Rock Islands Southern Lagoon
Country
Palau
Inscribed in
2012
Criteria
(iii)
(v)
(vii)
(ix)
(x)
The conservation outlook for this site has been assessed as "good with some concerns" in the latest assessment cycle. Explore the Conservation Outlook Assessment for the site below. You have the option to access the summary, or the detailed assessment.
Rock Islands Southern Lagoon covers 100,200 ha and includes 445 uninhabited limestone islands of volcanic origin. Many of them display unique mushroom-like shapes in turquoise lagoons surrounded by coral reefs. The aesthetic beauty of the site is heightened by a complex reef system featuring over 385 coral species and different types of habitat. They sustain a large diversity of plants, birds and marine life including dugong and at least thirteen shark species. The site harbours the highest concentration of marine lakes anywhere, isolated bodies of seawater separated from the ocean by land barriers. They are among the islands’ distinctive features and sustain high endemism of populations which continue to yield new species discoveries. The remains of stonework villages, as well as burial sites and rock art, bear testimony to the organization of small island communities over some three millennia. The abandonment of the villages in the17th and 18thcenturies illustrates the consequences of climate change, population growth and subsistence behaviour on a society living in a marginal marine environment. © UNESCO
Summary
2025 Conservation Outlook
Finalised on
11 Oct 2025
Good with some concerns
Current state and trend of VALUES
Low Concern
Overall THREATS
Overall PROTECTION and MANAGEMENT
Full assessment
Description of values
Sharks, marine turtles, and dugong
Criterion
(x)
13 species of sharks and manta rays and 2 species of marine turtle listed on IUCN’s Red List are found in the Rock Islands (World Heritage Committee, 2012). The site is also home to the world's most isolated population of the Dugong dugon. Up to 521 individuals were counted in 2019 at the Ngederrak MPA in the Rock Islands (Coral Reef Research Foundation, 2020).
Terrestrial biodiversity
Criterion
(x)
All of Palau’s endemic birds, mammals, herpetofauna and nearly half of Palau’s endangered plants are found in Rock Islands Southern Lagoon (World Heritage Committee, 2012).
Fish
Criterion
(x)
746 species of fish occur in the Rock Islands Southern Lagoon, including endemic and threatened species (World Heritage Committee, 2012).
Corals
Criterion
(x)
385 species of coral are known to occur in the Rock Islands Southern Lagoon (World Heritage Committee, 2012).
Marine lakes and associated species
Criterion
(ix)
The Rock Islands Southern Lagoon contains 52 marine lakes, more than at any other site in the world. Furthermore, the marine lakes of the property are at different stages of geological and ecological development, ranging from lakes with high connectivity to the sea to highly isolated lakes with notably different species composition, including unique and endemic species. These features represent an outstanding example of how marine ecosystems and communities develop, and make the lakes valuable as “natural laboratories” for scientific study of evolution and speciation (World Heritage Committee, 2012). Five new subspecies of the Mastigias papua jellyfish have been described from the marine lakes, and new species discoveries continue to be made both in the marine lakes as well as in the complex reef habitats of the property (World Heritage Committee, 2012).
High diversity of habitats
Criterion
(vii)
The Rock Islands Southern Lagoon contains an exceptional variety of habitats within a relatively limited area. Barrier and fringing reefs, channels, tunnels, caves, arches, and coves, as well as the highest number and density of marine lakes in the world, are home to diverse and abundant marine life (World Heritage Committee, 2012).
Exceptional beauty of Rock islands
Criterion
(vii)
The maze of dome-shaped and green Rock Islands seemingly floating in the turquoise lagoon surrounded by coral reef is of exceptional aesthetic beauty (World Heritage Committee, 2012).
Exceptionally high biological and marine habitat diversity
Criterion
(x)
The Rock Islands Southern Lagoon has exceptionally high biological and marine habitat diversity. The marine lakes are unique in terms of number, the density at which they occur, and their varying physical conditions. With low fishing pressure, limited pollution and human impact, as well as an exceptional variety of reef habitat, the resilience of reefs of the property makes it a critical area for protection, including as an area important for climate change adaptation of reef biota, and potentially as a source of larvae for reefs in the region (World Heritage Committee, 2012). The corals in the Rock Islands are more thermally tolerant than patch and outer reefs. Rock Island corals also appear to be adapted to naturally acidified waters and may be uniquely resistant to ocean acidification (Shamberger et al., 2014, Barkley et al., 2015, Barkley et al., 2017).
Assessment information
Increasing tourist numbers combined with the impacts from climate change are the most serious current threat, with impacts from dive tourism evident in some frequently visited dive sites. Although regulations are in place there remains a need for improvement, for example in the enforcement of the regulations to protect the values of the site from the negative impact of activities linked to high visitation rates. Tourism numbers have led to increased pressure on resources through greater freshwater usage, mostly reef-sourced seafood consumption in restaurants, rapid coastal development to accommodate and provide for a greater influx of people, and increased waste generation along with direct impacts from tourists on reef sites through coral damage. The potentially devastating impacts of climate change, particularly through temperature extremes leading to increased bio-erosion and coral bleaching are a stark reminder of the potential damage that could be caused in the future, especially in sites with lower resilience due to other stressors. An increase in severe weather events, most likely linked to climate change, and specifically impacts from tsunamis and typhoons are also notable. Previous super typhoons impacted the reefs within the World Heritage site and the frequency and intensity of such storms are not only likely to increase but also have a greater impact on the Outstanding Universal Value.
Fishing, Harvesting & Controlling Aquatic Species
(Fishing / Harvesting Aquatic Resources )
Inside site
, Widespread(15-50%)
Outside site
The inshore fisheries in and around the Rock Islands are artisanal, small-scale commercial for locals and visitors. The fisheries sector provides less than 1% of employment in the total national workforce. However, a large number of Palauans engage in fishing for subsistence, customs, or informal sales. Palauans consume between 34.4 kg to 86 kg of fish per capita (Koror Southern Lagoon Coastal Fisheries Management Plan, 2021). The reef fish stocks inside and outside the Rock Islands have been found with overall low fish biomass and spawning potential ratio, suggesting the principal fisheries species in the Rock Islands Southern Lagoon are overexploited and continue to have the greatest fishing pressure because of its proximity to Palau's largest population in the State of Koror (Muller-Karanassos, et al., 2021). Subsequent studies in 2019 and 2021 found indications of recovery, although the fisheries still maintained overexploited conditions. However, in 2023, the fisheries are again showing signs of decline, which may be attributed to natural fluctuations or the post-pandemic return of tourism (PICRC Technical Report 25-04, 2025).
Recreational Activities
(Increasing tourist numbers )
Inside site
, Extent of threat not known
Outside site
Impacts from dive tourism are evident in some frequently visited dive sites in the Rock Islands Southern Lagoon especially with numbers of tourists increasing each year (Poonian et al., 2010). The number of tourists visiting Palau increased from 58,000 in 2000 to 160,370 in 2015, a figure that is 9 times the local population (World Bank, 2012; World Bank, 2015; Wabnitz et al., 2018). According to the latest periodic report, tourist numbers have fluctuated between 106,309 to 138,430 annually between 2021-2023 (State Party of Palau, 2023). Concerns have previously been raised about overcrowding at dive sites and poor diver behaviour (e.g., coral holding or kicking) (Wabnitz et al., 2018). A 2018 study by Nestor et al. (2018) found 1 out of 5 groups of snorkelers to Rock Islands damaged live corals with coral fragments at sites without visitors found to be half that of sites with visits. This threat is likely to remain with tourist numbers increasing once again post-covid and enforcement of controls on visitor behaviour are key to the conservation of the site. In terrestrial areas of the Rock Islands, a significant positive correlation has been found between the presence of tourists and increased occurrence of introduced and invasive rats in littoral beach strand areas (Radley et al., 2020). Around the world, introduced rats have been shown to have serious negative impacts on native terrestrial island species of plants and animals (e.g., Harper and Bunbury 2015). Tourist presence in littoral strand forest has likewise been found to have a direct negative effect on nesting by the IUCN Near Threatened Micronesian Megapode in the Rock Islands (Radley et al., 2020). Tourism also brings an increase in wastewater and increased demand for hotel and road-building that can cause erosion, sedimentation and nutrient pollution to the reefs.
Key strategies to address this threat include the Responsible Tourism Framework, Tour Guide Certification Program, and the Rock Island Southern Lagoon Management Plan and Action Plan (State Party of Palau, 2023).
Key strategies to address this threat include the Responsible Tourism Framework, Tour Guide Certification Program, and the Rock Island Southern Lagoon Management Plan and Action Plan (State Party of Palau, 2023).
Invasive Non-Native/ Alien Species
(Invasive alien species)
Invasive/problematic species
Rattus rattus
Felis catus
Other invasive species names
Exaiptasia pallida
Inside site
, Extent of threat not known
Invasive species, both flora and fauna, are serious threats to terrestrial areas of the World Heritage site. Rats (Rattus rattus) are found throughout the site on islands regularly visited by humans/tourists and those that may receive only infrequent visits by the local populace (Radley et al., 2020). Invasive rats are extremely detrimental and destructive to island flora and fauna and have been one of the leading causes of decreases and extinctions of native birds throughout the Pacific and islands elsewhere (e.g., Harper and Bunbury 2015). Island Conservation is working to address rats in the Rock Islands and executed a pilot eradication on Ngeanges or Neco island in early 2017. Introduced cats are another serious threat. Cats have been observed on Ngeremdiu and evidence of their occurance has been found on Ngchus (IUCN Consultation, 2020). There is currently little information pertaining to how wide spread introduced cats are in the Rock Islands and thus the extent of this threat, but cats would greatly affect the populations of many species. The introduction and spread of the Exaiptasia pallida sea anemone, identified as an invasive species, is threatening to degrade or alter habitat at the Jelly Fish Lake (Patris et al., 2019).
Changes in Physical & Chemical Regimes, Changes in Temperature Regimes, Changes in Precipitation & Hydrological Regime
(Ocean acidification)
Inside site
, Throughout(>50%)
Outside site
The Rock Islands are naturally more acidic than the patch and outer reefs of Palau due to the long residence time of seawater in the bays, and the effects of calcification and respiration on seawater pH. The Rock Islands corals are adapted to low pH (Shamberger et al., 2014; Barkley et al., 2015; Barkley et al., 2017) but bioerosion rates in the Rock Islands are already high due to the low pH (DeCarlo et al., 2015) and rates of Net Ecosystem Calcification are the lowest ever measured (Shamberger et al., 2017). As pH declines further due to anthropogenic CO2, the Rock Islands reefs will eventually shift to a state of net dissolution. It is not yet known when this will happen. Reducing local stresssors, including land based sources of nutrient pollution, will slow the effects of ocean acidification (DeCarlo et al., 2015; Prouty et al., 2017).
Changes in Temperature Regimes
(Temperature changes / extreme weather)
Inside site
, Throughout(>50%)
Outside site
World Heritage sites that contain coral reefs have been increasingly exposed to heat stress during recent years, and while the Rock Islands have experienced severe heat stress (Heron et al., 2017), the impacts to date have been less severe than on outer reefs (Bruno et al. 2001; van Woesik et al. 2012). In 1998 and 2010, coral bleaching occurred across the Palau archipelago. In 1998, bleaching induced mortality was as high as 90% on some sites patch and outer reefs. In the Rock Islands, water temperatures were also high but coral bleaching and mortality levels were considerably lower than on patch and outer reefs (Bruno et al., 2001; Golby et al., 2005; Golbuu et al., 2007; van Woesik, 2012; Barkley and Cohen, 2016). While the temperatures to date have allowed the corals of the Rock Islands to do relatively better than corals on the outer reefs (Bruno et al 2001; van Woesik et al. 2012), the increasing global temperatures will however increase all marine temperatures, including the temperatures in the Rock Islands. While species richness recovered 10 years after the first El Niño, reef composition has changed (van Woesik et al., 2012; Golbuu et al., 2007). Large, massive colonies were lost from many outer reefs. Reefs located in bays suffered lower bleaching rates and coral mortality than on outer and patch reefs (van Woesik et al., 2012), and while those nearshore reefs may therefore shelter some species from climate change, these reefs are more vulnerable to land-use modifications and other human impacts. Rising sea temperatures will continue to stress coral reefs, increasing bleaching severity, ultimately reducing the resilience of many species critical to the reefs and diverse marine habitats. In addition, temperature extremes have also been found to impact the ability of reef-building corals to accrete calcium carbonate, which can impair the capacity of reefs to keep up with sea-level rise. Studies in Palau have suggested inner reefs tend to produce less carbonate than other reefs and therefore those inner reefs need higher coral cover to produce sufficient carbonate to keep up with sea-level rise than outer patch reefs (van Woesik and Cacciapaglia, 2018). Because the Rock Islands have lower carbonate production capacity than the outer reefs of Palau (van Woesik and Cacciapaglia, 2018), increases in ocean temperatures will increase the vulnerability of the Rock Islands. Severe weather events, such as typhoons (mentioned above) will also increase in both in frequency and intensity. If worst-case climate change scenarios occur, the Outstanding Universal Value of the site is likely to be severely affected despite research indicating that the reefs in the site have recovered well from previous bleaching events.
Palau is expected to experience high inter annual variability in sea surface temperatures and widespread coral bleaching is projected to occur annually in Palau by 2024 (Resilient Reefs Initiative, 2023). Additional to coral bleaching, other potential climate change impacts include wildfires, and beach erosion (State Party of Palau, 2023).
Palau is expected to experience high inter annual variability in sea surface temperatures and widespread coral bleaching is projected to occur annually in Palau by 2024 (Resilient Reefs Initiative, 2023). Additional to coral bleaching, other potential climate change impacts include wildfires, and beach erosion (State Party of Palau, 2023).
Sea-level rise and increasing temperatures will continue to affect the site and the values for which it was inscribed. This is likely to include impacts on a number of species found within the site in addition to the overall impacts on corals, including some birds and turtles as well as mangroves and other coastal plant species found on the islands within the site.
Changes in Physical & Chemical Regimes, Changes in Precipitation & Hydrological Regime
(Sea level rise / habitat shifts / habitat alteration)
Inside site
, Widespread(15-50%)
Sea level rise is a future threat that may have serious implications to terrestrial flora and fauna within the World Heritage site. The average rate of sea-level rise is currently at approximately 2-3 mm per year. That rate is expected to increase substantially from 2 mm to 9 mm a year, into the 21st century (Vermeer and Rahmstorf, 2009), depending on the rate of greenhouse gas emissions. The rates of contemporary carbonate reef production of the Rock Islands indicate that reefs should be able keep up with sea-level rise under low greenhouse gas emissions, but may not be able to keep up with rates of sea-level rise under high greenhouse gas emissions (van Woesik et al. 2015). Temperature extremes have also been found to impact the ability of reef-building corals to grow reefs, which therefore impair the capacity of reefs to keep up with sea-level rise. Studies in Palau have suggested inner reefs tend to produce less carbonate than other reefs and therefore those inner reefs need higher coral cover to produce sufficient carbonate to keep up with sea-level rise than outer patch reefs (van Woesik and Cacciapaglia, 2018). As the Rock Islands have lower carbonate production capacity than the outer reefs of Palau (van Woesik and Cacciapaglia, 2018), increases in ocean temperatures will increase the vulnerability of the Rock Islands. Another example showing the potential effects of sea level rise on the values of the site is the near threatened [NT] Micronesian Megapode (Megapodius laperouse senex), a subspecies of ground nesting bird endemic to Palau (the other subspecies occurs in the Mariana Archipelago). This species nests in littoral strand habitat generally well within 1 m of high tide. Olsen et al. (2016) found 86% (n = 149) of this species' incubation mounds (active nest sites) occur cumulatively in the Rock Islands and Kayangel Atoll. Of these, 62% (n = 92) were found within the World Heritage site itself (Olsen et al., 2016). Sea level rise modelling by Radley (2018) indicated that megapodes will lose at the very least 43.3% of known breeding habitat. These figures should be considered very conservative given the shortcomings of the spatial data available for analysis in ArcGIS. Much of the currently extant littoral strand forest megapode rely on may be heavily affected by eustatic sea level rise projected to occur before 2100 by the Intergovernmental Panel for Climate Change (IPCC) (Church et al. 2013) and Jevrejeva et al. (2014). Other species of birds may very well be similarly affected but perhaps not to the extent of megapodes given the limited suitable breeding habitat available to the species in the World Heritage site.
Involvement of stakeholders and rightsholders, including indigenous peoples and local communities, in decision-making processes
Overall, the Rock Islands Southern Lagoon is a source of pride for Palauans and the management of the area is supported by local residents (Miyakuni et al., 2018a). However, the involvement of local stakeholders in decision-making and management processes could be further strengthened. One project addressing this is the Koror State Rare campaign (www.rareplanet.org). Stakeholders were consulted and involved in the development of the Resilience Strategy (Resilient Reef Initiative, 2023) which notes the importance of stakeholders to the ongoing protection and management of the site. The Resilience Strategy notes the role of the Ngarameketii traditional groups from the clans of Koror who carry out civic management activities in the site as their traditional responsibilities and engagement with these groups will continue to be key to effective conservation of the site.
Legal framework
The legislative framework regulating use and management of the environment and its resources is comprehensive and clear (IUCN, 2012; World Heritage Committee, 2012). The Koror State Legislature has zoned all of the World Heritage site as a "Conservation Zone" (State Party of Palau, 2012). Rules and regulations for the Rock Islands Southern Lagoon are clearly delineated in the management plan and enforced by the Koror State Rangers. Enforcement is mostly effective, with some room for improvement.
Governance arrangements
The Koror State Department of Conservation and Law Enforcement collaborates with the Palau Historic Preservation Office, Bureau of Arts and Culture in working with locally based agencies and organisations on management and research activities within the property (UNEP-WCMC, 2012). Koror State Regulations (1994) cover general resource use, recreational activities and the designation of protected areas within the Rock Islands Southern Lagoon. The laws and regulations are enforced by the Koror State Rangers. The Ngarameketii traditional groups from the clans of Koror carry out civic management activities in the site as their traditional responsibilities and engagement with these groups will continue to be key to effective conservation of the site.
Integration into local, regional and national planning systems (including sea/landscape connectivity)
The state government has nominated and acquired membership of the Ngerumekaol MPA and Ngerukeuid Wildlife Preserve in the Rock Islands into the Palau Protected Areas Network. Palau was instrumental in establishing the Micronesia Challenge, an initiative between the Federated States of Micronesia, the Republic of the Marshall Islands, the Republic of Palau, Guam, and the Commonwealth of the Northern Mariana Islands to protect more than 30% of the region's nearshore marine ecosystems. The Rock Islands Southern Lagoon along with 23 other MPAs account for over 45% of Palau's coastal habitats being under some form of protection. The site is included in the National Environmental Management Strategy (2022-2030). The Koror State Government is investigating the potential positive effects of additional international designations, such as Biosphere Reserve (MAB Programme) and UNESCO Global Geoparks, for enhancing the future protection and conservation of Ngemelis Island Complex, which lies within the World Heritage site boundaries (State Party of Palau, 2023).
Boundaries
The boundaries of the World Heritage site are clearly delineated, but as with all primarily marine World Heritage sites, there is room for some improvement in boundary markers. High levels of engagement with local communities and a national commitment to the preservation of the marine environment assists the knowledge and awareness of the boundaries.
Overlapping international designations
No identified overlapping designations
Implementation of World Heritage Committee decisions and recommendations
Rock Islands Southern Lagoon was inscribed onto the World Heritage List in 2012 (World Heritage Committee, 2012). The site has only been referenced in one other Committee Decision (12EXTCOM 4), which was an international assistance request.
Climate action
The recently developed Resilience Strategy (Koror State Government et al. 2023) notes the climate change impacts not only on the environment but also the community in Palau noting the air and sea surface temperature changes will impact not only the Mastigua papua jellyfish but also the Palau megapode. The recognition of these impacts in the strategy is only the first step in developing interventions but with most of the drivers for this coming from outside the site, management responses will be difficult.
The Resilient Reefs Initiative (RRI) officially commenced in Palau in May 2021 through a partnership between the Great Barrier Reef Foundation (GBRF) and the Koror State Government (KSG). The initiative aims to build resilience in the Rock Islands Southern Lagoon (RISL) reef ecosystem and the related community and governance systems. Following extensive stakeholder consultation and review of policies and science, the Resilience Strategy details a locally inspired vision - and actions – to be implemented so that ecosystems, communities and governance systems are better able to cope with, recover from and adapt to change and disturbance.
The Strategy builds on multiple local and national frameworks, including the RISL Management Plan (2023), the Palau Climate Change Policy, Koror State Planning Team's Development Core Valuesiii, and Palau’s Protected Areas Network. In particular, the Strategy includes an overview of actions which have recently (as of August 2023) secured funding through RRI and which, when implemented will contribute towards the goals from the RISL Management Plan. Implementation of the strategy has already begun with the launch of four projects, valued at USD$620,000, each addressing crucial resilience challenges for the marine World Heritage site. To support the development and realization of the strategy and its goals, the Resilient Reefs Initiative has allocated resources for a full-time Chief Resilience Officer embedded within the Koror State Government and a Resilience Advisor at the Palau Conservation Society. The initiative has also extended substantial technical support through a network of formal and informal partners (UNESCO, 2023). Tangible results from the Resilient Reefs Initiative are already manifesting in Palau, particularly in the application of traditional knowledge to guide coastal fisheries management planning in the lagoon. In 2021, the local management authority adopted its coastal fisheries management plan (Palau Conservation Society, 2021), a blueprint for restoring reef fish and invertebrate populations, promoting sustainable harvesting in harmony with robust ecosystems, and ensuring the enduring well-being of the Koror community through its coastal fisheries (TNC, 2023).
The Resilient Reefs Initiative (RRI) officially commenced in Palau in May 2021 through a partnership between the Great Barrier Reef Foundation (GBRF) and the Koror State Government (KSG). The initiative aims to build resilience in the Rock Islands Southern Lagoon (RISL) reef ecosystem and the related community and governance systems. Following extensive stakeholder consultation and review of policies and science, the Resilience Strategy details a locally inspired vision - and actions – to be implemented so that ecosystems, communities and governance systems are better able to cope with, recover from and adapt to change and disturbance.
The Strategy builds on multiple local and national frameworks, including the RISL Management Plan (2023), the Palau Climate Change Policy, Koror State Planning Team's Development Core Valuesiii, and Palau’s Protected Areas Network. In particular, the Strategy includes an overview of actions which have recently (as of August 2023) secured funding through RRI and which, when implemented will contribute towards the goals from the RISL Management Plan. Implementation of the strategy has already begun with the launch of four projects, valued at USD$620,000, each addressing crucial resilience challenges for the marine World Heritage site. To support the development and realization of the strategy and its goals, the Resilient Reefs Initiative has allocated resources for a full-time Chief Resilience Officer embedded within the Koror State Government and a Resilience Advisor at the Palau Conservation Society. The initiative has also extended substantial technical support through a network of formal and informal partners (UNESCO, 2023). Tangible results from the Resilient Reefs Initiative are already manifesting in Palau, particularly in the application of traditional knowledge to guide coastal fisheries management planning in the lagoon. In 2021, the local management authority adopted its coastal fisheries management plan (Palau Conservation Society, 2021), a blueprint for restoring reef fish and invertebrate populations, promoting sustainable harvesting in harmony with robust ecosystems, and ensuring the enduring well-being of the Koror community through its coastal fisheries (TNC, 2023).
Management plan and overall management system
The World Heritage site falls in its entirety in Koror State, and the management practices of Koror State Rangers are well known and respected. Management authorities are operating on revenue from tourism, which all but disappeared during the COVID-19 pandemic and left the site without funds to carry out day to day operations. With tourism numbers rebounding financing is increasingly available but this will impact the effectiveness of management actions.
The strength of traditional value systems including resource governance systems is an asset and enables management and zoning that accommodate both cultural/traditional and biodiversity conservation needs. Management objectives and priorities are defined in the Rock Islands Southern Lagoon Management Plan 2022 - 2027. A National Environmental Management Strategy has been developed (2022-2030) along with a resilience strategy for the Rock Islands Southern Lagoon.
The strength of traditional value systems including resource governance systems is an asset and enables management and zoning that accommodate both cultural/traditional and biodiversity conservation needs. Management objectives and priorities are defined in the Rock Islands Southern Lagoon Management Plan 2022 - 2027. A National Environmental Management Strategy has been developed (2022-2030) along with a resilience strategy for the Rock Islands Southern Lagoon.
Law enforcement
There are reports of fishing within the no-take zones of the MPA but this issue is largely data deficient and there is little information available in regard to specific enforcement efforts. On January 1, 2020, the Palau National Marine Sanctuary (PNMAS) went into effect, closing 80% of Palau's Exclusive Economic Zone to fishing. The Sanctuary and the remaining marine areas will require enforcement to ensure the Marine Sanctuary restrictions are followed in terms of fishing. A Rock Islands Southern Lagoon Biosecurity plan has been developed and approved by the Governor, and personnel are being trained in inter-island biosecurity to implement the plan.
Sustainable finance
The Koror State Government provides funding for the management of the Rock Islands (State Party of Palau, 2012) and the Koror State Department of Conservation and Law Enforcement receives an annual budget to pay for staff and implement relevant programmes. However, the main source of revenue generating to finance the Koror State Government operations comes from the tourism industry. The COVID-19 pandemic and associated lack of tourists created a shortfall of revenue, thus affecting the day-to-day running cost for surveillance, maintenance, monitoring, and the overall effective management of the property. Strategies and planning to secure long-term funding to ensure continuity and sustainability of the effective management of the property are required (State Party of Palau, 2023).
Efforts are in place to strengthen the resilience of site management including sustainable financing options. The Ngerumekaol MPA and Ngerukeuid Wildlife Preserve were nominated by the state government to the Palau Protected Areas Network (PAN) and gained membership. The state receives sustainable financing from the PAN to support management activities of the two sites.
Efforts are in place to strengthen the resilience of site management including sustainable financing options. The Ngerumekaol MPA and Ngerukeuid Wildlife Preserve were nominated by the state government to the Palau Protected Areas Network (PAN) and gained membership. The state receives sustainable financing from the PAN to support management activities of the two sites.
Staff capacity, training and development
Koror State Rangers receive training in law enforcement and educational enforcement. However, no recent information on the current staffing levels and capacity could be found. According to the latest periodic report, human resources only partly meet the management need and there are efforts to strengthen and enhance external partnerships to improve internal capacity and explore/connect other beneficial partners and networks (State Party of Palau, 2023).
Education and interpretation programmes
A number of partners provide education programs in the Rock Islands. However, a more systemized approach to provide educational opportunities to Palau’s students would improve effectiveness and standard approaches to the interpretation programs provided to tourists would be of benefit. Noting previous levels of damage in a number of dive and snorkel sites the provision of education and interpretation programmes is important to ensure tourists follow regulations.
Tourism and visitation management
Tourism and interpretation are carried out predominantly by private industry, with many dive shops taking tourists to the Rock Islands. Some of these dive shops have commitments to sustainability and excellent interpretation, while others have room for improvement on both (Poonian, 2010). Some work has been undertaken to identify a tourism carrying capacity (see Miyakuni et al., 2018b) but further work is needed to limit the impacts from divers and snorkelers in particular in key areas of the site.
There are permit systems in place (Rock Island Permit and Jellyfish Lake Permit) for international visitors, which are valid for 10 days and can be issued for additional 10 days when needed. Rock Island Use Forms are used to capture local and/or residents visiting the property (State Party of Palau, 2023). Key strategies to address unsustainable tourism include the Responsible Tourism Framework, Tour Guide Certification Program, and the Rock Island Southern Lagoon Management Plan and Action Plan (State Party of Palau, 2023). There is further need to implement these strategies effectively.
There are permit systems in place (Rock Island Permit and Jellyfish Lake Permit) for international visitors, which are valid for 10 days and can be issued for additional 10 days when needed. Rock Island Use Forms are used to capture local and/or residents visiting the property (State Party of Palau, 2023). Key strategies to address unsustainable tourism include the Responsible Tourism Framework, Tour Guide Certification Program, and the Rock Island Southern Lagoon Management Plan and Action Plan (State Party of Palau, 2023). There is further need to implement these strategies effectively.
Sustainable use
Fishing is the main extractive industry in the Rock Islands and it is relatively well managed. However, subsistence and recreational fishing taking place within the World Heritage site and in designated zones require constant monitoring (World Heritage Committee, 2012). The effects of the Palau National Marine Sanctuary on fishing stocks across the country, including in the World Heritage site, remain to be seen and will require further monitoring to feed into management decisions of the stocks and the site. In 2021, the local management authority adopted its coastal fisheries management plan (Palau Conservation Society, 2021), a blueprint for restoring reef fish and invertebrate populations, promoting sustainable harvesting in harmony with robust ecosystems, and ensuring the enduring well-being of the Koror community through its coastal fisheries (TNC, 2023).
Monitoring
The Palau International Coral Reef Center and other partners such as the Coral Reef Research Foundation and The Nature Conservancy regularly monitor coral reefs and fish populations (Golbuu et al., 2005). The Palau Forest Inventory and Analysis program is conducted every 10 years by the Division of Forest Land Water and the US Forestry Services. A bird monitoring program is implemented by the Koror DCLE with support from the Belau National Museum and Palau Conservation Society and a marine turtle monitoring program is also implemented by the Koror DCLE.
Research
The Palau International Coral Reef Center leads research efforts in the Rock Islands Southern Lagoon, including on the impacts of climate change on coral reefs (Golbuu et al., 2005). The site is also important for research on coral reef resistance to ocean acidification (Shamberger et al., 2014). The Koror State Department of Conservation and Law Enforcement collaborates with the Palau Historic Preservation Office, Bureau of Arts and Culture is working with locally based agencies and organisations on management and research activities within the World Heritage site (World Heritage Committee, 2012). The State Party noted, however, a need in proactive approaches to share and disseminate research derived from the property (State Party of Palau, 2023).
Effectiveness of management system and governance in addressing threats outside the site
The primary long-term threats to the values of the site come from outside the World Heritage site and revolve around climate change, most of which are beyond the control of the management agency. The recently developed Resilience Strategy (Koror State Government et al. 2023) notes the climate change impacts not only on the environment but also the community in Palau noting the air and sea surface temperature changes will impact not only the Mastigua papua jellyfish but also the Palau megapode. The Strategy builds on multiple local and national frameworks, including the RISL Management Plan (2023), the Palau Climate Change Policy, Koror State Planning Team's Development Core Valuesiii, and Palau’s Protected Areas Network. In particular, the Strategy includes an overview of actions which have recently (as of August 2023) secured funding through RRI and which, when implemented will contribute towards the goals from the RISL Management Plan. Implementation of the strategy has already begun with the launch of four projects, valued at USD$620,000, each addressing crucial resilience challenges for the marine World Heritage site. To support the development and realization of the strategy and its goals, the Resilient Reefs Initiative has allocated resources for a full-time Chief Resilience Officer embedded within the Koror State Government and a Resilience Advisor at the Palau Conservation Society. The initiative has also extended substantial technical support through a network of formal and informal partners (UNESCO, 2023). Tangible results from the Resilient Reefs Initiative are already manifesting in Palau, particularly in the application of traditional knowledge to guide coastal fisheries management planning in the lagoon. In 2021, the local management authority adopted its coastal fisheries management plan (Palau Conservation Society, 2021), a blueprint for restoring reef fish and invertebrate populations, promoting sustainable harvesting in harmony with robust ecosystems, and ensuring the enduring well-being of the Koror community through its coastal fisheries (TNC, 2023).
Effectiveness of management system and governance in addressing threats inside the site
The management system and governance arrangements in place for the site have been largely effective at addressing threats inside the site. The Nature Conservancy conducted a management effectiveness evaluation of the Rock Islands Southern Lagoon in 2012; results showed that the management is mostly effective. Management would benefit from a repeat evaluation to assess improvements and actions to address key points from the previous assessment and identify important actions in the face of threats from outside Palau (e.g. climate change). Key threats including damage linked to high levels of tourism and invasive species are being addressed although could be strengthened, with records of damage from tourism and a number of dive and snorkel sites and rats found throughout the site on both islands regularly visited by humans/tourists and those that may receive only infrequent visits by the local populace. The significant future threat posed by climate change means efforts to address threats inside the site are even more important, particularly those linked to high visitation including increased pressure on resources through greater freshwater usage, mostly reef-sourced seafood consumption in restaurants, rapid coastal development to accommodate and provide for a greater influx of people, and increased waste generation. A Rock Islands Southern Lagoon Biosecurity plan has been developed and approved by the Governor, and personnel are being trained in inter-island biosecurity to implement the plan.
Overall, the protection and management of the Rock Island Southern Lagoon is mostly effective although there is some concern related to the management of impacts from tourism, especially in the face of significant threats from climate change. The legislative framework regulating use and management of the environment and its resources is comprehensive and clear but would benefit from improved implementation in combination with sustainable funding and enhanced staff capacities. The Ngarameketii traditional groups from the clans of Koror carry out civic management activities in the site as their traditional responsibilities and engagement with these groups will continue to be key to effective conservation of the site. Recent efforts to develop a resilience strategy for the site are welcomed and will need focussed effort to implement the identified approaches, especially in the face of ongoing challenges from climate change. There has been an increase in the management of invasive species and biosecurity measures for the site with the eradication of rats on two islands. The state has adopted a biosecurity plan for the RISL, and management personnel are being trained to implement the plan. Nevertheless, further efforts are needed to ensure tourism operators adhere to regulations to limit the impacts from divers and snorkelers in particular in key areas of the site.
Sharks, marine turtles, and dugong
Low Concern
Trend
Data Deficient
Palau has abundant shark populations and measures to ban shark fishing (including the government declaring the EEZ as a shark sanctuary) continue to need strong enforcement to ensure that these species persist and threats are limited for these species especially given the movement of these species beyond the boundaries of Palau and continued threats from fishing.
Terrestrial biodiversity
Data Deficient
Trend
Data Deficient
The forests of the islands found within the World Heritage site include all of Palau’s endemic birds, mammals, herpetofauna and nearly half of Palau’s endemic plants. The Rock Islands forests have the highest basal area, volume per acre, and percentage of trees greater than 10 inches in diameter at breast height, and the highest stem density among island groups in Palau (Dendy et al., 2014). The conservation status of the previously endangered Megapodius laperouse senex is now classified Near Threatened in the IUCN Red List. There is a lack of monitoring data available on the status of terrestrial biodiversity and forests. Data on these species and the habitat will be crucial to detect and monitor impacts from climate change.
Fish
Low Concern
Trend
Data Deficient
Reducing fishing impacts, particularly threats to endangered and threatened species will be important to prevent irreversible losses particularly in the face of marine temperature changes.
Corals
High Concern
Trend
Data Deficient
Coral reefs are threatened by climate change and management practices to reduce other stressors such as overfishing, visitor impacts, and poor land use that causes nutrient pollution and sedimentation on the reefs, will be key to limiting the impacts from climate change including ocean acidification and extreme temperatures (Poonian et. al., 2010; Gouezo et al., 2016; TNC, n.d.; Resilient Reefs Initiative, 2023).
Marine lakes and associated species
High Concern
Trend
Deteriorating
Most marine lakes are not visited, which means they receive protection. Due to declining numbers of jellyfish as a result of drought conditions, the Jellyfish Lake had been temporarily closed to visitors to reduce pressures. The Lake has been subsequently reopened once recovery of the jellyfish could be observed (Ministry of Natural Resources, Environment and Tourism, 2019), with 630,000 jellyfish reported in 2018 (CNN, 2019). However, this estimated population size is considerably lower than historic population sizes and further monitoring will be needed.
Continued research and assessment by the Coral Reef Research Foundation (CRRF) on Ongeim L'Tketau Jelly Fish Lake (JFL), shows a continued gradual decrease/absence of the unique subspecies of Golden Jellyfish (Mastigias Papua Etpisoni) since October 2021 when they were present in their usual numbers in the millions. Data from July 2022 indicated a sharp decline in the Golden Mastigias numbers to ~56,000 (10% of April 2022 estimate). This decline has been consistent with the rise in the lake's water temperature. Sampling in August 2022, indicated an average lake water temperature (0-12m) consistently above the 31.5°C threshold, or limit, for successful Golden jellyfish reproduction.
Current data on numbers appears limited but ongoing monitoring will be key to identify natural fluctuations in numbers including recovery in the jellyfish numbers.
Continued research and assessment by the Coral Reef Research Foundation (CRRF) on Ongeim L'Tketau Jelly Fish Lake (JFL), shows a continued gradual decrease/absence of the unique subspecies of Golden Jellyfish (Mastigias Papua Etpisoni) since October 2021 when they were present in their usual numbers in the millions. Data from July 2022 indicated a sharp decline in the Golden Mastigias numbers to ~56,000 (10% of April 2022 estimate). This decline has been consistent with the rise in the lake's water temperature. Sampling in August 2022, indicated an average lake water temperature (0-12m) consistently above the 31.5°C threshold, or limit, for successful Golden jellyfish reproduction.
Current data on numbers appears limited but ongoing monitoring will be key to identify natural fluctuations in numbers including recovery in the jellyfish numbers.
High diversity of habitats
Good
Trend
Stable
The site remains a unique area with exceptionally high variety of habitats, particularly in the marine environment. The islands, and the forests found on them, provide critical habitats for terrestrial species.
Exceptional beauty of Rock islands
Good
Trend
Stable
The aesthetic values of the site are well preserved with no current change.
Exceptionally high biological and marine habitat diversity
High Concern
Trend
Deteriorating
Coral reefs continue to be threatened by climate change but management practices to reduce other stressors such as overfishing, visitor impacts, and poor-land use that causes nutrient pollution and sedimentation on the reefs, will help reduce stress to the coral reefs (Poonian, et. al 2010; Gouezo et al., 2016; van Woesik and Cacciapaglia, 2018; TNC, n.d.; Resilient Reefs Initiative, 2023). There is evidence of impacts from climate change induced marine heat waves that cause coral bleaching and coral mortality, albeit relatively less severe in comparison to other reef areas in the world (Heron et al., 2017).
Assessment of the current state and trend of World Heritage values
Stable
Overall, based on the information available, the current state of the site's values is of low concern. However, for many of the values for which the site was inscribed on the World Heritage List up-to-date data is lacking and further information is required for a comprehensive assessment of their state and trend. The coral reefs within the World Heritage site are threatened by climate change, which will also impact on the other values of the site. Management practices to reduce other stressors such as overfishing, visitor impacts, and poor-land use that causes nutrient pollution and sedimentation on the reefs, will be key for the persistence of these systems. While some concerns remain about the numbers of the jellyfish in the Jellyfish Lake, the recovery trend has been encouraging although further work is needed to provide up to date population estimates.
Additional information
Outdoor recreation and tourism
Tourism is about 50% of Palau’s GDP (one of the highest rates in the world), with most tourists to the country visiting the Rock Islands (IMF, 2012). The site provides numerous health and recreation activities. The Rock Islands Lagoon provides recreational opportunities for Palauans and visitors, including boating, BBQ'ing, fishing, diving, snorkelling, and beach visits.
Importance for research
The Rock Islands Lagoon provides a natural laboratory for scientific research on coral reef health and climate change impacts to coral reefs and has spawned numerous scientific and research publications (e.g. Golbuu, 2007; van Woesik et al., 2012; Shamberger et al., 2014; DeCarlo et al., 2015; van Woesik and Cacciapaglia, 2018; Bennett et al., 2024).
Cultural identity and sense of belonging
Palauans have a long history of a strong relationship with the ocean and it remains central to their culture and social organization as well as providing a source of food and livelihood. A 2003 survey indicated that 87% of Palauan households are linked to fishing and subsequently the marine environment in some way (Wabnitz et al., 2018). This connection remains in place for the World Heritage Site and there is a strong connection from the community to the site.
Fishing areas and conservation of fish stocks
The local population is heavily dependent on fishing for livelihoods, revenue, employment and development. Subsistence and small-scale commercial artisanal, generally coastal, fisheries provide work for tens of thousands of people. Fishing occurs in the Rock Islands Southern Lagoon outside of no-take zones, but has been known to occur illegally inside no-take zones (Matthews, 2004).
Provision of jobs,
Tourism-related income
Tourism, primarily centered around the marine environment and specifically Rock Islands, contributes about 51% of Palau's GDP, 15% of tax revenue, and 40% of total employment (Wabnitz et al., 2018). The value to Palau's economy of protecting sharks, one of the main tourist attractions and found in particularly high densities in the World Heritage site, has been estimated at US$1.9 million through dive tourism (Vianna et al., 2012). The impact of COVID-19 related restrictions on international travel and subsequent tourism numbers on the local economy can not be under stated with Koror State Governments ability to fund day to day operations severely affected and direct impacts from employment and tourism revenue reaching much further than management of the site. Increasing uncertainty from climate change is also likely to impact financing of the site as well as tourism related income.
Benefits provided by the Rock Islands Lagoon include health and recreation, along with significant opportunity for scientific research. Tourism to the World Heritage site provides significant economic benefit through employment and indirect contributions to the local economy. Tourism contributes significantly to Palau's GDP (accounting for 51% of Palau's GDP) and 40% of total employment and as such is a significant benefit from the site, a location that is visited by the majority of Palau's tourists. There are also cultural and spiritual benefits through the strong relationship Palauans have with the ocean and marine environment.
| № | Organization | Brief description of Active Projects | Website |
|---|---|---|---|
| 1 | Palau Ministry of Agriculture, Fisheries and the Environment | Assessment of carrying capacity for tourists at dive sites |
https://www.palaugov.pw/executive-branch/ministries/agriculture-fisheries-and-environment/
|
| 2 | University of the Ryukyus and Palau International Coral Reef Center (PICRC) / Palau Community College (PCC) | Sustainable Management of Coral Reef and Island Ecosystems: Responding to the Threat of Climate Change. Ensuring the Future of Palau’s Wonderful Coral Reefs - a Paradise of Life in the Pacific Ocean. Palau and other Pacific states have abundant coral ecosystems and some of the world’s richest biodiversity. However, they face a changing global environment, including climate change and ocean acidification, as well as the growing impact of regional development issues like coastal development and water pollution. This project takes both global and local perspectives, working through activities such as environmental monitoring, environmental impact assessments for coral island ecosystems, social scientific assessments, and assessments of impact on biodiversity to produce suggestions concerning sustainable approaches for island society. Through gaining an understanding of the structure of island coral ecosystems, the project aims to construct sustainable management systems, with conservation of the coral reef driven by local initiative. At the same time, the project is training human resources with specialist knowledge. Coral reef islands are directly influenced by climate change, and as such they epitomize the action that needs to be taken, and may become a model for the world as a whole. |
https://www.jst.go.jp/global/english/kadai/h2403_palau.html
|
| 3 | Great Barrier Reef Foundation | Initiated by the Great Barrier Reef Foundation, Resilient Reefs is a collaboration with The Nature Conservancy’s Reef Resilience Network, Columbia University’s Center for Resilient Cities and Landscapes, Resilient Cities Catalyst, UNESCO and AECOM. The program is enabled by the BHP Foundation. These global partners each bring unique expertise and support to the pilot sites, as well as help to share the lessons and learnings from the Initiative with Reef communities around the world. Partnering with four UNESCO World Heritage Sites, Resilient Reefs connects local reef managers and communities with a global network to catalyse and implement solutions that build both the reef and community resilience, together and at scale. |
https://barrierreef.org/what-we-do/projects/resilient-reefs
|
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