United States Department of the Interior

OFFICE OF THE SECRETARY

WASHINGTON, D.C.20240

(US. Department of Interior Letterhead with seal)

October 29, 1973

Dear Mr. Chairman: Enclosed is a Joint Report, prepared and submitted by the under-signed, the Secretary of Interior and the Governor of Puerto Rico, pursuant to the Resolution of this Committee adopted on June 16, 1971. The Report details the proposed best mix of uses of lands in the Culebra Island group and has the full support of both the Department of Interior and the Commonwealth Government. In accordance with the decision of Secretary of Defense Richardson, announced May 24. 1973, all Navy operations at Culebra will cease by July 1. 1975. The Department of Interior and the Commonwealth Government join in the realization that the impending departure of the Navy from Culebra to the uninhabited islands of Desecheo and Monito presents both a unique opportunity and a new responsibility, not only for Culebra's residents, but also for the full enhancement and preservation of Culebra' s remarkable natural and wildlife resources. It is consequently the firm resolve of the undersigned, the Secretary and the Governor, that the highest priority shall be given to the protection of Culebra's natural and human environment. To this end, the Report recommends the creation of a Culebra Conservation and Development Authority by the Commonwealth Government. This Authority will share with the Department of Interior supervision of the conservation and management of Culebra's unique natural resources and will implement the environmental plan outlined in this Report. Consistent with the agreed upon best mix of uses of Culebran lands described in the Report, it has also been agreed that there should be

begin Page 2 future conveyances of federally-owned lands on Culebra to the Commonwealth. The Culebra airport and vicinity is scheduled for conveyance by January 1. 1974,aAnd those lands best used for recreational purposes, should be transferred to the Commonwealth by January 1, 1976. The disposition of the remaining lands will be determined jointly by the Secretary and the Governor on or before January 1, 1979, and the Governor has fully assured the Secretary that the Commonwealth's concern for the ecological integrity of Culebra will be manifested by strong legislative and executive action to safeguard the environment in the interim. Thus, with fully shared confidence and with pleasure, we submit for your information the Report: "Culebra Island: A Plan for Conservation and Development" Sincerely, Signed, Rogers C B Morton, Secretary of the Interior Signed, Raphael Hernández Colon, Governor, Commonwealth of Puerto Rico (copy to) The Honorable Henry M Jackson, Chairman, Committee on Interior and Insular Affairs, United States Senate, Washington, D. C. END LETTER REPORT COVER PAGE & CONTENT PAGE Culebra: A Plan for Conservation and Development October, 1973 United States Department of Interior Puerto Rico Department of Natural Resources Puerto Rico Planning Board END COVER BEGIN CONTENTS PAGE CONTENTS I. History page 1-2 II. Natural Environment " II-l

III. Cultural Environment " III-l IV. Land Ownership " IV-l V. Proposed General Land & Water Use " V-l VI. Implementation " VI-l END CONTENT PAGE MAP NON SPECIFIC I - HISTORY Although Culebra was probably discovered by Columbus in 1493, it was largely uninhabited until late in the nineteenth century. Between 1871 and 1874, the Spanish government received petitions from several individuals who wished to settle there. These were denied, but the petitions generated a new interest in the island. Culebra was at that time part of the municipality of Vieques.

The Spanish government announced its intentions to encourage settlement of Culebra in 1879; in 1880, Don Cayetano Escudero was named as the first Delegate for Culebra in representation of the mayor of Vieques. Later that same year, he arrived in Culebra with ten other men to begin colonization. By 1889, a town with around 40 houses had been built at San Ildefonso, and by 1899, Culebra had 704 residents.

Following the Spanish-American War, Culebra and its adjacent small islands, like the rest of Puerto Rico. became part of the United States under the terms of the Treaty of Paris, signed on December 10, 1898. The Treaty also transferred all of the land on the island then belonging to the Spanish Crown to the United States Government.

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On December 17, 1901, President Theodore Roosevelt signed an order placing the public land on Culebra under the jurisdiction of the Navy. A Naval Commander for Culebra was assigned two weeks later. The Navy and the Marines maintained a large facility there from 1902 until 1911, when most of the military functions were transferred to Guantanamo, Cuba. The Navy returned briefly to Culebra in 1914, and again in 1924.

In 1909, President Roosevelt issued an Executive Order which reserved "the islands of the Culebra group… excepting Culebra island” for use of the Department of Agriculture as a preserve and breeding ground for native birds.

In 1936, the Navy returned to Culebra to establish target ranges for Naval ship and aircraft gunnery and bombing practices. It has maintained these facilities until the present time.

With World War II approaching, President Franklin Roosevelt signed an Executive Order on February 14, 1941, establishing the Culebra Island Naval Defense Sea Area and Culebra Island Air Space Reservation, a three mile zone surrounding the island of Culebra (and airspace over the island and these waters) into which no boat, ship or other vessel or aircraft could proceed without the permission of the Secretary of the Navy. This Reservation remained in

I-3 NEXT PAGE TOPOGRAPHY MAP PAGE THEN CONTINUE TEXT

effect until June 6, 1972, when the military zone was reduced by an amendment to the Executive Order, signed by President Nixon. In 1971, in an agreement signed by the Secretary of the Navy, the Governor of Puerto Rico, the Mayor of Culebra, and the President of the Puerto Rico Senate. the Navy agreed to give up its targets off the east coast of Culebra and to abandon its plans for acquiring additional easements or any other interest in land on Culebra or its keys, except for the lands which were needed for the target range and safety zones on the northwest peninsula of Culebra and the keys used for aircraft practice. The Navy also agreed to study alternative sites for eventual relocation of its activities. This study 'by the Navy was undertaken and as a result, the Secretary of Defense announced on May 24, 1973 that the range will be relocated by July 1, 1975.

II - NATURAL ENVIRONMENT

Culebra, about 7 miles long and 3 1/2 miles wide, is characterized by a mild, dry climate and irregular topography with hills of low elevation the highest, Monte Resaca, has an elevation of 650 feet. Most of the

island (75-800/0) is covered by shallow soils on land with slopes of 20-40%. and is therefore not suitable for extensive cultivation.

The temperature on Culebra rarely rises above the high eighties or falls below the low seventies.

The average rainfall for Cu1ebra for the period 1961-1971 was 31.94 inches, but within this period there was a wide fluctuation, from a low of 16. 23 inches (1967) to a high of 56.24 inches (1970). The island frequently suffers from severe drought, for about half of the annual precipitation falls in the four-month period from August through November, and over 900/0 of the total rainfall is returned to the atmosphere through evapotranspiration (sic).

The supply of fresh water on Culebra is very limited. Most is provided by drilled wells and a rain catchment system which includes both large basins and household cisterns. It is estimated that only about 1 inch per year of rainfall actually infiltrates through to replenish the water table. There are no permanent fresh water streams.

Despite its generally arid climate, and in many instances precisely because of this, Culebra and its surrounding waters offer an immense natural beauty. Most of its attractions are intimately related to the sea: natural harbors, bays, beautiful beaches, mangroves, clear tropical waters with an abundance of coral reefs, fish and shellfish, a variety of sea birds, and turtle nesting sites.

There are also three sizeable offshore islands and numerous small keys. Of the former. Cayo Norte is overgrazed; Cayo Luis Peña is almost entirely forested and contains many rare plants; Culebrita is noted for its nearby reef and its fine beach, where turtles come to nest. Many of the smaller keys (Los Gemelos. Lobito, Raton, Yerba, Sombrerito) are used for nesting by sea birds. especially sooty terns and brown boobies.

Culebra has two natural harbors. Ensenada Honda, the larger of the two, is partially blocked by coral reef, and therefore extremely well protected. The town of Dewey, which lies on the western shoreline of Ensenada Honda, is the major source of raw sewage effluent. The waters of this harbor are additionally polluted by discharge from

improvements located along the remainder of the bayshore. Puerto del Mangle, the smaller of the two harbors, is less protected from winds and waves, but there is also less development along its shoreline. Bioluminescence has been recorded in both these harbors.

The beaches of Culebra consist of narrow strips of sand, extending along the coasts between the sea and the steep slopes of the coastal cliffs. The sands are white, predominantly calcerous. and derived almost exclusively from coral and shell fragment.

The majority of the beaches are only 10 - 20 feet wide, but those on the east and north coasts are more extensive, reaching 50 feet in width in some places. Flamenco, Resaca, Brava, Larga, Cabeza de Perro, and Culebrita, which are the most attractive beaches, consist of material finely ground by the direct action of the waves. Playa Flamenco is the widest and most easily accessible. Resaca can only be reached by boat, or over a very rough trail.

Mangrove forests formerly covered much of the shoreline of Ensenada Honda and sections of the rest of the southeastern coast. Recently, large sections have been removed and filled. Small strips are also found between the beaches and coastal lagoons on the north coast. These mangrove communities support an abundant invertebrate fauna on and among the roots and serve as "nurseries" for juvenile fish and other marine life. They also protect the shoreline from tidal erosion, and are an important part of the ecosystem of bioluminescent bays.

As a result of the low rainfall on Culebra. the island has no

permanent fresh water streams. Such conditions are favorable for profuse coral growth in the clear surrounding waters, since sedimentation is minimal. Eighty percent of Culebra's coasts are bordered by coral reefs.

The most productive reefs are found in the extensive area around and to the south of Culebrita; the wide border along the south of Culebra itself. from Punta del Soldado to Cabeza de Perro, and the waters around Peninsula Flamenco. More mature reefs are found around Cayo Norte, inside Puerto del Manglar, and southeast of Luis

Peña. Shorter sections of reef, still spectacular by main island standards, are scattered along the west coast of Culebra.

There is an abundance of small reef fishes associated with all of these reefs. Other species frequent the extensive turtle grass beds in the clear littoral waters. The reefs, especially where the bottom contours are irregular and full of crevices. support a lobster fishery. Queen conchs and helmet shells are also taken. However. other commercial fishing depends on offshore fish. such as the cero mackerel. tuna, dolphin. and marlin. and on deep water fish. such as groupers. jacks and snappers.

To ornithologists. Culebra is known for its spectacular concentrations of nesting seabirds. especially sooty terns from approximately May through July. The sky is black over Punta Molinos and the rocky islets they inhabit. This nesting colony presently faces a double threat: removal of eggs by local residents, and close proximity to Naval gunfire targets.

Culebra's unique terrestrial features include coastal lagoons, (33) thirty-three rare species of plants arrayed in unusual communities, and examples of interesting geologic formations.

Coastal lagoons are located on Culebra' s north shore. Generally these were formed at the shoreward extremity of bays by the deposition of sand and other material to form a land barrier which closed off access to the sea. As a result, over the years, the waters of these lagoons has become fresher. Laguna Flamenco, much the largest, is the habitat for the Bahaman Pintail Duck. an endangered species. A similar lagoon was formed back of Playa Largo. and the remains of one are found behind Playa Brava.

Most of Culebra is heavily overgrazed. The principal remaining forests are on Luis Pena and on Monte Resaca and El Vigia, the highest mountains, located on the north side of the island. Monte Resaca is covered with large boulders on which the vegetation grows to produce an unusual forest of stilt roots which is impossible to traverse. The boulders themselves support beautiful natural growths of orchids, bromeliads, and an endemic ground plant, Peperonia wheeleri. Another unusual association, found here and on the slopes

northwest of Playa Flamenco, north of Punta Tamarindo Grande. north of Laguna de Cornelio. and in the Cabeza de Perro area, is unique in that the tallest trees are represented by the fan-leaved palm (Cocot hrinax argentea). This type of forest is fast disappearing.

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III. CULTURAL ENVIRONMENT

Culebra's population has traditionally been supported through the utilization of its natural resources, with varying degrees of success, since the abundance of these resources and access to them has been limited. There is a long history of agriculture, and a few residents have fished the surrounding seas, for both food and commercial income. Small manufacturing plants have also occasionally been established in Culebra, and have brought some economic benefits. The recently opened medical plastics plant is a good example; it now employs 80 people. and plans to expand its facilities in the future.

Lately, a principal source of income has been in the services offered to week-end visitors from mainland Puerto Rico. who come to enjoy the recreational resources of the island.

A. Physical Development

Culebra and its surrounding keys include a total of 7, 700 acres which are distributed as follows:

Acreage Percentage of Total

U.S. Government . 2674 34.7

Excessed (1346) (17.5)

Not excessed (1328) (17.2)

Agricultural 3380 43.9

Pasture land (2966) (38.5)

Other (414) (5.4)

Residential 50 .7

Other 1596 20.7

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(CULTURAL FEATURES MAP)

The naval activity is concentrated on the northwest side of Culebra, there, on high points of Peninsula Flamenco. a series of targets have been set up for practice by Naval ship artillery. An observation post for this firing range is located at Punta Flamenco. Several of the keys to the southwest of Peninsula Flamenco are used for air to ground target practice; the observation point is located on Luis Peña.

The Navy maintains two small installations: one at San Ildefonso. (Lower Camp), where docking and maintenance facilities, residences for Naval personnel, and offices are located; and a second for Naval personnel who operate the observation point on Punta Flamenco. The agricultural land is chiefly used as pasture for beef cattle. Slightly over half of the pasture (54%) is Classified as being improved; the rest is natural pasture. Because of light rainfall, poor soil. and slope. very few other crops are now being produced.

Residential and commercial development is concentrated on the northwest shore of Ensenada Honda, in and around the two towns of Dewey and Clark. At present, the two towns have an average density of six families per acre (15 per acre in Dewey and 3 per acre in Clark). Although development has been concentrated in the towns. it is now spreading outward.

South of Dewey a group of vacation homes is being built, In

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addition. Squatters have recently accelerated illegal construction on the Federally-owned coastline of Ensenada Honda.

Public facilities to support growth are limited. Fresh water supplies, about 30,000 gallons per day, have had to be supplemented by a desalinization plant with a capacity for an additional 30,000 gallons per day to fulfill the current demand of around 45,000 gallons per day. Electricity is supplied by three diesel-powered generators, with a total output of 1100 kilowatts. There are only 12 kilometers of paved roads

and 30 kilometers of unpaved roads and streets, thus access to much of the island is limited. Culebra has no sewage treatment facility; solid wastes are eliminated in an open burning dump.

B. Socio- Economic Development

Around one thousand people live on Culebra today. Over the years, the population has not shown a consistent pattern of growth, fluctuating with economic conditions and range of activities.

Population of Culebra Island (1899 - 1990)

Year Population

1899 704

1910 1.315

1920 839

1930 847

1940 860

1950 887

1960 573

1970 736

1971 996

SOURCE: Puerto Rico Planning Board: Master Plan for Culebra. 1971.

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Until very recently, almost all of the income earned by Culebrans came from four sources. According to the 1970 census, there were fifty people employed in agriculture, thirty-five in business, seventy-five in government, and one hundred ten in tourism and support services. This latter category included local civilians working for the Navy. At the present time, the Navy employs 58 Cu1ebrans. It is estimated that there are 50 people currently unemployed.

In 1971. a new plant, manufacturing plastic products for medical use was opened. It now employs around 80 people, most of whom are female residents of Culebra.

Recently, the Council of Churches started a handicraft cooperative for the production of costume jewelry from sea debris. A local group has shown interest in the production of fiberglass boats for recreation and fishing.

Social services on the island have been limited. There are four schools, which among them offer education from the first to the ninth grade. High school classes are offered at night, but many children leave the island to complete their secondary education. The medical facilities are minimal; there is a three bed dispensary with one doctor, although a new medical facility is under construction. Cultural activities and entertainment opportunities are few; most being provided by the residents on an informal, ad-hoc basis.

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(Map PRESENT STATUS OF FEDERAL LAND)

Transportation to and from Culebra is provided by four small airlines and by ferry. There are 11 daily flights to and from San Juan. There is also air service to Humacao and St. Thomas, Virgin Islands, on an irregular basis. The ferry makes one round trip daily from Fajardo. Both the safety and reliability of air and sea transportation have been adversely affected by the necessity to traverse the inner weapons range.

In addition to the permanent residents, there is a small, but growing transient population. consisting of groups who have built vacation homes on the island, some on lands which they own. some on lands owned by the Navy. Visitors usually stay in one of the two small hotels.

The future pattern of socio-economic development of Culebra is uncertain. Each segment of its economy offers some opportunity for growth. The agricultural sector, which is now primarily dedicated to raising beef cattle, has a good potential for further expansion. Opportunities for light industry will continue to increase with the

growth of utilities and infrastructure development. But the amount of expansion of these segments is very limited. The future growth of Culebra will be determined, expanded, or controlled by sound land use planning and management.

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IV - LAND OWNERSHIP

All of Culebra, the adjoining small islands and their surrounding waters were owned by the Government of Spain until 1881, when the first attempts to encourage settlement were made by granting provisional title to settlers.. By 1888, provisional title had been granted for most or these lands.

Following the Spanish-American War, lands still owned by the Spanish Crown were ceded to the United States by the Treaty of Paris of December 10, 1898. The Treaty honored all existing private titles, so that only lands which were not in private ownership passed to the United States Government.

In 1901, the U. S. Navy requested custody of all Federal holdings in Culebra for the establishment of a Naval base. This request was granted by means of an Executive Order, signed by President Theodore Roosevelt on December 17, 1901.

In 1902, the U. S. Congress acted to convey to the Territory of Puerto Rico all public lands ceded to the United States under the Treaty of Paris, except for those lands that the President declared necessary £or Federal functions. The title to the latter would remain with the Federal Government. In return, the government of Puerto Rico

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renounced all claims to the land thus reserved by the President. This was accomplished by action of the Legislative Assembly of Puerto Rico in 1903. This act transferred reserved lands to the Federal Government and renounced claim to them, specifically including the public lands on the island of Culebra. Later in the same year. President Theodore Roosevelt. by Executive Order, granted the Navy the use of all of this public land on Culebra and its adjacent keys. The

Navy subsequently increased its holdings by purchase and by transferral from the government of Puerto Rico (1).

Nevertheless, according to an analysis made by Delgado Cintron (2). the exact boundaries and extent of the Navy holdings in Culebra are unclear; the Navy itself has asked several times for clarification. To understand why, we must review the history prior to 1898. The map on the following page, which was traced from an original map drawn in 1887, was prepared for the Spanish government in order to subdivide Culebra into lots, as a basis for making land grants to the settlers on the island. They were first given provisiona1 titles, permanent title being granted to them after the settlers

footnotes

(1) a. Purchase by the Navy of gun mount sites (2- 5 cuerdas each in 1903

b. Expropriation of a farm by Puerto Rico and subsequent transfer

to the Federal Government - 1909.

c. Expropriation of four lots in 1938 by Puerto Rico and

subsequent transfer to the Federal Government in 1939

(2) Delgado Cintron, Carmelo (Lic.): Las Concesiones Privadas y Zonas

Publicas de Terrenos de Culebra. (1970)

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complied with the conditions imposed by the government, chiefly, that the settler must have had a specific percentage of the land under cultivation each year, until, after the fourth year, all of the land that he had cultivated was his. The lots for which no title had been granted remained in Crown ownership. as did the maritime zone (3) and those platted lots that had been reserved as public lands.

The U. S. used the survey map prepared in 1887 to determine the boundaries or its holdings. The holdings of private owners on Culebra, however, are based on deeds given after 1887 by the Crown. Although these deeds established some lot boundaries by reference

to the 1887 survey map, they established others without explicit reference to the map. This is frequently true of boundaries along the coast. As a result, although there is no doubt that the Federal government owns the maritime-terrestrial zone, there is uncertainty about the land- ward boundary of the zone. Navy claims are based on the 1887 map, but some private owners claim that their deeded holdings extend nearer to the sea then the boundary shown on that map. Lawsuits raising the issue are currently pending before both Federal and Commonwealth courts.

(footnotes)

(3) Spanish law. as applied in Puerto Rico since 1886 or earlier, established a publicly owned "maritime-terrestrial zone", consisting of ••• "The space of the coasts of Puerto Rico touched by the sea during its ebb and flow ... " 23 L. P. H. A. 2103 (n). This law remains in effect today under the Organic Act of 1902, and the Constitution of Puerto

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A second problem with land ownership arises with the provisional titles that were in effect at the time of the Spanish American War. The Federal Government at that time laid claim to all lands for which no permanent title had been granted; that is, land for which provisional title has been given was said to be included in Crown land. Yet, it has never been clarified whether or not the Treaty of Paris granted the provisional titleholders the same right as other private land owners.

For these reasons, it is imperative that a thorough study of land titles and boundaries be made immediately.

As mentioned in Chapter I, the U. S. Government also maintains a three-mile restricted marine zone surrounding the lands it still holds (4).

and restricts the use of airspace over Culebra and the three-mile zone surrounding the island. The Executive Order which established these restricted areas states, "at no time shall any person, other than persons on public vessels of the Unite States, enter

(footnotes)

(4) The amendment to the Executive Order signed by President Nixon reduced the restricted zone to the three-mile maritime zone surrounding its holdings on the northwest peninsula of Culebra and extending south-ward 3 miles west of a line about three-fourths mile east of Cayo Luis Pena.

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Culebra Island Naval Defense Sea Area . . . unless authorized by the Secretary of the Navy. At no time shall any aircraft, other than public aircraft, be navigated into Culebra Island Naval Air Space Reservation unless authorized by the Secretary of the Navy. "

The Executive Order thus restricts access to Luis Pena and the smaller keys to the west of it, and access by water to Playa Flamenco, part of Playa Resaca, and Peninsula Flamenco; it also restricts access by commercial and private aircraft to Culebra itself.

Title and boundary disputes render any quantification of land ownership in Culebra uncertain. The best available estimate is as follows:

Land Area and Ownership

Total área Federal Non-Federal . . acres acres % acres %

Culebra 6,747 2.093 31 4.654 69

Cayo Luis Pena 315 315 100 0 0

Cayo Norte 303 0 0 303 100.

Culebrita and 266 266 100 0 0

Cayo Ladrones.

Miscellaneous 69 0 0 69 100.

Totals 7,700 acres 2,674 34.77% 5,026 65.3%

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In addition to private holdings on Culebra and Cayo Norte, there are a large number of private swellings and recreational-type cottages illegally constructed along the shoreline of Ensenada Honda. Some are on piers; others were built on filled areas where the mangrove border has been destroyed.

In June 1972, the Navy declared as excess to its needs 1.346 acres, these include the island of Culebrita, 268 acres around the airport, 177 acres on the southern end of Fulladoza Peninsula, and the coastal strip around the northeastern, eastern, and southern coasts of Culebra . The Department of Interior is presently taking steps to obtain clear jurisdiction over these excessed lands.

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V. PROPOSED GENERAL LAND AND WATER USE

It is essential that policy for future land and water use in Culebra take into account two factors: the preservation of its unique geological, ecological and climatological attributes, and the economic development necessary to satisfy the needs of the residents of Culebra. The present situation in regards to both of these factors has been described in the previous sections; the decisions on land and water use made now will determine the future. In light of this. the goals for each of four major categories of land and water use - - wildlife or biological preserves. recreation, development, and conservation areas -- as delineated below, will bring about what we feel is the best mix to satisfy these two factors.

A. Wildlife or Biological Refuge Many areas in Culebra are natural habitats for native species of birds. fish, and reptiles. For example, as mentioned before, Culebra I s offshore keys and the northwest tip of Peninsula Flamenco (Punta Molinos) comprise one of the most prolific nesting areas for oceanic birds found anywhere in the world. The mangrove forests are rich breeding grounds for many species of fish and other marine animals. Other sites on Culebra are habitats for rare and endangered

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species of waterfowl and reptiles.

It is essential in these areas that the natural conditions which have made such areas natural habitats be preserved, that people be prevented from adversely interfering with the wildlife found there, and that harmful development be prohibited in these and adjacent areas. Therefore, these areas in Culebra should be set aside and protected, and should be managed so as to maintain and improve their natural characteristics.

The recommended policy of this Joint Report is that public owned areas of outstanding importance as wildlife habitats or ecological associations shall be set aside as wildlife or biological preserves.

B. Recreation

As stated, Culebra and its surrounding keys offer opportunities for a tremendous variety of outdoor active and passive recreational activities. Included are the entire littoral zone, especially the beaches, the surrounding coral reefs, the phosphorescent bays, areas which have concentrations of flora with special natural significance. and open areas which are ideal for relaxed. passive recreation. These natural resources are among the most important ones in Culebra. Their virtually unspoiled state makes them an asset for both the

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residents of Culebra and visitors; every attempt should be made to keep them so.

For this reason, at most recreational sites, only minimum facilities -- such as sanitary and locker facilities -- would be provided. The exceptions, that is, those sites where facilities for overnight visitors would be provided are discussed in the next section. No new or improved roads would be added.

The recommended policy of this Joint Report is that, of the publicly owned areas remaining after designation of wildlife refuge, those which are best suited for recreation, shall be designated as public recreation areas for the enjoyment of Culebrans and visitors. Any public recreational facilities shall be in keeping with the goal of

preserving the quality of these resources. Great care shall be taken to preserve the recreational values of these areas and of the surrounding waters.

C. Development

Future development of Culebra is impeded by obstacles not encountered on Puerto Rico's main island. The continuing presence of the Navy is the most obvious of these, but natural obstacles will survive the Navy's departure. Thus even without the strict controls this Joint Report contemplates, the transfer of naval training activities

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away from Culebra can not lead to large scale development. Scarcity of water is the most important of the natural limits to growth. It is true that some increased water needs could be satisfied by larger desalinization plants. But only at unit costs far higher than those encountered in Puerto Rico, where natural water supply is abundant. Advanced waste treatment. needed to safeguard island marine assets against the pollution associated with development and growth would impose additional special costs on Culebran development. The costs of transportation, by air or sea, will continue to inhibit the bringing of people and goods to the island. The cost of providing electric power also far exceeds those on the main island.

Despite these obstacles, opportunities must be provided to satisfy the social and economic aspirations of Culebra's residents. Income and employment levels should be stimulated to approach the levels found in the main island of Puerto Rico. Essential public ser- vices must be provided. Development policy must thus draw a fine line, providing opportunity for the people already resident on the discourage others who could overwhelm them and their fragile surroundings. Accordingly, this suggests a policy to accommodate population growth in these limited portions of Culebra where development

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will be most compatible with the preservation of Culebra' s natural systems.

The two residential centers of Dewey and Clark have a combined total area of 50 acres with an average density of 6 families per acre (15 per acre in Dewey and 3 per acre in Clark). Insofar as possible, any increase in island population should be accommodated by intensified urbanization of these two centers, up to a maximum of 25 families per acre in Dewey and 6 per acre in Clark. Because these two sites have already been developed to some extent, infra-structure costs of future development would be lowered, with minimal further impact on the environment, and the moderate density recommended is in keeping with the characteristics of the present residential areas. Except for waste water treatment facilities, the backbone of the infrastructure necessary to support the population is already present, although it must be expanded.

Nevertheless, the two communities should not be permitted to expand toward each other; rather, the open space between the two should be maintained, so that both retain their sense of community.. If and when the population increase necessitates further residential development, a third population center should

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be located at San Ildefonso. This area was previously the site of the first community in Culebra, until the Navy relocated the population and took over the site, and it is still residential in character in that electricity, road access, buildings, and semi-developed land are provided. The desalinization plant is also located there.

It is expected that these three sites will accommodate the projected population for 1990.

With the increase in population will come an increase in demand for employment opportunities. It is also expected that the number of people who wish to vacation in Culebra ~ill continue to grow and will generate a demand for an increase in facilities and services. Such expansion of this sector would fulfill part of the demand for jobs, but again, must be limited so that it does not destroy the very factors that make Culebra attractive to visitors.

For this reason, the type of visitor facilities and services projected for Culebra is of modest scale, and would be designed to take advantage of, but not adversely affect, the natural beauty and recreational resources of the island. Modest hotels (40-60 rooms) could be built in Dewey, and three locations on Fulladoza could be developed as vacation home sites. These sites are appropriate for such use, because they are close to the sea and to the

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town of Dewey, and therefore offer both recreational opportunities to the visitors and a source of income for residents and commercial establishments in Dewey. Yet, they are not located in any of the areas in Culebra where natural features should preclude development. Rather, strict controls and standards regulating their development would insure that the sites would be harmonious with their environment and that the natural beauty of the areas would be maintained.

A second area suitable for visitor facilities is located on the northeast side of Culebra; here three vacation home sites and a small hotel could be developed. Visitors would have easy access to Playa Larga, and to Culebrita. Once again, the sites would be located in an area where strictly controlled development would not destroy the natural surroundings and would offer visitors a combination of recreational activities that would be appealing.

Essentially, development in Culebra will be limited to the sites described above. This development will provide opportunities for resident, employment, but within the capabilities of the island and without endangering the unique natural beauty that is the essence of Culebra.

The recommended policy of this Joint Report is that development in Culebra be accommodated at moderate densities within the

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limited areas described above. Neither the quantity nor the quality of development shall be allowed to impair the unique natural resources of Culebra.

D. Conservation Areas

To protect the natural qualities of Culebra against pressures for haphazard and insensitive development, it is not enough to designate and protect the limited areas set aside for wildlife refuge, recreation, and development.

The recommended policy of this Joint Report is that those areas which are not specifically set aside for wildlife refuge, recreational use, or development, be designated as conservation areas, that is, an open space, for agricultural and other low intensity uses consistent with the natural character of the land.

This policy is compatible with current land use practices in Culebra; most of the land that does not fall within the other three categories of land use is now in pastureland or under cultivation, a practice which should be encouraged to continue. Development in conservation areas would be permitted only at low enough densities – five acres or more per dwelling unit – so that no urban public facilities - - public water, sewers. paved roads - - would be needed, or - provided.

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In addition, certain other restrictions should be placed on land within the conservation areas. Any development on land adjacent to areas set aside for wildlife refuge or recreation must not interfere with such uses. Other appropriate restrictions - - on grading, for example - will be added as necessary to preserve the essential nature of the conservation areas. It is also contemplated that technical incentives will be offered to private land holders to encourage their cooperation.

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(Map NATURAL FEATURES)

VI. IMPLEMENTATION

1. The release of some Navy land in Culebra creates new opportunities for the island's future, and these opportunities will grow when the Navy presence on the island ends altogether onJu1y 1,

1975, in accordance with the decision of the Secretary .01 Defense announced on May 24. 1973. The opportunities are two:

First, conservation. Slow economic development and low population have largely spared Culebra' s reefs, mangroves" and other remarkable natural assets from the destruction that has so often been a consequence of development elsewhere. Widespread appreciation of Culebra's assets, heightened by growing popular awareness of past mistakes of the development process, creates a special opportunity to preserve the unique attributes and resources of Culebra and its surrounding waters, reefs and keys.

Second, economic development. Partly as a result of the Navy presence, the economic development of Culebra has, been stunted. The departure of the Navy will create an opportunity to replace that stunted growth with, normal growth -- growth sufficient to provide for the residents of Culebra a standard of living comparable to the average standard enjoyed on Puerto Rico's main island.

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Sound management s essential if full advantage is to be taken of both these opportunities. Management efforts cannot succeed if they focus only on the areas that are currently in Federal ownership. These areas, though of course critical to the future of the island, are intimately related to the remaining areas, most of which are privately owned. Success in management therefore requires a unified program for all areas, private as well as public in all parts of Culebra (including adjacent keys and seas).

2. To provide this unified management. a Cuebra Conservation and Development Authority should be created. The Authority should be a public corporation, established as an agency of the Commonwealth of Puerto Rico and administratively attached to the Commonwealth's Department of Natural Resources. The Authority should be governed by 3 man board of directors appointed by the Governor of Puerto Rico, one of the members of the board should be recommended by the Governor to the Governor by the U.S. Secretary of the Interior.

3. The principal Federal contribution to the future of Culebra should be to assist the Authority in the development of its management capability and to insure environmental protection until that capability is realized. To this end, in addition to recommending one of the three board members, the Federal Government should:

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(a) provide financial and technical assistance to the Authority and

(b) furnish back-up support in enforcing regulations and restrictions.

4. In dealing with publicly owned lands, the Authority should bear full responsibility for operation and management of areas designated principally for recreation or agricultural use as well as any other areas that may be added to its jurisdiction. In addition, the Authority should have responsibility for reviewing proposed development on private land in accordance with the Plano Regulador for Culebra and the guidelines set forth in the statute creating the Authority. Regulatory approval of such development by the Puerto Rico Planning Board should be made contingent on prior certification by the Authority that the proposed development is appropriate. (Culebra would thus be protected by a certification procedure comparable to the one already established by Puerto Rican law for historic districts. where some types of construction cannot receive Planning Board permits without prior certification from the Institute of Puerto Rican Culture. )

5. For use in determining the appropriateness of proposed development, the Authority should be required by statute to establish

footnote

The 'Plano Regulador" is a master plan for the islands, which when signed by the Governor has the force of law. It is prepared and adopted by the Puerto Rico Planning Board.

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policies and plans, with the approval of the Puerto Rico Planning Board and the Department of Natural Resources" subject to statutory guidelines including the following:

A. Normal Growth

Normal growth sufficient to raise living standards to the Puerto Rican average, should be encouraged. Excessive growth, which could result in population growth more rapid than the population growth rate for all of Puerto Rico, should be discouraged or prohibited.

B. Consistency with Natural Environment

Development should be required to respect the natural topography, minimizing grading. Intensive development such as high-rise buildings, should be prohibited. Use of energy by vehicles-- for example --should be minimized.

C. Zero Discharge

New development, outside established communities, should be permitted only if no waste water discharges would result.

D. Remedy of Present Disruptions

Not later than January 1, 1983, the following disruptions of natural conditions should be removed:

Existing waste water discharges

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(2) Squatters on public land; in the case squatters who have established residences on public land in Culebra as of the date of this Report and who have no other home on this date, removal would be accompanied by the provision of alternative housing nearby at public expense. Federal relocation assistance might be available as applicable.

E. Consistency with Joint Interior / Commonwealth Designations regarding Optimum Use of Land and Water Areas.

Use of land and water areas should be consistent with the designations of the Optimum Use of Land and Water Areas now in Federal Ownership set forth in subsection 6 of this Report.

6. Some of Culebra's land and water resources are of national and international significance others are of local significance. The

Optimum Use of Land and Water Areas now owned by the Federal Government is designated as follows:

A. Wildlife or Biological Preserve

The optimum Use of the following areas is as wildlife refuges:

(1) All principal mangrove areas. including those in Puerto del Manglar and in Ensenada Honda .

(2) Flamenco Lagoon (but not including beach areas seaward of the Lagoon),

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(3) The El Vigia - Mount Resaca area (other than areas)

(4) The northwest half of the Flamenco Peninsula,

(5) Luis Peña and all other keys, except for Culebrita.

B. Recreation

The optimum use of the following areas is for public recreation:

(1) The littoral areas around the outer perimeter of Culebra, except for areas designated as wildlife refuge.

(2) The southeastern tip of Fulladoza Peninsula,

(3) Punta Flamenco and Punta Resaca,

(4) Culebrita,

(5) The southeast half of the Flamenco Peninsula should be retained as open space, including limited recreation consistent with protection of the adjacent wildlife refuge.

C. Other

The optimum uses of the following areas are as indicated:

(1) The area around the Culebra Airport is best used for the airport and for other uses deemed appropriate from time to time as the result of a continuing planning process.

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(2) The area of San Ildefonso ("Lower Camp" ______ used as deemed appropriate from time to time as the result of a continuing planning process.

7. To implement these recommendations for Culebra the following two-phase schedule is recommended:

A. Phase I - Immediate

(1) Disposition of Areas Under Jurisdiction of Interior.

As soon as possible, but no later than January 1, 1974, the Culebra airport and vicinity would be deeded to the Commonwealth of Puerto Rico.

(2) Public Land Management:

(a) Responsibility for management of. all areas under Interior jurisdiction would be exercised jointly with the Puerto Rico Department of Natural Resources,

(b) The Culebra Conservation and Development Authority would be established by the. Legislative Assembly of Puerto Rico.

(c) The Culebra Conservation and Development Authority, in consultation with the Department of Interior and with the approval of the Puerto Rico Planning Board and the Department of Natural Resources, would establish management policies

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and plans consistent with statutory guidelines.

(3) Land Use Planning. The Puerto Rico Planning Board would complete all formalities needed to complete, establish and apply a master plan for Culebra including:

(a) The establishment of land-use regulations and

(b) The identification of any additional measures (e.g. acquisition of light easements or scenic easements) needed or desirable to apply the plan to private land.

(4) Title Questions. The Department of Interior would take all necessary steps to remove any clouds on Federal title to land under its jurisdiction. The Commonwealth would do the same with respect to Commonwealth title to lands under its jurisdiction.

(5.) Additional Federal Surplus Property. As remaining Navy land is declared excess in accordance with the decision or the Secretary of Defense of May 24. 1973, to transfer Navy operations from Culebra to Desecheo and Monito by July 1, 1975, Interior would take all necessary steps to assure that this excess land and other federal land become available for disposition consistent with policies established under Subsection 7 {B} of this Report.

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B. Phase II

(l) Disposition of Areas Under Jurisdiction of Interior.

No later than January 1. 1976. Areas designated in subsection 6 (B) of this report as most suitable for recreation would be deeded to the Authority.

(2) Public Land Management

Final management plans for all public lands in Culebra would be completed on July 1, 1975, and final management responsibility would be designated in this phase for all public properties. These plans would be implemented as promptly as possible.

(3) Disposition of Remaining Federal Land

On July 1, 1975, the Secretary of the Interior, upon agreement with the Governor of the Commonwealth of Puerto Rico, would designate those remaining federal lands at Culebra and adjacent keys thereof that are to be conveyed to the Commonwealth and the schedule and details of such conveyances. All such conveyances would be implemented no later than January 1, 1979.

(4) Squatters and Waste Water Discharges. The Authority would establish and implement a plan and schedule intended

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to assure complete removal of squatters and waste water discharges no later than January 1, 1983.

END

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