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Society & Natural Resources
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Is Capacity Building Important in Policy Development for Sustainability?
A Case Study Using Action Plans for Sustainable Marine Protected Areas
in Belize
M. James C. Crabbe a; Edwin Martinez b; Christina Garcia c; Juan Chub d; Leonardo Castro e; Jason Guy
f
a Luton Institute for Research in the Applied Natural Sciences, Faculty of Creative Arts, Technologies
and Science, University of Bedfordshire, Luton, United Kingdom b Belize Regional Initiative,
Earthwatch Institute, Joe Taylor Creek Bridge, Punta Gorda Town, Belize c Toledo Association for
Sustainable Tourism and Empowerment (TASTE), Punta Gorda Town, Toledo, Belize d Toledo Institute
for Development and Environment (TIDE), Punta Gorda Town, Toledo, Belize e Friends of Nature,
Belize, Village of Placencia, Stann Creek District, Belize f Belize Department of Fisheries, Belize City,
Belize
Online publication date: 07 January 2010
To cite this Article Crabbe, M. James C., Martinez, Edwin, Garcia, Christina, Chub, Juan, Castro, Leonardo and Guy,
Jason(2010) 'Is Capacity Building Important in Policy Development for Sustainability? A Case Study Using Action Plans
for Sustainable Marine Protected Areas in Belize', Society & Natural Resources, 23: 2, 181 — 190
To link to this Article: DOI: 10.1080/08941920802409593
URL: http://dx.doi.org/10.1080/08941920802409593
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Insights and Applications
Is Capacity Building Important in Policy Development
for Sustainability? A Case Study Using Action Plans
for Sustainable Marine Protected Areas in Belize
M. JAMES C. CRABBE
Luton Institute for Research in the Applied Natural Sciences, Faculty
of Creative Arts, Technologies and Science, University of Bedfordshire,
Luton, United Kingdom
EDWIN MARTINEZ
Belize Regional Initiative, Earthwatch Institute, Joe Taylor Creek Bridge,
Punta Gorda Town, Belize
CHRISTINA GARCIA
Toledo Association for Sustainable Tourism and Empowerment (TASTE),
Punta Gorda Town, Toledo, Belize
JUAN CHUB
Toledo Institute for Development and Environment (TIDE), Punta Gorda
Town, Toledo, Belize
LEONARDO CASTRO
Friends of Nature, Belize, Village of Placencia, Stann Creek District, Belize
JASON GUY
Belize Department of Fisheries, Belize City, Belize
Received 15 January 2008; accepted 28 May 2008.
We thank the Earthwatch Institute and the Oak Foundation (USA) for funding, and
Burton Shank (Conservation International) for essential help with the GPS coordinates. We
also thank Charley Hitchcock and Dennis and Sandra Garbutt for their vital organizational
support during the project, and the anonymous referees for improvements to the article.
Address correspondence to M. James C. Crabbe, Luton Institute for Research in the
Applied Natural Sciences, Faculty of Creative Arts, Technologies and Science, University
of Bedfordshire, Park Square, Luton, LU1 3JU, United Kingdom. E-mail: james.crabbe@
beds.ac.uk
Society and Natural Resources, 23:181–190
Copyright #2010 Taylor & Francis Group, LLC
ISSN: 0894-1920 print=1521-0723 online
DOI: 10.1080/08941920802409593
181
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We undertook a capacity-building exercise around marine protected areas
(MPAs) that involved both local nongovernmental organization (NGO) com-
munity workers and a government fisheries officer, so that community
engagement could be directly interfaced with fisheries operations and policy.
Targeting a government worker is a relatively new approach. Our methodol-
ogy used a modified nominal group technique and Delphi technique to
develop personal action plans to facilitate the future of sustainable MPAs
in the MesoAmerican Barrier Reef system. The involvement of a fisheries
officer resulted in direct transfer of information from the communities to
the government department. The personal action plans involve improvements
to organization and management, education, support, and policy development.
In addition, three NGOs, TASTE (Toledo Association for Sustainable Tourism
and Empowerment), TIDE (Toledo Institute for Development and Environ-
ment), and Friends of Nature, have been incorporated into a single self-
governing organization that spans four MPAs in southern Belize. This is
a significant advance, allowing areas that were subject to illegal fishing to
be monitored and policed.
Keywords coral, fisheries, hurricanes, ICZM, MesoAmerican Barrier Reef,
NGOs, policy development, reef management
Capacity building, the enhancement of the skills of people and the capacity of
institutions in resources management through education and training (Wescott
2002), implying a sharing of knowledge and a partnership of trust, is a tool that
has received much exposure. Capacity building by engagement has been used in
many communities where there are inherent and long-standing challenges to sus-
tainability (Wescott 2002; Crabbe 2006), for example, in marine protected areas
(MPAs) (Chircop 1998), indigenous community-based conservation (Tai 2007;
Mutandwa and Gadzirayi 2007), waste management (Agamuthu and Hansen
2007), and community health (Raeburn et al. 2006). In this article we refer to
sustainability in terms of the reef, the reef inhabitants, and the MPAs, while
sustainable development refers to the stakeholder groups and to the partici-
pants. Capacity-building programs have been used in the developed world as
well as in developing countries (Kaplan et al. 2006; Rogers et al. 2007). While
many, if not all, capacity-building programs involve building competencies and
empowerment in local communities, few involve policymakers or government
officials (Mequanent and Taylor 2007). We therefore undertook a
capacity-building exercise around MPAs that involved both local nongovern-
mental organization (NGO) community workers and a government fisheries
officer, so that community engagement could be directly interfaced with fisheries
operations and policy. Our methodology involved the development of personal
action plans to facilitate the future of sustainable MPAs in the MesoAmerican
Barrier Reef system. We used this methodology to personally engage the capa-
city-building team with the outcomes. Our approach meant that each individual
produced plans that reflected not only the individual’s own priorities, but were
tailored to that person’s own abilities. Team discussion meant that personal
plans were interlaced throughout the group, so that the whole became greater
than the sum of the parts. Individuals then implemented their action plans with
the communities that they represented.
182 M. J. C. Crabbe et al.
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Aims and Objectives
The key aims and objectives of the capacity building exercise were:
1. To increase the Belizean participants’ capacity to lead, educate and support issues
regarding sustainable development in southern Belize.
2. To promote networking throughout organizations managing marine resources,
enhancing their power to collectively influence policy decisions in southern
Belize.
Field Methodology
Supported by the Earthwatch Institute and the Oak Foundation in the United
States, we undertook the capacity-building exercise with respect to two MPAs in
southern Belize. Belize is a Central American country with a size of 8,867 square
miles and a population of about 275,000, and is bordered to the north by Mexico,
to the south and west by Guatemala, and to the east by the Caribbean Sea. Belize
claims over 200 cayes (islands), many of which are inhabited.
There are two major coral reef areas in southern Belize: the Sapodilla Cayes
Marine Reserve (SCMR, a World Heritage Site), and the Port Honduras Marine
Reserve (PHMR) (Figure 1). The SCMR is a 125-km
2
reserve and has had a colla-
borative agreement with the Belize Fisheries Department and the Toledo Association
for Sustainable Tourism and Empowerment (TASTE) to manage the area since its
declaration in 1996. The PHMR is a 414-km
2
reserve and has been managed by
the Toledo Institute for Development and Environment (TIDE) since its declaration
in January 2000.
The capacity-building team consisted of one officer from the Belize Fisheries
Department, three senior officers from NGOs involved in managing Belize MPAs
(TIDE, TASTE, and Friends of Nature), and a facilitator from the United
Kingdom. These individuals were chosen because they had direct contact with both
NGOs and community-based organizations (CBOs) and the government fisheries
department, thus maximizing exposure of capacity building while keeping the
numbers of participants within workable limits. This capacity building exercise
was linked with scientific underpinning of coral reef monitoring, which resulted in
the finding that hurricanes and tropical storms limited the recruitment of massive
corals, with consequent implications for reef mangers (Crabbe et al. 2008). Daily
meetings lasting between 1 and 2 hours took place on Lime Caye in the SCMR,
on Abalone Caye in the PHMR, and in Punta Gorda Town, over a 10-day period
in August 2007. Discussions, led by the facilitator, employed a modified nominal
group technique (Sample 1984) to identify priorities related to personal action plans.
Four rounds were employed; round one was based on the Delphi technique, and
further rounds were based on the nominal group technique approach (McCance
et al. 2007). Specifically, after initial meetings that revolved around frank discussions
on the interface been the Fisheries Department and MPA management by NGOs,
each participant developed a personal action plan to facilitate and improve the
sustainability of the MPAs in southern Belize. There was repeated iteration of
these plans between the participants, and the final production of a policy for sustain-
able management of both the marine reserves in the Sapodilla Cayes and in Port
Honduras.
Capacity Building in Belize 183
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Figure 1. Coral reef marine reserves in southern Belize. The Sapodilla Cayes Marine Reserve (SCMR), in dark gray shading to the left of the figure,
comprises the southern end of the MesoAmerican Barrier Reef, and includes Seal Cay, Frank’s Cay, Nicholas Cay, Hunting Cay, and Lime Cay.
The Port Honduras Marine Reserve (PHMR), in dark gray shading to the right of the figure, is close to the coast near Punta Gorda Town, and includes
Frenchman’s Cay and the Snake Cayes.
184
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Marine Reserves and Management
Sapodilla Cayes Marine Reserve (SCMR)
The SCMR is 39 miles east of Punta Gorda Town. Currently, the Belize Fisheries
Department is responsible for the day-to-day management of the SCMR. However,
the Toledo Association for Sustainable Tourism and Empowerment (TASTE) has a
collaborative co-management agreement with the Belize Fisheries Department to
manage the SCMR. The SCMR is considered a ‘‘paper park’’ due to the fact that
the reserve’s management plan has not been passed into law as yet, and comes under
the Belize Fisheries Act Chapter 210, revised edition (2000). This prohibits commer-
cial fishing and export without a licence, and prohibits use of poison or explosives.
Moreover, zones within the SCMR are still under consultation.
The SCMR has a staff of four: a manager, a biologist, and two park rangers.
Duties currently being performed at the SCMR are basically enforcement of the
Fisheries Regulations and the collection of biophysical data. Current activities
occurring within the reserve include daily patrols and surveillance, entry fee collec-
tion, endorsement of the management, management training for community
researchers, and research and monitoring. Data collected routinely for the Fisheries
Department include coral bleaching, coral resiliency, conch population, water
quality monitoring, lobster surveys, fish surveys, turtle monitoring, lobster post
larva data and lobster biological data, conch surveys, commercial species surveys,
synoptic monitoring program (coral reef health), water quality data collection, catch
and effort data collection, bird surveys, and rainfall.
Port Honduras Marine Reserve (PHMR)
The Port Honduras Marine Reserve (PHMR) is an integral part of what is known as
the Maya Mountain Marine Corridor, which extends from the Maya Mountains to
the barrier reef in the Toledo region of Belize. Current activities for the Fisheries
Department include regular surveillance and patrols, management training for staff
and community members, research and monitoring, and community outreach and
education. Research and monitoring of the biological resources of the Port
Honduras Marine Reserve plays an integral role in evaluating the management effec-
tiveness of the reserve. Ongoing research activities concentrate on target biophysical
indicators, and include monthly water quality assessment, underwater lobster and
conch visual surveys, mangrove and seagrass biomass and composition surveys,
and coral and fish surveys.
Outcomes
The key outcome was a six-month personal=professional action plan developed by
each Belizean participant, outlining how each will personally and professionally
strive to meet the capacity-building objectives just described, and influence policy
development. Specifically, these plans involved:
a. Tactics for leading, educating and supporting issues regarding sustainable devel-
opment in southern Belize.
b. Tactics for collaboration with other stakeholders to collectively influence policy
decisions in southern Belize.
Capacity Building in Belize 185
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Action Plans
All participants felt that amalgamation of southern Belize NGOs—including
TASTE and Friends of Nature—would be advantageous. Specifically, it would:
.Improve management of MPAs (since currently TASTE does not have full
delegated authority over the SCMR).
.Improve enforcement, particularly in areas between reserves during closed season.
.Improve links to increase monitoring of key biomarkers as well as illegal activity
across the three parks.
.Improve administration and operations of the two NGOs by merging their
procedures and staff.
Personal action plans were written by each individual from the representative
groups. Table 1 illustrates a summary action plan of all the participants, with
activities, outcomes and impacts.
Discussion among the participants and facilitator as described in the Field Meth-
odology section resulted in the generation of a series of tactics to be adopted around a
number of themes. These are enumerated next, in the words of the participants.
Organization and Management
Few organization or management initiatives were taking place in the marine
reserves.
Tactic 1. Establish a key leader in the organization=department to effectively man-
age the marine reserves on a day-to-day basis.
Tactic 2. Have a selected key leader provide general terms of reference of what
is expected of staff and immediate=major stakeholders in order to easily
facilitate the process of decision making.
Education
Education is vital—both after a decision has been made and for that decision to be
implemented. Due to the lack of resources, the marine parks had limited forms of
educating stakeholders and buffer communities. Several times vital decisions were
made and only a portion of the key stakeholders were informed. Considering this,
management in the longer term was not felt to be effective, especially in sustainable
development of the communities around the MPAs.
Tactic 1. Financial resources need to be allocated for an education program.
The program should focus on both broad and specific issues that may
create friction among stakeholders in the process.
Tactic 2. A group consisting of community leaders and key=immediate stakeholders
should be established to create ways and methods of educating different
levels of stakeholders in the effectiveness of sustainable development in
the marine parks.
Tactic 3. Surveys need to be conducted to evaluate level of success and failure. Too
often programs have been formed and implemented but end results have
not been evaluated. Surveys should be carried back to stakeholders for a
presentation to establish further steps. Such programs will be continuous,
and members may change from time to time.
186 M. J. C. Crabbe et al.
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Table 1. Summary action plan from the participants
Objective Activity Output Outcome Impact
a. To improve in the
networking among
local and
international
partners.
.Conducting
meetings with
partners and
sharing
information.
.Develop a database
of information that
could be useful
to all.
.Create and improve
relationships among
NGOs, CBOs, and
governmental
agencies.
.Better networking
and assistance from
NGOs that are
more experienced
and successful.
b. To educate people
in the region and to
create awareness
among
stakeholders and
the community.
.Develop and
implement a guide
plan that will enable
the public to learn
more about marine
protected areas and
NGOs.
.Incorporate the
guide plan in
primary and
secondary school
curriculum.
.Establish a good
working
relationship with
universities,
primary schools,
secondary schools,
and community.
.Communities and
schools are aware of
the impact they
have on the
environment and
will be more
engaged in decision
making.
c. To develop a useful
method in
dissemination of
information.
.Produce a quarterly
newspaper
educating the public
and partners about
the current issues
and findings in a
marine park.
.Distributing
research papers
among other
researchers and
partners.
.Better knowledge
about what is found
in the different
marine parks.
.Will create better
awareness and will
assist greatly in
decision making.
187
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Support
Without support and initiative, no planned goals or objectives can be accomplished.
The Belize Fisheries Department has given what support it could with its available
resources for the SCMR to accomplish monthly tasks. To enhance sustainable
development, support has to come from the general public.
Tactic 1. A well-put-together presentation needs to be developed and be presented
to the key authority that will have overall say in the marine parks. This
will stress the support needed to accomplish both the mission and vision
statements, and will have positive effects in sustainable development.
Tactic 2. Nonmonetary incentives need to be established in order to have full support
of those ‘‘ignorant’’ stakeholders who would deter progress in sustainable
development at the SCMR.
The tactics developed will require the capacity of all affected persons. However,
much is to be done in acquiring financial resources. The biggest setback in develop-
ment as a whole is the availability of financial resources—hence the reason for
effective sustainable development tactics.
Policies
Policies being put in place at any level have a great effect on all stakeholders of a
protected area. As part of representation, a protected area is comprised of an
advisory board to effectively assist in policy creation and implementation. However,
general stakeholder participation has to be actively involved in influencing policy
decisions. At the end of the day what is portrayed by stakeholders emphasizes the
steps taken in creating and implementing policies for marine parks.
Tactic 1. Establish a set of policies that is considered necessary for proper manage-
ment of the marine reserves. Such policies will be established by all stake-
holders involved.
Tactic 2. Create a program influencing stakeholders to adhere to such policies through
an education=retreat program.
Tactic 3. Establish exchanges with other organizations in capacity building in policy
creation and effective implementation.
Discussion and Conclusions
Marine reserves are an important tool in sustainable management of the Belizean
coral reefs (Cho 2005; Williams and Polunin 2000). The need for case studies in
building integrated coastal management capacity has been powerfully made (see,
e.g., Jorge 1997; McDuff 2001; Wescott 2002). Normally, representatives of all
stakeholders (including fishermen, dive-boat operators, etc.) would be included in
such a capacity-building exercise. Our particular process was chosen as it represented
key stakeholders in the MPAs of Belize, while being an efficient way of engaging a
facilitator from abroad. Targeting a government ministry worker and policymaker is
a relatively new approach in this area. Our study group members were highly focused
and motivated to improve management of the Belize MPAs, and were strongly
committed to both short- and long-term acceptance of the study group’s goals for
188 M. J. C. Crabbe et al.
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sustainability and resource management by stakeholder groups. One reason for this
was the experience and responsibilities of the individuals concerned; selection as to
who was in the group was a key operational factor. However, two groups were miss-
ing from the capacity-building exercise: someone from the political arena, and some-
one from the University of Belize. We think that it will be important in the future to
involve both these sectors, the former to ensure that policy development becomes
law, and the latter to ensure the sustainable monitoring of the reefs. Political engage-
ment is of particular interest, as unlike the Great Barrier Reef, where management is
the responsibility of a single country, Australia, the MesoAmerican Barrier Reef is
managed by Mexico, Belize, Guatemala, and Honduras, all countries that have
different management policies.
Our capacity-building case study has produced new ideas to improve organiza-
tion, management, education, support, and policy development in MPAs in southern
Belize. In addition, we suggest that MPAs need to share regulation, enforcement,
and conservation, underpinned by scientific research. Our study reinforced the idea
that cooperative research improves capacity building and encourages innovative
approaches to management, as has been found in the northeastern United States
and northwestern Europe (Johnson et al. 2007). All participants felt that training
and capacity building to key staff members are important, since this enables them
to enhance their skills in the field thus raise their standards to a certain level so as
to perform better. The participants felt that this has been lacking in staff members
throughout all marine parks in Belize. They also felt that networking across all levels
was vital for success, as has been found for sustainable waste management in Poland
and Egypt (Poulsen 2007). A major challenge for the participants in this exercise will
be to maintain iterations among and between their constituent groups to ensure
continued sustainability of both the reef and the fishing practices.
The involvement of a Fisheries Department officer in our capacity building has
resulted in direct transfer of information from the communities to the government
department. The facilitator has also directly communicated the outcomes of our study
to the Director of Fisheries. The personal action plans that were produced have been
implemented, taken back into their constituent communities, and the NGOs TASTE,
TIDE, and Friends of Nature have been incorporated into a single self-governing
organization that spans four MPAs in southern Belize. Previously, there were areas
between MPAs that were not monitored or policed, resulting in much illegal fishing.
The incorporation of two NGOs into one means that the areas between former
MPAs, which were subject to illegal fishing activity, will now be monitored and
policed. It also means greater efficiency per unit area in terms of MPA management.
Our approach is also part of a wider picture in marine resource management in Belize,
where, for example, communities and fishermen are being exhorted not to catch
parrotfish (Scaridae), as grazing by that species is critical to reef resilience and
restoration (Mumby et al. 2007). In summary, our approach is part of a complex rela-
tionship (Gray and Hatchard 2008; Crabbe 2009) linking an ecosystem-based
approach to fisheries management with comprehensive stakeholder participation.
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