NPS Draft Document - Rota, Title, Contents

a very good representation of what remains of the native limestone forest of the Mariana Archipelago;

- most of what remains of the mature (closed canopy) portion of the native limestone forest;

- most of the area identified on Rota as critical habitat for the endangered Mariana crow;

- nearly all of the area identified on Rota as habitat for the endangered Rota bridled white-eye;

- nearly all of the locations identified on Rota containing sub-populations of the endangered plant, Serianthes nelsonii;

- all of the areas on Rota where colonies of seabirds nest;

- all of the locations on Rota identified as roosting areas for the endangered Mariana fruit bat;

- the locations identified as habitat for native butterflies and snails; and

- a sizable portion of Rota's benthic habitat, including its fringing coral reef.

Three of the four significant cultural sites, the Mochon Latte Stone Village, the Chugai Pictograph Cave and the Alaguan Bay Ancient Village, fall within the large natural area and thus could be managed as cultural components of a single park unit. The Taga Latte Stone Quarry falls outside of the large natural area and would need to be managed as a separate park unit.

In May 2004, Senator Diego M. Songao and the other members of Rota's senatorial delegation requested planning assistance from the National Park Service (NPS) in identifying and evaluating alternatives for the establishment of a park or conservation area on the island of Rota. In response to this request, NPS Regional Director, Jon Jarvis, directed Pacific Area Director Bryan Harry and Park Planner Gary Barbano of the NPS's Honolulu Office to carry out a reconnaissance survey of Rota's natural and cultural resources and to prepare a report that would identify any threats to those resources and alternatives for their protection and management.

In June 2004, Harry and Barbano visited Rota and were provided with an island-wide tour of its natural and cultural attributes. During the tour, Rota's senators expressed concern regarding past, present and future loss of the island's valuable natural and cultural heritage. The senators requested the NPS evaluate Rota's natural and cultural resources in terms of their potential as units of the national park system or as a Commonwealth park.

- is an outstanding example of a particular type of resource;
- possesses exceptional value or quality in illustrating or interpreting the natural and cultural themes of the nation's heritage;
- offers superlative opportunities of public enjoyment, or for scientific study; and
- retains a high degree of integrity as a true, accurate, and relatively unspoiled example of a resource.

Reconnaissance surveys also include a preliminary evaluation of the suitability and feasibility of nationally significant areas or sites being included in the national park system. An area or site is considered suitable for addition to the national park system if it represents a natural or cultural resource type that is not already adequately represented in the national park system, or is not comparably represented and protected for public enjoyment by other public agencies or the private sector. Feasibility involves weighing all of the values and public needs served by establishing an area or site as a unit of the national park system. To be feasible, an area or site must (1) be of sufficient size and appropriate configuration to ensure sustainable resource protection and visitor enjoyment; and (2) be capable of efficient administration at a reasonable cost.

In addition to meeting significance, suitability, and feasibility criteria, the area or site evaluated must also be found to require direct management by the NPS, instead of alternative protection by other public agencies or the private sector in order to receive a favorable recommendation by the NPS for inclusion in the national park system.

Cultural Resources. The island of Rota possesses the largest, most intact and unique collection of prehistoric sites in the Mariana Archipelago. These prehistoric sites contain architectural features that are unique to the ancient Chamorro culture. Four of the prehistoric sites evaluated-the Mochon Latte Village, the Chugai Pictograph Cave, the Taga Latte Stone Quarry, and the Alaguan Bay Ancient Village-have been found to represent outstanding examples of the nation's cultural resources. Each of these sites has been found to possess a high degree of integrity in location, materials, workmanship and association.

Natural Resources. The limestone forests of Rota are the most intact and most extensive examples of primary, native limestone forest remaining on any island in the Mariana Archipelago. Rota was the only major island in the Mariana Archipelago to be spared the destruction and land use changes brought about by World War II and its aftermath. Rota's limestone forest provides and sustains habitat for endangered bird species, a threatened species of fruit bat, and numerous species of invertebrates that are proposed for listing as threatened or endangered. Several of these species are endemic to Rota. Rota's limestone forests provide more than 90 percent of the designated critical habitat for the endangered Mariana crow as well as extensive habitat for the endangered Rota bridled white-eye. The intact condition of Rota's native limestone forest and the presence of several threatened and endangered species of plants and animals within the forest represent an outstanding example of a unique type of biotic community.

The U.S. Congress has declared that areas comprising the national park system are cumulative expressions of a single national heritage. Potential additions to the system should therefore contribute in their own special way to a system that fully represents the broad spectrum of natural and cultural resources that characterize our nation.

With regard to suitability of Rota's resources for inclusion in the national park system, the NPS Honolulu Office finds there is currently only negligible representation of the limestone forest tropical ecosystem of the Pacific islands in the national park system and no representation of the tangible aspects of the Chamorro culture. That the limestone forest of Rota also provides important and even critical habitat for endangered species is additional justification for adding this tropical ecosystem to the national park system.

The examples of the three thousand-year old Chamorro culture found on Rota are not now represented in any of the existing units of the national park system. No examples of the unique prehistoric architecture of the Chamorro people exist in any unit of the national park system, nor do any examples of their art or settlements. The island of Rota contains the most outstanding examples of all these cultural resource values.

The natural and cultural resources of Rota appear feasible as additions to the national park system. They appear to be of sufficient size and appropriate configuration to ensure sustainable resource protection and visitor enjoyment. These natural systems and prehistoric settings also appear to be capable of being acquired and administered by the NPS at a reasonable cost.

With regard to acquisition, the Covenant to Establish a Commonwealth of the Northern Mariana Islands provides authority for the NPS to acquire lands on Rota for the public purpose of a national park. Article XII, Section 1 of the Constitution of the Northern Mariana Islands, however, prevents the NPS from acquiring a fee simple interest in these lands. Since those lands on Rota found to contain resources of national significance and also found to meet the test of suitability are now in public ownership, acquisition of a less-than-fee-interest by the NPS is judged to be feasible-so long as that interest is long-term and achieved at no cost to the federal government.

With regard to administration, because of the well-preserved condition of the cultural and natural resources, their size and configuration, and the absence of any major threats at this time, it is judged the NPS could protect and manage them at a reasonable cost. It is also judged the NPS could provide appropriate and adequate visitor use facilities and interpretive services to the large natural area and the significant cultural sites at a reasonable cost.

In addition to becoming units of the national park system, there are other alternatives available to the Commonwealth of the Northern Mariana Islands (CNMI) for the protection and management of Rota's cultural and natural resources. The NPS Honolulu Office, in keeping with the request made by Rota's senators, has identified and evaluated these alternatives with respect to the following five criteria:

1. whether or not resources would be protected for future generations;
2. the potential effect on existing and future land uses and the local economy;
3. the type and quality of visitor use opportunities provided:
4. a general and comparative consideration of costs; and
5. the potential to improve resources.

Alternative One - Establish a Unit of the National Park System. This alternative calls for those areas or sites on Rota found to possess resources of national significance to be added to the national park system and be operated by the U.S. National Park Service. This alternative would apply to those areas or sites found to be feasible for park management.

Alternative Two - Establish a Commonwealth Park on Rota. Under this alternative the CNMI legislature would establish and fund an agency to manage and operate a system of Commonwealth parks. Units of the Commonwealth system would consist of those natural areas and cultural sites judged to be of significance to all of the CNMI.

Under this alternative, the long-term protection of resources would depend on the capability of the CNMI to develop a cadre of park officials to operate and maintain large natural areas and significant cultural sites. Existing ownership of private land would not be affected. Permanently setting aside land as part of a Commonwealth park system would increase the potential for the future growth of tourism on Rota. Costs to operate and maintain a Commonwealth park would be borne by the CNMI. The limited amounts of funding available to the CNMI to operate a park system would hinder their ability to improve resources and to provide adequate visitor services.

Alternative Three - Establish a National Wildlife Refuge. This alternative calls for natural areas on Rota containing threatened and endangered species to be added to the national wildlife refuge system and by operated by the U.S. Fish and Wildlife Service (FWS). This alternative would apply primarily to those lands containing habitat for the Mariana crow and the Rota bridled white-eye. Cultural resources would normally not be included within units of the national wildlife refuge system. Wildlife refuges like national parks are legislatively established by Congress.

This alternative would provide long-term resource protection to those areas containing endangered and threatened species habitat The FWS has biologists with the experience and expertise to manage large natural areas. Land uses that would adversely impact threatened or endangered species would be gradually phased out in any national wildlife refuge. If any private lands or permitted homestead lands were included within any national wildlife refuge, these could be exchanged for public lands elsewhere on Rota, or purchased by a third party for transfer to the refuge. There would be some increase in the number of visitors to Rota and some additional benefits to the local economy, but likely fewer than if a Commonwealth park were established. Costs to operate the refuge would be borne by the FWS. The establishment of a national wildlife refuge would substantially increase the potential for improving endangered species habitat on Rota. Improvements in cultural resources would be limited.

Alternative Four - Designate as National Landmarks. Under this alternative, areas containing cultural or natural resources determined to be of national significance would be nominated for designation by the Secretary of the Interior as National Historic Landmarks or as National Natural Landmarks. Landmarks are designations only and no on-site management would take place under this alternative.

This alternative would offer no assurance of long-term resource protection. Landmark designation would have very little effect on land uses and no effect on land ownership. Landmark designation would probably result in some increases in visitors to Rota and a limited increase in benefits to the local economy. Landmark designation would not result in any visitor use facilities being developed unless the landowner chooses to build them. There would be no public costs associated with landmark designation. The formal recognition of national significance would provide incentive for landowners to improve the condition of resources, but any improvements in resources would be at the discretion of the landowner.

Alternative Five - Locally Designate Conservation Areas. This alternative would essentially be a continuation and possible expansion of the existing conservation areas established on Rota under local law. There would be only minimal on-site management of resources under this alternative.

Long-term resource protection would be uncertain under this alternative. Conservation areas established on Rota under local law have never had their boundaries legally established, nor have any regulations been promulgated for their management and use. No source of sustained funding would be available for the protection of resources or the provision of visitor use facilities or services. There would be no major costs associated with this alternative, but very little potential would exist for the improvement of resources.

1. Long-term Resource Management. Establishment of a unit of the national park system appears to be the best way to ensure the protection of Rota's nationally significant cultural and natural resources for future generations. The NPS has experienced professionals who would act as the cadre for the training of local residents to operate and maintain any national park system unit established on Rota. Each and every unit has its own separate operating budget set each year by Congress. Thus, any national park system unit on Rota would have a steady and reliable source of funding.

2. Effects on Land Use, Ownership, and the Local Economy. NPS management would mean a gradual phasing out of non-park uses on lands within the boundary of any national park system unit. Landownership would not be affected as all of the lands with resources found to be of national significance are now in public ownership and most of them have been designated as conservation areas under local law. The effect on Rota's economy would be beneficial in the long-term. There would be an increase in the demand for visitor service industries such as hotels, restaurants and car rentals, Also, the establishment of a unit or units of the national park system would create new and additional jobs for local residents.

3. Quantity and Type of Visitor Use Opportunities. There would be an increase in the number of visitors and in the type of visitor use opportunities if a unit or units of the national park system were established on Rota. Many of the new visitors would likely be eco-tourists.

4. Consideration of Cost. The cost to operate a unit of the national park system would be greater than the costs to operate a Commonwealth park or a unit of the national wildlife refuge system. All of these costs would come out of the annual budget set by Congress for the operation of the national park system and would not be borne by the CNMI.

5. Potential for Resource Improvement. The establishment of a large natural area as a unit of the national park system would substantially increase the potential for maintaining and eventually for improving the overall health of Rota's native limestone forest, its endangered species, and its nesting seabirds. NPS cultural resource professionals would provide expertise and training for the stabilization and preservation of Rota's significant prehistoric sites.

Management by the NPS would ensure that national park resources would be interpreted for visitors and appropriate facilities developed for visitor use. The NPS has a long tradition of managing cultural resources and large natural areas. If established by Congress, the areas on Rota containing a representative and feasible sampling of its most significant resources would be eligible for sustainable federal funding as part of the national park system.

The map on the following page shows the general extent of a large natural area and four significant cultural sites found to be feasible for park management as part of the national park system-or as the initial units of a Commonwealth park system legislatively established by the CNMI.

Concepts for Resource Management and Visitor Use
The NPS operates units of the national park system utilizing basic management principles. Broadly, in large natural areas the NPS preserves biotic and geologic resources, as well as processes, systems, and values in an unimpaired condition to perpetuate their inherent integrity and to provide present and future generations with the opportunity to enjoy them. In cultural areas where significant prehistoric sites and features exist, the NPS would develop appropriate public access and provide basic visitor use facilities such as restrooms and parking. The NPS would also develop interpretive facilities and services such as wayside exhibits, publications, park maps, and ranger talks and programs.

Large Natural Areas. Natural areas such as Rota's native limestone forest would be managed to preserve their inherent integrity as functioning ecosystems. Resource management would focus on providing visitors with the opportunity to enjoy and benefit from observing natural systems as they evolve, with minimum influence by human actions. Landscapes disturbed by natural phenomena such as hurricanes, landslides, or fires would be allowed to recover naturally. Natural resource values protected by the NPS include plants, animals, water quality, soils, geologic features, air quality, and scenic vistas.

Significant Cultural Sites. Cultural sites such as Mochon, Taga, Chugai, and Alaguan Bay would be managed by the NPS for their long-term preservation and for visitor enjoyment. NPS interpretation would focus on fostering an appreciation of the people traditionally associated with these places. Though public access and interpretation would be provided at these sites, the preservation of significant prehistoric resources in their existing condition would receive primary consideration. The NPS would employ appropriate treatments and techniques to protect these sites and their cultural values from deterioration, overuse, theft and vandalism without compromising their integrity.

The NPS would not develop any overnight facilities within any of the above described areas or sites. Rather, the NPS would rely on private enterprise for the development of any lodging facilities or any other commercial services needed to accommodate park visitors.

This Executive Summary is based on the report titled, Reconnaissance Survey, Significant Natural Areas and Cultural Sites, Island of Rota. This report was prepared by the Honolulu Office of the NPS's Pacific West Region for the members of Rota's Legislative Delegation (First Senatorial District) of the Fourteenth Commonwealth Legislature. As noted, Senator Diego M. Songao, Chairman of the Rota Legislative Delegation wrote to NPS Regional Director Jon Jarvis formally requesting the preparation of a report by the NPS which would evaluate options for the establishment of a park or conservation area on Rota.

The resulting draft report and this draft Executive Summary were based on the knowledge and expertise furnished by the members of Rota's delegation, Senator Diego M. Songao, Senator Paterno S. Hocog, and Senator Paul A. Manglona, as well as Martin Mendiola Assistant to the Mayor of Rota and Pete "June" Duenas of the CNMI Historic Preservation Office. Greg Schroer, Planning Consultant to the CNMI, provided baseline data essential for the preparation of the report, and Michael Ernest, Legal Counsel to the CNMI Legislature, provided needed legal advice and opinion. Mr. Schroer also provided reviews and valuable comments throughout the preparation of the report and this summary. The reconnaissance survey and this summary have been submitted in draft form to Rota's senatorial delegation for their review and distribution for public comment.