Fagatele Bay Natl. Marine Sanctuary

Case Authors

Dave Gershman, Julia Wondolleck and Steven Yaffee, University of Michigan

Summary

Fagatele Bay National Marine Sanctuary (FBNMS) was established in 1986 to protect a pristine tropical coral reef ecosystem contained within a flooded, extinct volcanic crater in American Samoa.

FBNMS staff facilitate scientific studies, lead public education efforts to improve environmental stewardship, and assist in the coordination of territorial and federal resource protection actions.

At less than a square kilometer in size, FBNMS is the smallest of the United State’s marine sanctuaries, but is considered the only true tropical coral reef in the program. The FBNMS designation restricts fishing and prohibits harmful actions such as the removal of coral and anchoring on the reef.

A successful outreach effort aligned western-style management with traditional Samoan customs. Villagers assisted in setting sanctuary boundaries and priorities. However, public awareness has suffered and enforcement of regulatory compliance has been complicated by FBNMS’s remote location.

In 2008, FBNMS began reviewing its management plan for the first time in 20 years. Federal officials are examining education, enforcement and outreach efforts and whether to expand the boundary of FBNMS into off-shore waters or neighboring coral reefs.

MEBM Attributes

Balance/Integration: Priority setting through involvement of local villagers.
Collaboration: Partnerships with territorial and federal agencies.
Scale: Education programs focus on ecosystem-wide understanding.

Mission and Primary Objectives

Mission

The mission of the Fagatele Bay National Marine Sanctuary, as specified in the Federal Register, is to protect a unique deepwater terrace formation and a coral reef ecosystem representative of the warm water tropical Pacific Islands in its natural state, and to regulate uses within the sanctuary to ensure health and integrity of the resource.

Objectives

The management plan includes the following objectives:

To protect the bay’s natural resources and pristine character.
Create and enhance public awareness and understanding of the need to protect marine resources.
Expand scientific examination of marine ecosystems associated with the high islands found in the Pacific, especially coral reefs that have been infested by the crown-of-thorns starfish, and apply scientific knowledge to the development of improved resource management techniques.
To allow uses of the sanctuary that are compatible with prior goals, giving the highest priority to subsistence and public recreational uses.

Key Parties

Lead Organizations

Government of American Samoa
National Oceanic and Atmospheric Administration

Key Parties

American Samoa Community College
American Samoa Environmental Protection Agency
American Samoa’s Coral Reef Advisory Group
U.S. Coral Reef Initiative

Program Structure

Fagatele Bay National Marine Sanctuary (FBNMS) is co-administered by the National Oceanic and Atmospheric Administration and the American Samoa Department of Commerce.

Administration and Enforcement

FBNMS superintendent and staff are based in Pago, Pago, across Tutuila Island from FBNMS. Enforcement of sanctuary regulations is conducted through an agreement with the American Samoa’s Department of Marine and Wildlife Resources.

Sanctuary Advisory Council

The Sanctuary Advisory Council (SAC) provides advice to the sanctuary manager and serves as a forum for identifying community concerns and reaching consensus. The SAC has 11 voting members and four ex-officio members who represent a variety of local user groups, geographic communities, and federal and territorial agencies.

Partnerships

Broader management initiatives are steered by American Samoa’s Coral Reef Advisory Group, an interagency task force established to provide the government of American Samoa with advice, guidance and project management regarding coral reef issues.

Motivations for Initiating Effort

FagateleBay was established as a National Marine Sanctuary following a request of the governor of American Samoa in 1982. At the time, the coral reef was recovering from a highly destructive outbreak of the crown-of-thorns starfish, which destroyed more than 90 percent of the living corals in the bay during 1978 and 1979. The outbreak focused attention on the health of the ecosystem. Noting the scientific monitoring and discovery components of the National Marine Sanctuary, the governor sought the designation partly to understand and prevent another outbreak of the starfish infestation.

Ecosystem Characteristics and Threats

The Ecosystem

FagateleBay, located on the southern shore of Tutuila, contains a tropical coral reef ecosystem of remarkable biodiversity and resiliency. The coral reef is extensive. The coral reef ecosystem is considered to be relatively pristine, compared to others in the region. During the lowest tides, a portion of the reef is exposed and waves break on the crest of the reef.

The ecosystem supports at least 1,400 species of algae and invertebrates, more than 200 species of living coral, more than 270 species of fish, and many species of birds that live along the adjacent beaches and trees. Several species of dolphins can be found in the bay. Humpback and sperm whales, which are endangered, pass through the off-shore waters. Other endangered or threatened species include the hawksbill, leatherback and green sea turtles.

Threats

Because of the bay’s location, direct human impacts are relatively few. Bordering the bay is a steep ring of ridges, rising 120 meters in places, with vertical cliffs and steep slopes. Access from land is difficult, and the land around the bay is privately owned. A trail runs along the ridge. Charter boats also are available. The number of visitors to the bay, however, is not precisely known.

At the time of the marine sanctuary’s designation, concerns were raised about damage to the reef and ecosystem from commercial and subsistence fishermen using harmful practices. Poison spears were used. Dynamite also was used, reducing some portions of the coral reef to rubble. Illegal fishing and poaching continues, however.

A municipal landfill for the island is less than 1.5 kilometers away and there exists the potential for contaminated groundwater to enter Fagatele Bay.

Other threats stem from coral bleaching disease due to elevated water temperatures, cyclones that destroy portions of the reef structure, and other natural disturbances, including outbreaks of the crown-of-thorns starfish, which prey on coral.

Despite serious cyclones that disturbed the coral reef in 2004 and 2005, the reef is currently in a state of recovery, and has exhibited a remarkable resiliency from human and natural-induced disturbances, making it an ideal location for scientific studies.

Water quality in the bay remains generally sound, with low levels of nutrients. Concerns have been raised about the island’s rapid population growth and the clearing of land for agriculture, which could threaten the bay in the future through the run-off of sediment and water loaded with pesticides and nutrients.

Major Strategies

Regulatory

Designation of Fagatele Bay National Marine Sanctuary (FBNMS) promulgated certain restrictions to protect its marine resources. The bay was divided into two zones with respect to fishing. The inner bay, as defined from the high-water mark to a line between Fagatele Point and Matautuloa Point, includes a ban on fishing. The outer bay permits fishing with fishing poles and lines. Disturbing or removing any invertebrate, plant, marine mammal, bird or turtle is prohibited. Anchoring on the reef is prohibited. Removing or damaging coral on the reef also is prohibited.

Education

FBNMS has held on- and off-site activities geared for elementary and high school students, as well as the public, to learn about the ecosystem and improve stewardship of the resource. Working with the Coral Reef Advisory Group, FBNMS staff visit schools and provide grants to teachers for materials and supplies necessary for coral reef lessons and projects. Marine education brochures and a monthly newspaper article in English and Samoan are produced.

Monitoring, Assessment and Evaluation

Because of its remote location and relatively minimal human impacts, the ecosystem in Fagetele Bay National Marine Sanctuary (FBNMS) has been part of a study to obtain baseline information to compare to other sampling sites. Information on coral cover, fish populations and water quality has been gathered.

FBNMS plans to use the data to assist in the revision of its management plan. The process began in 2008. In preparation, a Condition Report assessing the health of the ecosystem and stressors was produced in 2007, followed by a socio-economic survey published in 2009.

Accomplishments/Impact

Legal Framework

Until the designation of the Fagatele Bay National Marine Sanctuary (FBNMS), the area lacked legal protections to guard the coral reefs from injury to due to direct human contact, and a single legal authority to act as a representative for the health of the area’s ecosystem before territorial and federal agencies.

Priority Setting

After more than 20 years of management, FBNMS is updating its management plan for the first time. As part of the process, it produced detailed information on the health of the sanctuary and the attitudes of the populace. The reports show areas in which new management attention needs to be prioritized.

According to the socio-economic survey of nearby villagers, only one in five indicated they were aware of any restrictions in Fagatele Bay. One in nine villagers surveyed reported fishing in Fagatele Bay within the previous five years. Survey results show illegal fishing, including the use of destructive methods, continues to be practiced along the reef within the sanctuary. The 2007 Condition Report found an absence of large predator fish along the reef, presumably from fishing.

Anchor damage from boats has been observed on the reef, though two anchor buoys were installed in the sanctuary in 2006. Their addition had been outlined in the management plan of 1986.

Village Partnerships

FBNMS is attempting to strengthen its partnerships with nearby villages. Support from residents is crucial in a remote environment in which regulatory enforcement is difficult to conduct. A nature trail opened in 2007 that increased the accessibility of FBNMS by foot. The trail was a partnership among FBNMS and the Taputimu, Futigu and Vaitogi villages. Signage discussing the area’s geology, ecology, and cultural heritage was planned. Like the anchor buoys, the trail had been outlined in the management plan of 1986.

Website Links

Fagatele Bay National Marine Sanctuary: http://fagatelebay.noaa.gov/welcome.html