agencies to enforce relevant legislation.

This would relieve the Government from some of the pressures to

which it traditionally has been subject.

After considering the likely effect of these measures, the

Subcommittee remains gravely concerned about the extent of the

damage already done to our coasts and about the difficulty of

bringing balance to the tradition of developmental opportunism

that is permitting this damage to continue.. There is, however,

basis for hope. The new environmental awareness in Puerto Rico,

the prospect of new Federal assistance for coastal zone management,

the new Department of Natural Resources with its statutory charge

to concern itself with the coastal zone,.are all hopeful signs.

It is thus with cautious optimism that.the Subcommittee has ex-

the specific problems of the coastal zone.
c

ACCESS TO PUBLIC SHORELANDS

Historically, public access to beaches and other shorelands

has seldom been a problem in Puerto Rico. Unfortunately, there is

atendency to assume that the problem will never arise here or that

it has already somehow been "solved". Several misapprehensions

are common:

'.There are so many beaches. And lots of them don't seem to

be used much." It is true that Puerto Rico has hundreds of miles

of shoreline, including some 70 miles of beaches with good recrea-

tion potential. But the day of the remote, little-used beach is

rapidly-passing: radical increases in automobile ownership and

responsive improvements in the highway system are seeing to that.

Like development, public recreation demand is rapidly being diffused

over most of the Island's coasts. The question must be faced

126

whether all beaches and other shorelands will be available to

satisfy that demand or whether some beaches will be effectively

set aside for occupants of shorefront hotels, condominiums, and

other property.

"But aren't all the beaches in Puerto Rico public?" Public

rights in the maritime zone ("zona maritima-terrestre")* have

been established by law sinc e Spanish times. With only a few

exceptions, some of which are far from clear, the citizen has

a legal right to enjoy the beaches if he can get to them. This,

however, is often a problem. That p roblem becomes serious when

new development does not provide new public access points. It

becomes more serious still when developers are allowed to block

the rutted tracks that prov ided access in the days before many

people wanted it.

*"The 'terrestrial maritime zone' shall mean
the space of the coasts of Puerto Rico touched by
the sea during its ebb and flow, wheretides are
noticeable, and where the largest waves during a
storm.are-felt in places where tides are not no-
ticed, and it includes the lands recovered from
the sea and the river borders up to the place
where they are navigable or where the tides are
noticed; and the term, notwithstanding any con-
dition, shall mean the terrestrial maritime zone
of Puerto Rico." 23 L.P.R.A. 2103 (n).

127

"But development in Sari Juan hasn't blocked beach access.

You just walk to the end of one of those dead-end streets. Surely

new development will provide this kind of access." This is not

necessarily so. The pattern of development is different today.

New tourist complexes, for example, even when located on huge

tracts, often do not establish any public streets at all. Besides,

the public will increasingly be arriving at the beach by car, not

on foot, so the old dead-end street pattern isn't really adequate

anyway.

In the past, Puerto Rico has rarely encountered the beach ex-

clusion problems that plague so many places in.the United States

and the Caribbean. The island could well experience them in the

future, however, together with the resentments and tensions they

inevitably create. Steps are needed, and needed now, to assure

thatthey do not arise as a result of developments now being approved.

The Subcommittee recommends the following policy for the

Government: All people should have equal opportunity, in fact

as well as in lawi to enjoy the beaches and other public shorelands

of Puerto Rico's maritime zone. Shorefront development, govern-

mental and private, should be designed to facilitate rather than

obstruct shoreland access by.the general public. Although use.of

designated shorelands may have to be regulated in the pu blic in-

terest (e.g., restriction of access to critical environmental areas

128

needed for scientific study), regulations should apply equally to

all persons. De facto segregation o f public beaches, as a result

of development patterns that facilitate use by shorefro nt land-

owners while obstructing or preventing access by the general public,,

is explicitly rejected as unacceptable anywhere in Puerto Rico.

Extent of Public Ownership Rights in Shorefront Areas

At the outset, implementation of the policy stated above re-

quires clarification of existing public rights in shorefront areas.

A number of legal issues need to be resolved, and boundaries be-

tween public and private land need to be clearly delineated. With-

out these clarifications, private interests too often override pub-

lic rights.

Crown Grants

In a few parts of the Island, owners of shorefront property

claim that grants from the Spanish crown entitle them to exclude

the general public from portions of the maritime zone. If valid

grants do exclude the public from extensive areas, governmental

action may be needed. An essential first step is to determine the

extent and validity of the grants.,

129

Recommendation

Puerto Rico should, by statute, require egistration of all

crown grants that are claimed to authorize exclusion of the_qen-

eral public from any portion of the maritime zone. The statute

should establish a reasonable registration period, of perhaps one

year, after which (1) unregistered grants would be void, and (2)

the validity of registered grants would be expeditiously adjudi-

cated in a manner fixed by the statute.

Delineation of Maritime Zone

The maritime zone has an inconvenient characteristic: it

moves with the shoreline. over a period of years, depending on

wave action, it may "retreat" seaw ard or "advance" over private

property. Especially since the construction of dams has restricted

the amount of river sands being deposited along the coasts, the

"advance" of the maritime zone has been notable in some places.

Although delineation of the zone is difficult because of this move-

@ment, it is nonetheless essential in order to safeguard public rights.

Recommendation

Ruerto Rico should.conduct a continuing survey to delineat@t

the maritime zone with precision, and should publish the result

130

in convenient-form. The Legislature should appropriate funds suf-

ficient to permit this en largement of the present delinea tion pro-

'gram.

Servidumbre de Vigilancia

In addition to the maritime zone, the Spanish Lev de Aguas of

@1866 appears to have conferred another unique legacy on the people

of Puerto Rico. This law establishes a servidumbre de vigilancia.

(easement of vigilance) that extends inland six meters from the

landward edge of the maritime zone.* The purpose Of this easement

as originally conceived was for the state to have access to the

beaches to be. able to detect and exercise control over vessels

navigating close to shore. IWherever the six-meter strip is im-

passable, the laws require that the shorefront landowner permit

authorized people to pass at a convenient place nearby. If these

*Similar provisions were included in the Lev de
Puertos of 1880; however, the validity of the servidumbre
may be questioned under the law (See letter from Wallace
Gonzalez Oliver, Secretary of Justice, to Enrique Soler
Cloquell, President of the Planning Board, dated April
24, 1972).

131

provisions still apply,** then the servidumbre has often been

ignored in recent years.

Today, as concern.about pollution and, its consequences (such

as fish kills and oil spills) accentuates age-old needs for vigil-

ance over coastal areas, it is essential that the existence of the

servidumbre be definitely determined, publicized and enforced.

The servidumbre creates, for purposes of coastal vigilance and

also perhaps for other purposes, a right of passage along the en-

tire coast of Puerto Rico. To create such a right anew, if it

did not already exist, would be enormously burdensome and expen-

sive.

Recommendation

Puerto Rico should definitely determine the continuing valid-

ity of statutorV provisions establishing the"servidumbre de vigil

ancia!'. If the servidumbre shall exist, its existence should be

publicized-, both among shorefront developers and among the general

public.

**See Robert Armstrong vs. Commonwealth, 97 D.P.R. 588 (1969).

IL32

other Legal Issues

There is need for a convenient and definitive source of in-

formation to resolve a number of legal uncertainties about public

rights in the coastal zone. Needs Include:

I. Determination whether owners of offshore islands have the

right to exclude the public from the maritime zone surrounding

those islands.. These beaches and coastal areas on these islands

should be considered under Puerto Rico's coastal ione laws, so that

the owners could not prevent public access.

2. Determination of remedies available to a person wrongfully

excluded from the maritime zone or from a servid umbre.

3. Determination whether the benefits of the 20-meter servi-

dumbre de salvamiento, also established by Spanish laws, are lim-

ited to victims of shipwrecks, and whether that servidumbre re-

stricts development of the land to which it applies.

4. Determination of public and private ownership rights in

mangroves.

5. Determination whether or not public access r ights to shore-

1ands may have been obtained by prescription as the result of public

use over a period of years. Likewise, determination that public

access to the shorelands is protect ed under the police power of

the state to authorize development. These rights to be considered

133

as easements can be*an important source of access. Their extent

in Puerto Rico, and a convenient means of locating them on the

ground, should be clearly established.

6. Determination of the practical effect, in coastal areas,

of the rule that allows private persons.to obtain legal title to

s
ome kinds of public land by occupying it for a prescribed number

of years.

Recommendation

The Government, aided by priva te organi zations such as the

Bar Association or the Conservation Trust Fund of Puerto Rico,

should prepare a definitive legal policy analysis establishing

the extent of public ownership rights in coastal areas and recom-

mending legislative or administrative measures necessary to

strengthen or protect those ri2hts.

Exclusion of Squatters from Maritime Zone

Lackadaisical and hesitant law enforcement over a period of

many years, has encouraged squatters--both rich and poor--to build

illegal structures in the maritime zone. An effective mechanism

is needed to put an end to this practice and to compel removal of

existing illegal structures. Since expe rience demonstrates that

I -M.

Government agencies often find it politically delicate to assert

the public right in these cases, statutory authorization of citizen

suits may be the most feasible approach.

Equitable considerations probably require that some limitations

be placed on.the right to bring citizen suits. For example, a sta-

tute authorizing citizen suits generally might nevertheless bar

them against: (1) structures built, pursuant to a valid building

permit, before the effective date of the statute; and (2) structures

that were built beforethe effective,date of the statute and that

are subject to a valid compliance plan, filed on record by the

owner, agreeing to remove the structure within a reasonable amort-

ization period not to exceed 10 years after the effective date of

the statute.

Recommendation

The Government should, by statute, give any citizen standinq

to seek a mandatory injunction requiri a immediate removal of il-

legal structures locat ed in whole or in part within the.maritime

zone. Such citizen rights should supplement, rather than EMlace,

enforcement rights now available to the Government.

135

Access Rights Following Arti ficial Shoreline Changes

To assure continuity of public access rights despite artifi-

cial shoreline alterations, the right of access should extend to

new.land created along the shore to man-made beaches, and to newly

dredged channels.

Recommendation

ALL_permits for dredging and filling should be conditioned on

dedication of an easement of public ac bess to_any resulting new

land, beaches, or chann,21s. Legislation, assurin2 that such dedi-

cation will be mandatory in a2pro2riate cases instead of resting

within the discretion of regulatory agencies, would also be highly

desirable.

Beach Access

The maritime zone, especially if augmented by the servidumbre

.@Le vi_qilancia, could be-thought of as a pedestrian.right-of-way

that performs some of the functions of a highway. it is reasonable,

then,that highway plans in clude connecting roads to link shoreline

right-of-ways with the entire Island network ofstreets and highways.

Highway planning, however, is far from enough. Although pro-

perly located highways can remove physical and legal barriers that

136

bar shorefront access, this is only a first step. The more impor-

tant need is for plans to assure access. Such plans should con-

sider several variables:

1. The varied character of the coastal zone itself from place

to place. Long, continuous beaches need differe nt treatment from

rocky headlands.

2.. The varied means by which access can be established. For

example, coastal access can be assured by designing new shorefront

highways at locations that preclude the construction of buildings

between the highway and the coast. Access can also be provided

by providing a series of intensive-use facilities (such as Luquillo

Beach), with nearby shorelands.accessible to those who walk along

the shore from those facilities. Other possibilities include per-

mitting physical pedestrian access,.from a street near the shore

and providing a place to park, access by hiking or boat alone if.

the firm intent is to preserve the area in its undeveloped form.

3. The varied ways in which people enjoy using the maritime

zone. Dune buggies and bird watching do not mix. Some activities

will surely have to be restricted by regulation, and limited areas

will have to be set aside for activities such as picnicking, sports,

etc. Far more effective, however, would be a planned access system

that naturally restricts some areas for the less intensive uses..

There is noneed to make all.shorefront. access equally convenient:

-137

some of the more rugged ar eas can be effectively reserved for use

by a hardy few.

Plans drawn up for beach access should also:

1. Provide for public facilities (including, where appro-

priate, highways, public beach installations, parking facilities,

pedestrian access ways) sufficient to remove legal and physical

,obstacles that could exclude the general public.from enjoyment of

the maritime zone.

2. Recognize that public demands on the maritime zone will

change in ways not now foreseeable and, accordingly, seek to pre-

vent the creation of new property rights that could prevent future

governmental response to these changing demands.

Development of the coastal zone is generally pr eceding, rather

than following, the planning process. Plans of the kind just re-

commended either do not exist or are not being followed. other

mechanisms are needed, therefore, to assure that development does

not permanently prevent public access to the maritime zone.,

As already noted, older patterns of residential subdivision

provided beach access points that are of enormous importance today

in the urban areas of Puerto Rico (e.g., the dead-end streets that

provide access in the.Condado). Newer developments, however, are

not following conventional subdivision patterns. Many tourist

138

complexes are not being subdivided intolots, and new residential

developments are following more imaginative subdivision designs.

Regulatory requirements have not yet been adapted to this new

context. Although existing Planning Board re gulations do appear

to require access in connection with smaller subdivisions, the

regulations do not establish clear-cut access requirements for

many of the projects now being built. As a result, access re-

quirements are only established on.an ad hoc basis, usually with-

out public awareness or discussion.

As might be expected, the ad hoc requirements vary unpredict-

ably from project to project. In some projects, obscure rights-of-

way are required. (one hotel, which was authoriz ed to install fenc es

that prevent public passage along the oceanfront,- was required to

establish a public right-of-way co nnecting the beach with the hotel

parking lot. It is unclear to the Subcommittee--and presumably to

the public--whether there.is a legal right of public access from

the highway to the parking lot.) In other projects, no right-of-

way is required at all, or transportation to the beach is controlled

entirely by the project management. The theory in these case s may

be that adjacent property owners will be required to provide access

when they subdivide or develop their land.

Clear-cut requirements are essential if effective public access

is to be guaranteed. California legislation, which bars suibdivision

139

unless "reasonable," access is available, suggests the principle

that ought to underlie those requirements. It is probably true,

however, that this principle (properly extended to include major

developments as well as subdivisions) is approximately the prin-

ciple that is already being applied on an ad hoc basis in Puerto

r1co. The difficulties arise in assuring thatthe principle.is

applied consistently and in deciding what the principle means in.

individual cases.

In addition to establishment of the principle, therefore,

several regulatory.-provisions--are need.ed:
1. -A basic or fail-safe requirement to assure minimally ade-.

quate beach access. 'This might provide, for example- that beach

access be provided at intervals of approximately 1,000 meters,--W-ith
t.-he interval never greater than 2,000 meters unless necessary for

health, safety, or environmental reasons. It might further prohibit.

coastal subdivisions and substantial coastal developments unless

these requirements are satisfied by (a) existing (not planned)

streets or rights-of-way in the vicinity, or by (b) streets or

rights-of-ways dedicated across the property being developed or

subdivided.

140

2. A flexibility provision'authorizing adopted plans affect-

ing the coastal zone to make these requirements either more strin-

gent (e.g., in dense urban areas) orless stringent (e.g., in in-

dustrial areas or where natural conditions preclude access), so

long as the basic principle of reasonable access is maintained.

3. A public notice and bearing requirement to assure public

awareness of any d evelopment that may have the result of fore-

closing access.

Recommendation

The Government should establish by regulation or legislation

a'(1) declaration of beach access policy, (2) a basic shoreland ac-

cess requirement, (3) a flexibility provision enabling adopted

plans to vary the basic requirement, and (4) a_.public hearing

requirement to assurepublic awareness of projects that may fore.-

close access.

141

LAND USE GUIDANCE

In addition to foreclosing public access, uncontrolled coastal

development often needlessly destroys the natural character of

the shorelands themselves. Avoidable destruction has already

occurred in many parts of the Island. Indeed, if effective mecha-

nisms to guide development are not established soon, much-of the

opportunity to prevent further destruction will disappear. High-

ways, industries, and condominiums, each located in ac cordance

only with the needs of its promoter, will soon have set.basic pat-

terns that future development will have to follow. And many of

those patterns will result in the dredging, filling, and paving

over of the very shorelands that attracted the development in the

first place.

The need is for a balance between the needs of development

and those of preservation. Since present practices are overbalanced

in favor of development,,a policy of balance will give new weight

to preservation of natural sboreland.conditions. "Shorelands" here

refers to all those areas, both publicly and privately owned, whose

natural features (such as dunes, vegetation) are primarily determined

by the proximity of the sea. (See footnote, Introduction). This

policy is not intended to discourage coastal development, it is
-intended to discourage avoidable disruption of the natural processes

.142

that create the unique utility and beauty of shorelands. Nor

is this policy intended to promote government ownership of.those

shorelands that lie landward of the maritime zone; is is intended

to protect the natural front yard of an Island facing the sea.

Recommendation

The Government should adopt the*policy that coas tal de velopment

should, to the fullest practicable extent, preserve the natural

character of the shorelands that surround Puerto Rico.

Coastal-Zone-Management Policies and.Plans

To achieve balanced development, Puerto Rico needs to establish

clear and specific policies for the guidance of.land use and develop-

ment in coastal areas, instead of-merely reac ting on an ad hoc basis

to project proposals initiated by private*corporations and public

development agencies. The policies should serve as,a basis for com-

prehensive coastal-zone-management plans.

The policies.and plans should then be implemented by all feasi-

ble guidance mechanisms that are needed to assure effectiveness. In

a few areas, these mechanisms should include public purchase of land

or other property interests such.as easements or development rights.

In remaining areas, regulations should be established, supplemented

143

where possible by income and property tax incentives.

The Subcommittee wishes to call attention to a recent report,

Coastal Zone Management in Florida - 1971, issued by the Florida

Coastal Coordinating Council in December 1971, which illustrates

the kind of planning approach needed here.. The report classifies

land and water areas "util izing-the three basiccategories of

'Preservation' (no further development), 'Conservation' (limited

development permitted), and 'Development' (suitable for intensive

development). 'Preservation' areas would protect ecologic units

of sensitive flora and fauna as well as areas, of dunes, marshes

and swamps. 'Conservation' areas would include hurricane and flood

plain zones usable for parks, open space, greenbelts, and other

non-intensive uses. 'Development' areas would include those lands

with soils and topography suitable (or suitable with minor correcl@-!

tions) for intensive develop ment. The geographic extent of each

category in the pilot area has been mapped using aerial photography,

soil surveys, topographic maps, and spot field checks. Totals for

land zoning categories in (the pilot area) are: Preservation, 6.5%;

Conservation, 30.5%; and Development, 63%. Environmental aspects

and uses for each 'Preservation' and 'Conservation' category are

enumerated."

The Subcommittee is impressed by the need for speed in the

pl ann.ing process. Funds for coastal-zone planning must be made

144

available soon and must then be quickly put.to use. Measures that

do not depend on completion of plans, some of which are recommended

later in this report, must be taken at once. Even so, a great deal

of development is likely to take place while plans are being pre-

pared. During this interim period and perhaps afterwards, some

mechanism appears to be needed to enable priva te developers to

aid public planning efforts. In a sense, developers, are already

providing such aid when they prepare Environmental Impact Statements

for important projec ts. These Statements, however, come after devel-

v/*'opment is proposed. Some mechanisms must be found to enable developers

and property owners to expedite area planning beforehand, thereby

avoiding the intolerable delays that result when public decision-

.making takes place almost entirely in response to permit applications.

.These plans should provide for the public enjoyment of the maritime

zone by preserving the natural variety of coastal areas and respecting

the varied ways in which differ ent people enjoy those areas.

Recommendations

1. Comprehensive coastal-zone management policies and plans

should be formulated and adopted to provide for protection and devel-

opment of the coastal zone. Measures to.expedite the Plannincr and

'decision"making processes, including measures enabling developers to

145

help expedite area planning, should be given particular attention.

2. The Environmental QualitV Board, in consultation with the

Planning Board, should be charged with setting up broad coastal

zone policies and plans; the Department of Natural Resources should

prepare detailed plans-and establish procedures for their implemen-

tation.

Protection of Critical Environmental Areas

A few areas within the Island's coastal zone should be desig-

nated "Critical Environmental Areas" because they are especially

deserving of protection.. Phosphorescent bays, important reefs,

sanctuaries, and significant mangroves, are examples of such areas.
-Natura.1 features in these areas warrant the establishment of strin-

gent protective measures that do hot apply elsewhere. Several, in

fact, are suggested by the report of the Subcommittees on Living

Resources. Therefore,-even though current and future studies will

permit additional designation later on, there is no need to await

completion of those studies before taking action to preserve the

most important of these critical areas,

A program to protect Critical Environmental Areas should com-

prise the following elements:

1. A mechanism that assures the designation of the Areas in

a manner that is fair and that inspires public-confidence is needed.

146

Designation by an appropriate agency, after publication of a thor-

ough report and public hearings, seems a minimum requirement.

2. Appropriate restrictions should be imposed on,Critical

Environmental Areas including at least the following: (a) Estab-

lishment, as an emergency measure if necessary in specific cases,

of a special procedure, to include mandatory publi c hearing, that

must be followed before any development of such areas; and (b)

establishment of particularized controls after negotiation with

property owners. The procedure established by the Massachusetts

Wetlands Act is a most useful model to follow. After expiration

of a short appeal period, these particularized controls would be-

come permanent restrictions and would be recorded in the Registry of

Property.

There should be subclassifications of Critical Environmental

Areas (e.g., critical reefs, littoral areas, watershed areas, man-

groves areas, sanctuaries, phosphorescent water areas, wetland areas,

offshore islands), to permit establishment of restrictions suitable

for the special needs of the areas in each subclassification. (The

Report of the Subcommittee on Living Resources details some of the

special considerations needed, for sanctuaries.)

3. To facilitate designation and assure fairness, a series of

ec onomic incentives should be establishe d to benefit private owners

of Critical Environmental Areas. As a minimum, any area subject to

147

permanent restrictions should be assessable, for tax purposest,

only at its market value as so restricted. In addition, income

tax laws might properly be amended, if necessary, to permit the

owner of a Critical Environmental Area to donate its development

rights to Puerto Rico and to deduct the, value of that donation from

income tax (perhaps without regard to the 3 percent exclusion now

applied before gifts become deductible).

4. Because incentives will hot be sufficient to assure pre-

servation in every case, the Government should start a program to

acquire appropriate scenic easements, development rights, or even

.full property ownership in those Critical Environmental Areas whose

natural character cannot be effectively preserved by other means.

Although requisite legal authority for such a program appears to

,be provided by the Land Administration Act, funding needs to be

significantly increased. Given the magnitude of the need, substan-.

tial sums should be included in the budget for the purchase of

property rights in Critical Environmental Areas. The monies ear-

marked for this should be separate from sums appropriated,for the

purchase.of recreation-.1ands.. Insofar as practicable, the sums

appropriated, combined with those appropriated for recreation land

purchase, should be sufficient to provide the matching funds neces-

sary to obtain all available Federal open-space grants.

148

5. New administrative arrangements should be established

for maintenance of Critical Environmental Areas.. Regional

comm ittees of trustees seem especially suited for this need.

Recommendation

The Government should by statute, authorize the designation of

Critical Environmental Areas, including provision for regulation

and maintenance of those Areas,-for the granting of tax incentives.

to their owners, for the purchase of easements or other pro2erty

rights when necessary to assure preservation.

Protection of Areas Suited for Intensive Use

Just as some coastal areas are uniquely important for preser-

vation, others are uniquely suited for intensive uses as ports,

power plants, and heavy industry. Designation of the limited sites

suitable for these intensive uses is essential, just as in the case

of Critical Environmental Areas. Indeed, outright public acquisition

of these sites is probably even more. urgent than in the case of the

preservation sites. Efficiency and pollution control appear to

dictate that these activities be concentrated within limited coastal

-areas. This planned concentration in turn seems likely to accen-

tuate further the rise in land prices, which could, in the view

149

of some observers, begin to price Puerto Rico out of the market

for future developments of the type described.

Several agencies, including the P lanning Board, Fomento, and

the Water Resources Authority, are currently preparing location

studies for sites that could anticipate future intensive uses.

These studies are indispensable. A la nd-acquisition program is

also essential, however, to assure that the chosen sites remain

available.

Recommendation

The Government should inaugurate an immediate program to

ac uire full property ownership (or, where sufficient, easements or

development rights or other lesser proRerty interests) of the re-

latively few remaining coastal sites suitable for ports, power

plants, and heavy industry.

@Requlatory Measures

In the !'ordinary" coastal areas, unlike the limited areas

designated as critical for pres ervation or intensive use, Puerto

Rico must rely almost entirely on regulations to carry out its

coastal land-use guidance program. At present, land-use regula-

tion of outlying coastal areas is ineffective. Intensive

-150

developments are arising at scattered sites, often preceding

fundamental public decisions such as the size and location of

major higbways and utilities and the development densities they

could support.

Several Puerto Rican agencies have statutory authority to

guide development in coastal areas. The planning Board has

extensive jurisdiction, while the Environmental Quality Board

has power over environmental aspects. The new Department of,

Natural Resources will have powers over coastal zones, and the

Department of Tourism will oversee development in areas of

tourist interest.

DensitV Limitations

Given the record of administrative agencies, the Legislature

may itself wish to impose strict limits on development in unplanned

coastal areas. The establishment of density limitations would,be

a feasible regulatory measure. This measure would achieve basic

protection in that the formal adoption of policies, plans, and

regulations would become an essential prerequisite to development

at urban intensities.,

151

Recommendation

The Government should, by statute, prohibit intensive resi

dential development of,the coastal zone_(_other than rural deve-

lopment on small existing lots or at an intensitV of'not more

than one or two families per cuerda) unless the project is either

(1) connected to an existing public sewer system or (2) is to

be developed in accordance'with a formally adopted coastal-zone

manage ent plan that makes adequate provision for roads, sewerage,

public open space,-and other necessary facilities.

Setbacks

Unless sensitively planned and designed, shorefront highways

and buildings often destroy.the natural quality of the shorelands

over which they pass. Given the extreme difficulty of achieving

sensitive design, a setback requirement, limiting development to

the area behind the shorelands, has great potential as a protective

device.

Ideally, any setback should itself be determined by a plan.

Setbacks would then vary from place to place, taking account of

areas@subject to flooding (including flooding by high waves during

storms); areas whose development would result in removal of protec-

tive dunes; wetlands and other areas of important coastal vegetation;

152

areas in which high-rise buildings would cast shadows on recrea-

tional beaches in the maritime zone, etc.

Florida legislat ion* provides for establishment of setback

lines, on the basis of comprehensive engineering studies and

topographic surveys, to assure protection of upland properties and

the control of beach erosion. The statute considers of factors

such as "ground elevations in relation to historical storm and

hurricane tides, predicted maximum wave uprush, beach and offshore

ground contours, the Vegetation line, erosion trends, the dune or

bluff line if any exist, and existing upland development .... 111

The Florida experience.may.ha ve important carry-over value

here. One Florida official* describes the process for establishing

the setback in the following way:

We have used the 20 years storm surge, plus two
feet of wave set-up, plus the Mean High Water
level to arrive at a "combined water level"
(this is a still water level).* We use the@"com-
bined water level," various wave characteristics,
and the offshore and beach profile as imput to a
computer program which calculates how high up the
beach the wave will reach.

Generally, no building (or seawall) should be
reached by the wave uprush. In addition, no
structure should be built in such a way that it
will destroy the major sand dune (here we use a

Section 161.053, Florida Statutes, enacted June 25, 1971.

Letter from Mr. W.M. Sensabaugh, Engineer, Bureau of Beaches
and Shores, State of Florida, to Cruz A. Matos, Executive
Director, EQB of Puerto Rico dated August 1, 1972

153

setback from the centerline of the dune).
If the dune is so low that it is overtopped
by the waves in the computer program, then
,we use a formula which is based on the aver-
age annual rate of erosion in the area in
question.

To date, we have essentially completed the
study of 44 miles of shoreline, in 1,000 foot
increments. We have found a wide variation of
the height and width of the beach and dunes within
this continuous 44 miles. This points out the
need for a comprehensive study with.sufficient
flexibility in criteria to allow for changes in
the shoreline. In Puerto Rico the changes in the
shorelines are more severe and occur more frequently,
therefore, comprehensive study and flexibility will
be even more important to you than they are to,us.

Established, although informal, practice in Puerto Rico some-
-ti-mes results in substantially larger setbacks for some new pr03ects

than would be mandated by the Florida approach. Aesthetics and

other objectives do unquestionably warrant larger setbacks in many

instances, and those factors should continue to be considered. The

Florida approach would, however, provide a rational basis for a

consistently applied and essential minimum setback.

Where plans are not yet available to serve as the basis for a

requirement tailored to the individual situation, a uniform ocean-

front setback can provide a measure of protection. This has long

been recognized in Puerto Rico, and a substantial setback has some-

times been required. Unfortunately, this has been done on an ad hoc

154

basis, depending on the project. To.attain consistent protection,

several regulatory provisions are needed

1. Enactment of a basic or fail-safe setback requirement.

This might fix a basic setback distance from the ocean Xperhaps

30 or 50 meters) plus, in the case of buildings more than two

stories high, any greater distance necessary to prevent the casting

of shadows on beaches in the maritime zone during specified day-

light hours.

2. A set of exception for the benefit of small tracts (smaller
than about 5'cuerdas) that existed before the setback requirement

went into effect. Unlike a large tract, where a setback will rarely

decrease the total quantity of permitted development, a small tract

can be rendered largely or.even wholly useless by a.la rge setback

requirement. Fairly generous exceptions for establ'ished small tracts

seem worth granting in order to achieve legal and political accepta-

bility for measures that protect large tracts that are being deve-

loped for the first time.

3. A flexibility provision authorizing adopted-plans including

those prepared pursuant to the Florida approach to establish either

greater or smaller setbacks, so long as consistent with the basic

policy of the regulation or statute.

4. A public notice and hearing requirement to assure public

awareness of any project for which a p lan has authorized a set-

back smaller than the basic setback.

Recommendation

Puerto Rico should establish, by regulation, a (1) declaration.

of shorefront protecitlon setback-2olicy, (2) basic shorefront set-

back of Rerhaps 30 or 50 meters, (3) set of exceptions for the

benefit of small existing tracts, (4) flexibilitV LDrovision enabling

adopted coastal"zone-manacfement plans to varV the basic reguirement,

and a (5) public hearing requirement to assure public awareness of

projects for which plans 2ermit a smaller setback. (In addition to

regulations, or in place of,them, legislation establishing these

requirements would be highly desirable.)

Special Problems

Several additional problems warrant attention in addition to

measures already recommended. These inv6lve the protection of the

material as well as aesthetic values of our beaches.

Dunes
@`Although dunes play an immensely important role in storm pro-

tection, sand extractors have already removed most of the dunes along

.156

the north coast. Further removal should be prohibited. Public

action should assure that sand for the construction industry is

available from alternative sources such as importation or sand

manufacturing.

The dunes are in a state of constant erosion and deposition.

Therefore., no bui,ld.ings,zhould -be constructed on coastal dunes

because they may not be structurally stable and because they may

adversely affect the natural movement of sand by wind and waves.

It may also be desirable to regulate the intensity of traffic

(foot or wheeled) on the seaward or windward side of some dunes

because such usage can facilitate erosion. (See Report of Sub-

committee on Research and Development, "Sand Extraction'".)

Recommendation

Puerto Rico should, by regulation, require the preservation of

all remainin'q,dunes, both in and behind the maritime zonej as

protection against action of the sea.

Views of the Sea

New requirements and incentives are needed to protect views of

the sea. A number of steps are possible. For example, beautification

funds, the so-called "3 percent money" availab le for federally-aided

157

highways, could be used to buy scenic easements along the sea.

Regulations could require separation between buildings along the

coast. In appropriat-e locations, there might also be encouragement

.to open up the ground floor of buildings so that passers-by could

see through to the sea. Signs visible from the sea or from the

maritime zone should be restricted by regulation.

Recommendation

New requirements and incentives should be established to pro-

tect views of the sea. (See similar recommendation by Recreation

Subcommittee.)

Subdivision of Shorefront Property

At present, the Planning Board does not have.the power to control

land subdivision in projects where each resulting lot has an area of

5 acres or more and is to be used for agriculture. In practice,

subdivision into 5-acre tracts normally has substantial impact on

the future development of coastal areas. This is particularly true

if lots are very narrow and deep, but it is true in any case because

of the ease of subdivision into smaller tracts. Given the importance

of coastal areas, all land divis ion there, regardleas the size of the

lots, should be-controlled.

3,58

Recommendation

The Government shon1d, bv statute, extend subdiV4sion control

authority to include everV divi Sion of land located in whole or in

Part, within 1,000 meters of the sea.

Beach Gleaninq

Except in certain beach areas operated by the Public Parks

and Recreation Administration, trash pick-up from beaches is rarely

adequate. The inadequacy appears to be caused by a combination of

lack of funds, inter-agency jurisdictional disputes, and hesitancy

to experiment with beach cleaning machines. None of these obstacles

seems insurmountable.

Recommendation

The Lecrislature should allocate sufficient funds for beach

cleaning and should-direct an appropriate agency to clean the beaches

in the most effective way available. (See similar recommendation by

Recreation Subcommittee.)

PROTECTION.OF COASTAL WATERS

The policy of natural preservation, already recommended for

shorelands, should be applied equally to coastal waters. Pollution

159

and reef disruption can destroy the coastal zone even more insid-

iously, because less obviously, than rhisplaced highways and refi-

neries and condominiums.

This report gives only abbreviated treatment to protection of

coastal waters, because many of the principal problems are within

the charge of other'Subcommittees. -Furthermore, and possibly more

important, the Government is now doing a relatively better job in

responding to coastal water problenis than to shoreland problems.

The last three years have seen new public concern and involve-

ment with "water problems," new administrative agencies (notably

the Environmental Quality Board and the Department of Natural

Resources), and vastly increased funding, both from Commonwealth

appropriations and Federal aid, particularly for waste water treat-

ment facilities. As a result, although many programs and projects
'are still too new to evaluate thoroughly, the Government seems to

be using a fairly large fraction of its real opportunities to deal

with water problems. There is need to do much more, of course,

There is need to work faster and more effectively. There is also

particular need to recognize that the measures undertaken so far are

mostly interim measures and that more far-reaching efforts will be

necessary in the future. Nevertheless, the contrast with the shore-

land problem is sharp. There, the need is for an almost complete

change of direction in dealing with an alarming situation of which

160

the public is insuf ficiently aware. Here, in. dealing with coastal

water, the Government is, by and large, 0 1nthe right track. The

posture of the Subcommittee is basically one of endorsing what is

already being done and urging faster and more effective action in

the directions already established,,

Water Quality Standards

The waters of the coastal zone are, simultaneously, a place

for swiming and water sports, the edge of the world's largest

remaining wilderness, and the place we dump-our waterborne wastes.

Wise use 's therefore essential.

As soon-as possible, the Government should adopt a policy of

recovering and reusing all waterborne wastes instead of dumping

them into the sea., Nothing less will be ultimately satisfactory

either from the standpoint of pollution or from that of resource

conservation. For the time being, given the vast gap between that

ideal and present practices, a number of lesser steps are valuable.

The following needs seem clear:

1. Stronger regulations limiting pollution. For new instal-

lations,. legislation pending in Congress seems likely to require the

use of the best available technology to control pollution. Puerto

Rico' s regulations, currently-being revised, should establish this

requ irement without waiting for. the Federal iniciative. In the

161

case of existing installations violating standards, the Government

should estab.lisheclean-up schedules like those already being estab-

lished for air polluters. The schedules should assure that all

waters will comply with standards by 1976 or 1977.

2. Pretreatment standards. Waste water treatment facilities

are necessarily designed to handle only certain kinds of wastes.

Existing regulations should be reviewed to assure that they require

whatever pretreatment is necessary so that facilities do not receive

wastes they cannot process. If t oxic wastes are not amendable

either to treatment or pre treatment, new installations producing

those wastes shoul d not be permitted in Puerto Rico.

3. An Island-wide plan for waste-water-treatment facilities.

Such a plan is scheduled for completion in time to meet a Federal

deadline in mid-1-973. As now envisaged, the plan will call for

"secondary treatment equivalent,'I which means primary treatment

(essentially the removal of solids) plus disposal of effluent through

long ocean outfalls. Several regional plants are being planned each

with its own outfall.

The Subcommittee considers this ocean disposal acce'table only
P

as an interim step, ultimately to be replaced by recovery and reuse

systems. Even within this interim time frame, the Subcommittee be-

lieves that no final decision with respect to distribution and loca-

tion of plants or theirtreatment process es should be taken without

162

careful evaluation of alternatives. One alternative that should

be thoroughly explored is the establishment of a single collection

sy stem, treatment plant, and outfall to serve the entire Island.

Proces ses such as land disposal with indirect reuse should also

be considered.

4. More effectivei',control of river mouth pollution. A great

deal of coastal pollution is carried by rivers. One needed step

to combat this is more effective control of the pesticides used

in agriculture. Another.is exploration of replacements f or septic

ta nks and privies along streams in rural areas. Still another is

adoption of strict grading and earthmoving regulations to reduce

erosion and dedimentation.

5. 1A Puerto Rican oil spill contingency plan. The Coast Guard

has a national oil spill contingency plan, supplemented by a region-

al plan of the Environmental Protection Agency and a Puerto Rican

plan. The Puerto Rican plan should be revised and updated,to provide

detailed guidance, establishing who will do what when oil is spilled.

6. Control of underwater oil wells. Oil prospecting is cur-

rently going on along the southe rn coast of Puerto Rico,.and recent

announcements indicate that oil extraction may prove commercially

feasible. Safeguards are needed to assure that any permitted extrac-

tion does not cause damage to the coastal zone and marine resources,

as occurred in Santa Barbaral California, and elsewhere. The

163

opportunity to establish such safeguards should be seized now,

before final royalty arrangements and other terms of extraction

are established by the Commonwealth Government.

Recommendations

1. The Government should establish a policV, to-become effective

as soon as practicable, of recovering and reusing all waterborne

wastes, Until implementation of that policy becomes economically

and technologically feasible, measures to reduce pollution should

be vigorously pursued.

2. The oil spill contingency plan should be revised and updated

to provide for.immediate and coordinated action.

3. Environmental regulations for oil production and transpo.r-

tation should be established prior to signing roValty contracts.

Protection of Coral and Underwater Life

-Coral reefs are particular treasures, not only for themselves,

but because they provide habitat for a rich variety of underwater

life. Damage to reefs is, for all practical purposes, irreparable.

A prohibition against the taking of coral is clearly needed.

A further prohibition against sale of coral, would remove.one

present reason for widespread.coral cutting. To aid in enforcement,

164

transportation and possession of coral should also be regulated.

Recommendation

The Government should, bv__statute, prohibit the taking and

sale of coral andregulate its transportation and possession. (See

similar recommendation by Recreation Subcommittee.)

Protection of Ancient Shipwrecks

Some of the treasures found in coastal waters are historical

and cultural rather than natural. Of the 116 shipwrecks known

to lie around the Island,-a number are relics which form an

important part of the Puerto Rican heritage.

For a forthcoming Marine Atlas of Puerto Rico, these wrecks

were documented by the Department of Marine Sciences, University

of Puerto Ricol Mayaguez. The Department discovered that some

wrecks--notably a double wreck at Gallardo Bank--had been salvaged

and stolen.

..Immediate.protection of these wrecks is needed, followed by

longer term measures to protect the most important ones. The.

Insti-tute.of-Puerto Rican Culture and the University of Puerto Rico,

among other entities, should play amajor role in this preservation

effort.

165

Recommendation

The Government, acting by Executive Order of the Governor or

other expeditious method, should designate shipwrecks in Puerto

Rican waters as,national relics and should Pr ohibit their sal-

vaging or disturbance without permission. A mechanism to classify

wrecks, to grant-salvaging 2ermits for unimportant ones, and to

provide the most appropriate protection for historic ones, should

simultaneously be established.

PUBLIC INFORMATION AND INVOLVEMENT

To achieve effective coastal zone management, private citizens,

and groups must be enabled and encouraged to participate actively

in the management process.. Although Government agencies must.

.bear ma3or responsibility for the process, they cannot be successful

without public information-,and active day-to-day inv6lvement. In-

deed, theimportance of public pressure, to.counteract the private

pressures that every agency head encounters daily, can hardly be

overemphasized.

Information Mechanisms

Absence of information about what is happening in government

is one of the key barriers to active citizen participation in

166

coastal-zone management today. As in other subject areas, legis-

lative action can significantly enlarge the citizen's opportunity

to participate.

Puerto Rican and Federal laws already require public hearings

prior to some major decisions affecting coastal zones. Moreover,

Puerto Rican agencies sometimes hold additional-hearings vol.untar-

ily. Nevertheless, some large coastal projects have been approved

without any public, notice or hearing. To give meaning to the
hearin,gs,_all relevant material on the proposed decision, including

an environmental impact statement, should be -made available i
prior-

to the hearings.

Recommendations

l.- The Government should, by statute, establish requirements

similar to those of the Federal Freedom of Diformation Act. Until

such legislation becomes effective, agencies. should establish their

own Freedom of Information policies authorizing release of certain

classes of information without specific authorization.

2. The Government should, by statute, prohibit secret meetings

of public boards and agencies that adopt orapply regulations affect-

ing the coastal zone.*

Florida's "Sunshine Law" (Section 286.013@, Florida Statutes, adopted
in 1967) might serve as a starting pointfor Legislative drafting.

.167

3. The Government should, by statute, require-the holding

of public hearings (or, at minimum, require public notice plus

opportunity for hearing) before public decisions significant1v

affecting development in coastal zones. Such decisions should

include (1) approvals,-tentative or final, of maior development

Prolects in the coastal.zone,- (2) plans (or, in the absence of

plans, individual Proiects) involving either the de velopment of

public recreational or open space lands or their transfer for

other uses.

Public Education and Awareness

Lack of information about natural processes appears to be a

fairly direct cause of significant environmental damage. Interviews

with fishermen have shown, for example, that many believe thata

piece of cut coral will grow back in two months. In other cases,

lack of concern is the cause of damage. (It must be presumed that

boat ow ners know what happens when they discard beer cans in skin

diving areas.) In any case, educational prog Irams are needed.

Recommendation

The Government should augment existing educational programs

by establishing special programs for the groups most responsible

168

for damages to mangroves and reefs. These groups include fishermen,

boat owners, and scuba divers.

In Addition to formal instruction programs, there is need

for cooperati ve programs to achiev e educational objectives and

help implement public programs. One example of such a program in

Puerto Rico is the recently funded'-Project MATE, which,calls.for

high school students to measure rainfall.in nmnerous.locations

for the purpose of obtaining information on microclimate.
The State of Wisconsin had notable success during the'19601s

in.securing public participation in formulation-of an inventory

of important natural, cultural'. and historic features. The imme-,
diate.result was a more thorough and well-evaluated inventory.

The longer-term result was public awareness of the existence and

importance of the features, with resulting public interest in

measures to assure their protection.

Recommendation

Direct public participation should be an integral part-of the

formulation of an inventory of important natural areas.

169

New Institutions for Public Involvement'

If the coastal-zone-management program is successful, a growing

proportion of Puerto Ricans will become aware of their personal

relationship to a larger natural environment. Indeed, it seems

unlikely that the program can be successful unless this awareness

is cultivated. The sensitivity and concern required for preserva-

tion of natural features must, in the last analysis, come from

within. Regulations alone, even with an army of enforcers, cannot

Trevent. all taking of coral, disrupl@ion of mangroves, and so on..

Cultivation.of the essential concern can best be achieved, it

appears, by 'giving citizens a genuine role to play in the protection

of natural areas.

Regional Committees of Trustees

Regional Committees of Trustees appear to be the most suitable

vehicle for cultivation of this concern., The committees might

perform such roles as (1) conducting continuing environmental in-

ventories (e.g., annual photographic survey@ of mangroves,. such

as the survey recently conducted of Jobos Bay mangroves by the

Natural History Society), (2) recommending changes in the bound-

aries of Critical Environmental Areas, and (3) coastal vigilance

for the purpose of alerting Government agencies to the presence

170

of squatters, fish kills, and so on. The committees should

be encouraged-to work at municipal level, particularly in those

municipalitiesthat establish environmental commissions.. When.

possible the committees should have full-time staff assistance

from an appropriate agency as well as a small annu al budget, which

they could augment by securing local contributions.

@Recommendation

Regional "Committees of Trustees," composed of-local residents,

should be established by regulation or statute, -to maintain viqi@-

lance over the-coastal zone, with special emphasis on shorelands and

Critical Environmental Areas.

Culebra Park District

A special opportunity for citizen involvement may exist in

Culebra. Partly because the Navy's presence there has slowed

development, the island's impressive reefs and other natural features

have been preserved better than many similar features in Puerto Rico.

Now that the Navy is reducing its role .(as demonstrated by President

Nixon's recent order relinquishing Navy jurisdiction over island

waters) Culebra,faces increasing development pressures. These are,,

for it, virtually a new problem.

171

In coping with this new problem, Culebra has some special

advantages. First of all, it can benefit from the experience

of Puerto Rico and other areas that have faced the same pressures

for many years. Secondly, its outstanding off-shore keys are

an established National Wildlife Refuge, And many are owned by

the Puerto Rican Government. A third advantage stems from Culebra's

relatively high visibility. The people of Culebra-have, as the

result of events in recent years, some experience of success in

taking local action to cope with local problems. In addition, the

Island has received a great deal of attention in Puerto Rico, in

the United States, and beyond.. As.a result, naturalists and other

professionals seem.especially likely to be willing to assist a

Culebran effort to preserve its outstanding natural features.

In sum, if the right catalysts can be provided, Culebra appear,s

to have special opportunity to guide its development without, in

the process, witnessing the destruction of the natural features that

have,.until now, been fortuitously preserved.

To capitalize on these opportunities, the Government should

consider creation of a Culebra Park District with power to estab-

lish specific development controls, over public and private property,

analogous to those established by the U.S. National Park Service in

areas such as the Cape Cod National Seashore. The statute might

transfer custody of offshore keys to the Districts and express the

172

policy of the Commonwealth that manage ment of any Federal lands

released in Culebra be the responsibility of the District. The

statute should assure representation by Culbbrans,.perhaps by

providing that at least half ofthe District's governing body

be elected by Culebra residents.

Recommendation

The-legislature should consider the feasibility and desir-,

-Pa
ability of establishing a Culebra rk District, which would have

specia 1 powers to protect the environment of the Island,..and which

..would include',representdtivea of its residents., The.possibility

-of establishing a similar mechanision for Vieques should also be

considered.

Note:from the Subcommittee Chairman:

On behalf o f the Subcommittee on Coastal Zone Management.and

myself, I want to emphasize the large debt we owe to Jack Noble,

our Vice Chairman, who virtually single-handedly structured this

report and worked most assiduously to fill it in.

173

SECTION 4 REPORT OF SUBCOMMITTEE ON
RESEARCH AND DEVELOPMENT

INTRODUCTION

The economy of Puerto Rico has undergone a phenomenal growth

that will in all probability continue in the forseeable future.

Our Island now is sixth among nations of the world in value of

products and services obtained per unit of active land. It has

become, because.of this exceptional technical progress, a model

for other developing countries. However, much remains to be done

in fulfilling the'promise of Puerto Rico--particularly with regard

@.to wise utilization of the marine resources that surround this

oceanic Island,

Puerto Rico's success has in large measure resulted from a

rapid influx of technological knowledge and capital. Needless to

say, future development will depend upon our ability to avoid the

undesireable consequences that inappropriate applications of tech-

nology could have on our society and its environment,

Effective utilization of technology implies: (1) the analysis

of all variables involved in the process of economic development of

the Islandl including a detailed knowledge of the environment that

might be affected; (2) the ability to adapt already existing tech-

nology to that environment; (3) the development of n;ew technology

174

that is specificallygeared to that environment (in our case,

a tropical environment); (4) the development of manpower neces-

sary to work with that technology; and.(5) a public that is

aware of the available resources, how these may be wisely used,

and their limitations.

Technological development in Puerto Rico, particularly

because.of the Island's high population density, has been placing

ever increasing stress upon the shores and surrounding.oceanic

-..environment. The problems arising.are visible and widely known,

yet-the knowledge available for their solution is'still.1argely

unknown. Comprehensive data on most aspects of the marine environ-

ment_are required for this problem-solving effort. While some

information does exist on water depths, current patterns and

other physical, chemical, and biologicalcharacteristics, what is

available-is inadequate to supply answers. to most present needs.

Data that do exist are deposited in scattered locations. There

is no program established to bring this information intb.a center

where it could be available to investigators.

Many specific problems of the marine environment in Puerto

Rico require urgent attention. The potential e ffects of today's

practices of dumping industrial and 'residential wastes, of shore-

line and submarine extraction of sand, of,dredging, and of.thermal

175

pollution--on organisms and environmental systems in the nearshore

waters and littoral zone are not fully understood. There are

many indications that these practicesdo permanent damage to the

ocean system surrounding the Island. Many of these practices are

not inadmissible; in fact, some are necessary to the life of the

Isla nd. But they can only be.intelligently carried out-in a

controlled and managed program that depends upon a'thorough know-

ledge-of the marine environment by responsible governing bodies.

While data have been gathered and scientific papers published

on the special characteristics and dynamics of tropical marine

ecology, many by.our own academic institutions in Puerto Rico,

there has been no attempt to consolidatethis information into

an over-all research program to determine the assets, best use,

-and possible*fate of our coastal resources under the pressure of

over-population and industrialization.

Today, while we have a vague idea of where our best coral

reefs are, we have no over-all knowledge of the extent of these

reef communities, their physiological conditions, how productive

they are, and the local physical and chemical environments neces-

sary to sustain them. Not even in La Parguera, where the Island

@has maintained a vigorous-marine laboratory for many years, do

we have records of extensive water-monitoring, despite the known,

176,

steadily growing impact of pollution in the vicinity of this

beautiful and productive coastal sector of the Island.

Coordinated effort in the Island's mafine-oriented research

and development has become essential. The danger of correcting

one problem only to create and intensify another can be reduced

only by recognizing the environment as a whole and through.u.nder-

standing the interrelationship of its several parts. A unifying

concept is needed if the approach to specific -roblems is to be
p

most effective.

The, wide spectrum of marine-environmental problems-and the

general lack of detailed and comprehensive data call for a broad

-program of immediate research. Such research would-enable.us to

determine the quantity and quality'-of our major coastal ecosystems,

and the physical and chemical influences.to which'they are exposed.

Some of the prevailing information gaps are now being filled by

government programs or by localized requirements for environmental

impact statements. However, an ordered program with established

priorities in research must accompany this ad-hoc work before.we

can be effective in planning and managing our marine environment.

Research, and the concomittant development that often follows

it (or may even precede it in certain areas) cannot, within the

177

context of Puerto Rico and its special problems, be readily class-

ified into basic and -applied research. In the small technological

and scientific community that exists on the, Island, this division

is artificial and limiting, and it is virtually impossible, nor even

desirable, to draw aboundary line and attempt to allocate effort

and funds accordingly. Studies of.ocean currents and beach erosion,

-for,example,.are of more than academic value. At the other extreme,

effo rt toward developing new ocean-engineering devices could very

well produce important data for ecologists and biologists.

Puerto Rico.has sufficient human resources to carry out needed

researchl -and to develop technology geared to---the most.desirable

utilization of its tropical,marine resources.. Howevet, necessary

funds for this effort are in most instances unavailable. This

a result of our local Government's allocating only limited funds

to these endeavors--particularly to the Island's institutes of

higher learning --while Federal agencies., which could support this

work, establish their priorities according to continental standards.

MAJOR PROBLEM AREAS..

Five important areas of research in the marine environment de-

serve immediate attention-:

1. The broad problem of environmental characterization.

2. Beach erosion due to sand extraction.

178

3. Man-imposed pollution of the marine environment.

4. The immediate need for an*ocean resources data bank.

5.. The need for.specialized education and training.

En-vironmental Characterization

In review ing all.of.the.ma.ny pro:f6ct ideas pu-tforth: by-

a _11 a v esufficient.in-
members, all. getrermlly agreed. that ote do not

formation.regarding any tropical.marine community to allow us to

speak intelligently.a@bout its fate in the face of the environmental

stresses.we are impos: .Lng upon it today. Thus, it was., generally

agreed that there is anurgent need for studies of-natural marine

.'coral reefs,
communities including: mangroves,- pel-dgic,-commun

,eel-grass beds and rocky shore communities.

It is necessary to determine how these marine communities*res-

pond to changes in environmental. parameters, in..cluding,.for example,

.changes in sediment concentration or water temperature. In this

connection, it is well to note that tropical marine organisms are

generally much more sensitive to alteration of their environment

than are their counterparts in temperate zones.,

Other investigations are needed before we can estimate the

spatial distribution of pollutants (thermal or other) discharged at

a given place, rate and concentration.

179

Although it is b elieved that currents along the north and south

coasts generally flow from east to west as a result of the influence

of the North Equatorial Current, recent results show that there are

important local exceptions to this.

Marine Biological Inventory of the Shelf

in orderto be able to manage our marine resources, intelli-

gently -orient our coastal development, properly manage our indust-

ries,-power plants and outfalls, determine the best public recrea-

tional areas, sanctuaries,. buffer zones between these-and industrial

areas, we must be fully.aware of the.assets of our coastal resources...

At present we'are unable to evaluate-what we have lost from

our marine communities because we have never acquired sufficient-

and comprehensive knowledge ofthe resources that existed. Attempts

tP establish regulations and controls to minimize the degradation

of. these resources have force d u s to adopt Federal standards on,

pollution levels without fully understanding their application to

tropical marine communities. only after determining-the extent of

our major marine ecosystems, namely mangroves, Thallassia beds, and

coral reefs, with adequate background data of the physicaland chem-

icalparameters influencing them, can we then determine their re-

sponse to environmental change.

Recommendation

A program aimed at measuring the extent and condition of Puerto-

Rico's-maior marine communities such as mangrove, Thallassia bedf

coral reef should be established.

Comprehensive Current Study

We must be able to predict the fate of pollutants released in

our coastal waters.. The shallow coastal configuration,. wind,. tides,

high and low pressure centers and other effec-ts.have a str ong in-

fluence..on our coasta.llcurri@!nts. In a recent study-carried out-by

the Oceanographic Program of the Area of Natural Resources, it was-..---,-,

s hown that current's at eleven sites around Puerto Rico are extremely

complex and variable. Strong eastward currents, shears, and-cyclic

shifts were observed in many areas.

Recommendation

An intensified current study program should be developed for

.our coastal waters with the aim of determining the overall current

patterns of the Island.

181

Beach Erosion Due to Sand Extraction

Puerto Rico faces a/critical problem in the depletion of

readily-accessible sand deposits for use by its construction in-

dustry. Large-scale sand extraction operations in beach areas,
including.removal of most, of the sand duri .es.along the north coast,.

have created acute erosion problems.' As.the difficulty and cost.

of obtaining sand increases, consideration is being given to.-com-

mercial extraction of sand from submarine deposits. Such proposed

operations must-be ca:refully scrutinized, however, because of the

possibility of smothering'and destroying coral. reefs in the vicin-

ity of the operation, and exposing beach areas. formerly protected-by

these reefs to further erosion by surf and.longshore currents.

(A detailed report on marine-sand resources and the associated

shoreline erosion problems is appended to this report.)

Recommendations-

1. Legislation should be enacted prohibiting the extraction

of sand for commercial purposes from the beach zone.

2. Wa rdens prese@tlV in Public Works_ Department and authorized

to patrol the beach zones should be.reorganized and given-more

power to reduce clandestine sand-extraction operations.

3. An inventory should be made of the submerged deposits of

182

sand around the Island. (The study should estimate available re-

serves and the economic feasibility of mining operations.)

Incentivesf lines of credit, loans and technical aid should
be offered by the'Government in an effort to secure additional sand

resources. Deposits could be exploited in conjunction with the

development of other by-products (gold and silver placers). Con-

struction of final pre-cast concrete products at.the site should

be considered.

,".4. A promotion program for the development of submerged depos-

its of sand should be undertaken.

A comprehensive study of all beaches of the Island should

be.undertaken to determine their present state, optimum.potentiall,

protective measures recruired, and order of priorities for their

protection and development. (This study should include conside.ra-

tion of the artificial nourishment of beaches by dredging offshore

sand and depositing it on un,der-nourished.beaches..)

Pollution of the Marine Environment

Man-imposed stress on the marine environment is evident in.

three forms in Puerto Rico: physical, chemical and biological. To

date, the most obvious pollutant has been the chemical wastes dis-

charged by industrial plants directly into most of the Island's

shallow rivers, or into those bays and harbors where heavy industry

has concentrated. Chemical pollution in the form of petroleum-

183

process wastes has been especially evident in the south coast where

the petrochemical industry is located.

A less obvious but perhaps more insidious form of chemical

pollutant is related to the heavy use of fertilizers and pesticides.

Much of the- soil where these agricultural chemicals are applied is

quite porous and this fact coupled with the characteristic sporadic_

heavy rain that falls on most of the Island, results in large amounts

of.run-off.containing entrapped sediments and contaminants.

Clearly there are significant.amounts of toxic materials car-

ried out,by rivers to the surrounding sea each year...Some of the

important trace elements from this-.outfall are known to accumulate

in nearshore fish.- Sut very little is known about.the effects these..

substances may be having on the mangroves, reefs and other important

marine ecosystems.

Most of the Island's rivers also carry a-,heavy load of bio-

logical pollution, mainly sanitary wastes, to the sea. A high bac-

terial load and anaerobic conditions are usual in the bays, lagoons

and mangrove areas close to human settlements on the coast, or at

the discharge end of rivers downstream of heavily populated areas.

A major step is being taken to cope with this problem in the form

of a comprehensive ten-year plan to create a system of primary and

secondary sanitary waste-treatment facilities throughout the Island.

However, this massive amount of partially treated biological waste

184

must still find its way out to sea and ocean outfalls, which will

continue to abound in Puerto Rico unless alternatives to this method

of waste disposal are operating.

Increasing efforts in planning, management and pollution abate-

ment by Puerto Rico's Environmental Quality Board suggest that the

gross problems of chemical and biological pollution may'be con-

f.rolled by new techniques and sizeable expenditures of money 'in the

years ahead. The problem of physical pollution, mainly in the form

of thermal effects, looms, howeverl as one requiring immediate at-

tention and a high priority in research and development effort.

Energy

Thermal pollution of the marine environment of Puerto Rico is

directly tied to the major problem of meeting the Island's burgeon-

ing need for electrical energy. The generating facilities of the

Island are increa sing in capacity at the astonishing growth rate of

over 12 percent each year. These power plants, all at present

fossil-fueled, have a conversion efficiency of about 32 percent.

This means that large quantities of heat must be carried away by

cooling systems, which generally discharge the heat into coastal

waters.

-185

Projections made by the Autoridad de las Fuentas Fluviales in-

dicate that by 1982, its generating capability Will have grown to

7,500 meqawatts,? with half of this produced by nuclear power plants.

As a result, in ten years we will be pouring 5.8 million gallons of

hot chlorinated water into the sea per mi.nute. This is about 2.-1

times the-flow"of water ca.rried.by.all-our rivers.- By the year 2000,

the flow from tzhe@-generating,plants will havcv increas*ed.to.about 10

million gallons of water per minute, if the projectiorfs'are correct.

Unless' innovative ways to handle or prevent this enormous,threat of*

thermal pollution aredeveloped, life in the waters -surrounding this_

Island will change significantly.:

(Because of the importance of energy, in,Puerto Rico and.the

need for a more analytical look at the present energy growth policy,

a specialreport on this.subject is appended.)

.Recommendation'

The Government should develop within the next five years a co-

herent policy for the use and production of energy.__

Pollutant Impact on Ma rine Lif e

Pollution standards are a imed to reach a compromise between

the need to dispose of waste products and the need to preserve

186

marine communities. Unless we acquire a thorough knowledge of toler-

ance levels-of biota, we can not establish valid pollution control

standards, nor can we predict the fate of marine organisms in coastal
-waters.

Recommendation

Aprogram. of studies should be carried out on a wide array of

organisms subject to controlled conditions of pollution, placing em-

phasis on the sessile-ones bec-ause these cannot migrate.' (These

studies should give a-high priority'to -corals in view of the import-

ance of-.reef structure.)

Contaminant Removal

The effective disposal of waste water effluents from petroleum

refineries and petrochemicalplants often is a difficult.problem because

of the large variety of non-degradable organo-sulfur waste compounds.,

Recommendation

Efforts now being started to develop bio-degradation processes

for petrochemical effluents should be intensified and-significantly

funded.

187

Sanitary Waste Recycling

The ability of the ocean front, to serve as a dump for Puerto

Rico's massively increasing wastewater discharges is highly limited.

Furthermore, the Island's growing need for fresh water suggests that

reclaimingwater rather than disposing of it,through.offshore dumping

may become an impe ative. In additionj@the biologi
r ical energy load

carried by wastewater could have great Value if captured.for use in

agriculture and other bio-fuel demanding processes.

Recommendation

A pilot research and development program'should.be -started to'

determine the potential for recycling sanitary wastes through ground

filtering processes, and the 'reclamation of biological constituents

through soil rehabilitation.

Ocean Resources Data Bank

Various governmental and private institutions have'been engaged

for several years in gathering data on our coastal waters. As a re-

sult, considerable information is available on Puerto Rico's marine

resources. Lack of communication and coordination between these

agencies and institutions, however, has heretofore kept much of these

188

data unavailable t o individuals or institutions needing the informa-

tion. Furthermore, lccal data gathered by off-Island organizations

are often effectively lost to Island users'.

Puerto Rico's need to study and use its marine resources is ex-

pected to increase sharply in the immediate future. If the existing

informatibn situation continues, however, detrimental effects,might

easily develop -ju-ch as: @(1) duplication of c-ostly programs and data-

gathering,efforts due to lack of coordination; (2) hindrance of re-

.search and.development programs through poor knowledge of existing

data; (3),.long-term planning-for the Island's marine-resou'rces utiliz-

ation obstructed by the lack of a unified and -comprehensive survey of

the oceanographic.environment'.--

It is already apparent that many oceanic data systems are being
set up, catalog's being automated, and r.etrieval mechanisms being.used

in complete or partial isolation from one another. A governmental

.organization would do a great service by simply bringing these unco-

ordinated efforts together in a general data system, which incorpor-

ates clearly defined and consistently recognizable re trieval identi-

fiers. With regard to input and output format, uniformity in this

centralized or clearing house system would offer the advantage that

data could be exchanged in fairly routine fashion. No conventional

literature search would have to be made more than once.

Although a data bank is expensive to assemble and maintain, under

189,

proper circumstances it can beremarkably inexpensive to use. If the

bank is widely used, the initial and maintenance costs can be con-

sidered socially bearable. Whether or not wide usage develops de-

pends, however, on how adequate and precise the initial component

retrieval and reduction systems are. Hence, existing facilities

should first be effectively used before a long-range, centralized

program.is made available to the Island. The use of available meth-

ods and facilities will save considerable time, money and effort in

establishing an adequate data bank.

Recommendation

An-Ocean Resources Information Center (ORIC) should.-be estab-

lished in Puerto Rico.

This Center would compile in readily retrievable form all avail-

able oceanographic information on the Island's coastal waters, follow-

ing the procedures and guidelines established by the National Ocean-
ographic Data Cent'er (NODC) in Washington, D.C. Specifically, ORIC

would:

1. gather from the different Government and private sources

all available oceanographic information pertaining to

Puerto Ricols coastal waters;

190

2. classify, file and submit the information to NODC

(according to theformat established by NODC for

computerized storage);

30 distribute all retrieved info rmation from NODC to

the private and Government agencies that have sub-'

mitted their data to the Center;'

4. providLe-Government and private individuals with

specific oceanographic data they may from time to

time require;

.5. compile and.distribute among educational institu-.,

tions.and the general public simplified compendiums

of oceanographic information-.

Education and Training

Marine affairs in Puerto Rico, from an educational point of

view, have been overlooked. Almost throughout our educational system,

with the exception of the universities, there is no program geared

to ocean resources and very little in our instructional material that

emphasizes Puerto Rico's special potential as an ocean island.

(A special report on the problems and possibilities of a focused

effort to develop public awareness andspecific marine-oriented edu-

cational and training programs in Puerto Rico is included as Appendix

C in this report.)

191

Recommendation

1. Puerto Rico should support its Department of Education in

the implementation of a new marine-oriented program throughout its

educational system.

2. Special emphasis should be given to coordinating pgo-

fessional education aspects between the universities and the new

Department of Natural Resources.

3. A first priority should be 2iven to developing a new

education program in the technician and.associate degree leve 1 in.

marine@sciences.

OTHER RESEARCH AND DEVELOPMENT NEEDS

Although we have tried to indicate those areas that we believe

deserve emphasis for research and development, we could not give an

exhaustive list-because it would change even while we wrote it. What

follows are additions that do not fit into the areas already men-

tioned. We want to stress, though, that even with these we are only

noting a partial list of R & D topics pertinent to the needs of

Puerto Rico.

1. Chemical analysis of the sea around Puerto Rico

2. Studies of wave actions and energies

192

.3. Survey of potential for underwater parks in Puerto Rico

(See "Coral Reefs and Mangrove Areas".Report of Subcom-

mittee on Living Resources.)

4. Establish an aquaculture pilot project where the most

efficient and promising organisms for marine and fresh

water cultivation could be determined, as well as the

most efficient methods of culture that will lead to rapid

growth rates and higher production of these aquatic forms.

(See "Aquatic Life", Report of Subcommittee on Living Re-

sources.)

Survey areas suitable for aquaculture projects.

Determine technical.feasibi-lity and make marketing

study of aquaculture crop potential in Puerto Rico.

identify pathogens affecting aquaculture crops and

possible controls.

5. Investigate possibility of using cold water from depth

for coolants and aquaculture.

6. Exploration for undersea or ocean bottom heavy metals

such as nickel, chromium, copper and manganese; and

potential gas/oil sites.

7. Artificial reef programs: economic feasibility study;

experimental solid-wastes reef; materials deterioration

studies, and reef emplacement project follow-up.

193

B. Development of basis for a Marine Resources Act with in-

centives for R & D work.

9. Development of a five-year program on ocean resources

management for Puerto Rico and its interrelation with

Federal agencies-and programs.

Research and development in Puerto Rico has traditionally been,

rigorously controlled on.an institutional basis. -The-source of

research funds has for the most part been Federal and private

rather than insular.. Grants are. generally made on a project

basis relating-directly to the interests of a particular individual

rather thanto the specific needs of.the Island. Individuals,

commercial and industrial organizations, even small educational

institutions, rarely have 'had access to research funds through

governmental departmental channels.

Perhaps the crux of the-prob.lem stem"S from.the fact that very

little money has been earmarked by the Island's legislature speci-

fically for research activities.

Recommendation

The Legislature should appropriate funds specifically de di-

cated to ocean and marine-oriented-research and development.

194

APPENDIX A

A SPECIAL REPORT ON SAND RESOURCES

The extraordinary economic development of Puerto Rico during

the last,three decades has drastically upset dynamic equilibrium

between the supply and demand of sand in the island.. Our progress

can easily be measured in terms of the concrete that.has been used

for building houses, paving roads, constr.ucting dams, establishing

industries, and developing.recreational, social and educational.

institutions. theavailability of concrete-as a-construction"material

depends dire''ctly on-the feasibility of extracting our sand resources.

The*increase in the-consumption of sand brought.'forth the a.ccel-*.

erated depletion of the accessible--sources, and the construction-

industry was. forced to develop deposits occurring at distances far-

ther away from the urban centers. Consequently, the price of the

commodity rose abruptly. The large-scale extraction operations on

the beach zone created acute erosion problems and P ue'rto Rico began

to lose expensive real estate to the sea. At the same time, the

Island was losing its beaches, a natural resource of far greater

potential than sand f or economic income.

As the Government began to limit the extraction from the

beaches, the operatio ns were moved to ri ver channels and areas

.covered by residual sandy soils. The extraction of these deposits

.195

created local soil erosion and sedimentation problems. As the resi-

dual sandy soils were strip-mined, bedrock was left exposed on the

gkoun d surface; thus, Agricultural soils were eliminated through

these poor conservation practices. Some sandy inland areas have

been dredged to depths varying form 110 to 40 feet leaving great

pools of stagnant water near the Loiza.Aldea. The coastal dunes

were rapidly removed along most of our northern coast, thereby

eliminating most of the natural coastal protection along the shore-

line extending from San Juan to Isabela.

Puerto Rico presently faces an acute problem of resource man-

agement in'order to provide an adequate balancebetween economic.

growth and conservation practices. Our beaches must'be preserved

for recreational and touristic purposes, but our'booming construct-

ion industry must also be supplied with adequate sources 'of sand.

We must allso provide for satisfactory restoration and reclamation-.

of the mined lands because Puert.o Rico cannot afford the luxury of

wasting the, limited available land.

Beach Erosion Problem

Beach erosion is generated either by natural or artifici al

causes. Beach erosion is caused locally by phenomena or works

such as: (1) the world-wide rise in sea level, (2) recent disas-

trophic movements, and (3) removal of the protective barrier reef.

196

The world-wide rise in sea level is a scientifically accepted

fact. A rise of five inches has been measured in Chesapeake Bay

between the years 1930 and 1947 (0.003 feet per year). A rise of

this nature in Puerto Rico,.where the range of tides is only about

one foot, could easily initiate a cycle 'of beach erosion.

.Puerto Rico's geomorphic-features along its coast show evi-

-dence of recent disastropbic movements. The Island has* suffered

a major tilting in the geologic past.. The northeastern and south-

east ern coast are coastlines of emergence, wbilethe southwestern

and northwestern coast are coastlines of submergence. The Island

is also located in.the earthquake belt of the Caribbean Island

Arc and it is proven that during the earthquakes ofthe 1920.,Is,

the sea in the-west coast receded. All these changes in the
e.levation of the land have originated erosional cycles in the

beaches.

Poor land management,coastal pollution, dredging and other

human activities have developed adverse factors in the water qua-

lity in the vicinity of coral reefs.

An unbalance between growth rate of the reef-forming corals

and erosion created by wave action, has caused rapid destruction

of some coral reefs. A considerable retreat of the shoreline along

certain areas of-Puer to Rico's northern coast has been documented

197

from old maps and photographs. These shoreline changes have been

attributed to the destruction of the pro tecting'barrier reefs by

the devastating attack of swells and hurricane waves.

A retreat of the shoreline is obvious.in those*areas where

lunate embayments have been formed between rocky headland such as

Mar Chiquita, Bren-as, Condado,, and Ensenada de Boca Vieja. These

features are typical..of our northern coast.

teach erosion can.be caused artificially by the action of man.

During the past three decades, man h.as.been responsible for most

of our beach erosion problems. The activities of man can be out-

lined-as: (1).reducing the quartz-rich supply of sand by daming

most of our major rivers or buildin-g----s--o-m-e------r-iv-e'-r---*i-mp rovement

structures, (2) changing-the configuration of the coastline by

-coastal development such as ports, groins, jetties, revetments,

land reclamation projects,.etc.,.(3) changing the configuration

of the sea bottom by dredging operations, and (4) removing sand

from the beac h zone for commercial purposes. The removal of sand

from the beach zone has created our worst and most difficult ero-

sion problem.

MARINE SOURCES OF SAND

The two most common sources of sand are the deposits on the

shore zone and the offshore deposits. Both of these deposits have

198

been intensively used in Puerto Rico.

The shore zone has extensive deposits of sand around the

Island. The deposits occur in the intertidal zone where the

sand grains are deposited by the littoral drift. The beaches
v"'ary from narrow strips parallel to the co.astline to broad in-

land deposits of about a kilometer in width (Mediana Beach in

Lolza and Levittown beach). Although these deposits were heavily

developed in the past, the present extraction is limited to sev-

eral river mouths. The renewal of sand bar from river--deposition

must be determined before granting,permits. This practice is

seldom use d to determine the impact of the extractive operation

upon the 'natural environment.

@-Some large deposits of sand occur.in the back beach zone.

These are usually found as large coastal dunes and series of

continuous ancient beaches. The extraction of sand from the dunes

eliminate most of the shore protection (Barceloneta and Isabela

Beaches). Although it is possible to extract a portion of the

dune without eliminating the coastal protection, the determination

of the extraction area and buffer (safety) zone is difficult@ with-

out conducting detailed geologic studies. Most of the permits

granted in the past were approved without these comprehensive

studies. The back beach deposits are usually in private land

where the qovernment had no jurisdiction until Law 138 of 1968 was

199

passed. These deposits are dredged by means of drallin es creating

ponds or lakes in the private farms. The minded land areas are

not being properly reclaimed.

The offshore deposits are classified into: (1) the submerged

deposits of.the Island.shelf, and, (2) the deep sea deposits.,

The*material available in thedeep, sea deposits is usually

too.fine-grained to ipeet thespecifications and is so. deep that

it is usually not economically feasible to dredge,@

The construction.industry will be facing a crisis by the

end of this century if.an adequate su ly.of sand-is.not secured.
Pp

within the next two decades. In order.to solve.the.problem, the,

following measures are 'recommended:

A. For th'e Protection of Beaches, Dunes and Shoreline

1. Legislation A law project should be ennacted prohibiting

the extraction of sand for commercial purposes from 'the

beach zone.

2o Enforcement Wardens presently in Public Works Department

and authorized to patrol the beach zone should be reorgan-

ized and given more power to reduce clandestine sand-

extraction operations.

B. Research Needs

..l. Inventory of Submerged Deposits A systematic study of

the submerged deposits around the Island of Puerto Rico

200

should be conducted. The study-should estimate the

available reserves and the eco nomic feasibility of

the minning operations.

2. Development of Submerged Deposits A promotion program

for the development of the submerged deposits should be

undertaken.. Incentives, lines of credits, loans and

technical aid should be offered by -Ehe Governpent. -De-

posits could be exploited in,conjunction with the develop-

.ment of other by-products.(gold and silverplacers). Cons-

truction of final,pre-cast concrete products at the site

should be.considered. The establishment of.coastal dis-

tribution po in t s' f r 0 m__ s t ockpi 1 e s-- -sh -ou"' 1 d b e analyzed to

maintain the independent truck owner with a steady supply

of raw material..-

3. Beach Erosion Study A comprehensive study of all the

beaches of the Island should be undertaken to determine

the present conditions of each beach, their optimun poten-

tial, protective measures required and the order of prior-

ities. This study should include the artificial nourish-

ment of beaches by dredging offshore and depositing the

sand in the under-nourished beaches. Financial aid can

@be obtained from the Federal Government to restore certain

beaches,

201

Several submerged deposits beneath the coastal'waters have been

explored by government a.nd,private-enterprises No permits have

been granted for the dredging of sand for commercial purposes since

1966 due to the possible environmental risks. The explored deposits

are:

1. Escollo de Arena, Vieques 46.5.million cu.. yds.

2. Las*Cabeza's, Fajardo Million cu. yds.

3. Ensenada Comez6n, Rio, Grande .0.9 Million cu, yds.

40 Ensenada Boca Vieja, Cataflo .@@2.5 million cu. yds.

5. Punta Verraco, Guayanilla 6.0 million cu. yds.

Punta- Cuchara, 'Ponce 6A million cu. yds,

7. Bahia-Boquer6n,-Boquer6n -5 .--7 mill ion..cu. yds.

8. Bahia Guanajibo, Mayaguez 5.5 million cu. yds.

9. Bahia Aflasco, Aflasco not adequate

10. Submarine Channel Espiritu Santo River

11. Offshore deposit near Isabela

The extraction of sand from these deposits could easily provide

an adquate supply of sand for the construction industry until the

end of the century. However, the impact of the operation upon the

environment must be considered specially for those too close to

shore. The U.S. Geological Survey is presently conducting marine

geologic studies to map these deposits.

202

The possible alternatives to solve the present situation are:

1. Exploiting the Renewable Beaches

If the amount of mat erial deposited in the beach zone and

its migration can be determined, the excess of material could be

theoretically removed without.causing erosion down-drift from the

site. However, this is an expensive solution that requires de.-

tailed studies and strict regulatory control.

..2. Dredging River Channels,

Because most of the major rivers have been dammed and are

almost depleted of sand, this solution only serves@to delay the,

crisis for several years,.

3. Extraction from Inland Residual-SandV Soils

Because extraction causes a tremendous soil erosion problem

when the top goil is completely removed by strip mining practices,
this solution could create a worse problem than*the beach erosion,"

4. Dredging Submerged Deposits

Although dredging submerged deposits is not the ultimate

solution to the problem since sand reserves are.finite, it solved

the immediate problem until the next century.

S. Manufacture of Sand

The ultimate solution to the project is the manufacture of

sand. Therefore, efforts to establish inland quarries for the

203

manufacture of sand-sized materials should be carefully considered

by the Government. At present this is an economic problem that

could be economically feasible in the future as the price of

manufactured sand becomes competitive in the local market. Incen-

tives such as tax exemption, financial assistance, and technical

advice should be offered to encourage the manufacture of sand in

Puerto Rico.

6. Substitution of Concrete

The substitution of concrete in interior walls and parti

tions by other construction materials such as wood, plastic,' bricks

would alleviate the problem in Puerto Rico.
7. 'Importation of Sand-

Sand is being imported from oolitic deposits of the Bahamas,

but the physical.properties of this material do not always meet our
-specifications for concrete mixes. The sand is.usually too fine,

spherical, poorly sorted, and is easily worn down by abrasive action.

Blending is generally required to meet grading specifications.

204

APPENDIX B.

A SPECIAL REPORT ON ENERGY AND RELATED PROBLEMS

The production of electrical power in Puert o Rico is placing

the marine environment under increasing stresses. At present,

over.1.4 millions of gallons of hot water per minute are dumped

into our coastalwaters by the plants that generate electricity.

Projections indicate that by the year 2,000 the amount of hot

water dumped into the coastal water will.have increased to ten

million gallons per minute. Other forms of power also produce

pollutants, which are carried to the coastal water by run-off from

the land. Needless to say, most of the pollutants are highly toxic

to marine life.

W
e recognize that increasing amounts of power are needed to

sustain.-our growing economy.' Therefore, there is a pressing need

to deve lop non-contaminating sources of power. However, we have

examined the possibilities of using the power from the tides and

from the,sun and reached the conclusion that only solar power holds

any promise as an alternate source. Nevertheless, it should be

pointed out that with present.technology one can obtainat the most,

from the sun two or three megawatts of power per square mile.

It seems that it is unlikely that power derived from the sun

could be used for industrial purposes. However, small units might

205

be developed to provide power for individual homes.

The demand for electric energy in Puerto Rico has been in-

creasing at an accelerating rate during the last five years. Aver-

aged over that period, the need for electricity has increased at

an annual rate of 14.4 percent. That is, the demand is doubli ng

every five years. This rate of increase is roughly twice that of

the-mainland United States. Because of our limited territory and

high populat ion density, the implications of the increasing demand

for electricity in respect to the environmental impact areserious.

if we continue this trendi-Puerto Rico will have to provide sixteen.

times its present generating capacity in only 20 years.

Given the present economic and social structure, there is little

reason to believe that the predicted demand will significantly lessen.

However,,,. providing this sixteen-fold increase in generating capacity

will put a massive strain on Puerto Rico's economy and natural rew-

sources.

This increase would have effects in different areas and would

require decision making on the basic technology to be used in the

energy production and in the plants' location. Since we have a

limited amount of land and a multiple demand over the same, it is

evident that conflicts in the localization of energy production

plants will arise.

206

One of the problems that Puerto Rico is confronting, as are

other countries, is that the energy policy has always been im-

plicit, and its objectivejis directed toward the supply of all

the energy demand. This policy does not have negative implications
a's 'long as the increase in demand is relatively slow and as long

as there are not serious conflicts between the objectives of the

energy sector and other sectors, especially those related to main-
tain,ing the environmental quality. Recently, the-relevant, condi-

tions have.changed and it has created serious conflicts.. Moreover.,

the cost of combustible and other components of the energy product-

ion system has increased dramatically.

Also,the' technology of generating conventional electrical

energy has reached an upper limit and has established the inescapable

alternative of nuclear energy.

For these reasons, it is necessary to establish@-the basis for

new explicit energy policy. It must be optimum to the special con-

ditions of Puerto Rico. The objectives of the analysis of the pro-

blem should be:

1. To provide a basis for the establishment of the planning

process and the formulation of policy about electrical energy, to

deal with the kind of demand for electrical energy in Puerto Rico,

and the planning of new sources of energy. An energy policy must

207

include within their components, all those actions that tend to
improve the efficiency in the utilization of electrical energy.
This is especially important considering the data that has been
given in relation to the increase in energy demand in the last
few years.
2. To satisfy Puerto Rico's strong need for more employment,
better income, industrial developmemt and consequently, enrgy.
Because it is a small island with high population density, we find
it necessary to provide special attention to the environmental
impacts that come from economic activities. The result is that
frequently conflicts arise between the demand for and utilization
of energy. A study will result in a clearer idea of this aspect
and to the possible alternatives that deal with the location of
energy plants.

208

APPENDIX C

A SPECIAL REPORT ON MANPOWER, EDUCATION.AND TRAINING

The National Academy of S('-,ience in its 'February, 1967 report,

Science and Technolog in Support of the Puerto Rican Economy, noticed

some prevailingdeficiencies in the manpower, educational and training

phases in the development of science and technology in Puerto.Rico.

Today, as we focus our attention to the marine'sciences and techno-

logiesl we also notice some problemb,that have to beovercome before

we orient any marine program for local implementation. Among:such

needs we outline the following:

1. To assess the pres6n:E'--m-e-@Efi6-6-s---a--n--d- resources for conserva-

tion education at all sbhool levels.

2. Experimental new approaches in curriculum, techniques of

instructions and use of.facilities, which might bring

together science, and technical education with the socio-

economic realities and needs of the Island is needed.

Some issues to consider are:

1. Should there be local legislation or policies for edu-

cation in oceanography in Puerto Rico, or should each

governmental department make its own?

2. Should there be an Advisory Committee composed of

members from all agencies and department heads or should

209

each department or division have its own?

3. Should there be.legislative special-funding for

Island-wide education program in oceanography, or should

each department separate funds,from its annual budget for

this purpose?

4.,-.Sho.uld.a Department of Education Advisory Committee

produce curriculum materials on oceanography or should

an advisory committee develop curriculum materials in
coordination with the Department'of Education?

Consideringthe great needs and demands that will exist if,a

vigorous program for the full utilization and adequate conservation

of the marine resources of Puerto Rico is carried out., we direct

Our concern toward:

1. Improving the process that stimulates the interest,

and vocation of.our students in the marine sciences and the

utilization and conservation of our marine resources.

2. Improving the teaching-learning process in the area of

marine resources through our schools. New courses must

be designed, training materials must be prepared, and

teachers mus t be trained to carry out this objective.

3. Improving the process by.which studen ts with interest

and aptitude toward the marine sciences are identified.

@210

Activities such as contests, projects, competitive activi-

ties and youth congresses of Puerto Rican and other Carib-

bean students could be carried out to achieve this objec-

tive; and

4. Improving the process that..encotrages high-school

students with interest and aptitude in science to form

part of the'working groups carrying out research,. studies,

and projects related to the utilization and conservation

of our marine resources in the. different privatea@nd public

institutions and-other agencies of the Island..

From an educational point of view,.marine as ects in Puerto Rico
p

have been overlooked. -Throughoutour educational system, except the

universities, there is no program geared to ocean resources.

As soon as possible, we must start to develop among our people

an awareness of the sea"s potential. At present, we are lacking

such activities. as the dissemination and exchange of information,

the training of human resourcest and production of materials for

teachers and students. Along these lines we can implement the follow-

ing:

Dissemination and Exchange of Information

1. Use of the television stations, radio programs and editorial

division of the Department of Educ ation to provide information

211

to teachers and students in grades Kindergarten to 12.

2. Use of the facilities of the Computing Center of the

Department of Education to create an information bank on

marine sciences and the utilization and conservation of

marine resources.

3. Establishment of marine laboratories by the Department of

Education to show teachers, students and the community in

general the implications of the study of the -sea for Puerto Rico.

Training of Human Resources

Organization of seminars, conferences, workshops, courses

with or without credit for teachers and students.

2. Provision of consultant services to schools and colleges".

3. Establishment of graduate courses related to the marine

sciences in all colleges and universities to broaden the

scientific preparation of teachers.

4. Establishment of marine laboratories for teachers and

students of public and private schools.

5. Training of students of high ability to carry out scien-

tific investigations and projects.

6. Greater interaction is needed between primary, secondary,

higher education, adult education, industry, commerce and

business and newly-emerging vocational educationt to develop

a good "Puerto Rico andthe Sea" educational project.

Production of Materials for Teachers and Students

1. Publication of scientific articles,- courses of studies,

teacher's guides, teaching units, by the Editorial Division

of the Department of Education.

2. Design, production and distribution of films, filmstrips,

.,filmloops, models and other audio-visual materials..

The Gov ernment should support its Department of Education

on the implementation of new marine-oriented program throughout

all its educational system. Emphasis should be given to coordi-

nation aspects with the.Universities and the Department of Natural

Resources.. A priority among new educational programs should be the

development of the technician and associate degree in marine sciences.

213

SECTION 5 REPORT OF SUBCOTMMITTEE ON
INSTITUTIONAL AFRANGEMENTS

INTRODUCTION

Institutional arrangements of the public sector of government

should not be conceived as an end in themselves, nor can they be

formulated or established in a vacuum. These arrangements must

be closely related to the particular social, economic, physical,

cultural and political realities of whic@. they are pa rt and to which

they should respond.

Under these circumstances,the.functions of any institutional

arrangement should be to provide.adequate mechanisms and means by

which realities, problems, values, needs and expectations of society

can be id entified, articulated and harmonized, in order to enable

the state to adequately define goals and objectives. The state

will then be able to pursue these goals and evaluate its activities

within a proper framework.

In the particular case of Puerto Rico, a number of factors

should be considered in any attempt to define the institutional

arrangements needed: degree of heterogeneity, size of the island,

population, openness of the system, existing resource limitations,

nature as an island system, social composition, degree of develop-

ment and modernization, rapid social change, and high degree of

systemic-complexity.

214

One of the salient characteristics of the existing,institu-

tional arrangements fiamework in Puerto Rico is the multiplicity

of agencies and programs that either directly or indirectly affect

the marine environment. Even though most of the governmental agen-

cies in this small eco-system affect our marine resources, the

following have in the past exerted stronger or more direct influ-

ence over our marine habitat: the Planning Board, the Health De-

partment, the Aqueducts and Sewers Authority,. the-Water Resources

Authority, the Municipalities, the Public Service Commission, the

To urism Development Company, the Departmentof Agriculture, the

Parks and Recreation.Administration, the Economic Development Ad-

ministration, the Public Works Department, the Environmental Quality

Board, the Institute of Social Technology, the University of Puerto,

Rico, Inter-American University and the Puerto Rico Conservation

Trust. The Department of Natural Resources, which will begin to

operate in 1973, will also deal with marine resources. In addition

to these 1ocal programs and agencies, a number of federal agencies

have an impact on the sector; these include the Federal Institute

of Tropical Forestry, the Federal Environmental Protection Agency

and the Federal Corps of Engineers.

This situation raises a number of general and specific questions

to which we will address ourselves in this report; theseare:

2.15

1. What is the nature of an island syste m?

2. What are the functions of planning, research, control, use

protection, conservation, development and enforcement with respect

to marine resources?

3. What type of institutional an d functional arrangements exist

or should exist for the definition of public policy in the area of

marine resources? In addition, what should that policy be,and how

should thes e pol icies and programs be 'Conceptualized an d initiated.

.4. What type of institutional and functional arrangements

exist or should exist in order to execute and at the same time eval-

uate this public policy?

5. What are the functions of the Universities in the develop-

ment and protection of marine resources and how can there be co-

ordination in what is presently being done in the academic community?

6. what measures are needed in order to.institutionalize the

efforts that should exist?

7. How can we successfully coordinate the public and private

sector and the Universities.

8. How can we develop new forms of citizen participation in

order to guarantee the accomplishment of our goals?

9. What is the relation between local, central and federal

agencies?

216

CONCEPTUAL CONSIDERATIONS

Before considering each of the areas mentioned in the pr eced-

ing paragraph, we understand that it is necessary to first describe

briefly what have been the general and specific conceptual elements

that have been used in order to identify the issues and problems

and formulate our recommendations. In this regard, we feel. that one

of the greatest needs in the area of institutional arra ngements is

precisely that of elaborating a conceptual framework that could

*de at least four things:
provi

1. Enable.us to identify the key or critical characteristics

of the system being studied, in this case Puerto Rico. It serves
a-descriptive function.'

2. Provide the means to identify the causal factors with re-

spect to the system's behavior, related to the specific area under

study.

3. Assist in identifying the most appropriate means to control

and direct the system.

4. Provide a framework within which to formulate objectives

for the system. In this sense it has a prescriptive or normative

role.

217

Puerto Rico as a System

Our recommendations have taken into account the peculiarities

of Puerto Rico as a system and as an ob ject of policy decisions.

There are four aspects which are relevant for our purposes:

1. The fact that Puerto Rico is an island,

2. its small size,

3. system integration, and

4. system openness.

Even though all four.interact to create a-specific environment

for the formulation of policy we shall treat them separately'for

purposes of exposition.

The nature of Puerto Rico as an island will not be dealt with

in more detail since its implications are clear.

Small Size

1. Definition of size is arbitrary and relative since there

are many criteria that can be used to establish size: geographic

area, market size, population, and others. Depending on which cri-

teria you use, Puerto Rico can be small for some purposes, but large

for others.

2. For our purposes, the significant criterion is a combination

218

of a large population withi n a small geographic area. The problem

is -on e of extreme pressures on ou r'envi ronment and limited resources

to withstand these pressures.

3. in small islands, the problem of capacity constraints is

one that has to be dealt with explicitly. In this regard, we must

first determine th,e bearing capacity of.the system, not only with

respect to economic activities and population but also-with respect

to the assimaLlation of wastes. The smaller the capacity of the

system the greater the likelihood that the sea becomes a dump.

4. Since thereis less diversity in'the ecological systems,

small size also implies vulnerability and reduced margins to with-

stand the-results of enviro-nmental-ly--'-damag-ing-decisions or market

failure.

System Integration

1. The smaller the system, cet. par., the more integrated its

components; the more difficult it is to separate them into independ-

ently acting units. Although it might be advisable to do this for

functional purposes, it is di.ff.icult to segregate one component, for

example, the coastal zone from the rest of the system.

2. A highly integrated system is characterized by the existence

of spillovers, which may be of a geopg raphic or sectoral nature, in

the decisions made.

219

3. Interrelationships between components may manifest them-

selves as 'conflicts or may represent'complementary behavior. For

example, large-scale projects such as PR-52 and Toa Vaca will prob-

ably have.island-wide effects which should have been considered in

the planning stages.

4. Small scale, together with system integration, reduce the

degrees of freedom for sub-optimization or for, the possibilities

of market failure, since impacts will be island-wide.

5. The more complex the,system becomes in terms of the number

of components in it and their interrelationships, the more difficult

the planning andpolicy-making functions become.

System Openness

Up to now we have dealt with Puerto Rico as.a closed system with

a fixed amount of resources, limited capacity and other defining

characteristics. This characterization as a closed system is a

result of the fact that we generally consider that environmental

impacts or linkages almost always remain within the system. However,

for a number of reasons we could also classify Puerto Rico as an

open system:

1. An open system is one that depends on flows between itself

and its external environment for survival. These flows may include

220

exports and imports, capital and technology, population movements,

information and others.

2. These flows determine the structure of the system in many

ways. They are causal factors. This is true with respect to the

economy, as well as other areas.

3. ..In terms of our Subco .mmittee's task, the importation' of.

technology acquires great importance, since it is technology'which

is being singled out with more and more frequency as a determining

factor in environmental degradation.

4. System openness also refers to the application here of

Federal Government criteria and norms. These are frequently dis-

functional with Puerto Ricol.s characteristics.

5. Economic, as distinct from ecologic, linkages are in most

instances extra-systemic.

Our brief analysis of the preceding pages has attempted to point

out that there are a number of factors such as small size, system

integration and external dependence which have direct bearing on

how we treat Puerto Rico. Acting together these various factors

have important implications for decision-making. An example will

illustrate the point.

Federal minimum wage legislation has affected industrial stra-

tegy in Puerto Rico, leading to the establishment of cap ital-intensive

221

industries such as petrochemicals and others. These industries have

a number of cha racteristics which are incompatible with our Island's

characteristics and environmental objectives:
'11. they require large amounts of land,

2. this land must be flat and nearthe coast,

3 they use large amounts of water and-energy,.

4. they contribute significantly to air and water pollution.

In this example, the openness of the system, (manifested in the

application of Federal criteria and standards), together with small

size, creates a very serious-problem which should be taken.into con-

sideration in the decision-making process. Once a decision is taken

with respect to one policy matter, in this case minimum wages, a

number of others are affected.

Our Subcommittee has also taken into consideration the fact

that Puerto Rico is a transitional society. we have assumed'through-

out our report that the general a nd specific characteristics of

government bureaucracies in such societies must be taken into con-

sideration by policy-makers.

The fact that Puerto Rico i*s a transitional society results in

tensions which are reflected in conflicting objectives and priorities.

This has affected the workings of our bureaucracies, and has resulted

.in lack of articulation and inaction; the lack of fiscal resources;

222

limited technological capacities of its personnel; a paternalistic

approach to problems and solutions7 the displacement of social ob-

jectives by these bureaucracies; the lack of relevant information;

the tendency to solve problems with the creation of new agencies and

programs, tendency to see in more centralization, better planning and

more efficient supervision, thus seeing in centralizati on a solution

to government problems.

These considerations have the followin g specific implications

for our marine enviro='-@nt:

1. The problems related to marine affairs will not be solved

merely by recommending new policies, priorities and structures. This

approach would ignore the fact that decisions on public affairs are

part of the gcneral dynamics of politics. We must not import models

from other nations without considering the nature of our political

realities and our society. It would be superficial to use criteria

and policy models not functional with and relevant to our-general

environment.

2. To the extent possible, we should not create new agencies but

should rely on existing organisms. This entails some difficulties,

including those related to changing the objectives of already estab-

lished bodies. The creation of ne w agencies to fulfill or carry out

newly defined functions also implies serious dtawbacks that impede

action. In other words, we should avoid the pitfall,of creating

223

new entities to control or coordinate exis ting bureaucracies.

It is not enough to propose a list of new programs and insti-

tutional arrangements. Priorities should also be defined, trade-offs

considered, the cost of proposals estimated, and long-range and short-

range proposals differentiated.

3. Under some circumstances, structural r-edundancy and-dupli-.

cation are advantagetus..

4. Efforts should be made to promote citizen awareness and

participation through the development or organization of voluntary

citizen as sociation's..

5. Although there should be centralized financing, means should

be provided for obtaining funding from several sources and channeling

them to individual units.in government.

6. Instituti onal arrangements should facilitate and promote

innovation and change, and avoid traditional Practices and concepts

which have paralyzing effects.

7. Relevant research of an inter-disciplinary nature should be

promoted, and maximum use of the researchfacilities already existing

in our universities should be made. Research aimed at developing

adequate methodologies for dealing with the specific needs of Puerto

Rico should be given high priority. The general objectives and con-

siderations have been translated into more specific recommendations..

These will be summarized under four major categories: Social

224

Awareness, Information and Education; the
Policy Formulation Process;

Intelligence and Research; Development, Use Regul tion and Conser-

vation. Finally, we have attempted to define the functions that

should be assigned to the new Department of Natural Resources.

SOCIAL AWARENES.I..., INFORMATION AND EDUCATION

Over the-past twenty years Puerto Rico has been primarily con-

cerned with the urgent need to develop its economy, and modernize

its institutions and has adopted strategies aimed at developing the

appropriate attitudes in society for this endeavor. As a result,

the Government's aims of economic development and industrialization

'have become society IS. Just as in time of war it is those sentiments

which dominate the value structure of society, the values develoned

in Puerto Rico havc, been closely related to economic growth. The

constant repudiation of traditional values and activities, the in-

sistence on modernization and association with prevailing life-styles

in the United States have led to an excessive emphasis on consumption,

so that our present consumption patterns are similar to those of the

United States even though our income levels are substantially below

those of that country.. The emphasis on consumption'and industriali-

zation has not permitted the creation of awareness of the problems

related to environmental quality, balanced growth and others.

225

We understand that the role of government should not be limited

to responding to.the pressures which arise from the above sondier-

ations, but that should also assume a leadership role with respect

to modifying values and emphasizing considerations related to long-

range or future concern. Government should help in the articulation

of values and concerns which are not generalized.

.Obviously, preoccupation with the need to develop and preserve

the marine habitat, is one important area of concern.. There are

.many ways in which marine problems could be tackled. One, of course,.

is through the traditional mechanism.of education, but there are

others.

Reco,iamendations

1. The Government should start public information programs

related to the marine environment through WIPR-TV and Radio, aimed

at generating interest in our marine habitat in our population.

(See also similar recommendations in reports of Subcommittee on Re-

creation, and on Research and Development.)

2. The Governor's message on Environmental Quality to the

Legislature should single out marine affairs as an area of special

concern. This message would serve not only to inform, but also to

emphasize the marine area as one in.which there is special interest

and which offers special opportunities.

226

3. Courses and course materials on marine affairs should be

developed in the elementary and secondary grades in,the public

schools. The Department of Education should ask experts in this

area to prepare texts to be used throughout the public school system.

(See similar recommendation in report of Subcommittee on Research

and D'evelopment).

4. The Environmental Quality Board and the new Department of

Natural Resources should establish aggressive programs of public in-

formation in the area of marine affairs. They should promote-and

facilitate the work'of citizens' qroups already active in the ar ea

of conservation and environmental qualitl@ by opening their doors to

interested citizens.

5. The Conservation Trust Fund should concentrate its efforts

and resources in the area of education anO information and should.

coordinate its activities in this area with the 'University.of Puerto

Rico.

6. Local*participa-tion in Federal programs related to the marine

environment should be augmented, as should exchanges between Puerto

Rico and the United States in order to improve understanding of the

Island's ne-eds on the part of Pederal officials.

7. Puerto Rico should actively participate in international

organizations and associations particularly within the Caribbean, in

those activities which will improve the understan ding of the Island's

227

needs vis-a-vis other countries''needs. /(See similar recommendation

in report of Subcommittee in Role of Puerto Rico in the Caribbean Sea).

One very important problem with which-we are faced is the fact

that, in spite of the existence of the Marine Sciences program at

the University of Puerto Rico.in Mayaguez, expertisein the area of

marine affairs i.s frequehtly-not available in Puerto Rico. We under-

stand that the problem is not only one of creating scientists, but

also of generating the expertise necessary to formulate and carry

out policy, as well as the creation oftechnical capabilities in

specific areas.related to the marine environment such as, fishing,

aquaculture, and others; and development management capabilities

.in the area. This is probably due to the fact that our universities

have responded slowly to the changing societa 1 needs of the,Island.

Although this phenomenon is not unique to Puerto Rico, our univer-

sities have often developed programs and areas.of emphasis which

have little relevance to Puerto' Rican concerns at any one moment.

In this regard.we should make universities responsive to these needs

without impinging on their nature as autonomous institutions.

In some areac- related to-the marine environment some important

beginnings have been made in Puer',--o Rico, which should be supported

and endorsed by the Government, the University and the community.

We refer to the Marine Sciences program at the May aguez Campus of

228

the University of Puerto Rico, the proposed fi shing school in the

Aguadilla Regional College and the progr ams dealing with aquaculture

in Mayaguez. The Subcommittee endorses these programs, particularly

the Marine Sciences' program, which in many way s provides the found-

ation.

Recommendations

1. A Master's level program should be created at the University

of Puerto Rico in Environmental Management with emnhasis on policy

analysis,- one of whose areas of concern would be the marine environ-

ment. (This program would make use of existing programs at U.P.R.

in the natural sciences, planning, public administration, law and

management. It would be Interdisciplinary and would not require

the establishment of new academic structures.)

A Bachelor level program on marine affairs should be devel-

oped- at the University of Puerto Rico with the collaboration of the

Environmental Quality Board and the'Department of Natural Resources.

3. Zhe University should also offer short courses and seminars

in the area of marine affairs for high and middle level government

officials. (It is important that Federal officials participate in

these courses so that they may become aware of Puerto Rican needs

and realities. The Conservation Trust Fund should also participate

229

in the development of these programs by providing some financial

support.)

Another important area of concern not only in marine affairs,

but also in most of the activities of our Government, stems from

the fact that information is frequently not available to citizens

and private organizations interested in understanding the relevant

issues in order to participate in the decision-making process. In

the United States this lack of information led to the adoption of

the Freedom of Information Act. Other nations have likewise adopted

measures aimed at freeing information from governmental'bureaucracies.

Puerto Rico has urgently to rectify the present public information

with respect to government programs has not been available to citizens.

As a result, participation by citizens has been limited to pub-

lic hearings in which the subject under discussion has already been

dealt with extensively at the agency level. Frequently these-hear-

ings only legitimize a decision already taken behind closed doors.

All of this is related.to the problem lack of governmental awareness

of the importance of incorporating the citizenry into the decision-

making process. The situation requires prompt and decisive corrective

action.

230

Recommendations

1. Puerto Rico should approve a law similar in objectives and

purposes to legislation approved in other countries, particularly

in the United States., in order to improve the flow of information

to the public. (This law should be part of a more general effort

to establish general administrative norms and procedures for all

agencies.)

2. Citizen participation in government programs and decision-

making should be stimulated as a means of improving the process,and

of integrating larger numbers into the sphere of Government. (This.

princ iple should be a part of any general administrative norms and

procedures established for all agencies. Specific forms of citizen

participation are mentioned below.)

3. All government agenc ie should be required to allow effec-

tive citizen partici2ation throughout the decision-making process not

only through public hearings but also throuqh advisory committees

and other means.

THE POLICY FORMULATION PROCESS

The importance of the policy formulation process is frequently

unrecognized in government activities. Policy formulation is fre-

quently confused with the statement of broad general objectives of

231

a normative natu.-Le, not concerned with the establishment of prior-

ities or the development of means of integrating different sectors

and programs, nor with costs and implementation mechanisms. Opera-

tional programs frequently swallow up the more long-range, somewhat

more intangible concerns implied in policy formulation. This is

especially true with respect to situations in which an agency eq-

compasses both policy functions and operational activities, as has

been the case with the Planning Board.

Another reason for the scant importance given to policy matters

is the fact that policy, dealing with intersectoral concerns, is

much more difficult to handle. Planners hi@tve traditionally dealt

with individual sectors, concentrating.on what has been termed

11single purpose planning". It is not surprising, then, that areas

which require inputs from many disciplines and do not adjust to

traditional sectoral categories are frequently excluded from the

policy formulation process. Needless to say, when we state that

there is no policy, what is meant is that there is no explicit policy,

since there is always an implicit policy, even if it means disregard

of a specific problem area. Given the nature of Puerto Rico as a

syst em, some of the considerations which must be taken into account

in the design of the policy-making system are:

1. Planning and policy formulation must be conceived as the

means of dealing with the interdependencies mentioned. Decision-

232

making must be integrated'both horizontally and vertically, that is,

between sectors (agriculture, industry, transportation, recreation)

as well as between levels (Federal, Commonwealth, Municipal).

2. Where the system is highly integrated., the advantages of

centralization in the policy-making organs should be considered.

Decentralization should be limited, for the most part, to functions

related to operational matters. Enforcement activities can usually

be decentralized.

3. With respect to industrial location policies, the advan-

tages of concentration in a small, highly integrated system, should

be considered.

4. Given the importance of exogenous factors, the Island must
improve its external (i ntelligence)' capabilities. This is especially

important with respect to technology assessment, given the fact that

Puerto Rico imports most of its technology.

5. Public policy must consider the Island's capacity to sustain

further economic growth on the same pattern as in the past two de-

cades. Alternatives must be considered which are better suited to

Island characteristics in terms of the economic structure proposed.

6. All of the above could be summarized by saying that plan-

ning must adopt a total system perspective. Environmental problems

will not be resolved unless policies in this area are linked to de-

cisions in other sectors.

233

In the area of marine affairs there is a critical need to form-

ulate explicit goals and to integrate them into the overall econ-

omic and social objectives. At the present-time the Environmental

Quality Board is responsible for formulating public policy with re-

spect to the-environment. However, the present arrangement does not

appear to be satisfactory for a number of reasons. For example, ob-

jectives related to other areas conflict with environmental goals

and the Board is frequently-forced to take a defensive position.

The respcilisibilities of the Board need to be clearly established,

especially vis-a-vis.the Planning Board and the proposed Department

of Natural Resources. Each sectoral goal statement should be drafted

in a way.that attempts to resolve the critical problems related to

marine affairs. Our positi on is that the En vironmental Quality

Board must be given specific responsibility for policy formulation

at the sectoral level.

The foregoing arrangement does not resolve two fundamental

problems. One is the necessity for assigning to the Environmental

Quality Board the importance it deserves. We are concerned that the'

new Department of Natural Resources will absorb all the funds for

operational functions, and tha t, as has frequently been the case,

the policy making functions will be weakened. This, of course, de-

pends on the Governor's inclinations and the amount of public pres-

sure brought to bear in this matter.

234

With respect to the first of these two matters, the Committee

is emphatic. With respect to the second, we propose that a concerted

effort be made by the Environmental Quality Board to increase citizen

awareness and citizen participation in the policy formulation pro-

cess. Detail recommendations on these aspects will be made below.

The type of policy formulation structure which we consider most

desirable for Puerto Rico and which we are proposing in the area of

marine affairs would charge the Planning Board with the responsibility

for translating the social priorities adopted by the Executive and

Legislative branches into more specific operational directives. These

would then be transmitted to the different agencies dealing with the

various sectors. The Environmental Quality Board should be in charge

of formulating the policies for the marine resources sector and the

Department of Natural Resources should be responsible for the exe-

cution and operation of programs.

Obviously,the various levels should be integrated in order to

minimize conflicts. The system cannot be considered.as one which is

hierarchically structured with respect to information flows, but

rather as one in which there is a great deal of feedback. Thus, the

Environmental Quality Board could provide inputs to the Planning

Board in order to help that agency in the formulation of overall

goals and priorities. The Department of Natural Resources would

have a similar role in the formulation of sectoral policy.

235

In order to assure that the policy formulation system will

function effectively, it is important to consider the instruments

available to deal with the process. At the Planning Board level,

the Four Year Plan and the Four Year Program are both potentially

useful. There is need for a similar instrument that could serve

at the sectoral level, to achieve the required integration between

the policyformulation functions of the Environmental Quality Board

and the operational activities of the new Department of Natural

Resources. Several mea sures can be suggested:

Recommendations,

1. The position of Associate Director for Marine Affairs of

the Environmental Quality Board should be created by legislation.

His functions would deal with policy recommendations to the Environ-

mental Quality Board on marine affairs, just as the other Associate

Directors deal with solid wastes and air and water quality.

2. The Board should be given specific responsibility for pre-
paring a Four Year Development Plan for Marine Resources. This plan,

approved by the Environmental_Quality_13oard, would be integrated with

the Planning Board's over-all Plan and would providequidelines for

the operational activities of the Department of Natural Resources.

Since the Secretary of Natural Resources is a member of the Environ-

236

mental*_Quality Board, he would pro vide the needed integration. The

Plan should be the subject of public hearings prior to its approval.

3. Operational activities should be separated from the Planning

Bo ard in order to permit it to successfully carry out its policy

formulation functions.

4. That an Advisory Council for Marine Affairs be created to

advise the Associate Director for Marine Affairs in matters related.

to the establishment of policy in the area. The Council should be

composed of representatives of government and,private institutions,

as well as individuals involved in research in the area of marine

affairs. The Council should also inc lude public-minded individuals

with no specific expertise in the area.

INTELLIGENCE OR RESEARCH

If our objective is to improve the Gove rnment's capabilities in

the formulation of consistent, informed policies in the area of marine

resources, research plays a fundamental role. It is true, however,

that in Puerto Rico research has played a secondary role. Its im-

portance has not been recognized, even at the universities. Of course,

research is not a unique category or one that encompasses a set of

homogeneous activities. There are various types of research serving

different aims: basic scientific research aimed at discovering pre-

viously unknown facts, research related to specific program or project

237

objectives, and that dealing with policy formulation and evaluative

research. To a greater or lesser extent, the various types of re-

search are being carried out in Puerto Rico at different levels and

in different institutions. What we visualize is a differentiation

of research responsibilities on the basis of the nature of the re-

search and the primary responsibilities of the agencies.

in the area of government-financed research there should be

broad policy guidelines to d istribute the available funds. Undoubt-

edly the University will continue to carry out basic research pro-

jects as well as more applied research in areas which respond.to the

faculty's inclinations.. It is also true that the Department of

Natural Resources will have a research capability, especially in

that type of'research related to specific programs. Still, we have

identifed some gaps in the type of research being done and in the

existence of mechanisms that would stimulate activities. It is to

these gaps that our recommendations are aimed.

Recommendations

1. Policy research should be promoted more intensivelV, either

with the actual institutional arrangements in terms of placing more
e asis in this area, or in' terms' of creating a new mechanism to

carrV out such research.

238

2. The Associate Director for Marine Affairs of the Environ-

mental Quality Board together with the Advisory Council for Marine

Affairs should be responsible for setting priorities in government

research in the area of marine affairs. These priorities should be

based on the overall 20licy for the sector, and should 2rovide cruide-

lines for the allocation of government funds to research.

3. The University of Puerto Rico-should be in charge of handling

the Sea Grant Program, but should seek the collaboration-of the

Environmental Quality Board and the De2artment of Natural Resources,

and other related sectoral institutions.

4. A special projects fund should be established by the

Government to be managed by the Environmental Quality Board. This

fund would provide seed money for 2rojects which'fall outside current

sectoral priorities or guidelines.

5. The Legislature should appropriate funds to be used for re-

search of marine affairs by the-different agencies involved in this

sector. Progress reports on the use of these funds should be made

every year to the Governor and the Legislature.

6. A data bank on marine affairs in Maaguez should be estab-

lished and present facilities should be reinforced. (See recommend-

ation on Data Bank in Report of the Subcommittee on Research and

Development.)

239

7. More emphasis should be given to maximizing the use of

local talent in research projects.

DEVELOPMENT, USE, REGULATION AND CONSERVATION

There are innumerable programs and activities that affect the

marine environment. These include recreational activities, exploit-

ation of resources such as sand, r6search, and many others. These

a-re frequently in conflict with each other. One of the problems

that Puerto Rico has faced in the general area in marine affairs is

that of enforcement. We visualize enforcement as being directly

related to the whole process of formulation of objectives,. drafting

of regulations and establishment of priorities. The question of

effective-enforcement depends partly on the clarity with which object-

ives are stated and the precision with which regulations a re written.

Still, the problem of enforcement is one which requires immediate

action. It is to be hoped that with the creation of the Departme nt

of Natural Resources the problems associated with the dispersion of

enforcement activities will be remedied, at least partially.

Even though the area of enforcement is one in which citizen par-

ticipation can be especially productive, in the past, there has-been

little, if any, interest on the part of the agencies concerned to

incorporate the citizenry into its enforcement program. We feel that

240

it would be particularly productive to establish training programs

to enable citizens to participate not only in enforcement programs

but also in the policy-making stages of the decision-making process.

There are other problems related to this general topic. one is

the absence of any one agency dealing with the problems related to

the development of resources. In the field of marine resources it

is especially urgent that the development functions be defined. The

Department of Natural Resources should be primarily responsible with

the development of our natural resources according to the policies

formulated by the Environmental Quality Board.

Recommendations

1. Municipal citizen groups should be established to deal with

problems of conservation and enforcement in the area of marine re-

sources. These groups should be established with the collaboration

of the Environmental Quality Board and the Department of Natural Re-

sources. Budgetary appropriations should be made available for the

training and organization of these groups. (See similar recommendation

in Report of the Subcommittee on Coastal Zone Management.)

2. It should be clearly established that primary res2onsibility

for the drafting of regulations in the marine resources sector corre-

spond to the Environmental Quality Board, although the participation

241

of the Department of Natural Resourc es is necessary in the process.

The incorporation of the citizenry in the policy-making process

should be of immediate concern to government officials. In this

regard a preliminary step could well be the establishment of advisory

citizen committees on an 'ad hoc basis to help in the process of draft-

ing adequate regulations. These citizen advisory comm ittees and the

,other groups working within the agencies should reflect a wide variety

of economic or social characteristics.

3. Since there are a number of areas of critical importance,

the Planning Board and the Environmental Quality Board should identify

these Critical-Environment Areas and specific policies should be de-

lineated for them. Again, this is an area in which ad hoc citizen

groups can fruitfully participate. (See the section on Critical

Environmental Areas in the Report of the Subcommittee on Coastal

Zone Management.)

Other development, use and conservation functions are discussed

in the following section on the Department of Natural Resources.

THE DEPARTMENT OF NATURAL RESOURCES

This Departme.nt will begin operations in January, 1973. Because

of its importance, and the fact that the,Law which created it did

not specify its functions in general, or as they relate to marine

242

affairs, we have felt the need to mention briefly what we consider

should be the new Department's principal functions.

1. The Department of Natural Resources should be an operational

department, and that primary responsibilities for policy formulation

should remain in the Environmental-Quality Board. Although the law

specifically indicates.this, it is imperative that this -separation

of functions be recognized de facto in budget appropriations and by
-the decislion-making process in general,* particularly by the Executive

Branch.

.2. 'The Environmental Quality Board should have primary respon-

sibility for drafting of.regulations in close collaboration with the

Department of Natural Resources.

.3. With respect to coastal zone management, the Department of

NaturalResources should have primary responsibility for all manage-

ment aspects. The Planning Board will have a.number of functions

dealing with zoning of special areas, building standards and others.

The Environmental Quality Board should deal with those areas having

to do with the formulation of overall policy dealing with coastal zone

management. However, in the event that Federal legislation is ap-

proved with respect to coastal zone management, it may be desirable

to create some sort of coordinating mechanism in addition to the

existing ones such as the membership of the Secretary of Natural

Resources in the Environmental Quality Board. .(See similar

243

recommendation in Report of the Subcommittee on Coastal Zone

Management.)

4. The Department of Natural Resources should be in charge of

-all development activities seeking to stimulate private and public

development of marine resources.

5. Programs related to commercial fisheries should be in the

Department of Natural Resources.

6. Research related to operational activities and development

should be the primary responsibility of the Department of Natural

Resources.

7. Promotion and the establishing of incentives for develop-

ment ofmarine resources should be the responsibility of the Depart-

ment of Natural*Resources.

8. The.enforcement function should also be a responsibility of

the Department.

9. The actual development and administration of programs re-

lated directly to ma rine affairs should also be under the direction

of the Department.

OTHER ISSUES

In other parts of this report we have emphasized the need for

government to promote and stimulate citizen participation at all

244

levels of governmental action. The "Puerto Rico and the Sea" pro-

ject is a good example of what citizens can do to help governrclent

cope with the problems it faces. Government must undertake a major

effort to promote citizen participation at all levels and to act

on the recommendations made by citizens committees, implement those

which it feels are meritorious and explain why others should not or

cannot,be implemented. This-is a very important aspect of citizen

participation, for otherwise the impression is crea ted that citizen

participation is merely formalistic. Unless these steps are im-

mediately taken, citizens will continue to feel skeptical about

their participation in the decision-making process and the whole

concept of citizen participation and involvement will suffer as a

result.

Past experience shows a tendency on the part of government to

either ignore the citizen recommendations or to neglect to provide

the necessary follow-up which we feel is so important..In fact, the

recent report rendered by the study team of the Commission on the

Reorganization of the Executive Branch and by the Reorganization

Commission itself, pinpointed the need to have adequate follow-up

mechanisms:

Critical to the Governor's ability to lead the Government in

the direction he decides is his skill in gaining support and approval

for his policies both in the legislative and within the.policy-making

245

circles of the Executive Branch. Perhaps even more critical, how-

ever, is his ability to ensure timely implementation of these new

programs and policies in a form which serves their original object-

ives and resembles their original concept--a considerable feat in

a complicated bureaucracy. It is important that the Governor have

the additional-capacity to single out those few new programs which

hold.,highest priority and be confident that their designation as

"highest.priority" will ensure speedy and successful.-implementation.

Recommendations

1. -One year after this re2ort is.submitted to the Governort.

the Parent Committee.of the "Puerto Rico.and the Sea" Project should

convene so that it can analyze and evaluate what has been-done with

its recommendations; and re-examine and evaluate its own recommend-

ations

.2. A Special Project Staff Unit for marine affairs should be

created in the-Office of the Governor to carry out two general func-

tions: analyze and evaluate programs a d to see that new programs

and policies in m arine_affairs are implemented.

With regard to the first general function, its specific areas

of concern should bez

246

a. Identify and appraise stated and actual objectives.

b. Measure effectiveness in terms of both program re-

sults and the important specific problems to which the pro-

grams are oriented.

c. Generate and consider alternative means of achieving

program.,objedtives.

With regard to its second general function, its specific areas

of concern should'bet

a.. Independent monitoring of agencies, performance-.

b. A.ssi'stance in the development of a d6tailed project

plan.

C. See.that an implementation schedule is made-and accom-

plished.

Issue regular status reports on progress made.

The Special Projects Staff Unit should be composed of a small

cadre of personnel who should be able to communicate on a peer basis

with the top levels of government, be sensitive to the workings of

bureaucracy and be able to exert leadership.

Similar units should be established at the Environmental Quality

Board and the Department of Natural Resources. The outputs of such

units must be integrated into the decision-making process of govern-

ment.

247

PROCEEDINGS AND ACKNOWLEDGMENTS

The Subcommittee on Institutional Arrangements was composed of

a representative group of scholars, government officials and persons

from industry, who had shown, in the past, interest and capabilities

in the area otnatura.1 resources, and on how government shoul d be

organized and.operated in societies such as Puerto Rico.@

The first meetings of the- Subcommittee were devoted to the

elaboration of-a plan of action, and the discussion of the conceptual

.considerations that should serve as the framework for the.task of

the Subcommittee. After this initial stage, the Subcommittee decided

to hear the testimony of a number.of governmental officials and uni-.

versity professors, so as to identify the major areas of concern,

the most pressing problems and consider their recommendations. From

this process, and on the basis of its own work, the-Subcommittee iden-

tified the, major recommendations. These-, became, after'.a process of

evaluation, our final conclusions and recommendations.

Over the past few months, progress reports were made to the other

Subcommittees and to the Parent Committee; meetings were held between

members of our Subcommittee with other Subcommittees and with the

Parent Committee. During all of these stages the preliminary findings

and recommendations of our Subcommittee were discussed, analyzed

and evaluated by other Subcommittees and by the Parent Committee.

248

In this sense, our findings and recommendations tend to integrate

and reflect the findings and recommendations of the other Subcom-

mitees.

'This Subcommittee wishes to express its gratitude to the Environ-

mental Quality Board, which provided office space, materials and

-personnel to he-1p.in,our.task. In particular we.wish to acknowledge

the help given.by-Mrs. Carmen Enid G rcla de@Cabdn, who acted as
a I

coordinator and intern, Miss Josefina Santos, who acted as secretary,

and other..persons-of -the Board who offered valuable help.. ..We would

like to single out its Executive Director, Cruz A.-Matos, for his

assIstance, -the Board's administrative.offici..al,-Carlos Conde, 'and

Miss.Yolanda Col6n.

We also wish to acknowledge Mr. William Beller's,and Miss.

Margarita Gandi'a's significant'help, and thank all theother persons

who directly or indi rectly contributed to the task of the Subcommittee.

249.

SECTION 6 REPORT OF SUBCOMMITTEE ON
THE ROLE OF PUERTO RICO IN THE CARIBBEAN AREA

INTRODUCTION

The Caribbean-Sea should be regarded as a possession common

to all'of the countries of the area. Recognizing that the sea has

but limited resources,, it.becomes imperative to.realize.that these

be judiciously'ex'loited,and that all areacountries must
p

be of a common accord when acting to p.revent:the misuse or mis-

management of exploitations whi.ch.could result in the:depletion

of the sea's bounty., In order to foster the aforementioned.re-

alization of the need for judicious exploitation, thisSubcommittee
Will recommend.."mechanisms" for cooperation among Caribbean couh-

tries.

An analysis of the role that Puerto Rico can play in-the Carib-

bean area requires that these.roles be placed in proper perspective

within the regional framework as a whole. For this reason the Sub-

committee's.report.has been subdivided into the following topics:

first, the present character of the Caribbean area will be briefly

discussed, and then the role of.Puerto Rico in the Caribbean area

will be expounden upon. The final section will contain serial recom-

mendations-for cooperation among Caribbean countries.

THE PRESENT CHARACTER OF THE CARIBBEAN AREA

The Caribbean "area" has been understood by this Subcommittee

to include the archipelago which is comprised by the Greater and

250.

the Lesser Antilles, and the littoral areas of Central America and

northern South America, i.e. Columbia, Venezuela and the three

Guyanas.

The area as such understood is.characterized by a common his-

tory but not necessarily by a common destiny. A common history

because of the impact of certain region-wide factors such as a

regional colonialism, the slave trade,the persistence of planta-

'eral d e
tion economies and, in the'20th Century, and a.gen ep-ndency

upon restrictive metropolitan cultures and economies.

At the,same time, there appears to be no common destiny for

a series of reasons, namely:

Political Balkanization

Politic al structur es .. in each territory have been

shaped by their respective metropolitan models such as

the French Republican model in the French Antilles, the

Westminster model in the English speaking Antilles, the

American Republic model in Puerto Rico and the U. S.

Virgin Islands, the Dutch model in the Dutch Antilles and

-Surinam, and the traditional Hispanic model in the other

countries.

Inequity of Political and Constitutional Development

Within the "Balkanization!'division there has occured

a further serious division between Caribbean societies

251

marked by a deeply ingrained constitutionalism such as

found in the English, French and Dutch Antilles, and

those societies marked by the typical Creole and Latin

American dictatorships, specifically in Cuba, Santo

Domingo, Haiti and Nicaragua. This, in brief, consti-

tutes a serious inequity of Political and Constitutional

Development.-

Linguistic Divisions

Alongside all of the above.there prevails a lin-

guistic division which divides the Caribbeancountries

into four ma@jor language.gkoups: English', French,

Spanish and Dutch. -This.has made cooperation among-

the area countries, hot impossible, but indeed difficult.

Pluralistic Societies

The Caribbean is a pluralistic society composed of

an enormous variation of nAtional,cultural and religious

groupings which make the growth of effective national

citizenship extremely difficult. Guyana, for example,

has a society composed of Portuguese, Syrian, Blacks,

Indian, Chinese and Amerindian ethnic groups. These

groups do mix, but do not combine for they seem to suffer

from a traumatic sense of identity. This is perhaps

best reflected in the black groups of the region and in

252

the phenomenal growth of Black Power.consciousness

throughout the Caribbean. In other words, the Carib-

bean is composed of countries with pluralistic societies

in which certain "values ... permeatethe entire social

order, but in everyday life... classes remain sharply

divided, and divergent social institutions and modes

of culture underscore clan divisions". (Lowenthal, 1972)

Plantation Economies

Asconcerns of economic structures, the general

characteristics of thearea can.be described in terms

of plantation economies. Practically all of the Carib-

bean countries have-a skewed type of export trade based

on the one crop mining of products such as bauxite and

petroleum or the one-crop harvest of agricultural prod-

ucts such as bananas.and sugar. Thus, export earnings

constitute a very high proportion of a country's earned

income. If tourism earnings were added to those of one-

crop exportations, the dependency on external sources of

income would be even greater in many countries. However,

although Caribbean export efforts may be s aid to be ef-

ficient, they are very vulnerable for, in more cases than

not, export efforts are sustained by special commodity

agreements with the metropolitan buyer economies.

253

In short, the region produces what it does not it-

self consume and consumes what is produced elsewhere.

The region's countries are characterized by one-crop econ-
omies based on agriculture and/or mining with virtually
no industrial'production, excluding Puerto Rico and to a

lesser extent Jamaica and Trinidad., (Demas, 1965)

The heretoforesaid'describes the essence of the character of

the-Caribbean's- heritage. But in the present period the Caribbean.

is subjected to new strains and stresses as a consequence:of the

modernizing process and the.americanizing process.'

Modernization reflects the process of developing.industriali-

..zation, urban concentration, population movements, rising consumer

expectations, mass communications, rising demands for education,

health and other s'ocial services. All of these factors were ac-

cele rated by the Second World War's impact on the region. Ameri-

canization refers to thegeneral fact that modernization is taking

place through the filter of the overweening impact and presence of

the North American culture and technology on and in the region.

These two processes sometimes coincide and at other times can be

perceived as separate and distinct culture processes. In brief,

the problem of the contemporary Caribbean is: the way in which

the area, as shaped by the factors noted above, adjusts itself to

the modernizing and americanizing processes.

Up to this point, all of the preceding describes the Carib-

bean as seen from the viewpoint of nurture, that is, the collective

254

impact of manmade factors which influence the land-sea balance of

the region. However, it can and should also be seen from the view-

point of nature.

In addition to the many differences in the cultural, social

and political values of the various societies in question, as noted,

there exist many other factors, primarily natural factors, which

propel the territorial units of the Caribbean towards closer rela-
tionships. The Caribbean Sea is a common possession, Ali of the

.Caribbean countries claim a right to. use and exploit the Sea's re-

.:,,sources. Furthermore, the area is tropical in nature and the coun-

tries within'it share-siMilar -physical'conditions and biotic ele-

ments in their terrestrial-and acquatic habitats. Consequently, a

concern for eco-systems management.becomes a link, a'common cause..

However, given the massive heterogenous collection of differing

cultural and.social life-styles, eco-systems management is quite

possibly the only common denominator that exists as a base for col-

lective actions is eminently desirable in vie-wof.the fact that the

.region possesses a land-sea relationship of tremendous delicacy.

By delicacy we mean that the mismanagement of the region's natural

resources can result in a distructive chain reaction producing a

fatalecological imbalance and possibly the destruction of resources

that cannot be replaced. This relationship is particularly delicate

in islands as opposed to the littorals of the continental masses.

Finally, any discussion of the role that Puerto Rico can play

in the Caribbean area must take cognizance of the fact that the

Caribbean already possesses a history of over 30 years or more of

255

various efforts to create Caribbean political and economic struc-

tures, and a Pan-Caribbean consciousness. For various reasons,

both internal and externall none of these experiments- have sur-

vived (Anglo-American Commission,, 1942-46; Caribbean Commission,

1946-60; Caribbean Organizationt 1960-65; The West Indies Federa-

tion, 1958-62; and CODECA,1965-71).

THE ROLE OF PUERTO RICO IN THE CARIBBEAN AREA

"Puerto Rico and the Sea" was convened asa pro.ject for@the

purpose of identifying major marine-r'elated problems and opportu-
nities of concern.to Puerto Rico@an recommending,specific programs.-

th&t can be implemented by existing private and public Puerto Rican

institutions that havea capability for dealing with the Island's

marine affairs.

Co nsequently, this Subcommittee has interpreted its miss ion

..as dealing.with the identification of marine-related problems and

opportunities that are of common concern to Puerto Rico and the

countries of the Caribbean and the recommendation of action pro-

grams wherein a Puerto Rican initiative can play a major role.

Within the light of this mandate, the recommendations of this Sub-

committee are based on the following precepts:

1. Puerto Rico can, admittedly, teach th e region much

but also has much to learn.from the region.

2. 'Given the comparative inefficacy of attempts for

formal cooperation among Caribbean*countries, primary

256

emphasis is given to informal and functional coopera-

tion possibilities that can be realized via already

existing Caribbean Institutions.

3. Puerto Rico's initiatives in informal and functional

cooperation with respect to the marine affairs of the

Caribbean region should be conceived and accepted as

an opportunity for the development of a new,,viable,

international personality-for the Commonwealth.

Puerto Rico Can Teach and Learn

It is well known that,Puerto-Rico has had an experience of

over 20 years of rapid industrialization and socio-economic develop-

ment with al1their favorable effects on the Islands and its in-

habitants. This experience can be and often is regarded as an

invaluable example for the development-experiments of Caribbean.

countries in general. In particular, Puerto Rico's concern with

the implications and end-effects of industrialization.on marine.

and coastal life have been crystallized in the creation of a num-

ber of institutions such as the following:
Environmental Quality' Board

Department of Natural Resources

Puerto Rico Planning Board

Puerto Rico Nuclear Center

Water Resources Research Institute

257

Many of these agencies are the only bodies of their kind in

the Caribbean and it is likely that they could be of service and

tremendous usefulness to those Caribbean countries that are not in

a position to duplicate such institutional efforts. The relative

abundance of human resources in Puerto Rico, as well as financial
-means from both Commonwealth and Federal sources gives strength to

-such@institutions-and to the assumption that they could'be instru@

mental in a@Caribbean-wide cooperative effort in marine-affairs.

The. above mentioned institutions-are'active in the following

areas of ecological concern:
Control 'of urban sprawl.

Control...of.beach f roAt development.

P -for recreation-
reservation of coastal areas.

-Preventing the alienation.of public beach.land

via private ownership.,

Controlling the pollution of the.Island'.s land,

sea and airspace.

Studying marine life and coastal vegetation.

Behavior of estuaries and bays.

These are but a few examples of Puerto Rican experience that

can surely be of great interest to other Caribbean countries, both

for the purpose of learning from our successes as well as from our

failures.

We must now look at those areas where other Caribbean countries

have had their measure of success and wherefrom.Puerto Rico can

learn.

258

in the first place, there is the i ssue of tourist development.

Especially in the Winward and Leeward Islands, a number of non-

governmental groups, primarily student groups and churches, have

been concerned with the development of tourist development models

that will be indigenous, locally based and with an emphasis on

boarding houses and small hotels--as opposed to a hotel i ndustry

based on international hot el syndic ates--and which will cater to-

both the-local and to the foreign clientele-.

In the second.place, there is the.issue of exagerated urbani-

.zation which now calls for an ecologically sane relationship be-

tween city and nature. Most uiban planners,in the area-are con-

cekned.with preventing the transformation of a pre-industrial

capital city (such as Port.of Spain and Fort.de France) into an. ex-

cessively urb&nized-metropolis such as San Juan.

Alongside of this, note ought to be taken of the growing tem-

per of self-criticism within the Puerto Rican world itself whichl

frankly recognizes the deficiencies of the Puerto Rican planning

record and.. admits the impropriety of offering the Puerto Rican
model indiscriminately as an exportable model.

Thus, Puerto Rico has much.to learn by looking at how other

Caribbean countries plan and utilize their coastal areas, partic-

ularly with reference to tourism and urbanization, both of which

directly impinge upon the conservation of the naturally given

-ecolog ical balance of coastal zones.

In sum, there exists no immaculat e concept for-Pan-Caribbean

development.

259

Informal and Functional Cooperation

The history of formal Caribbean c ooperati-on has already

been noted. Almost certainly, the one lasti ng lesson that can

,be gleaned from that history is the non-viability of'political

solutions, meaning political solutions of either a federal or

quasi-federal character or any grand design involving the con-

struction of supra-nationAl organizations. Therefore,-the Sub-

committee has chosento emphasize that-the growth of the co-

operation habit (among Caribbean countries) in marine affairs,

be pursued with a minimal stress on fo.rmal.agreements.-of-an.

international'character..

Informal.and functional cooperation, As here concept-

@ualized, involves the usage of- all public and private-as.so-

ciations or institutions that already exist in the region and,,

thus,, emphasizes the road of example and initiative, not exalt-

ing the idea that the.,best results come out of ideology, but

rather from cooperative work undertaken for.solving.limited

and particular problems with limited and particular means.

This is to say, that the main emphasis will be on the

professional ethic.

Puerto Rican. institutions should be urged, as per the

subcommittee's subsequent recommendations, to develop work-

ing relationships with the institutions of other Caribbean

260

countries in data gathering, exchange of.personnel, joint

studies, training, etc. Of course, such relationships can

only be developed among institutions that can profit, in some

measure, from the relationship. Any kind of cooperation be-

tween countries or institutions is pointless unless the par-

ticipants can expect some benefit for themselves. Those ins-

titutions.interested in collaborating with oneanother can

themselves specify their own terms and conditions'for.'collab-

oration and do not necessarily need some supra-national.or-

or bi-or multi-lateral agreements from their

.,governments to dictate what the terms for collaboration will.

or should-be.

Conceivably, at the outset, working relationships among

Caribbean institutions will tend to be loose and non-compro-

mising for the participating parties. However, with the pas-

sage of time one can expect that those working relationships

will evolve and become stronger and more useful. This is

indeed the desirable end-result.

A Puerto Rican International Personality

It has been pointed out that this Subcommittee considers

informal and functional.cooperation as the best possible

261

alternative for cooperating with already.existing,local and

Caribbean institutions. It was also indicated that the Sub-

committee will make specific recommendations as to areas of

activity wherein Puerto Rican.institutions can s earch out

contacts and develop working relationships with their appro-

priate Caribbean counterparts.

ln@brief, as Puerto Rican institutions, acting,on their

own initiative, search out and develop informal and functional

'but lead towards a-mew role forPuerto.Rico, a new person-
4"
ality, a new understanding based upon multi-lateral cooper-.

ation, as opposed to strict ancl antiquated bi-lateral cooper-

ation,. as opposed to strict' and antiquated bi-lateral.-re-

..lationships. By bi-later.al.relationships we mean, for ex-

ample, such as San Juan looking towards Washington,.Fort-

de-France looking toward Paris and Kingston looking toward

London. By multi-la,teral relationships we mean that these

two-way streets ought to become multi-lane highways wherein

multi-lateral relationships can flourish among Caribbean

neighbours; relationships which can only flourish if they

are based upon equality and understanding'@

262-

SERIAL RECOMMENDATIONS

Education

The Subcommittee is conscious of the fact that Puerto Rico

has.minimal relations with its,Caribbean neighbors. one of the

reasons-is, as it was expounded in the Introduction, the absence

Of a 111ingua franca" in the region. This,frustra.tes the'growth

of Pan-Caribbean consciousness. Without-the.ability to communi-

cate in lan guage, any cooperation at.a more specialized levels is

..made more difficult. Linguistic intercourse can be seen-as a,.s.ort

of,necessary infra-structure on:which.cboperative ventures,can be

built in regional educationalmarine and marine-related affairs.

It seems-logical, therefore, -that the Department of Education

should undertake a more positive role. in regional educational ac-

tivity.

As a means. of strengthening and developing ties with the

English speaking Caribbean, Puerto Rico must emphasi'ze,the teaching

of English.' This does not necessarily mean the reinforcement of

the North American connection, but i.t does.mean widening the lin-

guistic instruments of the Puerto Rican'professional. Therefore,

the Subcommittee feels that the Department of Education should

seek means for strenghtening the teaching of English. It must be

kept in mind that in addition to Spanish and English, two other

languages. are spoken. in the Caribbean, namely French and Dutch.

These two languages, especially the former, should find their

263

ways in the curriculum of Puerto Rican high schools. This could

be undertaken by consultation with the language laboratory of the

U.P.R. and the new translator program at U.P.R.

Recommendation

The Department of Education.should further strengthen the

teachirig.of English'and aching
-investigate the_possibility:of te

one or two of the maj-or Caribbean area languages.

Teaching the languages of the area is but one of the many.

ways of-familiarizing.,the Puerto-Rican professionals with the

future'of the area and ensuring an effective. participatory role for.

Puerto Rico. -This alone however would not suffice unless students

are made aware of the region as such and of its problems. An ad-

ditional way is to review and, if need be, revise the.curriculum

at the high school level-, undertake a serious program of revision

of text books and,plan new text books. This is already being done

both in the U.S. Virgin Islands, under the Project Introspection

of the USVI Department of Education (with funding being provided

under the ESEA Legislation of 1965), and in the English speaking

Caribbean, for example, the new text materials being put out by

Longmans (London) in the field of secondary school level Caribbean

histories.

This will require an enlarged reservoir of teachers trained

in Caribbean issues and problems. The Department could easily

secure the cooperation of the U.P.R. (Institute of Caribbean Studies,

264

Office of the President) which in turn can organi,ze university

level courses (possibly at Diploma level) for candidates with this

end in mind.

Recommendation

The Department of Education should investigate the feasi-

bility of teaching Caribbean-oriented c ourses*at all leve,ls-of the

school system.

The Subcommittee is also aware of the fact.that at present*

there exists nothing in the.way of multi-language dictionary mate-

rial in any technical field. It appears to the..Subcomm.itte.e that
an excellent way to-start an informal and.functional cooperation

among technical personnel in marine and marine-related affairs

would be long-range project on the preparation of a technical

dictionary. The.Subcommittee also would like to call attention to

the fact that the University of the West Indies in Barbados, for

example, has recently launched a five-year program for the develop-

ment of aft English Creole grammar.

Recommendation

The Department of Education investigate the possibility of

preparing and publishing a multi-language dictionary of technical

terms in the marine sciences.

265

An Office for Caribbean Affairs

At the moment there exists no single office within the

Commonwealth Government dealing specifically with Puerto Rican

relationships with Caribbean.countries. Because the Caribbean is

a region of growing inter-territorial.and international activity

and@because Puerto Rico-will be drawn increasingly into-this.ac-

tivity, it seems advisable that some- such office be created. This

office would act-as a Protocol Office for visiting area leaders,

official delegations and others. In-addition,, this office would,
on behalf:of the Governm.entr keepabreast of all Caribbean-wide'

..activities and problems of interest to.Puerto Rico..

Recommendation

An office_for_C_ar,ibbean'affairs should be established within

'the office of the Secretary of State of the Government of Puerto

Rico at the Assistant Secretary level.

Local Studies

Even though'the Caribbean communities are "sea-oriented",,

the region as such does not have enough industries that process

resources obtained from the sea. Yet, such industries could help

further the economic development of the islands and to improve

trade among them. Despite the efforts of CARIFTA, Intra-Caribbean

-trade is still an insign ificant portion of the total trade of the

266

region. (A McIntyre, 1966 and F. Andic and E. Guti6rrez, 1966).

The region because of its natural endowment, can establish several

sea-oriented industries that may prove to be viable. The indus-

tries, among others, are: (a) those that could obtain marine life

such as fish, crustaceanst shell-fish, seaweeds; (b) those that

could process sea water to obtain minerals such as salt, bromide.,

sium; (c) those that could obtain and/or.process sand, gravel
and shells; (d),those that can exploit.products which are obtained

from sea beds such a's petroleum. and natural gas.

Although-these industries. appear to be prima facie viable, a

series ofstudies are necessary to determine the economic and tech-

nical f,easibility of the establishment of these industries. There
are in Puert'o Rico*.a number of agencies such as the Economic Devel-

-opment Administration and the projected Department of Natural.

Resources which could help make such studies. In order to enhance

the applicability and the acceptance of the studies a close collab-

,oration with organizations.and institutions in other Caribbean

Countries is extremely desirable.

Recommendation

A Study should be carrie d out by an agency designated by the

Governor to determine the economic and technical feasibility for

the establishment of sea-oriented industries in the Caribbean

community.

267

Recognizing that the consumer and industrial products that

can be obtained from these industries can and should be traded

among the Caribbean countries as and where needed, it needs to be

pointed out that there are but very limited statistics with refer-

ence to the market. For trade to flourish among Caribbean coun-

tries, adequate information should be exch anged to determine the

forces of demand and supply for products obtained from the sea,

More specifically, information is.needed in the following areas:

(a) product demand; (b) product supply; (c) product pricest (d)

degree of competition; and*(f) consumer attitudes towards marine

products*.

Tlhe-@ availability of. information of thi's.nature, in add-ition

to being.helpful to..those who deal with the sea.products in Puerto

Rico and elsewhere in theCaribbean, would be particularly.'helpful

to those countries which are designated by the CARIFTA as less

developed countries, for example, Antigua, Grenada, St. Lucia,

St. Vincent, Monserrat.etc. In order, to enhance the functional

and informal cooperation-among existing institutions of theregian,"

a close collaboration should be sought with appropriate entities

in this field. Given the nature of the study, its priority and

its first impact, the CARIFTA Secretariat should be given primary

consideration.

Taking into consideration the importance of the above men-

tioned studies and their possible impact and trade and development

for the area in general and the enhancement of marine oriented

industries in particular, the Subcommittee feels that it is very

268

important to set a definite deadline for'the completion of the

individual studies.

Recommendation

The Department of Commerce should conduct a market research

study of.the Caribbean in the areas of product demand and supply,

product prices, degree of competition, and consumer attitudes

towards products obtainable from the Sea. The Department of

:,..Commerce should also actively seek the collaboration of CARIFTA's

Secretariat for carrying out these studies. The studies should

be completed within 12 months from the date of inception and the

results be.made available as soon as possible to those countries,

institutions or persons that request and have a need for such

information.

Considering that the area generally lacks the financial

capability of supporting the,industries based on marine products,
considering the importance of financial mechanisms in the regional
trade of such products, and considerinig the importance of improved
'financial possibilities for trade and development in general and

marine-oriented industries in particular,, the Subcommittee suggests
that a common denominator would be the possibility of Puerto Rico
joining the CARIBANK. The Bank has a number of non-borrowing

members, some of which are outside of the Caribbean area (Venezuela

and Colombia). Since the bank is an outstanding organization,
both in terms of its influence and its importance for cooperation

269

and the consolidation of development and trade in the area, the

Subcommittee feels that Puerto Rico may benefit and in turn con-

tribute to the ef forts of the Bank, if it is clearly determined

that Puerto Rico's part icipation is feasible.

Recommendation

The Government of Puerto.Rico should prepare, within six

months, a technical and economic study on the feasibility of Puerto

Rico joining the CARIBANK as one of the-non-borrowing equity

holders.

Communications

The development of an. issue on the subject of communications

appears at first glance to be scarcely related to marine affairs.

However, one cannot expand on the subject of communications without

influencing, in some way, the marine affairs of our region.. For

example: telephone and.telegraph communications may involve the

laying of underwater cables and the establishment of shore'instal-

lations; postal communications may involve sea or air transporta-

tion and the expansion of,harbor or airport communication instal-

lations (both of which are usually established in coastal areas).

It is a well-known fact that Puerto Rico is becoming a com-

munications "link" of sorts for the countries of the Caribbean.

A large number of passengers who fly between Caribbean countries

270

and the United States.or Europe are shunted through Puerto Rico.

in terms of maritime cargo, Puerto Rico is becoming a transfer

point for the Caribbean, i.e., ships travelling from the United

States and Europe transport Caribbean cargo to Puerto Rico, where

it is transferred into smaller vessels that ply the Caribbean

trade (the opposite also occurs: Caribbean cargo is brought to

Puerto..-Rico where It.-is' transferred onto@large vessels for further
@shipment). Turthermore, the Puerto Rican Department of Commerce

is stimulating our..local industries to trademore with other Carib-.
bean.countries. Lastly,, Puerto Rican tourists are increasingly

...vacationin'g in other Caribbean.countries. All of the above, taken:

-collectively, underlines the need.-for improved.communications

between Puerto Rico and other Caribbean Countries*

At present the Caribbean communications network leaves much

to*be desired. Telephone calls between Puerto Rico and other

Caribbean countries must be shunted via Miami, in other cases

via New York, London or Paris. Postal communications take too longr

Telegraph and Telex.communications are not currently ableto
satisfy c ustomer demands.. If Puerto Rico's collaboration with

other Caribbean countries is to be promoted with respect to marine

f airs, then, we must point out that in order to realize ef f iciency

in cooperation, Puerto Rico must be able to depend on the efficacy

of its communications systems.

271

Recommendation

The Government of Puerto Rico should invite Caribbean coun:.

tries to a conference for the purpose of considering the improve-

ment of communications systems. The participants should also

weight the effects which communication installations may have on

the ecological balance of our region.

Transportation'

Puerto Rico is becoming an.increasingly important cargo

transfer point for the-Caribbean. This means that shipments from

the United States and or Europe are sent in bulk to Puerto Rico,

'where said cargo is transferred to smaller ships and aircraft for

further distribution in the Caribbean. The inverse also.occurs.

.As trade increases among the countries of the Caribbeant and.

as cargo through Puerto Rico increases, Puerto Rico as well as all

the other countries are called upon to expand their harbor and

airport facilities. This expansion is inevitable because trade is

the key to the social and economic prosperity of the region. The

construction of harbors and airports has always had a detrimental

effect on the coastal areas of the countries of our region. In

order to construct an airport, large tracts of land have to be
covered with cement and modern.jet airplanes contribute to the
further pollution of our environment. Likewise, the development

of harbor facilities involve the use of water frontage for the

construction of docks and warehouses. Ships also can contribute

272

to the further pollution of our environment through oil and garbage

spillages.

It would be wise to attempt to arrive at a certain meeting of

minds with other Caribbean countries as concerns the use of coastal

areas for the construction of airports and harbors. Instead of
having a haphazard development of suchi facilities throughout the

Caribbean, our.region could benefit from the development of an

overall plan whose purpose would be to insure the protection of

our region's natural habitat.

Recommendation

The Government of Puerto Rico should sponsor a conference of

Caribbean countries in order to discuss the various aspects'of

airport and harbor development and their possible imp acton the

ecological balance of our region.

Interchange and Conferences

The countries within the Caribbean Basin are regarded by

many as members of a geographic system having similar or common

social, economic, and cultural backgrounds. This, as was dis-

cussed in the introduction, is a gross exageration. The region

is a massive heterogeneous co llection of different cultural and

social life-styles, and is also characterized by a fundamental

inequity of economic development.

273

The tropical characteristics of this region, its physical

framework, its dependence on activities around the same marine

natural system, and many other common environmental factors, have

made of the Caribbean an area where the principles for inventorying

scientific information and their practical application are essen-

tially the same. Common needs exist,-but unfortunately divergent

territorial attitudes for their solution have rarely found a common

Caribbean interest, so as-to effectively promote the necessary

technical exchange and cooperation.

Up to-the present, most of the technical exchange of ideas,

assistance and publications between Puerto Rico and the countries
of the Caribbean has been madethrough rather localized if not

fully person-to-person relationships. Very little official atten-

'Outside the..
tion is given to regional professional meetings.

immediate interest ofindividuals, very little is done to sponsor

the holding of regional meetings or to generate interest for them.

Puerto Rico's interest has'been lagging behind what it was, in-

..stead.of'increasing.

Marine-oriented research carried out by Puerto Rico and

other Caribbean countries must be shared for the communal benefit

of all the people living in this semi-closed oceanic basin. Unless

conferences, seminars and other technically oriented meetings are

sponsored by the governamental instrumentalities and professional

organizations of these countries, the information gathered through

costly and painful research, will seldom reach those national or

274

international public and private sectors capable of their practical

application. Thus,a wealth of good information rarely receives a

practical trial due to the lack of well-established communicating

media.

,Improving the.relations of Puerto Rico with other Caribbean

countries in the area of-marine affairs is a necessary preliminary

step.towards.promoting the active cooperation-of the island in'

regional affairs. Already.existing institutions can be of great

help in this direction. In this respect'the North-South Center is

well-equipped to act as a coordinating institution for any regional,

effort'a.,imed-at technical. and cultural interchange in marine,

affairs. (See Appendix -.A, charter of North-South.Center.).:@

Furthertore, the North-South [email protected] should promote,

and help to otganiZe regional meetings for professional groups and

societies interested in' marine aff*airs. For example, a series.of

confere=e's sponsored by the.Center can discuss in a system .atic.

fashion topics such as: marine.archeology, coastal and marine

geology.,,coastal and marine living resources,, etc. Professional

meetings of this.nature mi ght also lead towards agreement for the

establishment of-regional mechanisms to deal, on a regular and

professional basis, with-problems of common concern.

Recommendation

The North-South Center should be instructed by tl@e State
'Department to undertake immediatelytechnical exchange and the

275

organization of conference on marine-related affairs.

The Subcommittee is quite conscious of the fact that this

mandate - in addition to human resources requires considerable

financial resources.

Recommendation

The North-South Center should be funded adequate-ly t6 carry

out its mandate effectively and efficiently; in addition, North-

South Center should be assisted in the search for additional local,

Federa 1 and Internation al sources of funding for the.activities

requiring expenditure beyond its--,enlarged budget assignations for

such purposes..

Publications

A-s pointed out previously,, this. Subcommittee.strongly believes

that cooperation among Caribbean countries can best succeed through

the development of informal and functional relationships. Thus,
we feel that the.Government of Puerto Rico should sponsor the

printing of certain publications which would facilitate the

exchange of technical marine-related in formation among Caribbean

countries.

Recommendation

The Government of Puerto Rico should sponsor through the

North-South Center: (1) An annual publication that could be

_276-

called "Status of Marine Research in the Caribbean"; (2) The

publication of an annual "Bibliography of ITechnological Publica-

tions" that would deal with the scientific and technological

efforts of the Caribbean.

Information Clearing House

A recurrent problem inthe contemporary.Caribbean arises

from the exponential increase in the information available on any

given topic. Poor utilization.of this information leads to

incertitude in the establishment of priorities,.redundant research,

and general failure.to employ successful exploitation tec hniques

developed in other. areas.

Utilization of,information,.,resources.-invo-lves two facet.s:
compilation and dissemination. Puerto Rico is already,rich in

information repositories forthe compilation and accumulation

of.information.on a variety of subjects. Many of these reposito-

ries (North-South Center, U. of Puerto Rico, Interamerican U.)

have extant active t.ies*throughout.the Caribbean area. Some'of

the professional organizations and agencies active in this line

are listed in Appendix'B.

Adequate compilation facilities currently exist, but there

remains still an obvious yet solvable problem in effecting the

flow of information on a variety of topics throughout the Carib-

bean. (See.also "Ocean Resources Data Bank", report of the Sub-

.committee on Research and Development.)

277

The problem of information flow should be approached by the

formation of an "Information Clearing House" whose primary mission.

is the dissemination of information regarding:

1. Scientific Research pertinent to the Caribbean Basin.

2. Information affecting the flow of people and goods

throughout the Caribbean Basin, including up-to-date

information on tourism, shipping, and commerce.
'3.' Information on cultural, educational, and tedhno logical

exchange opportunities that exist throughout the Carib-

bean Basin.

4. Promotion of rational marine resource'development

throughout the Caribbean Basin.through providing and

stimulating international. ventures involving optimal

use ofthe environment, coupled with sound. economic

and cultural considerations.

The above-mentioned.goals of the, "1nformation Clearing House"

can be accomplished throu h immediate initiation of actions to co-
g
ordinate -and catalogue the' information resources of.both Puerto

Rico and Countries surrounding the Caribbean Basin. It is suggested

that this be accomplished through the awarding of 5 graduate fellow-

ships to be given to students of both Puerto Rican and,Caribbean

origin. The work to be accomplished by these students should be

directed by a committee composed of the U.P.R., the North-South

Center, and Institute of Social Technology and should result in a

comprehensive catalogueing of the information resources of and

278

relevant to, the Caribbean Basin. The students should be from

varied disciplines to insure completeness of the effort.

The sec ond phase of the Clearing House can begin concurrently

with the first and should consist of the active development of a

.network of information exc hange. Wherever possible exchange should

involve electronic means of transmission but it is realized that

this is dependent on the sPm Iewhat inadequatecommunication network'

.that exists within the Caribbean at present.

Although this network.is to be initiated in Puerto Rico, it

should be truly international in both staff and.use. -It is sug-

gested,that the priorities for establishment be as follows:

1.., Locate an institutional base for the.-Clearing House.

operation.

@2. Establish an organizational board from a variety of

disciplines to establish international ties and to

supply direction to the program.

3. Establish regional centers.throughout the Caribbean

primarily through already extant libraries and

academic facilities.

4. As new electronic facilities become available, computer-

ization of the Information Cl'earing-House:should be

undertaken.

Fiscal support for the Clearing House in its first year

should not be less than $50,000 and should be expended for graduate

student support, salary for a primary advisor, and travel within

279

the Caribbean Basin in order to initiate information exchange.

Subsequent funding is somewhat dependent.on the availability of

electronic communications media but should probably,be in excess

of $250,000 for the first 3 years. Partial support should develop

from subscriptions to various aspects (business, travel, commerce)
of the information service by commerclal enterprises, as those

serviceswbecome available.

This Information Clearing House would serve to promote and

foster Caribbean unity through its emphasis on the mutual benefits

-obtainable throug h cooperative efforts at all levels.

Recommendation

The Government of-Puerto Rico should provide adequate

funding for the establishment of an Information Clearing House

for Caribbean-related data and information as per theabove-

mentioned concepts

280

REFERENCES

LOWENTHAL, DAVID

1972. West Indian Societies, Oxford University Press, pp.88

DEMAS, W. G.

1965..- The Economics ofbevelopment in Small Countries with
Special Reference to the Caribbean, McGill University
Press, pp. 95 ff; and

ANPIC, F. M. and MATTHEWS, T..G. (Editors)

Politics and Economies in the Caribbeani.In.stitute of@
Caribbean Studies-1 University of Puerto Rico, pp. 11-15

MCINTYRE, A.

October
1965. Aspects of Development and Trade in the Commonwealth
Caribbean, Economic Bulletin for Latin America, pp. 127 ff.
and

ANDIC, F. and GUTItRREZ

July
1966. Intra-Caribbean Economic Trade Patterns, Caribbean
Studies, pp. 46 ff; and

DEMAS, WILLIAM

July 5,
1970. Coverage in the Trinidad Express

281

APPENDIX A

Articles 4, 5 and 6 of Puerto Rico Law 92 (June 24, 1971)41

which created the North-South Center.

Article 4

.It. is the intent of the Government of the Commonwealth of

Puerto Rico that the Center carry out the following objectives:

1. Carry on exchange programs of an educational, research

or cultural nature for North, Central and South America

and the Caribbean.

2. Contribute to the development of the capability of the

peoples of North, Central and South America and the

Caribbean to deal with present and future problems in

all fields of economict social and cultural growth by

orienting the programs of the Center toward problem

areas.

3. Develop multicultural perspectives by means of educa-

tional, research and training programs.

4. Foster greater interaction "-.tween the different cultures,

disciplines, professions al. @)ccupations in the Americas.

5. Improve the standard of living and individual develop-

ment of the inhabitants of the Americas.

282

6. Improve relations between the peoples of the Americas

in all fields of human activity.

7. Maintain a continuing exchange among the ex-participants

in the programs of the Center.

Article 5

The Center shall exercise'all the rights and powers that are

necessary or convenient to carry out the purposes of this act, in-

cluding, but not limited to, the following:

'l. To carry out surveys and research in the fields,of econ-..

pmic, technical, social,.cult
ural,, or any other kind of

cooperation.

2. To administer programs aimed at achieving a greater ex-

change of persons and ideas among the countries of North,

South and Central America and the Caribbean, including,,

but not limited to, developing local scholarship pro-

grams, and to administer scholarship programs of the

Government of the United States, its agencies, terri-

tories, possessions or political subdivisions and of

the states of the Union or of foreign countries or inter-

national or regional organizations.

283

@3. To carry on conferences, seminars, study groups and to

promote the use of other educational techniques to stim-

ulate constructive dialogue among participants in ex-

change programs.

4. To enter into contracts for services or of-any other

nature, and to utilize any other instruments which are

necessary or convenient to the exercise-of its,powers.-
5. To.offer technical or' specialized services to govern-

ments and persons, or public or private entities, local
or'foreign, -and' to request such services from said

.,governments, or entities.

6. Toldetermine, fix,. alter, levy and collect rents., tariffs,

fees and other charges for the rendition of-services,

use of properties or facilities, or for goods sold, lent

or supplied and make exemptions from payment for all or

part of the same.

7. To accept funds or economic aid of any kind from any

natural or juridical person or political entity, private

or governmental, operating or functioning locally or..

internationally, or in.the United States of America, and

-to agree with said persons or entities on the use of

said funds.

284

8. To adopt, amend or repeal,' with the approval of the

Secretary of State, and in accordance with the provi-

sions of Law 112 of June 30, 1957,. rules and regulations

regarding its internal functioning and its-exercise of

powers granted it and the duties imposed on it by this

law.

'9. To undertake all.those incidental acts which are neces-

sary or desirable for. carrying out the powers granted it

by this law or any other law in force in Puerto Rico.

285

APPENDIX B

PARTIAL LIST OF AGENCIES AND PROFESSIONAL ORGANIZATIONS
THAT HAVE TIES THROUGHOUT THE CARIBBEAN AREA

A. Puerto Rico Government Agencies

1. Economic Developmen tAdministration

2. Department. of Public Works Natural Resources

3. Environmental Quality Board

4. Puerto Rico Planning Board

..5. Department of Health

6. Aqueduct and Sewers.Authority

7. Water-Resources Authority

8. Highways Authority

9. Department of Transportation

10. Public Service Commission

11. Bureau of Tourism

12. Puerto Rico Nuclear Center

13. University of Puerto Rico

14. North-South Center

15. Puerto Rico Mining Commission

16. Department of Commerce

17. Compaftia de Desarrollo Comercial

286

B. U. S. Government Agencies

1. U. S. Geological Survey

2. U. S. Corps of Engineers

3. National oceanographic and Atmospheric Administration

4. U. S.. Postal Service

.5. U. S. Soil Conservation Service

6. tJ. S. Bureau of Mines

T. U. S'. Environmental Protection Agency

8. U. S. Atomic Energy Commission

9. U. S. Bureau of.Publid'Roads

10. Institute of Tropical Florestry.(U..S.D.A)

C. Private Organizations

1. Institutions of Higher Learning

a. University College of the.Sacred Heart

b. -Puerto Rico Junior College

c.- Inter-American Univer sity

d. World University

e. Catholic University, Ponce

f. Bayamon University

287

2. Academies

a. Puerto Rico Language Academy

b. Puerto Rico Hispanic Academy

c. Puerto Rican Academy of Arts and Sci ences

d. Society of Puerto Rican Authors

e. Society of Puerto Rican.Editors

f. Institute of Puerto Rican Culture

9- Atheneum of Puerto Rico

h. Puerto Rican-Historical Society

Puerto Rican S.Ocie.ty of Natural History

Puerto Rican Society of Lexicography

k. Carnegie -institute

3. Professional Associations and Institutions

a., Puerto Rican Medical Association

b. Puerto Rico Industrial As sociation

c. Puerto Rico Bar Association

College of Pharmacists

e. College of Dental Surgeons

f. College of Chemists of Puerto Rico

g. College of Engineers, A rchitects and Surveyors

h. Puerto Rico Farm Bureau

288

i. Supreme Council of Associations of Puerto Rico

j. Geological Society of Puerto Rico

k. Chamberof Commerce

1. Caribbean Conservation Association

D. Quasi-Governmental Institutions

1. Institute for Social Technology-

2. Puerto Rico International Underwater Laboratories

289

COMMITTEE MEMBERS.

Parent Committee

Chairman: William S. Beller Gordon K. Lewis, Professor,
Chief, Ocean Islands Programs 'Social Sciences
U.S. Environmental Protection University of Puerto Rico
Agency
A. Matos
Rafael Alonso Alonso Executive Director
Associate Professor Environmental Quality Board
'School of Public Administration
University of Puerto Rico Jaro Mayda, Professor,
Law School
Roberto Bouret, Executive Director, University of Puerto Rico
Puerto Rico Hotel Association
Jack Noble
Miguel A. Casellas, Jr. Special Advisor
Insurance Broker Environmental Quality Board
William Munch, Inc.
Rafael PiC6
Mdximo Cerame-Vivas, Director, Vice Chairman of the Board
Department of Marine Sciences Banco Popular de Puerto Rico
University of Puerto Rico
Milton F. Rua, Attorney,
Amador Cobas, President'. Rivera Cestero, Rivera Zayas,
University of Puerto Rico R@ia

Juan M. Garcla Passalacqua Victor Sdnchez, Coordinator,
Vice President Environmental Affairs
Puerto Rico Junior College University of Puerto Rico

Thomas Q. Haydon Lloyd E. Slater, Director,
Acting Executive Director Institute of Social Technology
North-Sou.th Center
Jose' J. villamil
Lawrence W. Hill, Project Leader, Associate Professor
Institute of Tropical Forestry School of Planning
U.S. Department of Agriculture University of Puerto Rico

Rudolph R. Kauffmann, Special Frank Wadsworth, Director,
Assistant to the Administrator Institute of Tropical Forestry
Economic Development Administration U.S. Department of Agriculture

290

Subcommittee on Living Resources

Chairman: Frank H. Wadsworth Salvador Perez-Mayol
Director Attorney
Institute of Tropical Forestry
U.S. Department of Agriculture Jose' M. Soto Garcia
Professional Fisherman
Vice Chairman: Lawrence W. Hill
Project Leader Frank Torres, Director
Institute of Tropical Forestry Bureau of Oceanography
U.S. Department of Agriculture Area of Natural.Resources
Department of.Public Works
William Brown, Director,
..Environmental.Plannang
..Palmas del Mar Corporation
Subcommittee on Recreation
Jos6 del Castillo, Director,
Department of Pharmacology
School of Medical Sciences Chairman: Roberto Bouret
University of Puerto Rico Executive Director
Puerto Rico Hotel Association
Ricardo Cotte.
Game Management Agent Vice Chairman:
U.S. Department of Interior Miguel A. Casellas, Jr.
Insurance Broker
Rolf Juhl, Director, William Munch, Inc.
Office of Conservation of
Fisheries and Wildlife Ralph'G. Christiansen
Department of Agriculture of P.R. President
R. Santaella Distributors
Pedro F. Mora, Director,
Planning Area Miguel Ferrer, Architect,
Aqueduct and Sewer Authority Toro & Ferrer

Kay Ochs, Director., Carlos Gual, Jr.
Scientific Advisory Group President
-..Envi ronmental Quality Board Nauticenter, Inc.

Francisco Pagdn Font Garry Hoyt
Associate Director Senior Vice President
Department of Marine Sciences Young & Rubican Inc.
University of Puerto Rico

291

Gregory Korwek, Director, Lewis Smith, Director,
aribbean School of Aquatics Industrial Development,
Hotel La Concha Economic and Planning Dept.
C

Economic Development
Administration

Subcommittee on John F. Tomlinson, President,
Coastal Zone Management Caribbean Properties Limited

John J. Whelan, Architect
Chairman:. Milton-F. Rfia
Attorney Donald Washington, Director,
Rivera Cestero, Rivera Zayas, Rl@a Field Office of P.R. & V.I.
U.S..Environmental Protection
Vice Chairman: Jack Noble Agency
Special.Advisor
Environmental Quality Board

Annette,.Biscombe de.Ramirez de. Subcommittee on
Arellano, Planner, Research and'Development
Puerto'Rico Regional Medical Program
.,Medical Sciences Campus
University of.Puerto Rico Chairman:' Amador Cobas
President
Maggie Bobb, Journalistl University of Puerto Rico
Environmental Reporter
"El Mundo" Vice Chairman: Victor Sgnchez
Coordinator Environmental
Salvador Casellas, Attorney, Affairs
Fiddler, Gonzalez & Rodriguez University of Puerto Rico

Bruce K. Gilbert, Assistant Chief, Jaime V. Biaggi, Vice President,
Caribbean District Marine Resources Development
U.S. Geological Survey Foundation

Carlos M. Jimenez, Supervisor, Russell W. Davis
Environmental Department Research Associate
Puerto Rico Water Resources Authority Radioecology Division
Puerto Rico Nuclear Center
Jack Katz, Vice President,
San Juan Hotel Corporation Miguel Echenique, Director,
Area of Economic and Social
Boris L. Oxman, Consultant, Planning
Bureau of Master Plans Puerto Rico Planning Board
Puerto Rico Planning Board

292

Pedro A. Gelabert Vice Chairman: Jose' J. Villamil
Executive Secretary Associate Professor
Mining Commission School of Planning
University of Puerto Rico
Elias S. Guti6rrez, Asst. Professor,
School of Planning Frank Becerra
University of Puerto Rico Management Consultant
E. de Jesus & Associates
Gerardo E. Maldonado, Director,
Research and Development Department Carlos A. Diago
Economic-Development Administration Sub-Director
Tourism Development Company
Peter E. Martinez, Directori
Banco Economias Amadeo I.D. Francis
Executive Director
Hermenegildo Ortiz, Assoc. Professor, -P.R. Manufacturers Association
School of Planning
University of Puerto Rico Luis Neg.r6h Garcia, Associate
Professor, Law'School
Maria Antonia Ruiz, Director, University of Puerto Rico
Natural Sciences Program
Department of Education Armando Gonzalez Cabdn
Specialist in Natural Resources
Frank Torres., Director, Environmental Quality Board
Oceanographic Program
Area of Natural Resources Federico R. Hernandez Denton
Department of Public Works Director
Consumer Research Institute
Alfredo Torruella, Assoc. Professor, 'University of Puerto Rico
Physics Department
University of Puerto Rico Bienvenido Mejias
Sub Director
Edgar Werner, Director, Bureau of Master Plans
Ocean Resource - Utilization Puerto Rico Planning Board
Program
Inter American University Hir'am Nazario
Assistant to the Chancellor
University of Puerto Rico

Subcommittee on Manuel Salavarria, Director,
Institutional Arrangements Governmental Management Division
Bureau of the Budget

Chairman: Rafael Alonso Alonso Andr6s Salas Soler,' Director,
Associate Professor Public Service Commission
School of Public Administration
University of Puerto Rico

293

Subcommittee on Role of
Puerto Rico in the Caribbean Area

Chairman: Thomas Q. Haydon Gordon K. Lewis, Professor,
Acting Executive Director Political Science
North-South Center University of Puerto Rico

Vice Chairman: Rudolph R.-Kauffmann Manuel Morales Jr.
Special Assistant to the Administrator Special Assistant to the
Economic Development Administration Admini 'strator
Economic Development Adm.-
Eduardo Aguilar
Engineering Geologist David A. Olsen, Consultant,
Environmental Quality Board Puerto Rico International
Underwater Laboratory
Fuat Andic
Director, Department of Economics. Manuel L. Porrata,'Consultant,
University of Puerto Rico Economic Development Adm.

Eduardo Baraflano, Director,
Office of Planning and Development
University of Puerto Rico

Gilberto R. Cabreral Professor,
Economics
University of Puerto Rico Summer Interns

Ralph Carrio'n'
International Banking IAlfre.do BirdCanals', Carmen E.
Banco Popular de Puerto Rico Garcia de Cabdn, Ramon Luis
Lugo, Alida Ortiz., Edgardo
Roberto Cassagnol, Consultant, Ortiz, Josefina Santos, H6ctor
Mining Commission Totti and Jose Juan Vicens

Al Dinhofer, President,
Caribbean World Communications

Ram6n Gelabert
Civil Engineer

Donald J. Kevane, Partner,
Arthur Andersen and Company

294

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