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CULTIVATING PEACE This page intentionally left blank CULTIVATING PEACE Conflict and Collaboration in Natural Resource Management Edited by Daniel Buckles INTERNATIONAL DEVELOPMENT RESEARCH CENTRE Ottawa • Cairo • Dakar • Johannesburg • Montevideo • Nairobi • New Delhi • Singapore WORLD BANK INSTITUTE Washington, DC, USA Published by the International Development Research Centre PO Box 8500, Ottawa, ON, Canada K1G 3H9 In collaboration with the World Bank Institute of the International Bank for Reconstruction and Development/The World Bank. The World Bank 1818 H Street, N.W. Washington, D.C. 20433, USA © International Development Research Centre 1999 Canadian Cataloguing in Publication Data Canadian Cataloging in Publication Data Main entry under title : Cultivating peace : conflict and collaboration in natural resource management Co-published by the World Bank. Includes bibliographical references. ISBN 0-88936-899-6 1. Natural resources — Management — Developing countries — Congresses. 2. Conservation of natural resources — Developing countries — Congresses. 3. Conflict management — Developing countries — Congresses. 4. Sustainable development — Developing countries — Congresses. I. Buckles, Daniel. II. World Bank. III. International Development Research Centre (Canada) HC59.7C84 1999 333.7'09'12'4 C99-980392-1 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, photocopying, or otherwise, without the prior permission of the International Development Research Centre. The findings, interpretations, and conclusions expressed in this publication are entirely those of the authors and should not be attributed in any manner to the International Development Research Centre or to The World Bank, to its affiliated organization, or to members of its Board of Executive Directors or the countries they represent. The publishers do not guarantee the accuracy of the data included in this publication and accept no responsibility for any consequence of their use. The boundaries and names shown on the maps in this publication do not imply official endorsement or acceptance by the International Development Research Centre or The World Bank. Mention of a proprietary name does not con- stitute endorsement of the product and is given only for information. A microfiche edition is available. IDRC Books endeavours to produce environmentally friendly publications. All paper used is recycled as well as recyclable. All inks and coatings are vegetable-based products. CONTENTS Foreword — Maureen O'Neil and Vinod Thomas vii Acknowledgments xi Introduction. Conflict and collaboration in natural resource management — Daniel Buckles and Gerett Rusnak 1 CONCEPT: CULTURE Chapter 1. Conflict management: A heterocultural perspective — Jacques M. Chevalier and Daniel Buckles 13 Part 1. Forestry Chapter 2. Nam Ngum, Lao PDR: Community-based natural resource management and conflicts over watershed resources — Philip Hirsch, Khamla Phanvilay, and Kaneungnit Tubtim 45 Chapter 3. The Nusa Tenggara uplands, Indonesia: Multiple-site lessons in conflict management — Larry Fisher, Ilya Moeliono, and Stefan Wodicka 61 Chapter 4. Jabalpur District, Madhya Pradesh, India: Minimizing conflict in joint forest management — Shashi Kant and Roshan Cooke 81 V CONCEPT: SOCIETY Chapter 5. Stakeholder analysis and conflict management — Ricardo Ramirez 101 Part 2. Coastal Areas Chapter 6. Cahuita, Limon, Costa Rica: From conflict to collaboration — Viviane Weitzner and Marvin Fonseca Borras 129 Chapter 7. Bolinao, northern Philippines: Participatory planning for coastal development — Liana Talaue-McManus, Alexis C. Yambao, Severino G. Salmo III, and Porfirio M. Alino . 151 Chapter 8. The Galapagos Islands: Conflict management in conservation and sustainable resource management — Paola Oviedo 163 CONCEPT: PEACE Chapter 9. Peace and conflict impact assessment — Kenneth D. Bush and Robert J. Opp 185 Part 3. Land Use Chapter 10. The Nuba Mountains of Sudan: Resource access, violent conflict, and identity — Mohamed Suliman 205 Chapter 11. Copan, Honduras: Collaboration for identity, equity, and sustainability — Jacqueline Chenier, Stephen Sherwood, and Tahnee Robertson 221 Chapter 12. The Laguna Merin Basin of Uruguay: From protecting the natural heritage to managing sustainable development — Carlos Perez Arrarte and Guillermo Scarlato 237 Chapter 13. Matagalpa, Nicaragua: New paths for participatory management in the Calico River watershed — Ronnie Vernooy and Jacqueline A. Ashby 251 CONCEPT: POLICY Chapter 14. Policy implications of natural resource conflict management — Stephen R. Tyler 263 Appendix 1. Contributing authors 281 Appendix 2. Acronyms and abbreviations 283 vi Chapter 6 CAHUITA, Lm6Nf COSTA RICA: FROM CONFLICT TO COLLABORATION Viviane Weitzner and Marvin Fonseca Borras Since the 1970s Costa Rica has designated more than 25% of its territory as conservation areas; however, to do this, the government expropriated land, forced the relocation of communities, and denied them access to their land and resources. Although the estab- lishment of Cahuita National Park on the southern Caribbean coast of Costa Rica had a significant impact on local residents, the community has used innovative tactics to man- age conflicts with the state over the last 30 years, and a collaborative management insti- tution has emerged. This precedent-setting case has caught the attention of many players in the Central American conservation community. Moreover, Cahuita's experience in mov- ing from conflict with the state to collaboration mirrors a policy shift within the govern- ment from a top-down approach to natural resource management toward a more decentralized, democratic system, and conservationists are looking to the management arrangement established in Cahuita National Park as a possible approach to be adopted in other conservation areas. Costa Rica is known for two things: its history of peace and democracy and its ambitious conservation agenda. Since 1948 Costa Rica has not had a national army. And since the 1970s it has established protected areas in more than 25% of its territory. These two fac- tors appear to go hand in hand in what many regard as a progressive vision espoused by the government of Costa Rica. Alpheus Buchanan, prominent community leader and member of the Committee of Struggle, has remarked that If the government is really concerned about protecting the area, there is nobody more capable of preserving it than those who preserved and protected it for more than a 129 130 + WEITZNER AND FONSECA BORRAS hundred years. They can come and enjoy it with us as long as they respect our rights and our property .... If they are intelligent they would realize that you can't function a park in an area where people are going to be hostile. If you take away our rights, the people are going to be hostile, and the tourists are not going to want to come, and the park is not going to be effective. (see Palmer 1977) Buchanan's words shed light on the fact that it does not take an external threat to disrupt the peace in Costa Rica. In fact, some of the most insidious conflicts have arisen from the government's centralized, "fences-and-fines" approach to conservation policy of the 1970s (Wells and Brandon 1992; Solorzano 1997). The establishment of parks led to the expropriation of lands and the forced relocation of communities that were denied sub- sequent access to their lands and resources. Clearly, this approach was a recipe for conflict. This case study examines the impact of the establishment of Cahuita National Park on Cahuita, a largely Afro-Caribbean community located on the southern Caribbean coast of Costa Rica. Although the establishment of the park has had a significant impact on local residents, the community has used innovative tactics to manage conflicts with the state over the last 30 years, and a collaborative management institution has emerged. This case has caught the attention of many players in the Central American conservation commu- nity. Although interesting management arrangements have been established in Costa Rica for less protectionist categories of conservation area, such as wildlife refuges, the arrange- ment in Cahuita National Park is precedent setting in that it involves a national park intended strictly for conservation and recreation. Moreover, Cahuita's experience in moving from conflict with the state to collabora- tion mirrors a policy shift within the government from centralized, top-down natural resource management toward a process of "deconcentration, decentralization and democ- ratization" (Solorzano 1997). This process was catalyzed by international commitments, such as those made at the United Nations Conference on the Environment and Development, which led to a series of legislative and policy changes to decentralize nat- ural resource management and to increase the participation of civil society in environ- mental decision-making. In 1995, the government introduced the Sistema Nacional de Areas de Conservation (SINAC; National System of Conservation Areas) to take over the adminis- tration of more than 100 protected areas initially managed by a central office in San Jose. The result has been the establishment of 11 conservation areas covering the whole coun- try; these are broken down into even smaller management areas. Today SINAC is search- ing for new models for involving local communities in decision-making, for two reasons: government